Download:
pdf |
pdfFederal Communications Commission
FCC 18-181
Before the
Federal Communications Commission
Washington, D.C. 20554
In the Matter of
Communications Marketplace Report
The State of Mobile Wireless Competition
Status of Competition in the Market for the
Delivery of Video Programming
Status of Competition in the Marketplace for
Delivery of Audio Programming
Satellite Communications Services for the
Communications Marketplace Report
)
)
)
)
)
)
)
)
)
)
)
)
)
)
GN Docket No. 18-231
WT Docket No. 18-203
MB Docket No. 17-214
MB Docket No. 18-227
IB Docket No. 18-251
REPORT
Adopted: December 12, 2018
Released: December 26, 2018
By the Commission: Chairman Pai and Commissioners O’Rielly and Carr issuing separate statements;
Commissioner Rosenworcel concurring and issuing a statement.
TABLE OF CONTENTS
Para.
I. INTRODUCTION.................................................................................................................................. 1
II. ASSESSMENT OF COMPETITION AND DEPLOYMENT............................................................... 4
A. The Mobile Wireless Market ........................................................................................................... 5
1. Characteristics of the Mobile Wireless Industry ....................................................................... 6
2. Pricing Levels and Trends....................................................................................................... 14
3. Non-Price Competition............................................................................................................ 23
4. Entry Conditions and Market Concentration........................................................................... 29
5. Mobile Wireless Spectrum ...................................................................................................... 31
6. Service Providers’ Spectrum Holdings ................................................................................... 33
7. Wireless Infrastructure ............................................................................................................ 34
8. Network Coverage................................................................................................................... 37
B. The Video Market .......................................................................................................................... 47
1. MVPDs.................................................................................................................................... 50
2. OVDs....................................................................................................................................... 76
3. Broadcast Television Stations ................................................................................................. 90
4. Intermodal Competition ........................................................................................................ 114
5. Marketplace Factors Relevant to Entry, Competition, and Expansion.................................. 128
C. The Audio Market........................................................................................................................ 137
1. Terrestrial Radio Broadcasters .............................................................................................. 140
2. Satellite Radio ....................................................................................................................... 151
3. Online Audio Providers......................................................................................................... 154
12558
Federal Communications Commission
FCC 18-181
4. Intermodal Competition ........................................................................................................ 161
5. Marketplace Factors Relevant to Entry, Competition, and Expansion.................................. 167
D. The Fixed Broadband Market ...................................................................................................... 169
1. Overview of the Fixed Broadband Communications Marketplace ....................................... 171
2. Fixed Broadband Competition Data...................................................................................... 183
3. Regulatory and Market Barriers ............................................................................................ 192
4. Investment Trends ................................................................................................................. 200
E. Voice Telephone Services............................................................................................................ 203
F. The Satellite Market..................................................................................................................... 208
1. Overview of the Commercial Satellite Services Industry ..................................................... 209
2. Satellite Revenues ................................................................................................................. 215
3. Examination of Satellite Communications Services and Providers ...................................... 217
4. Recent Changes and Trends .................................................................................................. 229
G. Broadband Deployment ............................................................................................................... 236
1. Scope of Reporting................................................................................................................ 238
2. Data Sources and Methodologies .......................................................................................... 241
3. Broadband Deployment Estimates ........................................................................................ 247
4. Demographic Data................................................................................................................. 255
5. Tribal Lands Data.................................................................................................................. 259
6. Adoption Data ....................................................................................................................... 262
H. International Broadband Data Report .......................................................................................... 265
1. Background ........................................................................................................................... 266
2. Discussion ............................................................................................................................. 267
III. COMMISSION ACTIONS ALREADY TAKEN TO CLOSE DIGITAL DIVIDE,
ENHANCE COMPETITION, AND ENCOURAGE DEPLOYMENT OF
COMMUNICATIONS SERVICES ................................................................................................... 290
A. The Mobile Wireless Market ....................................................................................................... 291
1. Universal Support Challenges and Commission Actions...................................................... 291
2. Spectrum Challenges and Commission Actions.................................................................... 293
3. Wireless Infrastructure Siting Challenges and Commission Actions.................................... 297
B. The Fixed Communications Market ............................................................................................ 301
C. The Video and Audio Markets..................................................................................................... 313
D. The Satellite Market..................................................................................................................... 321
IV. COMMISSION AGENDA TO FURTHER ENCOURAGE INVESTMENT, INNOVATION,
DEPLOYMENT, AND COMPETITION .......................................................................................... 326
A. The Mobile Wireless Market ....................................................................................................... 327
B. The Fixed Communications Market ............................................................................................ 335
C. The Video and Audio Markets..................................................................................................... 339
D. The Satellite Market..................................................................................................................... 344
V. PROCEDURAL MATTERS.............................................................................................................. 349
I.
INTRODUCTION
1.
With this first Communications Marketplace Report, the Commission fulfills the
requirement set forth in RAY BAUM’S Act of 2018 to streamline its numerous and varied public reports
into a single document providing a comprehensive evaluation of the state of communications in the
United States. 1 This Report consolidates the Commission’s historical, statutorily required reports, all of
which had been issued in separate documents and at different times, and which assessed different aspects
1
Section 401 of the Repack Airwaves Yielding Better Access for Users of Modern Services Act of 2018 (RAY
BAUM’S Act), Pub. L. No. 115-141, 132 Stat. 1087 (codified at 47 U.S.C. § 163) (RAY BAUM’S Act).
12559
Federal Communications Commission
FCC 18-181
of the diverse communications technologies the Commission oversees. For the first time, the Report
places essential information about all of these technologies in one place.
2.
Title IV of RAY BAUM’S Act of 2018 directs the Commission to publish in the last
quarter of every even-numbered year “a report on the state of the communications marketplace.” 2 Each
biennial report must assess the state of all forms of competition in the communications marketplace; the
state of deployment of communications capabilities; barriers to competitive entry, including market entry
barriers for entrepreneurs and other small businesses; and must describe the actions taken by the
Commission in the previous two years to address challenges and opportunities in the communications
marketplace, and the Commission’s agenda for continuing to address those challenges and opportunities
over the next two years. The Commission must also compile a list of geographic areas that are not served
by any provider of advanced telecommunications capability.
3.
In addition to establishing the Communications Marketplace Report requirement, RAY
BAUM’S Act of 2018 also expressly repealed and modified the Commission’s requirement to produce
many other reports. The Media Bureau, Wireless Telecommunications Bureau, Wireline Competition
Bureau, and International Bureau separately sought public comment to assist the Commission in fulfilling
its reporting duties under the RAY BAUM’S Act of 2018. 3 In total, RAY BAUM’S Act of 2018
eliminated or materially modified 10 separate regularly recurring Commission reports to Congress and in
their place consolidated most of the data required by those reports into this single comprehensive report.4
The Commission’s regulatory reach encompasses a number of different modes of communications. The
replacement of multiple separate reports on distinct schedules with a single consolidated Communications
Marketplace Report provides greater transparency to the public, enables a more holistic examination of
the state of the communications market across technologies, and simplifies for interested parties the
ability to research, consider and evaluate our assessments.
II.
ASSESSMENT OF COMPETITION AND DEPLOYMENT
4.
This section of the Report addresses the requirement that the Commission assess the state
of competition in the communications marketplace, including a discussion of barriers to competitive
entry, including market entry barriers for entrepreneurs and other small businesses. We first discuss the
state of competition in the mobile wireless market, including market characteristics, spectrum and pricing
levels and trends. We then discuss competition in the audio market, such as terrestrial and satellite radio,
and in the video market, including broadcast, multichannel and online video services. We next address
the state of competition in the fixed broadband market, including investment trends and market barriers,
as well as a discussion of the voice services market. The Report next addresses the state of competition in
the satellite market including industry providers and recent changes in the market. We also assess in this
section the state of deployment of communications capabilities as required by RAY BAUM’S Act. We
also provide comparative international data on broadband services, and, where possible, a year-to-year
measure of the extent of broadband service capability, including speeds and prices, in the United States
2
47 U.S.C. § 163(a).
3
See Media Bureau Seeks Comment on the Status of Competition in the Marketplace for Delivery of Audio
Programming, Public Notice, MB Docket No. 18-227, DA 18-761 (rel. July 23, 2018); Wireless
Telecommunications Bureau Seeks Comment on The State of Mobile Wireless Competition, WT Docket No. 18-203,
Public Notice, DA-18-663, (WTB 2018) (Mobile Wireless Competition PN); Wireline Competition Bureau Seeks
Comment on The State of Fixed Broadband Competition, GN Docket No. 18-231, Public Notice, DA 18-784 (WCB
July 27, 2018); International Bureau Seeks Comment on Satellite Communications Services for the Communications
Marketplace Report, IB Docket No. 18-251, Public Notice, DA 18-858 (IB Aug. 17, 2018) (International Bureau
Satellite Public Notice).
4
See RAY BAUM’S Act, section 402. The Act also eliminates other, non-regularly recurring Commission
reporting obligations to Congress. See id., section 402(i)(1)-(5).
12560
Federal Communications Commission
FCC 18-181
and select communities and countries abroad.5 In addition, we include throughout this section data
presentations related to the various markets and discussions of intermodal competition, also as required
by RAY BAUM’S Act of 2018.
A.
The Mobile Wireless Market
5.
Mobile wireless services are an important and increasingly prevalent part of Americans’
daily lives, and competition in the provision of mobile wireless services drives innovation and investment
to the ultimate benefit of the American people and economy. 6 In this section, we present and review
available 2017 data for all mobile wireless services, including voice, messaging, and broadband, and also
present certain pricing information as of early 2018. 7
1.
Characteristics of the Mobile Wireless Industry
a.
Service Providers 8
6.
Facilities-Based Service Providers. As of year-end 2017, there were four facilities-based
mobile wireless service providers in the United States that are typically described as “nationwide”:
AT&T, Sprint, T-Mobile, and Verizon Wireless. Although none of these four nationwide service
providers has a network that is truly ubiquitous, all four service providers have networks that cover at
least 90% of the population with Long Term Evolution (LTE).9 Therefore, this Report will refer to these
four service providers as “nationwide service providers.” Collectively, these four service providers
account for over 400 million connections.10 U.S. Cellular, currently the fifth largest facilities-based
service provider in the United States, is best characterized as a multi-regional service provider, and has
developed wireless networks and customer service operations in portions of 22 states. 11 As of December
5
47 U.S.C. § 1303(b). The Broadband Data Improvement Act, Pub. L. No. 110-385, 122 Stat. 4096 (2008), is
codified in Title 47, Chapter 12 of the United States Code. 47 U.S.C. § 1301 et seq.
6
The Communications Marketplace Report includes information in this section on the mobile wireless marketplace
that previously was submitted to Congress as a separate Mobile Wireless Competition Report under Section
332(c)(1)(C) of the Communications Act of 1934, as amended (Communications Act). 47 U.S.C. § 332(c)(1)(C).
Section 332(c)(1)(C) was amended by striking the first and second sentences, which read: “The Commission shall
review competitive market conditions with respect to commercial mobile services and shall include in its annual
report an analysis of those conditions. Such analysis shall include an identification of the number of competitors in
various commercial mobile services, an analysis of whether or not there is effective competition, an analysis of
whether any of such competitors have a dominant share of the market for such services, and a statement of whether
additional providers or classes of providers in those services would be likely to enhance competition.” Id.
7
Our analysis in this section is data-centric; it combines discussions with substantial use of figures in accessible data
formats. For additional coverage maps, see the web appendix. FCC, Coverage Map Appendix. Citations to
Comments in this section refer to filings submitted in response to the Mobile Wireless Competition PN.
8
We note that mobile satellite service providers offer satellite-based communications to mobile devices, and
generally are targeted at users who require communications and asset tracking in remote areas, in disaster response
situations, or other places where terrestrial mobile wireless network access may be limited. In addition, narrowband
data service providers offer services including two-way messaging, as well as machine-to-machine (M2M) and other
telemetry communications, and are consumed primarily by businesses, government users, and other institutions.
Implementation of Section 6002(b) of the Omnibus Budget Reconciliation Act of 1993; Annual Report and Analysis
of Competitive Market Conditions With Respect to Mobile Wireless, Including Commercial Mobile Services, WT
Docket No. 17-126, Twentieth Report, 32 FCC Rcd 8968, 8977, paras. 17-18 (2017) (Twentieth Report).
9
See infra Section II.A.8.
10
See infra Figure A-1.
11
United States Cellular Corp., 2017 SEC Form 10-K, at 1 (filed Feb. 26, 2018),
https://www.sec.gov/Archives/edgar/data/821130/000082113018000008/usm10k.htm. U.S. Cellular is a majorityowned (83%) subsidiary of Telephone and Data Systems, Inc. Id. Unless otherwise noted, all websites cited in this
(continued….)
12561
Federal Communications Commission
FCC 18-181
31, 2017, U.S. Cellular accounted for approximately five million connections.12 C Spire, the sixth largest
service provider in the U.S., provides service in the Southeastern United States to nearly one million
subscribers. 13 There are also dozens of other facilities-based mobile wireless service providers
throughout the United States, many of which provide service in a single, often rural, geographic area. 14
These non-nationwide service providers increase choice for consumers and help to promote deployment
in rural areas. 15
7.
Mobile Virtual Network Operator (MVNOs). MVNOs do not own any network facilities,
but instead purchase mobile wireless services wholesale from facilities-based service providers and resell
these services to consumers. 16 In 2017, TracFone Wireless (TracFone), an America Movil subsidiary,
was the largest MVNO, with approximately 23 million subscribers. 17 In 2015, Google launched “Project
Fi,” an MVNO in partnership with T-Mobile and Sprint whereby Google Fi subscribers switch between
Wi-Fi networks and these two service providers’ LTE networks.18 In 2016, both Comcast, 19 and Charter
Communications, 20 the nation’s two largest cable providers, activated MVNO options they held with
Verizon Wireless. Comcast launched its wireless service in the spring of 2017 as Xfinity Mobile and had
(Continued from previous page)
Report were visited between Nov. 21, 2018, and Dec. 10, 2018, in order to confirm the accuracy of the information
contained therein.
12
Id.
13
C Spire, About C Spire, https://www.cspire.com/company_info/about/news_detail.jsp?entryId=29600003.
14
Examples of regional facilities-based service providers include Appalachian Wireless, Bluegrass Cellular,
Carolina West Wireless, Cellcom, Choice Wireless, GCI, Nex-Tech Wireless, and Sagebrush Cellular. Twentieth
Report, 32 FCC Rcd at 8975, para. 14 & n.50.
15
Policies Regarding Mobile Spectrum Holdings Expanding the Economic and Innovation Opportunities of
Spectrum Through Incentive Auctions, Report and Order, 29 FCC Rcd 6133, 6207, paras. 179-80 (2014) (Mobile
Spectrum Holdings Report and Order).
16
Twentieth Report, 32 FCC Rcd at 8976, para. 15. The Commission is not able to provide an exact figure of the
number of MVNOs that currently offer services. This is partly because, as resellers of service offered by facilitiesbased service providers, MVNOs are not licensees and typically do not file Section 214 applications. Furthermore,
as the Commission has found in prior competition reports, “[c]omprehensive data on MVNO subscribers are
generally not reported by either MVNOs or facilities-based providers that host MVNOs. Estimates of the number of
MVNOs operating in the United States vary considerably. Many MVNOs are privately-held companies that do not
publicly report financial or subscriber data.” Implementation of Section 6002(b) of the Omnibus Budget
Reconciliation Act of 1993; Annual Report and Analysis of Competitive Market Conditions With Respect to Mobile
Wireless, Including Commercial Mobile Services, Sixteenth Report, 28 FCC Rcd 3700, 3739, para. 32 (2013)
(Sixteenth Report).
17
TracFone, TracFone Home, http://www.tracfone.com/; Prepaid Phone News, Fourth Quarter, 2017 Prepaid
Mobile Subscriber Numbers by Operator (Feb. 19, 2018), https://www.prepaidphonenews.com/2018/02/fourthquarter-2017-prepaid-mobile.html.
18
FierceWireless, Google Unveils “Project Fi” MVNO with Sprint and T-Mobile as Partners (Apr. 22, 2015),
http://www.fiercewireless.com/story/google-unveils-project-fi-mvno-sprint-and-t-mobile-partners/2015-04-22. In
June 2016, Google added U.S. Cellular as a partner. FierceWireless, Google’s Project Fi to Add U.S. Cellular to
Partner Network (June 8, 2016), http://www.fiercewireless.com/story/googles-project-fi-add-us-cellular-partnernetwork/2016-06-08. Similar WiFi service is also provided by two other MVNOs - FreedomPop
(https://www.freedompop.com/) and Republic Wireless (https://republicwireless.com/faqs/).
19
FierceWireless, Comcast to Launch Wireless Service in 2017 with Verizon MVNO, 15M Wi-Fi Hotpots (Sept.
20, 2016), http://www.fiercewireless.com/wireless/comcast-to-launch-wireless-service-2017-verizon-mvno-15m-wifi-hotspots.
20
FierceCable, Rutledge: Charter Has Asked Verizon to Activate MVNO Agreement (Sept. 21, 2016),
http://www.fiercecable.com/cable/rutledge-charter-has-asked-verizon-to-activate-mvno-agreement.
12562
Federal Communications Commission
FCC 18-181
approximately 380,000 subscribers at year-end 2017. 21 Charter began offering its service in the summer
of 2018. 22
b.
Connections/Subscribers
8.
To estimate the number of mobile wireless subscribers/connections, 23 this Report uses
Numbering Resource Utilization Forecast (NRUF) data, which tracks the quantity of phone numbers that
have been assigned to mobile wireless devices,24 CTIA data, and UBS data. As shown in Figure A-1
below, 25 the number of mobile wireless connections, based on NRUF, 26 grew by approximately 3% from
year-end 2016 to year-end 2017 to approximately 411 million, while CTIA estimates of mobile wireless
connections grew to approximately 400 million, an increase of approximately 1%. Figure A-2 presents
data on total connections by service segment based on UBS data. It shows that, in 2017, the postpaid
segment accounted for more than 60% of all connections, while the prepaid segment accounted for less
than 20% of all connections, and wholesale connections and connected devices accounted for the
remainder. 27
9.
Figure A-3 presents data on total mobile wireless connections for the largest publiclytraded service providers operating in the United States, including an estimate of their respective market
shares for 2017. 28 In addition, when measuring market share in terms of revenue, in 2017, Verizon
Wireless’s market share was 35.5%, compared to 32.4% for AT&T, 17% for T-Mobile, and 12.8% for
Sprint. 29
21
FireceWireless, Comcast’s Xfinity Mobile MVNO Grows to 380,000 Customer Lines in Less than 1 Year (Jan.
24, 2018) https://www.fiercewireless.com/wireless/comcast-s-xfinity-mobile-mvno-grows-to-380-000-customerlines-less-than-1-year.
22
Charter Communications NewsRoom, Introducing Spectrum Mobile (June 30, 2018)
https://newsroom.charter.com/news-views/introducing-spectrum-mobile/.
23
Different sources refer to their data as connections or subscribers, and when discussing the different data, we will
use the terminology most currently used by the source and, where possible, provide a definition of this term. For
example, CTIA explains its use of the terms “subscribers” and “connections” as follows: “‘Subscribers’ is used as a
term of art, and reflects the number of revenue-generating units, equally describable as ‘wireless connections’ – the
equivalent of wireline ‘lines.’ The terms ‘subscriber’ and ‘subscribership’ do not denote unique individual
subscribers.” CTIA Wireless Industry Indices Year-End 2017, at 16.
24
NRUF provides a measure of the number of mobile wireless connections or connected devices that have assigned
telephone numbers. As the number of mobile wireless devices that lack telephone numbers increases, the NRUF
data will become less accurate.
25
For details of total mobile wireless connections over time, see Appendix A-1: Total Mobile Wireless Connections.
26
We have estimated penetration rates (the number of mobile wireless connections per 100 people), using NRUF for
the 172 Economic Areas (EAs) in the United States. Our estimates suggest that 2017 regional penetration rates
range from 99.9% in Salisbury, MD-DE-VA to 204% in Biloxi-Gulfport-Pascagoula, MS. Note that NRUF-based
penetration rates can exceed 100% because NRUF identifies the number of connected devices that have associated
telephone numbers, and a single subscriber may have multiple connected devices. See Appendix A-2: Penetration
Rates by EA.
27
Connected devices are primarily mobile, non-voice devices, including (but not limited to) Internet access devices
(e.g., wireless modem cards and mobile Wi-Fi hotspots), tablets, e-readers, smart watches, and telematics systems.
28
The size of a company, typically measured by service revenues or subscribers, relative to the total size of the
industry determines its market share. See The MIT Dictionary of Modern Economics, at 268 (4th ed. 1992).
29
Based on UBS data, Verizon Wireless’s service revenues were $63.1 billion, compared to $57.7 billion for
AT&T, $30.2 billion, for T-Mobile, and $22.7 billion for Sprint. For previous years, see Twentieth Report, 32
FCC Rcd at 8987-88, para. 32 and Table II.C.1. In 2017, total wireless service revenues were approximately $179
billion, a year-over-year decrease of $9.4 billion (or approximately 5%). CTIA Wireless Industry Indices YearEnd 2017, at 58.
12563
Federal Communications Commission
FCC 18-181
Source: NRUF, CTIA Wireless Industry Indices Year-End 2017.
Source: UBS Investment Research. UBS US Wireless 411, Version 51, Figure 17; UBS US Wireless 411, Version
59, Figure 42; UBS Wireless 411, Feb. 2017, Figure 25; UBS Data 2017.
12564
Federal Communications Commission
FCC 18-181
Fig. A-3
Estimated Total Connections for Publicly Traded Facilities–Based Mobile
Wireless Service Providers (in thousands): 2014–2017
Service Providers
EOY 2014
EOY 2015
EOY 2016
EOY 2017
EOY 2017
(% Market
Share)
Verizon Wireless
134,612
140,924
145,859
151,978
35.1
AT&T
120,620
128,679
134,875
146,847
33.9
T-Mobile
55,018
63,282
71,455
74,040
17.1
Sprint
55,929
58,578
59,515
54,683
12.6
4,760
4,876
5,079
5,063
1.2
370,939
396,339
416,783
432,611
U.S. Cellular
Top 5 Service
Providers Total
Source: UBS US Wireless 411, Version 51, Table 21; Version 59, Figure 53; UBS Wireless 411, Feb. 2017, Figure
33; and UBS Data 2017. Total estimated connections figure includes data only for the service providers reported in
this table.
10.
Estimates of the number of net additions in 2017 vary. As shown in Figure A-4, for
2017, there were approximately 12 million net additions based on NRUF data, compared with 4 million
based on CTIA data. Preliminary mobile voice subscriber data as reported by service providers on Form
477 show that for 2017, net subscriber additions totaled approximately 2 million. 30 Figure A-5 below
shows that postpaid net additions increased in 2017, and that the net number of connected device
additions was consistently higher than prepaid additions, from 2014 through 2017. Figure A-6, based on
UBS data, shows net subscriber additions by the four nationwide service providers from 2014 through
2017.
30
Based on Form 477, the preliminary total number of mobile voice telephone subscriptions at year-end 2017 was
340.1 million, as compared to 338.2 million at year-end 2016. We again note that the year-end Form 477 data
reported here are preliminary only, and are subject to corrections as appropriate by the service provider. The final
data will be published in due course by the agency. See, e.g., FCC, Wireline Competition Bureau, Voice Telephone
Services: Status as of December 31, 2016 (Feb. 2018). https://www.fcc.gov/voice-telephone-services-report. These
data do not include non-voice devices.
12565
Federal Communications Commission
FCC 18-181
Source: NRUF, CTIA Wireless Industry Indices Year-End 2017, Form 477.
Source: UBS Investment Research. UBS US Wireless 411, V. 59, Figure 42; UBS US Wireless 411, Feb. 2017,
Figure 25; and UBS Data 2017.
12566
Federal Communications Commission
FCC 18-181
Source: UBS Investment Research. UBS US Wireless 411, Version 51, Figure 14; UBS US Wireless 411, Version
59, Figure 62; UBS Wireless 411 Feb. 2017, Figure 35; and UBS Data 2017.
c.
Churn
11.
Churn measures the percentage of connections that are disconnected from mobile
wireless service during a given time period. 31 A service provider’s churn rate depends on many factors,
such as the distribution of its customers between postpaid and prepaid service plans, customer satisfaction
with their service provider, and switching costs.32 High levels of industry churn can indicate that
consumers are not only willing but are also able to switch easily between service providers. For 2017,
CTIA reported an annual industry-wide churn rate of 15.9%, and a monthly rate of 1.3%.33 Figure A-7
shows the churn rates for the four nationwide providers by quarter.
31
Churn is calculated by dividing the aggregate number of wireless subscriber connections who canceled service
during a time period by the total number of wireless subscriber connections at the beginning of that time period. For
an annual calculation, if a service provider has an average monthly churn rate of 2%, the service provider would lose
24% of its subscribers over the course of a year. Service providers publish their monthly churn rate information as
part of their quarterly filings with the SEC.
32
Twentieth Report, 32 FCC Rcd at 8984, para. 26; Sixteenth Report, 28 FCC Rcd at 3865, para. 260.
33
CTIA Wireless Industry Indices Year-End 2017, at 35. For prepaid services, CTIA reported an annual industrywide churn rate of 48.3% and a monthly churn rate of 4%. Id. at Appendix C, 12.
12567
Federal Communications Commission
FCC 18-181
Fig. A-7
Quarterly Churn Rate for Nationwide Mobile Wireless Providers
1st Quarter 2014- 4th Quarter 2017
3.5%
3.0%
Churn Rate
2.5%
2.0%
1.5%
1.0%
0.5%
0.0%
AT&T
Verizon Wireless
Sprint
T-Mobile
1Q14
1.4%
1.2%
3.2%
2.6%
2Q14
1.5%
1.2%
2.4%
2.1%
3Q14
1.4%
1.3%
2.3%
2.2%
4Q14
1.6%
1.4%
2.4%
2.5%
1Q15
1.4%
1.3%
2.1%
2.0%
2Q15
1.3%
1.2%
2.3%
2.0%
3Q15
1.3%
1.2%
2.2%
1.9%
4Q15
1.5%
1.2%
2.5%
1.9%
1Q16
1.4%
1.2%
2.3%
1.7%
2Q16
1.4%
1.2%
2.1%
1.7%
3Q16
1.5%
1.3%
2.1%
1.7%
4Q16
1.7%
1.3%
2.2%
1.7%
1Q17
1.5%
1.4%
1.9%
1.7%
2Q17
1.3%
1.2%
1.9%
1.7%
3Q17
1.3%
1.2%
2.0%
2.0%
Source: UBS Investment Research. UBS US Wireless 411, Version 49, Table 16. UBS US Wireless 411, Version
51, Figure 28. UBS US Wireless 411, Version 59, Figure 60; UBS US Wireless 411 Feb. 2017, Figure 35; and UBS
Data 2017.
d.
Data Usage
12.
As shown in Figure A-8, monthly data usage per smartphone subscriber rose to an
average of 5.1 GB per subscriber per month, an increase of approximately 31% from year-end 2016 to
year-end 2017. 34 Figure A-9 shows that there was a corresponding drop in total annual minutes of voice
use (MOUs) of approximately 21%,35 and in total messaging traffic of approximately 9%. 36
34
Id. at 64, Chart 27.
35
Id. at 60.
36
Id. at 67. This provider-reported messaging traffic does not include traffic from over-the-top messaging
applications and services, which would only appear in the total data traffic figures, thereby contributing to the total
MB of data traffic. Id. at 13.
12568
4Q17
1.4%
1.2%
1.8%
1.8%
Federal Communications Commission
FCC 18-181
Source: CTIA Wireless Industry Indices Year-End 2017, at 64, Chart 27.
Source: CTIA Wireless Industry Indices Year-End 2017, at 68, Chart 31.
13.
According to a Pew survey, by the end of 2017, smartphone and tablet ownership were
77% and 53%, respectively, up from 51% and 31%, in 2012. 37 As of January 2018, Pew reported that one
in five American adults are “smartphone-only” Internet users—they own a smartphone, but do not have
traditional fixed home broadband service. 38 U.S. Census Bureau’s American Community Survey found
that as of 2017, 11% percent of total U.S. households subscribed to a cellular data plan with no other type
of Internet subscription. 39 According to preliminary data from the Centers for Disease Control and
Prevention (CDC), from December 2014 to December 2017, the percentage of U.S. households that were
37
Pew Research Center, Mobile Fact Sheet (Feb. 5, 2018), http://www.pewinternet.org/fact-sheet/mobile/.
38
Id.
39
U.S. Census, 2017 American Community Survey 1-Year Estimates, Types of Computers and Internet
Subscriptions, https://factfinder.census.gov/faces/tableservices/jsf/pages/productview.xhtml?src=bkmk.
12569
Federal Communications Commission
FCC 18-181
identified as wireless-only (no landline telephone service) increased from approximately 45% to
approximately 54%. 40
2.
Pricing Levels and Trends
14.
The following discussion focuses on pricing developments and changes during the period
covered by this Report. We note first that mobile service providers offer nationwide pricing plans
throughout their service areas, with little disparity in monthly recurring charges between rural and nonrural markets. 41 The majority of mobile wireless subscribers in the United States are billed monthly, after
service has been provided (postpaid service), while others pay for services in advance of receiving them
(prepaid service). 42
a.
Postpaid Service
15.
In 2017, service providers continued the trend of offering unlimited data plans, 43 with
major providers adding tiers to their unlimited data plans. 44 Providers also continued not to count certain
types of data towards deprioritization and data limits (T-Mobile’s “Binge On” program, for example).45
Not only did service providers compete in pricing, they also competed to offer the best combination of
features with their unlimited plans.46 Verizon Wireless, for example, introduced two new unlimited plans
in August 2017, Go Unlimited and Beyond Unlimited.47 In February 2018, U.S. Cellular offered four
40
CDC, NCHS, Stephen J. Blumberg and Julian V. Luke, Wireless Substitution: Early Release of Estimates from
the National Health Interview Survey, July-December 2017, National Center for Health Statistics (June 2018),
https://www.cdc.gov/nchs/data/nhis/earlyrelease/wireless201806.pdf.
41
Twentieth Report, 32 FCC Rcd at 9002, para. 48; Sixteenth Report, 28 FCC Rcd at 3797, para. 137.
42
The prepaid and postpaid versions of a given pricing plan or promotion still differ somewhat, largely because
prepaid subscribers may lack the credit background or income necessary to qualify for postpaid service. To prevent
credit losses and mitigate the credit risk associated with the prepaid segment, service providers require advance
payment for both prepaid service and handsets. Twentieth Report, 32 FCC Rcd at 9005-06, para. 56.
43
While a majority of unlimited plans are offered to postpaid subscribers, some providers now also offer unlimited
to their prepaid subscribers.
44
Postpaid subscribers who use up their plan’s data allowance in a given month generally experience data
deprioritization only during network congestion. See, e.g., Sprint, Sprint Unlimited Data, Talk and Text Cell Phone
Plans, https://www.sprint.com/landings/unlimited-cell-phoneplans/?id16=unlimited%20Freedom%20%7CAll&question_box=unlimited%20Freedom%20%7CAll; Verizon
Wireless, Above Unlimited FAQs, https://www.verizonwireless.com/support/above-unlimited-faqs/. AT&T, on
their Mobile Share Plus plans, offers zero overages, as well as “Rollover Data,” which allows its postpaid
subscribers to roll over their unused data at no additional cost. AT&T, Mobile Share Flex Pans,
https://www.att.com/shop/wireless/data-plans.html; AT&T, Rollover Data,
https://www.att.com/shop/wireless/rollover-data.html.
45
Twentieth Report, 32 FCC Rcd at 9004, para. 52.
46
AT&T Comments at 8.
47
Verizon Wireless, Verizon Unlimited (Aug. 22, 2017), https://www.verizon.com/about/news/verizon-unlimited.
The Go Unlimited plan offers DVD-quality streaming and hotspot speeds of 600 Kbps for $75 (1 line) per month,
while Beyond Unlimited includes HD-quality streaming and mobile hotspot with up to 15 GB for $85 (1 line) per
month. The terms of service of Verizon Wireless’s Unlimited Plans indicate that data may be temporarily slower
during any time of congestion with the GO Unlimited plan, and may decrease in times of congestion, after 22 GB of
data has been used with Beyond Unlimited. See, e.g., Verizon Wireless, Go Unlimited FAQs,
https://www.verizonwireless.com/support/go-unlimited-faqs/; Verizon Wireless, Beyond Unlimited FAQs,
https://www.verizonwireless.com/support/beyond-unlimited-faqs/.
12570
Federal Communications Commission
FCC 18-181
lines with unlimited data for $35 each.48 Verizon Wireless added a new data plan called Above Unlimited
in June 2018, that allows customers to mix and match different unlimited plans, and it includes 75 GB of
LTE data, along with HD video streaming for $95 (1 line) per month. 49 Later that month, AT&T
launched two new top-tier unlimited data offerings, Unlimited & More for $70 for a single line, and
Unlimited & More Premium for $80 for a single line (the latter includes its new WatchTV streaming
video service). 50 In July 2018, Sprint introduced two new unlimited plans: its top-tier plan, Unlimited
Plus, offers 1080p video streaming, 15 GB of personal hotspot data, subscriptions to Hulu and Tidal for
$70 per month for one line of service, while Unlimited Basic streams video at 480p resolution, includes
500 MB of personal hotspot service, and subscriptions to Hulu for $60 per month for one line of service. 51
In contrast, T-Mobile introduced a less expensive unlimited plan in August 2018, Essentials, which starts
at $60 for the first line and includes unlimited talk, text and smartphone data. 52
b.
Prepaid Service
16.
The four nationwide service providers also offer prepaid service under their own prepaid
brands, in addition to selling mobile wireless service wholesale to MVNOs, which then resell service on
the nationwide networks under a variety of prepaid brands. Verizon Wireless has the smallest share of
prepaid subscribers among the nationwide service providers, with only one prepaid brand, Verizon
Wireless Prepaid. To varying degrees, the other three nationwide service providers pursue a multi-brand
prepaid strategy. 53 TracFone, the largest MVNO reseller, also has multiple prepaid brands, including
Straight Talk, telcel, and SafeLink, which target different market and demographic segments such as
premium, Hispanic, or low-income subscribers.54
17.
As postpaid offerings have shifted away from term contracts and equipment subsidies,
service providers have adopted pricing plans and promotions for their high-end prepaid monthly service
offerings that are similar to their postpaid offerings. For example, unlimited prepaid plans were first
introduced in February 2017 by Sprint’s Boost Mobile, and in October 2017, Boost Mobile offered a
family plan of five lines with unlimited data for $100 a month to consumers who switched service.55
AT&T’s Cricket offered new customers twelve months of unlimited data access, calls, texts and media
48
U.S. Cellular, U.S. Cellular Offering Four Lines With Unlimited Data For $35 Each (Feb. 12, 2018),
https://www.uscellular.com/about/press-room/2018/USCELLULAR-OFFERING-FOUR-LINES-WITHUNLIMITED-DATA-FOR-35-DOLLARS-EACH.html.
49
Verizon Wireless, Mix and match your unlimited plans (Jun. 14, 2018),
https://www.verizon.com/about/news/mix-and-match-your-unlimited-plans.
50
AT&T, AT&T Debuts “WatchTV” With 2 New Unlimited Wireless (Jun. 21, 2018),
http://about.att.com/newsroom/watchtv_app_with_unlimited_wireless.html.
51
Sprint, Sprint’s Industry-Leading Unlimited Plans Just Got Even Better! New Unlimited Plans Include Features
Customers Love for the Best Price (Jul. 12, 2018), https://newsroom.sprint.com/sprints-industry-leading-unlimitedplans-just-got-even-better-new-unlimited-plans-include-features-customers-love-for-best-price.htm.
52
T-Mobile, Introducing T-Mobile Essentials: Smartphone Freedom on a Great Network at the Right Price (Aug. 6,
2018), https://www.t-mobile.com/news/introducing-t-mobile-essentials.
53
Sprint prepaid brands include Boost Mobile, Virgin Mobile, and Assurance Wireless (under the Assurance
Wireless brand, Virgin Mobile provides service to Lifeline eligible subscribers and subscribers who have lost their
Lifeline eligibility and retain Assurance Wireless retail service); AT&T prepaid brands include AT&T Prepaid and
Cricket; and T-Mobile prepaid brands include MetroPCS.
54
TracFone Wireless Inc., Brands, http://www.tracfonewirelessinc.com/en/brands/.
55
Boost Mobile, Boost Mobile Offers Unsurpassed Value in Family Plans – Five Lines with Unlimited Gigs for
$100 a Month and Free Phones (Oct. 25, 2017), http://newsroom.sprint.com/boost-mobile-offers-unsurpassed-valuein-family-plans-five-lines-with-unlimited-gigs-for-100-month-and-free-phones.htm.
12571
Federal Communications Commission
FCC 18-181
messages in their Unlimited 2 Plan for $40 a month in February 2018. 56 In April 2018, T-Mobile’s
MetroPCS offered new customers two months of unlimited data for free. 57 Generally, prepaid subscribers
who reach the limit of their high-speed data allowance in a given month may continue to use their
handsets for data service on an unlimited basis, but at reduced speeds. 58 For example, Cricket reduces
data download speeds to a maximum of 128 Kbps after the customer’s high-speed data allowance is
used. 59
c.
Price Indicators for Mobile Wireless Services
18.
It is difficult to directly compare prices because providers offer a variety of plans,
frequently under multipart pricing schemes, which also vary in non-price terms and features, such as the
consequences of reaching usage limits.60 Figures A-10 and A-11 present monthly postpaid prices for the
four nationwide service providers’ standard and premium unlimited plans, including discounts for autopay, which are now common. 61 Figure A-12 shows the current monthly prices for major prepaid service
providers. Premium plans tend to have higher thresholds of data usage before deprioritization, more 4G
LTE hotspot data, increased streaming video quality, and increased international allowances compared
with standard plans offered by the same provider. Unlimited service is also the primary offering of
prepaid plans, though postpaid users frequently are given priority over prepaid users on a given network
during times of peak congestion. 62 Further, the heaviest postpaid users may also experience deprioritized
speeds during periods of peak network congestion after they have exceeded certain monthly data
thresholds. 63
56
Cricket, Cricket Helps Make Your Tax Refund Go Further with Unlimited Data for Just $40/Month
http://cricketwireless.mediaroom.com/cricket-helps-make-your-tax-refund-go-further-with-unlimited-data-for-just40-month.
57
T-Mobile, Switch to MetroPCS Today and get TWO Months Unlimited Data Free (Apr. 12, 2018),
https://www.t-mobile.com/news/metropcs-two-months-free.
58
Twentieth Report, 32 FCC Rcd at 9005, para. 55.
59
Cricket Wireless, Mobile Broadband Information, https://www.cricketwireless.com/legal-info/mobile-broadbandinformation.html.
60
It is therefore difficult to identify sources of information that track mobile wireless service prices in a
comprehensive and consistent manner. In addition, data on subscribership is not available at the plan level and any
average price comparison implicitly assumes uniform subscribership of all plans. See, e.g., Twentieth Report, 32
FCC Rcd at 9006, para. 57; Sixteenth Report, 28 FCC Rcd at 3797, para. 137. According to analysis by Recon
Analytics, the cost per MB has fallen significantly over the past decade, from $1.37 per MB in 2007 to less than half
a cent per MB in 2016. FierceWireless, Industry Voices—Entner: Consumer ‘Surplus’ in Wireless Rises $192B in 2
Years (Aug. 14, 2017), http://www.fiercewireless.com/wireless/industry-voices-entner-consumer-surplus-wirelessrises-192b-2-years.
61
In addition, T-Mobile incorporates taxes and fees into its advertised prices for its T-Mobile One plan. As these
fees vary by locality, there is no way to fully account for the differences in pricing in Figures A-10 and A-11.
62
MetroPCS in its Terms and Conditions indicates that “[t]o differentiate the services we sell, at times and at
locations where there are competing customer demands for network resources, we give the data traffic of customers
who choose T-Mobile-branded services precedence over the data traffic of customers who choose non-T-Mobilebranded services such as Metro by T-Mobile.” See https://www.metropcs.com/terms-conditions/terms-conditionsservice.html.
63
As noted above, the average consumer uses about 5 GB of data per month, and after a certain level of data
consumption (between 20 and 50 GB depending on the provider), data may be deprioritized. See Section II.A.1.d.
12572
Federal Communications Commission
FCC 18-181
Note: The prices for unlimited data plans in Figures A-10 and A-11 were taken from service providers’ websites on
September 1, 2018. Prices include any per line charges indicated by the service provider. Prices do not include any
additional charges such as for equipment installment plans, insurance, international use, or mobile hotspots. If a
service provider includes any such feature as part of its unlimited data plan without extra charge, the above price
would include this feature. Further, the above prices do not include any one-time charges paid, such as activation
fees and termination fees. Prices and the specifics of the plans are subject to change.
12573
Federal Communications Commission
FCC 18-181
Note: The prices were taken from service providers’ websites on September 1, 2018. Prices include any
per line charges indicated by the service provider. Prices and the specifics of the plans are subject to
change.
19.
CPI. The Consumer Price Index (CPI) is a measure of the average change over time in
the prices paid by consumers for a fixed market basket of consumer goods and services. As documented
in previous Reports, two different pricing indicators—the Wireless Telephone Services CPI, 64 and the
per-minute price of voice service—show that mobile wireless prices have declined significantly since the
mid-1990s. 65 According to CPI data, the price (in constant dollars) of mobile wireless services has
continued to decline: from 2016 to 2017, the annual Wireless Telephone Services CPI decreased by 11%
while the overall CPI increased by 2%, and the broader Telephone Services CPI fell by 7%. 66 Further,
from 2013 through 2017, the annual Wireless Telephone Services CPI decreased by approximately 17%
and the Telephone Services CPI decreased by approximately 10%, while the overall CPI increased by
approximately 5%.
20.
Average Revenue Per Unit. Various measures of Average Revenue per Unit (ARPU) are
frequently used as a proxy for price, particularly in industries with multiple pricing plans and complex
rate structures, such as mobile wireless service. 67 As shown in Figure A-13 below, which is based on
64
All CPI figures were taken from BLS databases: Bureau of Labor Statistics, http://www.bls.gov. The index used
in this analysis, the CPI for All Urban Consumers (CPI-U), represents about 87% of the total U.S. population.
Bureau of Labor Statistics, Consumer Price Index: Frequently Asked Questions, https://www.bls.gov/cpi/questionsand-answers.htm. The CPI category “Telephone Services” has two components: wireless telephone services and
landline telephone services. Additional information can be found at Bureau of Labor Statistics, Consumer Price
Index: How the Consumer Price Index Measures Price Change for Telephone Services,
https://www.bls.gov/cpi/factsheets/telephone-services.htm.
65
See, e.g., Twentieth Report, 32 FCC Rcd at 9008, para. 58; Sixteenth Report, 28 FCC Rcd at 3875, 3877, para.
265, Table 38.
66
For changes in the CPI over time, see Appendix A-3: CPI.
67
Implementation of Section 6002(b) of the Omnibus Budget Reconciliation Act of 1993; Annual Report and
Analysis of Competitive Market Conditions With Respect to Mobile Wireless, Including Commercial Mobile
Services, Seventeenth Report, 29 FCC Rcd 15311, 15328, para. 35 & n.52 (WTB 2014) (Seventeenth Report);
Patrick McCloughan and Sean Lyons, Accounting for ARPU: New evidence from international panel data,
Telecommunications Policy 30, 521-32 (2006); Eun-A Park, Krishna Jayakar, Competition between Standards and
the Prices of Mobile Telecommunication Services: Analysis of Panel Data, TPRC 2015 (Aug. 15, 2015).
12574
Federal Communications Commission
FCC 18-181
CTIA data, industry ARPU fell sharply during 2017 from $41.50 to $38.66, a decline of approximately
7%. 68 Recent changes by service providers, such as the removal of overage charges, the move toward
unlimited data plans, and Equipment Installment Plans (EIPs) have all contributed to the reported decline
in ARPU. Figure A-13 also shows subscribers/connections and ARPU for more than 20 years. 69
Source: Based on CTIA Wireless Industry Indices Year-End 2017.
21.
Average Revenue Per Unit by Service Provider. Based on UBS estimates, as seen in
Figure A-14, from the fourth quarter of 2014 to the fourth quarter of 2017, ARPU declined for all service
providers, with the exception of T-Mobile: AT&T’s ARPU declined by approximately 19%; Sprint’s
ARPU declined by approximately 20%; Verizon Wireless’s ARPU declined by approximately 23%;
while T-Mobile’s ARPU was virtually constant. Industry ARPU declined by approximately 18% over
this time period.
68
CTIA reported an industry average measure of ARPU which is calculated “based on total reported wireless
service revenues for the period, divided by the average reported subscriber units during the survey period.” CTIA
Wireless Industry Indices Year-End 2017, at 8.
69
For additional details on ARPUs from 1993 to 2017, see Appendix A-4: ARPU.
12575
Federal Communications Commission
FCC 18-181
Fig. A-14
ARPU Estimates of Publicly Traded Facilities-Based Mobile Wireless Service Providers
4th Quarter 2014–4th Quarter 2017
Nationwide Providers
4Q14
4Q15
4Q16
4Q17
AT&T
$42.04
$38.78
$36.58
$34.13
Sprint
$40.44
$35.54
$32.03
$32.49
T-Mobile
$35.56
$34.53
$33.80
$35.62
Verizon Wireless
$45.52
$40.99
$37.52
$35.27
U.S. Cellular
$53.58
$49.32
$49.03
$46.89
Industry ARPU
$42.27
$38.54
$35.93
$34.73
Source: UBS Data 2017.
22.
Estimated Average Revenue per MB. Given the variation in data plans, including shared
plans, the lack of information on how much data users consume across these different plans, and the fact
that revenues specific to data consumption are no longer reported by service providers, we lack the
necessary information to measure precisely a true price per megabyte (MB) data used. However, by
making certain assumptions, 70 we can calculate various industry-wide estimates of the average revenues
per MB. Figure A-15 below shows four different estimates of the average revenue per MB, based on data
from CTIA and the U.S. Census Bureau. All four estimates indicate that average revenue per MB has
been declining. Specifically, as of year-end 2017, these estimates show a decrease of approximately 10%
to approximately 29% compared to 2016, and a decrease of approximately 72% to approximately 83%
compared to 2013.
70
For a full discussion of the methodology used to derive $/MB, see Twentieth Report, 32 FCC Rcd at 9010, para.
61 & n.202.
12576
Federal Communications Commission
FCC 18-181
Source: Based on data from the CTIA Wireless Industry Indices Year-End 2017 and the U.S. Census.
3.
Non-Price Competition
a.
Investment
23.
Over the past 8 years, mobile wireless service providers in the United States have
invested, based on CTIA data,71 more than $229.5 billion in their networks, 72 which has resulted in higher
data speeds, expanded network coverage, and increased network densification.73 Based on UBS data,
wireless service providers made capital investments of $28.5 billion in 2017, an increase of approximately
2.3% from the $27.9 billion invested in 2016. As shown in Figure A-16, absolute capital expenditures by
AT&T and Verizon Wireless consistently have exceeded those by T-Mobile and Sprint. In 2016-17,
AT&T, T-Mobile, and Verizon Wireless each had CAPEX of approximately 16.3% to 17.4% of service
revenue. 74 CAPEX by Sprint, on the other hand, varied considerably over the past few years, from
71
According to CTIA, the capital investment reported “excludes the cost of licenses used to deliver wireless service,
whether acquired at private or public auctions, or via other acquisition processes. Likewise, investment by thirdparty tower erectors, and non-carrier owners or managers of networks, is not tracked by nor reflected in CTIA’s
survey. CTIA’s survey collects only historical (past data) and not projected or planned investment.” CTIA Wireless
Industry Indices Year-End 2017, at 47.
72
CTIA Wireless Industry Indices Year-End 2017, at 47.
73
The Sixteenth Report noted that CAPEX in system/network assets may be cyclical or “lumpy” because
technological change in the mobile wireless service industry is commercially implemented in successive generations
of technologies. Consequently, CAPEX may vary between periods and fluctuations in measures of CAPEX are
consistent with the cyclical nature of technological adoption in the mobile wireless service industry. Sixteenth
Report, 28 FCC Rcd at 3842, para. 215.
74
UBS Data, Sept. 2018.
12577
Federal Communications Commission
FCC 18-181
approximately 17% of service revenue in 2015, to 7.5% in 2016, before increasing to 11% in 2017. 75 The
mobile wireless industry is currently in the process of preparing for the introduction of 5G services, and
equipment vendors such as Ericsson reported that its “networks segment saw a 2% increase year-overyear with North American (U.S.) operators’ investments in 5G driving that growth.” 76
Source: UBS US Wireless 411, Version 55, Figure 54; UBS US Wireless 411, Version 57, Figure 60; UBS US
Wireless 411, Version 59, Figure 72; Wireless 411, February 2017, Figure 38; UBS Data 2017.
b.
Mobile Wireless Devices, Services, and Advertising
24.
Mobile wireless service providers compete by offering consumers a large variety of
mobile wireless devices and differentiated services at a variety of prices. 77 In addition, they compete for
customers by advertising and marketing, with marketing campaigns focusing on the quality, coverage,
and reliability of their mobile broadband networks. 78 They also have promoted the advantages of their
particular service plans, including unlimited plans and the prices of their plans relative to those of their
rivals. 79 Some providers marketed mobile wireless service plan bundles with content offerings or device
offerings: for example, Verizon Wireless advertised its unlimited plan alongside an offering for Google’s
75
Id.
76
RCR Wireless, Ericsson focused on 5G in the US, its biggest market (Aug. 10, 2018),
https://www.rcrwireless.com/20180810/5g/ericsson-focused-on-5g-in-the-us-its-biggest-market.
77
Twentieth Report, 32 FCC Rcd at 9011, para. 62.
78
See id. at 9013, para. 66; FierceWireless, The Top 5 Wireless Ads: Verizon spends $30M on Pixel 2 spots in
November (Dec. 12, 2017), https://www.fiercewireless.com/wireless/top-5-wireless-ads-verizon-spends-30m-pixel2-spots.
79
Id.
12578
Federal Communications Commission
FCC 18-181
Pixel 2 phone, while Sprint and AT&T both advertised their plans alongside offerings for Apple’s
iPhone. 80 AT&T advertised free HBO with its unlimited data plans, and T-Mobile advertised a free
subscription to Netflix.81 In 2017, Verizon Wireless spent more than $2.6 billion on advertising, down
slightly from $2.7 billion in 2016; AT&T spent $3.8 billion, similar to its 2016 spending; T-Mobile spent
$1.8 billion, up slightly from $1.7 billion in 2016; and Sprint spent $1.3 billion, up slightly from $1.1
billion in 2016. 82
c.
Speed of Service
25.
Network speed is a key characteristic of mobile wireless performance, and the
Commission has recognized the importance of accurate and timely data on wireless upload and download
speeds. 83 Mobile broadband speeds experienced by consumers can vary greatly with a number of factors,
including the service provider’s received signal quality, cell traffic loading and network capacity in
different locations, as well as the capabilities of consumers’ devices. 84 Because these and other factors
cause variations in mobile network performance, various methodologies are used to measure mobile
network speeds. The two most prevalent methodologies rely on crowdsourced data and structured sample
data. Crowdsourced data are user-generated data produced by consumers who voluntarily download
speed test applications on their mobile devices while structured sample data, by contrast, are generated
from tests that control for the location and time of the tests as well as for the devices used in the test. 85
This Report presents speed data using the Ookla Net Index data (crowdsourced), OpenSignal data
(crowdsourced), and RootMetrics (structured sample). 86
26.
Figures A-17 and A-18 present the nationwide mean and median LTE download and
upload speeds based on Ookla data by service provider for the second half of 2016 through the second
half of 2017. 87 Figure A-19 presents the increase over time for mean and median LTE download speeds
80
Id.
81
Id.
82
Verizon, 2017 Annual Report (Form 10-K) at note 14 (Feb. 23, 2018); Verizon, 2016 Annual Report (Form 10-K)
at note 14 (Feb. 21, 2017); AT&T Inc., 2017 Annual Report (Form 10-K) at note 19 (Feb. 20, 2018); AT&T Inc.,
2016 Annual Report (Form 10-K) at note 18 (Feb. 17, 2017); T-Mobile 2017 Annual Report (Form 10-K) at 68
(Feb. 20, 2018); T-Mobile 2016 Annual Report (Form 10-K) at 60 (Feb. 14, 2017); Sprint, 2017 Annual Report
(Form 10-K) at F-17 (May 24, 2018); Sprint, 2016 Annual Report (Form 10-K) at F-16 (May 26, 2017).
83
See generally Inquiry Concerning Deployment of Advanced Telecommunications Capability to All Americans in a
Reasonable and Timely Fashion, GN Docket No. 17-199, 33 FCC Rcd 1660, 1673, para. 31 & n.92 (2018) (2018
Broadband Deployment Report). In addition, in the section on broadband deployment, we assess the extent to which
Americans are covered by mobile LTE (based on Form 477 data at minimum advertised speeds of 5 Mbps/1 Mbps,
and Ookla data at a median speed of 10 Mbps/3 Mbps or higher).
84
For a detailed discussion of the various factors, see Twentieth Report, 32 FCC Rcd at 9033, para. 87; Sixteenth
Report, 28 FCC Rcd at 3895, para. 293.
85
For a detailed discussion of crowdsourcing and structured sample data, see Twentieth Report, 32 FCC Rcd at
9033-34, para. 88.
86
The results based on the CalSPEED drive-test data gathered by the California Public Utility Commission (CPUC)
(structured sample) can be found in Appendix A-5: Mobile Wireless Speeds. In addition, while speed metrics based
on the FCC Speed Test (available for both Android phones and the iPhone) were reported in the Seventeenth Report
through the Nineteenth Report, we did not report these metrics in the Twentieth Report and do not report them in this
Report due to certain anomalies found in the underlying data. An in-depth discussion of the Measuring Broadband
America Program’s FCC Speed Test is available in the Seventeenth Report. Seventeenth Report, 29 FCC Rcd at
15467, Appendix VI., paras. 7-9; see also FCC, Measuring Mobile Broadband Performance,
http://www.fcc.gov/measuring-broadband-america/mobile.
87
Ookla gathers crowdsourced mobile speed data through the use of its Speedtest mobile app. Speedtest, Ookla
Speedtest Mobile Apps, http://www.speedtest.net/mobile/. An in-depth discussion of the Ookla speed test is
(continued….)
12579
Federal Communications Commission
FCC 18-181
for all providers, from the first half of 2016 through the first half of 2018. Based on Ookla data, Figure
A-19 indicates that the median LTE download speed increased from 12.8 Mbps to 19.5 Mbps, an increase
of approximately 52%, over this time period.
Fig. A-17
Ookla Speed Test--Estimated LTE Download Speeds by Service Provider, Nationwide
2H2016
Service
Provider
Mean
Down
load
Speed
(Mbps)
1H2017
2H2017
Median
Down
load
Speed
(Mbps)
Number
of Tests
(’000s)
Mean
Down
load
Speed
(Mbps)
Median
Down
load
Speed
(Mbps)
Number
of Tests
(’000s)
Mean
Down
load
Speed
(Mbps)
Median
Down
load
Speed
(Mbps)
Number
of Tests
(’000s)
AT&T
22.74
16.23
2,519
23.63
16.12
2,664
23.66
15.55
2,834
Sprint
15.51
9.20
2,269
18.11
9.81
2,407
21.78
11.11
2,123
T-Mobile
23.61
16.72
3,744
26.20
18.32
3,769
30.48
21.12
3,498
Verizon
Wireless
23.51
17.12
3,044
23.82
16.32
4,362
25.93
16.78
4,269
Source: Ookla SPEEDTEST intelligence data, © 2018 Ookla, LLC. All rights reserved. Published with permission
of Ookla.
Fig. A-18
Ookla Speed Test - Estimated LTE Upload Speeds by Service Provider, Nationwide
2H2016
Service
Provider
Mean
Upload
Speed
(Mbps)
Median
Upload
Speed
(Mbps)
1H2017
Number
of Tests
(’000s)
Mean
Upload
Speed
(Mbps)
Median
Upload
Speed
(Mbps)
2H2017
Number
of Tests
(’000s)
Mean
Upload
Speed
(Mbps)
Median
Upload
Speed
(Mbps)
Number
of Tests
(’000s)
AT&T
7.42
5.23
2,519
7.46
5.13
2,664
7.53
4.91
2,834
Sprint
4.73
3.48
2,269
4.83
3.51
2,407
3.82
2.69
2,123
T-Mobile
11.98
9.37
3,744
12.07
9.45
3,769
11.99
9.36
3,498
Verizon
Wireless
8.28
4.93s
3,044
8.69
5.24
4,362
9.11
5.56
4,269
Source: Ookla SPEEDTEST intelligence data, © 2018 Ookla, LLC. All rights reserved. Published with permission
of Ookla.
(Continued from previous page)
available in the Seventeenth Report. Seventeenth Report, 29 FCC Rcd at 15465-66, Appendix VI., paras. 1-6. The
upload and download speeds were calculated by Ookla and provided to the Commission for use in this Report. Note
that in recent years, Ookla has updated their data cleaning and aggregation rules, and thus the reported data may
differ slightly from previous Reports.
12580
Federal Communications Commission
FCC 18-181
Source: Ookla SPEEDTEST intelligence data, © 2018 Ookla, LLC. All rights reserved. Published with
permission of Ookla.
27.
Nationwide average LTE download speeds for the second half of 2016 through the
second half of 2017 from OpenSignal are presented in Figure A-20 below. 88
Fig. A-20
OpenSignal –Estimated LTE Download Speeds, Nationwide
Service Provider
2H2016
1H2017
2H2017
Av. Download
Speed (Mbps)
Av. Download
Speed (Mbps)
Av. Download
Speed (Mbps)
AT&T
13.86
12.92
13.27
Sprint
8.99
9.76
12.02
T-Mobile
16.65
17.45
19.42
Verizon Wireless
16.89
14.91
17.77
Total
13.95
14.99
16.31
Source: OpenSignal, 2018, © OpenSignal.
28.
We present in Figure A-21 the mobile wireless indices within the United States for the
second half of 2016 through the second half of 2017 from RootMetrics. 89
88
OpenSignal gathers crowdsourced mobile speed data through the use of its mobile app. OpenSignal, State of
Mobile Networks: USA, https://opensignal.com/reports/2017/02/usa/state-of-the-mobile-network. In addition to
user-initiated tests, OpenSignal also collects network speed measurements at a high frequency per user,
https://opensignal.com/methodology. OpenSignal does not provide summary statistics for LTE upload speeds
before the first half of 2018, thus only LTE download speeds are included.
89
RootMetrics, Methodology, http://rootmetrics.com/en-US/methodology. RootMetrics performs drive tests and
stationary tests in specific locations, using the leading Android-based smartphone for each network. RootScores are
scaled from 0 to 100. An in-depth discussion of the RootMetrics dataset is available in the Seventeenth Report, 29
FCC Rcd at 15467-68, Appendix VI., paras 10-11.
12581
Federal Communications Commission
FCC 18-181
Fig. A-21
RootMetrics National Speed Index Data, 2nd Half 2016--2st Half 2017
2nd Half 2016
Service
Provider
1st Half 2017
Speed
Index
Data
Index
2nd Half 2017
Speed
Index
Data
Index
Text
Index
Text
Index
Speed
Index
Data
Index
Text
Index
AT&T
89.6
94.4
95.3
91.4
95.5
95.6
92.3
95.7
96.0
Sprint
72.3
82.5
95.0
78.2
86.6
95.2
77.8
87.7
95.2
T-Mobile
87.1
90.6
89.1
90.5
93.2
89.5
90.9
93.1
91.5
Verizon
Wireless
93.3
96.5
96.5
92.9
96.5
96.5
93.2
96.5
96.8
Source: RootMetrics Data, © RootMetrics. All rights reserved. Published with permission of RootMetrics.
4.
Entry Conditions and Market Concentration
29.
Entry Conditions. To evaluate the competitiveness of any market, one must consider
multiple factors, including prices and trends in prices, non-price rivalry, investment, innovation, and any
barriers to entry. 90 Entry conditions are important in helping to understand the degree to which incumbent
firms may or may not possess market power, which is the ability to maintain prices above competitive
levels. High barriers to entry reduce the number of competitors in a market and reduce the threat to
incumbents of new entry. 91 Entry occurs in the context of underlying regulatory and market conditions
that directly influence the total number of firms that can successfully compete. In the mobile wireless
marketplace, there are both regulatory and non-regulatory barriers to entry. Regulatory barriers to entry
arise from government-imposed regulations, rules, and restrictions that may impose additional costs for
entrants or that may directly prohibit or limit entry. For the most part, they are related to the inputs
necessary to offer mobile wireless services. Examples of regulatory barriers include spectrum policy,
which affects the spectrum capacity available for mobile wireless services and regulations regarding
tower and antenna siting, which affect whether and how quickly mobile wireless network can be deployed
or expanded. Non-regulatory or market conditions that may determine the number of providers that can
operate in the market, or may deter entry, include efficiencies of size and scale, permanent asymmetries
across service providers’ costs, difficulties in acquiring access to sites for network infrastructure, and
capital cost requirements, such as those costs incurred in acquiring spectrum or deploying a nationwide
network.
30.
Market Concentration (NRUF Data). High market concentration levels in any market
may raise some concern that a market is not competitive, although we note that this is not necessarily the
case. 92 To measure mobile wireless concentration, the Commission employs the Herfindahl-Hirschman
90
Applications of AT&T Inc. and DIRECTV For Consent to Assign or Transfer Control of Licenses and
Authorizations, Memorandum Opinion and Order, 30 FCC Rcd 9131, 9140, paras. 19-20 (2015); AT&T-Leap Order,
29 FCC Rcd at 2756-57, para. 49; Applications of AT&T Wireless Services, Inc. and Cingular Wireless Corporation,
Memorandum Opinion and Order, 19 FCC Rcd 21522, 21544-45, paras. 41-42 (2004).
91
High economic profits encourage entry into the market, low economic profits discourage entry, and prolonged
negative economic profits induce exit from the market. See e.g., Hal R. Varian, Intermediate Microeconomics: A
Modern Approach, W. W. Norton and Company, 2014, at 433-34; Dennis W. Carlton and Jeffrey M. Perloff,
Modern Industrial Organization (4th ed.), Addison, Wesley, Longman, Inc., 2005, at 61, 76. See also George S.
Ford, et al., Competition After Unbundling: Entry, Industry Structure, and Convergence, Federal Communications
Law Journal, 2007, 59: 2, at 344.
92
It is well understood that we can observe intense competition even with a small number of firms in the market.
See, e.g., Ernest Gellhorn, Antitrust Law and Economics (4th ed.), West Publishing, at 117 (1994) (stating “[m]arket
shares are not synonymous with market power; they should mark the beginning for careful analysis, not the end of
(continued….)
12582
Federal Communications Commission
FCC 18-181
Index (HHI), widely used in competition analysis to measure market concentration. HHI is calculated by
summing the squared market shares of all firms in the given market. 93 In this Report, we calculate HHIs
based on the NRUF data by Economic Area (EA) to maintain continuity with past reports, and to ensure
that we do not compromise the confidential information found in the NRUF data. 94 As of year-end 2014,
the weighted average HHI (weighted by population across the 172 EAs in the United States) for mobile
wireless services was 3,138. As of year-end 2017, the weighted average HHI for mobile wireless services
was 3,106. 95 Figure A-22 shows the relationship between the HHI by EA and EA population densities.
This chart indicates that HHI values tend to decline as the population density increases. The most
concentrated EAs tend to be more rural, while major metropolitan areas lie in the least concentrated EAs.
This likely reflects greater demand and greater cost efficiencies (per-user mobile wireless network
deployment costs tend to decrease with increases in the population density) in more densely-populated
areas. 96
(Continued from previous page)
it.”); Michael Whinston, Antitrust Policy toward Horizontal Mergers, Handbook of Industrial Organization, Vol. 3,
ed. Mark Armstrong and Robert Porter, Elsevier (2007); John Sutton, Sunk Costs and Market Structure, MIT Press
(1991); Joseph Farrell and Carl Shapiro, Antitrust Evaluation of Horizontal Mergers: An Economic Alternative to
Market Definition, The B.E. Journal of Theoretical Economics, Vol.10, Issue 1, Article 9; Gregory J, Werden and
Luke M. Froeb, Unilateral Competitive Effects of Horizontal Mergers in Handbook of Antitrust Economics, ed.
Paolo Buccirossi, MIT Press (2008).
93
To the extent that this section uses the term “markets,” we do not intend it to be interpreted as synonymous with
the antitrust concept of the “relevant market,” which the Commission defines in the context of secondary market
transactions review. See, e.g., Applications of AT&T Inc., Leap Wireless International, Inc., Cricket License Co.,
LLC and Leap Licenseco, Inc. for Consent To Transfer Control and Assign Licenses and Authorizations,
Memorandum Opinion and Order, 29 FCC Rcd 2735, 2748, para. 27 (WTB, IB 2014) (AT&T-Leap Order).
94
NRUF subscriber data indicate the number of assigned phone numbers that a wireless service provider has in a
particular rate center (there are approximately 18,000 rate centers in the country). Rate centers are geographic areas
used by local exchange carriers for a variety of reasons, including the determination of toll rates. Harry Newton,
Newton’s Telecom Dictionary: 19th Expanded & Updated Edition 660 (July 2003). All mobile wireless service
providers must report to the Commission the quantity of their phone numbers that have been assigned to end users,
thereby permitting the Commission to calculate the total number of mobile wireless subscribers. For purposes of
geographical analysis, the rate center data can be associated with a geographic point, and all of those points that fall
within a county boundary can be aggregated together and associated with much larger geographic areas based on
counties. We note that the aggregation to larger geographic areas reduces the level of inaccuracy inherent in
combining non-coterminous areas, such as rate center areas and counties.
95
Antitrust authorities in the United States generally classify markets into three types: Unconcentrated (HHI <
1500), Moderately Concentrated (1500 < HHI < 2500), and Highly Concentrated (HHI > 2500). U.S. Department of
Justice and the Federal Trade Commission, Horizontal Merger Guidelines (Aug. 19, 2010),
http://www.justice.gov/atr/public/guidelines/hmg-2010.pdf.
96
Relatively high fixed costs in relation to the number of customers may limit the number of firms that can enter and
survive in a market. See, e.g., John Sutton, Sunk Costs and Market Structure, MIT Press (1991); Luis Cabral,
Introduction to Industrial Organization, MIT Press, Chapter 14 (2000); Dennis W. Carlton and Jeffrey M. Perloff,
Modern Industrial Organization (4th ed.), Addison, Wesley, Longman, Inc., at 41 (2005); George S. Ford, et al.,
Competition After Unbundling: Entry, Industry Structure, and Convergence, Federal Communications Law Journal,
59:2, at 332, 337 (2007).
12583
Federal Communications Commission
5.
FCC 18-181
Mobile Wireless Spectrum
31.
Spectrum is a critical input in the provision of mobile wireless services. 97 It can affect
whether, when, and where existing service providers and potential entrants will be able to expand
capacity or deploy networks. 98 Incumbent service providers may need additional spectrum to increase
their coverage or capacity, while new entrants need access to spectrum to enter a geographic area.
Spectrum bands vary in breadth and in their propagation characteristics, and these variations have
implications for how spectrum is deployed. 99 The effective supply of spectrum capacity that is available
for mobile wireless service depends on several aspects of spectrum policy, including allocation and
97
Non-spectrum inputs in the provision of mobile wireless services include cellular base stations and towers to carry
transmissions and backhaul, which routes voice and data traffic from base stations to mobile switching centers.
Backhaul may be provided via wireless spectrum, copper, or fiber, though copper may lack sufficient capacity for
current data demands.
98
Mobile Spectrum Holdings Report and Order, 29 FCC Rcd at 6134, para. 2.
99
Spectrum below 1 GHz (low-band spectrum) has certain propagation advantages for network deployment over
long distances, and for penetrating buildings and urban canyons, while spectrum above 1 GHz (mid- or high-band
spectrum) allows for the better transmission of large amounts of information. Mobile Spectrum Holdings Report
and Order, 29 FCC Rcd at 6135, para. 3. In this sense, low-band spectrum may be thought of as “coverage”
spectrum, and higher band spectrum may be thought of as “capacity” spectrum. Service providers deploy their
spectrum bands differently depending on the nature of the service, geography, density, or other factors in their
network build-out. Twentieth Report, 32 FCC Rcd at 8992, para. 36 & n.112; Sixteenth Report, 28 FCC Rcd at
3789, para. 119.
12584
Federal Communications Commission
FCC 18-181
licensing policies, as well as interference and technical rules. 100 Increasing the total supply of spectrum
bandwidth that the Commission allocates and licenses to mobile wireless service providers can increase
network capacity and reduce the degree of frequency reuse required to achieve a given level of
capacity. 101 Therefore, spectrum policies affect the ability of incumbents and potential entrants to access
spectrum and to build out or expand capacity. The efforts of the Commission to allocate more mid-band
and millimeter wave spectrum to meet consumer demand for mobile broadband services, and to fuel
innovation and investment in the mobile wireless market, are detailed in Sections III.A.2 and IV below.
32.
Subject to the Commission’s approval, licensees may transfer licenses, in whole or in part
(through partitioning and/or disaggregation), on the secondary market. 102 In reviewing proposed transfers
of control of spectrum, the Commission uses an initial spectrum screen103 to help identify, for case-bycase review, local markets where changes in spectrum holdings resulting from the transaction may be of
particular concern.104 In the past decade, in the context of its review of secondary market transactions, the
Commission periodically has determined that additional spectrum was suitable and available for mobile
wireless use, and therefore subject to inclusion in the spectrum screen. 105 The current suitable and
available spectrum included in the spectrum screen is shown in Figure A-23:
100
Sixteenth Report, 28 FCC Rcd at 3765, para.75.
101
Rappaport, T. S., Wireless Communications: Principles and Practice (2nd ed.), Prentice Hall, 2002, at 58.
102
As part of its secondary market policies, the Commission also permits mobile wireless licensees to lease all or a
portion of their spectrum usage rights for any length of time within the license term and over any geographic area
encompassed by the license.
103
The Commission includes spectrum that it finds is suitable and available for the provision of mobile wireless
services. See, e.g., Mobile Spectrum Holdings Report and Order, 29 FCC Rcd at 6169, para. 71; See, e.g.,
Applications of SprintCom, Inc., Shenandoah Personal Communications, LLC, and NTELOS Holdings Corp. for
Consent To Assign Licenses and Spectrum Lease Authorizations and To Transfer Control of Spectrum Lease
Authorizations and an International Section 214 Authorization, Memorandum Opinion and Order, 31 FCC Rcd
3631, 3638-39, para. 17 (WTB, IB 2016) (Sprint-Shentel-NTELOS Order).
104
See, e.g., Mobile Spectrum Holdings Report and Order, 29 FCC Rcd at 6221-22, para. 225; see also AT&T-Leap
Order, 29 FCC Rcd at 2752-53, paras. 39, 41. In the case of transfer of business units, the Commission’s initial HHI
screen identifies, for further case-by-case market analysis, those markets in which, post-transaction: (1) the HHI
would be greater than 2800 and the change in HHI would be 100 or greater; or (2) the change in HHI would be 250
or greater, regardless of the level of the HHI. See, e.g., Sprint-Shentel-NTELOS Order, 31 FCC Rcd at 3639, para.
17 & n.50; AT&T-Leap Order, 29 FCC Rcd at 2753, para. 41 & n.140. In addition, the Commission determined in
the Mobile Spectrum Holdings Report and Order that increased aggregation of below-1-GHz spectrum
would be treated as an “enhanced factor” under its case-by-case review of license transfers if posttransaction the acquiring entity would hold approximately one-third or more of the currently suitable and available
spectrum below 1 GHz. See, e.g., Mobile Spectrum Holdings Report and Order, 29 FCC Rcd at 6240, paras. 28288.
105
Incentive Auction Closing and Channel Reassignment, Public Notice, 32 FCC Rcd 2786 (WTB 2017); SprintShentel-NTELOS Order, 31 FCC Rcd at 3637-38, paras. 15-16; Mobile Spectrum Holdings Report and Order, 29
FCC Rcd at 6172-90, paras. 82-134; Applications of AT&T Mobility Spectrum LLC, New Cingular Wireless PCS,
LLC, Comcast Corporation, Horizon Wi-Com, LLC, NextWave Wireless, Inc., and San Diego Gas & Electric
Company for Consent To Assign and Transfer Licenses, Memorandum Opinion and Order, 27 FCC Rcd 16459,
16470-71, para. 31 (2012); Amendment of Part 27 of the Commission’s Rules to Govern the Operation of Wireless
Communications Services in the 2.3 GHz Band, Report and Order, 25 FCC Rcd 11710, 11711, para. 1 (2010);
Applications of Sprint Nextel Corporation and Clearwire Corporation for Consent To Transfer Control of Licenses,
Leases, and Authorizations, Memorandum Opinion and Order, 23 FCC Rcd 17570, 17598-99, paras. 70, 72 (2008);
Applications of AT&T Inc. and Dobson Communications Corporation for Consent To Transfer Control of Licenses
and Authorizations, Memorandum Opinion and Order, 22 FCC Rcd 20295, 20307-08, para. 17 (2007).
12585
Federal Communications Commission
FCC 18-181
Fig. A-23
Spectrum Included in the Spectrum Screen 106
6.
Spectrum Band
Megahertz (Amount)
600 MHz
700 MHz
Cellular
SMR
Broadband PCS
AWS-1
AWS-3
AWS-4
H Block
WCS
BRS
EBS
Total Amount of Spectrum
70
70
50
14
130
90
65
40
10
20
67.5
89
715.5
Service Providers’ Spectrum Holdings
33.
Figures A-24 and A-25 below present spectrum holdings by service provider. As of
August 2018, the four nationwide service providers, AT&T, Sprint, T-Mobile, and Verizon Wireless
together held approximately 80% of all the spectrum included in the spectrum screen, measured on a
MHz-POPs basis. Figure A-26 shows the population-weighted average megahertz spectrum holdings of
licensees by frequency band. 107
106
We note that while 15 megahertz of AWS-3 spectrum is available on a nationwide basis (1695-1710 GHz), we
will evaluate the availability of the remaining 50 megahertz of AWS-3 spectrum (1755-1780 GHz and 2155-2180
GHz) on a market-by-market basis. Further, while 112.5 megahertz of EBS spectrum is available, we discount this
spectrum such that 89 megahertz is included in the screen for review of proposed transactions. Mobile Spectrum
Holdings Report and Order, 29 FCC Rcd at 6177-79, 6184-6187, paras. 100-102, 118-25.
107
We consider population-weighted spectrum holdings in order to account for customer density in different
geographic areas. A spectrum license in Los Angeles or New York City, for example, covers more customers than a
spectrum license over the same amount of land area in White Sands, New Mexico.
12586
Federal Communications Commission
FCC 18-181
Fig. A-24
Percentage Spectrum Holdings, Measured on a MHz-POPs Basis
by Licensee, by Frequency Band*
600
Spectrum
MHz
700
MHz
70 meg.
70 meg.
Cell.
SMR
PCS
50
meg.
14
meg.
130
meg.
H
Block
AWS-1
AWS-3
AWS-4
WCS
BRS
EBS
10 meg.
90 meg.
65 meg.
40 meg.
20 meg.
67.5
meg.
89
meg.
**
AT&T
3.8%
41.9%
44.6%
0.0%
29.1%
0.0%
16.2%
33.5%
0.0%
100.0%
0.0%
0.0%
Sprint
0.0%
0.4%
0.0%
96.5%
29.0%
0.0%
0.0%
0.0%
0.0%
0.0%
93.1%
95.7%
45.3%
14.2%
0.1%
0.0%
22.3%
0.0%
41.1%
5.5%
0.0%
0.0%
0.0%
0.0%
VZW
0.0%
31.0%
47.6%
0.0%
16.6%
0.0%
39.7%
18.9%
0.0%
0.0%
0.0%
0.0%
USCC
2.6%
3.5%
4.0%
0.0%
1.1%
0.0%
0.8%
2.6%
0.0%
0.0%
0.0%
0.0%
DISH
26.2%
6.6%
0.0%
0.0%
0.0%
100.0%
0.0%
34.8%
100.0%
0.0%
0.0%
0.0%
Other
22.0%
2.3%
3.7%
3.5%
2.0%
0.0%
2.2%
4.9%
0.0%
0.0%
6.9%
4.3%
T-Mobile
* Staff estimates as of Aug. 2018. Abbreviations for spectrum bands: Cell. (Cellular), SMR (Specialized Mobile
Radio Service), PCS (Personal Communications Service), BRS (Broadband Radio Service), and EBS (Educational
Broadband Service).
** In accordance with the spectrum screen in proposed secondary market transactions, only 89 megahertz of EBS
spectrum is included.
Fig. A-25
Population-Weighted Average Megahertz Holdings by Licensee, by Frequency Band*
600
Spectrum
Counted
MHz
700
MHz
Cell.
SMR
PCS
H
Block
AWS-1
AWS-3
AWS-4
WCS
BRS
EBS
70
meg.
70
meg.
50
meg.
14
meg.
130
meg.
10
meg.
90
meg.
65
meg.
40
meg.
20
meg.
67.5
meg.
89
meg. **
AT&T
2.6
29.4
23.6
0.0
37.9
0.0
14.6
20.3
0.0
20.0
0.0
0.0
Sprint
0.0
0.3
0.0
13.8
37.7
0.0
0.0
0.0
0.0
0.0
62.9
85.2
30.8
10.0
0.0
0.0
29.0
0.0
37.0
3.3
0.0
0.0
0.0
0.0
VZW
0.0
21.7
25.2
0.0
21.6
0.0
35.7
11.5
0.0
0.0
0.0
0.0
USCC
1.8
2.5
2.1
0.0
1.4
0.0
0.7
1.6
0.0
0.0
0.0
0.0
DISH
17.8
4.6
0.0
0.0
0.0
10.0
0.0
21.1
40.0
0.0
0.0
0.0
Other
14.9
1.6
2.0
0.5
2.6
0.0
2.0
3.0
0.0
0.0
4.6
3.8
T-Mobile
* Staff estimates as of Aug. 2018.
** In accordance with the spectrum screen in proposed secondary market transactions, only 89 megahertz of EBS
spectrum is included.
12587
Federal Communications Commission
FCC 18-181
Fig. A-26
Spectrum Holdings by Band Weighted by Population
Note: Staff estimates as of Aug. 2018.
7.
Wireless Infrastructure
34.
Wireless infrastructure facilities constitute another major input in the provision of mobile
wireless services. 108 In addition to towers and other tall structures, such as lattice towers, guyed towers,
monopoles, rooftops, water towers, and steeples, wireless infrastructure also includes distributed antenna
systems (DAS) and small cells. 109 In order to expand or to improve coverage in existing service areas,
and to accommodate newer technologies, mobile service providers historically have deployed additional
cell sites. According to CTIA, cell sites in commercial use have mostly increased in the last five years,
from 304,360 at year-end 2013, to 298,005 in 2014, 307,626 in 2015, 308,334 in 2016, and 323,448 at
year-end 2017. 110
108
Another component is the backhaul connections that link a mobile wireless service provider’s cell sites to the
mobile switching centers that provide connections to the provider’s core network, the public switched telephone
network, or the Internet, carrying wireless voice and data traffic for routing and onward transmission. Backhaul
facilities are generally provided by incumbent local exchange carriers (ILECs), competitive local exchange carriers
(CLECs), competitive fiber and microwave wholesalers, cable providers, and independent backhaul operators.
Twentieth Report, 32 FCC Rcd at 8997-98, para. 42 & n.135; Sixteenth Report, 28 FCC Rcd at 3912, para. 336.
109
For a full description of DAS and small cells, see Twentieth Report, 32 FCC Rcd at 8997, para 42, n.133 &
n.134.
110
CTIA Wireless Industry Indices Year-End 2017, at 54. Because multiple cell sites can be collocated in the same
“tower” site, the reported cell sites should not be equated with “towers.” The reported cell sites include repeaters
and other cell-extending devices (e.g., femtocells or distributed antenna systems). Id. at 53. Based on UBS Data
2017, the number of AT&T’s cell sites increased from 67,000 at the end of 2016 to 70,300 at the end of 2017,
Verizon Wireless’s increased from 58,300 to 61,800, T-Mobile’s increased from 59,417 to 61,457, and Sprint’s
stayed at 50,000. Note that the decrease in the total number of commercial cell sites in 2014 from 2013 is likely due
to “a combination of consolidation and the retirement of older generation of technologies.” CTIA Wireless Industry
Indices Report Year-End 2014, at p. 101-102.
12588
Federal Communications Commission
FCC 18-181
35.
Mobile service providers increasingly have started to deploy small cells and DAS sites to
fill local coverage gaps, to densify networks and increase local capacity, or to prepare for deploying their
5G network. 111 Estimates for small cell deployment by the end of 2018 range from 80,000 to 400,000. 112
Rather than building their own DAS deployments, some service providers share neutral host systems
owned by third-party operators. 113 Today, there are more than 120 tower and DAS operators in the
United States, 114 and a majority of towers are now owned or operated by independent tower companies
rather than by mobile wireless service providers. In most cases, tower operators and property owners
lease antenna, rooftop and other site space to multiple wireless service providers. 115
36.
The three largest publicly-traded neutral host providers are Crown Castle, American
Tower, and SBA Communications. These three companies alone invested nearly $2.5 billion dollars in
2017, an increase of nearly 25% over 2016. 116 As of December 2017, according to one estimate, these
three infrastructure providers owned or operated approximately 95,000 towers (not including DAS and
small cells). 117 At the end of December 2017, they had 1.7 to 2.2 tenants per tower site and had
significant capacity available for additional antennas or tenants.118 Figure A-27 shows that, as of April
2018, there were three or more tower operators in 83% of counties nationwide, and four or more tower
operators in 61% of counties. 119
111
Twentieth Report, 32 FCC Rcd at 8998, para. 43.
112
CTIA Comments at 51 (80,000 small cells); Wireless Infrastructure Association (WIA) Comments at 7 (125,000
small cells). See also RCR Wireless, North American Enterprises to Deploy 400,000 Small Cells This Year (Apr. 5,
2018), https://www.rcrwireless.com/20180405/network-infrastructure/north-american-enterprises-deploy-400000small-cells-tag23.
113
American Tower Corporation 2017 Annual Report, at 6; see also Clearsky Technologies, ClearSky to Launch
First American “Small Cell as a Service” Carrier Customer, http://www.csky.com/launches-first-scaas-carriercustomer/.
114
Wireless Estimator, Top 100 Tower Companies in the U.S., http://wirelessestimator.com/top-100-us-towercompanies-list/.
115
See, e.g., American Tower 2017 Annual Report, Part 1 at 3; see also Crown Castle 2017 Annual Report, Part 1, at
20; FierceWireless, Crown Castle executive sees small cells moving to multitenant scenarios, smaller markets,
https://www.fiercewireless.com/wireless/crown-castle-exec-sees-small-cells-moving-to-multi-tenant-scenariossmaller-markets; Verizon Wireless, http://www.verizonwireless.com/b2c/realestate/.
116
WIA Comments at 2.
117
Wireless Estimator, Top 100 Tower Companies in the U.S. (Crown Castle at 40,039, American Tower at 39,989,
SBA at 14,873, and as of May 2018, not including rooftop sites, DAS and small cells),
http://www.wirelessestimator.com/t_content.cfm?pagename=US-Cell-Tower-Companies-Complete-List.
118
American Tower 2017 Annual Report, Part I, at 4 (1.9 tenants per tower), Crown Castle 2017 Annual Report,
Part 1, at 18 (2.2 tenants per tower), and SBA 2017 Annual Report, Item 1, at 3 (1.7 tenants per tower).
119
Tower site information was downloaded from 49 tower providers’ websites in April 2018. Wireless Estimator,
Top 100 Tower Companies in the U.S., http://www.wirelessestimator.com/t_content.cfm?pagename=US-CellTower-Companies-Complete-List.
12589
Federal Communications Commission
FCC 18-181
Source: 49 tower companies’ data on standalone towers, rooftops, DAS, and small cells (April 2018).
8.
Network Coverage
37.
We measure network coverage based on Form 477 data, 120 and we use the actual area
methodology, which analyzes the data on a sub-census-block level, and calculates the percentage of each
census block covered by each technology. 121 Unlike the centroid methodology where a particular census
block is either covered or not, the actual area methodology estimates the area of the census block covered
by each service provider by technology. 122 Because we currently do not know the distribution of the
population at the sub-census-block level, however, we must approximate the population covered by each
technology. To do this, we assume, for purposes of this Report, that the population of a census block is
uniformly distributed such that the fraction of the population covered in a block is proportional to the
fraction of the actual area covered. We then sum the estimated covered population across blocks to
estimate the total covered population within the United States. Likewise, we assume that the fraction of
the road miles covered in a block is proportional to the fraction of the actual area covered. 123
120
For a detailed description of the Form 477 data collection, see Twentieth Report, 32 FCC Rcd at 9015, para. 69.
121
The centroid methodology considers a census block covered if the geometric center point, or centroid, is covered.
The methodology estimates coverage of population, land and road miles by aggregating the totals for “covered”
census blocks. Twentieth Report, 32 FCC Rcd at 9016-17, para. 71. In practice, actual area and centroid
methodologies yield similar results at the national level. Twentieth Report, 32 FCC Rcd at 9017-18, para. 72. We
present coverage maps based on the centroid methodology in Appendix A-6: Mobile Wireless Coverage Maps. In
addition, we report our results based on the centroid and actual area methodologies in Appendix A-7: Mobile
Wireless Coverage.
122
This sub-census-block analysis can tell us the unique combination of service providers serving a particular
percentage of the area in a census block with a certain technology. As this analysis was done at each technology
level, the set of unique combinations that it produces are valid for each individual technology but not across multiple
technologies. Essentially, we can distinguish the unique percentages covered by various service providers at the
sub-census-block level using a particular technology (e.g., LTE), but we do not currently know how this interplays
with other technologies (e.g., with 2G or 3G technologies). Therefore, we can calculate the areas served and not
served by all wireless technologies (LTE, non-LTE 4G, 3G, and 2G technologies) only at the national level.
123
In order to fully exploit the increase in precision offered by the actual area coverage methodology, spatially
accurate representations of population and road miles would be necessary. We do not have access to such
information at this time for the current Report, however.
12590
Federal Communications Commission
FCC 18-181
38.
As the Commission has stated, having accurate and reliable mobile broadband
deployment data is critical to policymakers as well as to consumers. 124 We observe that, while the current
Form 477 deployment data is an improvement over the deployment data previously available on a
national scale, questions have arisen in various contexts regarding the bases for certain filings. 125 For
example, in the context of the Mobility Fund Phase II (MF-II) proceeding, the Commission determined
that a separate, one-time data collection was necessary to ensure that all Form 477 filers were using a
consistent standard when reporting their deployment of 5 Mbps 4G LTE services. 126 In addition, the
Commission has initiated a rulemaking to consider improvements in the Form 477 data collection
process. 127
39.
In this Section, we first present our estimates of mobile wireless coverage by individual
service provider using any technology. Second, we present our LTE coverage estimates for the
percentage of the U.S. population, land area, and road miles, by number of service providers, before
turning to LTE coverage by individual service providers. Finally, we present our estimates of coverage in
rural and non-rural areas, first by number of service providers, and then by individual service providers.
Unless otherwise noted, we rely on Form 477 data as of December 2017 for our analysis of network
coverage.
a.
Overall Coverage by Individual Service Provider
40.
Figure A-28 presents estimates of mobile wireless coverage by individual mobile
wireless service provider using any technology. Figure A-28 indicates that AT&T covered census blocks
containing approximately 99% of the population, while the comparable approximate percentages are 98%
for Verizon Wireless, 97% for T-Mobile, and 93% for Sprint. Verizon Wireless and AT&T each covered
over 70% of the land area, while T-Mobile and Sprint each covered less than 60% of the land area. In
terms of road miles, AT&T and Verizon Wireless covered approximately 91%, T-Mobile covered
approximately 79%, and Sprint covered approximately 54%.
124
Modernizing the FCC Form 477 Data Program, Further Notice of Proposed Rulemaking, 32 FCC Rcd 6329,
6331-32, para. 8 (2017) (Modernizing the FCC Form 477 Data Program).
125
Modernizing the FCC Form 477 Data Program, 32 FCC Rcd at 6332-33, para. 10.
126
Connect America Fund, Universal Service Reform—Mobility Fund, Order on Reconsideration and Second Report
and Order, 32 FCC Rcd 6282, 6286, 6287, 6298, paras. 7, 10, 34 (2017) (reconsidering the Commission’s decision
to use the Form 477 data given the various challenges with respect to the accuracy of the Form 477 deployment data,
and determining that there would be a new one-time data collection).
127
See generally Modernizing the FCC Form 477 Data Program, 32 FCC Rcd 6329.
12591
Federal Communications Commission
FCC 18-181
Source: Based on actual area coverage analysis of December 2017 Form 477 and 2010 Census data. That a
particular service provider has indicated that it has network coverage in a particular census block does not
necessarily mean that it offers service to residents in that census block.
b.
LTE Mobile Broadband Coverage
41.
Figure A-29 presents LTE mobile broadband coverage by number of service providers. It
shows that approximately 92% of the U.S. population lived in census blocks with LTE coverage by at
least four service providers. These census blocks only accounted for approximately 54% of road miles
and approximately 30% of the total land area of the United States, however.
42.
Figure A-30 presents estimates of LTE mobile broadband coverage by individual mobile
wireless service provider. It shows that Verizon Wireless and AT&T each provided LTE coverage to
census blocks containing approximately 98% of the population, T-Mobile provided LTE coverage to
approximately 96% of the population, while Sprint provided LTE coverage to approximately 91% of the
population. In terms of road miles and land area, Verizon Wireless covered approximately 89% of road
miles and 70% of the land area, AT&T covered approximately 80% of road miles and 57% of the land
area, T-Mobile covered approximately 79% of road miles and 57% of the land area, and Sprint covered
approximately 50% of road miles and 26% of the land area with LTE.
12592
Federal Communications Commission
FCC 18-181
Source: Based on actual area coverage analysis of December 2017 Form 477 and 2010 Census data. That a
particular service provider has indicated that it has network coverage in a particular census block does not
necessarily mean that it offers service to residents in that census block.
Source: Based on actual area coverage analysis of December 2017 Form 477 and 2010 Census data. That a
particular service provider has indicated that it has network coverage in a particular census block does not
necessarily mean that it offers service to residents in that census block.
12593
Federal Communications Commission
c.
FCC 18-181
Rural/Non-Rural Comparisons
43.
Although the Communications Act does not include a statutory definition of what
constitutes a rural area, the Commission, for purposes of its analysis for the Mobile Wireless Competition
Report, has defined a rural area as one with a population density of 100 people per square mile or less. 128
To determine whether counties are rural or non-rural, we first excluded all water-only census blocks
within each county. We then divided the county population by the total geographic area of the county to
determine the population density. For those counties with a population density of 100 people per square
mile or less, all census blocks within those counties were considered rural. Under this definition and
using 2010 U.S. Census data, approximately 56 million people, or approximately 18% of the U.S.
population, live in rural counties. These counties comprise approximately 3 million square miles, or
approximately 84%, of the geographic area of the United States.
44.
Figure A-31 presents mobile wireless coverage (using any technology) of the rural and
non-rural U.S. population by individual mobile wireless service provider. Our analysis indicates that all
four nationwide service providers covered at least 97% of the non-rural population with mobile wireless
service. Rural wireless coverage by service provider was more limited: AT&T covered approximately
97%, Verizon Wireless covered approximately 95%, T-Mobile covered approximately 86%, and Sprint
covered approximately 68% of the rural population with wireless service.
Source: Based on actual area coverage analysis of December 2017 Form 477 and 2010 Census data. That a
particular service provider has indicated that it has network coverage in a particular census block does not
necessarily mean that it offers service to residents in that census block.
45.
Figure A-32 presents LTE population coverage in rural and non-rural census blocks by
number of service providers. Our estimates show that approximately 99% of the non-rural population
was covered by at least three LTE service providers, while approximately 91% of the rural population had
the same network coverage. Approximately 97% of the non-rural American population had LTE
coverage from four or more service providers, while only approximately 68% of the rural population was
covered by at least four LTE service providers.
128
Twentieth Report, 32 FCC Rcd at 9000-01, para. 45; Facilitating the Provision of Spectrum-Based Services to
Rural Areas and Promoting Opportunities for Rural Telephone Companies To Provide Spectrum-Based Services,
Report and Order and Further Notice of Proposed Rule Making, 19 FCC Rcd 19078, 19086-88, paras. 10-12 (2004)
(2004 Report and Order).
12594
Federal Communications Commission
FCC 18-181
46.
Figure A-33 presents LTE coverage by individual service provider of both the rural and
non-rural U.S. population. Our estimates show that each of the four nationwide service providers covers
at least 97% of the non-rural population with LTE. Regarding LTE coverage in rural areas, Verizon
Wireless covered approximately 94%, AT&T covered approximately 92%, T-Mobile covered
approximately 85%, and Sprint covered approximately 63% of the rural population with LTE.
Source: Based on actual area coverage analysis of December 2017 Form 477 and 2010 Census data. That a
particular service provider has indicated that it has network coverage in a particular census block does not
necessarily mean that it offers service to residents in that census block.
Source: Based on actual area coverage analysis of December 2017 Form 477 and 2010 Census data. That a
particular service provider has indicated that it has network coverage in a particular census block does not
necessarily mean that it offers service to residents in that census block.
12595
Federal Communications Commission
B.
FCC 18-181
The Video Market
47.
This chapter examines participation and competition in today’s video programming
marketplace.129 In the United States, consumers can access video programming content from multiple
sources, only some of which are licensed or regulated by the Commission. Some video providers, like
broadcast television stations, have been in the marketplace for over 70 years, whereas other providers,
like online video providers, are much more recent additions to the marketplace. Below we examine the
current state of the marketplace and provide data regarding competition among and between the different
types of providers.
48.
The major participants in the marketplace for the delivery of video programming can be
divided into three categories:
x
Television Broadcasters: These entities broadcast video content over the air, and consumers
can receive this content via a television set connected to an antenna. Participants in this
category include local television stations affiliated with broadcast networks (e.g., ABC, CBS,
FOX, and NBC), independent commercial television stations, and noncommercial
educational television stations. Television stations offer a set schedule of programs through
the day, as well as live sporting events, news coverage, and other real-time broadcasts of
events.
x
Multichannel video programming distributors (MVPDs): These providers use wireline or
satellite technologies to deliver video programming to consumers. MVPD packages typically
include linear channels – both cable channels and retransmitted broadcast channels – and
video on demand (VOD) content. 130 Traditional cable providers (e.g., Comcast, Charter, and
smaller cable operators), telephone company providers (e.g., Verizon Fios), and direct
broadcast satellite (DBS) providers (e.g., DISH Network and DIRECTV) are all MVPDs.
x
Online video distributors (OVDs): These participants use the Internet to deliver video
content to consumers. 131 In addition to providing linear video channels and VOD content,
OVDs often rent and sell video content to their customers. OVDs include large companies
like Netflix, Hulu, Amazon, and DISH Sling TV, as well as numerous other providers, some
of which focus on small or niche audiences.
129
In this section, we rely on a variety of publicly available sources of industry information and data including:
Securities and Exchange Commission filings; data from trade association and government entities; data from
securities analysts and other research companies and consultants (e.g., S&P Global, Nielsen Media Research);
company news releases and websites; newspaper and periodical articles; scholarly publications; vendor product
releases; white papers; and various public Commission filings, decisions, reports, and data. We make use of both
individual company data and industry-wide data. In addition, the Media Bureau released a Public Notice soliciting
comment for the Commission’s Nineteenth Report on the Status of Competition in the Market for the Delivery of
Video Programming. Media Bureau Seeks Comment on the Status of Competition in the Market for the Delivery of
Video Programming, Public Notice, 32 FCC Rcd 6654 (2017) (19th VCR PN). While Congress has since eliminated
the statutory obligation that the Commission produce an annual Video Competition Report, we considered
comments and reply comments submitted in response to the 19th VCR PN when preparing this Report. Citations to
Comments and Reply Comments in this section refer to filings submitted in response to the 19th VCR PN.
130
Linear channels offer specific video programs at a specific time of day in a manner akin to broadcast television.
VOD programs are stored electronically by the provider and can be viewed by the consumer at any time, i.e., on
demand.
131
For purposes of this section, we define OVD as “an entity that distributes video programming (1) by means of the
Internet or other Internet Protocol (IP)-based transmission path; (2) not as a component of an MVPD subscription or
other managed video service; and (3) not solely to customers of a broadband Internet access service owned or
operated by the entity or its affiliates.” See Annual Assessment of the Status of Competition in the Market for the
Delivery of Video Programming, Eighteenth Report, 32 FCC Rcd 568, 570 n. 4 (MB 2017) (18th Report).
12596
Federal Communications Commission
FCC 18-181
49.
We begin our discussion of the video programming marketplace by considering these
three categories of providers--MVPDs, OVDs, and broadcast television stations--separately. We discuss
below in turn the significant participants in each category, the business models and competitive strategies
they employ, relevant performance metrics, and recent marketplace entry and exit. In discussing MVPDs,
we will also report on the Commission’s most current data on the prices charged by cable operators to
consumers, as well as the most current data regarding the retransmission fees paid by cable systems to
broadcast stations. We then address intermodal competition--that is, competition between participants in
different categories--by looking at the similarities and differences between the video services offered by
members of each group, consumer response and behavior, and subscribership trends. Finally, we discuss
selected marketplace factors that are relevant to competition in the video marketplace.
1.
MVPDs
50.
An MVPD is an entity that sells packages of cable and broadcast channels to consumers.
MVPDs include traditional cable providers (e.g., Comcast, Charter), DBS providers (e.g., DISH Network,
DIRECTV), and telco providers (e.g., AT&T U-verse, Verizon Fios). MVPDs typically offer both linear
cable and broadcast channels, as well as video-on-demand programs. Because households typically
subscribe to only one MVPD, video competition between MVPDs generally can be viewed as “winnertake-all”--an MVPD either wins the household or loses out to a rival MVPD.
51.
Availability to Consumers. Cable MVPDs generally exist in non-overlapping franchise
areas and, as a result, do not compete directly with one another for the same subscriber, so most
consumers have access to only one cable MVPD. Where cable overbuilders exist (for example, RCN or
Wide Open West) consumers have access to more than one cable MVPD. Ordinarily, there is not more
than one such overbuilder in a particular geographic area. 132 Telephone company MVPDs rarely compete
with one another for the same subscribers; however, they almost always overbuild areas already served by
at least one cable company. DIRECTV and DISH Network have national footprints and almost all
consumers nationwide have access to both DBS MVPDs. Until recently, DBS MVPDs competed with
one another and with every cable and telephone company MVPD. This changed with the merger of
AT&T and DIRECTV in July 2015, which eliminated competition between AT&T U-verse and
DIRECTV. Although most consumers have access to three competing MVPDs (two DBS MVPDs and a
cable MVPD), 133 some consumers also have access to a competing telephone company MVPD, for a total
of four MVPDs. We estimated that 17.9% of housing units had access to four MVPDs in 2015. 134 The
number may be declining as buildout of wireline MVPD networks by telephone companies has slowed in
recent years, 135 but we lack reliable data.
52.
Subscribership. At the end of 2017, seven MVPDs each had over one million video
subscribers. These include four cable companies (Comcast, Charter, Cox, and Altice), DISH Network (a
DBS MVPD), Verizon Fios (a telephone company MVPD), and AT&T (a combined telephone company
MVPD and DBS MVPD). 136 Twelve cable MVPDs and four telephone company MVPDs each had over
132
The available data do not permit us to calculate how many homes have access to two cable MVPDs. However,
S&P Global estimates that cable overbuilders have more than 1 million video subscribers nationwide. S&P Global,
Cable TV Investor at 7 (Feb. 28. 2017).
133
We assume that cable MVPDs are available to approximately 99% of housing units and DBS is available to all
housing units although we recognize that in reality physical features (e.g., tall buildings, terrain, and trees) prevent
some housing units from receiving DBS signals. See Annual Assessment of the Status of Competition in the Market
for the Delivery of Video Programming, Sixteenth Report, 30 FCC Rcd 3253, 3264-65 and Table 1 (MB 2015) (16th
Report).
134
18th Report, 32 FCC Rcd at 577, para. 21.
135
See infra para. 69.
136
S&P Global, Top Cable MSOs (last visited June 15, 2018).
12597
Federal Communications Commission
FCC 18-181
100,000 and fewer than one million video subscribers. 137 In addition, many small cable and telephone
company MVPDs serve significantly smaller numbers of customers.
53.
MVPDs as a group have been losing subscribers since 2013. 138 Figure B-1 provides data
for MVPD video subscribers for 2016 and 2017. Collectively, MVPDs lost about 3.6 million video
subscribers over the period. Cable MVPDs lost 986,000 subscribers; DBS MVPDs lost 1,693,000
subscribers; and telephone company MVPDs lost 903,000 subscribers.
Fig. B-1
MVPD Video Subscribers (in thousands) 139
2016
2017
Net Change
Cable
52,845
51,859
-986
Comcast
22,508
22,357
-151
Charter
17,236
16,997
-239
Cox
3,932
3,852
-80
Altice
3,709
3,582
-127
Other Cable
5,459
5,071
-388
DBS
33,181
31,488
-1,693
DIRECTV
21,012
20,458
-554
DISH Network
12,170
11,030
-1,140
Telephone Company
11,529
10,626
-903
Verizon Fios
4,694
4,619
-75
AT&T U-verse
4,281
3,658
-623
Frontier
1,145
961
-184
Other Telephone
1,409
1,388
-21
MVPD Total
97,556
93,973
-3,583
54.
Figure B-2 shows the relative shares of MVPD subscribers for cable, DBS, and telephone
companies. While the total number of MVPD subscribers declined from 99.7 million in 2015, to 97.6 in
2016, to 94.0 million in 2017, cable’s relative share increased, the share for telephone companies
decreased, and the share for DBS changed little. 140
137
Id. The twelve cable MVPDs were Mediacom, Wide Open West, Cable One, RCN, Atlantic Broadband,
Midcontinent Communications, Armstrong Utilities, Service Electric Cable TV, Blue Ridge Cable Technologies,
WaveDivision Holdings, GCI Liberty, and Buckeye Broadband. The four telephone company MVPDs were
CenturyLink, Consolidated Communications, Cincinnati Bell, and Frontier Communications. Id.
138
S&P Global, U.S. Multichannel Industry Benchmarks (last visited Sept. 28, 2018).
139
S&P Global, Cable TV Investor at 4 (Mar. 27, 2018). See also Leichtman Research Group, LRG Research Notes
at 3-4 & 6 (1Q 2018), http://www.leichtmanresearch.com/research.html#notes.
140
S&P Global, U.S. Multichannel Industry Benchmarks (last visited June 15, 2018).
12598
Federal Communications Commission
FCC 18-181
Fig. B-2
Percentage of MVPD Subscribers 141
Year
Cable
DBS
Telephone
2015
53.5
33.2
13.1
2016
54.1
34.0
11.8
2017
55.2
33.5
11.3
55.
Video Revenue. Video revenues for the largest MVPDs are shown in Figure B-3.
According to S&P Global, video revenue from cable, DBS, and telephone company MVPDs peaked in
2016 at $117.7 billion, fell to $116.1 billion in 2017, and is projected to fall to $113.2 billion in 2018. 142
Although the bulk of MVPD video revenue comes from subscriptions, MVPDs also earn revenue by
selling advertising. S&P Global reports that cable MVPDs earned net ad revenue of $4.2 billion in 2016
and $3.9 billion in 2017. 143
Fig. B-3
MVPD Video Revenue (in millions) 144
2016
2017
Percentage Change
AT&T
$36,460 $36,728
0.7%
Comcast
$22,357 $23,129
3.5%
Charter
$16,390 $16,641
1.5%
DISH Network $15,212 $14,391
-5.4%
a.
Business Models and Competitive Strategies
56.
MVPDs often seek to differentiate themselves from one another to gain an advantage
over competitors. For example, they may differentiate based on equipment technology, pricing, discounts
for new subscribers, responses to increased programming costs, bundles, differing sizes of video
packages, TV Everywhere145 rights, integration of OVD services with MVPD packages, Wi-Fi
hotspots, 146 and digital technology. 147 MVPDs also have different strategies for owning their own content
141
See id. Throughout this section, percentages provided may not sum to exactly 100 due to rounding.
142
Tony Lenoir, Multichannel Trends: 10-year video revenue outlook anticipates continued drift away from 2016
peak, S&P Global (Sept. 27, 2018).
143
Id.
144
AT&T, 2017 Annual Report at 20; Comcast, SEC Form 10-K for the year ended December 31, 2017 at 39
(Comcast 2017 10-K); Charter, SEC Form 10-K for the year ended December 31, 2017 at 4 and 35; DISH Network,
SEC Form 10-K for the year ended December 31, 2017 at 62 (DISH Network 2017 10-K).
145
See infra para. 64.
146
Some MVPDs have built Wi-Fi Networks that enable subscribers to access content on mobile devices outside
their homes. A consortium called Cable Wi-Fi, comprised of Cox, Altice, Charter, and Comcast, has built over
500,000 hotspots typically located in high-traffic areas like businesses, hotels, restaurants and malls. See, e.g.,
Spectrum, Cable WiFi Internet access is brought to consumers through a collaboration among U.S. Internet service
providers, https://www.spectrum.com/content/spectrum/residential/microsites/cablewifi/cablewifi.html. Cable WiFi allows Internet subscribers of these companies to access the hotspots of other consortium members. Id.
12599
Federal Communications Commission
FCC 18-181
and for offering alternative OVD services for consumers who do not subscribe to an MVPD’s traditional
video services. We discuss some of the most relevant of these issues further below.
57.
Channel Packages. Today, the major MVPDs offer hundreds of linear channels, and
there is often substantial overlap in the channels offered by competing MVPDs. Providers rarely offer
exclusive channels,148 and all of the large MVPDs traditionally have offered consumers access to all the
major broadcast and cable networks, as well as a similar selection of premium channels. As a result, from
the perspective of linear programming, most consumers view MVPDs as good substitutes because they
can replace one MVPD with another, without losing popular channels, provided the household has access
to a competing MVPD.
58.
VOD Programming. MVPDs often distinguish themselves by offering varying amounts
of VOD content, which gives subscribers access to a vast library of television shows and movies. This
library of programming available “on demand” offers subscribers another way to consume video
programming besides the linear channels. The average number of VOD movies and TV episodes offered
by major MVPDs reached 77,570 selections per month at the end of 2017, 149 but there was wide variance
among providers. For example, Verizon Fios offered 160,000 VOD titles per month, Cox 100,000, DISH
Network 47,000, Charter 35,000, and DIRECTV 30,000. 150
59.
Packages and Pricing. To attract and retain customers, MVPDs offer a variety of
channel packages at different prices. Although the channel packages offered by one company are never
exactly the same as the channel packages offered by another company, competitive forces pressure
MVPDs to offer comparable channel packages at similar prices. 151 Traditional MVPD channel packages
include a large number of channels and cover a wide variety of genres and interests. For example,
Comcast offers three packages with channel counts ranging from about 140 to more than 260, priced from
$59.99 to $84.99 per month. 152 Similarly, DISH Network offers packages with channel counts ranging
from 190 to more than 290, priced from $59.99 to $89.99 per month. 153
60.
In response to competition from OVDs, slow growth in household incomes, and
increasing programming costs, some MVPDs have begun offering smaller video packages (sometimes
called “skinny” channel packages), which typically include a limited selection of channels, often focusing
(Continued from previous page)
147
Wireline MVPDs continue to free up bandwidth in their systems by transitioning analog channels to digital.
According to S&P Global, Comcast, Cox, and Mediacom were all-digital in 2016. S&P Global, Cable TV Investor
at 4-5 (Feb. 28, 2017). Charter expects to finish transitioning systems it acquired from Time Warner Cable and
BrightHouse in 2019. Id.
148
The NFL Sunday Ticket, offered exclusively by DIRECTV, is perhaps the most well-known exception to this
observation.
149
S&P Global, Cable TV Investor at 3-4 (Feb. 23, 2018).
150
Id.
151
Many factors potentially affect the value of a video package including the specific networks and movie channels
included in the package, the advanced services included in the package (e.g., HD, DVR, VOD, and TV
Everywhere), rental of set-top boxes, and fees for local stations and regional sports. Similarly, MVPD video
services differ by equipment, number of connected TVs, length of contract, and additional fees. See e.g., Brendan
Hesse, DISH Network Versus DIRECTV, Digital Trends (May 12, 2017), https://www.digitaltrends.com/hometheater/dish-network-versus-directv/. See also, Trevor Wheelwright, Verizon Fios vs Comcast XFINITY,
Reviews.org (June 16, 2017), http://www.reviews.org/comparisons/verizon-fios-vs-comcast-xfinity/.
152
Comcast, XFINITY Deals, https://www.xfinity.com/learn/offers?lob=tv,internet (last visited June 27, 2018).
153
DISH Network, Satellite TV Packages, https://www.dish.com/programming/packages/ (last visited June 27,
2018).
12600
Federal Communications Commission
FCC 18-181
on specific subscriber interests, such as sports, children’s entertainment, or movies. 154 Examples of such
video packages include Verizon Fios’s Custom TV-Action & Entertainment with 62 channels and Custom
TV-Sports & News with 57 channels. 155 Packages start at $64.99 per month. 156 Similarly, DIRECTV’s
Select All Included package provides more than 150 channels for $40.00 per month. 157
61.
Prices for New and Existing Subscribers. The prices discussed above are generally
applicable to new subscribers. Typically, the prices prominently displayed to consumers on MVPD
websites, in mailings, or in television advertisements are for new subscribers, and are often for a limited
time (e.g., six months, one year, or two years), with the subscription rate increasing thereafter.
62.
Offering discounts to new subscribers is a common pricing strategy. MVPDs offer
substantial savings to new subscribers for a short period of time because the potential revenue stream over
the long term is substantial. According to S&P Global, adding and terminating subscriber accounts is
expensive, so the goal of every MVPD is to maximize the length of time an account is active at the same
location through subscriber retention. 158 DISH Network explains that the company incurs significant
upfront costs to acquire subscribers and strives to “provide outstanding customer service to increase the
likelihood of customers keeping their pay-TV service over longer periods of time.” 159 Once the
promotional period is over, MVPD subscribers generally can expect their monthly bills to increase.
While MVPDs display prices for service upgrades on their websites, options for lowering an existing
subscriber’s monthly bill, for example by downgrading or cancelling services, are harder to find. Existing
subscribers sometimes find that MVPDs offer lower ongoing prices over the phone than are available on
provider websites.160
63.
Bundling. MVPDs often offer better deals to consumers who purchase video services as
part of a bundle that includes some combination of video, Internet, voice, and mobile wireless services.161
Often the price of a bundle of video, telephone, and Internet service is only marginally different from the
price of Internet service alone. 162 Analysts suggest that the strategy of bundling services to subscribers
154
S&P Global, Cable TV Investor at 1 (July 31, 2015); S&P Global, Cable TV Investor at 3 (July 29, 2015). See
also Joe Flint, Why Does the Cable-TV Bundle Exist Anyway?, Wall St. J. (June 8, 2015),
http://www.wsj.com/articles/why-does-the-cable-tv-bundle-exist-anyway-1433807825.
155
Verizon, Fios Custom TV | Verizon Official Site, https://fios.verizon.com/fios-custom-tv-package.html. (last
visited Sept. 24, 2018).
156
Verizon, Fios TV Plans, Custom | Verizon Official Site, https://www.verizon.com/home/fiostv/ (last visited Sept.
24, 2018).
157
DIRECTTV, DIRECTTV Packages – Build Your Own,
https://www.directv.com/DTVAPP/pepod/configure.jsp#package-section (last visited Oct. 1, 2018).
158
Keith Nissen, Most US Households Remain Loyal to Multichannel TV Service Provider, S&P Global (Apr. 25,
2016). See also, Ian Kingwill, What is the Cost of Customer Acquisition vs Customer Retention? (March 3, 2015),
https://www.linkedin.com/pulse/what-cost-customer-acquisition-vs-retention-ian-kingwill.
159
DISH Network 2017 10-K at 6.
160
See e.g., Christopher Elliot, How To Negotiate A Lower Cable Bill Without Cutting The Cord, Huffington Post
(March 15, 2017), http://www.huffingtonpost.com/entry/how-to-negotiate-a-lower-cable-bill-withoutcutting_us_58c7f5d9e4b0d06aa65804be; See e.g., Emily Guy Birken, How to Negotiate Your Way to a Lower Cable
Bill, Moneyning, http://moneyning.com/budgeting/how-to-negotiate-your-cable-bill/.
161
18th Report, 32 FCC Rcd at 589-90, paras. 51-54.
162
See Ashley Rodriguez, Internet-TV Bundles Like Sling TV Aren’t Saving Cord-cutters Money Off Cable, Quartz
(Jan. 18, 2018), https://qz.com/1182312/internet-tv-bundles-like-slingtv-arent-saving-cord-cutters-money-off-cable/;
Rani Molla, Americans Are Still Paying for Cable Because It’s Bundled With Their Internet, Recode (Mar. 20,
2018), https://www.recode.net/2018/3/20/17139756/reasons-americans-us-pay-cord-cable-tv, (Molla) (“For many,
(continued….)
12601
Federal Communications Commission
FCC 18-181
has a positive effect on customer retention as the household is reliant on the MVPD for multiple
services. 163 In a recent survey, 56% of MVPD subscribers responded that a top reason for keeping the
video service was because it was bundled with Internet service. 164
64.
TV Everywhere. Many MVPDs offer connected video services, referred to as “TV
Everywhere,” which allow consumers to access cable and broadcast channels and VOD programming on
a variety of Internet-connected devices both inside and outside the home. 165 S&P Global maintains that
MVPDs offer TV Everywhere at no extra charge in order to provide incentives for consumers to subscribe
to higher channel packages. 166 There are significant differences in the number of TV Everywhere
programs offered by the largest MVPDs. For example, in early 2018, S&P Global determined that
Verizon FIOS offered 6,375 TV Everywhere movie titles, whereas Charter offered 293. 167
65.
Video Services for Consumers Who Do Not Subscribe to an MVPD. Some MVPDs offer
online video services separate from their MVPD service. DISH Network led the way in the marketplace
with the introduction of Sling TV in February 2015, offering a package of linear programming channels
similar to a traditional pay-TV program package. AT&T followed with DIRECTV Now in November
2016 and WatchTV in June 2018. These online video services are examined more fully in our discussion
of OVDs below. While DBS MVPDs have begun offering these services, wireline MVPDs have
hesitated to offer channel packages that rely for delivery on facilities owned by other providers. 168 For
example, Comcast’s Instant TV service is available only to Comcast Internet subscribers. 169 And
Charter’s Spectrum TV Stream has similar restrictions. 170
66.
Impact of Programming Costs. In general, programming costs for MVPDs have
increased in recent years, resulting in increased costs for MVPD subscribers. S&P Global estimates that
programming costs per subscriber were $52.68/month in 2017, up from $48.81 in 2016. 171 In response to
increased programming costs, many MVPDs have added “broadcast fees” and “regional sports fees” to
monthly billing statements to pass those costs through directly to consumers and cover a portion of the
increased programming costs without appearing to raise the rate of the television service.172
(Continued from previous page)
the cost they’d have to pay for internet alone isn’t much less than they would pay for [TV, telephone, and internet]
individually…”).
163
See Jeffrey Prince and Shane Greenstein, Does Service Bundling Reduce Churn?, 23 J. of Economics &
Management Strategy 839-75 (Winter 2014) (finding that bundling reduces subscriber churn); Jeffrey Prince, The
Dynamic Effects of Triple Play Bundling in Telecommunications, Time Warner Cable, Research Program on Digital
Communications (Winter 2012) (arguing that firms bundle video, Internet, and voice services to reduce subscriber
churn).
164
See Molla (noting that according to a March 2018 Deloitte survey, 56% of Americans cite service bundling as a
reason for subscribing to their MVPD).
165
TV Everywhere uses an authentication process to ensure that users subscribe to an MVPD. The process requires
users to select their MVPD service provider and then provide a user ID and password.
166
S&P Global, Cable TV Investor at 2 (Jan. 27, 2017).
167
S&P Global, Cable TV Investor at 7-8 (Feb. 23, 2018).
168
S&P Global, Cable TV Investor at 8-10 (Apr. 26, 2018).
169
S&P Global, Cable TV Investor at 6 (June 2018).
170
Id.
171
S&P Global, Cable TV Investor at 17-20 (Apr. 26, 2018).
172
See e.g., James K. Willcox, Your Cable Bill Probably Went Up More Than You Think, Consumer Reports (May
9, 2018), https://www.consumerreports.org/tv-service/your-cable-bill-probably-went-up-more-than-you-think/. See
also S&P Global, Cable Program Investor at 2-4 (Apr. 23, 2018).
12602
Federal Communications Commission
FCC 18-181
67.
Ownership of Content. Some MVPDs have ownership interests in cable, broadcast, and
regional sports networks that allow them to vertically integrate their ownership of a distribution network
with ownership of video programming. For example, Comcast owns a dozen cable channels, including
the NBC Sports Network, USA, E!, Syfy, MSNBC, CNBC, Bravo, Oxygen, and the Golf Channel;
regional sports networks in Baltimore/Washington, Boston, Chicago, Philadelphia, Portland (Oregon),
Sacramento, and San Francisco; the NBC and Telemundo broadcast networks; 11 NBC-affiliated
broadcast stations, 17 Telemundo-affiliated broadcast stations; and Universal Pictures.173 When acquiring
NBC Universal, Comcast explained that, in part, its acquisition of programming assets was designed to
facilitate offering expanded VOD and TV Everywhere services.174 More recently, AT&T acquired Time
Warner, which included the Warner Bros Studios, as well as the HBO, Turner, and CNN channels.175
When announcing plans to merge, AT&T explained that ownership of Time Warner content would
accelerate innovation in the mobile environment and improve targeted advertising. 176
b.
Recent Entry and Exit
68.
In general, competition in the video delivery marketplace is enhanced by entry of new
facilities-based providers and when existing providers upgrade their video delivery systems. 177 When
existing MVPDs merge or cease operations, competition may decrease.178 When two MVPDs with nonoverlapping footprints merge, the number of MVPDs available to customers does not change, but the
transaction may still produce public interest benefits or harms. 179
69.
Most MVPD entry and expansion in the past decade has come from telephone companies
building fiber networks to compete with cable companies for video, Internet, and phone services.
Telephone companies had been extending their wireline MVPD networks to additional households. This
activity appears to have slowed recently. For example, in 2015, following its acquisition of DIRECTV,
AT&T began encouraging customers to use DIRECTV, rather than AT&T’s wireline U-verse, for video
services. 180 Similarly, Google Fiber stopped its buildout in 2016, 181 and CenturyLink stopped expanding
and promoting Prism TV in 2018. 182
173
Comcast 2017 10-K at 5-8.
174
Applications for Consent to the Transfer of Control of Licenses, General Electric Company, Transferor, to
Comcast Corporation, Transferee, Applications and Public Interest Statement (filed Jan. 28, 2010),
https://ecfsapi.fcc.gov/file/7020394237.pdf.
175
Press Release, AT&T, AT&T Completes Acquisition of Time Warner Inc. (June 15, 2018),
http://about.att.com/story/att_completes_acquisition_of_time_warner_inc.html.
176
Press Release, AT&T, AT&T to Acquire Time Warner (Oct. 22, 2016),
http://about.att.com/story/att_to_acquire_time_warner.html. See also Jason Lynch, AT&T and Time Warner’s CEOs
Explain the Benefits of Their $85 Billion Merger, Adweek (Oct. 24, 2016), https://www.adweek.com/tv-video/attand-time-warners-ceos-explain-benefits-their-85-billion-merger-174224/.
177
18th Report, 32 FCC Rcd at 582, para. 34.
178
Id., at 583, para. 37.
179
Id.
180
S&P Global, Cable TV Investor at 10-12 (Feb. 28, 2017).
181
Chris Mills, What’s happening to Google Fiber?, BGR (Jan. 31, 2018), https://bgr.com/2018/01/31/google-fiberavailability-new-cities-nope/; Jeff Kagan, What Ever Happened to Google Fiber?, E-commerce Times (June 14,
2018), https://www.ecommercetimes.com/story/85391.html.
182
Daniel Frankel, CenturyLink No Longer Working to Expand Prism TV Service, FierceCable (Apr. 10, 2018),
https://www.fiercecable.com/cable/centurylink-no-longer-working-to-expand-prism-tv-service; Karl Bode,
CenturyLink Drops TV Services, May Ditch Residential Broadband, DSL Reports (Apr. 13, 2018),
http://www.dslreports.com/shownews/CenturyLink-Drops-TV-Services-May-Ditch-Residential-Broadband-141598.
12603
Federal Communications Commission
c.
FCC 18-181
Report on Cable Industry Prices
70.
In the context of this discussion of MVPDs in the video marketplace, we report on the
average rates charged by cable operators for basic cable service and other cable programming, as well as
cable equipment to access such programming, 183 as required by Section 623(k) of the Communications
Act of 1934, as amended by the Cable Television Consumer Protection Act of 1992 (Cable Act) 184 and
the Consolidated Appropriations Act of 2018. 185 Consistent with the statute, the Commission is required
to compare the rates of operators subject to effective competition to the rates of operators not subject to
effective competition under a statutorily defined standard (herein after referred to as “effective
competition”).186 In addition, section 110 of the STELA Reauthorization Act of 2014 requires the
Commission to report on retransmission consent fees paid by cable systems to broadcast stations or
groups. 187 The following presents an overview of the Commission’s findings as of January 1, 2017, and
fulfills these statutory directives. 188
183
47 U.S.C. § 522(5) (defining cable operator). Cable operators include operators of traditional coaxial and fiber
cable systems, municipalities, and telephone companies including Verizon Fios. DBS providers and AT&T U-verse
systems are not registered with the Commission, and thus these systems’ prices are not included, although DBS and
AT&T U-verse are competitors for purposes of assessing effective competition. “Service tier” refers to a cable
service for which a separate rate applies. Id. § 522(l7). Operators must provide a separately available “basic cable
service” to which customers must subscribe before accessing any other tier of service. Id. § 543(b)(7). “Other cable
programming” service means any video programming other than programming offered with the basic service or
programming offered on a per channel or per program basis. Id. § 543(l)(2). Section II, Part C defines other cable
programming for the purpose of the Report.
184
Section 623(k), adopted as Section 3(k) of the Cable Act, Pub. L. No. 102-385, 106 Stat. 1460, codified at 47
U.S.C. § 543(k).
185
The RAY BAUM’S Act requires, among other things, that the Commission include in a single report the
information formerly submitted to Congress as the annual report on cable industry prices required by section 623(k)
of the Communications Act. RAY BAUM’S Act, sections 401-404. The prior annual reports provided statistical
data on the average rates for basic cable service, other cable programming service, and equipment, as well as a
comparison of the average rates of cable systems that the Commission has found are subject to effective competition
with those of systems that the Commission has found are not subject to effective competition. In addition, the
annual report includes information related to retransmission consent fees for broadcast stations, as discussed further
below.
186
Commission findings of effective competition generally are made in reference to a “cable community identifier”
(CUID). The Commission assigns a unique CUID to each operator for each community the operator serves. As
discussed in Appendix B-1, the Commission recently changed its process and presumption for determining effective
competition. In 2015, the Commission adopted a rebuttable presumption that cable operators in all cable
communities are subject to effective competition. Amendment to the Commission’s Rules Concerning Effective
Competition, Implementation of Section 111 of the STELA Reauthorization Act, Report and Order, 30 FCC Rcd
6574 (2015). As a result of this change, operators in nearly all communities are now subject to effective
competition. Rates of an operator subject to effective competition are not subject to regulation by a local franchising
authority (LFA). 47 U.S.C. § 543(a)(2); 47 CFR § 76.905(a). An LFA may elect to regulate the rate of basic
service of an operator not subject to effective competition. Id.
187
Section 110 of the STELA Reauthorization Act of 2014 (STELAR). See Pub. L. No. 113-200, 128 Stat. 2059
(2014) enacted December 4, 2014 (H.R. 5728, 113th Cong.). Specifically, STELAR instructs the Commission to
include in its now-biennial report on cable industry prices “the aggregate average total amount paid by cable systems
in compensation under section 325 [of the Communications Act of 1934, as amended,]” and to report such
information “in a manner substantially similar to the way other comparable information is published” in the report.
47 U.S.C. § 543(k)(2), as amended.
188
The Commission’s complete report, containing additional data, information, and findings, is attached at
Appendix B-1.
12604
Federal Communications Commission
FCC 18-181
71.
Average price over all communities (regardless of effective competition standing). Over
the 12 months ending January 1, 2017, the average monthly price paid by subscribers who take only basic
cable service grew by an average of 5.2%, to $25.06. The average price for expanded basic cable service
(the next level of service above the basic tier) rose by 3.2% over the same one-year period to $75.21.
Over the five years ending January 1, 2017, the price of expanded basic service rose, on average, by 4.1%
annually. Average price per channel (price divided by the number of channels offered with expanded
basic service) fell by 10.1% to 49 cents per channel over the 12 months ending January 1, 2017. Over the
last five years, price per channel has decreased, on average, by 0.8% annually. For comparison, the rate
of general inflation measured by the Consumer Price Index (all items) rose by 2.5% over the 12 months
ending January 1, 2017, and at an average annual rate of 1.4% over the last five years.
72.
Average price in the communities with a finding of effective competition (effective
competition communities) compared to price in communities without a finding of effective competition
(noncompetitive communities). On January 1, 2017, the average price of basic service was more than
50% higher in effective competition communities than in noncompetitive communities. However, the
increase in the average price of basic service was smaller in effective competition communities than in
non-effective competition communities. Specifically, over the 12 months ending January 1, 2017, the
average price of basic service in effective competition communities rose by 5.2% to $25.17. In
noncompetitive communities, the average price of basic service grew by 9.8%, to $16.61. The differences
between these groups in both absolute price levels and in the change in prices over time likely reflect a
complicated mix of factors, with operators providing different service offerings in reaction to competition
and regulation.
73.
On January 1, 2017, the average price of expanded basic service in effective competition
communities was about 3% lower than the average price of expanded basic in the noncompetitive
communities. Over the 12 months ending January 1, 2017, the average price of expanded basic service in
effective competition communities rose by 3.2% to $75.19. In noncompetitive communities, the average
price of expanded basic service grew by 3.6%, to $77.24. In contrast to the average price of expanded
basic service, the average price per channel was higher in effective competition communities (49 cents
per channel) than in noncompetitive communities (39 cents per channel). Although operators in
noncompetitive communities charged slightly more for expanded basic service than operators in effective
competition communities, they offered more channels. Operators in effective competition communities
offered an average of 195 video channels, while operators in noncompetitive communities offered an
average of 212 channels.
74.
Average price in effective competition subgroups compared to price in noncompetitive
communities. As in prior years, we divided operators subject to effective competition into subgroups.
Compared to the noncompetitive communities, the average price of basic service was higher in every
effective competition subgroup and the difference was statistically significant in all subgroups except the
rival subgroup. Compared to the average price of expanded basic service charged in noncompetitive
communities ($77.24), the average prices charged by incumbent operators and rival operators of such
services were each about 6% lower ($72.87 and $72.40 respectively). These differences are statistically
significant. Looking at the other effective competition subgroups, the average price charged by operators
of small systems was $71.73 (7.1% lower); the average price charged by operators of midsize systems
was $75.35 (2.4% lower); and the average price charged by operators of large systems was $76.25 (1.3%
lower). The difference between the small systems subgroup and the noncompetitive group is statistically
significant but the other two differences are not statistically significant. 189
189
The subgroups are defined as follows: incumbent operators are the original cable service operator in effective
competition communities that are served by at least two wireline MVPDs; rival operators are later entrants in
effective competition communities that are served by at least two wireline MVPDs; and all effective competition
communities are divided by number of subscribers into those served by small, medium, or large systems. The
sample for noncompetitive communities is drawn separately from the 118 communities that have successfully
(continued….)
12605
Federal Communications Commission
FCC 18-181
75.
Broadcast retransmission consent compensation fees. From 2015 to 2016, 190 total
retransmission consent fees paid by cable systems to television broadcast stations increased, on average,
by 31.8% per year. 191 Similarly, these same fees calculated on a per-subscriber basis increased on
average by 30%, rising from $55.82 to $72.59 over the same period. Average monthly retransmission
consent fees per subscriber per broadcast station increased by about 25% annually increasing from $0.50
to $0.63 from 2014 to 2016. Over the period 2013-2016, the compound average annual increase in
retransmission consent fees was 42.3%, and the compound average annual increase in fees calculated on a
per-subscriber basis was 37.8%.
2.
OVDs
a.
Business Models and Competitive Strategies
76.
An OVD is an entity that distributes video programming to consumers over the Internet,
not as a component of an MVPD subscription, and not solely to customers of an ISP owned or operated
by the entity or its affiliates. 192 OVDs employ a wide variety of strategies and business models to attract
and retain viewers, as reflected in the different approaches that OVDs take regarding the size and variety
of their video libraries and the decisions they make regarding ownership of content. Other differences
may include whether the OVD offers a linear programming service that includes cable and broadcast
channels, whether it sells or rents movies and TV shows, its pricing and geographic availability, and what
devices the service supports.
77.
Video Libraries and Ownership of Content. In contrast to MVPDs, which rarely compete
in terms of exclusive content, many OVDs differentiate themselves by offering original and exclusive
content.193 Some OVDs offer large libraries with thousands of movies and TV shows from many media
companies covering many genres. Others offer smaller libraries focusing on content from specific media
companies, networks, or genres. Although most OVD content is not original--it first appeared in theaters
or on broadcast or cable networks--some OVDs negotiate exclusive streaming rights to attract consumers
seeking specific movies and TV shows.
78.
Some OVDs had ownership interests in content when they launched. For example, Hulu
is a joint venture of Walt Disney, Comcast, and AT&T, and Sony owns Crackle. Other OVDs, like
Netflix and Amazon Prime, launched without ownership interests in content but subsequently included
original content in their offerings. Although final numbers are not yet available, analysts expect that in
2018, Netflix will spend $6 billion on content acquisition, an increase of more than $1 billion over the
$4.7 billion it spent in 2017. 194 Analysts also indicate that of the $8 billion Netflix is expected to spend
(Continued from previous page)
rebutted the presumption of effective competition. We provide more detail on the sampling groups and subgroups in
Appendix B-1.
190
The data for retransmission consent fees are collected somewhat differently than the rest of the data in the report.
Retransmission data are collected for complete years, whereas all the rest of the data are collected as of a certain
date (January 1). As a result, the retransmission consent fee data are for the complete years 2015 and 2016 (the
latest two years for which annual retransmission consent data were available at the time of the 2017 survey),
whereas the other data in the survey, by contrast, are snapshots as of January 1, 2016, or January 1, 2017.
191
More recent estimates show that growth in retransmission consent fees has slowed. From 2016 to 2017, S&P
Global estimates that total retransmission consent fees paid to television stations increased by 17.7%. S&P Global,
U.S. TV station industry total revenue projections, 2006-2023 (accessed December 7, 2017).
192
See supra note 131. Although online video includes both professional and amateur content, our focus is on
content similar to the programming offered by cable and broadcast networks.
193
S&P Global, Internet & OTT Industry Overview: Over-the-Top Video at 9 (April 2017).
194
Deana Myers, Netflix Content Spend Projected to Rise 29% This Year, Hit $2B-plus on Originals S&P Global
(March 28, 2018).
12606
Federal Communications Commission
FCC 18-181
on content in 2018, approximately $2.1 billion will be spent on developing original programming, with
the remainder invested in content acquisition and licensing costs. 195 According to the Chief Content
Officer for Netflix, the company’s shift to original content “is driven by more favorable economics—as
opposed to licensing TV shows and films owned by Hollywood studios—and the expectation that big
media companies would eventually put more weight into their own streaming-subscription services.” 196
Netflix also has explained that its decision to own content was driven by the belief that content owners
like Disney would raise prices or pull licensing deals and start their own online video services. 197
79.
Similarly, after spending $3.7 billion on content in 2017, 198 Amazon is expected to
increase content spending to $5.1 billion in 2018, with $1 billion directed toward original
programming. 199 Amazon has explained that its investment in original content is designed to lure
consumers to Amazon Prime and drive merchandise sales. 200 Hulu spent $2.5 billion in 2017 and plans to
spend approximately $3.1 billion in 2018. Of that total, Hulu’s spending on original content is expected
to total $219 million. 201
80.
OVDs focusing on offering original or exclusive VOD content may view themselves as
supplements to MVPD services with every consumer a potential customer. 202 Many consumers appear to
view these OVDs as supplements and subscribe to more than one. In the summer of 2018, Leichtman
Research Group estimated that among households that subscribe to an OVD offering VOD content, 63%
subscribe to more than one.203
81.
Cable and Broadcast Channels. Apart from OVDs specializing in live sports, most
OVDs traditionally offered libraries of video content available on-demand for consumer viewing. A
significant recent development in the Internet delivery of video services has been the increasing number
of entities offering online packages of linear cable and broadcast channels. S&P Global now refers to
these entities as “virtual multichannel” providers because they offer linear content similar to traditional
195
Id. In May 2018, the Chief Content Officer for Netflix suggested even more significant spending on original
content. Todd Spangler, Netflix Content Chief Says 85% of New Spending Is on Originals, Variety (May 14, 2018),
https://variety.com/2018/digital/news/netflix-original-spending-85-percent-1202809623/ (“Netflix is sharply
steering its new content spending toward original projects, with around 85% of new spending going to original TV
shows, films and other productions, according to chief content officer Ted Sarandos.”).
196
Id.
197
See Ashley Rodriguez, Netflix is Preparing for a Future Where Its Content is Mostly Its Own, Quartz (July 17,
2018), https://qz.com/1329821/netflix-is-preparing-for-a-future-where-it-has-mostly-originals/. See also Nick Statt,
Netflix plans to spend $8 billion in 2018 to help make its library 50 percent original, The Verge (Oct. 16, 2017),
https://www.theverge.com/2017/10/16/16486436/netflix-original-content-8-billion-dollars-anime-films.
198
Deana Myers, Amazon Content Spend up Nearly 40% This Year, $1 Billion in Originals, S&P Global (Apr. 5,
2018).
199
Id.
200
Jeffrey Dastin, Exclusive: Amazon's internal numbers on Prime Video, revealed, Reuters (Mar. 15, 2018),
https://www.reuters.com/article/us-amazon-com-ratings-exclusive/exclusive-amazons-internal-numbers-on-primevideo-revealed-idUSKCN1GR0FX.
201
Deana Myers, Hulu Content Spend on Significant Upward Path, S&P Global (Feb. 1, 2018).
202
See Ashley Rodriguez, Amazon Prime Video is still just a complement to Netflix, study finds, Quartz (June 27,
2018), https://qz.com/1315838/amazon-prime-video-is-still-just-a-complement-to-netflix-study-finds/. See also
Jayson Derrick, Study: Netflix, Hulu, Amazon Prime Are More Complementary Than Competitive, Benzinga (Feb. 3,
2018, https://www.benzinga.com/tech/18/02/11107959/study-netflix-hulu-amazon-prime-are-more-complementarythan-competitive.
203
Press Release, Leichtman Research Group, 69% of U.S. Households Have an SVOD Service (Aug. 27, 2018),
https://www.leichtmanresearch.com/69-of-u-s-households-have-an-svod-service/.
12607
Federal Communications Commission
FCC 18-181
MVPDs. 204 Leichtman Research Group refers to these entities as “online pay TV providers” and
discusses them alongside MVPDs. 205 Leichtman considers the Internet as simply another delivery
technology akin to coaxial cable, DBS, and fiber.206 Entities providing online packages of cable and
broadcast channels have also been referred to as “virtual MVPDs” and this is the term we will use.207
82.
Virtual MVPDs like Sling TV, DIRECTV NOW, Hulu Live TV, YouTube TV, and
PlayStation Vue offer packages of broadcast and cable channels similar to the small and medium-sized
channel packages offered by MVPDs. 208 Layer3 TV offers a large channel package similar to the full
channel lineups that MVPDs offer. 209 Virtual MVPDs offering similar packages of cable and broadcast
channels may see themselves as potential substitutes to traditional cable, telco, or satellite delivered
MVPDs, and thus may view competition as winner-take-all with most consumers subscribing to only one
provider. On the other hand, no two virtual MVPDs offer exactly the same channels, 210 and consumers
with strong preferences for specific channels may not view all virtual MVPDs as good substitutes for one
another. In particular, some virtual MVPDs do not offer access to all local broadcast stations or regional
sports networks. In addition to channel offerings, consumers comparing virtual MVPDs also take account
of prices and features like access to a digital video recorder (DVR) in the cloud.211
83.
Sale and Rental. While some OVDs offer access to a library of video programming for a
set monthly subscription, others offer video content for sale and rental. Online video sales allow
consumers to purchase a digital copy of a video program for a one-time fee. The program is then
downloaded and stored either locally (e.g., on a hard drive) or remotely via a cloud storage service.
Purchased and downloaded videos can be viewed repeatedly and whenever the consumer chooses. Online
video rentals allow consumers to download a digital copy but require the consumer to start watching
within a set period (e.g., 30 days) and finish watching within a set period (e.g., 24 hours). Once the
program has been watched or the rental period has expired, the consumer can no longer view the program.
84.
Pricing. Some OVDs offering VOD content are fully supported by advertisements and
provide unlimited viewing of a catalog of video programs for free. Others require users to pay a monthly
subscription fee to access their content. The fees for such services range from $4.99 per month to $14.99
per month. 212 Subscription prices for virtual MVPDs offering packages of cable and broadcast channels
range from $15 per month to $80 per month depending on the package selected. 213 Our review of some
204
S&P Global, Cable TV Investor at 3 (June 2018).
205
Leichtman Research Group, Research Notes 1Q 2017, http://www.leichtmanresearch.com/research.html#notes.
206
Id.
207
Carl Wienschenk, vMVPD Satisfaction: Despite the Technical Shortcomings, Subscribers are Warming to PayTV Alternatives, Telecompetitor (Aug. 16, 2017), http://www.telecompetitor.com/vmvpd-satisfaction-despite-thetechnical-shortcomings-subscribers-are-warming-to-pay-tv-alternatives/.
208
S&P Global maintains that virtual MVPDs “continue to add live stations, strengthening their position as cable
alternatives.” Peter Leitzinger, VSP & OTT Live Station Streams Bring on New Affiliates, S&P Global (July 31,
2017).
209
Henry T. Casey, What Is Layer3 TV and How Does It Work?, Tom’s Guide (Dec. 13, 2017),
https://www.tomsguide.com/us/layer3-faq-price-specs-t-mobile,news-26259.html.
210
David Katzmaier, All the Live TV Streaming Services Compared: Which has the Best Channel Lineup?, CNET
(July 26, 2018), https://www.cnet.com/news/live-tv-streaming-services-channel-lineups-compared/.
211
Ali Choukeir, VSP Channel Comparison Exposes Interesting Contrasts, S&P Global (June 12, 2017).
212
Ali Choukeir, Economics of Internet: Profile: Netflix (U.S.), S&P Global (April 10, 2018).
213
Ali Choukeir, Economics of Internet: State of US Online Video: Virtual Multichannel, S&P Global (July 23,
2018).
12608
Federal Communications Commission
FCC 18-181
OVDs specializing in sports showed season prices ranging from a low of $4.99/month for Major League
Soccer to a high of $199.99/season for the National Basketball Association.
85.
In contrast to MVPDs, which offer new customers multi-month discounts, OVDs rarely
offer lower prices to new customers as an inducement to subscribe. 214 Many OVDs, however, offer a free
trial period that gives consumers an opportunity to explore the provider’s content library and test the
service on various devices. 215 When the free trial period is over, OVDs typically offer service on a
month-to-month basis, charging both new and old customers the same price for service that can be
cancelled at any time. 216
86.
Geographic Availability. Although traditional OVDs offering video content are available
nationwide to anyone with an Internet connection, OVDs offering linear packages of cable and broadcast
channels may differ in their geographic reach. Availability may be based on contractual arrangements
with cable networks, broadcast stations, and other content owners. 217 Availability may also require
building, or contracting with, content distribution networks (CDNs) to enhance the speed and quality of
video content delivered to consumers. 218 Layer3 TV delivers its video service over existing wireline
facilities, leasing the necessary capacity from local broadband providers.219
87.
Supported Devices. OVDs further differentiate their services by the number of devices
that can be connected to the service at the same time. 220 Moreover, not all devices work with all online
services. For example, the Apple TV streaming device did not include an app for Amazon Prime until the
end of 2017, 221 and the Google Chromecast streaming device currently does not have an app for Amazon
Prime. 222 Notably, Amazon, Google, Apple, and Sony are each both OVDs and manufacturers of
Internet-connected devices, and each has its own business plan for whether and how to make its OVD
content accessible on devices manufactured by rival entities. S&P Global maintains that entities that
provide both video services and devices “can give a service an edge in terms of search, discovery and app
placement.” 223
214
S&P Global, Cable TV Investor at 2 (Sept. 29, 2017).
215
Id.
216
See, e.g., DIRECTV NOW, DIRECTV NOW Packages & Pricing, https://www.directvnow.com/tv-packages (last
visited July 9, 2018).
217
See, e.g., YouTube TV Expands to 14 New Markets, Partners with Sinclair Stations, CNBC (Aug. 17, 2017),
https://www.cnbc.com/2017/08/17/youtube-tv-expands-to-14-new-markets-partners-with-sinclair-stations.html.
218
Content distribution networks speed transmission and reduce latency by storing cached versions of video data in
geographic locations closer to the consumer. CDNetworks, How Content Delivery Networks Work (April 13, 2015),
https://www.cdnetworks.com/en/news/how-content-delivery-networks-work/4258.
219
Bernie Arnason, IP Video Provider Layer 3 TV Partners with Muni Broadband Provider for Hosted Video,
Telecompetitor (Mar. 13, 2017), http://www.telecompetitor.com/ip-video-provider-layer-3-tv-partners-with-munibroadband-provider-for-hosted-video/.
220
Ali Choukeir, Economics of Internet: State of US Online Video: Virtual Multichannel, S&P Global (July 23,
2018).
221
Thomas Ricker, Amazon Prime Video Comes to Apple TV, Finally, The Verge (Dec 6, 2017),
https://www.theverge.com/2017/12/6/16741136/download-amazon-prime-video-apple-tv.
222
Parker Hall, Watch Amazon Video on Your Chromecast — No Fire TV Stick Needed, Digital Trends (Aug. 7,
2018), https://www.digitaltrends.com/home-theater/how-to-watch-amazon-instant-video-on-chromecast-or-androidtv/.
223
S&P Global, Internet & OTT Industry Overview: Over-the-Top Video at 13 (April 2017).
12609
Federal Communications Commission
b.
FCC 18-181
Select Providers
88.
The following OVD providers were selected to illustrate the strategies and business
models discussed above. 224
x
Amazon: Amazon offers a large library of subscription-based video programming on
demand, including a growing amount of original content. 225 Amazon Prime members pay
$12.99 per month or $119 per year and receive access to Prime Video as part of the
membership. 226 Prime Video may also be purchased as a standalone service for $8.99 per
month. 227
x
Netflix: Netflix offers a large library of subscription-based video programming and a rapidly
growing amount of original content.228 Three streaming plans are available: a basic plan for
one screen in standard definition (SD) for $7.99 per month; a standard plan for two screens in
high definition (HD) for $10.99 per month; and a premium plan for four screens in HD/UHD
4K for $13.99 per month. 229
x
Hulu: Hulu is a joint venture co-owned by Walt Disney, Comcast, and AT&T. 230 Hulu’s
video library includes many current-season TV shows and 20 original series. 231 In 2017, the
company introduced Hulu Live TV, which provides 50 programing channels as well as access
to video on demand. 232 Hulu offers four plans: the VOD library with commercials for $7.99
per month; the VOD library without commercials for $11.99 per month; the VOD library
with commercials and Live TV for $39.99 per month; and the VOD library without
commercials and Live TV for $43.99 per month. 233
x
YouTube: Google’s YouTube offers an ad-supported video library with a wide variety of
content, including user-created videos, professionally produced video content, music videos
224
The description of offerings is as of summer 2018, but notably OVD business models continue to evolve. For
example, Amazon initially offered video sales and rentals and later added subscription-based VOD content. Hulu
initially offered ad-supported VOD content, then moved to subscription-based VOD content, and has now added a
subscription-based package of channels. See Ali Choukeir, Economics of Internet: Profile: Hulu, S&P Global (Feb.
22, 2017).
225
Marshall Honorof, What Is Amazon Prime?, Tom’s Guide (June 29, 2018), https://www.tomsguide.com/us/whatis-amazon-prime,news-18041.html.
226
Amazon, Amazon Prime, https://www.amazon.com/Amazon-Prime-One-Year-Membership/dp/B00DBYBNEE
(last visited Aug. 1, 2018).
227
Id.
228
Netflix, How Does Netflix Work?, https://help.netflix.com/en/node/412 (last visited July 5, 2018). Todd
Spangler, Netflix Eyeing Total of About 700 Original Series in 2018, Variety (Feb. 27, 2018),
https://variety.com/2018/digital/news/netflix-700-original-series-2018-1202711940/.
229
Netflix, Netflix Plans, Pricing & Signup, https://www.netflix.com/signup/planform (last visited July 5, 2018). In
addition to online video, Netflix offers plans that deliver DVDs to customers via mail. Netflix, Rent Movies and TV
Shows on DVD and Blu-ray, https://dvd.netflix.com/ (last visited July 5, 2018).
230
Luke Bouma, Hulu’s Ownership Just Changed & Will Change Again Soon, Cord Cutters News (June 15, 2018),
https://www.cordcuttersnews.com/hulus-ownership-just-changed-will-change-again-soon/.
231
Hulu, Stream TV and Movies Live and Online, https://www.hulu.com/welcome. (last visited July 5, 2018).
232
Id.
233
John-Michael Bond, Hulu No Commercials vs Hulu Limited Commercials: What’s the Difference?, The Daily
Dot (July 30, 2018), https://www.dailydot.com/upstream/hulu-no-commercials-limited-commercials-plan/.
12610
Federal Communications Commission
FCC 18-181
and clips from TV shows and movies. 234 YouTube Premium offers the same content without
ads plus some original content for $11.99 per month. 235 In 2017, the company introduced
YouTube TV, which provides 60 channels with VOD for $40 per month. 236
x
iTunes: Apple’s iTunes offers sale and rental of over 100,000 movies and TV shows. 237
x
PlayStation Vue: Sony’s PlayStation Vue offers four subscription-based channel packages
along with access to video programming on demand. “Access” provides popular channels for
$44.99 per month; “Core” includes sports channels for $49.99 per month; “Elite” adds movie
channels for $59.99 per month; and “Ultra” adds access to premium channels for $79.99 per
month. 238
x
Sling TV: DISH Network’s Sling TV offers subscription-based channel packages with
access to video programming on demand. Sling Orange offers 29 channels for $25/month,
Sling Blue offers a different mix of 42 channels for $25/month, and Sling Orange plus Sling
Blue cost $40/month.239 Additional packages (e.g., sports, news, kids) can be added for an
additional $5/month.240
x
DIRECTV NOW: AT&T’s DIRECTV NOW offers four subscription-based channel
packages along with VOD. Live A Little provides 60+ channels for $40 per month, Just
Right provides 80+ channels for $55 per month, Go Big offers 105+ channels for $65 per
month, and Gotta Have It provides 125+ channels for $75 per month. 241
x
Layer3 TV: 242 T-Mobile’s Layer3 TV offers 200 HD-only linear broadcast and cable
channels for $75/month and is available in Chicago, Washington D.C., Los Angeles, and
Dallas. 243 To provide service, Layer3 TV leases capacity from backbone and last mile
broadband providers and requires use of a set-top box. 244
x
Cable and Broadcast Networks: Most premium cable networks, formerly available only as
part of a traditional MVPD subscription, now offer subscription-based cable channels over
the Internet. In addition to multiple linear programming streams, these networks also provide
234
YouTube, YouTube, https://www.youtube.com/ (last visited Oct. 16, 2018).
235
YouTube, YouTube Premium, https://www.youtube.com/red (last visited Oct. 16, 2018).
236
YouTube, YouTube TV: Watch & DVR Live Sports, Shows & News, https://tv.youtube.com/welcome/ (last visited
July 5, 2018).
237
Apple, iTunes – Video – Apple, https://www.apple.com/itunes/video/ (last visited July 5, 2018).
238
PlayStation Vue, Watch Live Streaming TV, https://www.playstation.com/en-us/network/vue/ (last visited Aug. 1,
2018).
239
Sling TV, Live TV Streaming Services, https://www.sling.com/ (last visited Aug. 1, 2018).
240
Id.
241
DIRECTV NOW, DIRECTV NOW Packages & Pricing, https://www.directvnow.com/tv-packages (last visited
Aug. 1, 2018).
242
We discuss Layer3 TV in the OVD section as a virtual MVPD, but Layer3 TV could also be viewed as an MVPD
as it is delivered over a closed broadband network. Bernie Arnason, IP Video Provider Layer3 TV Partners with
Muni Broadband Provider for Hosted Video, Telecompetitor (Mar. 13, 2017), http://www.telecompetitor.com/ipvideo-provider-layer-3-tv-partners-with-muni-broadband-provider-for-hosted-video/.
243
Layer3 TV, Layer3 TV – A T-Mobile Company – all HD & 4K Cable TV, https://layer3tv.com/ (last visited July
5, 2018).
244
Jessi Hempel, Layer3 TV’s Crazy Plan to Take on Comcast and Reinvent Cable, Wired (Apr. 10, 2016),
https://www.wired.com/2016/04/layer3-tv/.
12611
Federal Communications Commission
FCC 18-181
access to a library of programming. For example, HBO NOW costs $14.99/month,
SHOWTIME costs $10.99/month, and STARZ costs $8.99/month. 245 Currently, CBS is the
only major broadcast television network to offer a subscription-based broadcast channel
online with VOD and original content. 246 CBS All Access costs $5.99/month or $9.99/month
without commercials. 247 Other broadcast networks offer ad-supported video on demand
focused primarily on their prime-time programming.
x
Sports Leagues: Most major U.S. professional sports leagues such as Major League Baseball
(MLB), the National Basketball Association (NBA), the National Hockey League (NHL), and
Major League Soccer (MLS) offer subscription-based streaming of live games. Sports
packages typically enable subscribers to follow single teams or all teams within a league.
MLB offers MLB.TV Single Team for $89.99/season and MLB.TV All Teams for
$115.99/season. 248 NFL offers NFL Game Pass for $99.99/season.249 NBA offers NBA Team
Pass for $119.99/season and NBA League Pass for $199.00/season.250 NHL offers Single
Team Pass for $109.99, Monthly Pass for $24.99, and All Access for $139.99. 251 And ESPN+
offers MLS Live for $4.99/month. 252
c.
Recent Entry and Exit
89.
The OVD marketplace continues to expand and change. Significant recent entrants into
the OVD marketplace include DIRECTV NOW, which launched in 2016, and YouTube TV and Hulu
Live TV, which launched in 2017. As discussed above, these virtual MVPDs offer packages of cable and
broadcast channels similar to packages offered by traditional MVPDs, as well as access to video
programming on demand. Recent, more niche, subscription-based entrants offering VOD content include
History Vault, STARZ, and MyOutdoorTV, which launched in 2016, and BritBox, Boomerang, and
Hallmark Movies Now, which launched in 2017. 253 Turner Classic Movies launched FilmStruck in
November 2016 but announced in October 2018 that the service would be shut down. 254 CenturyLink
Stream, a live OTT streaming service, exited the marketplace in March 2018.255
245
HBO NOW, How to Order HBO, https://www.hbo.com/order (last visited July 6, 2018); SHOWTIME, Order
SHOWTIME Now, http://www.sho.com/order-showtime (last visited July 6, 2018); John-Michael Bond, How to
Watch Starz Online, The Daily Dot (Jan. 25, 2018), https://www.dailydot.com/upstream/watch-starz-online/.
246
CBS, Stream Live TV Sports & News with Free Trial of CBS All Access, https://www.cbs.com/all-access/ (last
visited July 6, 2018).
247
Id.
248
MLB.TV, MLB.TV Subscription, https://www.mlb.com/live-stream-games/subscribe (last visited July 6, 2018).
249
NFL Game Pass, NFL Game Pass, https://gamepass.nfl.com/packages (last visited July 6, 2018).
250
John-Michael Bond, NBA League Pass vs Team Pass, The Daily Dot (Nov. 11, 2017),
https://www.dailydot.com/upstream/nba-league-pass-team-pass/.
251
NHL.TV, Subscribe | NHL.com, https://www.nhl.com/subscribe (last visited Oct. 5, 2018).
252
ESPN+, ESPN+ Stream Live Sports, https://watch.espnplus.com/soccer/ (last visited Aug. 1, 2018).
253
S&P Global, Internet Media & OTT Industry Presentation, Q1 2018 at 11 (April 2018).
254
Steven Zeitchik, The Highest-quality Streaming Service Ever Created is Shutting Down. It Could be a Very Bad
Omen for Fans, The Washington Post (Oct. 26, 2018),
https://www.washingtonpost.com/business/2018/10/26/highest-quality-streaming-service-ever-created-is-shuttingdown-it-could-be-very-bad-omen-fans/?noredirect=on&utm_term=.1fc5e42e440d.
255
Karl Bode, CenturyLink Drops TV Service, May Ditch Residential Broadband, DSLReports (Apr. 13, 2018),
http://www.dslreports.com/shownews/CenturyLink-Drops-TV-Services--May-Ditch-Residential-Broadband141598.
12612
Federal Communications Commission
3.
FCC 18-181
Broadcast Television Stations
90.
As noted above, the Commission licenses broadcast television stations consistent with the
Communications Act. 256 While licenses were formerly granted pursuant to comparative hearings among
interested applicants, presently broadcast licenses are awarded by auction; however, the Commission has
not auctioned a license for any new full power commercial television stations since 2011. While the
majority of broadcast television station licensees are part of larger companies that are involved in other
industries, some large owners, such as Sinclair Broadcast Group, Inc., Tribune Media Co., TEGNA, Inc.,
Media General/Nexstar Broadcasting Group, Inc., and Gray Television, Inc., focus almost exclusively on
the broadcast industry. 257
91.
Commercial television broadcast stations essentially serve two distinct sets of customers:
consumer audiences and advertisers. While fees received from MVPDs for the right to retransmit the
signals of the broadcast stations have increased in recent years, broadcasters continue to derive revenues
primarily by selling time to advertisers during their broadcasts. The amount of revenue generated
depends largely on the size and demographic characteristics of the audiences that broadcasters reach.
Accordingly, broadcasters seek to provide content that will attract viewers and maximize their audiences.
92.
Individual commercial stations compete primarily with other commercial broadcast
stations within their local markets (Designated Market Areas or DMAs) for audiences and advertising
revenue. 258 Other media, including competing video providers; local, regional, and national cable
networks; and Internet sites, also earn advertising revenues by attracting audiences within the geographic
areas they serve. A broadcast station’s advertising revenues depends on viewership of its television
programs, regardless of whether consumers receive the station’s signal over the air or via an MVPD.
93.
As shown in Figure B-4 below, the number of broadcast television stations has remained
relatively stable in recent years.
256
In this section we focus on full-power broadcast television stations. In addition to these stations, the Commission
licenses Class A and low-power televisions stations, as well as television translators, which are used to increase the
geographic reach of their associated main station.
257
S&P Global, Broadcast Industry Overview: US TV and Radio Stations (2017) at 44. TV station "pure-play"
group, is a general term for a company that derives over half of its revenues from broadcast TV. Sinclair and
Tribune Media are examples of companies that own digital assets and TV networks but are still considered TV
station pure-play groups.
258
The Nielsen Company assigns each broadcast television station to a designated market area (DMA). The DMA
boundaries and DMA data are owned solely and exclusively by Nielsen. Nielsen, Nielsen DMA Maps,
http://www.nielsen.com/intl-campaigns/us/dma-maps.html. Each DMA is a group of counties that form an
exclusive geographic area in which the home market television stations hold a dominance of total hours viewed.
There are 210 DMAs, covering the entire continental United States, Hawaii, and parts of Alaska. DMAs with large
populations tend to have more full-power stations, and DMAs with smaller populations usually have fewer stations
and tend to rely more on multicasting and/or Low Power Television Stations to make available all of the major
broadcast networks (e.g., ABC, CBS, FOX, NBC, CW, and myNetworkTV).
12613
Federal Communications Commission
Fig. B-4
Number of Broadcast Television Stations 259
2015
2016
2017
Commercial UHF
1,031
1,033
1,013
Commercial VHF
356
351
364
Non-Commercial
395
394
390
FCC 18-181
2018
990
359
412
94.
The over-the-air reach of a broadcast television station is determined largely by the
height of the transmission tower and the power of the transmitter. 260 Buildings, hills, and other objects,
however, may interfere with over-the-air signals. As discussed in more detail below, many television
broadcasters use digital transmission technologies to offer multiple program streams (multicast channels)
to consumers in an effort to provide more programming and features to consumers. 261
95.
MVPDs offering service within a DMA typically carry the local broadcast television
stations assigned to the DMA, rebroadcasting the stations’ signals to all the MVPDs’ subscribers. In part
this is because broadcast stations typically hold exclusive rights to broadcast the programming of their
affiliated network in a market. Thus, unlike cable networks that are available nationwide, most broadcast
television stations are retransmitted by MVPDs only within the station’s assigned DMA. Rebroadcast of
television stations by online virtual MVPDs follows a similar pattern--subscribers located in a DMA
receive local broadcast television stations from the same DMA.
a.
Business Models and Competitive Strategies
96.
Distribution and Delivery. Broadcast television stations reach consumers by
broadcasting signals directly over the air to homes, as well as through carriage agreement with MVPDs
and OVDs, which retransmit the signals of stations to households subscribing to their services. As such,
broadcasters are in the business of both content distribution and content delivery. When broadcasters
negotiate with MVPDs and OVDs for carriage of their programming, they are in the business of content
distribution--similar to cable networks. When broadcasters deliver programming using their free overthe-air service, they are in the business of content delivery--similar to facilities-based MVPDs.262
259
See FCC, Licensed Broadcast Station Totals as of September 30, 2018,
https://docs.fcc.gov/public/attachments/DOC-354386A1.pdf (September 30, 2018 Broadcast Station Totals); FCC,
Licensed Broadcast Station Totals as of December 31, 2017, https://docs.fcc.gov/public/attachments/DOC348570A1.pdf; FCC, Licensed Broadcast Station Totals as of December 31, 2016,
https://apps.fcc.gov/edocs_public/attachmatch/DOC-342889A1.pdf; FCC, Licensed Broadcast Station Totals as of
December 31, 2015, https://apps.fcc.gov/edocs_public/attachmatch/DOC-337189A1.pdf. Figures for 2015-2017 are
as of December 31. Figures for 2018 are as of September 30. VHF stations operate on channels 2-13, while UHF
stations operate on channels 14-51.
260
To receive signals from all local broadcast stations, the antenna may need to be able to receive both VHF
channels and UHF channels. Some antennas provide good reception of VHF or UHF channels, but not both. FCC,
Antennas and Digital Television, https://www.fcc.gov/consumers/guides/antennas-and-digital-television.
261
Digital broadcasting technology also allows broadcasters to use part of their licensed digital spectrum to provide
non-broadcast “ancillary or supplementary” services (such as subscription video services, data transfer, or audio
signals). 47 U.S.C. § 336(a)(2); 47 CFR § 373.624(c). If stations choose to provide such ancillary or supplementary
services, they must remit a fee to the Commission of 5% of the gross revenues received from such services. 47
U.S.C. § 336(e); 47 CFR § 73.624(g). Revenue from ancillary and supplementary services remains an insignificant
portion of total station revenue. In 2016, total revenue from these services was approximately $200,000, and the
Commission collected approximately $10,000 in fees from this revenue. In 2017, total revenue from these services
was approximately $25,000, and the Commission collected approximately $1,200 in fees from this revenue.
262
Although we discuss the wider business of broadcasters, our Report focuses on competition in the market for the
delivery of video programming. We therefore consider most closely the role played by the over-the-air broadcast
service.
12614
Federal Communications Commission
FCC 18-181
Additionally, most commercial broadcast stations also produce some of their own programming content,
typically news or local sports and events, in addition to acquiring programming from affiliated broadcast
networks or from syndicators.
97.
Advertising. A broadcast station sells advertising time based on the number or
percentage of households in a market viewing the broadcast station’s programming. Revenue from
advertising accounts for the largest share of television broadcasters’ revenue. In 2016 and 2017,
respectively, broadcasters earned about 67% of total revenue ($20.7 billion) and 62% of total revenue
($19.1 billion) from advertising sales. 263 Fees obtained from MVPDs and virtual MVPDs for the
retransmission of the station’s signal make up the second largest category of broadcast stations revenue. 264
98.
Broadcast television stations usually sell all the advertising time during the blocks of time
containing programming produced by the station itself (most importantly local newscasts), but divide the
advertising time with broadcast networks when network programming is shown. 265 Local advertisers
generally purchase advertising time directly from a station’s local sales staff. 266 In contrast, national
advertisers generally work with national advertising sales representative firms to purchase advertising
time on broadcast television stations.267
99.
Broadcast advertising rates vary by time of day, with prime time (the hours between 7
PM – 11 PM) being the most expensive. 268 Political cycles, both federal and local, have a significant
impact on broadcast advertising revenue, with even numbered years bringing in more revenue than odd
numbered years. 269 Generally, advertising rates are determined by a station’s overall ability to attract
viewers in its market area and its ability to attract viewers among particular demographic groups that an
advertiser may be targeting.270 Specifically, advertising rates depend upon factors such as: (1) the size of
a station’s market; (2) a station’s overall ratings; (3) a program’s popularity among targeted viewers; (4)
the number of advertisers competing for available time; (5) the demographic makeup of the station’s
market; (6) the availability of alternative advertising media in the market; (7) the presence of effective
sales forces; (8) the development of projects, features, and programs that tie advertiser messages to
programming; and (9) the level of spending commitment made by the advertiser.271
100.
Retransmission Consent Fees. Many television broadcast stations generate revenue by
granting MVPDs the right to carry their signal. Pursuant to Section 325 of the Act, MVPDs may not
263
S&P Global, Total TV Station Industry Revenue Projections, June 2017 (2017 S&P Global TV Revenues).
264
Id.
265
Harold L. Vogel, Entertainment Industry Economics (8th ed. 2011) at 317, n. 29.
266
Nexstar SEC Form 10-K for the year ended December 31, 2017 at 15 (Nexstar 2017 10-K).
267
Id.
268
For a discussion of broadcast network’s primetime programming and the advertising rates of the top-four
broadcast networks, see 2014 Quadrennial Regulatory Review – Review of the Commission’s Broadcast Ownership
Rules and Other Rules Adopted Pursuant to Section 202 of the Telecommunications Act of 1996, Second Report and
Order, 31 FCC Rcd 9864, 9954-58, paras. 222-28 (2016) (2014 Quadrennial Second Report and Order).
269
Steve Passwaiter, 2018 Campaign Ad Spend Will be in the Billions, The Cook Political Report (Sept. 22, 2017),
https://www.cookpolitical.com/analysis/national/political-advertising/2018-campaign-ad-spend-will-be-billions. See
also Kate Kaye, 2016 Political Broadcast TV Spend Down 20%, Cable Up 52%, AdAge (Jan. 3, 2017),
http://adage.com/article/media/2016-political-broadcast-tv-spend-20-cable-52/307346/.
270
See, e.g., Nexstar 2017 10-K at 15; Gray Television SEC Form 10-K for the year ended December 31, 2017 at 4
(Gray 2017 10-K).
271
Nexstar 2017 10-K at 15.
12615
Federal Communications Commission
FCC 18-181
retransmit a local television broadcaster’s signal without the station’s express permission. 272 If a station
elects retransmission consent, the broadcaster and MVPD negotiate a carriage agreement, which often
includes monetary or other types of compensation to the television broadcaster. 273 In 2016 and 2017,
respectively, broadcasters earned about 25% of their revenue ($7.9 billion) and 30% of their revenue
($9.3 billion) from retransmission consent fees.274
101.
As shown in Figure B-5 below, advertising provides the largest amount of revenue, but
its overall revenue share decreased significantly between 2016 and 2017. During the same time period,
the share of overall revenue attributable to retransmission consent fees increased by a similar percentage.
Fig. B-5
Broadcast Television Station Industry Gross Revenue Trends (in millions) 275
2016
2017
Revenue Source
Revenue
Percentage
Revenue
Percentage
$20,738
67%
$18,973
61%
Network Compensation
<$1
<1%
<$1
<1%
Retransmission Consent
$7,980
25%
$9,374
31%
Digital/Online
2,117
7%
$2,329
8%
$30,835
100%
$30,676
100%
Advertising
Total
Percentage Change in
Revenue from Previous
Year
12.9% 276
-0.5%
102.
Programming. Broadcast stations compete with one another, as well as with cable
networks and OVDs, for viewing audiences primarily on the basis of program popularity. 277 Broadcast
television stations that are owned or affiliated with a broadcast network typically market themselves
based largely on their affiliation, program popularity, and local news. 278
103.
Programming from major broadcast networks, which is aired by local television
broadcast affiliates, often attracts large audiences. Such programming includes prime time entertainment
programming, including sit-coms, dramas, and news/variety shows and sporting events, such as the
Olympics, National Football League (NFL) games, Major League Baseball (MLB) games, and the
272
47 U.S.C. § 325(b). Every three years, commercial television stations must elect either the right to grant consent
for the MVPDs in their DMA to retransmit their station’s signal or the right to receive mandatory carriage by those
MVPDs. Id. § 325(b)(3)(B); 47 CFR §§ 76.56(b), 76.64.
273
47 U.S.C. § 325(b)(3)(C); 47 CFR § 76.64; see also 16th Report, 30 FCC Rcd at 3274-76, paras. 44-46.
Television stations that are carried pursuant to must-carry receive no compensation from MVPDs for signal carriage.
274
S&P Global, Total TV Station Industry Revenue Projections, June 2017 (2017 S&P Global TV Revenues).
275
S&P Global, U.S. TV Station Industry Total Revenue Projections, 2008-2023 (Jun. 2018).
276
This figure represents the percentage change from 2015, when total broadcast station industry gross revenue was
$27,312,000. Id.
277
Gray 2017 10-K at 10; Sinclair Broadcast Group, Inc SEC Form 10-K for the year ended December 31, 2017 at
19 (Sinclair 2017 10-K).
278
Nexstar 2017 10-K at 15; Gray 2017 10-K at 8.
12616
Federal Communications Commission
FCC 18-181
Academy Awards.279 Broadcast networks often schedule their most popular programming during
February, May, July, and November, when Nielsen measures television audiences for all DMAs, which
serve as a basis for developing advertising rates. 280
104.
Many broadcast television stations differentiate themselves from both other stations and
cable channels by offering local news, exclusive news stories, investigative reporting, regional and local
sports, and coverage of community events. 281 In 2017, the average television station aired 5.6 hours of
local news per weekday, down slightly from 2016. 282 Although local news is becoming more available
from other sources, local broadcast television stations remain the most viewed source and the most
preferred source for emergency news. 283
105.
In addition to broadcast network and local news programming, broadcast television
stations negotiate with national program distributors and syndicators to be exclusive providers of first-run
and rerun content in their DMAs. 284 Syndicated programming often represents a long-term financial
commitment. 285 Stations usually purchase syndicated programming two to three years in advance and
sometimes must make multi-year commitments. 286 An average broadcast television station spends an
estimated 26.8% of its expenses on acquiring syndicated programming. 287
106.
As noted above, many broadcast television stations provide additional programming
choices by offering multicast channels in both high definition (HD) and standard definition (SD).
Multicast streams often carry newer networks such as Me-TV (with 164 digital multicast affiliates), ThisTV (with 83 digital multicast affiliates), and Grit (with 130 digital multicasting affiliates).288
279
Sinclair 2017 10-K at 12. The network affiliation agreements, generally exclusive for each of the 210 DMAs,
provide affiliates with the right to air network programming first. The contracts may run from two to ten or more
years. The Commission’s right-to-reject rule grants an affiliate the right to: (1) reject or refuse network programs
which the station reasonably believes to be unsatisfactory, unsuitable, or contrary to the public interest, and (2)
substitute a program which, in the station’s opinion, is of greater local or national importance. 47 CFR § 73.658(e).
280
Nielsen refers to these months as “sweep months.” See Nielsen Media Research, Glossary of Media Terms,
Sweeps, http://www.nielsenmedia.com/glossary/.
281
Nexstar 2017 10-K at 9; Gray 2017 10-K at 9; Sinclair 2017 10-K at 19. Nexstar states that it strives to increase
the audience share of its stations by providing extensive local sports coverage and active sponsorship of community
events. In 2017, Nexstar earned approximately 35% of its net advertising revenues from local broadcast advertising.
Nexstar 2017 10-K at 9.
282
Robert Papper, RTNDA Research: Local news by the numbers RTDNA (June 2018). This RTNDA/Hofstra
survey was conducted in fourth quarter 2017 and presents the national average hours of news for all stations.
https://www.rtdna.org/article/rtdna_research_local_news_by_the_numbers_2018.
283
NAB Comments at 11-12.
284
See e.g., Nexstar 2017 10-K at 16; Sinclair 2017 10-K at 20; Gray 2017 10-K at 10. Cable networks occasionally
acquire programs that might otherwise be offered to stations. For example, Twentieth Century Fox TV and
Twentieth TV negotiated the first cable syndication and VOD deal of The Simpsons to FXX for all past and future
episodes, within the time period of the deal, for approximately $750 million. Cynthia Littleton, ‘The Simpsons’
Lands $750 Mil Cable Syndication, VOD Pact with FXX, Variety (Nov. 15, 2013),
http://variety.com/2013/tv/news/the-simpsons-lands-750-mil-cable-vod-syndication-pact-with-fxx-1200837036/.
285
Syndicated programming can impose financial risks on stations. Broadcast stations cannot predict whether a
particular show will be sufficiently popular to enable it to sell enough related advertising time to cover the costs of
the program. A station may have to replace a poorly performing program before it has recovered the costs of
obtaining it. Sinclair 2017 0-K at 24; Gray 2017 10-K at 21.
286
Sinclair 2017 10-K at 24.
287
National Association of Broadcasters, Television Financial Report, at iv (2017).
288
S&P Global, TV Station Multi-Platform Report-Update (Oct 2017).
12617
Federal Communications Commission
FCC 18-181
Broadcasters have increased the number of multicast channels. 289 There were 6,109 broadcast channels in
January 2017, up from 5,905 in February 2016, as this trend of broadcasting multicast streams expands.290
The revenue generated by multicasting is not large, but it is growing. 291
107.
In addition, most broadcasters offer HD programming. As of the end of 2017, 1,116
(91.0%) of full-power stations were broadcasting in HD, up from 954 stations at the end of 2016. 292 All
of the multicast channels and HD programming provided by broadcasters is available via over-the-air
service, which households can receive by attaching an antenna to any digital television set. As of 2016,
106.5 million U.S. TV households, or 96% of such households, had sets capable of displaying and/or
receiving digital signals, including HD broadcast signals.293 This figure is up from 102.1 million U.S.
television households, or 88% of such households, in 2015. 294
108.
Broadcasters also make use of websites, apps, and social media to extend access to
broadcast programming, especially news. 295 According to the NAB, “[i]t is now routine for TV stations’
websites to offer news video, live streaming and, increasingly, to live stream their newscasts.” 296 Recent
developments by many companies, including Internet service providers and Internet website operators,
have expanded and are continuing to expand the variety and quality of broadcast and non-broadcast video
programming available to consumers via the Internet. For example, broadcasters have expanded their use
of Facebook, Twitter, Instagram, and Snapchat, especially for breaking news. 297 In addition, Internet
companies have developed business relationships with companies that have traditionally provided
syndicated programming, network television, and other content. As a result, additional programming
continues to become available through non-traditional methods, which can directly impact the number of
TV viewers, and thus indirectly impact station rankings, popularity, and revenue. 298
109.
As of April 2018, 79% of all TV households received broadcast programming via an
MVPD, 299 down from 80% at the end of 2016 and 83% at the end of 2015. 300 The downward trend in
MVPD subscriptions has been accompanied by growth in the number of households relying on over-theair broadcast service. In 2018, 16.6 million TV households (13.9%) relied exclusively on over-the-air
broadcast signals, 301 up from 15.7 million TV households (13.2%) in 2017, 302 and 13.3 million TV
households (11%) in 2016. 303 While broadcast stations may lose retransmission fees as a result of
289
NAB Comments at 15.
290
Id.
291
Id. at 16.
292
S&P Global, TV Station Multiplatform Analysis Update, Oct. 2017; S&P Global, TV Station Multiplatform
Analysis Update, Jan. 2016.
293
Nielsen, 2017 Universe Estimate Report (Nielsen 2017 Universe Estimates).
294
Id.
295
NAB Comments at 12-15.
296
Id. at 13.
297
Id.
298
Gray 2017 10-K at 10; Sinclair 2017 10-K at 13-14.
299
Nielsen, 2018-2019 Advanced National TV Household Universe Estimates.
300
S&P Global, U.S. Multichannel Industry Benchmarks (last visited Dec. 13, 2017).
301
Nielsen, 2018-2019 Final Universe Estimates Report.
302
Nielsen, 2017 Final Universe Estimates Report.
303
Nielsen, 2016 Final Universe Estimates Report.
12618
Federal Communications Commission
FCC 18-181
increased reliance on over the air signals, they may gain advertising revenue from increased viewing of
broadcast programming and a stronger connection to consumers.
110.
Ownership of Content. Some large broadcast television station groups have ownership
interests in content. The Boston Consulting Group contends that content exclusivity allows a company to
differentiate itself and attract consumers.304 Accenture notes that several broadcasters have made a
strategic shift to content production, generating revenue from international licensing deals and both global
and local syndication. 305 This has provided protection from slowing growth in advertising revenues. 306
111.
For example, Disney, which owns ABC, also owns the Disney cable channels, television
and movie studios, and a majority interest in ESPN. 307 In 2018, Disney entered into an agreement to
acquire assets from Fox, including the FX Networks, National Geographic Partners, Fox’s interests in
Hulu, Fox’s film production business (Twentieth Century Fox, Fox Searchlight Pictures, and Fox 2000
Pictures) and Fox’s television creative units (Twentieth Century Fox Television, FX Productions, and
Fox21). 308 Similarly, CBS Corporation’s ownership interests include CBS Television Network, The CW
(a joint venture between CBS Corporation and Warner Bros. Entertainment), Network Ten Australia,
CBS Television Studios, CBS Studios International, CBS Television Distribution, CBS Consumer
Products, CBS Home Entertainment, CBS Interactive, CBS Films, Showtime Networks, CBS Sports
Network, Pop (a joint venture between CBS Corporation and Lionsgate), Smithsonian Networks, Simon
& Schuster, CBS Television Stations, CBS EcoMedia, and CBS Experiences. 309 Univision has ownership
interests in the Univision broadcast network and 11 cable networks, 310 and Hearst Television Inc. has
ownership interests that include A+E Networks, Lifetime, Cosmopolitan TV, and a minority interest in
ESPN. 311
b.
Recent Entry and Exit
112.
From time to time, the Commission makes construction permits for new full power
television stations available via auction. In 2004, however, the Commission froze the allotment or
auction of such permits. 312 This freeze remains in effect. Accordingly, entities typically enter the
television broadcasting industry by purchasing one or more existing stations. Recently, however, station
transactions have involved mergers and deals between entities already in the television broadcasting
business. Such transactions show a trend towards increased consolidation in the industry.
304
Boston Consulting Group, The Value of Digital Content: 2016 at 12.
305
Accenture, The Future of Broadcasting V: 2016 at 3.
306
Id.
307
The Walt Disney Company, SEC Form 10-K for the Year Ended September 30, 2017.
308
Press Release, The Walt Disney Company, 21st Century Fox And Disney Stockholders Approve Acquisition By
Disney (July 27, 2018), https://www.thewaltdisneycompany.com/21st-century-fox-and-disney-stockholdersapprove-acquisition-by-disney/; Press Release, The Walt Disney Company, The Walt Disney Company Signs
Amended Acquisition Agreement To Acquire Twenty-First Century Fox, Inc., For $71.3 Billion In Cash And Stock
(June3 20, 2018), https://www.thewaltdisneycompany.com/the-walt-disney-company-signs-amended-acquisitionagreement-to-acquire-twenty-first-century-fox-inc-for-71-3-billion-in-cash-and-stock/. Disney also acquired the
Fox Sports Regional Networks from 21st Century Fox, but a consent decree between the U.S. Department of Justice,
Disney, and 21st Century Fox requires Disney to sell those assets to a third-party buyer. Id.
309
CBS Corporation, About CBS Corporation, https://www.cbscorporation.com/about-cbs/.
310
Univision Communications Inc., Portfolio, https://corporate.univision.com/portfolio/.
311
Hearst, About Us, http://www.hearst.com/about.
312
Freeze on the Filing of Certain TV and DTV Requests for Allotment or Service Area Changes, Public Notice, 19
FCC Rcd 14810 (MB 2004).
12619
Federal Communications Commission
FCC 18-181
113.
In 2016, 156 stations were sold for a total of $5.3 billion, or an average of $34 million per
station. 313 In 2017, 561 stations were sold for a total of $4.9 billion or an average of $8.9 million per
station. 314 The largest completed transaction was Nexstar Media Group’s acquisition of Media General
(79 stations, totaling $4.6 billion). 315 Other notable transactions included Tegna/Midwest
Communications (one station, totaling $303 million) 316 and Sinclair Broadcast Group/Cunningham
Broadcasting Corporation and Bonten Media (31 stations, totaling $240 million).317 In addition, in May
2017, Sinclair Broadcasting announced the acquisition of Tribune Media, but that transaction was
subsequently terminated in August 2018.318 In June 2018, a merger valued at $3.6 billion between Gray
Television, Inc. and Raycom Media Inc., two mid-sized television broadcast companies, was announced,
which remains pending. 319
4.
Intermodal Competition
114.
While the various providers discussed above are similar in the sense that they offer video
programming to consumers, there are significant differences in the products they offer, the geographic
availability of their services, and how consumers view their products. For example, consumers may view
video services as substitutes when they offer the same or similar content, but consumers may view video
services as supplements when they offer exclusive or dissimilar content. Consumers frequently subscribe
to multiple OVDs (Netflix, HBO, Hulu), 320 but typically to only one MVPD (cable, DBS, or telco). 321
Some consumers supplement OTA television viewing with one or more OVDs. 322 Consumer views on
the competitive nature or substitutability of video programming providers depends on factors such as
available content, prices, the number of advertisements, the ability to watch content on different devices
in different locations, user interfaces, and the need for and cost of broadband access at sufficient speeds
for video delivery. Whether consumers view video services as substitutes or supplements depends on the
relative values they assign to these and other features.
313
S&P Global 2017 TV Station Databook at 2.
314
Id.
315
Id.
316
Press Release, Tegna Inc, Tegna to Acquire Midwest Television Inc. Broadcasting Stations in San Diego, Ca.
(Dec. 18, 2017), http://www.tegna.com/tegna-to-acquire-midwest-television-inc-s-broadcasting-stations-in-sandiego-ca/.
317
Press Release, Sinclair Broadcasting Group, Inc., Sinclair Closes on acquisition of Bonten Media Group,
Holdings Inc. (Sep 7, 2017), http://sbgi.net/pr-news/sinclair-closes-on-acquisAtion-of-bonten-media-groupholdings-inc/.
318
Press Release, Tribune Media), Tribune Media Terminates Merger Agreement with Sinclair Broadcast Group
Inc. Files Lawsuit for Breach of Contract (Aug. 8, 2018), http://investors.tribunemedia.com/2018-08-09-TribuneMedia-Terminates-Merger-Agreement-with-Sinclair-Broadcast-Group-Inc-Files-Lawsuit-For-Breach-of-Contract.
319
Press Release, Raycom Media, Gray and Raycom to Combine in a $3.6 Billion Transaction (Jun. 25, 2018),
https://www.raycommedia.com/gray-and-raycom-to-combine-in-a-3-6-billion-transaction/.
320
See supra para. 80 and note 203. See also Ian Olgeirson and Deana Myers, Comparing OTT and multichannel
video metrics, S&P Global (Nov. 13, 2018) (“[o]nline video subscriptions, by unit count dwarf the figures for
traditional and virtual multichannel packages, which are much more likely to be limited to a single subscription per
household than the mix-and-match internet alternatives.”).
321
See id. S&P Global projects that approximately 1.1 million households and businesses subscribe to more than
one MVPD in 2018. The number has been steadily declining and is projected to continue shrinking. Ian Olgeirson,
Neil Barbour, and Ali Choukeir, Traditional multichannel tested by virtual, online and over-the-air in outlook, S&P
Global (June 19, 2018).
322
See, e.g., Press Release, Parks Associates, One in five U.S. broadband households use a digital antenna to access
live TV (Mar. 15, 2018), https://www.parksassociates.com/blog/article/pr-03152018.
12620
Federal Communications Commission
FCC 18-181
115.
MVPDs, OVDs, and television broadcasters compete with each other in several main
respects. For example, consumers looking for video services can obtain: (1) linear channel packages
augmented by VOD content from MVPDs or virtual MVPDs, (2) broadcast channels using the free overthe-air broadcast service, (3) premium and sports channels from MVPDs and direct-to-consumer online
offerings, and (4) free and subscription VOD content from OVDs. Consumers typically compare video
services based on key factors (price, devices, necessary equipment, channel lineups) and select the video
service, or services, that best fit their preferences. 323 Below, we discuss prominent aspects of intermodal
competition among MVPDs, OVDs, and broadcast stations. We also discuss the similarities and
differences among the video services that these entities provide and consider the extent to which services
may be viewed by the marketplace as substitutes or supplements. Finally, we examine intermodal
competition via a comparison of subscribership and revenue figures.
116.
Channel Packages. As discussed above, an important recent trend in the video
marketplace is the increasing convergence and overlap in the types of services offered by MVPDs and
OVDs. Perhaps most importantly, OVDs have begun providing virtual MVPD services, as discussed
above. 324 As a result, many consumers may increasingly view MVPDs and virtual MVPDs as substitutes,
especially for small and medium channel packages.325 Similarly, MVPDs have begun offering OVD-like
services, including TV Everywhere and virtual MVPD options of their own for consumers who have
Internet access but have eschewed a traditional MVPD subscription.
117.
Prices. Price is a significant consideration when consumers compare video options. 326
The inflation-adjusted price of MVPD video service increased 74%, from an average of $698.30 per year
in 2000 to $1,211.58 in 2017. 327 Of course, the service received by consumers has also been enhanced
during the same period, so the value to consumers may be commensurate with the price increase. 328 That
said, inflation-adjusted average income grew only 4.7% over the 17-year period. 329 These trends,
according to S&P Global, have lowered the affordability of MVPDs’ video service and increased the
popularity of online video services. 330 Although prices for virtual MVPD subscriptions are generally
lower than prices for traditional MVPD packages, most virtual MVPDs raised prices in 2018. 331 In
addition, prices for the largest OVDs offering VOD content also increased in the past year. 332
323
Leichtman Research Group, Research Notes: 1Q 2017,
http://www.leichtmanresearch.com/research/notes03_2017.pdf, (“consumers are increasingly cobbling together
services that provide an experience that works best for their household in terms of content, viewing options, and
cost”).
324
See supra paras. 81-82.
325
Marshall Honorof, Best and Worst Cable TV Alternatives in 2018, Tom’s Guide (Mar. 30, 2018),
https://www.tomsguide.com/us/best-cable-replacements,review-4387.html; James K. Willcox, Video Streaming
Services That Will Let You Cut Cable TV, Consumer Reports (Apr. 17, 2018),
https://www.consumerreports.org/streaming-video-services/video-streaming-services-that-let-you-cut-cable-tv/.
326
Jefferson Graham, Cutting the Cord Could Cost as Much as Cable, USA Today (Mar. 9, 2017),
https://www.usatoday.com/story/tech/talkingtech/2017/03/08/cutting-cord-could-cost-much-cable/98894132/.
Makeda Easter, Cutting the Cord Doesn’t Necessarily Mean Cutting the Cost, Los Angeles Times (Mary 20, 2017),
http://www.latimes.com/business/la-fi-tn-cord-cutting-20170520-htmlstory.html.
327
S&P Global, Cable TV Investor at 10-12 (Apr. 26, 2018).
328
Id.
329
Id.
330
Id.
331
Ali Choukeir, Economics of Internet, State of US Online Video: Virtual Multichannel, S&P Global (July 23,
2018). See also, Jared Newman, DirecTV Now, Sling TV, and PlayStation Vue Price Hikes: The Cost of More
(continued….)
12621
Federal Communications Commission
FCC 18-181
118.
As discussed, MVPDs usually offer lower prices to new subscribers and lower prices for
long-term contracts. 333 In contrast, virtual MVPDs and OVDs offering VOD content usually offer the
same price to new and existing subscribers on a month-to-month basis, which can be cancelled at any
time. 334 Initiating and terminating service from an OVD, which can be achieved online in moments, is
significantly easier than initiating or terminating service from an MVPD, which sometimes requires a
visit to the home. This flexibility as compared to traditional MVPDs has been a significant feature of
online service providers. In addition, consumers can use free trials to explore content and test services on
their devices in and outside their home. 335 Because OVDs make it easy to sign up and cancel, some
consumers make use of a free trials or a month subscription to watch one or two programs, then cancel the
service. 336 OVDs with small libraries appear especially susceptible to short-term subscribers. 337
119.
Content. MVPDs typically hold significant content assets, and both OVDs and television
broadcasters have followed suit by seeking to own more content. 338 Several MVPDs have ownership
interests in cable, broadcast, and regional sports networks, which allows them to vertically integrate their
ownership of content and content distribution networks. 339 Because MVPDs typically make their
networks and content available to OVDs and competitive MVPDs, exclusive content is not typically a
point of competition between MVPDs. 340 In addition to drawing new customers to their services, OVDs
indicate that providing original content makes more economic sense than licensing content from third
parties and protects against the future expectation that existing content holders will place content on their
own streaming platforms or increase licensing fees substantially. 341 Unlike MVPDs, some OVDs like
Netflix and Amazon that own significant VOD content have not, as yet, licensed their content to
competitors.342 Broadcast television station groups appear to be increasing their content ownership as
well, using content exclusivity to differentiate themselves from their competitors, attract viewers, and
generate content licensing revenues. 343
(Continued from previous page)
Bloated Bundles, TechHive (July 5, 2018), https://www.techhive.com/article/3286204/streaming-services/directvnow-sling-tv-playstation-vue-price-hikes.html.
332
Jeremy Bowman, If Netflix Can Raise Prices, So Can Amazon Prime, The Motley Fool (May 12, 2018),
https://www.fool.com/investing/2018/05/12/if-netflix-can-raise-prices-so-can-amazon-prime.aspx.
333
S&P Global, Cable TV Investor at 6 (June 22, 2017).
334
Id.
335
Brian Fung, Meet the Sometime-streamers: TV Watchers Who Sign up for One Show, Then Cancel, The
Washington Post (Aug. 29, 2017), https://www.washingtonpost.com/news/the-switch/wp/2017/08/28/meet-thesometime-streamer-tv-watchers-who-sign-up-for-one-show-then-cancel/?utm_term=.e2094a89e475.
336
Hayley Tsukayama and Sintia Radu, Freedom from Cable TV Isn’t Free: Flood of Streaming Options
Complicates Cord-cutting, The Washington Post (Aug. 12, 2017),
https://www.washingtonpost.com/business/economy/freedom-from-cable-isnt-free-flood-of-streaming-services-willmake-cutting-the-cord-more-complicated/2017/08/11/01f9ade0-7d1f-11e7-a669b400c5c7e1cc_story.html?utm_term=.2a158d87963e.
337
Id.
338
See supra paras. 67, 77-80, 110-111.
339
See supra para. 67.
340
See supra para. 57.
341
See supra paras. 77-80.
342
Caitlin Petrakovitz, Everything You Need to Know About Netflix Originals, CNET (March 19, 2015),
https://www.cnet.com/news/netpicks-everything-you-need-to-know-about-netflix-originals/.
343
See supra paras. 110-111.
12622
Federal Communications Commission
FCC 18-181
120.
Content Discovery and Industry Fragmentation. A 2017 report by Ericsson noted that as
consumers have gained access to an unprecedented amount of content, the number of marketplace
participants has increased markedly. As a result, consumers that subscribe to multiple services
increasingly struggle to discover and consume content.344 According to the report, the total average time
searching for content increased from 45 minutes per day in 2016 to 51 minutes per day in 2017. The
report noted further that “[c]ontent discovery remains a challenge, and consumers are finding current
discovery methods unhelpful.” 345 The issue of content discovery is related to what some have termed
“fragmentation” of the video industry. 346 Although an increasing amount of content traditionally
available from MVPDs is also available from OVDs, many OVDs provide content from a single channel
or content owner (e.g., HBO Now, CBS All Access, Crackle, etc.) or target a niche market (e.g.,
FunimationNow). Because their catalogs are focused on a particular channel or genre, some suggest that
consumers face the prospect of having to purchase a growing number of subscriptions. 347 Others,
however, caution that it is unclear where the video market is going as many OVDs have yet to prove the
viability of their service. 348
121.
Devices. Not all video display devices work with all video services. Most TVs sold
today have connections for set-top receivers, Internet-connected streaming devices, and broadcast TV
antennas. As such, TVs can display video from MVPDs, OVDs, and over-the-air broadcasters. Few
other display devices connect to as many services. For example, personal computers connect to wireline
and Wi-Fi Internet and may have input for a broadcast TV antenna to receive over-the-air broadcast
service, but they are not designed to connect to MVPD set-top receivers. Smartphones and other mobile
wireless devices connect to wireless and Wi-Fi Internet but are not designed to connect to set-top
receivers or broadcast TV antennas.
122.
In comparing services, consumers must discern what services work with what devices
and where the services are available (geographically). To help consumers make informed choices,
marketing materials often list the devices that work with the services and where the services are available.
In addition to PCs, laptops, tablets, smart TVs, and smartphones, which can be used to both connect to
and view online video, there are a number of devices that can be used to stream video from the Internet to
a television or other display device. These include game consoles (such as X-Box or PlayStation 4), BluRay players, and streaming media players/sticks (such as Roku, Amazon Firestick and Apple TV). S&P
Global explains that online “devices can play a significant role in the success of these services, with
numerous players seeking to make their offerings compatible with as many devices as possible.” 349
Often, new online video services work with fewer devices than more established services, but providers
typically add more devices over time. As software and hardware evolves, in some cases a software
344
James K. Willcox, Sites That Help You Find Streaming Shows, Consumer Reports (Sept. 11, 2018),
https://www.consumerreports.org/streaming-media/sites-that-help-you-find-streaming-shows/.
345
Ericsson ConsumerLab, TV and Media 2017: A Consumer-driven Future of Media at 10-11 (Oct. 2017),
https://www.ericsson.com/en/networked-society/trends-and-insights/consumerlab/consumer-insights/reports/tv-andmedia-2017.
346
Hayley Tsukayama and Sintia Radu, Freedom from Cable TV Isn’t free: Flood of Streaming Options
Complicates Cord-cutting, The Washington Post (Aug. 12, 2017),
https://www.washingtonpost.com/business/economy/freedom-from-cable-isnt-free-flood-of-streaming-services-willmake-cutting-the-cord-more-complicated/2017/08/11/01f9ade0-7d1f-11e7-a669b400c5c7e1cc_story.html?utm_term=.2a158d87963e.
347
Id.
348
Sarah Barry James, DISH CEO Says Competitors’ OTT Model ‘a License to Lose Money,’ S&P Global (May 1,
2017). See also S&P Global, The State of Online Video Delivery at 16 (Oct. 2017) (where S&P Global explains
that for some virtual MVPDs margins appear to be thin or potentially negative).
349
S&P Global, Internet & OTT Industry Overview: Over-the-Top Video at 10 (April 2017).
12623
Federal Communications Commission
FCC 18-181
update will render older devices incompatible of supporting the service.
123.
Consumer Access. Consumer access to video providers varies depending on geographic
market and type of service. As noted above, most households have access to at least one cable provider
and two DBS providers. 350 Some consumers also have access to a telephone company MVPD. 351 To
obtain service from an OVD, a consumer must have broadband access. In addition, the top four mobile
providers offer upgraded plans with faster speeds for streaming HD video. 352 Absent these upgrades,
streaming video is typically reduced in quality. 353 With respect to over the air television, the number of
available stations depends both on the number of stations allocated to the consumer’s DMA and the
consumer’s ability to receive a useable over-the-air signal from the station. 354
124.
Subscribers. One way to analyze the performance of MVPDs and OVDs is to compare
their subscribership figures. The subscribership figures for the seven largest video subscription services
at the end of 2017 were: Amazon Prime with 55.4 million, Netflix with 52.8 million, AT&T/DIRECTV
with 24.1 million, Comcast with 22.4 million, Hulu with 17.0 million, Charter with 17.0 million, and
DISH Network with 11.0. 355 Figure B-6 shows video subscribers for MVPDs, virtual MVPDs, and OVDs
offering VOD content. In general, traditional cable, DBS, and telephone company MVPDs lost
subscribers from 2016 and 2017, while virtual MVPDs and large OVDs offering VOD content gained
subscribers. S&P Global maintains that the growth of virtual MVPDs “shares a large part, although not
all, of the blame for declining multichannel subscriptions.”356
350
See supra para. 51.
351
See id.
352
Ookla, 2018 Speedtest U.S. Mobile Performance Report (July 18, 2018), http://www.speedtest.net/reports/unitedstates/.
353
Id. Mobile wireless is currently designed for smaller screens found on smartphones, tablets, and laptops. DSL
Reports, [General] Replace Cable Internet with Verizon 4g LTE Unlimited?,
http://www.dslreports.com/forum/r31252944-General-Replace-Cable-Internet-with-Verizon-4g-LTE-Unlimited.
354
FCC, DTV Reception Maps, https://www.fcc.gov/media/engineering/dtvmaps.
355
Q4’17 Top US Video Provider Rankings, S&P Global (Apr. 2, 2018) (Q4’17 Rankings). Estimates for
AT&T/DIRECTV and DISH Network do not include DIRECTV NOW and Sling TV.
356
S&P Global, Cable Program Investor at 1 (Oct. 26, 2017). See also S&P Global, Broadband Cable Financial
Databook at iv-v (2017).
12624
Federal Communications Commission
FCC 18-181
Fig. B-6
Video Subscribers (in millions) 357
MVPD Total 358
Cable
DBS
Telco
Virtual MVPD Total 359
Sling TV
DIRECTV NOW
Other Virtual MVPDs 360
Select Other OVDs 361
Amazon Prime
Netflix
Hulu
2016
97.6
52.8
33.2
11.5
2.2
1.5
0.3
0.4
2017
94.0
51.9
31.5
10.6
4.8
2.2
1.2
1.4
Change
(3.6)
(0.9)
(1.7)
(0.9)
2.6
0.7
0.9
1.0
43.6
47.9
11.7
55.4
52.8
17.0
11.8
4.9
5.3
125.
As shown in Figure B-7, most households subscribe to an MVPD. The trend for MVPDs,
however, is downward, while the trend for virtual MVPDs, OVDs offering VOD content, and over-the-air
broadcast service is upward.
Fig. B-7
Video Households by Delivery Method362
2016 Occupied 2016 Percent of 2017 Occupied
Households
Occupied
Households
(millions)
Households
(millions)
Total
122.3
123.7
MVPD363
93.1
76.1%
89.7
Virtual MVPD
1.8
1.5%
4.8
Online VOD-Only 364
11.4
9.4%
12.2
Over-the-Air Broadcast 365 14.2
11.6%
16.1
Other 366
1.4
1.2%
1.0
357
2017 Percent of
Occupied
Households
72.5%
3.8%
9.8%
13.0%
0.8%
Due to rounding, individual entries in table may not sum to totals.
358
S&P Global, Cable TV Investor at 4 (Mar. 27, 2018). Includes residential and commercial subscribers and
overlap created by households with multiple MVPD subscriptions.
359
Q4’17 Rankings.
360
Other virtual MVPDs include PlayStation Vue, Hulu with Live TV, and YouTube TV. S&P Global, Cable TV
Investor at 7 (June 2018).
361
Q4’17 Rankings.
362
S&P Global, Historical and Projected US Multichannel Subscriptions: 2008 - 2022 (June 19, 2018).
363
Excludes commercial subscribers. Also excludes overlap created by households taking more than one MVPD.
364
Excludes households that subscribe to virtual MVPDs. Also excludes households with an over-the-air antenna.
365
Includes households with an antenna that also access online video.
366
Includes non-TV households.
12625
Federal Communications Commission
FCC 18-181
126.
Advertising revenue. As discussed above, broadcasters and some OVDs generate a
significant portion of their revenue via advertising, whereas other providers, most notably MVPDs, rely
on subscription fees. 367 Figure B-8 provides a breakdown of local advertising revenue by sector.
Broadcaster revenue from local advertising remained relatively flat from 2016 to 2017. Cable earns a
smaller share of local advertising revenue than both television broadcasters and digital platforms.
Fig. B-8
Local Advertising Gross Revenue by Sector (in millions) 368
Revenue Source
2016
2017
Revenue
Percentage
Revenue
Percentage
Broadcast Television Stations
$12,642
15.8%
$12,269
15.0%
Cable Television
$5,296
6.6%
$4,923
6.0%
Radio
$10,557
13.2%
$10,402
12.7%
369
$28,280
35.4%
$33,912
41.7%
Daily Newspaper
$11,166
13.9%
$9,671
11.8%
Regional Sports Networks
$1,261
1.57%
$1,185
1.45%
Telco
$560
0.7%
$555
0.68%
Other
$10,055
12.5%
$8357
10.2%
Total
$79,817
100%
$81,274
100%
Internet/Online
127.
Figure B-9 provides a breakdown of national advertising revenue by sector. Between
2016 and 2017, national advertising revenues earned by broadcast television stations decreased, while
national advertising revenues for broadcast networks, cable/VOD networks, RSNs, and DBS were
comparatively stable.
367
See supra paras. 50, 84-85, 97-99.
368
S&P Global, U.S. Local versus National Advertising Revenue 2017-2027 (Jan. 2018).
369
Three companies, Google, Facebook, and Twitter, received 80% of total online advertising revenue in 2017. See
George P. Slefo, IAB: Another Record Breaking Year For Digital Ad Revenue, AdAge (Dec. 20, 2017),
https://adage.com/article/digital/iab-record-breaking-year-digital-ad-revenue/311712/.
12626
Federal Communications Commission
FCC 18-181
Fig B-9
National Advertising Gross Revenue by Sector (in millions) 370
2016
2017
Revenue Source
Revenue
Percentage
Revenue
Percentage
Broadcast Television Stations
$9,119
5.6%
$5,981
3.7%
Broadcast Networks
$20,170
12.4%
$18,805
11.7%
Cable & VOD Networks
$29,539
18.2%
$29,697
18.5%
DBS
$1,156
0.7%
$1,323
0.8%
Internet/Online371
$38,084
23.5%
$42,763
26.7%
Radio
$2,661
1.6%
$2,584
1.6%
Satellite Radio
$135
0.1%
$160
0.1%
Radio Network
$1,091
0.6%
$1,071
0.6%
Daily Newspaper
$2,360
1.8%
$2,129
1.3%
Barter Syndication
$2,924
1.9%
$2,895
1.8%
Other
$54,423
33.6%
$52,393
32.7%
Total
$161,662
100%
$159,802
100%
5.
Marketplace Factors Relevant to Entry, Competition, and Expansion
128.
MVPDs, OVDs, and television broadcasters all face marketplace barriers affecting entry
and competition, including barriers related to infrastructure, equipment, and technology. The acquisition
and significant cost of video programming are also key issues affecting all video providers.
129.
Infrastructure, Equipment, and Technology. While it is possible to enter the MVPD
marketplace by building new delivery infrastructure (e.g., a cable system or fiber optic network), data
show that MVPD service is currently available to almost all consumers, 372 and construction of new
infrastructure requires significant capital. While telephone companies installed new fiber optic networks
in recent years to compete with cable video providers, this activity has slowed significantly in recent
years. 373 As a result, most entry into the MVPD marketplace occurs via the acquisition of existing MVPD
systems. In light of ongoing consolidation in the MVPD industry, however, it may be difficult for new
entities to enter the marketplace in this manner.
130.
Similarly, entry into the television broadcast industry typically can occur only via
acquisition of existing licensees or stations, as the Commission is not awarding permits for new fullpower broadcast television stations.374 Acquiring broadcast stations requires significant capital.375 Single
370
Id.
371
See supra note 369.
372
See supra para. 51.
373
See supra para. 69.
374
See supra para. 90.
375
Capital for station purchases and operation may come in the form of debt or equity financing. In determining
whether to lend money or invest in a licensee, banks or other firms look at expected revenues and expenses,
(continued….)
12627
Federal Communications Commission
FCC 18-181
television stations can sometimes carry multi-million dollar price tags. 376 While entry into the market via
the purchase of a single station is possible, such purchase opportunities may be limited. In addition, it is
noted that recent television broadcast transactions typically have involved merger and consolidation of
existing broadcasters, not purchases by new entrants. 377
131.
OVDs face challenges relating to content delivery and consumer devices. As discussed
above, OVDs must have access to the infrastructure to deliver their video content to consumers with
appropriate speed and quality. 378 This, in turn, may require additional capital expenditures. For example,
an OVD may have to build its own CDN, contract with one or more third party CDNs, or lease capacity
from a local broadband provider. 379 Moreover, because OVDs make content available to consumers on a
variety of Internet-connected devices,380 they typically must negotiate and reach agreements with multiple
device manufacturers. Netflix indicates that its agreements with consumer electronics manufacturers are
typically between one and three years in duration, and that the degree of accessibility and prominence of
its service on the manufacturer’s device are important aspects of those agreements. 381 Netflix also notes
that, as it makes technological changes to its streaming capabilities, the consumer electronics
manufacturers may need to update their devices in order to maintain quality of service for Netflix’s
subscribers. 382 Sometimes the business incentives facing OVDs and equipment manufacturers hamper
efforts to make OVDs available on certain devices. 383 Accordingly, the negotiations, and balancing of
benefits, between device manufacturers and OVDs tend to evolve as technology, content availability, and
consumer tastes change.
132.
Acquisition and Cost of Content. In order to compete in the marketplace, MVPDs,
OVDs, and television broadcasters must acquire programming that attracts viewers. All three types of
entities face challenges in this regard. Content costs for MVPDs are significant, and they have been
increasing in recent years.384 MVPDs that are vertically integrated with broadcast and cable networks
may enjoy cost advantages. Larger MVPDs, for example, may enjoy price advantages when purchasing
programming. In particular, scale economies may enable larger MVPDs to lower their costs by obtaining
volume discounts for purchased programming. 385 S&P Global has stated that while some smaller MVPDs
(Continued from previous page)
especially whether new owners could increase profits by changing programming or reducing expenses. Structural
changes in the media industry, combined with the strong correlation of their revenues and profits to economic
cycles, indicate that financing media transactions with debt entails some risk. In particular, high interest rates may
lead station owners to file for bankruptcy and transfer control to lenders or sell their stations. See 18th Report, 32
FCC Rcd at 606, para. 97.
376
See supra para. 113.
377
See id.
378
See supra para. 86.
379
See id.
380
See supra para. 87.
381
Netflix Inc., SEC Form 10-K for the Year Ended December 31, 2018 at 7 (Netflix 2018 Form 10-K).
382
Id.
383
For example, due to business disagreements between Amazon and Apple, Amazon Prime was not available on
Apple TV until late 2017. See, e.g., Steve Dent, Amazon Prime Video Finally Arrives on Apple TV, Engadget (Dec.
16, 2017), https://www.engadget.com/2017/12/06/amazon-prime-video-on-apple-tv/; Kif Leswing, Amazon Prime
Video is finally available for Apple TV, Business Insider (Dec. 16, 2017),
https://www.businessinsider.com/amazon-prime-video-app-finally-available-apple-tv-2017-12.
384
See supra para. 66.
385
See, e.g., AT&T and DIRECTV MO&O, 30 FCC Rcd at 9202, para. 188 (noting several commenters “assert[ed]
that the combined entity’s increased size and market power would give it the ability to negotiate substantial volume
(continued….)
12628
Federal Communications Commission
FCC 18-181
have formed cooperatives to purchase programming, these cooperatives are small in comparison to the
larger MVPDs and may lack significant negotiating leverage. 386
133.
Further, some MVPDs maintain that they are disadvantaged by tying and tier placement
conditions imposed by programmers. 387 These MVPDs state that programmers often use tying provisions
to require carriage of additional channels. 388 In some cases, these providers indicate that programmers
impose penetration requirements that force MVPDs to place channels on the basic tier. 389 Some MVPDs
argue that tying and tiering practices make it difficult to offer video packages that their subscribers want
and can afford. 390 In contrast, others have argued that bundling is a common practice in competitive
markets and is generally procompetitive. 391
134.
Pre-existing business relationships may impact the availability of content to OVDs. For
example, owners and producers of content may be vertically integrated with, or have exclusivity
arrangements with, cable networks, broadcast networks, and/or MVPDs, and these arrangements may
affect unaffiliated OVDs’ ability to establish carriage agreements with content owners. 392 A second
constraint on OVD content acquisition occurs when content owners are vertically integrated, or negotiate
exclusive relationships with, other OVDs. 393
135.
As discussed above, OVDs are increasingly supplementing their third-party content with
original content. 394 While this strategy may be economically favorable and can help guard against some
of the difficulties involved in licensing content from third parties, it is capital intensive. 395 In 2018, for
example, Netflix and Amazon are expected to spend $2.1 billion and $1 billion, respectively, on original
content. 396
(Continued from previous page)
discounts for programming”). S&P Global indicated that Comcast has benefited from sizable volume discounts, and
the merger of AT&T and DIRECTV was expected to lower programming costs for the combined entity. See Chris
Young and Tony Lenoir, Programming Expenses Exceed 50% of Video Revenue in 2015, S&P Global (Mar. 18,
2016); Chris Young and Tony Lenoir, Programming Expenses Exceed 50% of Video Revenue in 2015, S&P Global
(Mar. 18, 2016). Similarly, S&P Global has stated that “[s]maller operators are having more difficulty maintaining
margins because their programming costs tend to be higher without the bulk discounts of their larger peers.” S&P
Global, Media & Communications Report at 4 (May 25, 2016).
386
See 18th Report, 32 FCC Rcd at 581, para. 32.
387
See id. at 582, para. 33. The Commission’s NOI on the availability of diverse and independent sources of video
programming addresses, tying and program tiers, among other issues. See Promoting the Availability of Diverse and
Independent Sources of Video Programming, MB Docket No. 16-41, Notice of Inquiry, 31 FCC Rcd 1610, 1618-18,
paras. 15-18 (2016).
388
See 18th Report, 32 FCC Rcd at 582, para. 33. See also NTCA Comments at 9-10, ITTA Comments at 2-6,
WTA Comments at 6, Verizon Comments at 7-8, INSP Reply Comments at 4, 7.
389
See 18th Report, 32 FCC Rcd at 582, para. 33. See also ITTA Comments at 6, WTA Comments at 6, ACA
Comments at 7-11.
390
See 18th Report, 32 FCC Rcd at 582, para. 33. See also NTCA Comments at 10, WTA Comments at 6, ACA
Comments at 7, Verizon Comments at 7-8.
391
See 18th Report, 32 FCC Rcd at 582, para. 33.
392
See 16th Report, 30 FCC Rcd at 3370-71, para. 253.
393
Id.
394
See supra paras. 77-80.
395
See id.
396
See id.
12629
Federal Communications Commission
FCC 18-181
136.
Contracts and business arrangements can have an impact on television broadcasters’
access to content as well. In general, television broadcasters obtain programming from broadcast
networks and program syndicators, under contracts that often run for several years. 397 Broadcast network
affiliations often require affiliates to pay significant compensation to the broadcast networks. 398 A station
that loses its network affiliation may not be able to affiliate with an alternative network, because that
alternative network is likely to already have a distribution agreement in place with another station in the
market. The loss of network programming likely would require the station to obtain replacement
programming, which may be less attractive to the station’s audience, at a higher cost. Similarly, popular
syndicated programming may not be available for a new station due to exclusive distribution
arrangements with competing outlets.399
C.
The Audio Market
137.
This chapter discusses competition in the market for the delivery of audio programming.
We begin by discussing the three main categories of audio providers, providing an overview of the
services offered by each type of provider, a description of some of the notable industry participants, an
explanation of the business models and competitive strategies used by each, and a discussion of recent
entry into and exit from the marketplace. We then discuss intermodal competition, i.e., competition
among providers in the various categories, as well as some regulatory factors that may form barriers to
entry or competition in this marketplace.400
138.
In the United States, consumers can access audio programming from multiple sources,
from terrestrial broadcast radio stations, which have existed in the marketplace for nearly a century, to
more recent marketplace entrants, such as entities that use Internet and mobile technologies to deliver
audio content to consumers. The major participants in today’s marketplace for the delivery of audio
programming can be divided into three categories:
x
Terrestrial radio broadcasters: These entities use terrestrial radio stations licensed by the
Commission to broadcast audio content over the air (OTA) to consumers, who use radios to
receive the stations’ programming. Participants in this category include AM, FM, and low
power FM (LPFM) radio stations. There are thousands of terrestrial radio stations in the
United States, providing linear channels 401 of music, news, sports, entertainment, educational,
and other content.
397
See 18th Report, 32 FCC Rcd at 606, para. 98. As an alternative to contracting for expensive third-party
programming, stations may produce their own programming in-house or lease time to other parties (e.g., producers
of infomercials) willing to pay stations for the airing of programming.
398
For example, television stations typically must pay a portion of the retransmission consent fees they obtain from
MVPDs with the broadcast network with which they are affiliated; this is referred to as “reverse compensation.” Id.
at 620, para. 124.
399
See id. at 606, para. 98.
400
In this section, we rely on a variety of publicly available sources of industry information and data including:
Securities and Exchange Commission filings; data from trade association and government entities; data from
securities analysts and other research companies and consultants (e.g., S&P Global and Nielsen Media Research);
company news releases and websites; newspaper and periodical articles; scholarly publications; white papers; and
various public Commission filings, decisions, reports, and data. We make use of both individual company data and
industry-wide data. In addition, we also rely on comments and reply comments submitted in response to the Media
Bureau’s Public Notice seeking input for this chapter. See Media Bureau Seeks Comment on the Status of
Competition in the Marketplace for Delivery of Audio Programming, Public Notice, MB Docket No. 18-227, DA
18-761 (rel. July 23, 2018) (Public Notice).
401
Linear channels provide specific audio content or programs at a specific time of day. By contrast, podcasts or
audio downloads allow users to access pre-packaged audio content and listen to it at any time.
12630
Federal Communications Commission
FCC 18-181
x
Satellite radio: Currently, SiriusXM is the only satellite radio provider in the United States.
It uses satellite technology to offer subscription-based audio programming to consumers,
primarily through installation in automobiles. Subscribers use specially-designed receivers
that come standard or can be installed by the factory/dealer with every major automaker to
access this content. Recently, consumers have also gained the ability to access this content
by using computers, smartphones, and other devices through the Internet. SiriusXM provides
multiple linear channels of programming and is able to offer content and features not
available from other sources.
x
Online Audio Providers: This varied group of marketplace participants uses the Internet to
deliver audio content to consumers. Consumers, in turn, can access this content using
computers, smartphones, and other devices. Some such providers offer linear audio channels
similar to those offered by terrestrial radio stations, and some allow users to access and
download audio content and listen to it at any time (e.g., podcasts). Participants in this
category include larger, well-known entities like Pandora and Spotify, as well as numerous
other providers, some of which focus on small or niche audiences.
139.
Distinguishing features of audio providers include method of delivery, option(s) to
download rather than solely stream or listen live, type and quantity of content offered, and consumer
devices compatible with the service.
1.
Terrestrial Radio Broadcasters
140.
Terrestrial radio broadcasters, which today include full power AM and FM radio stations
and LPFM stations, 402 have long been the mainstay of the audio programming market. All radio stations
broadcast analog signals OTA to consumers, with some stations also transmitting higher-quality digital
audio OTA to consumers as well. 403 Stations that broadcast in digital are able to provide multiple streams
of programming to consumers, as well as other data, such as information about music airing on the
station, weather updates, traffic reports, and other news; however, consumers must have a receiver with
both an analog tuner and a digital tuner in order to receive all the signals broadcast. 404
141.
Terrestrial radio stations must receive authorization from the Commission before they
may construct and operate in the United States405 and are subject to both the Communications Act of
1934, as amended, and regulations promulgated by the Commission thereunder. In allocating and
402
The Commission created the LPFM radio service in January 2000. LPFM stations operate at a much lower
power, and serve a much smaller area, than full power FM stations. FCC, Low Power FM (LPFM) Broadcast
Radio Stations, https://www.fcc.gov/media/radio/lpfm. LPFM stations are authorized for noncommercial
educational broadcasting only and must be licensed to government or non-profit educational institutions; non-profit
organizations, associations, or entities with an educational purpose; or government or non-profit entities providing
local public safety or transportation service. See 47 CFR § 73.583; FCC, Low Power FM (LPFM) Radio,
https://www.fcc.gov/consumers/guides/low-power-fm-lpfm-radio. LPFM license applicants must be based in the
community in which they intend to broadcast. Id. LPFM stations typically provide opportunities for local and niche
programming. See Brian Stelter, Low Power FM Radio to Gain Space on the Dial, New York Times (Jan. 24,
2011), https://www.nytimes.com/2011/01/25/arts/25radio.html?_r=1.
403
Digital audio transmission and reception is more resistant to interference and eliminates many imperfections of
analog radio transmission and reception, offering better sound quality than analog. FM digital radio can provide
clear sound comparable in quality to CDs, and AM digital radio can provide sound quality equivalent to that of
standard analog FM. FCC, Digital Radio, https://www.fcc.gov/consumers/guides/digital-radio.
404
See id.; FCC, Digital Radio, https://www.fcc.gov/media/radio/digital-radio.
405
47 U.S.C. § 301. The Commission licenses broadcast spectrum to respective applicants and approves any
assignment or transfer of control of broadcast licenses. Id. §§ 303(c), 308(a), 309(a), 310(d). In addition, certain
obligations and rules are imposed on licensees to ensure that the licensed spectrum is used to serve the public
interest during each license term, which is generally eight years. Id. § 307(c); 47 CFR §§ 73.1020, 73.3555.
12631
Federal Communications Commission
FCC 18-181
authorizing terrestrial radio stations, the Commission is charged with ensuring that such stations are
distributed across the country and licensed to communities in a manner that serves the public interest. 406
In addition, licensees of terrestrial broadcast stations must comply with certain obligations and rules to
ensure that the licensed spectrum is used to serve the public interest. 407 Licenses for broadcast radio
stations have an eight-year term, but can be renewed by the Commission upon application by the
licensee. 408
142.
The number of AM and FM radio stations in the country has been fairly steady in recent
years, while the number of LPFM stations has increased somewhat. The Commission’s most recent tally
of stations showed 4,626 AM stations; 10,867 FM stations (consisting of 6,737 commercial stations and
4,130 non-commercial stations); and 2,175 LPFM stations, for a total of 17,668 terrestrial radio
stations. 409 New stations are possible only through new allocations and award of licenses, either via an
auction in the case of commercial stations 410 or a comparative system for noncommercial stations. 411
Some of the largest terrestrial radio licensees in the United States include: 412
x
iHeartMedia: iHeartMedia operates 547 FM stations and 178 AM stations, for a total of 725
radio stations in 149 radio markets, with station ad revenue of $2.275 billion. 413
x
Cumulus Media: Cumulus operates 298 FM stations and 70 AM stations, for a total of 368
radio stations in 88 radio markets, with station ad revenues of $676.33 million. 414
x
Entercom Communications: Entercom operates 171 FM stations and 50 AM stations, for a
total of 221 radio stations in 50 radio markets, with station ad revenue of $1.335 billion. 415
x
Townsquare Media: Townsquare operates 173 FM stations and 46 AM stations, for a total of
219 radio stations in 51 radio markets, with station ad revenues of $193.84 million. 416
143.
In addition to their OTA signals, terrestrial broadcasters have increasingly sought to
expand their offerings by using digital platforms such as station websites and mobile applications. For
instance, iHeartMedia offers free live audio streaming from its stations on its website, 417 and several
406
47 U.S.C. §§ 303, 307.
407
See, e.g., 47 CFR §§ 73.1020, 73.3555.
408
Id.
409
See September 30, 2018 Broadcast Station Totals.
410
See Reexamination of the Comparative Standards for Noncommercial Educational Applicants, MM Docket No.
95-31, Report and Order, 15 FCC Rcd 7386, 7427-33, paras. 101-11 (2000) (NCE Comparative Standards R&O).
The Balanced Budget Act of 1997 amended Section 307(j) of the Communications Act “to require the Commission
to use competitive bidding to resolve application conflicts, but exempted NCE stations from this process.”
Reexamination of the Comparative Standards for Noncommercial Educational Applicants, MM Docket No. 95-31,
Memorandum Opinion and Third Order on Reconsideration, 23 FCC Rcd 17423, 17424, para. 3 (2008) (citing
Balanced Budget Act of 1997, Pub. L. No. 105-33, Title III, 111 Stat. 251 (1997), amending 47 U.S.C. § 307(j)).
411
See NCE Comparative Standards R&O, 15 FCC Rcd at 7393-7420, paras. 16-79.
412
S&P Global Market Intelligence, Radio Station Owners by Total Radio Station Ad Revenue (last visited Oct. 9,
2018). This represents 2017 data.
413
Id.
414
Id.
415
Id.
416
Id.
417
iHeartRadio, iHeartRadio/Listen to Free Radio Stations & Music Online/iHeartRadio, https://www.iheart.com/.
12632
Federal Communications Commission
FCC 18-181
popular radio apps, including NPR One, Radio Online, iHeartRadio, and TuneIn Radio, allow users to
listen to radio stations and libraries of programs and podcasts for free or with a paid subscription for some
premium versions. 418
a.
Broadcast Business Models and Strategy
144.
Revenue Streams. The primary source of revenue for commercial terrestrial radio stations
is advertising. To secure the highest rates and to compete for advertising market share, stations strive to
gain the largest audience of listeners possible to maximize the price for ad time sold by the station.
Broadcast stations generate advertising revenue from consumers listening to programming broadcast
over-the-air, as well as increasingly from listeners via Internet or mobile platforms. musicFIRST
Coalition and Future of Music Coalition note that terrestrial broadcast radio station clusters in small
markets “find it difficult to sell advertising revenue when competing against larger local clusters.”419
145.
Broadcast radio total revenue (including network, national and local spot advertising
revenue) was $17.70 billion in 2016—up 1.9% from 2015, helped largely by political ad revenue and
digital/online revenue.420 Total revenue decreased slightly in 2017, a non-election year, by 0.4% to
$17.62 billion. 421 Annual revenue from digital/online was nearly $1.11 billion, or 6.2% of total radio
station revenues, in 2016 and nearly $1.19 billion, or 6.7% of total radio station revenues, in 2017. 422
146.
Internet and mobile revenue growth in 2017 was powered by the expansion of offerings
by radio stations designed to help augment traditional OTA advertising packages. 423 One notable
development in the radio ad-buying process has been the introduction of platforms that enable advertisers
to target listeners easily across both OTA radio and Internet/mobile platforms. 424 Targeting and
employing consumer data from digital assets have helped radio groups better serve advertisers by
improving the reach and effectiveness of ads. 425 Such digital assets and products include Smart Audio ad
products (iHeart Media), a new digital data-fed feature of the SoundPoint programmatic ad solution for
broadcast radio stations; 426 Radio.com (Entercom), which will offer access to all of Entercom’s stations
418
NAB Comments at 12 (citing Joe Hindy, 10 best radio apps for Android, androidauthority.com (Sept. 3, 2018),
https://www.androidauthority.com/best-radio-apps-for-android-393884/; Will Nicol, Tune in and chill out with the
best radio apps for Android and iOS, digitaltrends.com (Feb. 13, 2018), https://www.digitaltrends.com/mobile/bestradio-apps/).
419
musicFIRST Coalition and Future of Music Coalition Reply at 9-10 (citing musicFIRST Coalition and Future of
Music Coalition Comments at 9). A “cluster” refers to several stations owned by the same broadcaster in a
particular geographic market.
420
S&P Global Market Intelligence, Radio/TV Station Annual Outlook Market-by-Market Revenue Projections 2017
Edition (Aug. 2017) at 1, 4. SNL Kagan digital/online ad revenue calculations account for annual digital and online
ad buying through terrestrial radio stations, which includes station website, station streaming, HD radio and station
mobile ad revenue. Peter Leitzinger, Broadcast Investor: Radio/digital online ad revenue projections through 2027,
S&P Global Market Intelligence (Apr. 19, 2018) at 1 (Broadcast Investor Apr. 2018).
421
S&P Global Market Intelligence, Radio/TV Station Annual Outlook Market-by-Market Revenue Projections 2018
Edition (Aug. 2018) at 1-2 (Radio/TV Station Annual Outlook 2018). Advertising revenues generally increase in
election years due to political ad spending.
422
Broadcast Investor Apr. 2018 at 1.
423
Id.
424
Id. at 2.
425
Id. at 2-3.
426
Id. at 2.
12633
Federal Communications Commission
FCC 18-181
and podcasts; 427 Entercom Audience Analytics (Entercom), a platform designed to give advertisers a
deeper insight into on-air ad campaigns; 428 and Headway (Entravision).429
147.
Programming. Stations seek to differentiate themselves based on programming, offering
programming that will be popular and well-received in the market, but which perhaps does not have a
dominant outlet in the market.430 Broadcasters that own a cluster of stations in a geographic market often
will employ a variety of different formats on their stations to achieve a broad and diverse audience. 431
b.
Broadcast Radio Station Entry and Exit
148.
Frequencies for radio stations are typically in high demand; 432 in fact, in many areas of
the country no frequencies may be available on which a new station could begin operating without
causing impermissible interference to existing stations.433 As a result, the Commission does not allocate
many new stations and, to the extent that new stations are allocated, they tend not to be in the largest
markets or the highest power stations. Spectrum limitations and the dearth of new stations pose
significant barriers to entry. 434 Consequently, a new entrant’s best chance of entering the terrestrial radio
broadcast business is the secondary market.
149.
In 2016, 491 stations were sold for a total of $546 million—the lowest year on record
since 1982 for deal volume and number of full-power stations sold. 435 In 2017, deal volume substantially
increased to $3.177 billion, driven largely by the merger of Entercom and CBS Radio.436 Some of the
more significant transactions of the past two years are discussed below:
x
In 2016, Beasley acquired all the outstanding stock of Greater Media Inc. for $239.9 million. In
order to come into compliance with Commission regulations, Beasley sold four stations and a
translator to Entercom for $24.0 million. 437
x
In 2017, Entercom and CBS Radio Inc. entered into a $2.5 billion transaction for 29 AM and 88
FM stations, with CBS Corp. spinning off its radio unit. 438 In order to come into compliance with
427
Id.
428
Id. at 3.
429
Id.
430
See, e.g., Beasley Broadcasting Group, SEC Form 10-K for the fiscal year ended December 31, 2017 at 3
(Beasley Broadcast Group 2017 10-K).
431
See, e.g., Beasley Broadcast Group 2017 10-K; Cumulus Media 2017 10-K.
432
See 2002 Biennial Regulatory Review – Review of the Commission’s Broadcasting Ownership Rules and Other
Rules Adopted Pursuant to Section 202 of the Telecommunications Act of 1996, Report and Order and Notice of
Proposed Rulemaking, 18 FCC Rcd 13620, 13730-31, para. 288 (2003) (2002 Biennial Regulatory Review R&O and
NPRM).
433
See, e.g., FCC, How to Apply for a Radio or Television Broadcast Station, https://www.fcc.gov/media/radio/howto-apply.
434
musicFIRST and Future of Music Coalition Comments at 4, n. 9. (citing 2002 Biennial Regulatory Review R&O
and NPRM, 18 FCC Rcd 13730-31, para. 288).
435
Volker Moerbitz, Databook Radio Station Deals, S&P Global Market Intelligence (June 18, 2018), at 1
(Databook Radio Station Deals).
436
Id. at 2.
437
Id.
438
Id.; Michael Balderston, Entercom/CBS Merger Push Q1 2017 Broadcast Station Deals, S&P Global Market
Intelligence (Apr. 3, 2017), at 1, https://www.radioworld.com/news-and-business/entercomcbs-merger-push-q12017-broadcast-station-deals.
12634
Federal Communications Commission
FCC 18-181
Commission regulations, Entercom/CBS engaged in station swaps with iHeartMedia and Beasley,
trading 11 of its stations for seven iHeart Media stations, one Beasley station and $12.0 million
cash, transactions that had an estimated value of $140 million.439
x
In 2017, non-commercial Educational Media Foundation agreed to pay Entercom $57.7 million
for three FM stations in Los Angeles, San Diego, and Wilkes Barre-Scranton. 440
x
The largest single station sales of 2016 and 2017 were Universal Media Access’s sale of KFWB
in Los Angeles to Lotus Communications for $11.2 million and Emmis Communications’ sale of
KPWR in Los Angeles to Meruelo Group for $82.8 million, respectively. 441
x
In September 2018, Entercom acquired WBWB(FM) in Philadelphia, PA from Jerry Lee Radio,
LLC in Philadelphia, PA for $57.5 million in cash. 442 Simultaneously, Entercom divested
WXTU(FM), also in Philadelphia, PA, to Beasley Broadcasting.
150.
Also notable were the recent Chapter 11 bankruptcy filings of the two largest radio
broadcasters—iHeartMedia and Cumulus Media—in 2018 and 2017, respectively, 443 which are
undergoing capital restructuring and cost-cutting plans. 444 It appears that these restructurings may be the
result of substantial debt incurred in borrowing funds to purchase large numbers of radio stations, which
the companies struggled to repay. 445
2.
Satellite Radio
151.
In 1995, the Commission allocated spectrum in the 2310–2360 MHz band for satellite
digital audio radio service (SDARS). 446 In contrast to digital radio offered by terrestrial radio stations as a
supplement to their analog signals and available free OTA, SDARS is a subscription-based satellitedelivered digital radio service. 447 Following the Commission’s establishment of general service rules for
SDARS in 1997, 448 two SDARS licensees—Sirius Satellite Radio Inc. (Sirius) and XM Radio Inc. (XM)
—purchased their licenses at auction, successfully launched their satellite systems, and commenced
439
Databook Radio Station Deals at 2.
440
Id.
441
Id.
442
Press Release, Entercom Communications Corp, Entercom Enters Into Definitive Agreements to Acquire
WBEB-FM 101.1 MORE FM and Divest WXTU-FM 92.5 FM in Philadelphia (July 19, 2018),
https://entercom.com/press/entercom-enters-into-definitive-agreements-to-acquire-wbeb-fm-101-1-more-fm-anddivest-wxtu-fm-92-5-fm-in-philadelphia/.
443
See Andrew Flanagan, iHeartMedia Turns the Dial to Bankruptcy, NPR (Mar. 15, 2018),
https://www.npr.org/sections/thetwo-way/2018/03/15/593868390/iheartmedia-turns-the-dial-to-bankruptcy.
444
Radio/TV Station Annual Outlook 2018 at 1-2.
445
See musicFIRST and Future of Music Coalition Comments at 23 (citing, e.g., Parker Hall, Is Tech Finally Killing
Radio? Don’t let iHeart’s Bleeding Fool You, Digital Trends (Mar. 23, 2018),
https://www.digitaltrends.com/music/is-tech-finally-killing-radio-dont-let-ihearts-bleeding-fool-you/).
446
Amendment of the Commission’s Rules with Regard to the Establishment and Regulation of New Digital Audio
Radio Services, Report and Order, 10 FCC Rcd 2310, 2310, para. 1 (1995).
447
See Establishment of Rules and Policies for the Digital Audio Radio Satellite Service in the 2310-2360 MHz
Frequency Band, IB Docket No. 95-91 et al., Second Further Notice of Proposed Rulemaking, 22 FCC Rcd 22123,
22150, Appx. B (2007) (SDARS Second FNPRM).
448
See generally Establishment of Rules and Policies for the Digital Audio Radio Satellite Service in the 2310-2360
MHz Frequency Band, Report and Order, Memorandum Opinion and Order and Further Notice of Proposed
Rulemaking, 12 FCC Rcd 5754 (1997).
12635
Federal Communications Commission
FCC 18-181
commercial service to the public.449 SDARS provides nationally distributed subscription radio service
and requires a significant investment of capital for operation.450 In 2008, Sirius and XM merged and
formed SiriusXM, 451 which is currently the only provider of SDARS in the audio marketplace. SiriusXM
reports that it had more than 27.5 million self-paying U.S. subscribers at the end of 2017.452
152.
Revenue Streams. As a primarily subscription based-service,453 SiriusXM—unlike
terrestrial broadcast radio—does not rely on advertising as its primary revenue source. In 2016,
SiriusXM’s total revenue was approximately $5.0 billion. 454 Subscription revenue constituted the bulk of
this revenue, accounting for $4,2 billion while advertising represented $138 million of total revenue,
equipment revenue was $119 million, and other revenue was $563 million. 455 In 2017, SiriusXM’s total
revenue was $5.4 billion, representing an 8% increase over 2016.456 Subscription revenue was the largest
source of revenue, constituting $4.5 billion of total revenue; while advertising revenue represented $160
million; equipment revenue was $132, million; and other revenue was $661 million. 457
153.
Channel and Streaming Packages. SiriusXM offers consumers three principal
subscription packages: Select ($15.99/month), All Access ($20.99/month), and Mostly Music
($10.99/month). 458 All three packages offer access to all of SiriusXM’s commercial-free music channels;
Select and All Access also offer exclusive artist-dedicated channels, 24/7 comedy channels, top news
channels, college sports, and traffic and weather.459 All Access additionally offers Howard Stern’s
channels and professional sports channels. 460 SiriusXM also offers two non-satellite (i.e., online audio)
plans: Streaming Add-On ($5.00/month) and Premier Streaming ($15.99/month), which is a stand-alone
streaming package. 461 In addition, the company offers several specialty satellite packages, including a
449
XM began nationwide commercial service on November 12, 2001. Sirius began commercial service on
February 14, 2002. See SDARS Second FNPRM, 22 FCC Rcd at 22123, para. 1, n. 4.
450
See id. at 22150, Appx. B.
451
Applications for Consent to the Transfer of Control of Licenses from XM Satellite Radio Holdings Inc. to Sirius
Satellite Radio Inc., MB Docket No. 07-57, Memorandum Opinion and Order and Report and Order, 23 FCC Rcd
12348, 12349, para. 1 (2008).
452
Press Release, SiriusXM, SiriusXM Reports Fourth Quarter and Full-Year 2017 Results (Jan. 31, 2018),
http://investor.siriusxm.com/investor-overview/press-releases/press-release-details/2018/SiriusXM-Reports-FourthQuarter-and-Full-Year-2017-Results/default.aspx (SiriusXM Press Release).
453
SiriusXM, Will I hear commercials on SiriusXM?,
https://listenercare.siriusxm.com/app/answers/detail/a_id/3562/~/will-i-hear-commercials-on-siriusxm%3F.
454
SiriusXM Press Release.
455
Id. Equipment revenue includes revenue and royalties from the sale of satellite radios, components, and
accessories. Other revenue includes amounts earned from subscribers for the U.S. Music Royalty Fee, revenue from
SiriusXM’s connected vehicle business, its Canadian affiliate, and ancillary revenues. SiriusXM, SEC Form 10-K
for the fiscal year ended December 31, 2017 at 29.
456
Id.
457
Id.
458
See SiriusXM, Our Packages,
https://www.siriusxm.com/ourmostpopularpackages?intcmp=GN_HEADER_NEW_Subscriptions_SubscribeNow_
CompareAllPackages.
459
Id.
460
Id.
461
Id.
12636
Federal Communications Commission
FCC 18-181
family-friendly package and an a la carte option.462 SiriusXM offers over 1000 channels, providing
content and features not available from other sources.
3.
Online Audio Providers
154.
In addition to terrestrial broadcast radio stations and satellite delivered radio service,
audio programming delivered via the Internet and mobile devices has emerged as the third category of
providers in the audio marketplace. Though this significant and growing group of audio providers share
the characteristic that their services rely on the Internet and mobile technologies to deliver audio content
to consumers, these providers take many different forms. Generally, Online Audio Providers may be
classified as non-interactive or interactive, with the latter involving user choice, such as choosing specific
songs and downloading content; however, some services offer both non-interactive features and
interactive features. In addition, as discussed above, both terrestrial radio broadcasters and SiriusXM
have taken advantage of the Internet and the proliferation of mobile devices to supplement their
traditional offerings with content delivered via the Internet.
155.
A recent S&P Global survey suggests that, unlike listeners consuming radio from a
variety of terrestrial broadcast stations, most users of online music services tend to use just one service,
especially those who use a pay music service.463 75% of respondents reported listening to free music or
watching music videos from at least one online source over the past three months. 464 Of those free music
service users, 47% use only one service; 28% use two services; and 25 % use three or more services.465
34% of online music service users reported using a paid music streaming service, with the top two paid
services being Amazon’s Prime Music (15%) and Spotify (12%). 466 74% of paid music service
subscribers use only one service.467 Many of those who subscribe to more than one service appear to
subscribe to Amazon Prime Music. 468
156.
Among podcast listeners, the apps most commonly used are Apple’s iTunes (41%),
Pandora (37%), Spotify (28%), iHeartRadio (21%), and Google Play Music (18%). 469 These services also
offer some form of streaming music, which may suggest that podcast listeners were already using the
app(s) to listen to music. 470
157.
Revenue Streams. Online Audio Providers’ sources of revenue include both paid
subscriptions and advertising for ad-supported tiers that are free to consumers. The portion of total
revenue that these revenue sources represent varies significantly depending on the provider. For example,
in 2017, Spotify reported $5 billion in total revenue, with subscription revenue representing 90% of the
company’s total revenue since 2016. 471 In contrast, advertising comprised $1.075 billion of Pandora’s
462
Id.
463
Brian Bacon, Consumer Insights: Online music user profiles, S&P Global Market Intelligence (July 12, 2018), at
1. S&P Global’s March 2018 online consumer survey included 2,523 U.S. Internet adults.
464
Id. at 1.
465
Id.
466
Id. at 2.
467
Id.
468
Id. at 2-3.
469
Brian Bacon, Consumer Insights: Podcast listeners by demographics, genre, platform and listening location,
S&P Global (Apr. 26, 2018), at 1.
470
Id.
471
Alison Weissbrot, Spotify’s F-1 Shows Programmatic Makes Up 18% of Ad Revenue, Ad Exchanger (Feb. 28,
2018), https://adexchanger.com/digital-audio-radio/spotifys-f-1-shows-programmatic-makes-18-ad-revenue/.
12637
Federal Communications Commission
FCC 18-181
$1.467 billion total revenue in 2017 (approximately 73%). 472 In 2016, the top three services by
subscription revenue were Spotify ($2.784 billion), Apple Music ($1.082 billion), and Deezer ($271.5
million), with Pandora coming in at $237 million. 473
158.
Tiers of Services. Major Online Audio Providers with free offerings include Pandora,
Slacker Radio, and Spotify. 474 These free offerings are generally ad-supported, and while they may
require users to register for the service, they do not require a subscription fee. Online Audio Providers
often offer additional programming tiers and differentiate themselves based on the unique features of their
premium subscriptions. Some features, like the ability to download content, are fairly common among
premium offerings, including Apple Music, Napster, and Spotify. Other features are more distinctive.
TuneIn, for example, offers live NFL, MLB, NBA, and NHL games as part of its Premium tier. 475 Other
services, like Apple Music 476 and TIDAL, 477 offer exclusive original content.
159.
Pricing Strategies. Online Audio Providers employ a wide variety of pricing strategies.
For example, many Online Audio Providers offer free trials for their premium subscriptions. In some
cases, the length of the free trial varies depending on the tier of service selected, with more expensive
services garnering longer trial periods. 478 Some services offer reduced pricing for users who commit to a
year-long paid subscription. These include Amazon Music for Prime members (the Individual Plan at
$79/year and the Amazon Music Unlimited Family Plan at $149/year) and Slacker Radio ($29.99/year for
its Plus offering). 479 A significant number of Online Audio Providers offer family plans that generally
provide access for multiple family members. Most services’ family plans—including Amazon Music,
Apple Music, Deezer, Napster, Pandora, Spotify, and TIDAL (for TIDAL Premium) 480— cost
$14.99/month. 481 Several Online Audio Providers—including Amazon Music’s Unlimited Plan, Apple
472
Pandora, SEC Form 10-K for the fiscal year ended December 31, 2017 at 4, 48.
473
S&P Global Market Intelligence, Economics of Mobile Music: 2017 Edition (July 2017), at 5.
474
Pandora, Pandora – Listen to Free Music You’ll Love, https://www.pandora.com/ (last visited Oct. 16, 2018)
(Pandora Website); Slacker Radio, Slacker Radio/ Free Internet Radio/Slacker Radio, https://www.slacker.com/
(last visited Oct. 16, 2018) (Slacker Website); Spotify, https://www.spotify.com/us/premium/?checkout=false (last
visited Oct. 16, 2018) (Spotify Website).
475
TuneIn, TuneIn/Free Internet Radio/NFL, Sports, Podcasts, Music, & News, https://tunein.com/ (last visited Oct.
16, 2018).
476
Apple Music, Apple Music – Apple, https://www.apple.com/apple-music/ (last visited Oct. 16, 2018) (Apple
Music Website).
477
Hugh McIntyre, Sprint Takes 33% Stake in Jay-Z’s Tidal for $200M, Forbes (Jan. 23, 2017),
https://www.forbes.com/sites/hughmcintyre/2017/01/23/jay-zs-tidal-has-been-partially-acquired-bysprint/#3b83d8482144.
478
Pandora offers a 30-day free trial for Pandora Plus ($4.99/month) and a 60-day free trial for Pandora Premium
($9.99/month for individuals and $14.99/month for families). Pandora Website. Napster offers a 14-day free trial
for unRadio ($4.99/month) and a 30-day free trial for Napster Premier ($9.99/month). Napster, Napster Premier &
unRadio Subscription Plans/ Napster, https://us.napster.com/pricing (last visited Oct. 16, 2018). Spotify offers a 30day free trial for Spotify Premium ($9.99/month). Spotify Website.
479
Amazon, Amazon Music Unlimited FAQs: Digital Music,
https://www.amazon.com/b?ie=UTF8&node=15730321011 (last visited Oct. 29, 2018) (Prime Music Website);
Slacker Website.
480
Prime Music Website; Apple Music Website; Deezer, Plans, https://www.deezer.com/us/offers/ (last visited Oct.
17, 2018); Napster, Napster Family Plan Subscriptions, https://us.napster.com/family (last visited Oct. 16, 2018);
Pandora Website; Spotify, https://www.spotify.com/us/family (last visited Oct. 17, 2018); TIDAL, Subscription
Types – TIDAL, https://support.tidal.com/hc/en-us/articles/115003662825-Subscription-Types (last visited Oct. 29,
2018) (TIDAL Website).
481
Prime Music Website.
12638
Federal Communications Commission
FCC 18-181
Music, Spotify (with other services included), and TIDAL’s Premium—offer a student rate of
$4.99/month. 482
160.
Bundles. In some cases, Online Audio Providers bundle their services with other
products. For instance, the Spotify Premium bundle for student users includes the video products Hulu
Limited Commercials and SHOWTIME for $0.99/month for the first 3 months and $4.99/month
thereafter, for up to 3 years. 483 In addition to Prime Music, Amazon Prime benefits include free 2-day
shipping and Prime Video. 484
4.
Intermodal Competition
161.
Although providers in these three main categories of audio marketplace participants all
deliver audio programming to consumers, there are significant differences in the availability, reach,
consumer engagement, and cost of the services. For example, Nielsen estimates weekly reach among
audio marketplace participants as follows: 228.5 million consumers for broadcast radio, 35.7 million for
satellite radio, 68.5 million for streaming audio, and 21.9 million for podcasts (note that both streaming
audio and podcasts are delivered via the Internet or mobile devices). 485 In 2016, 91% of Americans ages
12 and older listened to terrestrial broadcast (AM/FM) radio in a given week, 486 which dropped slightly to
90% in 2017. 487 According to Edison Research’s most recent “Share of Ear” report, terrestrial broadcast
radio accounts for 54% of Americans’ share of time listening to audio sources, with owned music
accounting for 16%, streaming audio accounting for 15%, SiriusXM accounting for 7%, TV music
channels accounting for 5%, podcasts accounting for 2%, and time spent listening to other sources
accounting for 1%. 488
162.
Regulatory Burdens. Different audio marketplace participants are subject to different
regulatory regimes, which may affect how they compete with one another. For example, terrestrial
broadcast radio must comply with a wide range of FCC regulations that impose costs on broadcasters
while Online Audio Providers are not regulated by the FCC and thus are not burdened by those
compliance costs.
163.
Music Licensing. Different audio marketplace participants are subject to different music
licensing conditions under law, which may affect how they compete with one another. For example,
terrestrial broadcast radio—as non-subscription, non-interactive audio transmission— is exempted from
482
Id.; Apple Music Website; Spotify, Premium for Students – Spotify,
https://support.spotify.com/us/account_payment_help/premium_for_students/student-discount/ (last visited Oct. 16,
2018) (Spotify Students Website); Spotify, Premium and Hulu – Spotify,
https://support.spotify.com/us/article/premium-and-hulu/ (last visited Oct. 16, 2018) (Spotify Hulu Website);
TIDAL Website. TIDAL HiFi is $9.99/month for students. Id.
483
Spotify Students Website; Spotify Hulu Website. See also Press Release, Hulu, Spotify and Hulu Unveil Firstof-its-Kind Premium Entertainment Streaming Bundle (Sept. 7, 2017), https://www.hulu.com/press/spotify-andhulu-unveil-first-of-its-kind-premium-entertainment-streaming-bundle-spotify-premium-for-students-now-withhulu-launches-today-nationwide-bundled-offerings-targeted-at-broader-market/.
484
See Brian Bacon, Consumer Insights: Online music user profiles, S&P Global (July 12, 2018), at 2-3.
485
The Nielsen Company, Audio Today 2018: How America Listens (Apr. 2018) at 1,
https://www.nielsen.com/us/en/insights/reports/2018/state-of-the-media--audio-today-2018.html#.
486
Pew Research Center Journalism & Media, Audio and Podcasting Fact Sheet, http://www.journalism.org/factsheet/audio-and-podcasting/ (citing Nielsen Audio RADAR 136 (March 2018), publicly available via Radio
Advertising Bureau) (July 12, 2018).
487
Id.
488
Edison Research, Share of Ear, https://www.shareofear.com/#audiomesurement.
12639
Federal Communications Commission
FCC 18-181
paying royalties for use of sound recordings over the air. 489 In contrast, SiriusXM pays a copyright
royalty for the use of sound recordings, but the Digital Millennium Copyright Act granted pre-existing
services such as SiriusXM a a compulsory copyright license for sound recordings, 490 the rate for which is
set by the Copyright Royalty Board (CRB) through a rate determination proceeding. 491 Subscription noninteractive services like Pandora are granted compulsory/statutory licenses as well. 492 Pandora, however,
has chosen to make direct deals with many major record industry entities instead of relying on CRB’s
compulsory license rates.493 Subscription interactive services like Spotify must reach commercial
agreements with music labels. 494 In January 2018, the CRB announced a ruling on streaming rates to be
paid by on-demand streaming subscription services that estimates suggest will raise total content costs
between 2017 and 2022 by 43.8% based on the percentage of revenue and by 31.0% based on total
content cost. 495
164.
Strategic Partnerships. In an effort to distinguish themselves in the marketplace and
better compete with their rivals, some audio marketplace participants have formed various strategic
partnerships, including with wireless providers, equipment or other manufacturers, and other streaming
services. For instance, Amazon Music and Pandora Premium are offered as choices in AT&T’s
Unlimited & More Premium wireless offering. 496 Another example is Sprint, which, after purchasing a
33% stake in TIDAL, 497 offers users of its Unlimited Plus Plan access to TIDAL Premium streaming
service for the duration of the Unlimited Plus subscription.498 In a similar fashion, T-Mobile has
partnered with Pandora to offer Pandora Plus free for one year to certain T-Mobile subscribers, 499 and
Verizon has announced that it would be partnering with Apple Music to offer its mobile subscribers six
months of Apple’s streaming service. 500 In addition, T-Mobile’s Music Freedom feature allows
subscribers to T-Mobile’s Simple Choice plan to stream unlimited music from a host of participating
music streaming services while on its network without data charges.
489
See, e.g., Citi GPS: Putting the Band Back Together – Remastering the World of Music, Citi GPS: Global
Perspectives and Solutions (Aug. 2018) at 18, https://privateclientsolutions.citi.com/insights/citi-gps-putting-theband-back-together/ (Citi GPS). Terrestrial radio broadcasters do pay copyright royalties to songwriters, however,
which is separate from the copyright in the sound recording.
490
See, e.g., id; Dana A. Scherer, Money for Something: Music Licensing in the 21st Century, Congressional
Research Service (June 7, 2018), at 22, https://crsreports.congress.gov/product/pdf/R/R43984.
491
See id. at 22-23.
492
Citi GPS at 18.
493
Id. at 1.
494
Id.
495
Peter Leitzinger, Economics of Internet: New Kagan Report: Economics of Internet Music and Radio 2018, S&P
Global (Apr. 25, 2018), at 1. In 2017, prior to the CRB ruling, total content costs represented 10.5% of revenue and
20.0% of total content costs for on-demand streaming services. Id.
496
Eli Blumenthal, T-Mobile adds free Pandora Plus subscription as latest wireless perk, USA Today (Aug. 16,
2018), https://www.usatoday.com/story/money/2018/08/16/t-mobile-free-pandora-plus-subscription/1006857002/
(Blumenthal).
497
Hugh McIntyre, Sprint Takes 33% Stake in Jay-Z’s Tidal for $200M, Forbes (Jan. 23, 2017),
https://www.forbes.com/sites/hughmcintyre/2017/01/23/jay-zs-tidal-has-been-partially-acquired-bysprint/#3b83d8482144.
498
Sprint, TIDAL X Sprint, http://sprint.tidal.com/us.
499
Blumenthal.
500
Id.
12640
Federal Communications Commission
FCC 18-181
165.
In terms of partnerships with manufacturers, one unique aspect of SiriusXM’s
marketplace position is that the service comes as a standard (or factory/dealer-installed) option with every
major automaker, 501 and car dealerships have long offered free trials or free year-long subscriptions when
customers buy a satellite-equipped new or pre-owned vehicle.502 More recently, Spotify has partnered
with electronics manufacturer Samsung to integrate Spotify into Galaxy phones, tablets and watches, as
well as Samsung’s smart refrigerators, smart TVs, Galaxy Home smart speaker, and Bixby digital
assistant. 503 Smart speakers have begun to emerge as an important focus for audio marketplace
participants, as smart speaker owners tend to listen to more audio than they did prior to becoming smart
speaker owners. 504
166.
Mergers and Acquisitions. In September 2018, satellite radio provider SiriusXM
announced plans to acquire digital audio streaming company Pandora in an all-stock deal worth $3.5
billion. 505 According to some observers, the acquisition could offer the combined company key benefits
including: (1) an online, streaming presence for SiriusXM as vehicles become increasingly digitized, (2)
the largest digital audio advertising offering currently available, (3) access to Pandora’s 71.4 million
monthly access users, and (4) the ability to invest in new products, such as seamless listening from
vehicle to phone, placement of Pandora’s content on SiriusXM’s satellite system, or adding SiriusXM’s
content to Pandora’s offerings. 506
5.
Marketplace Factors Relevant to Entry, Competition, and Expansion
167.
Terrestrial radio broadcasters, satellite radio, and Online Audio Providers all face
marketplace barriers that affect entry and competition in the audio marketplace. As with most businesses
involving the creation and distribution of entertainment programming to consumers, entry into the audio
marketplace typically requires significant capital. For example, given that entry in the terrestrial
broadcast radio industry occurs primarily via acquisition of existing licensees, new market entrants must
have the ability to acquire a license (or multiple licenses) on the secondary market, which, along with
operational expenses, can be a significant barrier to entry. 507 Even more restrictive than terrestrial
broadcasting, currently, there is only one satellite radio provider, and no additional spectrum is currently
allocated for new SDARS entrants. 508 To enter the marketplace as an Online Audio Provider, an entity
must have access to necessary delivery infrastructure and must develop and maintain apps or other
mechanisms for delivery of content to consumers. In the current marketplace, such entry may be
challenging given the multiplicity of streaming options available to consumers and the fact that many
incumbent providers have strategic partnerships with wireless service providers, video providers, or
501
NAB Comments at 11.
502
Nicole Lyn Pesce, These companies are now offering free Netflix, Hulu, Spotify and more, Moneyish (Sept. 11,
2017), https://moneyish.com/upgrade/these-companies-are-now-offering-free-netflix-hulu-spotify-and-more/.
503
Eli Blumenthal, Spotify stock pops after company links up with Samsung to take on Apple, Amazon and Google,
USA Today (Aug. 9, 2018), https://www.usatoday.com/story/money/2018/08/09/spotify-and-samsung-partner-uptake-apple-amazon-and-google/949470002/.
504
See Miller at 18.
505
See Richard Windsor, Sirius XM Paying Cash Would Open Pandora’s Box, Forbes (Sept. 24, 2018),
https://www.forbes.com/sites/richardwindsoreurope/2018/09/24/sirius-xm-paying-cash-would-open-pandorasbox/#22453fe24453.
506
Id.
507
See supra para. 148.
508
See supra para. 151.
12641
Federal Communications Commission
FCC 18-181
particular consumer devices. Finally, satellite radio and Online Audio Providers must contend with
content costs that terrestrial radio does not due to its unique music licensing status. 509
168.
Consumers must use devices to receive content from audio marketplace participants. The
radios necessary to receive the signals of terrestrial radio broadcasters are ubiquitous in the marketplace,
as are computers, smartphones, and other devices needed to receive online audio content. As discussed
above, audio marketplace participants continue to work with equipment manufacturers and other parties
to make their content accessible on multiple devices.510
D.
The Fixed Broadband Market
169.
We next assess the state of competition in the fixed broadband market. We will first
examine the various fixed technologies that Internet service providers currently deploy and how some
technologies have begun to merge in the face of competition from other services. In addition, we will
describe findings from the latest Measuring Broadband America reports, which provide a snapshot of
fixed broadband Internet access service performance in the United States. We will then present data,
based on the Commission’s December 2017 FCC Form 477 data collection, on fixed broadband
competition in the United States.
170.
Internet service providers continue to invest in their networks to improve the quality and
availability of their services, typically in competition with each other.511 Further, as we have identified
previously, our data understate the benefits that come from competition because: (1) fixed Internet service
providers have strong incentives, even when facing a single competitor, to capture customers or induce
greater use of their networks; and (2) competitive pressures often have spillover effects across a given
provider, meaning an Internet service provider facing competition broadly, if not universally, will tend to
treat customers that do not have a competitive choice as if they do. 512 Based on Internet service
providers’ incentives to invest and our actions to facilitate broadband deployment, we are optimistic that
Internet service providers will continue to close the digital divide and give more Americans the benefits
of fixed broadband competition.
1.
Overview of the Fixed Broadband Communications Marketplace
171.
The RAY BAUM’S Act directs the Commission to consider “all forms of competition” 513
in its competition assessment, “including the effect of intermodal competition, facilities-based
competition, and competition from new and emergent communications services.” 514 While some
commenters advocate in favor of the Commission’s competition analysis including both fixed and mobile
broadband, 515 this Chapter will focus only on the state of competition for fixed broadband services.
509
See supra para. 162; musicFIRST Coalition and the Future of Music Coalition Comments at 26.
510
See supra paras. 163-164.
511
See Restoring Internet Freedom, WC Docket No. 17-108, Declaratory Ruling, Order, Report and Order, 33 FCC
Rcd 311, 385, para. 126-27 (2018) (Restoring Internet Freedom Order).
512
Restoring Internet Freedom Order, 33 FCC Rcd at 383-85, paras. 126-27.
513
47 U.S.C. § 163(d)(1).
514
Id.
515
See, e.g., USTelecom Comments, GN Docket No. 18-231, at 6 (Aug. 17, 2018) (USTelecom Fixed Competition
Comments); Verizon Comments, GN Docket No. 18-231, at 3-4 (Aug. 17, 2018) (Verizon Fixed Competition
Comments); NCTA Comments, GN Docket No. 18-231, at 6 (Aug. 17, 2018) (NCTA Fixed Competition
Comments); cf. American Cable Association (ACA) Comments, GN Docket No. 18-231, at 2-3 (Aug. 17, 2018)
(ACA Fixed Competition Comments) (stating that mobile service is “increasingly being viewed by consumers in
markets served by smaller providers as a substitute for fixed service . . . it [is] necessary for any fixed broadband
competition analysis to take into account future trends and the possible emergence of new sources of competition
not foreseen today”). Other commenters contend that fixed and mobile broadband should not be viewed as
(continued….)
12642
Federal Communications Commission
FCC 18-181
Mobile competition is evaluated in a separate Chapter of this Report. 516 This Chapter makes no finding
with respect to whether fixed and mobile broadband services are competitive substitutes. In February, the
2018 Broadband Deployment Report found that there are “salient differences between the two
technologies” and that mobile services are not “currently full substitutes for fixed services.”517
a.
Technologies Deployed
172.
Today, consumers can access the Internet through many types of fixed technologies,
including fiber to the end user, cable broadband services, digital subscriber lines (DSL), fixed wireless,
and satellite. Each service differs in function, speed, and cost of deployment. In the current broadband
marketplace, to compete with the technological advancements of other services, providers are continually
investing in network upgrades. 518 To provide context on the state of broadband competition today, we
review several common types of service, including the technology used, speed, latency, 519 cost of
deployment, and other unique characteristics.
173.
Fiber optics. Some Internet service providers provide broadband services entirely over
optical fiber, or over a combination of optical fiber and other transmission technology such as copper wire
or coaxial cable. 520 Fiber-to-the-premises (FTTP),521 uses optical fiber to deliver a communications signal
(Continued from previous page)
competitors. See, e.g., Common Cause, Public Knowledge, Center for Rural Strategies, & The Benton Foundation
Comments, GN Docket No. 18-231, at 2-5 (Aug. 17, 2018) (Common Cause et al. Fixed Competition Comments);
INCOMPAS Comments, GN Docket No. 18-231, at 6 (Aug. 17, 2018) (INCOMPAS Fixed Competition
Comments); New America Comments, GN Docket No. 18-238, at 20 (Sept. 17, 2018) (New America Fixed
Competition Comments).
516
See supra section II.A.
517
2018 Broadband Deployment Report, 33 FCC Rcd at 1666, para. 18; see also Common Cause et al. Fixed
Competition Comments at 2 (“[M]obile broadband services typically come with data caps where the mobile network
operator places a limit on the amount of data a customer can use over their internet connection. . . . mak[ing] it
difficult for consumers to continuously use data-intensive applications like video streaming or video conferencing
on a mobile connection as compared to a fixed connection where large amounts of data usage are generally
permitted. Other key character differences between fixed and mobile broadband include pricing models, variability
of speed, and reliability.”); INCOMPAS Fixed Competition Comments at 6; New America Fixed Competition
Comments at 20 (“Mobile wireless Internet service providers operate in a separate market from fixed Internet
service providers and the distant prospect of 5G is unlikely to change that reality.”). In the most recent Broadband
Deployment Report Notice of Inquiry, the Commission sought comment on “whether and to what extent fixed and
mobile services of similar functionality are substitutes for each other.” Inquiry Concerning Deployment of
Advanced Telecommunications Capability to All Americans in a Reasonable and Timely Fashion, GN Docket No.
18-238, Fourteenth Broadband Deployment Report Notice of Inquiry, FCC 18-119, para. 11 (Aug. 9, 2018)
(Fourteenth Notice).
518
The lines between the services we describe below are not rigid. For instance, fiber-to-the-curb (FTTC) and
hybrid fiber/coaxial use a mix of fiber and legacy copper wire or coaxial cable to provide service. As carriers
deploy 5G technology, Internet service providers may combine wireline backhaul and 5G fixed wireless access lastmile connections to offer high-speed services at reduced costs. See Accelerating Wireless Broadband Deployment
by Removing Barriers to Infrastructure Investment, WT Docket No. 17-79, Declaratory Ruling and Third Report
and Order, FCC 18-133, 2, 9, paras. 2, 24 (Sept. 27, 2018) (Wireless Infrastructure Third Report and Order);
Accelerating Wireline Broadband Deployment by Removing Barriers to Infrastructure Investment, WC Docket No.
17-84, Third Report and Order and Declaratory Ruling, FCC 18-111, para. 2 (Aug 3, 2018). Some fixed carriers
may also rely on satellite backhaul. See, e.g., Connect America Fund; Universal Service Reform—Mobility Fund;
Connect America Fund—Alaska Plan, Report and Order and Further Notice of Proposed Rulemaking, WC Docket
Nos. 10-90 and 16-271, WT Docket No. 10-208, 31 FCC Rcd 10139, 10147, para. 24.
519
Latency refers to the time it takes for a data packet to travel back and forth through a network.
520
Electronic Frontier Foundation (EFF) Comments, GN Docket No. 18-231, at 3 (Aug. 17, 2018) (EFF Fixed
Competition Comments).
12643
Federal Communications Commission
FCC 18-181
from the operator’s switching equipment to a home or business. 522 FTTP has the potential to offer higher
speeds than other broadband technologies, such as cable broadband service 523 or DSL, as it “can carry
high bandwidth signals over long distances without degradation.” 524 An all-fiber network allows
providers to offer end-users equal upload and download speeds (i.e., symmetrical service), “as well as
high-quality voice and video services.”525 In contrast, other technologies allocate greater capacity to
download speeds than upload speeds to reflect typical consumer use. According to the Eighth Measuring
Broadband America Fixed Broadband Report (Eighth MBA Report), 526 as of September 2017, for
participating Internet service providers using fiber technology, 527 (1) the maximum advertised download
speeds among the service tiers measured in the report range from 100 to 150 Mbps; 528 (2) the median
(Continued from previous page)
521
Id. FTTP is also sometimes referred to as fiber-to-the-home (FTTH). See Differences between FTTH, FTTC,
and FTTN. AT&T High-Speed Internet & Resource Directory,
https://www.attinternetservice.com/resources/different-types-fiber/.
522
Dan Mahoney and Greg Rafert, Broadband Competition Helps to Drive Lower Prices and Faster Download
Speeds for U.S. Residential Consumers, 3 (Nov. 2016),
http://www.analysisgroup.com/uploadedfiles/content/insights/publishing/broadband_competition_report_november_
2016.pdf (Mahoney and Rafert).
523
Cable companies, such as Xfinity Comcast, Charter and CenturyLink, currently use both FTTP and FTTC
technology to serve some customers. See Laurel Ridge Comments, GN Docket No. 18-231, at 2 (Aug. 17, 2018);
Charter Spectrum Availability Map, https://broadbandnow.com/Charter-Communications; Sean Buckley, Century
Link says G.Fast is a non-disruptive means to enhance Ethernet delivery, upgrade existing FTTC sites,
FierceTelecom (Sept. 14, 2016), https://www.fiercetelecom.com/installer/centurylink-says-g-fast-a-non-disruptivemeans-to-enhance-ethernet-delivery-upgrade; TV, Internet and Voice Connection Types for Your Xfinity Service,
https://www.xfinity.com/support/articles/identifying-video-connection-types; Letter from Brian Hurley, Vice
President of Regulatory Affairs, ACA, to Marlene H. Dortch, Secretary, FCC, GN Docket No. 18-231 et al., at 3
(filed Dec. 4, 2018) (ACA Dec. 4, 2018 Ex Parte Letter).
524
Building Fiber-to-the-Home Communities Together, FTTH Council, 1,
https://www.jaxenergy.com/broadband/faq/downloads/FTTHQ&A.pdf; see also Mahoney at Rafert at 3-4. Cable
and DSL rely on copper wire to deliver signals, which can carry high bandwidth only for a few hundred yards until
the signal begins to degrade. Building Fiber-to-the-Home Communities Together, FTTH Council, 1,
https://www.jaxenergy.com/broadband/faq/downloads/FTTHQ&A.pdf.
525
Verizon Fixed Competition Comments at 6.
526
Eighth Measuring Broadband America Fixed Broadband Report, OET (2018) (Eighth MBA Report) (attached as
Appendix F-2). The Measuring Broadband America (MBA) program is a rigorous, ongoing nationwide study of
consumer broadband performance that relies upon a sample of more than 4,000 actual broadband subscribers spread
across different fixed Internet service providers serving over 80% of the residential marketplace, and across different
technologies, subscription speeds, and geographic regions. Id. at 6. The Seventh and Eighth MBA Reports contain
validated data collected in September 2016 and September 2017, respectively, from fourteen Internet service
providers. Id.; Seventh Measuring Broadband America Fixed Broadband Report, OET, 6 (Seventh MBA Report)
(attached as Appendix F-1). The maximum advertised download speeds among the service tiers measured in the
reports ranged between 3 and 200 Mbps. Seventh MBA Report at 6; Eighth MBA Report at 6. Among the key
findings of the Seventh and Eighth MBA Reports are that (1) the median download speeds experienced by
subscribers of participating providers was 57 Mbps as of September 2016 and 72 Mbps as of September 2017; and
(2) for the majority of the providers that were tested, measured download speeds were 100% or better of advertised
speeds during peak usage periods (i.e., 7 to 11 pm local time). Id.
527
Participation in the program by Internet service providers is voluntary. For purposes of satisfying the
Commission’s transparency requirements that apply to Internet service providers, fixed providers that choose to
participate in the MBA program may disclose their results as a sufficient representation of the actual performance
their customers can expect to experience. Restoring Internet Freedom Order, 33 FCC Rcd at 441 n.818.
528
Eighth MBA Report at 11.
12644
Federal Communications Commission
FCC 18-181
download speed experienced by their subscribers is 73 Mbps; 529 and (3) approximately 60% of
subscribers experience median download speeds exceeding the advertised download speed.530 The
Eighth MBA Report also found that, as of September 2017, participating fiber providers demonstrate the
lowest median latencies in comparison to cable and DSL providers, ranging from 12 milliseconds (ms) to
20 ms. 531 Another advantage of using fiber is that Internet service providers can generally upgrade fiber
networks to higher speeds, or in other ways, less expensively than other broadband services that require
new infrastructure. 532
174.
Cable broadband services. Cable broadband services use infrastructure that was initially
deployed for cable television to deliver high-speed broadband service. 533 Through the use of coaxial
cables that deliver cable TV programming and Internet service on separate channels (or frequencies),
users can access the Internet without disrupting the cable TV service.534 Today, most cable systems rely
on hybrid fiber-coaxial (HFC) technology that uses fiber connections to send signals from the operator’s
facility to an optical node near the customer’s premises. 535 Yet cable providers are increasingly deploying
FTTP networks that use fiber to connect directly to subscriber premises. 536 Instead, they use coaxial cable
to send the signal to cover the remaining distance from the node to the customer’s premises.537 According
to NCTA, propelled by a competitive landscape, cable operators have invested “over $50 billion in the
last three years alone and by the end of 2018 are expected to offer gigabit services reaching 70 to 75% of
American households.” 538 Indeed, cable providers are steadily upgrading their networks to provide high
speed broadband service to a larger percentage of customers. 539 The newest technological standard for
529
Id. at 25.
530
Id. at 30.
531
Id. at 17.
532
EFF Fixed Competition Comments at 5.
533
Mahoney and Rafert at 3; see also Applications Filed by Altice N.V. and Cable Vision Systems Corporation to
Transfer Control of Authorizations from Cablevision Systems Corporation to Altice N.V., WC Docket No. 15-257,
4380, para. 33 (May 3, 2016) (“Cable modems connect consumer equipment to the broadband Internet access
service offered by cable operators.”).
534
David N. Beede, Economist, Office of the Chief Economist, Competition Among U.S. Broadband Service
Providers, U.S. Dept. of Commerce, 12, Technical Appx., Tbl. 3 (Dec. 2014),
https://www.commerce.gov/sites/default/files/migrated/reports/competition-among-us-broadband-serviceproviders.pdf (Beede).
535
The State of the Art and Evolution of Cable Television and Broadband Technology, Columbia
Telecommunications Corporation, 4 (prepared for Public Knowledge, Nov. 2014),
https://ecfsapi.fcc.gov/file/60000983290.pdf.
536
ACA Dec. 4, 2018 Ex Parte Letter at 3.
537
Id. Some commenters discuss anticipated technological advancements with the deployment of 5G networks. See
ADTRAN Comments, GN Docket No. 18-231, at 8 (Aug. 17, 2-18) (ADTRAN Fixed Competition Comments);
NCTA Fixed Competition Comments at 9; Verizon Fixed Competition Comments at 8; USTelecom Fixed
Competition Comments at 4-5. Given its potential, it is conceivable that 5G technology could also eventually be
incorporated into a hybrid service with an existing fixed broadband service. But see New America Fixed
Competition Comments at 3 (arguing that 5G networks are years away from deployment).
538
NCTA Fixed Competition Comments at 8.
539
See, e.g., Thomson Reuters StreetEvents, Edited Transcript: CMCSA – Q1 2018 Comcast Corp Earnings Call, 6
(Apr. 25, 2018), https://www.cmcsa.com/static-files/fdafc0ba-9422- 4659-ac3b-898fdaf1115c (statement by
Comcast Corp. Senior EVP & CFO Michael Cavanagh); Charter Communications, Inc. Press Release, Charter
Announces Second Quarter 2018 Results (July 31, 2018), https://newsroom.charter.com/press-releases/charterannounces-second-quarter2018-results/ (stating that Charter’s DOCSIS 3.1 service is now available to
approximately 60% of its footprint); Midco, Midco Gig, https://www.midco.com/services/internet/midco-gig; Cox
(continued….)
12645
Federal Communications Commission
FCC 18-181
cable broadband services is Data Over Cable Service Interface Specifications 3.1 (“DOCSIS 3.1”), which
offers faster broadband service than older standards, and is capable of achieving upload and download
speeds of up to 10 gigabits per second. 540 As of 2017, according to NCTA, the most commonly deployed
cable technology is still DOCSIS 3.0, which has the capability of delivering download speeds up to 900
Mbps. 541 According to the Eighth MBA Report, as of September 2017, for participating Internet service
providers using cable technology, (1) the maximum advertised download speeds among the service tiers
measured in the report are between 100 and 200 Mbps; 542 (2) the median download speed experienced by
their subscribers is 97 Mbps; 543 and (3) approximately 80% of subscribers experience median download
speeds exceeding the advertised download speed.544 The Eighth MBA Report also found that, as of
September 2017, the median latencies for participating cable-based providers range from 15 ms to 34
ms. 545
175.
Digital Subscriber Lines (DSL). DSL, the technology that telephone companies most
commonly use to provide high-speed data services,546 “transmits data over traditional copper telephone
lines to homes and businesses (using separate lines to carry voice traffic),” enabling users “to connect to
the high-speed Internet via a modem without disruption [of] their telephone service.” 547 DSL speeds
“depend[] on the distance between the subscriber and the central office.”548 According to the Eighth
MBA Report, as of September 2017, for participating DSL providers, (1) the maximum advertised
download speeds among the service tiers measured in the report range from 3 to 45 Mbps; 549 (2) the
median download speed experienced by their subscribers is 16 Mbps; 550 and (3) 40% of subscribers to
DSL-based services experience median download speeds exceeding the advertised download speed. 551
The majority of DSL service used primarily by residential consumers is asymmetric (i.e., download
speeds are greater than upload speeds). 552 Symmetric DSL, on the other hand, is typically used by
(Continued from previous page)
Communications, Inc. Press Release, Cox Expands Gigabit Speeds at Rapid Pace (Jan. 9, 2018),
http://newsroom.cox.com/2018-01-09-Cox-Expands-Gigabit-Speeds-atRapid-Pace (asserting Cox offers gigabit
service to 40% of its footprint with plans to expand).
540
See Verizon Fixed Competition Comments at 5; USTelecom Fixed Competition Comments at Exh. B (Patrick
Brogan, VP of Industry Analysis, U.S. Broadband Availability Year-End 2016, 7 (Feb. 22, 2018)) at 16. According
to NCTA, an update to the DOCSIS 3.1 technology, Full Duplex DOCSIS 3.1, “enables up to 10 gigabits for both
download and upload speeds.” The Near Future Becomes Closer with New Cable Broadband Technology, NCTA
(Oct. 18, 2017), https://www.ncta.com/whats-new/the-near-future-becomes-closer-with-new-cable-broadbandtechnology. The previous version of the DOCSIS 3.1 allowed for download speeds of up to 10 gigabits, but upload
speeds of only up to 1 gigabit for uploads and downloads. Id.
541
How Cable Networks Deliver Ultra-Fast Internet, NCTA (Apr. 5, 2017), https://www.ncta.com/how-cablenetworks-deliver-ultra-fast-internet.
542
Eighth MBA Report at 11.
543
Id. at 25.
544
Id. at 30.
545
Id. at 17.
546
Beede at 12, Technical Appx., Tbl. 3.
547
Id.
548
Eighth MBA Report at 30.
549
Id. at 11.
550
Id. at 25.
551
Id. at 30.
552
Bradley Mitchell, What Are the Different Types of DSL Technology, Lifewire (May 10, 2018),
https://www.lifewire.com/different-types-of-dsl-technology-817522; see also Beede at 12, Technical Appx., Tbl. 3.
12646
Federal Communications Commission
FCC 18-181
businesses that move large data files, and provides equal bandwidth for uploading and downloading
data. 553 The costs of providing, and hence the prices for, symmetric DSL services are considerably
higher—generally prohibitively so for mass marketing of the service—than costs and prices of providing
asymmetric DSL. 554
176.
Fiber-to-the-node or neighborhood (FTTN), offered by Internet service providers such as
AT&T, is a short-loop DSL service relying on fiber-optic connections from a local central office into a
neighborhood, and twisted-pair copper wiring (traditional telephone lines) to cover the remaining distance
to the home. 555 Fiber-to-the-curb (FTTC) uses fiber to send signals to and from a mounted
communications device, often located on a utility pole, and then employs twisted-pair copper to transmit
the signal from the pole or other location to a home. 556 FTTP has the potential for the highest speeds but
is the most expensive to install, while FTTN and FTTC deliver broadband at a lower cost because both
technologies rely on pre-existing copper networks. 557 With the existence of a copper network, FTTN is
the least expensive of the three alternatives, followed by FTTC then FTTP when the sunk costs of the
existing copper network are not counted.
177.
Terrestrial Fixed Wireless Broadband Technology. Fixed wireless providers deliver
broadband service to consumers in fixed wireless locations, including residences and businesses,
primarily using wireless spectrum technology for the end connection to users while often relying on fiber
optics to form parts of the rest of their network infrastructure. 558 Providers deliver services using a
combination of licensed spectrum, shared access spectrum, and unlicensed spectrum. 559 According to
WISPA, fixed wireless broadband technology is defined by its “low start-up costs” and “ability to quickly
deploy affordable high-speed broadband at a low cost, particularly in geographically challenging areas
and for low density populations” not typically serviced by traditional broadband providers. 560 Currently,
fixed wireless providers primarily serve “rural and suburban markets where fiber and cable deployment is
not cost-effective.” 561 Typically, a fixed wireless provider receives broadband content “from an external
distribution point via fiber or microwave connections,” then wireless transmitters on towers that are
connected by licensed or unlicensed spectrum deliver the signals to the customer’s fixed antennas.562
553
Beede at 12, Technical Appx., Tbl. 3.
554
See id.
555
See Differences between FTTH, FTTC, and FTTN. AT&T High-Speed Internet & Resource Directory,
https://www.attinternetservice.com/resources/different-types-fiber/. This remaining distance is sometimes referred
to as the “last mile.” Id.
556
See id.
557
See id.
558
WISPA Comments, GN Docket No. 18-231, at Attach. at 5 (Aug. 17, 2018) (WISPA Fixed Competition
Comments).
559
Id.
560
Id. at 2-3. According to WISPA, “[wireless internet service providers] can deploy fixed wireless broadband to
residential consumers at about one-seventh of the capital cost of FTTH and about one-fourth of the capital cost of
cable.” Id. at 6, at Attach. at 12.
561
Id. at Attach. at 6.
562
Id. at Attach. at 7. Unlicensed fixed wireless, such as WiFi and Worldwide Interoperability for Microwave
Access (WiMAX) uses spectrum shared among Internet service providers to provide broadband service to a specific
geographic area. See Beede at 12, Technical Appx., Tbl. 3. It requires an unimpeded line of line for transmission of
data. Id. Licensed fixed wireless is similar to unlicensed except that it uses spectrum licensed to the Internet service
provider. Id.
12647
Federal Communications Commission
FCC 18-181
WISPA reports that typical download speeds are in the range of 5 to 50 Mbps, but that speeds can reach
up to 1 Gbps. 563
178.
Satellite Services. Today, satellite providers deliver broadband service to consumers
through geostationary satellites (GSO) that operate at approximately 22,300 miles above the Earth, and
appear to be fixed above a particular point on the Earth. 564 GSO satellite broadband operators, namely
ViaSat and Hughes, provide satellite broadband services to consumers in the United States through the
use of satellite constellations in authorized spectrum for fixed satellite service.565 According to SIA,
satellite operators “began broadly providing users across the United States” with services at the
Commission’s fixed speed advanced telecommunications capability benchmark of 25 Mbps/3 Mbps. 566 In
February 2018, ViaSat announced that it now offers unlimited data plans with speeds up to 100 Mbps
through its new ViaSat-2 satellite system. 567 ViaSat expects to launch beginning in 2020 the ViaSat-3
system, which is a trio of Ka-band satellites that will “provide unprecedented capabilities in terms of
service speed and flexibility for a satellite platform” and are “expected to deliver more than 1-Terabit per
second of network capacity.” 568 In August 2017, Hughes announced it will launch Jupiter 3/EchoStar
XXIV in early 2021 that will deliver greater capacity and broadband at higher speeds, including
broadband services of 100 Mbps download speeds or more in parts of the United States.569 In 2017 and
2018, the Commission approved a number of non-geostationary orbit (NGSO) satellite systems 570 for
launch and operation or market access that plan to provide high-throughput, lower-latency 571 broadband
563
WISPA Fixed Competition Comments at 2, Attach. at 5.
564
Third Report and Analysis of Competitive Market Conditions with Respect to Domestic and International
Satellite Communications Services; Report and Analysis of Competitive Market Conditions with Respect to
Domestic and International Satellite Communications Services, Third Report, 26 FCC Rcd 17284, 17288, para. 8,
n.9 (2011) (Third Satellite Competition Report).
565
See EchoStar Satellite Operating Corporation and Hughes Network Systems, LLC Comments, GN Docket No.
18-231, at 2 (Aug. 17, 2018) (EchoStar and Hughes Fixed Competition Comments). For example, Hughes provides
broadband service through the use of a three-satellite, Ka-band constellation over the United States. Id. ViaSat and
Hughes are the only operators that provide satellite broadband service directly to consumer end users.
566
Satellite Industry Association (SIA) Comments, GN Docket No. 18-231, at 1-2 (Aug. 17, 2018) (SIA Fixed
Competition Comments). In 2016, ViaSat began providing 25 Mbps /3 Mbps broadband service in the United
States. Id. at 2, n.3. Hughes launched 25 Mbps/3 Mbps broadband services “across the continental United States
and southeastern Alaska in March 2017, Puerto Rico in July 2017, and the U.S. Virgin Islands in November 2017.”
Id.; EchoStar and Hughes Fixed Competition Comments at 3.
567
ViaSat, Viasat Announces Highest-Speed, Unlimited Satellite Internet Service—Nationwide (Feb. 27, 2018),
https://www.viasat.com/news/viasat-announces-highest-speed-unlimited-satellite-internet-service-nationwide.
568
ViaSat, Viasat, Boeing Enter Next Phase of ViaSat-3 Satellite Integration (Aug. 30, 2018),
https://www.viasat.com/news/viasat-boeing-enter-next-phase-viasat-3-satellite-integration.
569
Hughes, Hughes Selects Space Systems Loral to Build Next-Generation Ultra High Density Satellite (Aug. 9,
2017),
https://www.echostar.com/en/Press/Newsandmedia/Hughes%20Selects%20Space%20Systems%20Loral%20To%20
Build%20Next-Generation%20Ultra%20High%20Density%20Satellite.aspx; EchoStar and Hughes Fixed
Competition Comments at 2; SIA Fixed Competition Comments at 2.
570
Non-geostationary orbits include a number of orbital configurations. Medium-earth orbits (MEO) range from
6,000 to 12,000 miles above the Earth and circle the Earth in five to 12 hours. Howard Hausman, Fundamentals of
Satellite Communications, Part 1, at 23 (2008),
https://www.ieee.li/pdf/viewgraphs/fundamentals_satellite_communication_part-1.pdf (Fundamentals). Low-earth
orbits (LEO) range from 100 to 300 miles above the Earth and circle the Earth approximately every 90 minutes. Id.
at 25.
571
In this context, lower latency times may be 100 milliseconds or less round trip.
12648
Federal Communications Commission
FCC 18-181
services than currently offered by GSO satellite services, including to remote or rural areas, using a new
generation of medium-Earth or low-Earth orbit satellite technologies. 572
b.
Intermodal Competition Among Fixed Broadband Services
179.
We next evaluate competition between fixed broadband providers that rely on different
types of transmission technology. Today, most fixed broadband services include fiber, cable, and DSL,
each occupying a different percentage of the market and offering varying download speeds and latencies
to consumers. Fixed wireless and satellite broadband providers have lower market shares, but can be
important sources of broadband for consumers in rural and suburban areas.
180.
According to the Commission’s December 2017 Form 477 subscriber data, cable
providers hold 62% of the overall residential fixed broadband market in the United States, and 79% of all
residential subscribers with speeds of at least 25 Mbps/3 Mbps.573 Companies offering DSL or FTTP
(generally telephone companies) have 35% of the overall residential fixed broadband market in the United
States and 20% of all residential subscribers with speeds of at least 25 Mbps/3 Mbps. 574 Satellite, fixed
wireless, and other technologies make up 3% of the overall residential fixed broadband market in the
United States with 1% of all residential subscribers with speeds of at least 25 Mbps/3 Mbps.575 December
2017 Form 477 data also indicates that 89% of Americans in the United States reside in areas where DSL
is deployed, 89% live in areas where cable broadband is deployed, and 40% live in areas where fiber
broadband is deployed. 576
181.
According to a 2016 survey of WISPA members, “76.7% . . . reported serving 2,000 or
fewer residential consumers, [] more than 56% reported having 1,000 or fewer residential customers,” and
over 75% serve primarily rural areas.577 As demonstrated by this survey, fixed wireless providers are
more likely to serve rural and suburban markets when other fixed Internet services such as cable and fiber
572
See, e.g., Space Exploration Holdings, LLC; Application For Approval for Orbital Deployment and Operating
Authority for the SpaceX NGSO Satellite System; Application For Approval For Orbital Deployment And Operating
Authority for the SpaceX NGSO Satellite System Supplement, Memorandum Opinion, Order and Authorization, 33
FCC Rcd 3391 (2018) (SpaceX Authorization Order); WorldVu Satellites Limited; Petition for a Declaratory Ruling
Granting Access to the U.S. Market for the OneWeb NGSO FSS System, Order and Declaratory Ruling, 32 FCC Rcd
5366 (2017) (WorldVu Order and Declaratory Ruling); Space Norway AS; Petition for a Declaratory Ruling
Granting Access to the U.S. Market for the Arctic Satellite Broadband Mission, Order and Declaratory Ruling, 32
FCC Rcd 9649 (2017) (Space Norway AS Order and Declaratory Ruling); Telesat Canada; Petition for Declaratory
Ruling to Grant Access to the U.S. Market for Telesat’s NGSO Constellation, Order and Declaratory Ruling, 32 FCC
Rcd 9663 (2017) (2017 Telesat Canada Order and Declaratory Ruling); Karousel Satellite LLC; Application for
Authority to Launch and Operate a Non-Geostationary Earth Orbit Satellite System in the Fixed Satellite Service,
Memorandum Opinion, Order and Authorization, FCC 18-125 (rel. Aug. 16, 2018), 2018 WL 3955599 (Karousel
Authorization Order); Telesat Canada; Petition for Declaratory Ruling to Grant Access to the U.S. Market for
Telesat’s V-Band NGSO Constellation, Order and Declaratory Ruling, FCC 18-163 (rel. Nov. 19, 2018), 2018 WL
6075370 (Telesat Canada V-band NGSO Order and Declaratory Ruling); LeoSat MA, Inc.; Petition for Declaratory
Ruling Concerning U.S. Market Access for the LeoSat Ka-band Low-Earth Orbit Satellite System, Order and
Declaratory Ruling, FCC 18-164 (rel. Nov. 19, 2018), 2018 WL 6075371 (LeoSat Order and Declaratory Ruling);
Space Exploration Holdings LLC; Application for Approval for Orbital Deployment and Operating Authority for the
SpaceX V-band NGSO Satellite System, Memorandum Opinion, Order and Authorization, FCC 18-161 (rel. Nov. 19,
2018), 2018 WL 6075368 (SpaceX V-band NGSO Authorization Order).
573
FCC Form 477 subscriber data, as of December 31, 2017.
574
Id.
575
Id.
576
Id.
577
WISPA Fixed Competition Comments at 10.
12649
Federal Communications Commission
FCC 18-181
are less effective. 578 However, with wireless technology advancements producing improving speeds that
“are approaching cable and ultimately will catch up to fiber,” fixed wireless service may over time
become a more attractive option for more consumers. 579
182.
With the deployment of new high-throughput satellites in 2017 and 2018, satellite
broadband providers can play an increasingly important role in helping close the digital divide across the
United States, especially in the most rural and remote areas of the country, where it may be uneconomical
to build terrestrial networks. 580 According to SIA, satellite broadband providers serve approximately 2
million subscribers in the United States at rates and speeds that meet and surpass the Commission’s 25
Mbps/3 Mbps fixed speed benchmark for advanced telecommunications capability. 581 The recent
launches and commencement of service of the high throughput satellites Jupiter 2/EchoStar XIX and
ViaSat-2 in the last two years by Hughes and ViaSat, respectively, have further increased 25 Mbps/3
Mbps satellite offerings. 582 Both Hughes and ViaSat have been awarded funding to serve remote areas
through the CAF II auction process. 583 The planned launches of next-generation GSO satellites Jupiter
3/EchoStar XXIV and ViaSat-3, and proposed low latency NGSO satellite constellations, may result in
higher-speed satellite broadband offerings in the future.
2.
Fixed Broadband Competition Data
183.
We provide an overall assessment of the number of fixed broadband provider options
deployed to consumers using Form 477 deployment data at five minimum speed thresholds—10 Mbps/1
Mbps, 25 Mbps/3 Mbps, 50 Mbps/5 Mbps, 100 Mbps/10 Mbps, and 250 Mbps/25 Mbps. Using this data
578
Id. at Attach. at 6. Currently, over 2,000 fixed wireless providers deliver services to approximately four million
customers and “each state has at least one fixed wireless provider,” with the largest concentrations of providers
located in the Midwest, Northwest, Southwest, and central and northern California. Id. Fixed wireless providers are
typically small and medium-sized businesses that “serve an average of 1,200 customers” in the United States. Id.
579
Id. at Attach. at 12, Fig. 6. In fact, “Google, AT&T, Verizon, Windstream, and other carriers have recently
announced plans to deploy more fixed wireless, generally as an extension of their wired services.” Id. at 16.
580
See SIA Fixed Competition Comments at 2.
581
Id. As of June 30, 2018, ViaSat had approximately 577,000 fixed broadband subscribers in the United States.
ViaSat, Viasat Announces First Quarter Fiscal Year 2019 Results (Aug. 9, 2018),
https://www.viasat.com/news/viasat-announces-first-quarter-fiscal-year-2019-results.
582
2018 Broadband Deployment Report, 33 FCC Rcd at 1681, para. 51; EchoStar Corporation, Form 10-K (For the
fiscal year ended December 31, 2017) at 8 (EchoStar Form 10-K), http://ir.echostar.com/static-files/d98e3836-bb154957-b05d-2743be5f110f; ViaSat, Inc., Form 10-K (For the fiscal year ended March 31, 2018) at 3 (ViaSat Form
10-K), http://investors.viasat.com/static-files/e75b82fb-e7df-4273-8212-984c1fd332fb; ViaSat, Viasat Announces
Highest-Speed, Unlimited Satellite Internet Service—Nationwide (Feb. 27, 2018),
https://www.viasat.com/news/viasat-announces-highest-speed-unlimited-satellite-internet-service-nationwide.
583
Hughes was awarded funding to serve 76,873 units in New York state, while ViaSat was a winning bidder in 20
states, potentially serving 190,575 locations. NYS Broadband Program Office, Phase 3 Awards,
https://nysbroadband.ny.gov/new-ny-broadband-program/phase-3-awards; Press Release, FCC, Connect America
Fund Auction to Expand Broadband to Over 700,000 Rural Homes and Businesses (Aug. 28, 2018); Wireline
Competition Bureau Announces FCC Deadlines For New York Broadband Program Winning Bidders, WC Docket
No. 10-90, Public Notice, DA 18-510 (May 18, 2018) at Attachment A (listing Hughes among applicants awarded
support through Phase 3 of New York’s New NY Broadband Program); Connect America Fund Phase II Auction
(Auction 903) Closes; Winning Bidders Announced; FCC Form 683 Due October 15, 2018, AU Docket No. 17-182,
WC Docket No. 10-90, Public Notice, DA 18-887 (Aug. 28, 2018) at Attachment A.
12650
Federal Communications Commission
FCC 18-181
and American Community Survey demographic data,584 we also offer an analysis to provide insight into
the demographics of areas that have multiple broadband providers, and those that do not.
a.
Data Sources and Methodologies
184.
In assessing fixed broadband competition, we rely primarily upon our Form 477
deployment data to evaluate consumers’ broadband options for fixed terrestrial services. 585 Consistent
with previous findings by the Commission, 586 the Form 477 data are currently the most accurate data
available to the Commission for this analysis. 587 The Form 477 deployment data are collected at the
census block level.588 For purposes of this analysis, a whole census block is classified as served if the
Form 477 data indicate that service can be provided anywhere in the census block. Therefore, it is not
necessarily the case that every household,589 housing unit, or person will have coverage of a service in a
census block that this analysis indicates is served. 590 Furthermore, although staff examine our Form 477
data for quality and consistency, the data may understate or overstate deployment of services to the extent
that broadband providers fail to report data or misreport data.591 Our deployment data for fixed terrestrial
584
For this analysis we examine population density, the number of households and median household income. We
rely upon the American Community Survey Five-Year Estimates 2012-2016 for Median Household Income (in 2016
inflation-adjusted dollars) reported at the census block group level.
585
On August 3, 2017, the Commission adopted a Further Notice of Proposed Rulemaking seeking comment on
ways to improve the quality and accuracy of information collected on Form 477. See generally Modernizing the
FCC Form 477 Data Program, Further Notice of Proposed Rulemaking, 32 Rcd 6329 (2017) (Form 477
Modernization FNPRM).
586
2018 Broadband Deployment Report, 31 FCC Rcd at 1677, para. 43.
587
The Commission continues to analyze whether, and how the Form 477 data collection might be revised to
address concerns about accuracy. See Modernizing the FCC Form 477 Data, FNPRM, 32 FCC Rcd, 6329, 6337,
paras. 26-27 (2017) (Form 477 Modernization). In this report, we use the best data available while recognizing
improvements to the data may be needed. We note that our analysis may understate or overstate consumers’ options
for services to the extent that broadband providers fail to report data or misreport data. See FCC, Explanation of
Broadband Deployment Data (Nov. 20, 2017), https://www.fcc.gov/general/explanation-broadband-deploymentdata (describing quality and consistency checks performed on providers’ submitted data and explaining any
adjustments made to the Form 477 data as filed).
588
For purposes of this form, fixed broadband connections are available to consumers in a census block if the
provider does, or could, within a service interval that is typical for that type of connection—that is, without an
extraordinary commitment of resources—provision two-way data transmission to and from the Internet with
advertised speeds exceeding 200 kbps in at least one direction to end-user premises in the census block. FCC, FCC
Form 477 Local Telephone Competition and Broadband Report Instructions at 17 (2016),
https://transition.fcc.gov/form477/477inst.pdf.
589
A household consists of all the people who occupy a housing unit. A house, an apartment or other group of
rooms, or a single room, is regarded as a housing unit when it is occupied or intended for occupancy as separate
living quarters; that is, when the occupants do not live with any other persons in the structure and there is direct
access from the outside or through a common hall. U.S. Census, Current Population Survey Subject Definitions
(Aug. 25, 2018), https://www.census.gov/programs-surveys/cps/technical-documentation/subjectdefinitions.html#household.
590
We note that these coverage estimates represent deployment of networks to consumers and do not indicate the
extent to which service providers affirmatively offer service to residents in the covered areas. Further, this analysis
likely overstates the coverage experienced by some consumers, especially in large or irregularly shaped census
blocks. We therefore acknowledge that this analysis may overstate or understate the deployment of fixed and mobile
services. See 2018 Broadband Deployment Report, 33 FCC Rcd at 1677, para. 43.
591
See FCC, Explanation of Broadband Deployment Data (Nov. 20, 2017),
https://www.fcc.gov/general/explanation-broadband-deployment-data (describing quality and consistency checks
performed on providers’ submitted data and explaining any adjustments made to the Form 477 data as filed).
12651
Federal Communications Commission
FCC 18-181
services are evaluated using 2010 census block population data that the Commission staff has updated to
account for population growth and economic development. 592
185.
Our analysis examines Form 477 consumer deployment data as of December 31, 2016,
and data as of December 31, 2017, for fixed terrestrial broadband provider options with a minimum
advertised speed of 10 Mbps/1 Mbps, 25 Mbps/3 Mbps, 50 Mbps/5 Mbps, 100 Mbps/10 Mbps, and 250
Mbps/25 Mbps. Data for the U.S. Territories is reported separately as it may not accurately reflect
damage to infrastructure in Puerto Rico and the U.S. Virgin Islands from Hurricanes Maria and Irma.
b.
Consumer Fixed Terrestrial Broadband Competition
186.
First, we present an evaluation of fixed terrestrial broadband deployment to consumers. 593
Figures D-1 and D-2 report estimates of the percentage of the U.S. population where Form 477 consumer
deployment data indicate that zero, one, two, and more than two providers of fixed terrestrial broadband
services are deployed as of December 31, 2016 and as of December 31, 2017. Focusing on the population
with access to two or more providers, the 2017 data shows that 83% of Americans have at least 2 options
for 10 Mbps/1 Mbps fixed terrestrial service, 70% have at least two options for 25 Mbps/3 Mbps fixed
terrestrial service, 65% have at least two options for 50 Mbps/5 Mbps service, 55% have at least two
options for 100 Mbps/10 Mbps service, and 25% have at least 2 options for 250 Mbps/25 Mbps service. 594
Comparing the data year over year also shows an increase in the service options available for all speed
tiers, where, for example, between 2016 and 2017, the percentage of the population with two or more
provider options offering 10 Mbps/1 Mbps service increased from 76% to 83%, and percentage of the
population with two or more provider options offering 25 Mbps/3 Mbps service increased from 58% to
70%. If we were to include satellite broadband in the analysis below, the Form 477 data indicate that
nearly all areas in the country 595 have access to satellite broadband as an alternative for fixed terrestrial
broadband service at both the 10 Mbps/1 Mbps and 25 Mbps/3 Mbps levels, but not yet at the higher
speeds. 596
592
FCC Staff developed population estimates for 2011-2017 by updating the 2010 census block population
estimates. These estimates are based upon annual U.S. Census mid-year county (or county-equivalent) level
population and housing unit estimates for the fifty states, the District of Columbia, and Puerto Rico. These data are
used in conjunction with U.S. Census Bureau Tiger data to indicate new roads, i.e., new housing development, to
distribute population amongst the census blocks comprising each county (or county-equivalent). FCC, Staff Block
Estimates, https://www.fcc.gov/reports-research/data/staff-block-estimates.
593
The Form 477 data discussed in this Chapter is exclusively focused on deployment to consumer end users.
Throughout this Chapter, percentages provided may not sum to exactly 100 due to rounding.
594
The percentage of the population with estimated number of fixed terrestrial provider options in a census block
equals the population with coverage from the specific number of providers (e.g., zero, one, two, more than two)
within the geographic area divided by the total population in census block.
595
The Form 477 deployment data for satellite broadband indicate that satellite service offering 25 Mbps/3 Mbps
speeds is available to all but 0.03% of the population. As we have noted in the past, these data could overstate the
availability of satellite services. While satellite signal coverage may enable operators to offer services to wide
swaths of the country, overall satellite capacity may limit the number of consumers that can actually subscribe to
satellite service at any one time. See Fourteenth Notice, FCC 18-119, para. 17, n.46; 2018 Broadband Deployment
Report, 33 FCC Rcd at 1681, para. 51, n.148.
596
We note that, more recently than reflected in the Measuring Broadband America Reports, satellite broadband
services are being offered at higher speeds. See Eighth MBA Report at 11 (noting that the maximum offered
download speed tier included in the report for Internet Service Providers using satellite technology is between 12-25
Mbps).
12652
Federal Communications Commission
FCC 18-181
187.
We next evaluate the population estimates and the percentage of the population with
coverage of multiple fixed terrestrial broadband service providers in rural and urban areas, and on Tribal
Lands. 597 Our analysis of the population shows that, in general, more Americans have multiple provider
597
We separately provide estimates of the percentage of the population with multiple provider options for fixed
terrestrial broadband services, for each state and the District of Columbia, as of December 31, 2017. See infra Fixed
Communications Market Appendices C-1, C-2, C-3, C-4 and C-5. For these figures, we aggregate census blocks
within a state by competitor count category, i.e., we group census blocks within each state by the number of
(continued….)
12653
Federal Communications Commission
FCC 18-181
options in 2017 than in 2016 regardless of the speed tier. Figures D-3 and D-4, below, show that for
rural areas, there was more than a 12 percentage point increase between 2016 and 2017 for 10 Mbps/1
Mbps service, more than a 14 percentage point increase for 25 Mbps/3 Mbps service, more than a 13
percentage point increase for 50 Mbps/5 Mpbs services, more than a 15 percentage point increase for 100
Mbps/10 Mbps service, and almost an 8 percentage point increase for 250 Mbps/25 Mbps service. In
urban areas there was an increase of almost 6 percentage points for 10 Mbps/1 Mbps service, an increase
of over 11 percentage points for 25 Mbps/3 Mbps services, an increase of 19 percentage points for 50
Mbps/5 Mbps service, an increase of over 30 percentage points for 100 Mbps/10 Mbps service, and an
increase of almost 20 percentage points for 250 Mbps/25 Mbps service. On Tribal lands, the change in
the percentage of the population with multiple provider options increased by over 2 percentage points for
10 Mbps/1 Mbps service, increased by almost 5 percentage points for 25 Mbps/3 Mbps service, increased
over 7 percentage point for 50 Mbps/5 Mbps service, increased 8 percentage points for 100 Mbps/10
Mbps service, and increased almost 3 percentage points for 250 Mbps/25 Mbps service. 598
Fig. D-3
Population (Millions) by Provider Options for Fixed Terrestrial Services (As of December 31, 2017)
Providers
10 Mbps/
1 Mbps
Pop.
%
25 Mbps/
3 Mbps
Pop.
50 Mbps/
5 Mbps
%
Pop.
100 Mbps/
10 Mbps
%
250 Mbps/
25 Mbps
%
Pop.
Pop.
%
7.7%
34.832
10.7% 120.479
37.0%
All Areas
Zero
8.905
2.7%
19.388
6.0%
25.242
One
47.149
14.5%
77.197
23.7%
89.665
27.5% 113.079
34.7% 124.157
38.1%
Two
129.139
39.6% 137.957
42.4% 142.683
43.8% 119.689
36.7%
50.250
15.4%
More than Two
140.523
43.1%
28.0%
20.9%
58.116
17.8%
30.829
9.5%
91.174
68.126
Rural Areas
Zero
6.850
10.7%
15.495
24.3%
19.798
31.0%
24.623
38.6%
39.913
62.6%
One
19.844
31.1%
24.492
38.4%
25.257
39.6%
24.849
39.0%
18.345
28.8%
Two
22.087
34.6%
17.862
28.0%
15.200
23.8%
11.728
18.4%
4.710
7.4%
(Continued from previous page)
competitors in the census block and add then sum the population in these census blocks by competitor count
category. The census blocks within a state are aggregated by the number of provider option (zero, one, two, and
more than two).
598
Our assessment of Tribal lands is conducted by examining the census blocks that have been identified by the
Census Bureau as federally recognized Tribal lands for the 2010 Census. These areas fall into one of the following
categories of AIANHHCC: (1) Joint Use Areas; (2) legal federally recognized American Indian area consisting of
reservation and associated off-reservation trust land; (3) legal federally recognized American Indian area consisting
of reservation only; (4) legal federally recognized American Indian area consisting of off-reservation trust land only;
(5) statistical American Indian area defined for a federally recognized Tribe that does not have reservation or offreservation trust land, specifically a Tribal designated statistical area (TDSA) or Oklahoma Tribal Statistical Area
(OTSA); (6) Alaskan Native village statistical area; and (7) Hawaiian Home Lands established by the Hawaiian
Homes Commission Act of 1921. Two categories of federally recognized areas were not designated by any census
block with a population (off-reservation trust land portion of an American Indian area with both a reservation and
off-reservation trust land; and the reservation portion of an American Indian area with both a reservation and offreservation trust land). We exclude state recognized areas from the analysis of Tribal lands. We note that the Tribal
Statistical Areas are largely in Oklahoma, but they also include areas in California, New York, and Washington.
12654
Federal Communications Commission
Providers
10 Mbps/
1 Mbps
Pop.
More than Two
15.002
%
23.5%
25 Mbps/
3 Mbps
Pop.
5.933
50 Mbps/
5 Mbps
%
9.3%
Pop.
3.527
%
FCC 18-181
100 Mbps/
10 Mbps
Pop.
%
250 Mbps/
25 Mbps
Pop.
%
5.5%
2.583
4.0%
0.815
1.3%
3.9%
80.566
30.8%
33.7% 105.812
40.4%
Urban Areas
Zero
2.055
0.8%
3.893
1.5%
5.444
2.1%
10.209
One
27.305
10.4%
52.705
20.1%
64.408
24.6%
88.231
Two
107.052
40.9% 120.095
45.8% 127.483
48.7% 107.960
41.2%
45.540
17.4%
More than Two
125.520
47.9%
32.5%
24.7%
55.533
21.2%
30.014
11.5%
85.240
64.599
Tribal Lands
Zero
0.688
17.1%
1.286
32.0%
1.552
38.6%
1.816
45.2%
2.397
59.7%
One
1.406
35.0%
1.450
36.1%
1.674
41.7%
1.724
42.9%
1.465
36.5%
Two
1.232
30.7%
0.846
21.1%
0.725
18.1%
0.435
10.8%
0.156
3.9%
More than Two
0.691
17.2%
0.435
10.8%
0.066
1.7%
0.043
1.1%
0.000
0.0%
Fig. D-4
Population (Millions) by Provider Options for Fixed Terrestrial Services (As of December 31, 2016)
Providers
10 Mbps/
1 Mbps
Pop.
%
25 Mbps/
3 Mbps
Pop.
50 Mbps/
5 Mbps
%
Pop.
100 Mbps/
10 Mbps
%
250 Mbps/
25 Mbps
%
Pop.
Pop.
%
9.7%
78.222
24.3% 181.723
56.3%
36.2%
All Areas
Zero
13.410
One
64.310
19.9% 108.549
33.7% 140.377
43.5% 156.727
48.6% 116.636
Two
153.811
47.7% 141.913
44.0% 125.586
38.9%
76.776
23.8%
22.677
7.0%
28.2%
14.2%
7.9%
10.794
3.3%
1.483
0.5%
More than Two
90.987
4.2%
26.146
45.911
8.1%
31.139
25.416
Rural Areas
Zero
10.489
16.7%
20.248
32.2%
23.665
37.6%
37.001
58.8%
52.896
84.1%
One
23.516
37.4%
28.226
44.9%
29.411
46.7%
21.421
34.0%
9.401
14.9%
Two
20.261
32.2%
11.938
19.0%
8.743
13.9%
4.088
6.5%
0.605
1.0%
8.660
13.8%
2.513
4.0%
1.106
1.8%
0.416
0.7%
0.023
0.0%
2.9%
41.221
15.9% 128.827
49.6%
41.3%
More than Two
Urban Areas
Zero
2.921
1.1%
5.897
One
40.794
15.7%
80.323
30.9% 110.966
42.7% 135.306
52.1% 107.234
Two
133.550
51.4% 129.974
50.1% 116.843
45.0%
72.688
28.0%
22.072
8.5%
31.7%
16.7%
9.4%
10.378
4.0%
1.460
0.6%
More than Two
82.328
43.398
2.3%
7.473
24.310
Tribal Lands
12655
Federal Communications Commission
Providers
10 Mbps/
1 Mbps
Pop.
%
25 Mbps/
3 Mbps
Pop.
50 Mbps/
5 Mbps
%
Pop.
%
FCC 18-181
100 Mbps/
10 Mbps
Pop.
%
250 Mbps/
25 Mbps
Pop.
%
Zero
0.791
19.8%
1.471
36.9%
1.722
43.1%
2.116
53.0%
2.661
66.7%
One
1.394
34.9%
1.444
36.2%
1.771
44.4%
1.719
43.1%
1.290
32.3%
Two
1.070
26.8%
0.728
18.3%
0.449
11.3%
0.131
3.3%
0.040
1.0%
More than Two
0.737
18.5%
0.348
8.7%
0.050
1.2%
0.025
0.6%
0.000
0.0%
188.
Figure D-5 presents an analysis of the Form 477 deployment data for the U.S. Territories
as of December 31, 2017. We caution that these data may significantly overstate current deployment in
Puerto Rico and the U.S. Virgin Islands given the damage to infrastructure in these areas from Hurricanes
Maria and Irma in 2017. We do not compare 2017 data to 2016 data because this may be misleading
about any gains in deployment that could have occurred in the U.S. Territories since 2016. The
December 31, 2017 data suggest that approximately 77.7% of the population in the U.S. Territories have
multiple provider options for 10 Mbps/1 Mbps, 58.3% have multiple provider options for 25 Mbps/3
Mbps and approximately 2.4% have multiple provider options for 50 Mbps/5 Mbps.
Fig. D-5
Population (Millions) by Provider Options for Fixed Terrestrial Services in the U.S. Territories
(As of December 31, 2017)
Providers
10 Mbps/
1 Mbps
Pop.
%
25 Mbps/
3 Mbps
Pop.
50 Mbps/
5 Mbps
%
Pop.
%
100 Mbps/
10 Mbps
Pop.
%
250 Mbps/
25 Mbps
Pop.
%
All Areas
Zero
0.273
7.4%
0.524
14.1%
1.451
39.1%
3.525
94.9%
3.525
94.9%
One
0.555
14.9%
1.026
27.6%
2.173
58.5%
0.188
5.1%
0.189
5.1%
Two
0.874
23.5%
1.501
40.4%
0.087
2.3%
0.003
0.1%
0.002
0.0%
More Than
Two
2.014
54.2%
0.664
17.9%
0.005
0.1%
0.000
0.0%
0.000
0.0%
189.
Figures D-6 to D-10 present a demographic analysis of the average percentage of the
population with coverage for the number of provider options and speed tiers by population density
quartile, median household income quartile and household count quartile. We observe that the number of
provider options increases with the number of households in the census block group, population density
and median household income. 599 In general, the census block groups in rural areas will have the lowest
population density and the lowest number of households, and are likely to have the largest percentage of
the population with zero provider options, i.e., no deployment of the reported service. 600
599
We use the American Community Survey (ACS) Five-Year Estimates 2012–2016 for income measures. Median
household income in the past twelve months is measured in 2016 Inflation-Adjusted Dollars.
600
For these figures, we aggregate census blocks within a census block group by competitor count category, i.e., we
group census blocks within a census block group by the number of competitors and then sum the population in these
census blocks by competitor count category. The census blocks within a state are aggregated by provider number
option groups (zero, one, two and more than two). The census block group is the smallest geographic area for which
income data is available.
12656
Federal Communications Commission
FCC 18-181
Fig. D-6
Average Percentage of Population With Multiple Provider Options for 10 Mbps/1 Mbps by Census
Block Group Demographic Variable (As of December 31, 2017)
Zero
One
Two
More Than Two
Population Density
First Quartile (Lowest Pop. Density)
10.1%
30.8%
35.1%
23.9%
Second Quartile
1.0%
14.3%
42.5%
42.3%
Third Quartile
0.5%
10.1%
40.1%
49.3%
Fourth Quartile (Highest Pop. Density)
0.5%
8.1%
37.6%
53.7%
Median Household Income($2016)
First Quartile (Lowest Median Household Income)
3.9%
22.4%
38.3%
35.4%
Second Quartile
4.2%
18.4%
39.3%
38.1%
Third Quartile
2.8%
14.1%
39.9%
43.2%
Fourth Quartile (Highest Median Household Income)
1.0%
7.7%
38.4%
52.9%
Number of Households
First Quartile (Lowest Household Count)
3.9%
18.9%
37.7%
39.5%
Second Quartile
3.2%
16.3%
37.7%
42.9%
Third Quartile
2.9%
15.4%
38.9%
42.8%
Fourth Quartile (Highest Household Count)
2.1%
12.6%
41.2%
44.1%
Fig. D-7
Average Percentage of Population with Multiple Provider Options for 25 Mbps/3 Mbps by Census
Block Group Demographic Variable (As of December 31, 2017)
Zero
One
Two
More Than Two
Population Density
First Quartile (Lowest Pop. Density)
23.0%
39.7%
28.1%
9.1%
Second Quartile
2.2%
27.9%
45.6%
24.3%
Third Quartile
0.9%
20.5%
46.7%
31.9%
Fourth Quartile (Highest Pop. Density)
0.8%
14.7%
42.6%
42.0%
Median Household Income($2016)
First Quartile (Lowest Median Household Income)
8.1%
34.6%
37.4%
19.9%
Second Quartile
9.5%
29.2%
39.8%
21.4%
Third Quartile
6.8%
24.0%
42.4%
26.9%
Fourth Quartile (Highest Median Household Income)
2.1%
14.2%
44.4%
39.3%
12657
Federal Communications Commission
Zero
FCC 18-181
One
Two
More Than Two
Number of Households
First Quartile (Lowest Household Count)
8.4%
29.7%
36.9%
25.0%
Second Quartile
7.4%
26.6%
39.1%
26.9%
Third Quartile
6.7%
25.0%
41.9%
26.4%
Fourth Quartile (Highest Household Count)
4.4%
21.4%
45.2%
29.0%
Fig. D-8
Average Percentage of Population with Multiple Provider Options for 50 Mbps/5 Mbps by Census
Block Group Demographic Variable (As of December 31, 2017)
Zero
One
Two
More Than Two
Population Density
First Quartile (Lowest Pop. Density)
28.9%
41.4%
24.3%
5.4%
Second Quartile
3.2%
33.5%
45.6%
17.6%
Third Quartile
1.3%
25.1%
50.3%
23.3%
Fourth Quartile (Highest Pop. Density)
0.9%
17.0%
46.8%
35.3%
Median Household Income($2016)
First Quartile (Lowest Median Household Income)
9.8%
38.8%
37.5%
13.9%
Second Quartile
12.0%
32.6%
39.9%
15.5%
Third Quartile
9.2%
27.5%
43.2%
20.2%
Fourth Quartile (Highest Median Household Income)
3.0%
17.5%
47.4%
32.0%
Number of Households
First Quartile (Lowest Household Count)
10.4%
32.8%
37.5%
19.3%
Second Quartile
9.5%
30.1%
39.9%
20.6%
Third Quartile
8.6%
28.7%
42.7%
20.0%
Fourth Quartile (Highest Household Count)
5.9%
25.5%
47.0%
21.7%
Fig. D-9
Average Percentage of Population with Multiple Provider Options for 100 Mbps/10 Mbps by
Census Block Group Demographic Variable (As of December 31, 2017)
Zero
One
Two
More Than Two
Population Density
First Quartile (Lowest Pop. Density)
36.4%
40.9%
18.8%
4.0%
Second Quartile
6.4%
41.5%
37.6%
14.5%
Third Quartile
2.5%
35.3%
42.8%
19.3%
12658
Federal Communications Commission
Zero
1.4%
Fourth Quartile (Highest Pop. Density)
One
25.0%
FCC 18-181
Two
41.1%
More Than Two
32.5%
Median Household Income($2016)
First Quartile (Lowest Median Household Income)
13.9%
43.9%
30.6%
11.5%
Second Quartile
16.1%
38.2%
33.0%
12.7%
Third Quartile
12.2%
34.4%
36.2%
17.2%
Fourth Quartile (Highest Median Household Income)
4.2%
25.8%
41.2%
28.7%
Number of Households
First Quartile (Lowest Household Count)
13.5%
38.1%
31.3%
17.0%
Second Quartile
12.8%
35.9%
33.4%
17.9%
Third Quartile
11.8%
35.2%
35.8%
17.2%
Fourth Quartile (Highest Household Count)
8.6%
33.6%
39.7%
18.1%
Fig. D-10
Average Percentage of Population with Multiple Provider Options for 250 Mbps/25 Mbps by
Census Block Group Demographic Variable (As of December 31, 2017)
Zero
One
Two
More Than Two
Population Density
First Quartile (Lowest Pop. Density)
61.3%
30.0%
7.5%
1.2%
Second Quartile
37.2%
40.4%
16.2%
6.2%
Third Quartile
29.3%
44.1%
17.7%
8.9%
Fourth Quartile (Highest Pop. Density)
22.4%
36.4%
18.7%
22.6%
Median Household Income($2016)
First Quartile (Lowest Median Household Income)
45.1%
37.7%
11.3%
5.8%
Second Quartile
44.1%
37.4%
12.5%
6.0%
Third Quartile
37.3%
38.4%
15.4%
8.9%
Fourth Quartile (Highest Median Household Income)
23.5%
37.5%
21.0%
18.0%
Number of Households
First Quartile (Lowest Household Count)
39.1%
36.6%
13.9%
10.4%
Second Quartile
37.9%
36.9%
14.6%
10.6%
Third Quartile
37.4%
38.1%
15.1%
9.4%
Fourth Quartile (Highest Household Count)
35.8%
39.2%
16.5%
8.5%
190.
Figures D-11 through D-15 present a visual analysis of population that have at least two
options for fixed terrestrial providers across the different speed tiers as of December 31, 2017. This
analysis focuses on the estimated average percentage of the population with two or more provider options
and examines this percentage simultaneously by population density and income quantiles. For this
analysis, census block group data are grouped into 400 density/income quantiles based upon population
12659
Federal Communications Commission
FCC 18-181
per square mile and median household income. 601 Each column in a figure represents one of these
combinations. For each quantile, the height of the grid represents the population-weighted average ratio
of the population with at least two provider options to the population across the census block groups in
the decile.602
191.
Each figure has three axes (x, y, and z). The x axis shows population density, ranging
from the lowest population density to the highest population density, and the y axis shows the median
household income ranging from lowest income to highest income. The vertical axis (z) shows the
average percentage of the population with at least two provider options, ranging from 0% to 100%. These
percentages are grouped into five color coded categories (0% to less than 20%, 20% to less than 40%,
40% to less than 60%, 60% to less than 80%, and 80% to 100%). By presenting the data in this manner,
the relationship of both population density and household income on the incidence of multiple provider
options can be visualized simultaneously. For example, in Figure D-11, the uppermost right corner shows
that the census blocks with the highest population density (the x axis) and the highest median household
income (the y axis) have at least two providers close to 100% of the time (the z axis). In general, the
figures demonstrate that both variables appear to influence the incidence of multiple provider options.
601
We use the American Community Survey (ACS) Five-Year Estimates 2012–2016 for income measures. Median
household income in the past twelve months is measured in 2016 Inflation-Adjusted Dollars
602
We exclude from this analysis any census block group with a zero population.
12660
Federal Communications Commission
12661
FCC 18-181
Federal Communications Commission
12662
FCC 18-181
Federal Communications Commission
3.
FCC 18-181
Regulatory and Market Barriers
192.
We also assess barriers to competitive entry Identifying regulations that act as roadblocks
to Internet service providers’ investment in their networks and infrastructure, as well as market entry
barriers for emerging and small Internet service providers, are key to assessing the current state of
broadband competition. 603 While commenters highlight in the record some of the recent Commission
efforts to eliminate regulatory barriers to network investment and deployment, 604 they also point to
numerous other existing barriers that constrain the development of a robust broadband marketplace.
These barriers include geography, existing Commission regulations—many of which are currently under
review—local and state regulations, and a lack of access to spectrum resources.
193.
The record indicates that a major barrier to additional competition throughout the United
States is the high costs and low population densities common in rural parts of the country. 605 USTelecom
comments that “[t]he economics of providing broadband at affordable and nationally comparable rates in
many rural areas is difficult and in some cases prohibitive for wired providers who must deploy facilities
all the way to end user locations.” 606 The American Cable Association (ACA) identifies the costs
associated with service upgrades in less competitive rural markets as a deterrent for small cable operators
with modest profit margins and limited access to capital. 607 An additional barrier to fixed broadband
competition in rural communities is the dearth of wholesale fiber providers with access to longer term
financing that could facilitate providing fiber networks in these communities.608
194.
While numerous commenters commend the Commission for its efforts to remove
regulatory barriers to broadband deployment, 609 some also allege that regulatory barriers remain. 610
603
See 47 U.S.C. § 257(a). See also 47 U.S.C. § 163(c) (stating that in the course of conducting a review of the state
of competition and regulatory barriers in the communications marketplace, “the Commission shall consider market
barriers for entrepreneurs and other small businesses . . . in accordance with . . . [47 U.S.C. § 257(b)].”).
604
See NCTA Fixed Competition Comments at 11-12; ACA Fixed Competition Comments at 8-9; ADTRAN Fixed
Competition Comments at 9.
605
See USTelecom Fixed Competition Comments at Exh. B at 7 (Patrick Brogan, VP of Industry Analysis, U.S.
Broadband Availability Year-End 2016, 7 (February 22, 2018)). Indeed, the deployment data illustrated above in
figures 1 through 4 support these assertions.
606
USTelecom Fixed Competition Comments at Exh. B at 7 (Patrick Brogan, VP of Industry Analysis, U.S.
Broadband Availability Year-End 2016, 7 (February 22, 2018)). As a potential solution, USTelecom advocates for
“the Commission to fully fund programs such as CAF and find other means to assist providers in closing the digital
divide.” USTelecom Fixed Competition Comments at 6.
607
ACA Fixed Competition Comments at 7.
608
EFF Fixed Competition Comments at 5.
609
Some commenters claim that recent Commission actions, such as the 2017 decisions to return to a light-touch
regulatory regime under Title I and to deregulate the rates for business data services, where competition exists or is
likely to exist and reject regulation of packet-based services offered by competitive providers, precipitated increased
network investment and increased marketplace competition. See NCTA Fixed Competition Comments at 11; see
also ACA Fixed Competition Comments at 8 (“By restoring the classification of broadband Internet access service
as an information service, the Commission has freed ACA members from the heavy costs of regulatory compliance
and uncertainty under a Title II regime. . . . ACA members can now invest their limited resources in improving and
expanding their broadband networks with renewed confidence.”). But see Common Cause et al. Fixed Competition
Comments at 11 (“Deregulating the BDS market has detrimental impact on more than just businesses which rely on
it. . . . The Commission’s move to deregulate and exacerbate this already lucrative profit margin for incumbents was
and is bad for consumers.”); ADTRAN Fixed Competition Comments at 9. Similarly, the record commends
Commission efforts to streamline pole attachment and discontinuance procedures for facilitating easier, faster, and
less expensive deployment. See NCTA Fixed Competition Comments at 12; ACA Fixed Competition Comments at
9 (“The Commission’s recent pole attachment reforms should make the process faster, less expensive, and more
transparent, paving the way for more fixed broadband upgrades and new deployments, and with them increased
(continued….)
12663
Federal Communications Commission
FCC 18-181
Among the barriers cited are the subsidization of LECs, 611 conflicting Connect America Fund (CAF)
subsidy requirements, 612 duplicative franchise fees imposed on broadband and other new services over the
same network, 613 rates that exceed a locality’s costs for access to public rights-of-way and poles, 614 and
excessive pole attachment fees charged by electric cooperatives.615 The record also reflects some
commenters’ views that exclusive agreements and revenue sharing agreements between landlords of
multiple tenant environments (MTEs) and fixed broadband providers that prevent other Internet service
providers from offering service to tenants pose a barrier to a competitive fixed marketplace, even in areas
where there are multiple providers.616
(Continued from previous page)
competition.”); ADTRAN Fixed Competition Comments at 9. But see Common Cause et al. Fixed Competition
Comments at 9-10 (“[T]he Commission’s gutting of Section 214 Discontinuance rules will result in a downgrade for
American consumers who still rely on the copper network (particularly rural Americans).”).
610
Numerous commenters also address the Commission’s Form 477 data collection policy, either expressing
frustration over current collection practices, suggesting preservation of current requirements, or advocating that any
changes made to the FCC Form 477 data collection not impose greater burdens on smaller providers that are
necessary to achieve the goals of collection. See new America Fixed Competition Comments at 2; WISPA Fixed
Competition Comments at 18; ACA Fixed Competition Comments at 12; Verizon Fixed Competition Comments at
12; INCOMPAS Fixed Competition Comments at 6, 12-13. The Commission is currently considering a proceeding
to review the Form 477 filing requirements. See Form 477 Modernization FNPRM, 32 FCC Rcd at 6329-30, para.
1.
611
NCTA Fixed Competition Comments at 14 (citing the subsidization of LECs “at the expense of all other
providers” as a policy that impedes closing the digital divide and growing broadband competition).
612
ACA Fixed Competition Comments at 15 (arguing that the Commission should not allow “CAF funds to
subsidize overbuilds of privately funded networks in the territories served by price-cap carriers”). New America
contends that Internet service providers tend to invest the minimum required to obtain a CAF subsidy in areas where
there is no competition and focus greater investment in competitive areas. New America Fixed Competition
Comments at 16. EchoStar and Hughes express frustration over the CAF Phase II bidding process and what they
call its “penalty on latency”– “the one service characteristic that satellite providers uniquely cannot control.”
EchoStar and Hughes Aug. 17, 2018 Comments at 5.
613
NCTA Fixed Competition Comments at 15 (contending that “prohibiting local governments from imposing
duplicative franchise requirements on broadband and other new services provided over the same network,” would
encourage greater deployment).
614
Verizon Fixed Competition Comments at 10-11 (arguing that “constru[ing] Section 253(a) to preclude rates that
exceed a locality’s costs for access to public rights-of-way and poles” will remove roadblocks to the installation of
equipment and facilities required for small cell and fiber deployment); see also INCOMPAS Fixed Competition
Comments at 7. INCOMPAS supports (1) strengthening shot clocks applicable to wireless siting applications, and
(2) limiting rights-of-way use charges and siting application fees, consistent with Sections 253 and 332. Id.
615
ACA Fixed Competition Comments at 10 (“[U]rg[ing] the Commission to recommend to Congress that it enact
legislation to bring electric cooperatives under Commission authority, placing them on the same playing field as the
investor-owned utilities the Commission regulates today.”). Some commenters express frustration over stateimposed barriers to broadband deployment, such as laws that restrict or prohibit municipal broadband. New
America Fixed Competition Comments at 8-14; ACA Fixed Competition Comments at 10; Common Cause et al.
Fixed Competition Comments at 13 (“Municipal broadband, or broadband provided by citizens as a utility, is an
innovative practice that spurs competition while narrowing the digital divide.”). In 2016, the Sixth Circuit
concluded that the FCC could not preempt state statutory provisions that limited a municipality from expanding the
service area of its own municipal-owned network. See Tennessee v. FCC, 832 F.3d 597, 597 (6th Cir. 2016).
616
See New America Fixed Competition Comments at 18; Common Cause et al. Fixed Competition Comments at
15-17; INCOMPAS Fixed Competition Comments at 5, 10-11. The Commission has sought comment on the effect
of state and local regulatory barriers, exclusive marketing and bulk billing agreements, revenue sharing agreements,
and exclusive wiring agreements on the current state of broadband competition in MTEs. See Improving
(continued….)
12664
Federal Communications Commission
FCC 18-181
195.
Some commenters identify technology-specific barriers. According to WISPA, an
existing barrier to the ability of fixed wireless broadband to compete with incumbent fixed services is the
lack of availability of government subsidies to aid deployment. 617 WISPA contends that another barrier
for fixed wireless broadband is the “absence of comprehensive and consistent spectrum infrastructure
policy” as many fixed wireless providers who rely on spectrum currently have limited access to dedicated
spectrum resources. 618
196.
Regarding satellite broadband, SIA contends that to enable further competition, the
Commission should “ensure that its regulations are technology neutral, including for the allocation of
scarce resources, such as spectrum and funding.” 619 EchoStar and Hughes assert that another barrier for
satellite broadband is failure to harmonize spectrum regionally and internationally, which, among other
things, “creates a significant technical barrier, and competitive hurdle for satellite providers, endangering
[ ] the emergence of existing and planned next generation satellite networks.” 620
197.
The Commission remains committed to addressing where possible regulatory and market
barriers to broadband deployment to help ensure that as many Americans as possible receive the benefits
of broadband competition. The Commission’s past and future efforts towards this end are discussed later
in this Report. 621
198.
ISP Transparency and Identifying and Eliminating Market Barriers for Entrepreneurs
and Small Businesses Accessing and Provisioning Broadband Internet Access Service. The Restoring
Internet Freedom Order, 622 which modified the transparency requirements that apply to Internet service
providers, took effect on June 11, 2018. 623 As the Commission explained in that order, information about
(Continued from previous page)
Competitive Broadband Access to Multiple Tenant Environments, Notice of Inquiry, GN Docket No. 17-142, 53875389, paras. 11-15 (2017).
617
WISPA Fixed Competition Comments at 16 (expressing frustration that larger incumbents are awarded
government subsidies to deploy broadband in the same geographic area where the small wireless Internet service
provider has already used its own capital to invest in equipment and infrastructure).
618
WISPA Fixed Competition Comments at 16; GeoLinks Comments, GN Docket No. 18-231, at 1-3 (Aug. 17,
2018) (arguing that the opportunity to obtain additional access to additional spectrum resources, would allow fixed
wireless providers to better compete with traditional fixed broadband providers by enabling them to “deliver
enterprise-grade connections that rival those of traditional, wired broadband providers”); Common Cause et al.
Fixed Competition Comments at 15 (“[T]he Commission should consider spectrum reforms that enhance the
deployment of fixed wireless to rural America.”).
619
SIA Fixed Competition Comments at 3; see also EchoStar and Hughes Fixed Competition Comments at 4-9.
620
EchoStar and Hughes Fixed Competition Comments at 9.
621
See infra. Section III.B., IV.B.
622
Restoring Internet Freedom Order, 33 FCC Rcd 311.
623
Wireline Competition Bureau Announces Effective Date of Restoring Internet Freedom Order, WC Docket No.
17-108, Public Notice, DA 18-485 (WCB May 11, 2018), https://www.fcc.gov/document/wcb-announces-effectivedate-restoring-internet-freedom-order. While Congress repealed the triennial reporting requirement of section 257(c)
earlier this year, it replaced that provision with a biennial reporting requirement codified at 47 U.S.C. § 163. See
RAY BAUM’S Act of 2018, Pub. L. No. 115-141, Div. P, §§ 401, 402(f), 132 Stat. at 1087-89. Like the nowrepealed section 257(c), section 163 continues to require the Commission to report to Congress periodically on
“market entry barriers for entrepreneurs and small businesses in the communications marketplace.” 47 U.S.C.
§ 163(d)(3). Congress thus recodified the reporting requirement of section 257(c) under another provision of the
Communications Act. And a savings clause in the legislation confirmed that “[n]othing in this title or the
amendments made by this title shall be construed to expand or contract the authority of the Commission.” Pub. L.
No. 115-141, Div. P, § 403, 132 Stat. at 1090. As a result, nothing in the new legislation altered the FCC’s authority
to adopt a transparency rule so that the agency can collect the information it needs to perform its statutory duty to
report to Congress on market entry barriers.
12665
Federal Communications Commission
FCC 18-181
how Internet service providers manage their networks assists entrepreneurs and other small businesses,
including edge providers, as they “judge which broadband Internet access service offerings will best meet
their needs given the applications and service they wish to use.” 624 The transparency requirements also
reduce barriers for entrepreneurs and small businesses who wish to enter the market for the provision of
broadband Internet access services. 625
199.
In keeping with our ongoing obligation to “identify[] and eliminat[e] . . . market entry
barriers for entrepreneurs and other small businesses,”626 Commission staff conducted a review of Internet
service provider compliance with the revised disclosure requirements.627 The Commission staff review
found that all Internet service providers with more than 100,000 subscribers, based on FCC Form 477
data, were in compliance with the transparency requirements at the time of the review. 628 These Internet
service providers collectively serve over 99% of mobile Internet service provider subscribers and over
94% of fixed Internet service provider subscribers. The overwhelming majority of entrepreneurs and
small businesses are therefore able to “make the most educated choice among Internet service providers
and particular broadband Internet access service offerings.” 629 Commission staff also reviewed the
disclosures of each of the remaining Internet service providers in the United States based on FCC Form
477 data, finding that the vast majority of smaller Internet service providers at the time of the review were
complying with the transparency requirements. Commission staff are currently taking steps to help
ensure that all smaller Internet service providers come into compliance with the transparency
requirements. 630
4.
Investment Trends
200.
Recent marketplace developments suggest that increased investments by Internet service
providers should, over time, increase broadband competition. For instance, according to USTelecom, in
2017 broadband providers invested approximately $76.3 billion dollars in network infrastructure, an
624
Restoring Internet Freedom Order, 33 FCC Rcd at 447, para. 233; see id. at 446 n.850 (describing examples of
applications which may require quality-of-service guarantees from Internet service providers).
625
47 U.S.C. § 257(a); see Restoring Internet Freedom Order, 33 FCC Rcd at 446, para. 233.
626
See 47 U.S.C. § 257(a). See also 47 U.S.C. § 163(c) (stating that in the course of conducting a review of the state
of competition and regulatory barriers in the communications marketplace, “the Commission shall consider market
barriers for entrepreneurs and other small businesses . . . in accordance with . . . [47 U.S.C. § 257(b)].”).
627
Internet service providers can either post their transparency disclosures on a “publicly available, easily accessible
website” or transmit them to the Commission, which posts them at CG Docket No. 18-142. Restoring Internet
Freedom Order, 33 FCC Rcd at 444, para. 229; FCC, ISP Transparency Disclosures Portal,
https://www.fcc.gov/isp-disclosures.
628
The subscriber count is based on FCC Form 477 data.
629
Restoring Internet Freedom Order, 33 FCC Rcd at 447, para. 233.
630
Internet service providers with fewer than 100,000 subscribers (later increased to Internet service providers with
fewer than 250,000 subscribers) were exempt from the enhanced transparency requirements adopted in the Title II
Order. See Protecting and Promoting the Open Internet, Report and Order on Remand, Declaratory Ruling, and
Order, 30 FCC Rcd 5677-79, paras. 172-75 (2015) (Title II Order); Small Business Exemption From Open Internet
Enhanced Transparency Requirements, GN Docket No. 14-28, Order, 32 FCC Rcd 1772 (2017). The enhanced
transparency requirements were eliminated by the Restoring Internet Freedom Order. 33 FCC Rcd at 442-43, paras.
225-226. However, the transparency requirements adopted in the Open Internet Order in 2010, affirmed by the D.C.
Circuit in Verizon v. FCC, 740 F.3d 623, 659 (D.C. Cir. 2014), and reaffirmed and refined in the Restoring Internet
Freedom Order continue apply to all Internet service providers, regardless of size. Preserving the Open Internet,
Broadband Industry Practices, Report and Order, 25 FCC Rcd 17936-40, paras. 53-58 (2010) (Open Internet
Order); Restoring Internet Freedom Order, 33 FCC Rcd at 444, para. 227.
12666
Federal Communications Commission
FCC 18-181
increase of $1.5 billion over 2016 levels. 631 Such an increase marked a reversal from the declines in
investment observed in 2015 and 2016 when the Commission regulated broadband providers under Title
II of the Communications Act. 632 Multiple commenters cite the substantial investment in higher speed
services by Internet service providers as evidence of a competitive marketplace.633 According to these
commenters, this investment by Internet service providers has resulted in aggressive and ongoing efforts
by competing Internet service providers to upgrade their networks, facilities, and services, which will
likely continue into the future especially with the anticipated deployment of 5G networks. 634 For
instance, NCTA claims that cable operators have spent over $50 billion upgrading their networks over the
last three years in direct response to aggressive competition in the broadband marketplace. 635 ACA also
reports that in order to keep pace with competitors, its members “invested more than $10 billion to
expand and upgrade their broadband networks” between 2013 and 2017 and “continue to invest more than
$1 billion annually.” 636 Similarly, Verizon claims that it faces “nearly ubiquitous competition from cable
providers” and that the “advanced services that Verizon brings prompts those competitors to upgrade their
own facilities and services.” 637
201.
In his analysis of FCC Form 477 data, Dr. George S. Ford supports these claims of
competition among fixed Internet service providers, finding that Comcast “faces competition from one of
the six largest broadband providers at the 25/3 level in 74% of its territory where another provider offers
service” and at the 10/1 Mbps level from “another large provider of broadband across 81% of its
footprint.” 638 He also found that “AT&T faces competition from another of the large providers of
broadband across 81% of its broadband footprint at the 25/3 level, and 88% at the 10/1 Mbps level.” 639
202.
At the same time, despite these encouraging levels of Internet service provider network
investments, some commenters suggest that fixed broadband competition could improve, 640 and we agree
that we must continue efforts to promote broadband deployment and competition. For instance, several
commenters assert that even when multiple fixed broadband providers are available in a market, one
single incumbent provider tends to dominate the market share. 641 FCC Form 477 subscription data
indicates that this is the case in some, but certainly not all instances. These commenters also discuss the
631
See Patrick Brogan, VP, Industry Analysis, USTelecom, U.S. Broadband Investment Rebounded in 2017, 1 (Oct.
18, 2018).
632
Id. at 1-2.
633
See, e.g., USTelecom Fixed Competition Comments at 3-4, Exh. A at 18 (Patrick Brogan, VP Industry Analysis,
USTelecom Industry Metrics and Trends 2018, 18 (March 1, 2018)); NCTA Fixed Competition Comments at 8;
ACA Fixed Competition Comments at 15.
634
See, e.g., NCTA Fixed Competition Comments at 8; ACA Fixed Competition Comments at 15; Verizon Fixed
Competition Comments at 7.
635
NCTA Fixed Competition Comments at 8 (“Cable operators have been consistently upgrading their networks for
years, investing over $50 billion in the last three years alone, and by the end of 2018 they are expected to offer
gigabit services reaching 70 to 75% of American households. There would be no reason for cable operators to
invest in these upgrades if they were not competing aggressively in the broadband marketplace.”).
636
ACA Fixed Competition Comments at 15.
637
Verizon Fixed Competition Comments at 7.
638
Dr. George S. Ford, Rhetoric Aside: What the Data Actually Say About Broadband Deployment, Perspectives:
Phoenix Center for Advanced Legal & Economic Public Policy Studies, 6 (Sept. 4, 2018).
639
Id.
640
See Common Cause et al. Fixed Competition Comments at 15; New America Fixed Competition Comments at 2.
641
Common Cause et al. Fixed Competition Comments at 15.
12667
Federal Communications Commission
FCC 18-181
limited broadband options in rural America, 642 and the FCC Form 477 data show that competitive options
for broadband are more limited in rural areas.643 We agree that the business case to serve rural areas is
often more difficult, which is why the Commission has consistently worked to provide universal service
funding to rural areas and decrease the costs of the broadband investment,644 an effort we are committed
to continuing. 645
E.
Voice Telephone Services
203.
Although the public switched telephone network used to be the only means to connect,
there now exists a multitude of other voice service options for consumers. We focus on interconnected
voice in our reporting, but acknowledge there are many other types of telecommunications offerings,
including apps running solely on data networks that are nearly indistinguishable to the consumer from the
core communications functionality of the public switched telephone network, and nearly indistinguishable
to providers and the Commission from other network data traffic. Many of these apps combine the
benefits of voice, video, and text communication into one data-based service.
204.
Modern interconnected voice services are divided between fixed and mobile voice. Fixed
is further divided into traditional switched access connections and interconnected VoIP. VoIP is voice
carried simply as data over an Internet Protocol network, and can be a voice service that is bundled with
the underlying broadband connection or offered independent of the necessary data service (“over the top”,
or “OTT”).
205.
Fixed Voice. There are two fixed technologies through which retail voice subscriptions
are provided: traditional switched access and interconnected VoIP subscriptions. Our most recent data
from the June 2017 Form 477 show there are 55 million end-user switched access lines, including 22.5
million residential lines, and 64 million interconnected VoIP subscriptions, including 40 million
residential subscriptions. 646 Of these combined 119 million fixed retail voice telephone service
subscriptions, 53% were residential connections, and 47% were business connections. 647 The relative
growth trends between fixed switched access and interconnected VoIP services are illustrative. The
number of fixed retail switched-access lines declined over the past three years at a compound annual
growth rate of 11%, while interconnected VoIP subscriptions increased a compound annual growth rate of
8%. 648 Unsurprisingly, the number of fixed switched access providers also decreased, with 1,014
providers reporting fixed end-user switched access lines in June 2017, down from 1,029 in June 2016. 649
There were also 1,078 providers of interconnected VoIP subscriptions in June 2017, up from 1,004 a year
earlier. 650 As of June 2017, residential fixed voice connections were about 36% switched access and 64%
interconnected VoIP, with residential switched access connections comprising only 18.8% of all fixed
retail voice connections. 651
642
See Common Cause et al. Fixed Competition Comments at 13 (“[O]ver 31% of Americans with a rural zip code
lack access to high speed internet at home. . . . [and] often only have one choice in service providers.”); WISPA
Fixed Competition Comments at 2-3; ADTRAN Fixed Competition Comments.
643
See infra Table 1.
644
See infra Section III.B.
645
See infra Section IV.B.
646
FCC, Voice Telephone Services: Status as of June 30, 2017 at 2, (2018).
647
FCC, Voice Telephone Services: Status as of June 30, 2017 at 2, (2018).
648
FCC, Voice Telephone Services: Status as of June 30, 2017 at 2, (2018).
649
FCC, Voice Telephone Services: Status as of June 30, 2017, Table 2, (2018).
650
FCC, Voice Telephone Services: Status as of June 30, 2017, Table 2, (2018).
651
FCC, Voice Telephone Services: Status as of June 30, 2017, Figure 2, (2018).
12668
Federal Communications Commission
FCC 18-181
206.
Mobile Voice. In June 2017, our Form 477 data indicate there were 336 million mobile
subscriptions in the United States, representing an increase in mobile voice subscriptions at a compound
annual growth rate of 2% over the previous three years. 652 The number of households that eschew fixed
subscriptions altogether in favor of relying solely on mobile services has been increasing. Approximately
54% of all households were mobile-only in late 2017, with the percentage of adults living in mobile-only
households decreasing as age increased. 653 In the age group 25-29, over 75% of adults lived in mobileonly households; 73.3% of those aged 30-34 lived in mobile-only households; 64.5% of those aged 35-44
lived in mobile-only households; 48.1% of those aged 45-64 lived in mobile-only households; and 26.4%
of those 65 and older lived in mobile-only households. 654 Yet even in these older groups, the proportion
of adults living in mobile only households has increased in recent years; among those aged 45 and older,
the percentage has increased from 36.2% in 2014 to 40.4% in late 2017. 655 About 3.2% of households
had neither mobile nor fixed voice subscriptions, as of late 2017. 656
207.
Over the Top. Fixed VoIP carriers distinguish over the top (“OTT”) VoIP where the
consumer uses an independent data service over a broadband connection, from all other types of
interconnected VoIP. 657 The June 2017 Form 477 data show 7.8 million OTT VoIP subscriptions, with
far more non-OTT VoIP, numbering 56.7 million subscriptions. 658 Mobile VoIP presents a more
complicated picture, given the plethora of communications apps in smartphone app ecosystems. Figures
on how customers use these apps for voice communication are not reported on Form 477, as many of
them do not permit users to receive calls that originate on the public switched telephone network or
terminate calls on the public switched telephone network, and therefore not classified as interconnected
VoIP. 659 The dynamic nature of this subsector makes it difficult to quantify the number of users, though
we find that consumers benefit from the ever evolving choices available to meet their voice
communication needs.
F.
The Satellite Market
208.
We next assess the state of competition to deliver voice, video, audio, and data services
by providers of satellite communications. 660 Satellite communications services constitute a technology
sector that participates in multiple marketplaces. Our analysis and the comments we received indicate
that providers of satellite communications offer a wide range of services across the United States and
globally today. 661
652
FCC, Voice Telephone Services: Status as of June 30, 2017 at 2, (2018).
653
U.S. Department of Health and Human Services, National Center for Health Statistics, Wireless Substitution:
Early Release of Estimates From the National Health Interview Survey, July-December 2017 at 1-2 (2018).
654
U.S. Department of Health and Human Services, National Center for Health Statistics, Wireless Substitution:
Early Release of Estimates From the National Health Interview Survey, July-December 2017 at 2 (2018).
655
U.S. Department of Health and Human Services, National Center for Health Statistics, Wireless Substitution:
Early Release of Estimates From the National Health Interview Survey, July-December 2017 at 2 (2018).
656
U.S. Department of Health and Human Services, National Center for Health Statistics, Wireless Substitution:
Early Release of Estimates From the National Health Interview Survey, July-December 2017 at 2 (2018).
657
FCC, Voice Telephone Services: Status as of June 30, 2017 at 1, (2018).
658
FCC, Voice Telephone Services: Status as of June 30, 2017 Figure 3, (2018).
659
47 C.F.R. § 9.3. Examples of these services are apps such as Skype, Facebook Messenger, Facetime, WhatsApp.
660
RAY BAUM’S Act § 401, 132 Stat. at 1087-88; 47 U.S.C. § 163(b)(1) (requiring the Commission to assess the
state of competition in the communications marketplace, including competition to deliver voice, video, audio, and
data services among providers of communications services, including providers of satellite communications).
661
To inform our analysis, on August 17, 2018, the International Bureau requested data, information, and comment
on the delivery of services by providers of satellite communications. International Bureau Satellite Public Notice.
(continued….)
12669
Federal Communications Commission
1.
FCC 18-181
Overview of the Commercial Satellite Services Industry
209.
In the United States and globally, satellites provide telecommunications infrastructure for
communications, including voice, video, audio, and data services. Satellites function as relay stations in
space that receive signals from an earth station and then re-transmit the signal to a distant point located
often thousands of miles from the point of signal origination.662 In broad terms, satellites operate in either
a geostationary (GSO) or non-geostationary (NGSO) orbit. 663 Satellite communications services may be
provided in several ways based on the specific business context and objective. Satellite operators provide
commercial satellite services to other business entities, government organizations, and consumer end
users. For purposes of this Report, we describe five major types of services provided by the commercial
satellite services industry.
210.
Fixed Satellite Service (FSS). The Commission defines FSS as involving the transmitting
and receiving of communications signals from earth stations, including customer stations, that are located
at fixed points on earth, and has allocated specific spectrum bands for FSS, most importantly, the C-, Ku-,
and Ka-bands. 664 More recently, there also has been interest in use of the V-band frequencies. 665
(Continued from previous page)
Several commenters contend that services from current satellites and from planned satellite launches ensure that
satellite services not only play an important role today but will continue to do so in the future. EchoStar Satellite
Operating Corporation and Hughes Network Systems, LLC Comments, IB Docket No. 18-251, at 1-2, 4 (Sept. 7,
2018) (EchoStar and Hughes Sept. 7, 2018 Comments); Iridium Communications Inc., IB Docket No. 18-251, at 2,
5-6 (Sept. 7, 2018) (Iridium Comments); Satellite Industry Association (SIA) Comments, IB Docket No. 18-251, at
2 (Sept. 7, 2018) (SIA Sept. 7, 2018 Comments) (“Satellites also play a critical role in situations where terrestrial
communication infrastructure networks are not available such as natural disasters and electrical outages.”). We do
not address other industry sectors, such as launch industry, satellite manufacturing, earth station and network
equipment manufacturing, consumer terminal equipment, and launch insurance. Nor do we address military
applications of satellite services.
662
An earth station is a station located either on the Earth’s surface or within the major portion of the Earth's
atmosphere and intended for communication: (1) With one or more space stations; or (2) With one or more stations
of the same kind by means of one or more reflecting satellites or other objects in space. 47 CFR § 25.103 (Earth
station). The Commission’s definition is identical to the definition established by the International
Telecommunication Union (ITU). ITU, Radio Regulations—Articles (ed. 2016) at 13 (Article 1, 1.63) (ITU Radio
Regulations), http://search.itu.int/history/HistoryDigitalCollectionDocLibrary/1.43.48.en.101.pdf.
663
GSO satellites operate on an equatorial plane at approximately 22,300 miles above the Earth and rotate around
the Earth at the same speed that the Earth rotates. Third Satellite Competition Report, 26 FCC Rcd at 17288, para.
8, n.9; see also National Oceanic and Atmospheric Administration, NOAA’s Geostationary and Polar-Orbiting
Weather Satellites, https://noaasis.noaa.gov/NOAASIS/ml/genlsatl.html. As a result, a GSO satellite appears as a
stationary point in the sky relative to a receiving and transmitting earth station. Non-geostationary orbits include a
number of orbital configurations. MEOs range from 6,000 to 12,000 miles above the Earth and circle the Earth in
five to 12 hours. Fundamentals at 23. LEOs range from 100 to 300 miles above the Earth and circle the Earth
approximately every 90 minutes. Id. at 25.
664
47 CFR § 25.103 (Fixed-Satellite Service (FSS)). The conventional C-band refers to the 3700-4200 MHz (spaceto-Earth) and 5925-6425 MHz (Earth-to-space) FSS frequency bands, and the extended C-band refers to the 36003700 MHz (space-to-Earth), 5850-5925 MHz (Earth-to-space), and 6425–6725 MHz (Earth-to-space) FSS
frequency bands. The conventional Ku-band refers to the 11.7-12.2 GHz (space-to-Earth) and 14.0-14.5 (Earth-tospace) FSS frequency bands, and the extended Ku-band refers to the 10.95-11.2 GHz (space-to-Earth), 11.45-11.7
GHz (space-to-Earth), and 13.75-14.0 GHz (Earth-to-space) FSS frequency bands. The conventional Ka-band refers
to the 18.3-18.8 GHz (space-to-Earth), 19.7-20.2 GHz (space-to-Earth), 28.35-28.6 GHz (Earth-to-space), and
29.25-30.0 GHz (Earth-to-space) frequency bands, which the Commission has designated as primary for GSO FSS
operation. 47 CFR § 25.103.
665
We use the term “V-band” to refer to frequencies ranging from 37.5 GHz to 52.4 GHz, although there is no
domestic allocation for satellite services in 42.0-42.5 GHz band and there is no domestic or international allocation
for satellite services in the 51.4- 52.4 GHz frequency band. We have recently approved applications for V-band
systems in portions of 37.5-50.2 GHz frequency range. See, e.g., O3b Limited; Request for Modification of U.S.
(continued….)
12670
Federal Communications Commission
FCC 18-181
Examples of FSS offerings include wholesale transponder 666 services, managed services (also known as
enterprise services), and consumer broadband services.667 Over the last ten years, however, the
Commission has allowed mobile services within the spectrum bands allocated to FSS. 668 Earth Stations
on Vessels, Vehicle-Mounted Earth Stations, and Earth Stations Aboard Aircraft, collectively designated
as Earth Stations in Motion (ESIMs), 669 are mobile in nature, but operate in FSS spectrum. Given the
significant bandwidth allocated to FSS, ESIMs are able to transmit and receive very high data rate
broadband communications while in motion. 670 Licensees increasingly use ESIMs to deliver broadband
to ships, vehicles, trains, and aircraft using the same frequency bands, hardware, satellites, transponder
beams, and gateways used to serve earth stations at fixed locations.
211.
Mobile Satellite Service (MSS). MSS generally involves the transmitting and receiving of
communications signals from mobile earth stations located on land, on sea, or on airplanes 671 and operates
in the limited bandwidth allocated in the L-band, the 2 GHz MSS band, and the Big and Little LEO
bands. 672 Voice and data services are conducted in the L-band, Big LEO band, and 2 GHz bands, while
(Continued from previous page)
Market Access for O3b Limited's Non-Geostationary Satellite Orbit System in the Fixed-Satellite Service and in the
Mobile-Satellite Service, Order and Declaratory Ruling, 33 FCC Rcd 5508, 5519-20, para. 30 (rel. June 6, 2018)
(O3b Modification Order); Audacy Corporation; Application for Authority to Launch and Operate a NonGeostationary Medium Earth Orbit Satellite System in the Fixed- and Inter-Satellite Services, Order and
Authorization, 33 FCC Rcd 5554, 5562, para. 20 (rel. June 6, 2018) (Audacy Authorization Order); Policy Branch
Information, Satellite Space Applications Actions Taken, IBFS File Nos. SAT-LOA-20170621-00092 and SATAMD-20170908-00128, Public Notice, 33 FCC Rcd 2869 (2018) (granting in part and deferring in part; deferring
consideration of Hughes Network Systems’ request for operations in the 50.4-51.4 GHz band); SpaceX V-band
NGSO Authorization Order; Telesat Canada V-Band NGSO Order and Declaratory Ruling.
666
A communications satellite transponder is the part of a satellite that receives signals transmitted from earth
stations to the antennas onboard a satellite and retransmits these signals to the Earth. See Dennis Roddy, Satellite
Communications 199 (4th ed. 2006). The number of transponders onboard any given satellite may vary, ranging
approximately from 24 to 72 transponders. U.S. Government Accountability Office, Telecommunications:
Competition, Capacity, and Costs in the Fixed Satellite Services Industry at 5 (2011),
https://www.gao.gov/assets/330/322861.pdf.
667
Broadband to aircraft and vessels can also be provided via wholesale transponder services.
668
See generally Procedures to Govern the Use of Satellite Earth Stations on Board Vessels in the 5925-6425
MHz/3700-4200 MHz Bands and 14.0-14.5 GHz/11.7-12.2 GHz Bands, Report and Order, 20 FCC Rcd 674 (2005);
see also Amendment of Parts 2 and 25 of the Commission’s Rules to Allocate Spectrum and Adopt Service Rules and
Procedures to Govern the Use of Vehicle-Mounted Earth Stations in Certain Frequency Bands Allocated to the
Fixed-Satellite Service, Report and Order, 24 FCC Rcd 10414 (2009).
669
See O3b Modification Order, 33 FCC Rcd at 5516, at para. 21, n.59.
670
Id. ESIMs enable the provision of very high data rate broadband communications, navigational, situational
awareness, and other services to mobile platforms that often cannot be served using other communications
technologies. Amendment of Parts 2 and 25 of the Commission’s Rules to Facilitate the Use of Earth Stations in
Motion Communicating with Geostationary Orbit Space Stations in Frequency Bands Allocated to the Fixed
Satellite Service, IB Docket No. 17-95, Report and Order and Further Notice of Proposed Rulemaking, FCC 18-138
at para. 3 (Sept. 27, 2018) (ESIMs Order). The Commission continues to distinguish ESIMs, which operate in FSS
spectrum, from mobile earth stations, which operate in MSS spectrum. ESIMs Order at paras. 3-4, 10 (defining
ESIMs to collectively designate the three types of FSS earth stations that the Commission authorizes to transmit
while in motion: Earth Stations on Vessels (ESVs), Vehicle-Mounted Earth Stations (VMESs), and Earth Stations
Aboard Aircraft (ESAAs)); 47 CFR § 25.103 (Mobile Earth Station) (defining mobile earth station as “[a]n earth
station in the Mobile-Satellite Service intended to be used while in motion or during halts at unspecified points.”).
671
47 CFR § 25.103 (Mobile-Satellite Service (MSS)).
672
There are MSS allocations in the 1525-1559 MHz (space-to-Earth) band and the 1626.5-1660.5 MHz (Earth-tospace) band of the L-band, the 2000-2020 MHz and 2180-2200 MHz bands of the 2 GHz band. Other frequency
bands with MSS allocations have been given specific labels in the Commission rules: the Big LEO bands (1610(continued….)
12671
Federal Communications Commission
FCC 18-181
the Little LEO band is limited to non-voice services. 673 Examples of MSS applications include voice,
low-speed data, and tracking services for aircraft and ships, as well as handsets operating in remote
locations on land.
212.
Earth Exploration Satellite Service (EESS). EESS satellites are increasingly used to
gather Earth observation information for commercial purposes, including information to assess needs in
disaster recovery, monitor strategic assets, and check crop growth. The EESS is a radiocommunication
service in specified spectrum bands between earth stations and one or more space stations (which may
include links between space stations) that collects information relating to the characteristics of the Earth
from active or passive sensors on earth satellites and distributes that information to earth stations.674
Many different frequency bands are allocated for the provision of EESS, including, for example, 12151300 MHz, 1400-1427 MHz, 2025-2110 MHz, 2200-2290 MHz, and 8025-8400 MHz. The frequency
band allocation for EESS may be for sensing purposes or for feeder link use to associated Earth stations.
213.
Satellite Digital Audio Radio Service (SDARS). SDARS is a radiocommunication service
in the 2.3 GHz band in which audio programming is digitally transmitted by one or more space stations
directly to fixed, mobile, and/or portable stations.675 Satellite-delivered radio programming is supplied
nationwide by SiriusXM, presently the only SDARS operator in the nation. 676 SDARS is examined in
more detail in Section II.C.2.
214.
Direct Broadcast Satellite (DBS) Service. DBS service is a radiocommunication service
in which signals transmitted or retransmitted by Broadcasting Satellite Service space stations in the 12.2–
12.7 GHz band are intended for direct reception by subscribers or the general public. 677 DBS satellite
operators (e.g., DISH Network and DIRECTV) provide nationwide video programming to video
customers in direct competition with terrestrial television companies. DBS services are examined in more
detail in Section II.B.1.
2.
Satellite Revenues
215.
Satellite operators provide a number of different kinds of services with varying revenue
streams. 678 For example, some operators provide transponders for lease through arrangements that are
multi-dimensional and tailored for specific applications required by the customer. Operators may also
supply a complete, end-to-end communications solution to customers, referred to as managed services.
Consumer retail services include satellite broadband service, SDARS, and satellite television (e.g., DBS).
(Continued from previous page)
1626.5 MHz and 2483.5-2500 MHz) and the Little LEO bands (137-138 MHz, 400.15-401 MHz, and 148-150.5
MHz). 47 CFR § 25.103.
673
See, e.g., Terrestrial Use of the 2473-2495 MHz Band for Low-Power Mobile Broadband Networks; Amendments
to Rules for the Ancillary Terrestrial Component of Mobile Satellite Service Systems, Report and Order, 31 FCC Rcd
13801, 13802, n.2 (2016) (noting distinction between Big LEO systems, which operate with voice and higher datarate capabilities, and Little LEO systems, which do not provide voice service and generally operate with lower data
rate capabilities).
674
See ITU Radio Regulations at 12 (Article 1, 1.51); 47 CFR § 2.1.
675
47 CFR § 25.103 (Satellite Digital Audio Radio Service (SDARS)).
676
In 2017, SiriusXM’s total revenue was $5.4 billion, which represents an increase of 8% over total revenue in
2016. SiriusXM, SiriusXM Reports Fourth Quarter and Full-Year 2017 Results (Jan. 31, 2018),
http://investor.siriusxm.com/investor-overview/press-releases/press-release-details/2018/SiriusXM-Reports-FourthQuarter-and-Full-Year-2017-Results/default.aspx.
677
47 CFR § 25.103 (Direct Broadcast Satellite (DBS) Service).
678
Intelsat, SES, Hughes, ViaSat, Iridium, Eutelsat, and Telesat are examples of facilities-based satellite operators.
Facilities-based operators may also lease some excess capacity from each other to expand their geographic coverage
or meet the unique transmission requirements of specific customers.
12672
Federal Communications Commission
FCC 18-181
Customers of enterprise services include terrestrial telecommunications companies, television networks,
and resellers of satellite transponder capacity. 679 Examples of resellers that are not the operators
themselves include Digisat International Inc., 680 Globecomm, 681 Ultisat, Inc., 682 and Artel, LLC. 683
216.
Fig. F-1 below provides aggregated U.S. satellite services revenues from SIA for 2013 to
2017 with respect to consumer, fixed, and mobile satellite services. 684
Service
Consumer
Fixed
Fig. F-1
U.S. Satellite Services Revenue (2013-2017)
Total Revenue
(Billions, U.S.$)
2013
2014
2015
44.0
46.0
48.0
2016
46.4
2017
45.5
Satellite TV
(DBS/DTH) 685
38.6
40.1
41.7
39.7
38.3
Satellite Radio
(SDARS)
3.8
4.2
4.6
5.0
5.4
Satellite
Broadband
1.6
1.7
1.7
1.7
1.8
3.7
3.8
4.1
4.4
5.0
679
Some satellite resellers combine leased transponder capacity with terrestrial telecommunications facilities, which
the resellers may lease from terrestrial telecommunications entities or use their own facilities, to create a complete
telecommunications service for corporate and government users.
680
Digisat, Satellite Communications Network Management Solutions, https://www.digisat.org/managed-networkservices; Digisat, Satellite Footprint Maps and Spot Beam Coverage Areas, https://www.digisat.org/satellitefootprint-maps.
681
Globecomm, Globecomm Chosen by Broadcasting Board of Governors and Middle East Broadcasting Network
for Direct-to-Home Services (May 8, 2018), http://www.globecomm.com/news/press-releases/globecomm-chosenbroadcasting-board-governors-middle-east-broadcasting-network-direct-home-services/.
682
Ultisat, Custom Satellite Communications Solutions (CS3), https://ultisat.com/custom-satellite-communicationssolutions-cs3; Ultisat, Coverage, https://ultisat.com/coverage.
683
Artel, Company, https://www.artelllc.com/company/; Artel, Complex SatCom Solutions—Bandwidth
Procurement, https://www.artelllc.com/solutions/satcom-complex-satcom/#tab-header|1; Artel, Air Force Awards
Artel $18.9M Contract for Commercial Satellite Communications (Mar. 26, 2018), https://www.artelllc.com/airforce-awards-artel-18-9m-contract-for-commercial-satellite-communications/.
We note that we have limited reliable information about resellers or other suppliers and the types of satellite services
provided by these entities in the communications marketplace.
684
SIA Sept. 7, 2018 Comments at 23 (referring to Appendix B of the SIA State of the Satellite Industry Report
(Prepared by Bryce Space and Technology, formerly Tauri Group Space and Technology)). SIA estimates that the
U.S. share of global satellite services revenue in 2017 was 40%. Id. SIA’s estimate of global satellite services
revenue includes revenue derived from direct-to-consumer retail services (e.g., satellite TV, radio, and broadband),
fixed and mobile satellite services, and Earth observation services. Id. at 21.
685
DTH refers to television service provided in the FSS, rather than BSS, allocation. See Policies and Rules for the
Direct Broadcast Satellite Service, Report and Order, 17 FCC Rcd 11331, 11333, para. 3 (2002).
12673
Federal Communications Commission
FCC 18-181
Managed
Services 686
3.4
3.5
3.8
4.1
4.7
Transponder
Agreements 687
0.3
0.3
0.3
0.3
0.3
Mobile
0.4
0.4
0.5
0.5
0.6
Total
48.1
50.2
52.6
51.3
51.1
3.
Examination of Satellite Communications Services and Providers
a.
Fixed Satellite Service (FSS)
217.
Intelsat, SES, Eutelsat, Telesat Canada, Echostar,688 and ViaSat provide nearly all of the
communications services in FSS spectrum in the United States.689 Telesat Canada provides satellite
services to the U.S. government, and provides Ka-band satellite capacity to ViaSat, which uses the
capacity to provide broadband services in the United States. 690 ViaSat and Hughes both provide
wholesale and retail commercial broadband services to customers in the United States. 691 Intelsat, Telesat
Canada, SES, ViaSat, and EchoStar have high throughput satellites 692 serving in the North America
region. 693
686
According to SIA, the revenue represented for “Managed Services” includes VSAT, mobility, and in-flight
connectivity. SIA Sept. 7, 2018 Comments at 23.
687
According to SIA, the revenue represented for “Transponder Agreements” includes capacity for DTH satellite
TV and some mobility service platforms. Id.
688
EchoStar provides its consumer broadband and managed services through its wholly-owned subsidiary, Hughes
Network Services.
689
Intelsat S.A., Form 20-F: Annual Report Pursuant to Section 13 or 15(d) of the Securities Exchange Act of 1934
(For the fiscal year ended December 31, 2017) at 6, 19 (Intelsat Form 20-F),
http://investors.intelsat.com/phoenix.zhtml?c=131114&p=irolSECText&TEXT=aHR0cDovL2FwaS50ZW5rd2l6YXJkLmNvbS9maWxpbmcueG1sP2lwYWdlPTEyMDgzNTgxJ
kRTRVE9MCZTRVE9MCZTUURFU0M9U0VDVElPTl9FTlRJUkUmc3Vic2lkPTU3; SES, Our Services,
https://www.ses.com/north-america/our-services; Eutelsat, Find Your Satellite,
https://www.eutelsat.com/en/satellites/find-your-satellite.html (Nov. 2, 2018); Telesat Canada, Form 20-F: Annual
Report Pursuant to Section 13 or 15(d) of the Securities Exchange Act of 1934 (For the fiscal year ended December
31, 2017) at 8, 26 (Telesat Form 20-F),
https://www.sec.gov/Archives/edgar/data/1465191/000161577418001535/s108785_20f.htm; EchoStar and Hughes
Sept. 7, 2018 Comments at 2-4; ViaSat Form 10-K at 3; 2018 Broadband Deployment Report, 33 FCC Rcd at 1676,
para 51.
690
Telesat Form 20-F at 32.
691
See ViaSat, Services, https://www.viasat.com/services; EchoStar and Hughes Sept. 7, 2018 Comments at 3.
Hughes states that it is “currently in the process of constructing EchoStar XXIV, its next-generation, Commissionlicensed, ultra-high density satellite, which will provide expanded services to consumers throughout the United
States and the Americas at speeds of 100 Mbps or more” and “is expected to begin service in 2021.” EchoStar and
Hughes Sept. 7, 2018 Comments at 4.
692
Through the use of small beams, high throughput satellites are capable of reusing the same frequency band
multiple times over their coverage area. This allows the use of more spectrum for each of its small beams and
therefore making higher throughput available anywhere in its coverage area. Intelsat General, Defining High
Throughput Satellites (HTS) (Mar. 25, 2013), https://www.intelsatgeneral.com/blog/defining-high-throughputsatellites-hts/; Hughes Network Systems, LLC, The View from JUPITER: High-Throughput Satellite Systems
(2013) at 2, https://www.hughes.com/sites/hughes.com/files/2017-04/JUPITER_H50283_HR_08-01-13.pdf. For
example, ViaSat indicates that “high-capacity satellite systems are designed to grow with that demand, providing
more bandwidth capacity and throughput with higher internet service speeds, quality and reliability.” ViaSat, High(continued….)
12674
Federal Communications Commission
FCC 18-181
218.
Some FSS operators, as well as some third-party integrators, supply a complete, end-toend communications solution that includes ground facilities, terrestrial transmission links, and
management of the end-to-end communications service. Intelsat, SES, Hughes, ViaSat, and Iridium are
examples of satellite operators that provide managed services. FSS operators may offer specialized
services in the form of managed networks by leasing existing satellite bandwidth and combining it with
fully managed, end-to-end communications infrastructure, such as Very Small Aperture Terminal
(VSAT) networks, machine-to-machine (M2M) platforms, and supervisory control and data acquisition
(SCADA) applications. 694 Customers of third-party providers of managed satellite services include U.S.
and foreign government agencies, government contractors, and commercial entities. 695 Examples of
providers of these services include Digisat International Inc., Globecomm, Ultisat, Inc., and Artel, LLC.
Managed services include satellite-based data communication networks that are operated by government,
corporate, and other entities to provide a combination of data, voice, and video communications to widely
separated or remotely located facilities through one or more transponders. 696
219.
Broadband Satellite Services to Aircraft and Vessels. 697 FSS operators provide
broadband services to aircraft and maritime vessels, which include government organizations, commercial
entities, and individual clients. For example, Intelsat and Telesat Canada offer broadband services for
maritime vessels (including maritime enterprise VSAT services 698 and broadband connectivity for cruise
ships), as well as broadband connectivity for in-flight entertainment and Wi-Fi services for the
aeronautical industry. 699 SES and ViaSat provide broadband service on commercial airlines700 and cruise
(Continued from previous page)
Capacity Satellite System: Transforming Satellite Broadband, https://www.viasat.com/products/high-capacitysatellites.
693
Euroconsult, 2018 Brochure: FSS Operators—Benchmarks & Performance Review at 5 (2018),
http://euroconsult-ec.com/research/FSS-operators-2018-brochure.pdf.
694
See, e.g., SES, Managed Services, https://www.ses.com/networks/government/managed-services; Hughes, Retail
Petroleum, https://business.hughes.com/what-we-do/industries/retail-petroleum; EchoStar Form 10-K at 1, 4;
Intelsat General, The Clear Trend Towards Managed Services (Feb. 12, 2015),
https://www.intelsatgeneral.com/blog/the-clear-trend-towards-managed-services/.
695
See, e.g., Third Satellite Competition Report, 26 FCC Rcd at 17304, paras. 41-42 (noting that value-added
resellers provide managed services to government and corporate clients (e.g., U.S. Army, Federal Bureau of
Investigation, commercial shipping) that need communications in “thin markets” or need to extend the reach of their
corporate networks); Ultisat, Ultisat to Provide USG Customer COMSATCOM Services to Support Homeland &
Civil Defense Activities (Oct. 23, 2018), https://ultisat.com/blog/ultisat-provide-usg-customer-comsatcom-servicessupport-homeland-civil-defense-activities; Globecomm, Communications and Transmission Systems (CTS),
http://www.globecomm.com/industries/government/communications-transmission-systems-cts/.
696
See Third Satellite Competition Report, 26 FCC Rcd at 17290, para. 11, n.17.
697
These services are being addressed here within the managed services category, but in some cases, they may be
closer to the transponder service category, as the involvement of the satellite operator may be limited to simply
leasing satellite capacity. See infra note 699 (describing Telesat’s contractual relationship with Panasonic).
698
Vessels can connect to the global communications network with VSAT technology, which provides crew and
passengers with high-speed Internet access and phone service. VT iDirect, The Coming Wave of Maritime VSAT
Growth (2015), https://www.satellitetoday.com//long-form-stories/maritime-vsat/.
699
Intelsat Form 20-F at 24; Intelsat, Mobility, http://www.intelsat.com/solutions/mobility/; Telesat Form 20-F at
28, 32. For example, Telesat has a long-term contract with Panasonic Avionics Corporation (Panasonic) to provide
satellite capacity to support Panasonic’s in-flight entertainment and communications systems. See Telesat,
Panasonic Signs Long Term Contract For Multiple Transponders on Telesat Satellites to Expand Aeronautical
Broadband Service Over Latin America (Nov. 14, 2012), www.telesat.com/news-events/panasonic-signs-long-termcontract-multiple-transponders-telesat-satellites-expand. Likewise, Intelsat leases transponder capacity to GoGo.
Intelsat, Gogo Partners with Intelsat on Major Capacity Agreement Across Intelsat Globalized Network and
Becomes Anchor Tenant for World’s First GEO/LEO Shared Network (Mar. 7, 2016),
(continued….)
12675
Federal Communications Commission
FCC 18-181
ships. 701 Hughes also provides broadband service on commercial airlines.702 According to SIA, a
“[s]ubstantial share of in-flight and other managed services is provided by the same satellite operators that
provide consumer satellite broadband services, their [High-Throughput System] capacity divided between
the two types of service.” 703
220.
FSS operators in the U.S. also provide transponder capacity for lease through complex
contracts for variable quantities of bandwidth, frequency, orbital location, geographic coverage, power,
and length of service of the transponders required by the customer. 704 Many wholesale customers of FSS
operators only lease transponder capacity and self-supply their own earth stations and terrestrial links.
Applications of leased transponder capacity include point-to-point transponder capacity for use by
providers of media services, point-to-multipoint transmission of video programming to multichannel
cable programming distributors, and the transport of point-to-point telecommunications transmissions to
terrestrial telecommunications operators and corporate users. 705 Leased transponders can also be used for
the provision of broadband to aircraft and vessels.
221.
Satellite broadband providers Hughes and ViaSat play an increasingly important role in
the efforts to close the digital divide across the United States, especially in the most rural and remote
areas of the country, where it may be uneconomical to build terrestrial networks. 706 These operators now
serve nearly 2 million subscribers and, as their infrastructure expands, they are increasing the speeds
made available to consumers.707 For example, the launches and commencement of service of the high
throughput satellites Jupiter 2/EchoStar XIX and ViaSat-2 in the last two years by Hughes and ViaSat,
respectively, have further increased 25 Mbps/3 Mbps satellite offerings. 708 The planned launches of nextgeneration GSO satellites Jupiter 3/EchoStar XXIV and ViaSat-3, and proposed low latency NGSO
satellite constellations, may result in higher-speed satellite broadband offerings in the future. 709
(Continued from previous page)
http://www.intelsat.com/news/press-release/gogo-partners-with-intelsat-on-major-capacity-agreement-acrossintelsat-globalized-network-and-becomes-anchor-tenant-for-worlds-first-geoleo-shared-network/.
700
SES, Sky High Connectivity (2016), https://www.ses.com/sites/default/files/201610/Sky%20High%20Connectivity.pdf; ViaSat Form 10-K at 3-4.
701
SES, Maritime Powered by O3b, https://www.ses.com/networks/maritime/maritime-powered-o3b; ViaSat, HighSpeed Internet Service for Maritime Markets, https://www.viasat.com/services/maritime.
702
Hughes, Aeronautical Broadband Solutions, https://www.hughes.com/what-we-do/by-industry/aeronauticalbroadband-solutions.
703
Satellite Industry Association, State of the Satellite Industry Report at 14 (2017), https://www.sia.org/wpcontent/uploads/2017/07/SIA-SSIR-2017.pdf.
704
See Third Satellite Competition Report, 26 FCC Rcd at 17292-99, paras. 15-35 (discussing complexities of output
produced by commercial satellite operators). The pricing of transponder services and the specific attributes of the
service to be supplied to the customer are bilaterally negotiated between the customer and the satellite operator. Id.
at 17291-92, para. 14.
705
Id. at 17296-97, paras. 26-28.
706
SIA Comments, GN Docket No. 18-231, at 2 (Aug. 17, 2018) (SIA Aug. 17, 2018 Comments).
707
Id.
708
2018 Broadband Deployment Report, 33 FCC Rcd at 1681, para. 51; EchoStar Form 10-K at 8; ViaSat Form 10K at 3; ViaSat, Viasat Announces Highest-Speed, Unlimited Satellite Internet Service—Nationwide (Feb. 27, 2018),
https://www.viasat.com/news/viasat-announces-highest-speed-unlimited-satellite-internet-service-nationwide.
709
ViaSat Form 10-K at 3; Hughes, EchoStar XXIV, https://www.hughes.com/technologies/hughes-high-throughputsatellite-constellation/echostar-xxiv; SIA Sept. 7, 2018 Comments at 7.
12676
Federal Communications Commission
b.
FCC 18-181
Mobile Satellite Service (MSS)
222.
Currently, five satellite operators provide MSS to the United States. Inmarsat, a global
satellite service provider, as well as Ligado (formerly known as LightSquared), use GSO satellites to
provide MSS within the contiguous United States (CONUS). Iridium, Globalstar, and ORBCOMM use a
constellation of LEO satellites capable of providing global coverage. 710 Given the relatively little
allocated bandwidth, MSS data services are more limited than the mobile data services offered in FSS
spectrum bands.
223.
Due to technological differences in how MSS operators provide services, their services
vary significantly in characteristics, such as cost, geographic availability, required customer equipment,
data bandwidth and allowances, two-way capabilities, latency, network reliability, customer support, and
ease of use. 711 According to SIA, in 2017 MSS generated approximately $600 million in U.S. revenues
($4.0 billion globally).712
224.
MSS via GSO Satellites. The Commission issues licenses authorizing GSO satellites to
operate MSS in the 1525-1559 MHz and 1626.5-1660.5 MHz bands of the L-band, and in the 2000-2020
MHz and 2180-2200 MHz bands of the 2 GHz MSS band. 713 Currently, two MSS GSO operators provide
service to the United States. Inmarsat is the largest MSS operator, providing extensive voice, video, and
data communications services to mobile earth stations using GSO satellites, six of which have been
granted access to the U.S. market. 714 Ligado provides some services in the United States that could be
considered IoT, using the SkyTerra 1 satellite. 715
225.
MSS via LEO Satellites. The Big LEO bands consist of the 1610-1626.5 MHz band and
the 2483.5-2500 MHz band. 716 The Big LEO systems of Iridium and Globalstar provide low-latency
voice and data services to portable handsets and other devices. Iridium, with its constellation of 66
satellites, provides low-latency mobile voice, data, and IoT communications services with fully global
coverage. 717 Iridium provides services to industries such as maritime, aviation, government/military,
710
Iridium, Iridium Global Network, https://www.iridium.com/network/globalnetwork/; Globalstar, Our
Technology, https://www.globalstar.com/en-us/corporate/about/our-technology; ORBCOMM, ORBCOMM OG2
Next-Generation Satellite Constellation, https://www.orbcomm.com/en/networks/satellite/orbcomm-og2.
711
See, e.g., SIA, Satellite 101: Satellite Technology and Services at 25 (identifying MSS satellite systems and
locations where MSS operators provide coverage) (Satellite 101), https://www.sia.org/wpcontent/uploads/2014/11/Website-Refresh14-Satellite-101.pdf; Inmarsat Plc, Annual Report and Accounts (2017) at
2-3, https://investors.inmarsat.com/results-centre/2017-results; Iridium Communications, Inc., Form 10-K: Annual
Report Pursuant to Section 13 or 15(d) of the Securities Exchange Act of 1934 (For the fiscal year ended December
31, 2017) at 2-5 (Iridium Form 10-K),
https://www.sec.gov/Archives/edgar/data/1418819/000141881918000005/irdm_12312017x10k.htm; Globalstar, 10K Report: Annual Report Pursuant to Section 13 or 15(d) of the Securities Exchange Act of 1934 (For the Fiscal
Year Ended December 31, 2017) at 3-5 (Globalstar Form 10-K), https://www.globalstar.com/enus/corporate/investors/sec-filings?page=2.
712
SIA Sept. 7, 2018 Comments at 21, 23.
713
47 CFR § 25.103.
714
FCC, Space Station Approval List (updated Dec. 3, 2018), https://www.fcc.gov/approved-space-station-list (FCC
Space Station Approval List).
715
Ligado Networks, Next Generation Networks Powering 5G and the Industrial Internet of Things at 9,
https://ligado.com/wp-content/uploads/MarketVision-2018.pdf.
716
See Amendment of the Commission’s Rules to Establish Rules & Policies Pertaining to a Mobile Satellite Service
in the 1610-1626.5/2483.5-2500 MHz Frequency Bands, CC Docket No. 92-166, Report and Order, 9 FCC Rcd
5936 (1994), recon., 11 FCC Rcd 12861 (1996).
717
Iridium Form 10-K at 4-5, 16-19; Iridium, Iridium Edge, https://www.iridium.com/products/iridium-edge/.
12677
Federal Communications Commission
FCC 18-181
emergency/humanitarian services, mining, forestry, oil and gas, heavy equipment, transportation and
utilities. 718 According to Iridium, it provides “highly reliable and secure communications that are critical
for public safety, whether through daily aviation and maritime communications or in facilitating disaster
response and recovery after major disasters.” 719 According to Globalstar, it uses its fleet of 24 second
generation satellites to provide two-way voice and data and one-way IoT low-latency services for much
of North America, Europe, South America, Australia, and limited parts of Asia and Africa.720
226.
The Little LEO bands consist of the 137-138 MHz, 400.15-401 MHz bands, and 148150.5 MHz. Orbcomm’s Little LEO system provides data services, including M2M and IoT, that
remotely track, monitor, and control fixed and mobile assets.721 Little LEO systems are restricted to nonvoice low data rate services because of the relatively small uplink bandwidth and the fact that they must
operate in spectrum shared with terrestrial mobile operations.722 Non-GSO LEO systems offer much
lower latency due to their low earth orbit, which is useful for satellite voice telephony and interactive data
applications, and require smaller antennas. 723
c.
Earth Exploration Satellite Service (EESS)
227.
Five companies operate or plan to operate Earth observation satellites that the
Commission authorized as EESS: Planet Labs, Spire Global, DG Consents Sub, Inc. (part of Digital
Globe, a subsidiary of Maxar), BlackSky, and Astro Digital U.S. 724 Some of these companies operate or
plan to operate large numbers of satellites. For example, Planet Labs has authorization for 544 satellites
(of which approximately 150 satellites are currently in orbit),725 and Spire Global has authorization for
1,000 satellites (of which approximately 62 satellites are currently in orbit). 726 These satellites are
situated in Low Earth Orbit, and many are small satellites.
718
Iridium, Company Profile, https://www.iridium.com/company-info/companyprofile/.
719
Iridium Comments at 2.
720
Globalstar, Mission Accomplished! Globalstar Announces Successful Fourth Launch of Six Second-Generation
Satellites (Feb. 6, 2013), https://www.globalstar.com/en-us/corporate/press/release-archive?pr=775®ion=en-ca;
Globalstar Form 10-K at 3-4, 6, 18; Globalstar, Our Technology, https://www.globalstar.com/enus/corporate/about/our-technology; Globalstar, Coverage, https://www.globalstar.com/en-us/products/coveragemaps.
721
Orbcomm, Satellite IoT and M2M Networks, https://www.orbcomm.com/en/networks/satellite; Orbcomm,
Orbcomm, https://www.orbcomm.com/; ORBCOMM Inc., 10-K Report: Annual Report Pursuant to Section 13 or
15(d) of the Securities Exchange Act of 1934 (For the fiscal year ended December 31, 2017) at 5, 9,
http://investors.orbcomm.com/node/11671/html.
722
Third Satellite Competition Report, 26 FCC Rcd at 17315, para. 71.
723
European Commission, Low-Earth Orbit Satellites: Spectrum Access (2017) at 3,
https://ec.europa.eu/growth/tools-databases/dem/monitor/sites/default/files/DTM_LEO%20%20Spectrum%20access%20v1_0.pdf.
724
FCC Space Station Approval List.
725
Id.; Planet, FAQs, https://www.planet.com/faqs/.
726
Policy Branch Information, Satellite Space Applications Actions Taken, Public Notice, 32 FCC Rcd 5579 (2017);
Policy Branch Information, Satellite Space Applications Actions Taken, Public Notice, 32 FCC Rcd 4048 (2017);
Policy Branch Information, Satellite Space Applications Actions Taken, Public Notice, 32 FCC Rcd 3034 (2017);
Policy Branch Information, Satellite Space Applications Actions Taken, Public Notice, 31 FCC Rcd 11768 (2016);
Policy Branch Information, Satellite Space Applications Actions Taken, Public Notice, 31 FCC Rcd 6985 (2016);
Policy Branch Information, Satellite Space Applications Actions Taken, Public Notice, 31 FCC Rcd 2183 (2016);
Policy Branch Information, Satellite Space Applications Actions Taken, IBFS File Nos. SAT-LOA-20151123-00078
and SAT-AMD-20180102-00001, Public Notice, DA 18-1235 (2018) (granting in part and deferring in part Nov. 29,
(continued….)
12678
Federal Communications Commission
FCC 18-181
228.
Planet Labs operates satellites that capture frequent high-resolution optical images of the
Earth for various purposes, including agriculture and disaster relief. 727 Spire Global operates satellites
that provide weather data and the location of ships and planes in remote locations.728 DigitalGlobe, using
five satellites, provides optical high-resolution imaging with the ability to revisit the same location
relatively frequently. 729 BlackSky, a fully-owned subsidiary of Spaceflight Industries, plans to deploy a
constellation of 60 satellites over the next several years to enable frequent revisit rates (forty to seventy
times a day in some places) over 95% of the Earth’s population. BlackSky plans to provide color imagery
at a resolution of one meter (one square meter equals one image pixel) to make it easier to see such
activity as ships in ports, earthquake damage, or herd migration. 730 Astro Digital has one satellite in orbit
and plans for up to 30 satellites in its Landmapper constellation, which will optically image all
agricultural land daily. 731 According to SIA estimates, in 2017, Earth observation revenues in the United
States were $1.0 billion.732
4.
Recent Changes and Trends
a.
Developments in Satellite Communications Services and
Technologies
229.
Satellite Services. In recent years, there has been an expanded interest in NGSO orbits,
ESIMs, and commercial use of small, short-duration satellites for the provision of broadband services to
remote locations, Earth observation, and IoT. Some operators are planning to provide services, such as
intersatellite connectivity, to other satellite service providers to provide data backhaul or satellite mission
extension capability. As discussed below, the Commission has taken actions to remove regulatory
(Continued from previous page)
2018); Spire, Rocket Lab Successfully Completes First Commercial Launch with Spire (Nov. 12, 2018),
https://spire.com/company/insights/news/rocket-labs-successfully-completes-first-commercia/.
727
Michael Baylor, Planet Labs Targets a Search Engine of the World (Jan. 29, 2018),
https://www.nasaspaceflight.com/2018/01/planet-labs-targets-search-engine-world/; GIS Geography, Planet Labs
Imagery: The Entire Earth, Everyday (last updated Apr. 21, 2018), https://gisgeography.com/planet-labs-imagery/.
728
Lora Kolodny, A Start-Up Fighting Pirates with Satellites Just Raised $70 Million (Nov. 16, 2017),
https://www.cnbc.com/2017/11/16/spire-global-raises-70-million-to-stop-pirates-with-satellites.html; Spire, Space to
Cloud—Data & Analytics, https://spire.com/; Spire, GNSS-RO & GPS-RO,
https://spire.com/data/weather/?spirepedia=gnss-ro-gps-ro.
729
Digital Globe, About Us—Our Constellation, https://www.digitalglobe.com/about/our-constellation; Digital
Globe, The DigitalGlobe Constellation (2018), https://dg-cms-uploadsproduction.s3.amazonaws.com/uploads/document/file/223/Constellation_Brochure_2018.pdf.
730
BlackSky, Black Sky, www.blacksky.com.
731
One part of the constellation (Landmapper-HD, a constellation of 20 satellites) will optically image all
agricultural land at 2.5 meters resolution. Another part of the constellation (Landmapper-BC, a constellation of 5 to
10 satellites) will image all agricultural land daily at 22 meters resolution. Astro Digital, Annual Report (2018),
https://licensing.fcc.gov/myibfs/download.do?attachment_key=1435981; Astro Digital, IBFS File No. SAT-LOA20170508-00071, Exhibit 43; Peter B. de Selding, Astro Digital Reduces Planned Constellation and by Maximizing
Use of Europe’s Sentinels & Landsat 8 Satellites (Aug. 7, 2018), https://www.spaceintelreport.com/astro-digitalreduces-planned-constellation-by-maximizing-use-of-europes-sentinels-landsat-8-satellites/. Astro Digital satellites
will travel in sun-synchronous orbit (SSO). SSO is a nearly polar orbit that allows satellites to pass over the same
location each day, always in sunlight, which “lets the satellites see as much of the Earth as possible each day, let[]s
the satellites see our ground station on every orbit, and maintains consistent image capture time for every place on
Earth.” Astro Digital, Why sun synch orbit? (Jul. 19, 2017), https://blog.astrodigital.com/why-sun-synch-orbitf5c7cb74a5da.
732
SIA Sept. 7, 2018 Comments at 23.
12679
Federal Communications Commission
FCC 18-181
barriers in order to enable market-based efficient use of spectrum and facilitate the deployment of these
systems. 733
230.
Technological Developments. Recent trends in the satellite industry include the increased
use of LEO and MEO satellite systems. For example, by December 2018, Iridium is scheduled to have
replaced its existing fleet of 66 LEO satellites with a new fleet of 75 LEO satellites (including, nine onorbit spare satellites), collectively known as the Iridium NEXT constellation.734 Other developments
include new satellite launch technologies, and next generation high throughput satellite systems (i.e.,
GSO systems with spot beams that enable higher power transmission and spectrum reuse providing
greater bandwidth availability).735 LEO and MEO systems differ from GSO systems in their reduced
power requirements and lower latency. As discussed below, a number of applications for LEO and MEO
NGSO systems are pending with or have recently been approved by the Commission. Further, there have
been advances in launch technology, including the development of reusable hardware and vehicles
designed to launch smaller satellites.736 In addition, several new high throughput systems have been
recently launched. For example, EchoStar XIX, a high-throughput geostationary satellite employing a
multi-spot beam, bent pipe Ka-band architecture, was launched in December 2016 and commenced
service in March 2017. 737 ViaSat-2, a high-capacity Ka-band Spot-beam satellite, was launched in June
2017 and commenced service in February 2018. 738
231.
Other Developments. The current period of innovation in the space industry has resulted
and will likely continue to result in a significant increase in the number of satellites and types of
operations in orbit. The development of less expensive delivery systems, along with the production of
small imaging satellites such as CubeSats, has lowered the cost of entry into the satellite imaging
business. 739 The Commission has implemented amateur and experimental satellite rules to facilitate use
of satellites for scientific and research missions and experimental testing. 740 The Commission recently
733
See infra Section III.
734
See Iridium, Iridium Completes Seventh Successful Iridium® NEXT Launch (Jul. 25, 2018)
http://investor.iridium.com/2018-07-25-Iridium-Completes-Seventh-Successful-Iridium-R-NEXT-Launch; Caleb
Henry, Final Iridium Next Launch Scheduled for Dec. 30 Falcon 9 Mission (Oct. 18, 2018),
https://spacenews.com/final-iridium-next-launch-scheduled-for-dec-30-falcon-9-mission/.
735
Organisation of Economic Cooperation and Development (OECD), The Evolving Role of Satellite Networks in
Rural and Remote Broadband Access (2017) at 17, https://www.oecd-ilibrary.org/science-and-technology/theevolving-role-of-satellite-networks-in-rural-and-remote-broadband-access_7610090d-en.
736
Id. at 21-22.
737
EchoStar Form 10-K at 8.
738
ViaSat Form 10-K at 3; ViaSat, Viasat Announces Highest-Speed, Unlimited Satellite Internet Service—
Nationwide (Feb. 27, 2018), https://www.viasat.com/news/viasat-announces-highest-speed-unlimited-satelliteinternet-service-nationwide.
739
See Streamlining Licensing Procedures for Small Satellites, IB Docket 18-86, Notice of Proposed Rulemaking,
33 FCC Rcd 4152, 4155 at para. 5 (2018) (noting “[i]n the last 15 years . . . the miniaturization of components and
the ability of small satellite developers to capitalize on commercial off-the-shelf equipment has enabled smaller,
cheaper satellites to be built and launched into space”) (Small Satellites NPRM); The Aerospace Corporation, Small
Satellite Technology: Industry Update (May 15, 2014),
https://www.nesdis.noaa.gov/CRSRA/files/Cubesat_ACCRES-15May2014_final_v2.pdf.
740
The Commission’s rules set forth three different procedures for licensing satellites. Part 25 of the Commission’s
rules govern licensing and operation of space stations and earth stations for the provision of satellite communication
services, including commercial communication and remote sensing satellites. 47 CFR §§ 25.101-25.702. Part 5 of
the Commission’s rules govern experimental operations. 47 CFR §§ 5.1-5.602. Part 97 of the Commission’s rules
govern amateur radio service satellite operations. See generally 47 CFR §§ 97.111-97.117, 97.207. See also
Guidance On Obtaining Licenses For Small Satellites, Public Notice, 28 FCC Rcd 2555 (2013).
12680
Federal Communications Commission
FCC 18-181
proposed rules designed to facilitate commercial deployment of small satellites (many of which seek to
operate in the EESS) by reducing application processing times and lowering application processing fees,
while offering protection for critical communication links and enabling efficient use of spectrum. 741
There is also ongoing development of optical laser technologies for satellite communications, which may
well enhance the capacity, flexibility, and reliability of satellite communications.742 Proposed
deployments of large satellite constellations in the intensely used LEO region, along with other satellites
deployed in the LEO region, will have the potential to increase the risk of debris-generating events.743 On
November 15, 2018, the Commission undertook the first comprehensive look at the Commission’s orbital
debris rules since their adoption in 2004, and proposed changes to improve and clarify these rules based
on experience gained in the satellite licensing process and on improvements in mitigation guidelines and
practices.744
b.
Recently Granted and Proposed NGSO FSS Systems
232.
In 2017 and 2018, the Commission has approved a number of NGSO FSS MEO and LEO
systems for operation in the U.S. market—completing a regulatory prerequisite for setting up such
systems to serve U.S. customers. According to the applications filed with the Commission, these systems
would serve a variety of purposes, such as the provision of high-throughput, low-latency broadband
services to remote locations, satellite mission extension services, and inter-satellite connectivity. The
authorization of a number of these systems furthers the Commission’s efforts to close the digital divide
across the United States.
233.
For example, in 2017, the Commission adopted an order granting market access 745 to
WorldVu d/b/a OneWeb for its NGSO FSS system of 720 satellites, which OneWeb plans to use to
further its goal to “provide high-speed, affordable broadband connectivity to anyone, anywhere” in the
United States. 746 Also, the Commission granted the request of Space Norway AS (Space Norway) to
access the U.S. market using a two-satellite NGSO FSS system, in a highly-elliptical orbit, to enable
741
See generally Small Satellites NPRM.
742
See TNO, Superfast Internet Using Laser Satellite Communications, (May 18, 2018), https://www.tno.nl/en/tnoinsights/articles/superfast-internet-using-laser-satellite-communications/; Sydney J. Freedberg, Jr., Army, NASA
Want Want Laser Micro-Satellites For 50 Times The Bandwidth (Aug. 2, 2018),
https://breakingdefense.com/2018/08/army-nasa-want-laser-micro-satellites-for-50-times-the-bandwidth/. See Small
Satellites NPRM, 33 FCC Rcd at 4176, para. 58; Space Exploration Holdings, LLC, Application for Approval for
Orbital Deployment and Operating Authority for the SpaceX NGSO Satellite System, IBFS File No. SAT-LOA20161115-00118 (filed Nov. 15, 2016), Narrative at 2 (“The system will also employ optical inter-satellite links for
seamless network management and continuity of service, which will also aid in complying with emissions
constraints designed to facilitate spectrum sharing with other systems.”).
743
Mitigation of Orbital Debris in the New Space Age; Mitigation of Orbital Debris, IB Docket No. 18-313, IB
Docket No. 02-54 (Terminated), Notice of Proposed Rulemaking and Order on Reconsideration, FCC 18-159, para.
9 (rel. Nov. 19, 2018) (Orbital Debris NPRM). Orbital debris, also known as “space debris,” consists of artificial
objects orbiting the Earth that are not functional spacecraft. Id. at para. 2
744
Id. at para. 3.
745
In 1997, the Commission developed a market access procedure to facilitate the participation of non-U.S.-licensed
satellite systems in the U.S. market even though such systems do not have a U.S. space station license. Favorable
action on such a request is in the nature of a policy statement or declaratory ruling, which enables access to by the
space station to spectrum in the United States and to U.S.-licensed earth stations, subject to public interest
considerations. WorldVu Order and Declaratory Ruling, 32 FCC Rcd at 5366, para. 2, n.3; see also Amendment of
the Commission’s Regulatory Policies to Allow Non-U.S. Licensed Satellites to Provide Domestic and International
Service in the United States, Report and Order, 12 FCC Rcd 24094, 24106, 24173-74, paras. 29, 184-188 (1997).
746
WorldVu Order and Declaratory Ruling, 32 FCC Rcd at 5366, para. 1; WorldVu Satellites Limited, Petition for a
Declaratory Ruling Granting Access to the U.S. Market for the OneWeb System, IBFS File No. SAT-LOI20160428-00041, Narrative at 1 (filed Apr. 28, 2016) (WorldVu Petition).
12681
Federal Communications Commission
FCC 18-181
Space Norway to pursue its goal of providing broadband Internet access to currently unserved and
underserved communities in the Arctic region of the United States. 747 In addition, the Commission
granted the request of Space Logistics, LLC to construct, deploy, and conduct telemetry, tracking and
command functions with its mission extension vehicle (MEV-1), which provides services to other satellite
operators.748 In 2018, the Commission granted O3b Limited’s request to expand its grant of U.S. market
access for its NGSO constellation in order to allow O3b to pursue its goal of expanding broadband
Internet access to communities across the United States. 749 The Commission also authorized Audacy to
construct, deploy, and operate a NGSO satellite system to provide continuous, high-speed
communications between other NGSO satellites and gateway earth stations, using frequencies in
intersatellite service (ISS) and FSS spectrum bands.750 In addition, the Commission authorized Karousel
Satellite LLC to construct, deploy and operate an NGSO FSS system comprising twelve satellites for the
provision of video and data distribution around the world. 751
234.
On November 15, 2018, the Commission adopted a number of Orders granting the
applications of NGSO FSS LEO systems for market access. Specifically, the Commission (1) granted
Kepler’s request for U.S. market access to offer global connectivity for the Internet of Things using a
proposed constellation of 140 NGSO LEO satellites; 752 (2) granted Telesat Canada’s request to access the
U.S. market to provide broadband services using a proposed constellation of 117 NGSO LEO satellites;753
and (3) granted LeoSat’s request for U.S. market access to provide satellite broadband services in the
United States using a proposed constellation of 78 NGSO LEO satellites, including high-speed
connectivity for enterprises. 754 The Commission also granted SpaceX’s application to construct, deploy
747
Space Norway AS Order and Declaratory Ruling, 32 FCC Rcd at 9649, 9659, paras. 1, 22; Space Norway AS,
Petition for a Declaratory Ruling Granting Access to the U.S. Market for the Arctic Satellite Broadband Mission,
IBFS File No. SAT-PDR-20161115-00111, Narrative at 1, 12-14 (filed Nov. 15, 2016) (Space Norway AS Petition).
748
Policy Branch Information, Satellite Space Actions Taken, Public Notice, 32 FCC Rcd 10270 (2017) (granting in
part and deferring in part, with conditions). According to Space Logistics, the MEV-1 “has the capability to service
multiple in-orbit satellites in geosynchronous orbit (‘GSO’) by cooperatively docking with the satellites and
performing the station keeping and attitude control functions for the satellites as a combined vehicle stack (‘CVS’).”
Space Logistics, Application of Space Logistics, LLC for Authority to Launch and Operate a Mission Extension
Vehicle, IBFS File No. SAT-LOA-20170224-00021, Narrative at 1 (filed Feb. 24, 2017).
749
O3b Modification Order, 33 FCC Rcd at 5508, 5525 at paras. 1, 44. According to O3b, “O3b’s system offers
satellite capacity and low-latency, high-throughput connectivity—generally ten to one-hundred times the throughput
of a traditional satellite—to Internet service providers, telecom operators, large enterprises and governments, to
enable fast, flexible and affordable broadband connectivity in locations unserved or underserved by other broadband
services, such as fiber and mobile networks.” O3b Limited, Modification to U.S. Market Access Grant for the O3b
MEO Satellite System, IBFS File No. SAT-MOD-20160624-00060, Narrative at 13-14 (filed June 24, 2016).
750
Audacy Authorization Order, 33 FCC Rcd at 5554, para. 1. According to Audacy, anticipated users would
include operators of Earth observation satellites, launch providers, and operators of large LEO constellations.
Audacy Corporation, Application for Authority to Launch and Operate a Non-Geostationary Medium Earth Orbit
Satellite System in the Fixed- and Inter-Satellite Services, IBFS Filing No. SAT-LOA-20161115-00117, Narrative
at 2 (filed Nov. 15, 2016); Audacy Authorization Order, 33 FCC Rcd at 5554, 5571, paras. 1, 38.
751
See Karousel Authorization Order. The system would “deploy a novel video and data distribution service to
rural consumers in the United States and around the world who lack access to adequate or affordable broadband
connectivity.” Id. at para. 1.
752
Kepler Communications Inc. Petition for Declaratory Ruling to Grant Access to the U.S. Market for Kepler’s
NGSO FSS System, Order and Declaratory Ruling, FCC 18-162 (rel. Nov. 19, 2018) (Kepler Order and Declaratory
Ruling).
753
See Telesat Canada V-Band NGSO Order and Declaratory Ruling.
754
See LeoSat Order and Declaratory Ruling. In its petition for declaratory ruling, LeoSat stated that it will “ensure
access to new broadband services for remote and underserved communities in Alaska, Hawaii, Puerto Rico, and the
(continued….)
12682
Federal Communications Commission
FCC 18-181
and operate a proposed NGSO satellite system using frequencies in the V-band, which will provide
SpaceX with additional flexibility to provide both diverse geographic coverage and the capacity to
support a wide range of proposed broadband and communications services in the United States and
globally. 755
235.
In addition, a number of applications for NGSO FSS MEO and LEO systems for market
access are pending with the Commission: (1) ViaSat filed a petition for declaratory ruling requesting
market access for a 24-satellite NGSO MEO system; 756 (2) New Spectrum filed a letter of intent
requesting market access for a 15-satellite NGSO inclined elliptical orbit system that it intends to use to
provide “state-of-the-art, affordable, digital fixed satellite services directly to users,” including “highspeed Internet access at megabit rates, video and broadband data distribution, and two-way video
conferencing and content delivery via streaming”; 757 (3) OneWeb filed a petition for declaratory ruling
requesting market access for its next-generation V-band satellites for its NGSO system to provide
broadband connectivity; 758 and (4) Hiber applied for market access for a 24-satellite NGSO system for
IoT using MSS frequencies. 759 Currently, one application is pending for licensing or market access for
additional satellites or frequencies for approved NGSO EESS systems. 760
G.
Broadband Deployment
236.
American consumers rely on the Internet for virtually every facet of daily life.
Connection via high-speed broadband is an important gateway to employment, education, entertainment,
healthcare, and economic development. Americans expect accessibility to broadband at home, at work,
and while on the go. Efforts to close the digital divide—reducing regulatory barriers to the deployment of
wireline and wireless infrastructure, increasing universal service funding, and expanding access to
spectrum for broadband services—are essential to spur broadband deployment to all American
communities.
237.
This Chapter assesses the state of broadband deployment, including deployment of
advanced telecommunications capability, fulfilling the statutory directive. 761 Overall, the available data
(Continued from previous page)
U.S. Virgin Islands” and that its network will deliver “enterprise-to-enterprise communications, Internet and 5G/4G
cellular backhaul, video content delivery, oil field services and operations, and maritime communications.” LeoSat,
Petition for Declaratory Ruling to Permit U.S. Market Access for the LeoSat Ka-band Low-Earth Orbit Satellite
System, IBFS File No. SAT-PDR-20161115-00112, Narrative at 1-4 (filed Nov. 15, 2016).
755
See SpaceX V-band NGSO Authorization Order.
756
ViaSat, Inc., Petition for Declaratory Ruling Granting Access to the U.S. for a Non-U.S.-Licensed
Nongeostationary Orbit Satellite Network, IBFS File No. SAT-PDR-20161115-00120 (filed Nov. 15, 2016).
757
New Spectrum Satellite, Ltd., Letter of Intent of New Spectrum Satellite, Ltd. For a Global Fixed Satellite
Service System Employing Nongeostationary Satellites in Sub-Geosynchronous Elliptical Orbits, IBFS File No.
SAT-PDR-20170726-00111, Narrative at 8 (filed Jul. 26, 2017).
758
WorldVu Satellites Limited, Petition for Declaratory Ruling Granting Access to the U.S. Market for the OneWeb
V-Band System, IBFS File No. SAT-LOI-20170301-00031 (filed Mar. 1, 2017).
759
Hiber Inc., Petition for Declaratory Ruling to Access U.S. Market Using the Hiberband Low-Earth Orbit System,
IBFS File No. SAT-PDR-20180910-00069 (filed Sept. 10, 2018).
760
Theia Holdings A, Inc., Application for Authority to Launch and Operate a Non-Geostationary Satellite Orbit
System in the Fixed-Satellite Service, Mobile-Satellite Service, and Earth Exploration Satellite Service, IBFS File
No. SAT-LOA-20161115-00121 (filed Nov. 15, 2016).
761
See 47 U.S.C. § 163(a), (b)(2). This Chapter is not intended to fulfill the Commission’s statutory responsibility
under section 706 of the Telecommunications Act of 1996 to “determine whether advanced telecommunications
capability is being deployed to all Americans in a reasonable and timely fashion.” 47 U.S.C. § 1302(b). The
Commission intends to complete the inquiry initiated in August by releasing a Broadband Deployment Report to
fulfill this section 706 obligation. See Fourteenth Notice, FCC 18-119.
12683
Federal Communications Commission
FCC 18-181
shows that Internet service providers deliver high-quality broadband to most Americans, but additional
work remains to close the digital divide.
1.
Scope of Reporting
238.
To assess deployment, we employ a holistic examination of fixed and mobile services
over a five year period (2013-2017) using the same four categories for evaluation that were presented in
the 2018 Broadband Deployment Report: (1) fixed services only; (2) mobile LTE services only; (3) fixed
and mobile LTE services; and (4) fixed or mobile LTE services. 762
239.
To assess the state of deployment of advanced telecommunications capability, we rely on
the 2018 Broadband Deployment Report’s fixed service speed benchmark of 25 Mbps/3 Mbps adopted by
the Commission. 763 The 2018 Broadband Deployment Report found that fixed services meeting this
speed benchmark satisfy the section 706 definition of advanced telecommunications capability; that is,
such services “enable[] users to originate and receive high-quality voice, data, graphics and video
telecommunications.” 764 Because the RAY BAUM’S Act of 2018 requires a more holistic assessment of
broadband deployment, we also provide deployment figures for 10 Mbps/1 Mbps, 50 Mbps/5 Mbps, 100
Mbps/10 Mbps, and 250 Mbps/25 Mbps fixed service. Showing broadband deployment in additional
speed tiers year over year is helpful to assess the pace and patterns of deployment. 765
240.
With respect to mobile services, the 2018 Broadband Deployment Report found that
adoption of a single speed benchmark for advanced telecommunications capabilities is inappropriate
given the inherent variability of the mobile experience, 766 combined with data limitations and
methodological issues. 767 Therefore, consistent with the 2018 Report, to reasonably evaluate the progress
of high-speed mobile deployment, we present LTE coverage data based on the Form 477 minimum
advertised speeds of 5 Mbps/1 Mbps, and then supplement our analysis with Ookla’s actual speed test
data with a median speed of 10 Mbps/3 Mbps or higher. 768 Given the limitations on mobile broadband
speed data availability, at this point in time we are unable to present various speed thresholds that are
similar to the data presentation for fixed broadband.769
762
2018 Broadband Deployment Report, 33 FCC Rcd at 1678, 1708, paras. 45-46. The Commission’s holistic
approach in the 2018 Broadband Deployment Report considered improvements to deployment over time; however,
the data for 2012 and 2013 are not directly comparable to the data collected by the Commission since 2014. Id. at
1678, paras. 45-46.
763
Id. at 1667-68, para. 21.
764
Id. at 1667-68, para. 21.
765
Id. at 1667, 1678, 1686, paras. 20, 45, 57.
766
Id. at 1670-71, 1673-74, paras. 27, 34. The Commission noted that network speed is one of the key
characteristics of mobile wireless performance, and mobile broadband speeds experienced by consumers may vary
greatly with a number of factors, including the service provider’s received signal quality, cell traffic loading, and
network capacity in different locations. In addition, mobile broadband speeds can vary with the capability of
consumers’ devices. Id. at 1672, para. 30.
767
Id. at 1673-74, para. 34.
768
Id. at 1670-71, 1672-74, paras. 27, 31-34, n.97.
769
Unlike the Form 477 data for fixed services, wireless service providers submit coverage shape files and report the
minimum advertised speed associated with the coverage area. We supplement the Form 477 data with crowdsourced speed test data from Ookla. However, there are counties where few speed tests are observed in the Ookla
data. Thus, we do not evaluate whether the median download and upload speeds exceed 10 Mbps/3 Mbps in these
counties because the sample of tests is insufficient. In this regard, the Ookla data do not permit an evaluation of
wireless service speeds for the overall population of Americans in the same manner as the Form 477 data.
12684
Federal Communications Commission
2.
FCC 18-181
Data Sources and Methodologies
241.
We rely primarily upon the Commission’s Form 477 data to evaluate deployment, which
are the most accurate data available to the Commission. 770 For deployment data prior to 2014, we rely on
data from the State Broadband Initiative (SBI), which, prior to the Commission’s revision of the Form
477 data collection, were the most comprehensive and geographically granular deployment data publicly
available. 771 Unless otherwise noted, we rely upon year-end data for our analysis.
242.
The Form 477 fixed deployment data and the SBI data report service at the census block
level. 772 For purposes of this Chapter, a whole census block is classified as served if Form 477 or SBI
data indicate that service can be provided anywhere in the census block. Therefore, it is not necessarily
the case that every household, 773 housing unit, or person will have coverage for a service in a census block
that this Chapter indicates is served. 774 Furthermore, although staff examine Form 477 data for quality
and consistency, the data may understate or overstate deployment of services to the extent that broadband
providers fail to report or misreport data. 775 Staff evaluate deployment data for fixed terrestrial services
using 2010 census block population data that the Commission staff has updated to account for population
growth and economic development. 776 We present an analysis of deployment data for fixed terrestrial
770
See supra Section II.D.
771
See 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. 11-121,
Eighth Broadband Progress Report, 27 FCC Rcd 10342, 10364-65, para. 28 (2012). The SBI data were collected
semi-annually through state-led efforts and maintained by the National Telecommunications and Information
Administration for the National Broadband Map, in collaboration with the Commission. Id. at 10365, para. 28.
772
For purposes of this form, fixed broadband connections are available in a census block if the provider does, or
could, within a service interval that is typical for that type of connection—that is, without an extraordinary
commitment of resources—provision two-way data transmission to and from the Internet with advertised speeds
exceeding 200 kbps in at least one direction to end-user premises in the census block. FCC, FCC Form 477 Local
Telephone Competition and Broadband Report Instructions at 17 (2016),
https://transition.fcc.gov/form477/477inst.pdf.
773
A household consists of all the people who occupy a housing unit. A house, an apartment or other group of
rooms, or a single room, is regarded as a housing unit when it is occupied or intended for occupancy as separate
living quarters; that is, when the occupants do not live with any other persons in the structure and there is direct
access from the outside or through a common hall. U.S. Census, Current Population Survey Subject Definitions
(Aug. 25, 2018), https://www.census.gov/programs-surveys/cps/technical-documentation/subjectdefinitions.html#household.
774
We note that these coverage estimates represent deployment of networks to consumers and do not indicate the
extent to which service providers affirmatively offer service to residents in the covered areas. Further, this analysis
likely overstates the coverage experienced by some consumers, especially in large or irregularly shaped census
blocks. We therefore acknowledge that this analysis may overstate or understate the deployment of fixed and mobile
services. See 2018 Broadband Deployment Report, 33 FCC Rcd at 1677, para. 43.
775
See Federal Communications Commission, Explanation of Broadband Deployment Data (Nov. 20, 2017),
https://www.fcc.gov/general/explanation-broadband-deployment-data (describing quality and consistency checks
performed on providers’ submitted data and explaining any adjustments made to the Form 477 data as filed).
776
Commission Staff developed population estimates for 2011-2017 by updating the 2010 census block population
estimates. These estimates are based upon annual U.S. Census mid-year county (or county-equivalent) level
population and housing unit estimates for the fifty states, the District of Columbia, and Puerto Rico. These data are
used in conjunction with U.S. Census Bureau Tiger data to indicate new roads, i.e., new housing development, to
distribute population amongst the census blocks comprising each county (or county-equivalent). Federal
Communications Commission, Staff Block Estimates, https://www.fcc.gov/reports-research/data/staff-blockestimates.
12685
Federal Communications Commission
FCC 18-181
services and for mobile LTE. In general, we report data separately on the U.S. Territories because the
data for 2017 may significantly overstate current deployment in Puerto Rico and the U.S. Virgin Islands,
which account for over 92% of the total combined population of the U.S. Territories. We are uncertain as
to the current deployment of broadband services in these areas given the damage to infrastructure in
Puerto Rico and the U.S. Virgin Islands from Hurricanes Maria and Irma in 2017.
243.
Fixed Terrestrial Services. Using the available Form 477 data since 2014, we evaluate
deployment of fixed terrestrial services with a minimum advertised speed of 10 Mbps/1 Mbps, 25 Mbps/3
Mbps, 50 Mbps/5 Mbps, 100 Mbps/10 Mbps, and 250 Mbps/25 Mbps. For 2013, which pre-dates the
current version of the Form 477 data collection, we evaluate deployment of fixed terrestrial services using
SBI data. The SBI data collection compiled data on 25 Mbps/3 Mbps and 100 Mbps/10 Mbps, but not the
other download and upload speed combinations reported in this Chapter. 777 Therefore, where applicable,
we use the most comparable speed combinations collected in the 2013 SBI data as reasonable proxies.
For 10 Mbps/1 Mbps, we use SBI reported speed of 10 Mbps/768 kbps, and for 50 Mbps/5 Mbps, we use
the SBI reported speed of 50 Mbps/6 Mbps. The SBI data does not include a reasonable proxy for 250
Mbps/25 Mbps, so we do not report data at that speed for 2013. Finally, we use Form 477 subscriber
data to calculate adoption rates for fixed terrestrial services.
244.
Satellite Services. The Form 477 deployment data for satellite broadband indicate that
satellite service offering 25 Mbps/3 Mbps speeds is available to nearly all the population.778 These data
could overstate the deployment of these services.779 In Appendix F, we provide deployment estimates for
all fixed services, including satellite, from 2014 to 2017. 780
245.
Mobile services. While recognizing certain limitations of the Form 477 data, our Form
477 LTE technology coverage data are the most reliable and comprehensive data that we have to assess
the deployment of mobile LTE to American consumers at a minimum advertised speed of 5 Mbps/1
Mbps. 781 For 2013, we use SBI data, which only include a speed component for mobile services, 782 while
777
The fixed terrestrial estimates using the SBI data are based upon deployment data for the following services:
Asymmetric xDSL, Symmetric xDSL, Other Wireline (all copper-wire based technologies other than xDSL), Cable
Modem—DOCSIS 3.0, Cable Modem—Other, optical carrier (fiber to the home or FTTH), Fixed Terrestrial
Wireless (provisioned/equipped over licensed spectrum or over spectrum used on an unlicensed basis), Electric
Power Line, and All Other. For 2013, we exclude the satellite service data from our analysis because the SBI data
for satellite services have significant inconsistencies in the data. 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. 14-126, 2015 Broadband Progress Report and Notice of Inquiry
on Immediate Action to Accelerate Deployment, 30 FCC Rcd 1375, 1416, para. 76 (2015 Report).
778
More specifically, the Form 477 deployment data for satellite broadband indicate that satellite service offering 25
Mbps/3 Mbps speeds is available to all but 0.03% of the population.
779
2018 Broadband Deployment Report, 33 FCC Rcd at 1681, para. 51, n.148. While satellite signal coverage may
enable operators to offer services to wide swaths of the country, overall satellite capacity may limit the number of
consumers that can actually subscribe to satellite service at any one time. See Fourteenth Notice, FCC 18-119, para.
17, n.46.
780
See infra Broadband Deployment Appendix D-6 (Deployment (Millions) of Fixed Services at Different Speed
Tiers (2014-2017)).
781
For fixed services, the Commission has been able to rely upon Form 477 reported maximum advertised speeds to
track actual speeds. However, the relationship between actual speeds and the advertised speed reported in the Form
477 data for mobile services is more complex because minimum advertised speed is reported by the mobile
providers, and different mobile providers estimate their minimum advertised speed based on various points of their
actual speed distribution. 2018 Broadband Deployment Report, 33 FCC Rcd at 1678, para. 46, n.133. By contrast,
the Ookla data provide us with the actual speeds that consumers experience.
12686
Federal Communications Commission
FCC 18-181
for 2014 through 2017, we use the Form 477 LTE deployment shapefiles with a minimum advertised
speed of 5 Mbps/1 Mbps. SBI data are not available for 5 Mbps/1 Mbps, so our analysis of the 2013 data
uses maximum advertised speeds of 6 Mbps/768 kbps, which are the most comparable speeds collected in
the SBI data in this period. As the Commission has previously done, we employ the centroid
methodology in evaluating the Form 477 deployment data for LTE. 783 We apply the same methodology
as we use for fixed services and consider a census block to be covered by LTE services if there is at least
one service provider serving that census block that reports 5 Mbps/1 Mbps as the minimum advertised
speed, based on their Form 477 submission.
246.
We recognize, however, that actual speeds tend to be much faster than the minimum
advertised speed. Therefore, we also present estimates based on Ookla speed test data to evaluate the
deployment of LTE with a median actual speed of 10 Mbps/3 Mbps or higher. We rely on the Ookla
data 784 to supplement our Form 477 analysis, primarily because it allows us to better evaluate the extent
to which the typical consumer receives speeds of 10 Mbps/3 Mbps or higher, and these data provide us
with the greatest number of observations of actual speeds that customers receive.785 Our analysis of the
deployment of mobile LTE services with a median speed of 10 Mbps/1 Mbps, includes actual speed test
data in counties with at least 300 test observations in each time frame. 786 The more densely populated
counties have a higher likelihood of being included in this analysis because there generally are more
observations in geographical areas with a higher population density. Although we do not have reliable,
(Continued from previous page)
782
The SBI data for mobile services are not directly comparable to the Form 477 data. First, we are unable to limit
the SBI data to LTE technology because the SBI data does not identify mobile services by technology. Second, the
SBI data include mobile coverage area boundaries by maximum advertised download/upload speeds whereas the
Form 477 collects data for mobile services by minimum advertised speeds. 2018 Broadband Deployment Report, 33
FCC Rcd at 1679, para. 47.
783
See, e.g., id. at 1678, para. 46.
784
Generally, crowd-sourced data can provide a large volume of data at a very low cost and provides insights into
actual consumer experience on a network in a wide variety of locations, including those indoors and outdoors.
Crowd-sourced data, however, are often not collected using statistical sampling techniques, and may require
adjustments to be representative. For instance, crowd-sourced mobile data come from a self-selected group of users,
and there often is little control for most tests regarding parameters such as when people implement the test, whether
the test is performed indoors or outdoors, the geographic location of the tester, and the vintage of the consumer’s
device. Id. at 1679, para. 47, n.139.
785
The data collected by the Ookla Speedtest mobile app include test results for download speed, upload speed, and
latency, as well as other information, such as the location of the test and operating system of the handset. The
results presented in this Chapter are based on tests that were executed in the second half of the year for 2014, 2015,
2016 and 2017 on the smartphone’s cellular connection, and using LTE technology. Test data was excluded if it had
missing GPS locations data or if the reported download or upload speed was less than zero or greater than 100
Mbps. Multiple tests by a single phone in the same locality and in the same day were averaged (using the median).
786
2018 Broadband Deployment Report, 32 FCC Rcd at 1679, para. 47. This sample size threshold applies to each
county for each time frame (2H2014, 2H2015, 2H2016, and 2H2017): if a county does not have at least 300
observations during any of these time frames, it is not included in the actual speed analysis because the sample size
is not sufficient. The 300 observations threshold is a conservative threshold and is based on a general mean and
median sample size analysis. County geography is assigned using the latitude and longitude coordinates that are
collected during each Ookla speed test, via the device’s GPS. This allows us to evaluate actual median upload and
download speeds at the county level, in each year of the four-year time period, for counties in which approximately
93% of the U.S. population live (not including the U.S. Territories). If a census block has LTE coverage of at least 5
Mbps/1 Mbps based on the Form 477 minimum advertised speeds, it is assigned the median upload and download
speeds that are calculated for the county in which it is located, which allows us to evaluate the mobile broadband
speeds for each census block within the United States.
12687
Federal Communications Commission
FCC 18-181
on-the-ground speed data for every county in the United States, the Ookla data covers well over 90% of
the population of the United States,787 and as such, can reasonably be used to show progress over time.
3.
Broadband Deployment Estimates
247.
In Figures G-1 through G-3 below, we present our measurement of deployment,
evaluating progress by comparing deployment in the present year to deployment in the previous four
years. 788 For purposes of this Chapter, we aggregate federally recognized Tribal lands into 4 Tribal Lands
categories, the Lower 48 States; 789 Tribal Statistical Areas, 790 Alaskan Villages, 791 and Hawaiian
Homelands. 792 We report on deployment for each combination of fixed and mobile deployment.
a.
Deployment of Fixed Advanced Telecommunications Capability
248.
Figure G-1 shows the deployment of fixed terrestrial broadband at speeds of 25 Mbps/3
Mbps, the Commission’s current benchmark for fixed advanced telecommunications capability. As of
year-end 2017, 94% of the overall population had coverage of such services, up from 91.9% in 2016.
Nonetheless, the gap in rural and Tribal America remains notable: over 24% of Americans in rural areas
and 32% of Americans in Tribal lands lack coverage from fixed terrestrial 25 Mbps/3 Mbps broadband, as
compared to only 1.5% of Americans in urban areas. The data demonstrate, however, that the gap
between urban and rural or Tribal areas has narrowed each year over the last five years.
787
The percentage of the population in our analysis is based on the total U.S. population, not including the U.S.
Territories, for which we separately report our results. The Ookla speed data population in Figure G-2b is a subset
of the total U.S. population evaluated in Figure G-2a and refers to the population in the counties for which we
believe there are a statistically significant number of on-the-ground speed test observations. We do not have Ookla
speed data for the U.S. Territories. In 2017, for example, the U.S. population, not including the U.S. territories, was
325.716 million, whereas in Figure G-2b, we use 302.940 million as the basis for our 2017 calculations. The
population evaluated figure, 302.940 million, is the population for the U.S., excluding the U.S. Territories and the
population in the counties without a sufficient number of reliable on-the-ground speed test data observations.
788
Unless otherwise noted, the deployment percentage estimate for fixed terrestrial services and/or mobile services
is the population in the census blocks with coverage for the service divided by the total population in the area being
considered (e.g., United States, all rural areas, all urban areas). We present additional deployment data for each
state, the District of Columbia, and the U.S. Territories in the Broadband Deployment Appendices. See infra
Broadband Deployment Appendices D-1, D-2 and D-3 (reporting figures for each state and the District of Columbia)
and Appendix D-4 (reporting figures for each U.S. Territory). We present additional deployment data for each
Tribal lands and state in Appendix D-7.
789
These areas include: (1) Joint Use Areas; (2) legal federally recognized American Indian area consisting of
reservation and associated off-reservation trust land; (3) legal federally recognized American Indian area consisting
of reservation only; and (4) legal federally recognized American Indian area consisting of off-reservation trust land
only.
790
Tribal Statistical areas are Statistical American Indian areas. These are defined for a federally recognized Tribe
that does not have reservation or off-reservation trust land, specifically a Tribal designated statistical area (TDSA) or
Oklahoma Tribal Statistical Area (OTSA).
791
Alaskan Native village statistical area.
792
Hawaiian Home Lands established by the Hawaiian Homes Commission Act of 1921.
12688
Federal Communications Commission
FCC 18-181
Fig. G-1
Deployment (Millions) of Fixed Terrestrial 25 Mbps/3 Mbps Services
2013
Pop.
%
United States
263.971
Rural Areas
29.077
Urban Areas
234.893
Tribal Lands
1.449
Pop. Evaluated
2014
Pop.
2015
%
Pop.
2016
%
Pop.
2017
%
Pop.
%
83.6% 284.277
89.4% 287.853
89.9% 296.373
91.9% 306.328
94.0%
47.6%
60.4%
61.5%
67.8%
48.288
75.7%
37.202
38.271
42.677
92.3% 247.075
96.4% 249.582
96.7% 253.695
97.7% 258.040
98.5%
37.1%
57.2%
57.8%
63.1%
68.0%
2.250
2.290
2.520
2.731
315.596 100.0% 317.954 100.0% 320.289 100.0% 322.518 100.0% 325.716 100.0%
249.
In 2016, 25 Mbps/3 Mbps satellite service was reported for the first time in the Form 477
data collection. 793 If we include satellite service in our estimate, fixed 25 Mbps/3 Mbps service is
deployed to nearly every American as of December 2017. 794
b.
Deployment of Mobile LTE
250.
Figure G-2a shows that as of year-end 2017, approximately 100% of the American
population lives in geographical areas covered by mobile LTE with a minimum advertised speed of 5
Mbps/1 Mbps, 795 while approximately 98% had such coverage in 2013. Further, between 2013 and 2017,
the percentage of Americans living in rural areas with coverage of LTE at 5 Mbps/1 Mbps increased from
approximately 90% to approximately 99%. 796 The percentage of Americans living in Tribal lands with
coverage of mobile LTE rose from approximately 87% in 2013, to 97% in 2017. Figure G-2b also shows
some improvement since 2016 in the deployment of mobile LTE services at median speeds of 10 Mbps/3
Mbps for the United States and urban areas.
793
2018 Broadband Deployment Report, 32 FCC Rcd at 1681, para. 51.
794
Id. at 1681, para. 51, n.148; Broadband Deployment Appendix D-9 (Deployment (Millions) of Fixed Services at
Different Speed Tiers (2014-2017)). These data could overstate the deployment of these services. The data indicate
that fixed 25 Mbps/3 Mbps services are deployed to 93% of Americans residing in the U.S. Territories.
795
We present additional deployment data for Mobile LTE services for each state, the District of Columbia, the U.S.
Territories in the Broadband Deployment Appendices and each category of Tribal land in the appendix. See infra
Broadband Deployment Appendices D-1, D-2 and D-3 (reporting figures for each state and the District of
Columbia), Appendix D-4 (reporting figures for each U.S. Territory), and Broadband Deployment Appendix D-7
(reporting figures for Tribal lands and states).
796
The results reported in Fig. G-2a for 2013 are based upon SBI data for mobile services at maximum advertised
speeds of 6 Mbps/768 kbps as compared to the Form 477 data for mobile services which are based on minimum
advertised speeds of 5 Mbps/1 Mbps.
12689
Federal Communications Commission
FCC 18-181
Fig. G-2a
Deployment (Millions) of Mobile LTE with a Minimum Advertised Speed of 5 Mbps/1 Mbps
2013
Pop.
2014
%
Pop.
United States
308.527 97.8% 315.506
Rural Areas
55.044 90.2% 59.463
2015
%
Pop.
%
%
Pop.
%
99.6% 325.117
99.8%
96.5%
97.9%
98.2%
99.1%
60.969
Tribal Lands
92.2%
Pop. Evaluated 315.596 100.0% 317.954
Pop.
99.6% 321.347
99.9% 257.954
3.626
2017
99.2% 318.923
Urban Areas 253.483 99.6% 256.043
3.386 86.7%
2016
3.722
100.0% 320.289
61.802
100.0% 259.545
93.9%
3.788
100.0% 322.518
63.204
100.0% 261.912 100.0%
94.9%
3.896
97.0%
100.0% 325.716 100.0%
Fig. G-2b
Deployment (Millions) of Mobile LTE with a Median Speed of 10 Mbps/3 Mbps 797
2014
Pop.
United States
2015
%
2016
Pop.
%
Pop.
2017
%
Pop.
%
237.210
80.1%
245.843
82.5% 261.898
87.3%
269.494
89.0%
Rural Areas
32.638
70.3%
32.193
69.3% 32.962
70.1%
32.966
69.3%
Urban Areas
204.573
81.9%
213.650
85.0% 228.936
90.5%
236.528
92.6%
Pop. Evaluated
296.204
93.2%
297.899
93.0% 300.036
93.0%
302.940
93.0%
c.
Deployment of Fixed Services and Mobile LTE
251.
Figure G-3a shows deployment across all geographic areas for both fixed terrestrial 25
Mbps/3 Mbps services and 5 Mbps/1 Mbps mobile LTE. 798 Overall, as of year-end 2017, approximately
306 million Americans, or 94% of the population are covered by both 25 Mbps/3 Mbps fixed terrestrial
797
The analyses in Figures G-2a, G-3a and G-3c include all areas of the United States. In contrast, the analyses in
Figures G-2b, G-3b and G-3d exclude any county (and its associated census blocks) for which there is insufficient
Ookla data. In addition, we do not report results for Tribal lands in Figures G-2b, G-3b, and G-3d because we have
concerns with the representativeness of the Ookla data for these areas. Tribal areas not only typically have fewer
speed tests, but there are also fewer of these areas relative to urban and rural areas. Thus, deployment estimates for
tribal areas are more sensitive to sample variance. The population figure reported in the bottom row of these figures
is the population evaluated for the reported time period and the percentage is the percentage of the U.S. population
evaluated. Accordingly, the 302.94 population evaluated figure for 2017 in Figure G-2b represents 93% of the
overall population in the 50 U.S. states (i.e., 302.94/325.716=0.93). Regardless of our deployment estimates for
mobile LTE with a median speed of 10 Mbps/3 Mbps, Americans residing in the counties without sufficient Ookla
data to create a statistically significant county sample to be included in Figures G-2b, G-3b, and G-3d, receive
minimum advertised or expected speeds of 5 Mbps/1 Mbps, and likely receive mobile services with speeds higher
than 5 Mbps/1 Mbps.
798
We present additional deployment data for terrestrial fixed 25 Mbps/3 Mbps and/or Mobile LTE services in an
appendix. See infra Broadband Deployment Appendices D-2 and D-3 (reporting figures for each state and the
District of Columbia), Appendix D-5 (reporting figures for each state, the District of Columbia, and each county),
and Appendix D-6 (reporting figures by urban and rural areas within each state, the District of Columbia and each
county).
12690
Federal Communications Commission
FCC 18-181
service and mobile LTE with a minimum advertised speed of 5 Mbps/1 Mbps, an increase from 91.7% in
2016. 799 In rural areas, 75.3% of Americans are covered by both services, as opposed to 98.5% of
Americans in urban areas, up from 67.1% and 97.7%, respectively, in 2016. On Tribal lands, 67.7% of
Americans have coverage for both services up from 62.4% in 2016. Figure G-3b shows deployment of
fixed terrestrial speeds of 25 Mbps/3 Mbps and mobile LTE with median speed of 10 Mbps/3 Mbps. As
of December 31, 2017, approximately 261 million Americans live in geographic areas covered by both
services, an increase of 11.1 million Americans since 2016.
Fig. G-3a
Deployment (Millions) of Fixed Terrestrial 25 Mbps/3 Mbps Services and Mobile LTE Based on a
Minimum Advertised Speed of 5 Mbps/1 Mbps
2013
Pop.
United States
261.977
Rural Areas
27.776
Urban Areas
234.200
Tribal Lands
1.385
Pop. Evaluated
2014
%
Pop.
2015
%
Pop.
%
83.0% 283.417
89.1%
287.387
45.5%
36.517
59.2%
37.840
92.0% 246.900
96.3%
249.547
35.5%
56.2%
2.258
2.212
315.596 100.0% 317.954 100.0%
2016
2017
Pop.
%
Pop.
%
89.7% 295.905
91.7% 306.054 94.0%
60.8%
67.1%
42.231
48.020 75.3%
96.7% 253.674
97.7% 258.034 98.5%
57.0%
62.4%
2.491
2.720 67.7%
320.289 100.0% 322.518 100.0% 325.716 100.0%
Fig G-3b
Deployment (Millions) of Fixed Terrestrial 25 Mbps/3 Mbps Services and Mobile LTE with a
Median Speed of 10 Mbps/3 Mbps
2014
Pop.
2015
%
Pop.
United States
221.255
Rural Areas
22.637
Urban Areas
198.617
79.5% 208.007
Pop. Evaluated
296.204
93.2% 297.899
2016
%
Pop.
2017
%
Pop.
%
74.7% 230.561
77.4% 249.817
83.3% 260.927
86.1%
48.8%
48.5%
53.1%
27.185
57.2%
82.7% 224.856
88.9% 233.743
91.5%
93.0% 300.036
93.0% 302.940
93.0%
22.554
24.961
252.
Figure G-3c reports deployment of fixed terrestrial 25 Mbps/3 Mbps service or mobile
LTE with a minimum advertised speed of 5 Mbps/1 Mbps and shows that services are deployed to
approximately 100% of the American population as of year-end 2017. Figure G-3d shows that
approximately 298 million Americans, or approximately 98.5% of the population in the evaluated areas,
are covered by either 25 Mbps/3 Mbps fixed terrestrial service or Mobile LTE with a median speed of 10
Mbps/3 Mbps.
799
The results reported for 2013 are based upon SBI data for mobile services at maximum advertised speeds of 6
Mbps/768 kbps as compared to the Form 477 data which are based on minimum advertised speeds of 5 Mbps/1
Mbps.
12691
Federal Communications Commission
FCC 18-181
Fig. G-3c
Deployment (Millions) of Fixed Terrestrial 25 Mbps/3 Mbps Services or Mobile LTE Based on a
Minimum Advertised Speed of 5 Mbps/ 1 Mbps
2013
Area
United States
Pop.
%
310.521
Rural Areas
56.345
Urban Areas
254.176
Tribal Lands
3.449
Pop. Evaluated
2014
Pop.
2015
%
Pop.
2016
%
2017
Pop.
%
Pop.
%
98.4% 316.366
99.5% 319.389
99.7% 321.815
99.8% 325.390
99.9%
92.3%
97.6%
98.6%
98.9%
99.5%
60.148
61.400
62.249
63.472
99.9% 256.218 100.0% 257.989 100.0% 259.567 100.0% 261.919 100.0%
88.3%
3.664
93.2%
3.753
94.7%
3.817
95.6%
3.907
97.3%
315.596 100.0% 317.954 100.0% 320.289 100.0% 322.518 100.0% 325.716 100.0%
Fig. G-3d
Deployment (Millions) of Fixed Terrestrial 25 Mbps/3 Mbps Services or Mobile LTE with a Median
Speed of 10 Mbps/3 Mbps
2014
Pop.
United States
288.119
2015
%
Pop.
2016
%
Pop.
2017
%
Pop.
%
97.3% 290.355
97.5% 293.862
97.9% 298.449
98.5%
86.9%
87.5%
89.1%
43.652
91.8%
Rural Areas
40.332
Urban Areas
247.787
99.2% 249.695
99.3% 251.968
99.6% 254.796
99.8%
Pop. Evaluated
296.204
93.2% 297.899
93.0% 300.036
93.0% 302.940
93.0%
d.
40.660
41.895
Additional Deployment Estimates
253.
Figure G-4 shows deployment of fixed terrestrial services at various speed tiers since
2013. 800 As of December 2017, fixed terrestrial service of 10 Mbps/1 Mbps is deployed to 97.3% of all
Americans, up from 95.8% in 2016, and deployment of fixed terrestrial 50 Mbps/5 Mbps service is
deployed to 92.3% of the population, up from 90.3% in 2016. From 2016 to 2017, the deployment of 100
Mbps/10 Mbps increased from 75.7% to over 89.3% of the population, and the deployment of 250
Mbps/25 Mbps increased from 43.7% to 63% of the population. Deployment in rural areas and on Tribal
lands lags behind deployment in urban areas at all five speed tiers, but the data show year-over-year
improvements for all speeds in these areas.
800
We present deployment estimates for all fixed services including satellite broadband in an appendix. See infra
Broadband Deployment Appendix D-9 (Deployment (Millions) of Fixed Services at Different Speed Tiers (20142017).
12692
Federal Communications Commission
FCC 18-181
Fig. G-4
Deployment (Millions) of Fixed Terrestrial Services at Different Speed Tiers
2013
Pop.
2014
%
Pop.
2015
%
Pop.
2016
%
Pop.
2017
%
Pop.
%
10 Mbps/1 Mbps
United States
294.244
Rural Areas
42.573
Urban Areas
251.671
Tribal Lands
2.622
93.2% 297.826
93.7% 302.138
94.3% 309.109
95.8% 316.811
97.3%
69.7%
75.0%
77.7%
83.3%
56.934
89.3%
46.219
48.361
52.437
98.9% 251.608
98.2% 253.777
98.4% 256.672
98.9% 259.878
99.2%
67.1%
68.9%
72.8%
80.2%
3.329
82.9%
2.709
2.886
3.201
25 Mbps/ 3 Mbps
United States
263.971
Rural Areas
29.077
Urban Areas
234.893
Tribal Lands
1.449
83.6% 284.277
89.4% 287.853
89.9% 296.373
91.9% 306.328
94.0%
47.6%
60.4%
61.5%
67.8%
48.288
75.7%
37.202
38.271
42.677
92.3% 247.075
96.4% 249.582
96.7% 253.695
97.7% 258.040
98.5%
37.1%
57.2%
57.8%
63.1%
2.731
68.0%
2.250
2.290
2.520
50 Mbps/5 Mbps
United States
187.416
Rural Areas
15.571
Urban Areas
171.844
Tribal Lands
1.161
59.4% 270.771
85.2% 283.329
88.5% 291.380
90.3% 300.474
92.3%
25.5%
52.1%
56.7%
62.4%
43.985
69.0%
32.127
35.316
39.260
67.5% 238.644
93.1% 248.013
96.1% 252.119
97.1% 256.489
97.9%
29.7%
48.8%
53.4%
56.9%
2.465
61.4%
1.919
2.116
2.269
100 Mbps/10 Mbps
United States
165.184
Rural Areas
12.568
Urban Areas
152.616
Tribal Lands
1.058
52.3% 201.905
63.5% 215.582
67.3% 244.297
75.7% 290.884
89.3%
20.6%
26.7%
32.9%
41.2%
39.160
61.4%
16.484
20.481
25.925
60.0% 185.422
72.3% 195.101
75.6% 218.372
84.1% 251.724
96.1%
27.1%
33.6%
42.1%
47.0%
2.202
54.8%
43.7% 205.237
63.0%
15.9%
23.870
37.4%
50.4% 181.367
69.2%
33.3%
40.3%
1.320
1.669
1.875
250 Mbps/ 25 Mbps
United States
NA
NA
15.674
4.9%
67.912
Rural Areas
NA
NA
2.020
3.3%
5.460
Urban Areas
NA
NA
13.654
5.3%
62.452
Tribal Lands
NA
NA
0.047
1.2%
0.276
Pop. Evaluated
21.2% 140.795
8.8%
10.029
24.2% 130.766
7.0%
1.330
1.621
315.596 100.0% 317.954 100.0% 320.289 100.0% 322.518 100.0% 325.716 100.0%
254.
Figure G-5 presents deployment data for fixed terrestrial 25 Mbps/3 Mbps service and
mobile LTE service with a speed of at least 5 Mbps/1 Mbps from 2013 through 2017 for the U.S.
12693
Federal Communications Commission
FCC 18-181
Territories.801 As of 2017, Puerto Rico and the U.S. Virgin Islands accounted for over 92% of the
population in the U.S. Territories. The data suggest that as of December 2017, 85.8% of Americans in the
U.S. Territories were covered by 25 Mbps/3 Mbps fixed terrestrial service and 5 Mbps/1 Mbps mobile
LTE, which represented an increase of approximately 20 percentage points since 2013. The 2017 data
may significantly overstate current deployment in the U.S. Territories, however, given the deployment
data provided by providers do not appear to reflect infrastructure damage caused by Hurricanes Maria and
Irma in 2017 even though the December 2017 data postdates the hurricanes and should reflect such
damage. Aside from the potential impact of the hurricanes, there appear to be anomalies in the
underlying data presented in Figure G-5. 802 Thus, the changes in reported deployment in the Form 477
data may not reflect actual changes in deployment.
Fig. G-5
Deployment (Millions) in U.S. Territories of Terrestrial Fixed 25 Mbps/3 Mbps Services and Mobile
LTE Based on a Minimum Advertised Speed of 5 Mbps/1 Mbps
2013
Pop.
2014
%
Pop.
2015
%
Pop.
2016
%
Pop.
2017
%
Pop.
%
Fixed Terrestrial 25 Mbps/3 Mbps Fixed
U.S. Territories
2.627
66.2%
3.217
82.4%
2.368
61.5%
3.151
83.2%
3.192
85.9%
Rural Areas
0.218
85.5%
0.135
53.5%
0.095
38.1%
0.143
57.9%
0.151
61.6%
Urban Areas
2.409
64.9%
3.082
84.4%
2.273
63.1%
3.008
85.0%
3.040
87.6%
Mobile LTE with a Speed of 5 Mbps/1 Mbps
U.S. Territories
3.866
97.5%
3.762
96.3%
3.701
96.1%
3.717
98.2%
3.658
98.4%
Rural Areas
0.228
89.5%
0.226
89.4%
0.224
89.5%
0.230
93.0%
0.233
94.8%
Urban Areas
3.638
98.1%
3.537
96.8%
3.477
96.5%
3.487
98.6%
3.425
98.7%
Fixed Terrestrial 25 Mbps/3 Mbps and Mobile LTE with a Speed of 5 Mbps/1 Mbps
U.S. Territories
2.576
65.0%
3.214
82.3%
2.365
61.4%
3.147
83.1%
3.188
85.8%
Rural Areas
0.199
78.0%
0.132
52.3%
0.093
37.0%
0.139
56.2%
0.148
60.3%
Urban Areas
2.377
64.1%
3.082
84.3%
2.272
63.1%
3.008
85.0%
3.040
87.6%
Fixed Terrestrial 25 Mbps/3 Mbps or Mobile LTE with a Speed of 5 Mbps/1 Mbps
U.S. Territories
3.917
98.8%
3.766
96.4%
3.704
96.1%
3.722
98.3%
3.661
98.5%
Rural Areas
0.247
97.0%
0.229
90.5%
0.227
90.5%
0.234
94.6%
0.236
96.2%
Urban Areas
3.669
98.9%
3.537
96.8%
3.477
96.5%
3.488
98.6%
3.425
98.7%
Pop. Evaluated
3.965 100.0%
3.906 100.0%
3.853 100.0%
3.786 100.0%
3.716 100.0%
801
We present additional deployment data on the territories in the Appendix. See infra Broadband Deployment
Appendix D-4 (Deployment of Fixed Terrestrial 25 Mbps/3 Mbps Services and Mobile LTE 5 Mbps/1 Mbps by
U.S. Territory).
802
For instance, the data in 2015 appears to show a significant drop in deployment for fixed and mobile services that
is not continued in 2016.
12694
Federal Communications Commission
4.
FCC 18-181
Demographic Data
255.
Figures G-6 and G-7 compare the available demographic data for Americans with and
without coverage to fixed terrestrial 25 Mbps/3 Mbps service and mobile LTE. 803 Figure G-6 presents
this analysis for the United States as a whole, urban areas, rural areas, and Tribal lands for fixed terrestrial
25 Mbps/3 Mbps service and mobile LTE with a minimum advertised speed of 5 Mbps/1 Mbps in
2017. 804 The data show that generally, Americans in areas where these services are deployed typically
live in census block groups with a lower percentage of households living in poverty, and with higher
average populations, population densities, per capita incomes, and median household incomes than
Americans living in areas without coverage by these services.
Fig. G-6
Comparison of Demographic Data Between Areas Where Fixed Terrestrial 25 Mbps/3 Mbps
Services and Mobile LTE with a Minimum Advertised Speed of 5 Mbps/1 Mbps Have Been
Deployed and Where These Services Have Not Been Deployed (As of December 31, 2017)
Average
Population
Average
Population
Density
Average Per
Capita Income
($2016)
Average Median
Household
Income ($2016)
Average
Poverty Rate
1,509.0***
7,427.6***
$30,631.03***
$62,736.73***
15.0%***
1,424.3
992.3
$25,119.73
$50,133.83
16.0%
1,418.3***
190.8***
$29,438.84***
$60,091.87***
11.5%***
1,333.7
74.6
$25,151.25
$50,274.03
14.7%
1,520.1***
8,318.1***
$30,777.72***
$63,066.05***
15.5%***
1,644.1
3,217.8
$25,042.81
$49,782.62
19.2%
United States (All Areas)
With Deployment
Without Deployment
U.S. Rural Areas
With Deployment
Without Deployment
U.S. Urban Areas
With Deployment
Without Deployment
803
To compare the demographic data between areas where these services are and are not deployed, we aggregate the
census block data up to the census block group level, the lowest aggregation level for which demographic
information is available. This aggregation can result in census blocks being grouped together that may not be
uniformly deployed or be uniformly categorized as urban, rural, or on Tribal lands. We designate a census block
group as without deployment if more than 5% of the population in the census block group is without services; we
designate a census block group as rural if more than 50% of the population in the census block group resides in
census blocks designated as rural, and we designate a census block group as Tribal lands if more than 50% of the
land area in the census block group is designated as Tribal lands. Population Density is the total population residing
in the census block group divided by the square miles of land in the census block group. The estimate of land area is
based upon the 2010 Census. We use the American Community Survey (ACS) Five-Year Estimates 2012–2016 for
income and poverty measures. Per capita income and median household income in the past twelve months are
measured in 2016 Inflation-Adjusted Dollars. The poverty rate is the proportion of households living below the
poverty level.
804
We provide more granular state-by-state and county-by-county deployment information in an Appendix. See
infra Broadband Deployment Appendices D-5 and D-6.
12695
Federal Communications Commission
FCC 18-181
Average
Population
Average
Population
Density
Average Per
Capita Income
($2016)
Average Median
Household
Income ($2016)
Average
Poverty Rate
With Deployment
1,351.4
2,170.3***
$25,461.83***
$49,535.37***
17.2%***
Without Deployment
1,359.7
244.9
$21,197.64
$43,858.52
20.9%
With Deployment
1,334.3
178.4***
$24,756.76***
$49,302.17***
17.0%***
Without Deployment
1,345.1
76.9
$21,452.79
$44,185.76
20.5%
With Deployment
1,355.4
2,643.4***
$25,626.78***
$49,589.85***
17.3%***
Without Deployment
1,417.4
904.7
$20,199.10
$42,570.14
22.6%
Tribal Lands
Tribal Rural Areas
Tribal Urban Areas
We test for a statistical difference in the reported means between areas with and without deployment of these
services. The level of statistical significance is indicated by a superscript: The absence of a star indicates no
statistical difference between the reported figures. * signifies statistical significance at a 90% level of confidence,
** signifies statistical significance at a 95% level of confidence, and *** signifies statistical significance at a 99%
level of confidence.
256.
Figure G-7 compares the available demographic data across urban and rural areas for
Americans with and without coverage by both fixed terrestrial 25 Mbps/3 Mbps service and mobile LTE
service with a median speed of 10 Mbps/3 Mbps in 2017. 805 Like Figure G-6, Figure G-7 shows that
Americans living in areas where these services are deployed typically live in census block groups where
there is a lower percentage of households living in poverty, and where there are higher average
populations, population densities, per capita incomes, and median household incomes.
Fig. G-7
Comparison of Demographic Data Between Areas Where Fixed Terrestrial 25 Mbps/3 Mbps
Services and Mobile LTE with a Median Speed of 10 Mbps/3 Mbps Has Been Deployed and Where
These Services Have Not Been Deployed (As of December 31, 2017)
Average
Population
Average
Population
Density
Average Per
Capita Income
($2016)
Average Median
Household
Income ($2016)
Average
Poverty Rate
1,530.4***
8,313.9***
$31,627.62***
$65,047.18***
14.6%***
1,430.7
1,591.3
$25,489.18
$51,213.31
16.3%
1,424.9***
189.8***
$31,426.04***
$65,372.88***
10.1%***
1,300.2
98.5
$26,379.11
$53,263.10
13.6%
United States (All Areas)
With Deployment
Without Deployment
U.S. Rural Areas
With Deployment
Without Deployment
805
As is the case with other 10 Mbps/3 Mbps Ookla data for Tribal lands, we do not report results because of
concerns with the representativeness of the Ookla data for these areas. See supra Sections II.G.2 and II.G.3.b.
12696
Federal Communications Commission
FCC 18-181
Average
Population
Average
Population
Density
Average Per
Capita Income
($2016)
Average Median
Household
Income ($2016)
Average
Poverty Rate
1,539.0***
8,978.6***
$31,644.09***
$65,020.27***
15.0%***
1,565.3
3,131.8
$24,569.35
$49,052.07
19.1%
U.S. Urban Areas
With Deployment
Without Deployment
We test for a statistical difference in the reported means between areas with and without deployment of these
services. The level of statistical significance is indicated by a superscript: The absence of a star indicates no
statistical difference between the reported figures. A * signifies statistical significance at a 90% level of confidence,
** signifies statistical significance at a 95% level of confidence, and *** signifies statistical significance at a 99%
level of confidence.
257.
Figure G-8 shows, for 2017, how the average proportion of the population with coverage
by fixed terrestrial 25 Mbps/3 Mbps service and mobile LTE service with a minimum advertised speed of
5 Mbps/1 Mbps varies with census block group-level median household income, census block group-level
population density, and census block group-level poverty rate.806 On average, deployment is highest in
census block groups with the highest median household income, the highest population density and the
lowest poverty rate.
Fig. G-8
Average Percentage of Population with Fixed Terrestrial 25 Mbps/3 Mbps and Mobile LTE 5
Mbps/1 Mbps with a Minimum Advertised Speed of 5 Mbps/1 Mbps by Census Block Group Level
Demographic Variable (As of December 31, 2017)
Fixed
Mobile LTE
Both Fixed and
Mobile LTE
Median Household Income($2016)
First Quartile (Lowest Median Household Income)
91.9%
99.5%
91.6%
Second Quartile
90.5%
99.6%
90.3%
Third Quartile
93.2%
99.8%
93.1%
Fourth Quartile (Highest Median Household
Income)
97.9%
100%
97.9%
Population Density
First Quartile (Lowest Pop. Density)
76.9%
98.9%
76.4%
Second Quartile
97.8%
100%
97.8%
Third Quartile
99.1%
100%
99.1%
Fourth Quartile (Highest Pop. Density)
99.2%
100%
99.2%
806
We present these results at the census block group, the smallest geographic areas for which income data is
available, to accurately examine how the deployment rate varies with income measures in the geographic area.
12697
Federal Communications Commission
Fixed
FCC 18-181
Mobile LTE
Both Fixed and
Mobile LTE
Household Poverty Rate
First Quartile (Lowest Poverty Rate)
96.2%
99.9%
96.1%
Second Quartile
93.1%
99.8%
93.0%
Third Quartile
91.1%
99.6%
90.9%
Fourth Quartile (Highest Poverty Rate)
93.1%
99.6%
92.9%
258.
Figure G-9 shows, for 2017, how the average proportion of the population with coverage
of fixed terrestrial services by speed tier varies with census block-level median household income, census
block-level population density, and census block-level poverty rate. On average, deployment is highest in
census block groups with the highest median household income, the highest population density and the
lowest poverty rate.
Fig. G-9
Average Percentage of Population with Fixed Terrestrial Services by Census Block Group Level
Demographic Variable (As of December 31, 2017)
10 Mbps/ 25 Mbps/ 50 Mbps/ 100 Mbps/ 250 Mbps/
1 Mbps
3 Mbps
5 Mbps
10 Mbps
25 Mbps
Median Household Income($2016)
First Quartile (Lowest Median Household Income)
96.1%
91.9%
90.2%
86.1%
54.9%
Second Quartile
95.8%
90.5%
88.0%
83.9%
55.9%
Third Quartile
97.2%
93.2%
90.8%
87.8%
62.7%
Fourth Quartile (Highest Median Household
Income)
99.0%
97.9%
97.0%
95.8%
76.5%
Population Density
First Quartile (Lowest Pop. Density)
89.8%
76.9%
71.0%
63.6%
38.6%
Second Quartile
99.0%
97.8%
96.8%
93.6%
62.8%
Third Quartile
99.5%
99.1%
98.7%
97.5%
70.7%
Fourth Quartile (Highest Pop. Density)
99.5%
99.2%
99.1%
98.6%
77.6%
Poverty Rate
First Quartile (Lowest Poverty Rate)
98.3%
96.2%
94.8%
93.0%
71.5%
Second Quartile
97.1%
93.1%
91.0%
88.0%
63.0%
Third Quartile
96.1%
91.1%
88.8%
84.9%
57.6%
Fourth Quartile (Highest Poverty Rate)
96.6%
93.1%
91.4%
87.9%
58.1%
12698
Federal Communications Commission
5.
FCC 18-181
Tribal Lands Data
259.
In Figures G-10 and G-11 we present additional deployment estimates for Americans
living on Tribal lands by Tribal lands category. 807 The Commission’s data indicate that deployment in
rural Tribal lands continue to lag deployment in urban Tribal lands.
260.
Figure G-10 presents deployment on Tribal lands from 2013 to 2017 of both fixed
terrestrial 25 Mbps/3 Mbps services and mobile LTE service with a speed of at least 5 Mbps/1 Mbps.
Overall, in 2017, 67.7% of Tribal lands are covered by fixed terrestrial 25 Mbps/3 Mbps services and
mobile LTE with a speed of 5 Mbps/1 Mbps based on Form 477 data. Rural Tribal lands continue to lag
behind urban Tribal lands, with only 45.6% of all Tribal lands in rural areas having deployment of both
services, as compared to 91.6% of Tribal lands in urban areas.
Fig. G-10
Deployment (Millions) on Tribal Lands of Fixed 25 Mbps/3 Mbps Fixed Terrestrial Services and
Mobile LTE Services with a Minimum Advertised Speed of 5 Mbps/1 Mbps
2013
Pop.
Tribal Lands
2014
%
Pop.
2015
%
Pop.
2016
%
Pop.
2017
%
Pop.
%
1.385 35.5%
2.212 56.2%
2.258 57.0%
2.491 62.4%
2.720 67.7%
Rural Areas
0.283 14.1%
0.597 29.5%
0.614 30.1%
0.780 37.8%
0.951 45.6%
Urban Areas
1.102 57.9%
1.615 84.5%
1.644 85.6%
1.711 88.8%
1.768 91.6%
Alaskan Villages
0.071 28.2%
0.113 44.4%
0.110 42.7%
0.135 51.5%
0.151 57.0%
Rural Areas
0.021 13.1%
0.042 25.8%
0.039 23.7%
0.061 36.2%
0.073 42.4%
Urban Areas
0.050 54.9%
0.071 77.4%
0.071 76.7%
0.074 79.0%
0.079 83.3%
0.029 90.6%
0.032 96.9%
0.030 88.9%
0.030 88.6%
0.030 89.4%
Rural Areas
0.002 45.0%
0.005 83.0%
0.002 43.9%
0.002 43.5%
0.003 47.7%
Urban Areas
0.027 99.4%
0.027 99.8%
0.027 98.0%
0.027 98.0%
0.027 98.2%
Lower 48 States
0.321 30.0%
0.419 38.8%
0.452 41.5%
0.508 46.1%
0.598 53.5%
Rural Areas
0.134 18.9%
0.185 25.8%
0.207 28.4%
0.239 32.3%
0.314 41.7%
Urban Areas
0.187 51.9%
0.233 64.8%
0.245 67.8%
0.270 74.1%
0.284 78.1%
Tribal Statistical
Areas
0.964 37.8%
1.648 64.2%
1.666 64.5%
1.818 70.2%
1.940 74.6%
Hawaiian
Homelands
807
We group tribal lands as designated by their 2010 census block delineations. Alaskan Villages include census
blocks that are designated as Alaskan Native village statistical areas. Hawaiian Home Lands include census blocks
that were established by the Hawaiian Homes Commission Act of 1921. Tribal Statistical areas are Statistical
American Indian areas. These are defined for a federally recognized Tribe that does not have reservation or offreservation trust land, specifically a Tribal designated statistical area (TDSA) or Oklahoma Tribal Statistical Area
(OTSA). The Lower 48 States category includes census blocks designated as: (1) Joint Use Areas; (2) legal
federally recognized American Indian area consisting of reservation and associated off-reservation trust land; (3)
legal federally recognized American Indian area consisting of reservation only; and (4) legal federally recognized
American Indian area consisting of off-reservation trust land only. We present more granular state-by-state Tribal
lands data in an appendix. See infra Broadband Deployment Appendix D-7 (Deployment of Fixed Terrestrial 25
Mbps/3 Mbps Services and/or Mobile LTE with a Minimum Advertised Speed of 5 Mbps/1 Mbps on Tribal Lands
by State).
12699
Federal Communications Commission
2013
Pop.
2014
%
Pop.
2015
%
Pop.
FCC 18-181
2016
%
Pop.
2017
%
Pop.
%
Rural Areas
0.126 11.2%
0.365 32.1%
0.365 32.0%
0.478 41.5%
0.562 48.6%
Urban Areas
0.838 58.8%
1.283 89.7%
1.301 90.3%
1.341 93.0%
1.378 95.4%
3.905
3.933
3.964
3.991
4.017
Pop. Evaluated
100%
100%
100%
100%
100%
261.
In Figure G-11 we present deployment estimates for fixed terrestrial 25 Mbps/3 Mbps
service and mobile LTE service with a speed of at least 5 Mbps/1 Mbps on Tribal lands. As of December
31, 2017, fixed terrestrial 25 Mbps/3 Mbps services is deployed to 68% of Americans on Tribal Lands,
97% are covered by mobile LTE 5 Mbps/1 Mbps and 67.7% of Americans on Tribal lands are covered by
both services. The figures show variability in deployment across the Tribal lands categories, with the
least deployment occurring in Alaskan Villages and the Lower 48 states.
Fig. G-11
Deployment (Millions) of Fixed Terrestrial 25 Mbps/3 Mbps Services and/or Mobile LTE with a
Minimum Advertised Speed of 5 Mbps/1 Mbps on Tribal Lands (As of December 31, 2017)
Fixed 25 Mbps/
3 Mbps
Total
Pop.
Mobile LTE 5
Mbps/1 Mbps
Fixed 25 Mbps/3
Fixed 25 Mbps/3
Mbps and Mobile
Mbps or Mobile
LTE 5 Mbps/1 Mbps LTE 5 Mbps/1 Mbps
%
Pop.
%
Pop.
%
97.0%
2.720
67.7%
3.907
97.3%
4.017
Pop.
2.731
%
68.0%
Pop.
3.896
Alaskan Villages
0.265
0.154
58.0%
0.197
74.3%
0.151
57.0%
0.200
75.4%
Hawaiian
Homelands
0.034
0.030
89.4%
0.034
99.9%
0.030
89.4%
0.034
99.9%
Lower 48 States
1.117
0.607
54.3%
1.069
95.7%
0.598
53.5%
1.078
96.5%
Tribal Statistical
Areas
2.601
1.941
74.6%
2.596
99.8%
1.940
74.6%
2.596
99.8%
Tribal Lands
6.
Adoption Data
262.
We also include an assessment of adoption because adoption of services is necessarily a
lower bound on fixed deployment. 808 We report adoption rates based upon data as of December 2013 to
December 2017. The reported adoption rates are the ratio of residential Form 477 data subscriptions to
fixed terrestrial services at the designated speed divided by the total number of households in the area
where our Form 477 deployment data indicated that fixed terrestrial services are deployed. 809
808
We present adoption data for each state and the District of Columbia in an Appendix. See infra Broadband
Deployment Appendix D-8 (Overall Adoption Rate for Fixed Terrestrial Services by State and District of Columbia
(2017)).
809
The subscriber data is reported for the census tract, not census block. Thus, we aggregate the deployment data up
to the census tract. We calculate adoption rates for the following geographic areas: the U.S. as a whole, all urban
core census tracts, all non-urban core census tracts, the county (or county equivalent), and for each state and the
District of Columbia. A census tract is designated as “Urban Core” if it has a land area less than three square miles
and a population density of at least 1,000 people per square mile. A census tract is designated as “Non-Urban Core”
if we have not designated the census tract as Urban Core. A census tract is designated Tribal lands if more than 50%
of the land area is Tribal land.
12700
Federal Communications Commission
FCC 18-181
263.
Figure G-12 shows the overall adoption rates, 810 using Form 477 subscribership data,
from 2013 through 2017 for fixed terrestrial services for the U.S. as a whole, urban and non-urban core
areas, and Tribal lands. The data show year-to-year increases across the vast majority of areas, including
Tribal lands, for adoption of 10 Mbps/3 Mbps, 25 Mbps/3 Mbps, 50 Mbps/3 Mbps, 100 Mbps/10 Mbps,
and 250 Mbps/25 Mbps fixed terrestrial services. 811
Fig. G-12
Adoption Rates for Fixed Terrestrial Services
2013
2014
2015
2016
2017
10 Mbps/1 Mbps
United States
53.4%
56.0%
62.2%
66.3%
69.4%
Non-Urban Core Areas
48.9%
49.7%
55.8%
60.2%
63.0%
Urban Core Areas
56.7%
60.7%
67.0%
71.0%
74.6%
33.0%
35.5%
42.4%
42.7%
46.6%
Non-Urban Core Areas
28.9%
30.6%
36.1%
36.5%
40.8%
Urban Core Areas
41.6%
46.0%
56.8%
59.0%
62.3%
Tribal Lands
25 Mbps/3 Mbps
United States
29.7%
38.5%
48.1%
53.5%
59.8%
Non-Urban Core Areas
28.5%
34.4%
43.2%
48.9%
54.5%
Urban Core Areas
30.4%
41.3%
51.5%
56.9%
63.9%
31.9%
27.2%
31.7%
33.4%
37.9%
Non-Urban Core Areas
27.8%
23.3%
28.5%
30.2%
34.5%
Urban Core Areas
36.6%
33.9%
37.1%
39.4%
45.1%
Tribal Lands
50 Mbps/ 5 Mbps
United States
NA
24.8%
33.9%
44.4%
54.4%
Non-Urban Core Areas
NA
19.9%
27.8%
41.1%
50.0%
Urban Core Areas
NA
28.0%
38.0%
46.7%
57.7%
NA
22.6%
25.0%
28.9%
34.2%
Tribal Lands
810
We have insufficient information to determine the proportion of the population for which 50 Mbps/5 Mbps
service is deployed prior to December 31, 2014. See 2015 Report, 30 FCC Rcd at 1413, para. 69, n.278. The
reported adoption rates for 2014 to 2017 are based upon the Form 477 deployment data and subscriber data as of
December 31, 2014, December 31, 2015, December 31, 2016, and December 31, 2017. The reported adoption rates
for 2013 are based upon the SBI Deployment data as of December 31, 2013, and the Form 477 subscriber data as of
December 31, 2013. For the 2013, a 768 kbps upload speed is used as a proxy for a 1 Mbps upload speed because
this is the speed closest to 1 Mbps that was collected in the SBI data collection and the FCC’s Form 477 data
collection during this time period. See id., 30 FCC Rcd at 1413.
811
Prior to the Commission’s revision of the Form 477 data collection, which is reflected for the first time in the
2014 data, Form 477 filers did not report subscribers specifically at the 50 Mbps/5 Mbps or the 250 Mbps/25 Mbps
service tiers. This does not indicate there were no subscribers to these services in 2013.
12701
Federal Communications Commission
2013
2014
FCC 18-181
2015
2016
2017
Non-Urban Core Areas
NA
17.9%
20.4%
25.3%
30.8%
Urban Core Areas
NA
28.9%
32.0%
34.9%
40.5%
100 Mbps/10 Mbps
United States
0.9%
11.2%
16.7%
19.2%
29.4%
Non-Urban Core Areas
0.8%
11.7%
16.4%
17.8%
26.5%
Urban Core Areas
0.9%
11.0%
16.9%
20.0%
31.3%
0.3%
7.1%
7.4%
10.5%
18.3%
Non-Urban Core Areas
0.3%
7.4%
6.4%
9.8%
17.0%
Urban Core Areas
0.3%
6.8%
8.7%
11.6%
20.4%
Tribal Lands
250 Mbps/25 Mbps
NA
2.6%
4.2%
1.8%
3.8%
Non-Urban Core Areas
NA
3.0%
6.7%
2.3%
3.5%
Urban Core Areas
NA
2.3%
3.1%
1.6%
3.9%
NA
0.1%
1.4%
1.8%
4.4%
Non-Urban Core Areas
NA
0.1%
1.7%
2.1%
4.4%
Urban Core Areas
NA
0.0%
0.2%
1.5%
4.3%
United States
Tribal Lands
264.
Figure G-13 reports average county level overall adoption rates for fixed terrestrial
services by speed tier against the quartile ranking for median household income, population density, the
poverty rate, and the proportion of the population that resides in a rural area. These data suggest that the
average household adoption rate increases with median household income and population density,
although the adoption rate decreases as the poverty rate and rural population rate increase.
Fig. G-13
Average County Overall Adoption Rate for Fixed Terrestrial Services
by County Level Demographic Variable (As of December 31, 2017)
10 Mbps/ 25 Mbps/ 50 Mbps/ 100 Mbps/ 250 Mbps/
1 Mbps
3 Mbps
5 Mbps
10 Mbps
25 Mbps
County Median Household Income ($2016)
First Quartile (Lowest Median Household Income)
33.6%
23.7%
22.0%
15.4%
1.8%
Second Quartile
42.4%
40.2%
28.8%
14.9%
3.8%
Third Quartile
48.7%
37.2%
32.7%
16.1%
4.4%
Fourth Quartile (Highest Median Household
Income)
62.3%
52.8%
47.2%
22.8%
4.3%
12702
Federal Communications Commission
FCC 18-181
10 Mbps/ 25 Mbps/ 50 Mbps/ 100 Mbps/ 250 Mbps/
1 Mbps
3 Mbps
5 Mbps
10 Mbps
25 Mbps
County Population Density
First Quartile (Lowest Population Density)
40.0%
25.6%
21.6%
9.5%
5.0%
Second Quartile
34.3%
33.8%
23.3%
11.2%
2.4%
Third Quartile
44.2%
36.4%
33.1%
20.9%
3.0%
Fourth Quartile (Highest Population Density)
68.3%
57.6%
51.7%
26.6%
4.4%
County Poverty Rate
Fourth Quartile (Lowest Poverty Rate)
57.9%
47.0%
42.0%
20.6%
4.5%
Third Quartile
48.4%
45.6%
33.7%
17.2%
3.8%
Second Quartile
45.1%
35.4%
32.9%
20.7%
4.3%
First Quartile (Highest Poverty Rate)
35.5%
25.8%
21.9%
10.8%
1.8%
County Rural Population Rate
Fourth Quartile (Lowest Rural Population Rate)
67.1%
57.5%
51.4%
25.2%
5.3%
Third Quartile
48.1%
38.8%
34.7%
16.2%
2.8%
Second Quartile
36.3%
34.7%
24.3%
17.5%
2.8%
First Quartile (Highest Rural Population Rate)
35.3%
22.6%
19.5%
9.6%
3.4%
H.
International Broadband Data Report
265.
We next provide comparative international information on broadband services and, where
possible, a year-to-year measure of the extent of broadband service capability in the United States and
select communities and countries abroad. 812 In this chapter, we present updated data and information on
broadband service capability since the International Bureau released the 2018 Sixth IBDR on February 2,
2018. 813 In particular, we compare fixed and mobile broadband, including LTE speeds in the United
States, with the selected countries. We assess whether there were indications of statistically significant
changes in fixed and mobile broadband prices since the 2018 Sixth IBDR by reviewing a smaller subset of
eight countries. We include a comparison of high-speed fixed and mobile broadband deployment in the
United States and in Europe. Finally, we present demographic, market, and other regulatory information
relating to broadband service capability. We include the highlights of our findings in this chapter and
present the detailed data sources and additional discussion in the relevant appendices.
1.
Background
266.
As part of its assessment in the Communications Marketplace Report, the Commission
must include “information comparing the extent of broadband service capability (including data
transmission speeds and price for broadband service capability) in a total of 75 communities in at least 25
countries abroad for each of the data rate benchmarks for broadband service utilized by the Commission
812
47 U.S.C. § 1303(b). The Broadband Data Improvement Act, Pub. L. No. 110-385, 122 Stat. 4096 (2008), is
codified in Title 47, Chapter 12 of the United States Code. 47 U.S.C. § 1301 et seq.
813
International Comparison Requirements Pursuant to the Broadband Data Improvement Act; International
Broadband Data Report, Sixth Report, 33 FCC Rcd 978 (IB 2018) (2018 Sixth IBDR).
12703
Federal Communications Commission
FCC 18-181
to reflect different speed tiers.” 814 We must choose international communities comparable to various
communities in the United States with respect to population size, population density, topography, and
demographic profile.815 The Commission is required to include “a geographically diverse selection of
countries” and “communities including the capital cities of such countries.” 816 The Commission must
“identify relevant similarities and differences in each community, including their market structures, the
number of competitors, the number of facilities-based providers, the types of technologies deployed by
such providers, the applications and services those technologies enable, the regulatory model under which
broadband service capability is provided, the types of applications and services used, business and
residential use of such services, and other media available to consumers.” 817
2.
Discussion
267.
Selection of Countries for Comparison. The 2018 Sixth IBDR selected 28 foreign
countries 818 to meet the statutory directive of developing a geographically diverse set of countries for
comparison with the United States concerning international broadband service capability. 819 Consistent
with the 2018 Sixth IBDR, the same 28 foreign countries are used in this International Broadband Data
Report (IBDR) for the comparison of broadband speed and demographics. 820 The countries selected in
alphabetical order are Australia, Austria, Belgium, Canada, Chile, Czech Republic, Denmark, Estonia,
Finland, France, Germany, Greece, Iceland, Ireland, Italy, Japan, Latvia, Luxembourg, Mexico,
Netherlands, New Zealand, Norway, Portugal, South Korea, Spain, Sweden, Switzerland, and United
Kingdom. 821 Maintaining the same set of countries for comparison will facilitate and enhance
assessments of international broadband developments over time. For fixed and mobile broadband price
comparison, we rely on a smaller subset of eight countries for our analysis. For the comparison of fixed
high-speed and mobile broadband deployment, we rely on the 21 European countries (the “EU21”).
a.
Broadband Speed Comparison
268.
Based on our review of data on actual 822 fixed and mobile broadband speeds gathered by
Ookla, fixed and mobile broadband speeds in the United States have improved over time compared to
broadband speeds in the 28 comparison countries. We rank speeds from fastest (1st) to slowest (29th).
The methodology for our broadband speed comparison is set forth in Appendix E-2.
269.
Fixed Broadband Speed Results. In 2017, the United States ranked 5th out of 29
countries (73.79 Mbps) in terms of actual download speeds—an improvement over 11th in 2016 (55.07
Mbps). Actual mean fixed download speeds in the United States increased by 34% from 2016 to 2017.
With respect to the alternate speed measure, median weighted fixed download speeds, the United States
ranked 5th in 2017 (73.99 Mbps), also an improvement over 11th in 2016 (55.44 Mbps) out of the 29
countries.
814
47 U.S.C. § 1303(b)(1).
815
Id. § 1303(b)(2).
816
Id.
817
Id. § 1303(b)(3).
818
2018 Sixth IBDR, 33 FCC Rcd 980-81, paras. 5-6.
819
47 U.S.C. § 1303(b)(2).
820
See Appendix E-1 for the full list of countries examined.
821
2018 Sixth IBDR, 33 FCC Rcd 980-81, paras. 5-6.
822
In this analysis, “actual speed” here refers to mean actual speed unless otherwise specified. The means are
weighted by the number of tests performed in each city. See id. at 996, Appx. B, para. 2, n.4.
12704
Federal Communications Commission
FCC 18-181
270.
Mobile Broadband Speed Results. In 2017, the United States ranked 23rd (24.78 Mbps),
an improvement over 25th in 2016 (19.97 Mbps) out of the 29 countries. Actual mean mobile download
speeds in the United States increased by 24% from 2016 to 2017. With respect to the alternate measure,
median weighted mobile download speeds, the United States ranked 23rd in 2017 (24.66 Mbps), also an
improvement over 25th in 2016 (19.62 Mbps) out of 29 countries.
271.
Historical Overview of U.S. Fixed Broadband Speed. The data from prior International
Broadband Data Reports indicate that fixed speeds for the United States have been on a rising trend since
2012, and the U.S. rank among the selected countries has been on a rising trend since 2012. 823 Based on
mean speed measurement, the United States ranked 19th fastest of 28 countries in 2012 (14.5 Mbps). The
mean U.S. speed rank has since risen to 10th fastest of 28 countries in 2016 (55.07 Mbps) and 5th fastest
of 28 countries in 2017 (73.79 Mbps).
b.
Broadband Price Comparison
272.
The 2018 Sixth IBDR examined in detail advertised broadband prices for fixed and
mobile service plans in the United States and up to 28 countries. 824 Given the recent nature of that
analysis, we limit the scope of our analysis here to whether there were indications of statistically
significant changes in broadband prices since the 2018 Sixth IBDR by reviewing a smaller subset of eight
countries, including the United States. 825 Based on our analysis, we find statistically significant qualityadjusted price changes in four of the eight countries. The methodology for our broadband price
comparison is set forth in Appendix E-3.
273.
Fixed Broadband Statistical Test Pricing Results. Based on our statistical test, we find
that one of the eight countries (Germany) displays a statistically significant change in quality-adjusted
fixed broadband prices from 2017 to 2018. In Germany, quality-adjusted prices have decreased. For the
United States, we find a statistically insignificant decrease in quality-adjusted prices.
274.
Mobile Broadband Statistical Test Pricing Results. We find that four of the eight
countries (Denmark, Estonia, Germany, and South Korea) display a statistically significant change in
quality-adjusted mobile broadband prices from 2017 to 2018. Of these four countries, quality-adjusted
prices have decreased in Denmark, Estonia, Germany, and South Korea. For the United States, we find a
statistically insignificant decrease in quality-adjusted prices.
c.
High-Speed Broadband Deployment Comparison with Europe
275.
Based on data gathered by the FCC and the European Commission (EC) in June 2016 and
June 2017,826 we observe that the United States has greater fixed high-speed and mobile LTE broadband
823
The Fourth International Broadband Data Report and the Fifth International Broadband Data Report relied on
Ookla speed data for 2012 to 2014 that consisted of daily speed test results for cities in a total of 40 countries (to
which we refer as the “previous methodology”). The 2018 Sixth IBDR relied on Ookla speed data for 2014 to 2016
that consist of city speed test results averaged up to the yearly level, which has far fewer observations than the
previous methodology (new methodology). As in the 2018 Sixth IBDR, we here present: (1) speed data for 2012 to
2013 under the previous methodology; (2) speed data for 2015 to 2017 under the new methodology; and (3) speed
data for 2014 under both methodologies. Additional discussion of these methodologies is provided in the 2018 Sixth
IBDR. Id. at 1018-19, Appx. B, paras. 24-25.
824
Id. at 1020, Appx. C, para. 1.
825
For fixed broadband, we collected advertised prices and terms for fixed broadband plans in the following
countries and cities: Denmark (Copenhagen); Estonia (Tallinn); France (Paris); Germany (Berlin); Mexico (Mexico
City and Guadalajara); South Korea (Seoul); United Kingdom (London); and the United States (Washington, D.C.
and Los Angeles). Mobile broadband plans are collected at the national level.
826
We assess deployment as of June 2017 and June 2016 to match the time period in the EC Broadband Report.
European Commission, Broadband Coverage in Europe 2017 at 5 (2018) (EC Broadband Report),
https://ec.europa.eu/digital-single-market/en/news/study-broadband-coverage-europe-2017.
12705
Federal Communications Commission
FCC 18-181
coverage than Europe. This result is consistent with our longer term comparison of fixed deployment in
the United States and the EU21 from 2012 to 2017. The methodology for our fixed high-speed and
mobile LTE broadband deployment comparison is set forth in Appendix E-4 along with maps that show
fixed high-speed broadband deployment in the United States and Europe.
276.
Fixed High-Speed Broadband, 2016-2017. In the United States and the EU21, fixed highspeed broadband deployment increased from June 2016 to June 2017 with respect to all households.
Fig. H-1
Fixed High-Speed Broadband Deployment
All Households (June 2016 and June 2017)
277.
Fixed High-Speed Broadband Historical Overview. Our historical overview for 2012 to
2017 shows that the United States had higher deployment rates than the EU21 countries as a whole during
the period both generally and separately in rural and non-rural areas. 827
827
See Appendix E-4 at Figs. 13-15.
12706
Federal Communications Commission
FCC 18-181
Fig. H-2
Fixed High-Speed Deployment
All Households
278.
Mobile LTE Broadband. In the United States, mobile LTE coverage was already nearly
ubiquitous as of June 2017, reaching almost 100% of all households and 99% of rural households.828 In
the EU21, during the same period, mobile LTE coverage reached 98% of all households and 91% of rural
households.
d.
Demographics Dataset
279.
In Appendix E-5, we present updated data since the release of the 2018 Sixth IBDR on the
population size, population density, and other indicators such as gross domestic product (GDP) and
educational attainment for the United States and the comparison countries and, in the aggregate, of almost
300 province/county communities. Based on OECD data, Denmark, Mexico, Norway, and Sweden
demonstrated a 5% or greater increase from 2015 to 2016 in the percentage of households that have at
least one subscription to access fixed and/or mobile broadband. 829
e.
Market and Regulatory Developments
280.
Below, we discuss several new market and regulatory developments, including national
broadband, satellite, and 5G developments. 830 We limit our discussion to recent developments that
occurred since the 2018 Sixth IBDR, which identified the relevant similarities and differences between the
United States and the 28 comparison countries with respect to multiple criteria.
828
See id. at Figs. 11-12.
829
OECD, OECD.Stats: Regions and Cities (OECD Regions and Cities), http://stats.oecd.org/. We note that only
Mexico and South Korea have updated their OECD data on households with broadband as of 2016 since the 2018
Sixth IBDR, and that the OECD data do not include any data on household broadband penetration for 2017.
830
47 U.S.C. § 1303(b)(3) (“The Commission shall identify relevant similarities and differences in each community,
including their market structures, the number of competitors, the number of facilities-based providers, the types of
technologies deployed by such providers, the applications and services those technologies enable, the regulatory
model under which broadband service capability is provided, the types of applications and services used, business
and residential use of such services, and other media available to consumers.”).
12707
Federal Communications Commission
FCC 18-181
281.
Market Developments. In 2018, providers in a number of countries launched new
broadband services through the deployment of additional broadband technologies. 831 For example, in
2018, Shaw Communications in Canada, Unitymedia in Germany, Nos in Portugal, and Com Hem in
Sweden launched new services offering broadband at higher speeds via DOCSIS 3.1. 832 In April 2018,
TalkTalk in the United Kingdom announced the launch of broadband connectivity with download speeds
of up to 300 Mbps using DSL G.fast technology to new customers. 833 In July 2018, Cosmote, Wind
Hellas, and Vodafone in Greece launched commercial fiber-to-the-home services.834
282.
The use of Internet services such as online news, video on demand, voice and video
calling, participating in social networks, or online shopping, has also grown in certain countries. For
example, the proportion of Internet users in Ireland that read news online increased from 49% in 2016 to
65% in 2017. 835 The proportion of Internet users in Austria that use video calls increased from 32% in
2016 to 42% in 2017. 836 The proportion of Internet users in Canada that shop online increased from 46%
as of February 2016 to 52% as of March 2018. 837
283.
National Broadband Developments. 838 Many countries continue to develop
comprehensive digital agendas,839 increasingly with a view towards future applications and services such
831
TeleGeography GlobalComms Database (TeleGeography GlobalComms Database), www.telegeography.com
(last updated June 2018).
832
Id.; Broadband Technology Report, Shaw Launches 300 Mbps Tier Based on DOCSIS 3.1 (July 13, 2018),
https://www.broadbandtechreport.com/articles/2018/07/shaw-launches-300-mbps-tier-based-on-docsis-3-1.html;
TeleGeography, Unitymedia Set for Bochum DOCSIS 3.1 Launch Next Month (Apr. 27, 2018),
https://www.telegeography.com/products/commsupdate/articles/2018/04/27/unitymedia-set-for-bochum-docsis-3-1launch-next-month/; Andrew McDonald, Unitymedia Launches 1 Gbps Broadband in Germany (May 8, 2018),
https://www.digitaltveurope.com/2018/05/08/unitymedia-launches-1-gbps-broadband-in-germany/; Stuart
Thompson, Half of NOS Subs Taking Convergence Products as TV Base Grows (July 23, 2018),
https://www.digitaltveurope.com/2018/07/23/half-of-nos-subs-taking-convergence-products-as-tv-base-grows/;
TeleGeography, Com Hem Launches a 1.2 Gbps Service (Aug. 16, 2018),
https://www.telegeography.com/products/commsupdate/articles/2018/08/16/com-hem-launches-1-2gbps-service/.
833
TeleGeography GlobalComms Database; TeleGeography, TalkTalk Expands Availability of Its G.fast-Based
Plans to All Customers (Apr. 25, 2018),
https://www.telegeography.com/products/commsupdate/articles/2018/04/25/talktalk-expands-availability-of-its-gfast-based-plans-to-all-customers/.
834
TeleGeography GlobalComms Database; TeleGeography, Cosmote Launches FTTH (July 11, 2018),
https://www.telegeography.com/products/commsupdate/articles/2018/07/11/cosmote-launches-ftth/;
TeleGeography, Wind Hellas Adds Fibre Services (July 13, 2018),
https://www.telegeography.com/products/commsupdate/articles/2018/07/13/wind-hellas-adds-fibre-services/;
Telecompaper, Vodafone Joins Greece FTTH Market (July 13, 2018),
https://www.telecompaper.com/news/vodafone-joins-greek-ftth-market--1252590; Vodafone, Vodafone Super
Fiber, https://www.vodafone.gr/eshop/vodafone-home/vodafone-super-fiber/.
835
See European Commission, Digital Single Market: Digital Economy & Society Index 2018, Country Report
Ireland at 7 (2018) (DESI 2018), https://ec.europa.eu/digital-single-market/en/news/digital-economy-and-societyindex-2018-report.
836
See id., Country Report Austria at 6.
837
Canadian Internet Registration Authority (CIRA), CIRA Internet Factbook 2018 (2018),
https://cira.ca/factbook/canada%E2%80%99s-internet-factbook-2018#section-1; 2018 Sixth IBDR, 33 FCC Rcd at
1122, Appx. E, Tbl. 5.
838
Many countries continue to adopt national broadband plans to expand broadband access and use. According to
the ITU, as of September 2018, 159 countries have national broadband plans. Broadband Commission for
Sustainable Development, The State of Broadband: Broadband Catalyzing Sustainable Development at 35 (2018)
(State of Broadband Report 2018), https://www.itu.int/dms_pub/itu-s/opb/pol/S-POL-BROADBAND.19-2018(continued….)
12708
Federal Communications Commission
FCC 18-181
as 5G, the Internet of Things (IoT), and artificial intelligence (AI), as seen recently in Brazil 840 and
India, 841 among others. For example, in March 2018, Latvia adopted a new Electronic Communications
Sector Policy Plan 2018-2020, which incorporates common European Union (EU) gigabit broadband
targets. 842 Similarly, in April 2018, Denmark announced its Strategy for Denmark’s Digital Growth,
which seeks to leverage broadband infrastructure to position Denmark as a digital frontrunner in new
technologies. 843 Meanwhile, in October 2018, Ireland launched a public consultation for a new National
Digital Strategy, which will update a previous policy from 2013. 844 Likewise, New Zealand is currently
engaging with stakeholders to develop a digital government strategy to replace the Government ICT
Strategy 2015. 845
284.
Satellite Developments. Many countries are also increasingly recognizing the possible
impact of innovative satellite technologies, such as non-geostationary orbit (NGSO) constellations, in the
provision of broadband services, particularly in rural and remote areas. 846 In March 2018, the
Commission authorized SpaceX to provide broadband satellite services, the first approval of a U.S.licensed satellite constellation to provide broadband services using a new generation of LEO satellite
technologies. 847 In recent years, the Commission has authorized a number of NGSO FSS systems
(Continued from previous page)
PDF-E.pdf. The United Nations’ Broadband Commission for Sustainable Development “has set seven ambitious yet
achievable 2025 targets in support of ‘Connecting the Other Half’ of the world’s population,” including a target for
all countries to have a funded national broadband plan or strategy, or to include broadband in their universal access
and services definition by 2025. Press Release, ITU, UN Broadband Commission Sets Global Broadband Targets to
Bring Online the World’s 3.8 Billion Not Connected to the Internet (Jan. 23, 2018),
https://www.itu.int/en/mediacentre/Pages/2018-PR01.aspx.
839
Broadband Commission for Sustainable Development, The State of Broadband: Broadband Catalyzing
Sustainable Development at 44 (Sept. 2017) (State of Broadband Report 2017), https://www.itu.int/dms_pub/itus/opb/pol/S-POL-BROADBAND.18-2017-PDF-E.pdf; see also OECD, OECD Digital Economy Outlook 2017 at 34
(2017) (noting that “[national digital strategies] have become the norm across OECD countries”) (OECD Report
2017), http://www.oecd.org/internet/oecd-digital-economy-outlook-2017-9789264276284-en.htm.
840
Ministry of Sci., Tech., Innovation & Commnc’n, Estratégia Brasiliera Para A Transformação Digital (E-Digital)
(2018), http://www.mctic.gov.br/mctic/export/sites/institucional/estrategiadigital.pdf.
841
Dep’t of Telecomm., Draft National Digital Communications Policy 2018 (2018),
http://dot.gov.in/sites/default/files/2018%2005%2025%20NDCP%202018%20Draft%20for%20Consultation_0.pdf.
842
Euro. Comm’n, Digital Single Market: Country Information–Latvia, https://ec.europa.eu/digital-singlemarket/en/country-information-latvia. According to the EU’s common broadband targets, by 2025, all schools,
transport hubs, and main providers of public services, as well as digitally intensive enterprises, should have access to
Internet connections with download/upload speeds of 1 Gbps/second. Additionally, all European households should
have access to networks offering a download speed of at least 100 Mbps, which can be upgraded to 1 Gbps. See
Euro. Comm’n, Digital Single Market: Connectivity for a European Gigabit Society, https://ec.europa.eu/digitalsingle-market/en/policies/improving-connectivity-and-access.
843
Ministry of Indus., Bus. & Fin. Affairs, Strategy for Denmark’s Digital Growth (2018),
https://em.dk/english/publications/2018/strategy-for-denmarks-digital-growth.
844
Dep’t of the Taoiseach, Public Consultation on Ireland’s New National Digital Strategy,
https://www.taoiseach.gov.ie/DOT/eng/Publications/Publications_2018/Public_Consultation_on_Ireland%E2%80%
99s_new_National_Digital_Strategy.html.
845
New Zealand Gov’t, Progress Towards a Digital Government Strategy (last updated Oct. 9, 2018),
https://www.digital.govt.nz/digital-government/strategy/progress-towards-a-digital-government-strategy/.
846
See supra Section II.F.4; State of Broadband Report 2017 at 34-38.
847
Press Release, FCC, FCC Authorizes SpaceX to Provide Broadband Satellite Service (Mar. 29, 2018),
https://www.fcc.gov/document/fcc-authorizes-spacex-provide-broadband-satellite-services; see generally SpaceX
Authorization Order.
12709
Federal Communications Commission
FCC 18-181
designed to deliver broadband services, such as OneWeb, Space Norway, Telesat Canada, and LeoSat.848
These approvals enable these systems to pursue their plans of expanding broadband to communities
across the United States.
285.
Other regulators are likewise examining how best to deploy this new generation of
satellite technologies, both independently and collectively. In October 2018, for example, the UK Space
Agency introduced a pre-application licensing scheme, the Traffic Light System (TLS), which will
provide prospective satellite operators (particularly new operators) with a more tailored, streamlined
regulatory process. 849 In June 2018, the Australian Communications and Media Authority (ACMA)
closed the public consultation on its draft Five-Year Spectrum Outlook 2018-2022 and among other
topics, the ACMA solicited stakeholder input on its proposed efforts to support the deployment of novel
satellite systems. 850 Similarly, as of March 2018, the Swedish Post and Telecom Authority (PTS) has
been considering possible new license exceptions in several frequency bands for mobile satellite systems
(among other technologies). 851 At the pan-European level, in July 2018, CEPT’s Electronic
Communications Committee (ECC) approved a regulatory framework for the harmonized use of Earth
Stations in Motion (ESIM) operating with NGSO fixed satellite service (FSS) in the 10.7-12.75 GHz and
14.0-14.5 GHz bands. 852
286.
5G Developments. Countries have been examining regulatory frameworks to consider
and address possible barriers to broadband infrastructure investment and deployment, with a particular
focus on 5G infrastructure. Approaches to 5G development and the status of development efforts vary
across countries. The Commission’s 5G strategy encompasses a forward-looking spectrum policy,
modern infrastructure policy and market-based network regulation, reducing unnecessary barriers to the
investment and deployment of next generation wireless networks. 853 Some countries and regions have
developed or are developing 5G plans that cover a range of policy initiatives, such as the European
Commission’s 2016 5G Action Plan, and Chile’s July 2018 consultation to develop a national 5G plan. 854
848
See, e.g., WorldVu Order and Declaratory Ruling; Space Norway AS Order and Declaratory Ruling; 2017
Telesat Canada Order and Declaratory Ruling; Telesat Canada V-band NGSO Order and Declaratory Ruling;
LeoSat Order and Declaratory Ruling. On November 15, 2018, the Commission also adopted an Order granting
SpaceX’s application to construct, deploy and operate a proposed NGSO satellite system using frequencies in the Vband, which will provide SpaceX with additional flexibility to provide both diverse geographic coverage and the
capacity to support a wide range of proposed broadband and communications services in the United States and
globally. See SpaceX V-band NGSO Authorization Order. See also supra Section II.F.4.b.
849
UK Space Agency, Modern Regulation to Support UK’s Growing Space Sector (Oct. 1, 2018),
https://www.gov.uk/government/news/modern-regulation-to-support-uks-growing-space-sector.
850
Australian Commc’ns & Media Auth., Draft Five-Year Spectrum Outlook 2018-2022,
https://www.acma.gov.au/theACMA/draft-five-year-spectrum-outlook-2018-22.
851
Swedish Post & Telecom Auth., PTS Orientation Plan for Spectrum Management (Mar. 29, 2018),
https://pts.se/en/news/radio/2018/pts-orientation-plan-for-spectrum-management/.
852
Elec. Commnc’n Comm., ECC Decision 18(05) (July 6, 2018), https://www.ecodocdb.dk/download/a885e3f10c26/ECCDec1805.pdf. The ECC is part of the Conference of European Postal and Telecommunications
Administrations (CEPT), a voluntary association of regulators from 48 countries (including, of the IBDR
comparison countries, Austria, Belgium, Czech Republic, Denmark, Estonia, Finland, France, Germany, Greece,
Iceland, Ireland, Italy, Latvia, Luxembourg, Netherlands, Norway, Portugal, Spain, Sweden, Switzerland, and the
UK).
853
See, e.g., Wireless Infrastructure Third Report and Order; Use of Spectrum Bands Above 24 GHz For Mobile
Radio Services, GN Docket No. 14-177, Fourth Further Notice of Proposed Rulemaking, FCC 18-110 (Aug. 3,
2018) (Spectrum Frontiers Fourth Further Notice); FCC, The FCC’s 5G FAST Plan (Sept. 28, 2018),
https://www.fcc.gov/document/fccs-5g-fast-plan (FCC’s 5G FAST Plan).
854
TeleGeography CommsUpdate, Subtel opens consultation on 5G plan, (July 26, 2018),
https://www.telegeography.com/products/commsupdate/articles/2018/07/26/subtel-opens-consultation-on-5g-plan/.
12710
Federal Communications Commission
FCC 18-181
Additionally, as part of Europe’s Digital Single Market Strategy and reform of its Electronic
Communications Code, the European Commission is aiming to stimulate infrastructure investment and
streamline procedures to facilitate the deployment of small cells, which the EC defines as small size
mobile base stations that can reach several meters. 855
287.
The United States has taken steps to make available low-, mid-, and high-band spectrum
for next-generation wireless networks. With respect to low-band spectrum, in 2017, the Commission
completed a first-of-its-kind two-part incentive auction to repurpose 84 megahertz of spectrum in the 600
MHz band, laying the groundwork for 5G applications and services. 856 In terms of mid-band spectrum, in
July 2018, the Commission adopted a Notice of Proposed Rulemaking identifying new opportunities for
flexible use in up to 500 megahertz of spectrum between 3.7 and 4.2 GHz. 857 In October 2018, the
Commission made modifications to its rules governing the Citizens Broadband Radio Service in the 3.5
GHz band to spur additional investment and broader deployment in the band, promote robust and efficient
spectrum use, and help ensure the rapid deployment of advanced wireless technologies—including 5G—
in the United States. 858 Additionally, in October 2018, the Commission adopted a Notice of Proposed
Rulemaking proposing rules to allow unlicensed devices to operate in the 6 GHz band (5.925-7.125 GHz)
without interfering with the operation of the licensed services that will continue to use this spectrum. 859
Finally, with respect to high-band spectrum, through its Spectrum Frontiers proceedings, the Commission
has made available nearly 13 total gigahertz of licensed and unlicensed high-band millimeter wave
(mmW) spectrum. 860 In June 2018, the Commission finalized the rules for these previously identified
mmW bands and began exploring the possibility of making available an additional 2.75 gigahertz of
spectrum in the 26 GHz and 42 GHz bands. 861 In November 2018, the Commission began auctioning
855
European Commission Fact Sheet: Digital Single Market: Political Agreement on the Rules Shaping the
Telecommunication Markets in the 5G Era (June 6, 2018), http://europa.eu/rapid/press-release_MEMO-184084_en.htm.
856
See generally FCC, Broadcast Incentive Auction and Post-Auction Transition (last updated May 9, 2017),
https://www.fcc.gov/about-fcc/fcc-initiatives/incentive-auctions.
857
Expanding Flexible Use of the 3.7 GHz to 4.2 GHz Band et al., GN Docket No. 18-122 et al., Order and Notice
of Proposed Rulemaking, FCC 18-91 (July 13, 2018) (Mid-Band Order and NPRM). This NPRM builds upon an
earlier Notice of Inquiry (NOI) seeking comment on ways to expand next-generation wireless broadband services in
spectrum bands between 3.7 GHz and 24 GHz. See Expanding Flexible Use in Mid-Band Spectrum Between 3.7
and 24 GHz, Notice of Inquiry, 32 FCC Rcd 6373 (2017).
858
Promoting Investment in the 3550-3700 MHz Band, GN Docket No. 17-258, Report and Order, FCC 18-149 (rel.
Oct. 24, 2018) (Investment in 3.5 GHz Band Report and Order); Press Release, FCC, FCC Takes Action to
Encourage Increased Investment and Deployment in the 3.5 GHz Band (Oct. 23, 2018),
https://docs.fcc.gov/public/attachments/DOC-354694A1.pdf.
859
Press Release, FCC, FCC Proposes More Spectrum for Unlicensed Use (Oct. 23, 2018),
https://docs.fcc.gov/public/attachments/DOC-354692A1.pdf; Unlicensed Use of the 6 GHz Band; Expanding
Flexible Use in Mid-Band Spectrum Between 3.7 and 24 GHz, ET Docket No. 18-295, GN Docket No. 17-183,
Notice of Proposed Rulemaking, FCC 18-147 (rel. Oct. 24, 2018) (6 GHz NPRM).
860
Use of Spectrum Bands Above 24 GHz For Mobile Radio Services, GN Docket No. 14-177, Second Report and
Order, Second Further Notice of Proposed Rulemaking, Order on Reconsideration, and Memorandum Opinion and
Order, 32 FCC Rcd 10988, 10990, para. 2 (2017) (Spectrum Frontiers Second Report and Order); Use of Spectrum
Bands Above 24 GHz for Mobile Radio Services, et. al., Report and Order and Further Notice of Proposed
Rulemaking, 31 FCC Rcd 8014 (2016) (Spectrum Frontiers Report and Order).
861
Use of Spectrum Bands Above 24 GHz For Mobile Radio Services, et al., Third Report and Order, Memorandum
Opinion and Order, and Third Further Notice of Proposed Rulemaking, 33 FCC Rcd 5576 (2018) (Spectrum
Frontiers Third Report and Order); Press Release, FCC, FCC Takes Next Steps to Make High-Band Spectrum
Frontiers Available for 5G Use (June 7, 2018), https://docs.fcc.gov/public/attachments/DOC-351388A1.pdf.
12711
Federal Communications Commission
FCC 18-181
spectrum in the 28 GHz band, to be followed immediately by the auction of the 24 GHz band; 862 the
Commission intends to move forward with a single auction of three more mmW bands (37 GHz, 39 GHz,
and 47 GHz) in the second half of 2019. 863
288.
Regulators around the world are also in the midst of allocating, auctioning and/or
licensing additional spectrum across various bands to support 5G services. 864 Notably, in June 2018,
Korea’s Ministry of Science & ICT (MSIT) concluded a 5G auction in the 3.5 GHz and 28 GHz bands,
which is expected to facilitate early 5G commercialization by a target date of March 2019. 865
289.
In line with the European Commission’s 5G Action Plan, 866 EU Member States are
focusing on several “pioneer band[s]” to harmonize the initial launch of 5G services across Europe, 867
with an initial emphasis on the 3.4-3.6 GHz band. 868 For example, in April 2018, the UK auctioned 150
megahertz of spectrum from the 3.4-3.6 GHz band. 869 In July 2018, Finland invited applications for its
upcoming 3.5 GHz auction, to be held later in 2018. 870 Similarly, in May 2018, Germany announced
862
The Commission finalized the bidding procedures and other rules for the auctions in August 2018. Auctions of
Upper Microwave Flexible Use Licenses for Next-Generation Wireless Services et al., AU Docket No. 18-85, Public
Notice, FCC-18-109 (Aug. 3, 2018). See generally FCC, Auction 101: Spectrum Frontiers–28 GHz,
https://www.fcc.gov/auction/101; FCC, Auction 102: Spectrum Frontiers–24 GHz,
https://www.fcc.gov/auction/102.
863
See Spectrum Frontiers Fourth Further Notice; Press Release, FCC, FCC Proposes Steps Towards Auction of 37
GHz, 39 GHz, and 47 GHz Bands (Aug. 2, 2018), https://docs.fcc.gov/public/attachments/DOC-353229A1.pdf.
864
See generally David Abecassis, Chris Nickerson and Janette Stewart, Final Report for CTIA: Global Race to 5G–
Spectrum and Infrastructure Plans and Priorities (2018), https://api.ctia.org/wp-content/uploads/2018/04/AnalysysMason-Global-Race-To-5G_2018.pdf (detailing 5G spectrum policies in ten leading markets: Canada, China,
France, Germany, Russia, Japan, Singapore, South Korea, the United Kingdom, and the United States).
865
TeleGeography CommsUpdate, MSIT Announces Results of 5G Spectrum Auction (June 19, 2018),
https://www.telegeography.com/products/commsupdate/articles/2018/06/19/msit-announces-results-of-5g-spectrumauction/. See also Analysys Mason, Analysys Mason 2018 July Report at 1 (2018), https://api.ctia.org/wpcontent/uploads/2018/04/Analysys-Mason-Global-Race-To-5G_2018.pdf (noting that the U.S. sharing approach in
3.5 GHz differs from all other benchmark countries noted in the report which have developed plans for exclusive
assignment to mobile).
866
See generally European Commission, 5G for Europe: An Action Plan (2016), https://ec.europa.eu/digital-singlemarket/en/news/communication-5g-europe-action-plan-and-accompanying-staff-working-document.
867
See Radio Spectrum Policy Group, Strategic Roadmap Towards 5G for Europe: Opinion of Spectrum-Related
Aspects for Next-Generation Wireless Systems (5G) (2016), http://rspg-spectrum.eu/wpcontent/uploads/2013/05/RPSG16-032-Opinion_5G.pdf (identifying the following “pioneer band[s]”: 3400-3800
MHz; below 1 GHz, particularly the 700 MHz band; 24.25-27.5 GHz; and upper bands, including 31.8-33.4 GHz
and 40.5-43.5 GHz).
868
See Radio Spectrum Policy Group, Strategic Spectrum Roadmap Towards 5G in Europe: RSPG Second Opinion
on 5G Networks (2018), https://circabc.europa.eu/sd/a/fe1a3338-b751-43e3-9ed8-a5632f051d1f/RSPG18-005final2nd_opinion_on_5G.pdf (identifying the 3.4-3.8 GHz band as the “key for success of 5G in Europe”).
869
David Abecassis, Janette Stewart, Michael Kende, Chris Nickerson, Final Report for CTIA: Mid-band spectrum
geographical licensing approaches at 3 (2018) (Mid-band Spectrum Report), https://api.ctia.org/wpcontent/uploads/2018/07/Analysys-Mason-mid-band-5G-spectrum-paper-7-03-18.pdf.
870
Press Release, Finnish Communications Regulatory Authority, Finland’s Path to Becoming a Leading 5G
Country: Registration Open for the 3.5 GHz Auction (July 11, 2018),
https://www.viestintavirasto.fi/en/ficora/news/2018/finland8217spathtobecomingaleading5gcountryregistrationopen
forthe3.5ghzauction.html.
12712
Federal Communications Commission
FCC 18-181
plans to auction spectrum in the 3.6 GHz band (along with the 2 GHz band) for 5G use in early 2019.871
Germany also plans to award 400 megahertz of spectrum in the 3.4-3.8 GHz band in early 2019. 872
III.
COMMISSION ACTIONS ALREADY TAKEN TO CLOSE DIGITAL DIVIDE,
ENHANCE COMPETITION, AND ENCOURAGE DEPLOYMENT OF
COMMUNICATIONS SERVICES
290.
RAY BAUM’S Act also requires the Commission to describe the actions it has taken
over the previous two years in addressing the challenges and opportunities in the communications
marketplace.873 In this Report, we take this opportunity to describe the significant steps the Commission
has taken over the previous two years to close the digital divide, enhance competition and encourage the
deployment of communications services.
A.
The Mobile Wireless Market
1.
Universal Support Challenges and Commission Actions
291.
The Commission has taken several steps over the past two years to make universal
service support available to mobile providers. For example, a unanimous Commission adopted rules and
took several other steps to allocate up to $4.53 billion over the next decade to advance the deployment of
4G LTE service to areas that are so costly that the private sector has not yet deployed there and to
preserve such service where it might not otherwise exist.874 The Commission’s 2017 Order found that
“[d]espite a surge in private investment in mobile deployment, recent analysis shows that at least 575,000
square miles (approximately 750,000 road miles and 3 million people) either lack 4G LTE service or are
being served only by subsidized 4G LTE providers.”875 The Commission further explained that funding
for this effort will come from the redirection of legacy subsidies and distributed using a market-based,
multi-round reverse auction and will come with defined, concrete compliance requirements so that rural
consumers will be adequately served by the mobile carriers receiving universal service support. in support
available to unserved and underserved areas. 876
292.
In addition, the Commission issued an Order and Notice of Proposed Rulemaking in May
2018, making available universal service support in Puerto Rico and the U.S. Virgin Islands to restore
communications networks that hurricanes ravaged. 877 In that Order, the Commission stated that, through
the Uniendo a Puerto Rico Fund, it will make available up to $254 million over a 3-year period for 4G
Long-Term Evolution (LTE) mobile voice and broadband. 878 Through the Connect USVI Fund, the
871
Bundesnetzagentur, President’s Chamber Decision of 14 May 2018 on the Order For and Choice of Proceedings for
the Award of Spectrum in the 2 GHz and 3.6 GHz Bands for Mobile/Fixed Communications Networks (MFCN) (May 14,
2018),
https://www.bundesnetzagentur.de/EN/Areas/Telecommunications/Companies/FrequencyManagement/ElectronicC
ommunicationsServices/ElectronicCommunicationServices_node.html.
872
Mid-band Spectrum Report at 3. Each of the three mobile network operators in Germany has been assigned 42
megahertz of spectrum in the 3.4 GHz band on a nationwide basis. Id. at 3, n.3.
873
See RAY BAUM’S Act.
874
Connect America Fund, Universal Service Reform – Mobility Fund, Report and Order and Further Notice of
Proposed Rulemaking, 32 FCC Rcd 2152, 2154, para. 2 (2017).
875
Id. at 2156, para. 14.
876
Id. at 2154, para. 2
877
The Uniendo a Puerto Rico Fund and the Connect USVI Fund, Order and Notice of Proposed Rulemaking, WC
Docket 18-143, et al., 33 FCC Rcd 5404, 5405, para. 2 (2018) (Uniendo and Connect USVI Funds Order and
NPRM).
878
Id. at 5405, para. 3.
12713
Federal Communications Commission
FCC 18-181
Commission will make available up to $4.4 million over a 3-year period for 4G LTE mobile voice and
broadband. 879
2.
Spectrum Challenges and Commission Actions.
293.
Recognizing the importance of spectrum in the provision of mobile wireless services,
Congress, under the Communications Act, requires that the Commission implement spectrum policies
that promote competition, innovation, and the efficient use of spectrum to serve the public interest,
convenience, and necessity. 880 Consistent with this statutory mandate, the Commission has established
policies to make spectrum available to existing mobile service providers and potential new entrants
through initial licensing, primarily by competitive bidding, 881 and through secondary market
transactions. 882
294.
In recent years the Commission has made available a significant amount of additional
spectrum across a range of frequencies. For example, the Commission in 2017 made available 70
megahertz of licensed low-band spectrum in the 600 MHz band in the broadcast television spectrum
incentive auction.883 In 2018, the Commission released the Third Report and Order in the Spectrum
Frontiers proceeding. 884 In a series of three orders, the Commission adopted rules to facilitate flexible
terrestrial wireless use of 4950 megahertz of mmW spectrum across five bands, which will be licensed in
multiple blocks of different sizes and geographic areas.885 Also, in the Citizens Broadband Radio service
(3.5 GHz band), the Commission has established service rules for 150 megahertz of spectrum for licensed
and unlicensed sharing with federal incumbents.886
879
Id. at 5405, para. 4.
880
47 U.S.C. § 309(j)(3)(B).
881
Note that the Commission generally provides a bidding credit – or discount – to promote participation by small
businesses and rural service providers, including businesses owned by members of minority groups and women
(collectively “designated entities”). 47 U.S.C. § 309(j)(3)(B), (j)(4)(D); see also 47 CFR § 1.2110. Updating Part 1
Competitive Bidding Rules; Expanding the Economic and Innovation Opportunities of Spectrum Through Incentive
Auctions; Petition of DIRECTV Group, Inc. and EchoStar LLC for Expedited Rulemaking to Amend Section
1.2105(a)(2)(xi) and 1.2106(a) of the Commission’s Rules and/or for Interim Conditional Waiver; Implementation of
the Commercial Spectrum Enhancement Act and Modernization of the Commission’s Competitive Bidding Rules and
Procedures, WT Docket No. 14-170, GN Docket No. 12-268, RM 11395, WT Docket No. 05-211, Report and Order,
Order on Reconsideration of the First Report and Order, Third Order on Reconsideration of the Second Report and
Order, and Third Report and Order, 30 FCC Rcd 7493 (2015) (Part 1 Report and Order) (modified by Erratum;
Aug. 25, 2015).
882
Mobile Spectrum Holdings Report and Order, 29 FCC Rcd at 6143-44, 6167-68, 6190, 6193, 6221-22, 6223-24,
paras. 17, 67-69, 135, 144, 225-27, 231-32. The Commission generally has adopted “flexible use” policies, thereby
allowing licensees to decide which services to offer and what technologies to deploy on spectrum used for the
provision of mobile wireless services.
883
Incentive Auction Closing and Channel Reassignment Public Notice; The Broadcast Television Incentive Auction
Closes; Reverse Auction and Forward Auction Results Announced; Final Television Band Channel Assignments
Announced; Post-Auction Deadlines Announced, Public Notice, 32 FCC Rcd 2786 (MB, WTB 2017) (Closing and
Channel Reassignment Public Notice).
884
See generally Spectrum Frontiers Third Report and Order.
885
Spectrum Frontiers Third Report and Order, 33 FCC Rcd at 5589-90, para. 33; see also Spectrum Frontiers
Second Report and Order; Spectrum Frontiers Report and Order.
886
See generally Amendment of the Commission’s Rules with Regard to Commercial Operations in the 3550-3650
MHz Band, GN Docket No. 12-354, Report and Order and Second Further Notice of Proposed Rulemaking, 30 FCC
Rcd 3959, at 3962, para. 4 (2015) (3.5 GHz Report and Order).
12714
Federal Communications Commission
FCC 18-181
295.
The Commission also has created incentives for efficient relocation, which allows
spectrum to be put to its best use as technology changes while compensating incumbents. For example, in
the broadcast television incentive auction the Commission implemented an auction framework that
allowed for incumbent broadcast television licensees to sell licenses for commercial wireless use while
also compensating remaining broadcast television licensees for spectrum repacking. 887 Further, the
Commission is addressing entry barriers in spectrum policy by implementing innovative spectrum sharing
frameworks. For example, in the 3.5 GHz band, the Commission introduced dynamic sharing whereby
Spectrum Access Systems (SASs) will optimize frequency use to allow maximum capacity and coexistence in the band.888 The SAS will also incorporate information from the Environmental Sensing
Capability, which will be used to increase available spectrum in coastal areas while continuing to protect
incumbent Department of Defense radar systems. 889 The SAS will enable a three-tiered priority sharing
framework, in which incumbent federal users, priority access licensees, and general authorized access
(GAA) users can share the same spectrum band. 890 Where competitive rivalry for spectrum access is low,
the GAA tier will provide a low-cost entry point to the band, similar to unlicensed access. 891 This sharing
framework has the potential to lower the barriers to entry significantly for innovative entrepreneurs and
smaller businesses. The Commission has also increased the license area, lengthened the license terms,
and changed the performance requirements for the 70 megahertz of priority access licenses in order to
spur additional investment and broader deployment in the 3.5 GHz band, promote robust and efficient
spectrum use, and help ensure the rapid deployment of advanced wireless technologies. 892
296.
In recent years, the Commission has expanded the amount of spectrum available for
wireless use and is making use of multiple innovative policy tools to make more spectrum available such
as incentivizing efficient relocation of incumbent licensees or implementing sharing frameworks between
potential entrants and licensees. Overall, this expanded availability of spectrum in various bands will
facilitate entry of next generation wireless services and promote continued development of innovative
uses of spectrum.
3.
Wireless Infrastructure Siting Challenges and Commission Actions
297.
Federal, state, and local rules all impose regulatory costs on the deployment of wireless
infrastructure, costs that have become even more significant in light of the massive new deployments
needed to support 5G services. With its 2017 Wireless Infrastructure NPRM and NOI, the Commission
began a fundamental rethinking of wireless infrastructure policy and launched a comprehensive
rulemaking proceeding designed to identify regulatory barriers to wireless infrastructure deployment and
eliminate or reduce as many of them as possible.893 The Commission has made tremendous progress in
modernizing its wireless infrastructure rules with that proceeding, particularly by adopting two major
orders. The first reformed the federal government’s review process pertaining to wireless
infrastructure,894 while the second addressed barriers to wireless infrastructure deployment erected by
887
See Closing and Channel Reassignment Public Notice.
888
3.5 GHz Report and Order, 30 FCC Rcd at 3962, para. 5.
889
Id., at 3962-63, para. 7.
890
Id. at 3962, para. 5.
891
Id.
892
Investment in 3.5 GHz Band Report and Order, FCC 18-149, at 2, para. 2.
893
Accelerating Wireless Broadband Deployment by Removing Barriers to Infrastructure Deployment, Notice of
Proposed Rulemaking and Notice of Inquiry, 32 FCC Rcd 3330 (2017) (Wireless Infrastructure NPRM).
894
Accelerating Wireless Broadband Deployment by Removing Barriers to Infrastructure Deployment, Second
Report and Order, FCC 18-30 (rel. Mar. 30, 2018) (Wireless Infrastructure Second Report and Order).
12715
Federal Communications Commission
FCC 18-181
state and local governments. 895 In addition, the Commission has reformed and streamlined pole
attachment and copper network retirement policies which will help facilitate the buildout of advanced
services including 5G wireless broadband.896
298.
In March 2018, the Commission adopted the Wireless Infrastructure Second Report and
Order, which: (1) excluded from National Historic Preservation Act (NHPA) and the National
Environmental Policy Act (NEPA) review certain small wireless facilities; 897 (2) clarified procedures for
engaging Tribal Nations and Native Hawaiian Organizations (NHOs) in historic preservation review; 898
and (3) exempted from NEPA review requirements certain structures placed on flood plains. 899 That
decision is already expediting the deployment of wireless infrastructure. And according to an Accenture
analysis, this Order will reduce small cell deployment costs by about $1.6 billion over the next 8 years.900
In August 2018, the Commission adopted One-Touch Make Ready rules 901 and issued a Declaratory
Ruling making clear that state and local moratoria, which are plainly a barrier to entry, violate section
253(a) of the Communications Act. 902
299.
In September 2018, the Commission adopted the Wireless Infrastructure Declaratory
Ruling and Third Report and Order, addressing state and local barriers to deployment. 903 State and local
zoning rules for erecting towers and other structures or attaching equipment to pre-existing towers and
structures (e.g., rooftops, water tanks, power lines, and utility poles) can affect the timing and cost of
deploying mobile wireless networks. Regulatory delay can slow entry, and local regulatory fees can
represent sunk costs that can deter or diminish entry. Thus, regulatory fees and regulatory delays can be a
significant barrier to entry. 904 Siting fees such as excessive one-time application fees, annual recurring
fees, unreasonable or discriminatory gross revenue fees, and franchise or use fees may be especially
burdensome to smaller providers and may prevent or discourage investment. In addition, review
processes designed for large macro cells may be applied to small cell deployments in some localities. 905
These review processes could pose significant barriers to entry or expansion because of the large number
895
See generally Wireless Infrastructure Third Report and Order.
896
Accelerating Wireless Broadband Deployment by Removing Barriers to Infrastructure Investment, WT Docket
No. 17-79, Report and Order, 32 FCC Rcd 9760 (2017) (Wireless Infrastructure First Report and Order), and
Accelerating Wireline Broadband Deployment by Removing Barriers to Infrastructure Investment, WC Docket No.
17-84, Report and Order, Declaratory Ruling, and Further Notice of Proposed Rulemaking, 32 FCC Rcd 11128
(2017) (Wireline Infrastructure First Report and Order).
897
Wireless Infrastructure Second Report and Order at 3, para. 4.
898
Id. at 3, para. 6.
899
Id. at 4, para. 8.
900
Accenture Strategy, “Impact of Federal Regulatory Reviews on Small Cell Deployment,” March 12, 2018,
https://api.ctia.org/docs/default-source/default-document-library/small-cell-deployment-regulatory-review-costs_312-2018.pdf.
901
“One-Touch Make Ready” means that it must be possible for a single construction team to make a pole ready for
a new attachment.
902
See Accelerating Wireline Broadband Deployment by Removing Barriers to Infrastructure Investment, Third
Report and Order and Declaratory Ruling, 33 FCC Rcd 7705, 7775, para. 140 (2018) (Wireline Infrastructure Third
Report and Order).
903
See generally Wireless Infrastructure Third Report and Order.
904
Sixteenth Report, 28 FCC Rcd at 3765, para.76.
905
Wireless Infrastructure NPRM, 32 FCC Rcd at 3343, paras. 32-34.
12716
Federal Communications Commission
FCC 18-181
of small cells that need to be deployed relative to large towers. 906 The review processes may be less
important for small cells because their deployment causes less disruption to an area than the deployment
of large towers. 907 In addition, state and local zoning requirements may prevent or delay entry and
expansion by requiring that all facilities along rights-of-way (ROW) be underground, or by imposing
burdensome and/or unpublished aesthetic restrictions.908
300.
In the Declaratory Ruling, the Commission reaffirmed that a state or local legal
requirement constitutes an effective prohibition if it “materially limits or inhibits the ability of any
competitor or potential competitor to compete in a fair and balanced legal and regulatory environment.”909
The Declaratory Ruling also concluded that state and local application fees, fees for access to the ROW,
and fees for use of government-owned facilities in the ROW are preempted unless (1) the fees are a
reasonable approximation of the state or local government’s costs, (2) only objectively reasonable costs
are factored into those fees, and (3) the fees are no higher than the fees charged to similarly-situated
actual or possible competitors in similar situations. 910 The Third Report and Order established two new
“shot clocks” for small wireless facilities, codified existing shot clocks for other wireless facilities, and
clarified that failure to act within the shot clock period presumptively has the effect of prohibiting
personal wireless services, in violation of Section 332(c) of the Communications Act. 911
B.
The Fixed Communications Market
301.
The Commission has taken numerous steps to accelerate the deployment of broadband
networks and facilities. The Broadband Deployment Advisory Committee’s (BDAC), for example, was
chartered on March 1, 2017 and makes recommendations to the Commission on how to accelerate
broadband deployment by reducing and/or removing regulatory barriers to infrastructure investment. 912
The BDAC provides a means for stakeholders to exchange ideas and develop recommendations to the
Commission on broadband deployment, thereby enhancing the Commission’s ability to carry out its
statutory responsibility to encourage broadband deployment to all Americans. 913 Since the Commission
released the 2018 Broadband Deployment Report, the BDAC has met three times, first on April 25,
2018 914 then on July 26-27, 2018, 915 and again on December 6-7, 2018. 916
302.
In 2018, the BDAC considered reports and recommendations from its various working
groups, including draft model codes for states and municipalities to encourage the development and
906
An estimated 100,000 to 150,000 small cells will be constructed by the end of 2018, and these numbers are
projected to reach 455,000 by 2020, and 800,000 by 2026. Wireline Infrastructure Third Report and Order, at 2,
para. 1.
907
Wireless Infrastructure Third Report and Order at 3, para. 3.
908
Id. at 43-46, paras. 84-91.
909
Id. at 15, para. 35.
910
Id. at 25-26, para. 50.
911
Id. at 5, para. 13.
912
FCC, Broadband Deployment Advisory Committee Charter, Committee’s Objective and Scope of its Activities
(Mar. 1, 2017), https://www.fcc.gov/sites/default/files/bdac-charter.pdf.
913
Id.
914
FCC Announces the Next Meeting of the Broadband Deployment Advisory Committee, GN Docket No. 17-83,
Public Notice, DA 18-138 (Feb. 12, 2018).
915
FCC Announces the Next Meeting of the Broadband Deployment Advisory Committee, GN Docket No. 17-83,
Public Notice, DA 18-706 (July 6, 2018).
916
FCC Announces the Next Meeting of the Broadband Deployment Advisory Committee, GN Docket No. 17-83,
Public Notice, DA 18-1160 (Nov. 14, 2018).
12717
Federal Communications Commission
FCC 18-181
deployment of broadband infrastructure. 917 The BDAC adopted the model code for municipalities at the
July 2018 meeting and finalized the model code for states at the December 2018 meeting. In August, the
BDAC solicited nominations for membership on a new Disaster Response and Recovery Working Group,
which will be charged with making recommendations on additional measures that can be taken before a
disaster to improve resiliency of broadband infrastructure, strategies that can be used during the response
to a disaster to minimize the downtime of broadband networks, and actions that can be taken to restore
broadband infrastructure during disaster recovery. 918 On December 10, the Commission announced its
intent to re-charter the BDAC for an additional two years, starting on or about March 1, 2019. 919
303.
The BDAC’s efforts have been particularly influential in the Commission’s infrastructure
proceedings. A number of the BDAC’s recommendations 920 provided the framework for many of the
Commission’s actions in the August 2018 Third Report and Order and Declaratory Ruling, 921 including
the BDAC’s January 2018 proposal to streamline pole attachment make-ready workflows under a “onetouch make-ready” (OTMR) model. 922 Similarly, the BDAC’s findings, reports, and recommendations 923
917
BDAC Model Code for States Working Group, State Model Code for Accelerating Broadband Infrastructure
Deployment and Investment, Final Approved Sections (Dec. 6, 2018), https://www.fcc.gov/sites/default/files/bdac12-0607-2018-model-code-states-final-approved-sections.pdf; BDAC Model Code for States Working Group, State
Model Code for Accelerating Broadband Infrastructure Deployment and Investment, Discussion Draft (Dec. 6,
2018), https://www.fcc.gov/sites/default/files/bdac-12-0607-2018-model-code-states-discussion-doc.pdf; BDAC
Model Code for States Working Group, State Model Code for Accelerating Broadband Infrastructure Deployment
and Investment (July 19, 2018), https://www.fcc.gov/sites/default/files/bdac-07-2627-2018-harmonization-wgmodel-code-states.pdf; BDAC Model Code for Municipalities Working Group, Model Code for Municipalities (July
19, 2018), https://www.fcc.gov/sites/default/files/bdac-07-2627-2018-harmonization-wg-model-code-muni.pdf.
918
FCC Solicits Nominations for New Disaster Response and Recovery Working Group of the Broadband
Deployment Advisory Committee, Public Notice, GN Docket No. 17-83, DA 18-837 (Aug. 9, 2018).
919
See FCC Announces the Re-Charter of the Broadband Deployment Advisory Committee and Solicits Nominations
for Membership, GN Docket No. 17-83, Public Notice, DA 18-1239 (Dec. 10, 2018).
920
See, e.g., Letter from Paul D’Ari, Designated Federal Officer, Broadband Deployment Advisory Committee,
FCC, to Marlene H. Dortch, Secretary, FCC, WC Docket No. 17-84 (filed July 3, 2018), at Attach. Broadband
Deployment Advisory Committee, FCC, Report of the Competitive Access to Broadband Infrastructure Working
Group, at 19-22, 26-27, 29, 37, 39 (2018),
https://ecfsapi.fcc.gov/file/107030255502405/Competitive%20Access%20to%20Broadband%20Infrastructure%20R
eport.pdf (BDAC January 2018 Recommendations); BDAC, Addendum to the Report of the Competitive Access to
Broadband Infrastructure Working Group (April 25, 2018), https://www.fcc.gov/sites/default/files/bdac-cabi-report04252018.pdf.
921
See Wireline Infrastructure Third Report and Order, 33 FCC Rcd at 7706, para. 2.
922
See BDAC January 2018 Recommendations at 18-31. By some estimates, OTMR alone could result in
approximately 8.3 million incremental premises passed with fiber, and about $12.6 billion in incremental fiber
capital expenditures. See Letter from Thomas J. Navin, Counsel to Corning, to Marlene H. Dortch, Secretary, FCC,
WT Docket No. 17-84, at Attach. A; Ed Naef and Alex King, CMA Strategy Consulting, Assessing the Impact of
Removing Regulatory Barriers on Next Generation Wireless and Wireline Broadband Infrastructure Investment:
Annex 1, Model Sensitivities at 5-6 (filed Feb. 26, 2018).
923
See, e.g., BDAC, Model Code for Municipalities Working Group, Model Code for Municipalities (July 19,
2018), https://www.fcc.gov/sites/default/files/bdac-07-2627-2018-harmonization-wg-model-code-muni.pdf; BDAC,
Report of the Removal of State and Local Regulatory Barriers Working Group (Jan. 10, 2018),
https://www.fcc.gov/sites/default/files/bdac-regulatorybarriers-01232018.pdf; BDAC, Rates and Fees Committee,
Draft Final Report to the BDAC (v 2.5) (July 24, 2018), https://www.fcc.gov/sites/default/files/bdac-07-2627-2018rates-fees-wg-report-07242018.pdf.
12718
Federal Communications Commission
FCC 18-181
informed the conclusions in the Commission’s September 2018 Wireless Infrastructure Declaratory
Ruling and Third Report and Order. 924
304.
The Commission has also been at the forefront of supporting areas affected by natural
disasters. In October 2017, the Commission pledged to repair communications networks in Puerto Rico
and the U.S. Virgin Islands damaged by Hurricane Maria925 and in May 2018, the Commission approved
additional funding to accelerate the restoration of communications networks in those territories. 926 It also
sought comment on providing almost $900 million in medium- and long-term funding into expanding and
improving broadband access on the islands. 927 The Order and Notice of Proposed Rulemaking includes
an immediate infusion of approximately $64 million in additional funding for short-term restoration
efforts, and sought public comment on a proposal to allocate approximately $444.5 million in funding for
Puerto Rico and $186.5 million for the U.S. Virgin Islands over the next decade for the expansion of fixed
broadband connectivity. 928
305.
Universal service also played an essential role in deployment of broadband networks and
encouraging competition. The Commission’s Universal Service Fund (USF) provides funding to increase
the availability of fixed and mobile broadband services in unserved and rural areas. 929 The Fund targets
support to these areas and, as part of its oversight responsibilities, the Commission routinely considers
ways to maximize the impact of available USF funding to support broadband deployment. 930
306.
Over the past two years, for example, the Commission has successfully conducted the
Connect America Fund Phase II auction to award funding to service providers that commit to offer voice
and broadband services to fixed locations in unserved high-cost areas. In February 2017, the Commission
adopted a Report and Order and Order on Reconsideration finalizing bidding rules and establishing
weights to compare bids in the auction. 931 In August 2017, the Commission released a Public Notice
proposing procedures to implement the Phase II auction. The Phase II auction, which offered up to nearly
$2 billion over the next decade to expand fixed, high-speed Internet service to unserved rural areas, ran
from July 24, 2018 to August 21, 2018. 932 At its conclusion, 103 bidders won $1.49 billion over 10 years
924
See Wireless Infrastructure Third Report and Order, at 11, para. 27.
925
Connect America Fund, WC Docket No. 10-90, Order, 32 FCC Rcd 7981 (2017).
926
See generally Uniendo and Connect USVI Funds Order and NPRM, 33 FCC Rcd 5404.
927
Id. at 5405, paras. 3-5.
928
Id. at 5413, paras. 30-33.
929
Connect America Fund et al., Report and Order and Further Notice of Proposed Rulemaking, 26 FCC Rcd
17663, 17668-69, paras. 1-5 (2011) (USF/ICC Transformation Order), aff’d sub nom, In re: FCC 11-161, 753 F.3d
1015 (10th Cir. 2014).
930
Connect America Fund, et al., Report and Order, Third Order on Reconsideration, and Notice of Proposed
Rulemaking, FCC 18-29, para. 4 (2018) (taking several steps to increase broadband deployment in rural areas
through the High Cost program, including maximizing available funding for broadband networks); Bridging the
Digital Divide for Low-Income Americans, Fourth Report and Order, Order on Reconsideration, Memorandum
Opinion and Order, Notice of Proposed Rulemaking, Notice of Inquiry, 32 FCC Rcd. 10475, para. 1 (2018)
(directing Lifeline funds to the areas in which they are most needed, to encourage investment in broadband-capable
networks); Promoting Telehealth in Rural America, Report and Order, FCC 18-82, para. 1 (2018) (increased the
funding cap for the Rural Healthcare program to $571 million to prevent pro-rata funding reductions that could have
disproportionally impacted rural health care providers, especially those in Alaska).
931
Connect America Fund et al., WC Docket Nos. 10-90 et al., Report and Order and Order on Reconsideration, 32
FCC Rcd 1624 (2017).
932
Connect America Fund Phase II Auction Scheduled for July 24, 2018 Notice and Filing Requirements and Other
Procedures for Auction 903, AU Docket No. 17-182, WC Docket No. 10-90, Public Notice, 33 FCC Rcd 1428
(2018); 220 Applicants Qualified to Bid in the Connect America Fund Phase II Auction (Auction 903); Bidding to
(continued….)
12719
Federal Communications Commission
FCC 18-181
to provide fixed broadband and voice services to over 700,000 locations in 45 states. 933 Separately, the
Commission provided small, rural carriers with an infusion of over $500 million to promote more highspeed broadband deployment in rural areas in March 2018. 934
307.
In December 2017, the Commission issued a Notice of Proposed Rulemaking to review
the Rural Health Care program and sought comment on ways to improve connectivity for health care
providers in rural areas including whether to lift the program’s funding cap to make additional money
available for broadband to rural health care providers. In an accompanying Order, the Commission
granted relief to rural health care providers facing potential funding cuts in funding year 2017. 935 In June
2018, the Commission increased the funding cap for the Rural Health Care program from $400 million to
$571 million to prevent pro-rata funding reductions that could have disproportionally impacted rural
health care providers, especially those in Alaska.936
308.
In June 2018, the Commission set aside enforcement of rules that were unfairly driving
up the cost of broadband service for the customers of some rural providers. 937 Unlike all other ISPs, our
rules require certain small, rural providers to pay into the USF fees on the revenues they earn from
broadband Internet access transmission service. 938 These fees ultimately get passed on to their customers.
To level the playing the field and reduce the cost of broadband in many rural areas, the Commission
granted a petition for forbearance effectively waiving that requirement for these rural carriers. 939
309.
To remove the impediments that Title II classification had placed on broadband
investment and deployment, in May 2017, the Commission proposed to restore the pre-2015 “information
service” classification of broadband Internet access service. 940 In December 2017, the Commission
adopted a Declaratory Ruling, Report and Order, and Order that reinstated the pre-2015 “information
service” classification of broadband Internet access service 941 and restored the determination that mobile
broadband is not a “commercial mobile service.” 942 The Commission found that these measures would
(Continued from previous page)
Begin on July 24, 2018, AU Docket No. 17-182, WC Docket No. 10-90, Public Notice, DA 18-658 (WCB/WTB
June 25, 2018) (announcing the qualified bidders for the auction and confirming timing); Connect America Fund
Phase II Auction (Auction 903) Closes; Winning Bidders Announced, AU Docket No. 17-182, WC Docket No. 1090, Public Notice, DA 18-887 (WCB/WTB Aug. 28, 2018).
933
News Release, FCC, Connect America Fund Auction to Expand Broadband to Over 700,000 Rural Homes and
Businesses (Aug. 28, 2018), https://docs.fcc.gov/public/attachments/DOC-353840A1.pdf.
934
Connect America Fund, et al., WC Docket Nos. 10-90, 14-58, 07-135, CC Docket No. 01-92, Report and Order,
Third Order on Reconsideration, and Notice of Proposed Rulemaking, FCC 18-29, at 3, para. 4 (Mar. 23, 2018).
935
Promoting Telehealth in Rural America, WC Docket No. 17-310, Notice of Proposed Rulemaking and Order, 32
FCC Rcd 10631 (2017).
936
Promoting Telehealth in Rural America, WC Docket No. 17-310, Report and Order, 33 FCC Rcd 6574, 6574,
para. 1 (2018).
937
Petition of NTCA—The Rural Broadband Association and the United States Telecom Association for
Forbearance Pursuant to 47 U.S.C. § 160(c) from Application of Contribution Obligations on Broadband Internet
Access Transmission Services, WC Docket No. 17-206, Order, 33 FCC Rcd 5712 (2018).
938
See 47 U.S.C. § 254(d), 47 CFR § 54.706.
939
Auctions of Upper Microwave Flexible Use Licenses for Next-Generation Wireless Services, AU Docket No. 1885, Public Notice, 33 FCC Rcd 7575 (2018).
940
Restoring Internet Freedom, WC Docket No. 17-108, Notice of Proposed Rulemaking, 32 FCC Rcd 4434 (2017).
941
Restoring Internet Freedom Order, 33 FCC Rcd at 318-52, paras. 20-64.
942
Id. at 352-62, paras. 65-85.
12720
Federal Communications Commission
FCC 18-181
“encourage broadband investment and innovation, furthering our goal of making broadband available to
all Americans.” 943
310.
The Commission has also taken steps to remove impediments to deployment and network
transitions. In April 2017, the Commission sought comment on addressing barriers to investment in and
deployment of wireline infrastructure. 944 In November 2017, the Commission addressed pole attachment,
copper retirement and discontinuance issues and sought further comment on reducing barriers to
broadband deployment. 945 In June 2018, the Commission eliminated unnecessary impediments and costs
to timely network upgrades, while maintaining protections for consumers and enabling providers to invest
in next-generation networks. 946 The Commission took these actions to build on the work begun in 2017 to
reform our copper retirement, network change disclosure, and discontinuance processes and remove
regulatory barriers causing unnecessary costs or delay to deployment of next-generation networks. 947
311.
In August 2018, the Commission adopted measures to expedite the process and reduce
the costs of attaching new network facilities to utility poles.948 Consistent with the recommendations of
the BDAC, 949 the Commission established a new pole attachment process that allows the party with the
strongest incentive to prepare the pole quickly for new attachments, rather than spreading the work across
multiple parties.950 The Commission also addressed two forms of state and local regulatory barriers to
deployment, clarifying that (1) it will preempt, on a case-by-case basis, state and local laws that inhibit
the rebuilding or restoration of broadband infrastructure after a disaster; and (2) state and local moratoria
on the deployment of telecommunications services and facilities are barred section 253(a) by the
Communications Act because they “prohibit or have the effect of prohibiting the ability of any entity to
provide any interstate or intrastate telecommunications service.” 951
312.
The Commission also removed regulatory barriers in the competitive market for business
data services. In April 2017, the Commission recognized widespread competition in the business data
services market and eliminated pricing regulation and tariffing requirements for most types of business
data services.952
C.
The Video and Audio Markets
313.
Broadcast Ownership Rules. The Commission’s rules contain structural limits governing
ownership of television stations. Section 202(h) of the Telecommunications Act of 1996 requires the
943
Id. at 362-63, para. 86.
944
Accelerating Wireline Broadband Deployment by Removing Barriers to Infrastructure Investment, WC Docket
No. 17-84, Notice of Proposed Rulemaking, Notice of Inquiry, and Request for Comment, 32 FCC Rcd 3266 (2017).
945
Accelerating Wireline Broadband Deployment by Removing Barriers to Infrastructure Investment, WC Docket
No. 17-84, Report and Order, Declaratory Ruling, and Further Notice of Proposed Rulemaking, 32 FCC Rcd 11128
(2017) (Wireline Infrastructure First Report and Order).
946
Accelerating Wireline Broadband Deployment by Removing Barriers to Infrastructure Investment, WC Docket
No. 17-84, Second Report and Order, 33 FCC Rcd 5660 (2018).
947
See Wireline Infrastructure First Report and Order, 32 FCC at 11187-94, paras. 156-79.
948
See Wireline Infrastructure Third Report and Order, 33 FCC Rcd at 7711-74, paras. 13-136.
949
See BDAC January 2018 Recommendations at 18-31.
950
Wireline Infrastructure Third Report and Order, 33 FCC Rcd at 7706, 7714-25, paras. 2, 16-35.
951
Id. at 7707, 7774-75, paras. 4, 137-39.
952
See generally Business Data Services in an Internet Protocol Environment, WC Docket Nos. 16-143, 05-25, GN
Docket No. 13-5, RM-10593, Report and Order, 32 FCC Rcd 3459, 3463, paras. 1-9 (2017) (taking several steps to
reduce government intervention and allow market forces to further spur entry, innovation, and competition in
business data services markets served by price cap carriers) .
12721
Federal Communications Commission
FCC 18-181
Commission to review its media ownership rules every four years to determine whether they remain
“necessary in the public interest as a result of competition.”953 Rule modifications enacted by the
Commission after such reviews may enhance competition and reduce barriers to entry in the media
marketplace.
314.
On August 10, 2016, the Commission adopted a Second Report and Order that completed
the 2010 and 2014 quadrennial reviews of the media ownership rules (Quadrennial Review Order). 954 On
November 20, 2017, the Commission released an Order on Reconsideration that reversed certain elements
of the earlier Order, most notably by repealing the long-standing Newspaper/Broadcast Cross-Ownership
Rule and Radio/Television Cross-Ownership Rule. 955 The Order on Reconsideration also revised the
Local Television Ownership Rule956 and eliminated the attribution rule for television joint sales
agreements (JSAs). 957 Under the revised Local Television Rule, an entity may own two television
stations in the same DMA if (1) the digital noise limited service contours of the stations (as determined by
Section 73.622(e)) do not overlap; or (2) at least one of the stations is not ranked among the top four
stations in the market. 958 Under the revised Local Television Ownership Rule, the Commission will
consider combinations otherwise barred by the top-four prohibition on a case-by-case basis. 959
315.
The Commission also repealed the attribution rule for television JSAs. As a result, the
Commission will no longer consider TV JSAs of any type to be attributable ownership interests for the
purposes of its media ownership rules. 960 The Commission stated that the repeal effectively removes a
regulatory disincentive for entering into JSAs and enables the stations to better serve their
communities. 961
316.
In addition to modifying the local television ownership rules, the Commission recently
sought comment on whether to repeal or modify the national television audience reach rule. 962 This rule
prohibits a single entity from owning television stations that collectively reach more than 39% of the total
nationwide audience.963 To compensate for the technical limitations of analog UHF signals, the rule
previously allowed the licensee of a UHF station to count only 50% of the television households in its
953
Telecommunications Act of 1996, Pub. L. No. 104-104, § 202(h), 110 Stat. 56, 111-12 (1996) (1996 Act);
Consolidated Appropriations Act, 2004, Pub. L. No. 108-199, § 629, 118 Stat. 3, 99-100 (2004) (Appropriations
Act) (amending Sections 202(c) and 202(h) of the 1996 Act). In 2004, Congress revised the then-biennial review
requirement to require such reviews quadrennially. See Appropriations Act § 629, 118 Stat. at 100.
954
2014 Quadrennial Second Report and Order.
955
2014 Quadrennial Regulatory Review – Review of the Commission’s Broadcast Ownership Rules and Other
Rules Adopted Pursuant to Section 202 of the Telecommunications Act of 1996, Order on Reconsideration and
Notice of Proposed Rulemaking, 32 FCC Rcd 9802, 9803, para. 2 (2017) (Quadrennial Review Reconsideration).
Elimination of the Newspaper/Broadcast Cross-Ownership and Radio/Television Cross-Ownership Rules removed
all restrictions prohibiting a single entity from owning a newspaper and broadcast stations in the same market. Id. at
9806-07, 9824-25, paras. 8, 49. Although the cross-ownership restrictions have been repealed, broadcast ownership
remains subject to the Local Television Ownership Rule and Local Radio Ownership Rule. Id. at 9824-25, para. 49.
956
Id. at 9803, para. 2.
957
Id.
958
Id. at 9831, para. 66.
959
Id. at 9836, para. 78.
960
Id. at 9848, para. 101.
961
Id. at 9881, Appendix B, para. 29.
962
47 CFR § 73.3555(e).
963
Id. § 73.3555(e)(2).
12722
Federal Communications Commission
FCC 18-181
market area for purposes of assessing compliance with the 39% cap. 964 In 2016, the Commission
eliminated this UHF discount, finding that the nation’s transition from analog to digital television
eliminated the technical justification for the discount.965 In 2017, the Commission reversed this decision
on reconsideration, finding that when the UHF discount was eliminated, the Commission failed to
consider whether the resulting de facto tightening of the national cap was in the public interest and
justified by current marketplace conditions. 966 On reconsideration, the Commission reinstated the UHF
discount and stated that the Commission would conduct a comprehensive rulemaking proceeding to
determine whether to retain the discount and/or modify the national cap. 967
317.
On August 2, 2018, the Commission adopted a Report and Order establishing the
requirements that will govern an incubator program that seeks to promote the entry of new and diverse
voices into the broadcast industry. 968 Under the incubator program, an established broadcaster can
provide financial and operational support, including training and mentoring, to a new or small
broadcaster. 969 At the end of a successful incubation relationship, if the new or small broadcaster either
owns and operates a new station independently or the previously struggling broadcaster’s station is on a
firmer footing, 970 the established broadcaster is eligible to receive a waiver of the Commission’s Local
Radio Ownership Rule that it can use either in the incubated market or in a comparable market, subject to
certain requirements. 971 Participation in the incubator program initially will be limited to full-service AM
and FM broadcast radio stations, as the costs of obtaining and operating radio stations make the radio
sector a significantly more accessible entry point than television for entities with limited capital resources
and operational experience. 972 The incubator program addresses the need for more innovative approaches
to provide access to capital, as well as technical, operational, and management training, to new entrants
and small broadcasters that otherwise would not be able to own a full-service broadcast radio station,
acquire an additional station, or remain in the broadcasting business. 973
318.
Next Generation Broadcast Television Transmission Standard. On November 20, 2017,
the Commission released a Report and Order and Further Notice of Proposed Rulemaking adopting
proposals to authorize broadcasters to use the new Advanced Television Systems Committee (ATSC) 3.0
broadcast transmission standard. 974 This enhanced transmission standard has the potential to enable
964
Id.; Amendment of Section 73.3555(e) of the Commission’s Rules, National Television Multiple Ownership Rule,
Report and Order, 31 FCC Rcd 10213, 10215, para. 5 (2016).
965
Id. at 10214, para. 2 (2016).
966
Amendment of Section 73.3555(e) of the Commission’s Rules, National Television Multiple Ownership Rule,
Order on Reconsideration, 32 FCC Rcd 3390, 3390, para. 1 (2017).
967
Id. at 3391, para. 1.
968
Rules and Policies to Promote New Entry and Ownership Diversity in the Broadcasting Services, MB Docket
No. 17-289, Report and Order, at 1, para. 1 (2018) (Incubator R&O).
969
Incubator R&O at 2, para 6.
970
Id. at 2, para 6.
971
Id.
972
Id. at 2, para 7.
973
Id. at 1, para 1.
974
Authorizing Permissive Use of the “Next Generation” Broadcast Television Standard, GN Docket No. 16-142,
Report and Order and Further Notice of Proposed Rulemaking, 32 FCC Rcd 9930, 9931-33, para. 2 (2017) (Next
Gen TV Order). The rules adopted in the Next Gen TV Order took effect on March 5, 2018, except for rule sections
73.3801, 73.6029, and 74.782, which require OMB approval. Media Bureau Announces Next Gen TV Order
Published in Federal Register, GN Docket No. 16-142, Public Notice, DA 18-103 (MB Feb. 2, 2018). The rules
requiring OMB approval took effect on July 17, 2018. Next Gen TV Rules Receive OMB Approval, GN Docket No.
16-142, Public Notice, DA 18-736 (MB July 17, 2018). In the accompanying Further Notice of Proposed
(continued….)
12723
Federal Communications Commission
FCC 18-181
broadcast television stations to serve consumers and advertisers in new, innovative ways that may allow
such stations to compete with features offered by MVPDs and OVDs. Advocates of ATSC 3.0 assert that
the new standard could greatly improve broadcast signal reception, particularly on mobile devices and
television receivers without outdoor antennas.975 Advocates also state that ATSC 3.0 will enable
broadcasters to offer enhanced and innovative new features to consumers, including Ultra High Definition
(UHD) picture and immersive audio, more localized programming content, an advanced emergency alert
system (EAS) capable of waking up sleeping devices to warn consumers of imminent emergencies, better
accessibility options, and interactive services.976 In the recent Order, the Commission authorized
voluntary use of the ATSC 3.0 transmission standard and found that 3.0 transmissions meet the definition
of “broadcasting” in the Communications Act.977 The Order requires broadcasters who transmit in ATSC
3.0 to simulcast the primary video programming stream of their 3.0 channels in an ATSC 1.0 format, so
that viewers will continue to receive ATSC 1.0 service. 978
319.
The Order states that an ATSC 3.0 broadcaster’s ATSC 1.0 signal will retain mandatory
carriage rights, but that the station’s 3.0 signal will not have mandatory carriage rights while the
Commission requires local simulcasting. 979 Thus, MVPDs are required to continue to carry broadcasters’
1.0 signals but are not required to carry 3.0 signals. The Commission did not adopt new rules to govern
carriage of 3.0 signals pursuant to retransmission consent and found that voluntary carriage of 3.0 signals
is best left to marketplace negotiations between broadcasters and MVPDs. 980 Television stations
transmitting signals in ATSC 3.0 are subject to the public interest obligations currently applicable to
television broadcasters. 981 In addition, the Commission concluded that it is unnecessary to adopt an
ATSC 3.0 tuner mandate for new television receivers. 982 The Commission requires broadcasters to
provide advance on-air notifications to educate consumers about ATSC 3.0 service deployment and
simulcasting. 983 Lastly, the Order adopts specific technical aspects of the ATSC 3.0 standard. 984
(Continued from previous page)
Rulemaking, the Commission sought further comment on: (1) issues related to exceptions to and waivers of the
local simulcasting requirement, (2) whether the Commission should let full power broadcasters use channels in the
television broadcast band that are vacant to facilitate the transition to 3.0, and (3) its tentative conclusion that local
simulcasting should not change the significantly viewed status of a station transmitting in ATSC 3.0. Next Gen TV
Order, 32 FCC Rcd at 9989, paras. 122-31.
975
Authorizing Permissive Use of the “Next Generation” Broadcast Television Standard, GN Docket No. 16-142,
Notice of Proposed Rulemaking, 32 FCC Rcd 1670, 1671, para. 1 (2017).
976
Id.
977
Next Gen TV Order, 32 FCC Rcd at 9934-37, paras. 6-7, 9.
978
Id. at 9931-33, para. 2. The programming aired on the ATSC 1.0 simulcast channel must be “substantially
similar” to the programming aired on the 3.0 channel. This requirement means that the programming must be the
same, except for programming features that are based on the enhanced capabilities of ATSC 3.0, advertisements,
and promotions for upcoming programs. Id. The substantially similar requirement will sunset in five years from its
effective date absent further action by the Commission to extend it. Id.
979
Id. at 9958, para. 61.
980
Id. at 9969-70, paras. 77-78.
981
Id. at 9970, para. 79.
982
Id. at 9973, para. 83.
983
Id. at 9975, para. 86.
984
Id. at 9978, para. 94. The Commission incorporates two parts of the ATSC 3.0 “physical layer” standard into its
rules: (1) ATSC A/321:2016 “System Discovery & Signaling” (A/321), which is the standard used to communicate
the RF signal type that the ATSC 3.0 signal will use, and (2) A/322:2017 “Physical Layer Protocol” (A/322), which
is the standard that defines the waveforms that ATSC 3.0 signals may take. Id. at 9978, para. 95. The Commission
also adopts the service and interference protection rules that were proposed in the Next Gen TV NPRM. Id. at 9982,
(continued….)
12724
Federal Communications Commission
FCC 18-181
320.
Modifying or Eliminating Unnecessary Regulations. In 2017, the Commission began an
effort to modernize its regulations affecting media outlets by eliminating or modifying a number of
obsolete, burdensome, or outmoded rules. 985 This effort has resulted in the elimination or modification of
several requirements, including the following:
x
In January 2018, the Commission eliminated the main studio rule, which had long required
each television broadcast station to maintain a main studio located in or near its community
of license. 986 The Commission found that the widespread availability of electronic
communication enables stations to participate in their communities of license and allows
members of the community to contact broadcast stations without the need for the physical
presence of a local broadcast studio.987 Likewise, because the Commission adopted online
public inspection file requirements for broadcast stations, community members no longer
need to visit a television station’s main studio to access its public inspection file. 988 Given
these changes, the Commission found the main studio rule to be outdated and unnecessarily
burdensome on broadcast licensees.989 The Commission also eliminated the requirement that
the main studio have full-time management and staff present during normal business hours as
well as the requirement that the studio be capable of originating programming. 990 Repeal of
this rule is expected to give broadcasters cost savings and greater flexibility in their station
operations.991
x
In February 2018, the Commission eliminated rules that required certain broadcast and cable
entities to maintain paper copies of the Commission’s regulations. 992
(Continued from previous page)
para. 105. The Commission also concludes that broadcast television stations may operate ATSC 3.0 Single
Frequency Networks (SFNs) pursuant to its current rules authorizing Distributed Transmission Systems (DTS). Id.
at 9987, para. 115.
985
Commission Launches Modernization of Media Regulation Initiative, MB Docket No. 17-105, Public Notice, 32
FCC Rcd 4406 (2017) (Media Modernization Notice).
986
Elimination of Main Studio Rule, MB Docket No. 17-106, Report and Order, 32 FCC 8158, 8158, para. 1 (2017)
(Main Studio Order); see also Elimination of Main Studio Rule, Notice of Proposed Rulemaking, 32 FCC Rcd 4415
(2017).
987
Main Studio Order, 32 FCC Rcd at 8163, para. 9.
988
Id.
989
Id. at 8165, para. 13.
990
Id. at 8168, 8169, paras. 17, 19. Although not codified in regulations, the Commission had held that a main
studio must have a “meaningful management and staff presence” to fulfill the main studio’s function, which at a
minimum required “management and staff presence on a full-time basis during normal business hours.” See
Amendment of Sections 73.1125 and 73.1130 of the Commission’s Rules, the Main Studio and Program Origination
Rules for Radio and Television Broadcast Stations, Memorandum Opinion and Order, 3 FCC Rcd 5024, 5026, para.
24 (1988) (1988 Main Studio and Program Origination Reconsideration Order); Application for Review of Jones
Eastern of the Outer Banks, Inc. Licensee, Radio Station WRSF(FM) Columbia, North Carolina, Memorandum
Opinion and Order, 6 FCC Rcd 3615, 3616, n.2 (1991). Stations were also required to maintain production and
transmission facilities. 1988 Main Studio and Program Origination Reconsideration Order, 3 FCC Rcd at 5026,
para. 24. The Commission found that requiring a main studio to maintain staff sufficient to accommodate visits
from community members could not be justified because of current technology. Main Studio Order at 8168-69,
para. 18.
991
Id. at 8168, 8169, paras. 17, 19.
992
Amendment of Parts 74, 76 and 78 of the Commission’s Rules Regarding Maintenance of Copies of FCC Rules,
Report and Order, 33 FCC Rcd 2425 (2018). The rules required (1) licensees or permittees of low power TV, TV
translators, and TV booster stations to maintain “a current copy of Volume I and Volume III of the Commission’s
(continued….)
12725
Federal Communications Commission
FCC 18-181
x
As initially adopted, Section 73.624(g) of the Commission’s rules required DTV broadcast
stations to submit an annual report concerning provision of ancillary or supplementary
services to the Commission, even if they provided no ancillary or supplementary services 993
during the relevant reporting period.994 In April 2018, the Commission limited this reporting
requirement to the small number of broadcast stations that actually provided feeable ancillary
or supplementary services during the previous twelve months. 995
x
In September 2018, the Commission eliminated FCC Form 325, which collected certain
operational information from cable television systems, finding that the form’s limited utility
was outweighed by the burden placed on cable operators to file, and on the Commission to
process, the form. 996
x
In October 2018, the Commission eliminated the requirement that broadcast licensees and
permittees file paper copies of certain documents with the Commission. 997
D.
The Satellite Market
321.
On September 26, 2017, the Commission adopted an updated regulatory framework to
facilitate the delivery of broadband services through satellite constellations.998 In that Order, the
Commission updated, clarified and streamlined the current rules governing NGSO FSS systems to better
reflect current technology and promote additional operational flexibility. That action paves the way for
greater broadband offerings in the United States, particularly in remote and rural areas. In March 2018, to
facilitate the efficient and effective use of spectrum, the Commission approved the first U.S.-licensed
satellite constellation to provide broadband services using a new generation of LEO satellite technologies
in the SpaceX Authorization Order. 999
322.
In addition to SpaceX, the Commission has approved a number of NGSO FSS MEO and
LEO systems for operation in the U.S. market that plan to serve a variety of purposes, such as the
provision of high-throughput, low-latency broadband services to remote locations, satellite mission
extension services, and inter-satellite connectivity. For example, in 2017, the Commission adopted an
order granting market access to WorldVu d/b/a OneWeb for its NGSO FSS system of 720 satellites,
(Continued from previous page)
rules and (2) licensees and permittees of FM translator and FM booster stations to maintain a current copy of
Volumes I (Parts 0, 1, 2 and 17) and III (Parts 73 and 74) of the Commission’s rules. Id. at 2425-46, para. 2 and ns.
3 & 4 (internal citations omitted).
993
See supra note 261.
994
Amendment of Section 73.624(g) of the Commission’s Rules Regarding Submission of FCC Form 2100, Schedule
G, Used to Report TV Stations’ Ancillary or Supplementary Services, MB Docket No. 17-264, Report and Order,
FCC 18-41 at para. 3 (Apr. 13, 2018) (citing 47 CFR § 73.624(g)(2)(i); Fees for Ancillary or Supplementary Use of
Digital Television Spectrum Pursuant to Section 336(e)(1) of the Telecommunications Act of 1996, Report and
Order, 14 FCC Rcd 3259 (1998) (Ancillary or Supplementary Services Report and Order), recon. denied,
Memorandum Opinion and Order, 14 FCC Rcd 19931 (1999)).
995
Id. at para. 1 (citing 47 CFR § 73.624(g)(2); Amendment of Section 73.624(g) of the Commission’s Rules
Regarding Submission of FCC Form 2100, Schedule G, Used to Report TV Stations’ Ancillary or Supplementary
Services et al., MB Docket No. 17-264 et al., Notice of Proposed Rulemaking, FCC 17-138 (Oct. 24, 2017)).
996
FCC Form 325 Collection, MB Docket No. 17-290, Report and Order, FCC 18-136 (Sept. 26, 2018).
997
Amendment of Section 73.3613 of the Commission’s Rules Regarding Filing of Contracts, MB Docket No. 18-4,
Report and Order, FCC 18-145 (Oct. 23, 2018).
998
Update to Parts 2 and 25 Concerning Non-Geostationary, Fixed Satellite Service Systems and Related Matters,
Report and Order and Further Notice of Proposed Rulemaking, 32 FCC Rcd 7809 (2017).
999
See SpaceX Authorization Order.
12726
Federal Communications Commission
FCC 18-181
which OneWeb plans to use to further its goal to “provide high-speed, affordable broadband connectivity
to anyone, anywhere” in the United States. 1000 Also, the Commission granted the request of Space
Norway AS (Space Norway) to access the U.S. market using a two-satellite NGSO FSS system, in a
highly-elliptical orbit, to enable Space Norway to pursue its goal of providing broadband Internet access
to currently unserved and underserved communities in the Arctic region of the United States.1001 The
authorization of these and other systems furthers the Commission’s efforts to close the digital divide
across the United States. 1002
323.
On November 15, 2018, the Commission adopted a number of Orders granting the
applications of NGSO FSS LEO systems for market access. The Commission granted Kepler’s request
for U.S. market access to offer global connectivity for the Internet of Things using a proposed
constellation of 140 NGSO LEO satellites.1003 The Commission also granted the applications of Telesat
Canada and LeoSat for U.S. market access to provide broadband services.1004 The Commission also
granted SpaceX’s application to construct, deploy and operate a proposed NGSO satellite system using
frequencies in the V-band, which will provide SpaceX with additional flexibility to provide both diverse
geographic coverage and the capacity to support a wide range of proposed broadband and
communications services in the United States and globally.1005
324.
On April 17, 2018, the Commission proposed revisions to its rules to facilitate
deployment of a class of satellites known colloquially as “small satellites.”1006 These types of satellites,
which have relatively short duration missions, have been advancing scientific research and are
increasingly being used for commercial endeavors such as gathering Earth observation data. The
proposed rules were designed to lower the regulatory burden involved in licensing small satellites and
reduce application processing times, while offering protection for critical communication links and
enabling efficient use of spectrum for this dynamic sector.1007
325.
Finally, on September 26, 2018, the Commission streamlined, consolidated, and
harmonized the rules governing earth stations used to provide satellite-based GSO FSS services on ships,
airplanes and vehicles. 1008 These actions simplify the regulatory approval process for this rapidly growing
segment of the satellite communications market and expand the FSS frequency bands where these
operations can be conducted. 1009 On November 15, 2018, the Commission proposed similar rules with
respect to governing earth stations used to provide satellite-based GSO FSS services on ships, airplanes
and vehicles. 1010 Finally, on November 15, 2018, the Commission adopted a Notice of Proposed
1000
WorldVu Order and Declaratory Ruling, 32 FCC Rcd at 5366, para. 1; WorldVu Petition at 1.
1001
Space Norway AS Order and Declaratory Ruling, 32 FCC Rcd at 9649, 9659, paras. 1, 22; Space Norway AS
Petition at 1, 12-14.
1002
See also O3b Limited Modification Order; Karousel Authorization Order.
1003
See Kepler Order and Declaratory Ruling.
1004
See Telesat Canada V-Band NGSO Order and Declaratory Ruling; LeoSat Order and Declaratory Ruling.
1005
See SpaceX V-band NGSO Authorization Order.
1006
See Small Satellites NPRM.
1007
Id. at para. 1.
1008
See ESIMs Order.
1009
Id.
1010
See Facilitating the Communications of Earth Stations in Motion with Non-Geostationary Orbit Space Stations,
IB Docket No. 18-315, Notice of Proposed Rulemaking, FCC 18-160 (rel. Nov. 16, 2018) (ESIMs NPRM).
12727
Federal Communications Commission
FCC 18-181
Rulemaking proposing to further streamline the Commission’s Part 25 rules governing satellite services,
including through consolidated licensing and reporting proposals. 1011
IV.
COMMISSION AGENDA TO FURTHER ENCOURAGE INVESTMENT,
INNOVATION, DEPLOYMENT, AND COMPETITION
326.
RAY BAUM’S Act also requires the Commission to describe the agenda of the
Commission for the next 2-year period for addressing challenges and opportunities in the communications
marketplace.1012 We note that because this is the first Communications Marketplace Report, the
Commission did not have the opportunity to describe its agenda in a previous Communications
Marketplace Report. This section of the Report helps to articulate the Commission’s agenda for the next
2-year period.
A.
The Mobile Wireless Market
327.
Spectrum. Incumbent service providers need additional spectrum to increase their
coverage or capacity, while new entrants need access to spectrum to enter a geographic area. In addition,
average data usage per connection has been substantially increasing in recent years, and this growth is
expected to continue, in turn increasing service providers’ need for additional spectrum. Forwardthinking spectrum policy is critical for next generation wireless networks. To spur greater investment in
the mobile wireless industry, the Commission will continue to make available a significant amount of
additional spectrum over the next two years across a range of low-, mid-, and high-band frequencies to
ensure a vibrantly competitive mobile wireless services marketplace.
328.
High-band. The FCC has made auctioning high-band, millimeter-wave spectrum a
priority. In the Spectrum Frontiers proceedings, the Commission has proposed rules for facilitating the
reconfiguration of existing 39 GHz spectrum holdings into more contiguous license blocks and areas
conducive to wireless broadband deployments. 1013 To accomplish this reconfiguration, the Commission
has proposed an incentive auction and sought comment on a proposal for an optional voucher exchange
that will allow incumbent licensees to consolidate their holdings prior to the incentive auction. 1014
329.
The 28 GHz auction (Auction 101) began on-November 14, 2018. Short forms have been
filed for the 24 GHz auction (Auction 102), which will start after Auction 101 is complete. FCC
Chairman, Ajit Pai, has announced his intent to start the auction process for the Upper 37 GHz (37.6-38.6
GHz), 39 GHz (38.6-40 GHz), and 47 GHz (47.2-48.2 GHz) bands in the second half of 2019. 1015 With
these auctions, the FCC will release almost 5 gigahertz of 5G spectrum into the market—more than all
other flexible use bands combined. And we are working to free up additional spectrum for 5G in
millimeter wave frequencies, including the 26 GHz and 42 GHz bands. 1016
330.
Mid-band. Mid-band spectrum is very well-suited for next generation 5G wireless
services due to the combination of favorable propagation characteristics (as compared to high bands, like
mmW spectrum bands) and the opportunity for additional channel re-use (as compared to low bands). 1017
To facilitate additional access to mid-band spectrum, the Commission will conduct an auction for Priority
1011
Further Streamlining Part 25 Rules Governing Satellite Services, IB Docket No. 18-314, Notice of Proposed
Rulemaking, FCC 18-165 (rel. Nov. 19, 2018) (Further Streamlining Part 25 Rules NPRM).
1012
See RAY BAUM’S Act.
1013
Spectrum Frontiers Fourth Further Notice, at 2, para. 2.
1014
Id.
1015
FCC’s 5G FAST Plan.
1016
Id.
1017
Mid-Band Order and NPRM, at 3, para. 5.
12728
Federal Communications Commission
FCC 18-181
Access Licenses (PALs) in the 3.5 GHz band. 1018 Separately, in the Mid-Band proceeding, the
Commission identifies potential opportunities for additional terrestrial use of 500 megahertz of mid-band
spectrum between 3.7 GHz to 4.2 GHz. 1019 The Commission is also seeking comment on potential
changes to the Commission’s rules in the 3.7 GHz to 4.2 GHz band to promote more efficient and
intensive fixed use of the band on a shared basis. 1020 With our work on the 2.5 GHz, 3.5 GHz, and 3.7
GHz to 4.2 GHz bands, we could make up to 844 megahertz available for 5G deployments. 1021
331.
Low-band. The FCC is acting to improve use of low-band spectrum (useful for wider
coverage) for 5G services, with targeted changes to the 600 MHz, 800 MHz, and 900 MHz bands. 1022
332.
Unlicensed. Recognizing that unlicensed spectrum will be important for 5G, the
Commission recently proposed rules, in the 6 GHz band, that will promote new opportunities for
unlicensed use in portions of 1200 megahertz of spectrum while ensuring current licensed services in
operation continue to thrive. 1023 The agency is also creating new opportunities for unlicensed use above
95 GHz. 1024
333.
Expanding Wireless Access in Rural Areas. We will proceed with the Mobility Fund
Phase II Auction, a reverse auction of up to $4.53 billion in funding support for deployment of 4G LTE
mobile service where it is currently lacking.
334.
Infrastructure. To meet rapidly increasing demand for wireless services and prepare our
national infrastructure for 5G, the Commission will continue to pursue an agenda to reduce regulatory
impediments to help facilitate wireless infrastructure investment and deployment. Supporting the
deployment of 5G and other next-generation wireless services through smart infrastructure policy is
critical. 5G can enable increased competition for a range of services—including broadband—support
new healthcare and Internet of Things applications, speed the transition to life-saving connected car
technologies, and create jobs. Just as we have done in the past two years in reexamining the
Commission’s rules and procedures for wireless infrastructure deployment, we will continue to look for
ways in which we can promote the rapid deployment of advanced wireless broadband services, whether
through Commission processes, local and state review, or otherwise. In addition to reexamining our own
procedures, we will continue to work with other U.S. government agencies as well as states and local
governments, to facilitate the deployment of advanced wireless broadband services.
B.
The Fixed Communications Market
335.
The Commission’s policymaking efforts over the last two years have targeted promoting
greater broadband deployment, and the data demonstrate that more Americans have coverage from
multiple fixed broadband providers than ever before.1025 We are optimistic that competition will continue
to flourish as the Commission’s recent efforts to increase broadband deployment by breaking down
regulatory barriers spurs additional Internet service provider investment. The Commission will continue
to monitor the marketplace to encourage broadband deployment and bring the benefits of competition to
as many Americans as possible.
1018
Investment in 3.5 GHz Band Report and Order, at 4, para. 7.
1019
See generally Mid-Band Order and NPRM.
1020
Id., at 2, para. 2.
1021
Id.
1022
FCC’s 5G FAST Plan.
1023
See generally 6 GHz NPRM.
1024
Spectrum Horizons, Notice of Proposed Rulemaking, 33 FCC Rcd 2438 (2018).
1025
See supra Section III.D.
12729
Federal Communications Commission
FCC 18-181
336.
Over the next two years, the Commission will continue to focus our efforts on creating a
regulatory environment that reduces barriers to investment and encourages the private sector to build,
maintain, and upgrade next-generation networks so that the benefits of broadband are available to all
Americans. The work of the BDAC will also continue to play a crucial role in informing our efforts to
streamline broadband deployment and close the digital divide.1026 The recently established Disaster
Response and Recovery Working Group is already at work exploring additional measures that public and
private actors can take before a disaster to improve resiliency of broadband infrastructure, strategies they
can use during the response to a disaster to minimize the downtime of broadband networks, and actions
they can take to restore broadband infrastructure during disaster recovery. 1027
337.
The Commission will also continue to review outdated regulations that burden incumbent
providers and stifle competition. For instance, we will reexamine our rate floor rules for rate-of-return
carriers, which artificially inflate prices for rural consumers. The Commission will also work towards
removing unnecessary tariffing rules and encouraging carriers’ transition of their business data services to
light-touch incentive regulation. Where competition warrants it, we will encourage carriers to transition
away from ex ante pricing regulation. We will also work to identify and eliminate arbitrage opportunities
in our intercarrier compensation system through enforcement proceedings, tariff investigations, and
rulemakings as we continue the Commission’s longer-term efforts to fully move to a bill-and-keep
regime.
338.
The Commission will also prioritize proceedings that advance the goals of universal
service and target the digital divide. Specifically, we will focus on providing long term funding for
restoration and expansion of fixed broadband connectivity in Puerto Rico and the U.S. Virgin Islands
through the Universal Service Fund. The Commission will also use its auction authority to continue
providing high-speed Internet access to many unserved Americans, including through the Connect
American Fund Phase II auction, in which Commission staff will soon conclude reviews of winning
bidders’ long-form applications so that service providers can begin deploying new networks to serve rural
Americans. 1028 Finally, we will undertake much needed changes to the universal service Rural Health
Care Program and explore a “Connected Care Pilot Program” to support the delivery of telehealth
services to low-income Americans, with a focus on the delivery of such services to patients beyond the
doors of brick-and-mortar health care facilities.
C.
The Video and Audio Markets
339.
As part of its ongoing Modernization of Media Regulation Initiative, the Commission
will continue to modernize its regulations affecting media outlets by eliminating or modifying obsolete,
burdensome, or outmoded rules, including by completing several previously initiated rulemakings. 1029
The Commission has commenced a number of rulemaking proceedings as part of this initiative in order to
reduce burdens on licensees, while simultaneously enhancing competition and service to the public.1030
1026
See FCC Announces the Re-Charter of the Broadband Deployment Advisory Committee and Solicits
Nominations for Membership, GN Docket No. 17-83, Public Notice, DA 18-1239 (Dec. 10, 2018) (announcing the
Commission’s intent to renew the BDAC’s charter for a period of two years, starting on or about March 1, 2019).
1027
See FCC Announces Membership of the Broadband Deployment Advisory Committee’s Disaster Response and
Recovery Working Group, GN Docket No. 17-83, Public Notice, DA 18-1121 (Nov. 1, 2018); FCC Solicits
Nominations for New Disaster Response and Recovery Working Group of the Broadband Deployment Advisory
Committee, GN Docket No. 17-83, Public Notice, DA 18-837 (Aug. 9, 2018)
1028
FCC Strategic Plan at 6.
1029
See Media Modernization Notice.
1030
See, e.g., Elimination of Obligation to File Broadcast MidTerm Report (Form 397) Under Section 73.2080(f)(2),
MB Docket No. 18-23, Notice of Proposed Rulemaking, 33 FCC Rcd 2570 (2018); Channel Lineup Requirements –
(continued….)
12730
Federal Communications Commission
FCC 18-181
340.
In addition, the Commission is engaged in ongoing efforts to enhance competition and
improve public service in the video marketplace in a variety of other ways. For example, the Commission
is addressing two issues raised by a remand of the U.S. Court of Appeals for the Sixth Circuit.1031 The
first concerns the ability of local franchising authorities to regulate non-cable services, such as broadband
Internet access service, and the second relates to the appropriate treatment of cable-related “in kind”
contributions. 1032
341.
Furthermore, with respect to television broadcast stations, the Commission has authorized
the voluntary adoption of a new transmission standard, ATSC 3.0, that is intended to allow broadcasters
to provide additional programming and innovative services to consumers, thereby enhancing competition
in the video marketplace. 1033 The Commission is currently examining several remaining issues to
facilitate the introduction of service with the new standard. 1034
342.
The Commission also continues to examine its broadcast ownership regulations. For
example the Commission has recently commenced its statutory quadrennial review of the media
ownership rules to determine whether they remain “necessary in the public interest as a result of
competition.” 1035 The Commission’s review will consider whether three key structural ownership rules
remain in the public interest in light of the current media marketplace or whether, alternatively, the public
interest would benefit from modification or elimination of these rules.1036 Retention, modification, or
elimination of these structural ownership rules may impact competition in the video and/or audio
marketplace. In addition, a rulemaking proceeding is pending to examine the national television audience
reach cap. 1037
343.
Also with respect to the audio marketplace, the Commission’s AM revitalization effort
aims to “help AM broadcasters better serve the public, thereby advancing the Commission’s fundamental
goals of localism, competition, and diversity in broadcast media.” 1038 Pursuant to this effort, the
(Continued from previous page)
Sections 76.1705 and 76.1700(a)(4), MB Docket No. 18-92, Notice of Proposed Rulemaking, 33 FCC Rcd 4323
(2018).
1031
Montgomery County, Md. et al. v. FCC, 863 F.3d 485 (6th Cir. 2017)
1032
Implementation of Section 621(a)(1) of the Cable Communications Policy Act of 1984 as Amended by the Cable
Television Consumer Protection and Competition Act of 1992. MB Docket No. 05-311, Second Further Notice of
Proposed Rulemaking, FCC 18-131, paras. 16, 25 (Sep. 25, 2018)
1033
Next Gen TV Order, 32 FCC Rcd at 9931-33, para. 2.
1034
Specifically, the Commission will address the remaining pending issues regarding: (1) possible exceptions to
and waivers of the local simulcasting requirement, (2) whether the Commission should let full power broadcasters
use channels in the television broadcast band that are vacant to facilitate the transition to 3.0, and (3) the
Commission’s tentative conclusion that local simulcasting should not change the significantly viewed status of a
station transmitting in ATSC 3.0. Id. at 9989, paras. 122-31. The Commission will also address pending petitions
for reconsideration of the initial order filed by NTCA – The Internet & Television Alliance and American Television
Alliance, respectively. Petition for Reconsideration of NTCA – The Internet & Television Alliance, Docket GN 16142 (filed Mar. 5, 2018); Petition for Reconsideration of American Television Alliance, Docket GN 16-142 (filed
Mar. 5, 2018).
1035
See supra note 953.
1036
In addition, the proceeding will examine several potential pro-diversity initiatives raised in the Commission’s
combined 2010/2014 Quadrennial Review proceeding. See 2014 Quadrennial Second Report and Order, 31 FCC
Rcd at 10006-07, paras. 330-32.
1037
Amendment of Section 73.3555(e) of the Commission’s Rules, National Television Multiple Ownership Rule, MB
Docket No. 17-138, Notice of Proposed Rulemaking, 32 FCC Rcd 10785 (2017).
1038
Revitalization of the AM Radio Service, MB Docket No. 13-249, Notice of Proposed Rulemaking, 28 FCC Rcd
15221, 15222, para. 1 (2013).
12731
Federal Communications Commission
FCC 18-181
Commission has taken several steps designed to improve AM broadcasting, including opening FM
translator filing windows exclusively for AM licensees and permittees, modifying technical rules to ease
regulatory burdens, and providing AM licensees with more operational flexibility to improve service to
the public. 1039 This effort is ongoing, and the Commission anticipates taking additional steps to enhance
and improve the AM service, enhancing the ability of AM broadcasters to compete and serve the
public. 1040 In addition, the Commission has commenced a rulemaking proceeding seeking to “streamline
the rules relating to interference caused by FM translators and expedite the translator complaint resolution
process.” 1041 Adoption of streamlined interference rules may enhance the ability of FM broadcasters to
compete in the audio marketplace.
D.
The Satellite Market
344.
The Commission plans to pursue an agenda over the next two years to further encourage
investment and innovation in the provision of satellite services. Those actions will also facilitate the
further deployment of satellite services, thereby expanding connectivity in rural, high-cost areas of the
country and promoting competitive choices throughout the nation. Specifically, the Commission expects
to consider final rules in a number of separate rulemaking proceedings, all of which are designed to
promote and protect innovation and investment in the commercial satellite industry.
345.
First, the Commission plans to consider final rules to facilitate the deployment of small
satellites, which are relatively inexpensive and have demonstrated their utility and capabilities across a
wide range of satellite services. 1042 These proposals are designed to lower the regulatory burden involved
in licensing small satellites and reduce application processing times. They will also offer protection for
critical communication links and enable efficient use of spectrum for this dynamic sector.
346.
Second, the Commission plans to further streamline and consolidate the Part 25 rules
governing satellite communications, including application and licensing processes for both space and
earth stations. For example, the Commission plans to consider consolidated space station and earth
station licensing, 1043 which would likely facilitate the design of new systems by providing for
simultaneous, rather than sequential, planning of space station and gateway earth stations. The
Commission also plans to simplify and harmonize rules governing earth stations used to provide satellitebased FSS services on ships, airplanes, and vehicles, a rapidly growing segment of the satellite
communications market. 1044
347.
Third, the Commission plans to consider final rules providing FSS with additional
capacity for satellite services of millimeter wave band spectrum while permitting substantial terrestrial
use. For instance, it has proposed to permit licensing of individual FSS earth stations in the 50.4-51.4
GHz band. 1045 This proposal is part of an overall strategy to have a balanced approach for sharing
1039
See id.; Revitalization of the AM Radio Service, MB Docket No. 13-249, First Report and Order, Further Notice
of Proposed Rulemaking, and Notice of Inquiry, 30 FCC Rcd 12145 (2015); Revitalization of the AM Radio Service,
MB Docket No. 13-249, Second Report and Order, 32 FCC Rcd 1724 (2017); Revitalization of the AM Radio
Service, MB Docket No. 13-249, Third Report and Order, 32 FCC Rcd 7736 (2017).
1040
Revitalization of the AM Radio Service, MB Docket No. 13-249, Second Further Notice of Proposed
Rulemaking, FCC 18-139 (Oct. 5, 2018) (presenting a proposal to modify the protection of Class A AM stations).
1041
Amendment of Part 74 of the Commission’s Rules Regarding FM Translator Interference, MB Docket No. 18119, Notice of Proposed Rulemaking, FCC 18-60 at 1, para. 1 (May 10, 2018).
1042
See Small Satellites NPRM.
1043
See Further Streamlining Part 25 Rules NPRM.
1044
See ESIMs Order; ESIMs NPRM.
1045
See Spectrum Frontiers Third Report and Order. We note that Boeing has petitioned for FSS access to 51.452.4 GHz. Our proposal applies only to 50.4 - 51.4 GHz, where there currently is an FSS allocation, and does not
address Boeing’s petition.
12732
Federal Communications Commission
FCC 18-181
between terrestrial and satellite services in V-band, and would build on prior decisions to provide FSS
with exclusive access to the 40-42 GHz and 48.2-50.2 GHz bands, as well as shared access to the 37.5-40
GHz and 28 GHz bands. Through these actions, the Commission has sought to provide certainty to
satellite providers for them to offer services in shared spectrum bands.
348.
Finally, the Commission plans to update its rules and policies regarding orbital debris. 1046
Orbital debris, also known as “space debris” consists of artificial objects orbiting the Earth that are not
functional spacecraft, and can be created under a variety of scenarios involving satellite systems. 1047
Orbital debris can affect the cost, reliability, integrity, and capability of new satellite systems and valuable
services to the public, and it has the potential to cause physical harm to both people and property. 1048 The
current period of innovation in the space industry has resulted and will likely continue to result in a
significant increase in the number of satellites and types of operations in orbit, both of which have the
potential to increase the amount of orbital debris. 1049 In these circumstances, continuing to rely on clearly
outdated rules and policies increases both risks to continued safe operations in space and the uncertainty
surrounding future satellite operations. Mitigating the growth of orbital debris through updated orbital
debris rules and policies is more critical than ever to facilitate space commerce investments and
innovation. As the Commission has previously found, consideration of orbital debris issues plays an
important role in preserving access to space for the long term and in ensuring the safety of persons and
property in space and on the surface of the Earth. 1050
V.
PROCEDURAL MATTERS
349.
This Communications Marketplace Report is issued pursuant to Section 401 of the
Repack Airwaves Yielding Better Access for Users of Modern Services Act of 2018 (codified at 47
U.S.C. § 163), Section 103(b) of the Broadband Data Improvement Act (codified at 47 U.S.C. § 1303(b),
and Section 623(k) of the Communications Act of 1934, as amended (codified at 47 U.S.C. § 543(k).
350.
It is ORDERED that this Communications Marketplace Report shall be published on the
website of the Federal Communications Commission and that the Office of Legislative Affairs shall
submit copies of this Communications Marketplace Report to the Committee on Energy and Commerce
of the House of Representatives and the Committee on Commerce, Science, and Transportation of the
Senate.
1046
Additionally, in the future, Hughes and ViaSat will be expanding broadband services in remote areas with
funding from the Connect America Fund. See supra Section II.D.1, note 583 (noting that Hughes was awarded
funding to serve 76,873 units in New York state, while ViaSat was a winning bidder in 20 states, potentially serving
190,575 locations).
1047
Orbital Debris NPRM at para. 2.
1048
Mitigation of Orbital Debris, Second Report and Order, 19 FCC Rcd 11567, 11575, para. 14 (2004) (Orbital
Debris Order).
1049
Orbital Debris NPRM at para. 2.
1050
Orbital Debris Order, 19 FCC Rcd at 11575, para. 14.
12733
Federal Communications Commission
FCC 18-181
351.
It is FURTHER ORDERED that the proceeding in GN Docket No. 18-237, WT Docket
No. 18-203, MB Docket Nos. 17-217 and 18-227, and IB Docket No. 18-251 is TERMINATED.
FEDERAL COMMUNICATIONS COMMISSION
Marlene H. Dortch
Secretary
12734
Federal Communications Commission
FCC 18-181
STATEMENT OF
CHAIRMAN AJIT PAI
Re:
Communications Marketplace Report, GN Docket No. 18-231; The State of Mobile Wireless
Competition, WT Docket No. 18-203; Status of Competition in the Market for the Delivery of Video
Programming, MB Docket No. 17-214; Status of Competition in the Marketplace for Delivery of Audio
Programming, MB Docket No. 18-227; Satellite Communications Services for the Communications
Marketplace Report, IB Docket No. 18-251.
Up until this year, the FCC was required by statute to issue an annual ORBIT Act report. The
ORBIT Act required the Commission to report annually to Congress on its progress toward ensuring the
privatization of INTELSAT and Inmarsat. But this reporting obligation remained in effect for more than
a decade after that privatization took place.1 In Office Space parlance, releasing this report was about as
consequential as putting a new cover sheet on a TPS report. That’s why I repeatedly supported
Congress’s efforts to consolidate and streamline the Commission’s reporting obligations.
Thankfully, as part of RAY BAUM’S Act, Congress has done just that. It eliminated obsolete
and unnecessary reporting requirements, like the one contained in the ORBIT Act, while consolidating
many of our most useful reports into the new, biennial Communications Marketplace Report—or CMR.
By addressing the state of the mobile, wireless, video, audio, broadband, and satellite marketplaces in one
place, the CMR is a destination for one-stop shopping for interested members of Congress, policymakers,
academics, and the public. It also gives us the chance to take a comprehensive view of the actions we’ve
taken over the past two years to promote competition and reduce burdens to market entry, and to discuss
our prospective plans to advance those same objectives.
There’s a lot of interesting information contained in this report, and I encourage everyone to read
it. But in case you don’t, I wanted to highlight a few statistics that show the progress that we made in
2017 to increase broadband deployment and competition. For example, in 2017, the number of
Americans without access to fixed terrestrial broadband service of 100/10 Mbps plummeted from 78.9
million to 34.8 million—a stunning 56% drop in just one year. And in 2017, the number of Americans
lacking access to fixed terrestrial 25/3 Mbps service dropped from 24.8 million to 19.4 million. In other
words, the digital divide is closing.
When it comes to competition, there’s a lot of good news as well. For example, in 2017, the
percentage of Americans with access to two or more fixed terrestrial broadband options of at least 100/10
Mbps more than doubled, increasing from 26% to 54.5%.
On the mobile side, there is also positive news to report. Capital investment by wireless
providers went up in 2017, reversing declines in recent years, while prices went down. Specifically, the
Wireless Telephone Services Consumer Price Index fell by 11%. That’s more money in consumers’
pockets.
As we head into 2019, we are on the right track, and we aim to keep these positive trends going.
We will continue to close the digital divide and bring better, faster, cheaper broadband to all Americans
by continuing to eliminate barriers to infrastructure investment and broadband deployment and promoting
innovation.
Compiling this first-of-its-kind report and the numerous appendices required a tremendous
amount of work and was a true team effort. I therefore want to extend my sincere thanks to the many
1
See Statement of Commissioner Ajit Pai, Fourteenth Orbit Act Report (2013), http://go.usa.gov/chBuC; Statement
of Commissioner Ajit Pai, Fifteenth Orbit Act Report (2014), http://go.usa.gov/chBuF; Statement of Commissioner
Ajit Pai, Sixteenth Orbit Act Report (2015), http://go.usa.gov/chBJT; Statement of Commissioner Ajit Pai,
Seventeenth Orbit Act Report (2016), https://apps.fcc.gov/edocs_public/attachmatch/FCC-16-73A2.pdf; And
Statement of Chairman Ajit Pai, Eighteenth Orbit Act Report (2017), https://docs.fcc.gov/public/attachments/FCC17-69A2.pdf.
12735
Federal Communications Commission
FCC 18-181
staff throughout the agency that contributed to the Communications Marketplace Report in seven
different Bureaus and Offices: Annick Banoun, Joseph Calascione, Adam Copeland, Alex Espinoza, Alex
Johns, Trent Harkrader, Dan Kahn, Celia Lewis, Ken Lynch, Pam Megna, Kris Monteith, and Steve
Rosenberg from the Wireline Competition Bureau; Matt Collins, Judith Dempsey, Ben Freeman, Garnet
Hanly, Pramesh Jobanputra, Kate Matraves, Sara Mechanic, Murtaza Nasafi, Louis Peraertz, Dana
Shaffer, Don Stockdale, Patrick Sun, Weiren Wang, Joe Wyer, and Morasha Younger from the Wireless
Telecommunications Bureau; Dan Bring, Kevin Green, Chad Guo, Brendan Holland, Jamile Kadre, Kim
Makuch, Jake Riehm, John Scott, Tom Tanasovich, and Andrew Wise from the Media Bureau; Jose
Albuquerque, Peter Alexander, Denise Coca, Ena Dekanic, Stephen Duall, Jerry Duvall, Francis
Gutierrez, Karl Kensinger, Gabrielle Kim, Heidi Kroll, Arthur Lechtman, Kerry Murray, Kelly O’Keefe,
Jim Schlichting, Daniel Shiman, Marilyn Simon, Walt Strack, Tom Sullivan, Lindsay Tello, Tracey
Weisler, and Stacey Wise-Ashton of the International Bureau; Babette Boliek, Eric Burger, Nicholas
Copeland, Evan Kwerel, Paul Lafontaine, Jonathan Levy, Giulia McHenry, and Sean Sullivan from the
former Office of Strategic Planning and Policy Analysis; Walter Johnston, James Miller, Aspasia
Paroutsas, and Rajender Razdan from the Office Engineering and Technology; and Susan Aaron, Deborah
Broderson, Valerie Hill, David Horowitz, Dave Konczal, Keith McCrickard, Royce Sherlock, from the
Office of General Counsel.
12736
Federal Communications Commission
FCC 18-181
STATEMENT OF
COMMISSIONER MICHAEL O’RIELLY
Re:
Communications Marketplace Report, GN Docket No. 18-231; The State of Mobile Wireless
Competition, WT Docket No. 18-203; Status of Competition in the Market for the Delivery of Video
Programming, MB Docket No. 17-214; Status of Competition in the Marketplace for Delivery of Audio
Programming, MB Docket No. 18-227; Satellite Communications Services for the Communications
Marketplace Report, IB Docket No. 18-251.
The 2018 Communications Marketplace Report is a product of Congress’ directive in the 2018
RAY BAUM’S Act to streamline the Commission’s reporting requirements. My primary responsibility
as a Commissioner is to follow statutory authority and I will always be loyal to the will of Congress. In
addition to executing the letter of the law, the new report is a welcome first step in simplifying FCC
assessment of communications competition and deployment and will provide better transparency to
consumers on the state of the market. For instance, the report provides a considerable amount of data to
consider future trend lines and the corresponding impact on end users.
As this is the first installment of the report, my expectations were measured in view of the huge
task, and I applaud staff for the work they have done in a brief time frame. In future years, I hope that
reports won’t be as siloed according to technology and regulatory regime. While the report takes account
of intermodal competition in certain instances, a comprehensive representation of the communications
marketplace would be more helpful if it went further. For example, reports in future years should
recognize increasing competition between mobile and fixed broadband providers, given their
substitutability, as well as disparate burdens faced by regulated entities due to competing with nonregulated entities in the same Internet ecosystem.
12737
Federal Communications Commission
FCC 18-181
STATEMENT OF
COMMISSIONER BRENDAN CARR
Re:
Communications Marketplace Report, GN Docket No. 18-231; The State of Mobile Wireless
Competition, WT Docket No. 18-203; Status of Competition in the Market for the Delivery of Video
Programming, MB Docket No. 17-214; Status of Competition in the Marketplace for Delivery of Audio
Programming, MB Docket No. 18-227; Satellite Communications Services for the Communications
Marketplace Report, IB Docket No. 18-251.
The document we’re voting on today is titled the Communications Marketplace Report. But it’s
really the Commission’s first Report on the Race to 5G.
Today’s Report comes out of the RAY BAUM’S Act, enacted earlier this year. Congress
directed us to consolidate a variety of previously separate reports about previously distinct industries into
one document. Doing so underscores how the many platforms we regulate are now locked in competition
with each other. This only will increase with 5G.
Consider this:
Millennials have learned that through their grandparents’ “rabbit ears” they can get
some of their favorite video content for free over the air. As the Report notes,
broadcast viewership has increased for the last two years, with broadcasters competing
squarely with programming from multiple platforms, including satellite.
Satellite in turn is building a new generation of low earth orbit satellites that can
provide broadband at speeds and latency that compete with wireless.
Wireless offers voice, broadband, and content—and increasingly delivers it to the
home in competition with cable.
And cable is competing to build a fixed and mobile platform to offer broadband and
video services, which will feature content it owns and even creates. That is, cable
competes against broadcast, satellite, wireless, telcos—and even movie studios.
This is not like any competition we’ve seen before. All of these previously siloed industries are
competing to build fast, ubiquitous networks. All of them, from cable to satellite, are converging on 5G
and next-gen networks.
And in that race, there’s good news to report. After broadband investment fell during the final
two years of the last Administration, the key indicators have turned around. Broadband investment is up.
Speeds have increased. Infrastructure deployments have accelerated. And prices have declined. All
great signs for consumers. So I am glad that today’s Report walks through these key indicators in the race
to 5G.
One of the most important steps we’ve taken to stimulate investment and competition is to
streamline the rules governing the physical build out of next-gen and 5G networks. Deploying these
networks is tough work. It’s hard hats and bucket trucks, harnesses and excavators. These 5G jobs are
just as critical as coders and programmers.
So we’ve taken steps to make that work easier. In March, we clarified that environmental and
historic reviews designed for large, 200-foot macro towers no longer apply to the backpack-sized small
cells needed for 5G. That decision already has accelerated broadband build out. One carrier reported that
it’s clearing small cells for construction at six times the pace that it did before, and economists predict it
will lead to 57,000 new small cells.
In September, we established reasonable fee limits and shot clocks for localities’ approval of
small cells. We learned from the 20 states that had passed small cell reform bills, and we modeled our
12738
Federal Communications Commission
FCC 18-181
order on their work. Economists project that this decision will save $2 billion in fees, stimulate $2.4
billion in investment, and provide next-gen coverage for 1.8 million more homes and businesses—97% of
which are in rural and suburban communities.
While the September order doesn’t go into effect until next month, we’re already seeing positive
results. In the last few weeks alone, Boston and Virginia Beach have concluded agreements with carriers
that include shot clocks and fees that mirror those in our order. So by providing clarity, our decision is
helping cities and providers quickly reach agreements that further their shared goals.
In short, these decisions will help 2019 be the Year of 5G. For everyday Americans, this plainly
is a win. It means more competition for fast, affordable broadband. And it means more choices of
content and services riding on top of that platform.
This Race to 5G Report details some of the successful policies that prepared the way for next year
and a path forward for improvement. I want to thank all of the bureaus and offices that worked on this
Report. It was a team effort, and it has my support.
12739
Federal Communications Commission
FCC 18-181
STATEMENT OF
COMMISSIONER JESSICA ROSENWORCEL,
CONCURRING
Re:
Communications Marketplace Report, GN Docket No. 18-231; The State of Mobile Wireless
Competition, WT Docket No. 18-203; Status of Competition in the Market for the Delivery of Video
Programming, MB Docket No. 17-214; Status of Competition in the Marketplace for Delivery of Audio
Programming, MB Docket No. 18-227; Satellite Communications Services for the Communications
Marketplace Report, IB Docket No. 18-251.
Over time at the Federal Communications Commission, we have put together a lot of reports that
are required by Congress. We gather data about the state of competition in the mobile wireless market,
the satellite market, and the video market. We look at the characteristics of each of these different
industry segments, the state of deployment of communications capabilities, and barriers to entry. We dig
deep into facts about broadband, compiling statistics about availability and speed. In some cases, we take
what we learn and benchmark it against what other countries are doing.
Make no mistake—all of this activity is important. The reports that are carefully crafted in our
halls become useful evidence for decisions about merger approvals, ongoing regulatory initiatives, and
even new legislation. So they not only inform our work, but the work of Congress and other expert
agencies like the Department of Justice and the Federal Trade Commission. And for every day
consumers, they might be the only source of public data about the state of the industry.
This year we’re doing things a little bit differently. That’s because Congress has asked us to
consolidate much of our reporting activity into a single, comprehensive report. For the first time, we are
taking virtually everything we know about the communications marketplace and making it available in
one place. I thank our staff at the agency for its effort in response to this Herculean task. It does the job
we were assigned to do.
But I think this new reporting model offers a bigger opportunity—and we should seize it. We
should be taking steps now to ensure that this first report provides us with a solid going-forward
analytical basis for the communications market of tomorrow. One that provides data and facts that can be
better absorbed, organized, and used to make smart laws and policy for the future. Because this is the
kind of information we need if we want to have a thriving communications sector and a resilient
democracy in the 21st century.
I fear, however, that today’s report is letting that opportunity pass us by. Let me explain.
First, in each of the sections of this document there is something about the analysis that feels old
and stale. The individual reports tell us a bit about where we are but nothing about where we are going.
Take the wireless report, for starters. Reading it, you would have no idea that the industry is in the
middle of a transformative change to next-generation networks, technologies, and services. Or that there
is pending before this agency a request to combine the third and fourth largest wireless service providers.
And despite combining this year’s wireless report with the reports on fixed broadband, video, and
satellite, you will find not a thing about the future of convergence. In other words, we only have a
backward-looking story.
The FCC should be using this new format to stop thinking so narrowly—especially about our
wireless markets. Going forward wireless is much more than the sum total of the phones in our palms,
pockets, and purses. Instead, we will have connectivity coming to cars and homes, powering our smart
cities, and informing data analytics in powerful ways that can make us more efficient and effective in so
many sectors throughout the economy. I am weary of reports that fail to see this future—because the
market is bigger and bolder than what gets reported on in the here and now.
12740
Federal Communications Commission
FCC 18-181
Second, this report doubles down on data we know is flawed, and in some cases just plain wrong.
That’s because we continue to rely on third parties to provide us with a lot of the information you’ll find
in this report. I think that—as the expert agency—we should be gathering this data ourselves or at the
very least validating or qualifying it before we pass it along to Congress to inform their decision-making.
As I’ve suggested elsewhere, this agency needs to be more creative about gathering data and needs to
explore the power of crowdsourcing to inform our work. Why not start with a broad effort to engage the
American public in developing a broadband and wireless map, for instance? It’s time to embrace the
wisdom of the crowd and not just rely on the same-old, same-old industry-supported tools in our toolbox.
Third, today’s report fails to build on good progress this agency has made over the course of
previous reports. In fact, it reverses course by cutting out important data that we previously made
available. Our video reports used to discuss how broadband deployment and provider practices such as
data caps and zero rating alter consumer video viewing habits. That is gone. Our wireless reports used to
discuss the entire mobile wireless ecosystem, including input markets like towers and backhaul and
output markets like mobile applications and content. That, too, is gone. We may have a slightly shorter
report, but we miss the bigger picture and the lessons to be gleaned from it.
Finally, this report should not ignore some of the hard facts that are coming to light in other
recently available data. Wireless market concentration, as measured by the Herfindahl-Hirshman Index,
is at an all-time high. According to new study, American consumers are paying some of the highest
prices for mobile data anywhere in the developed world. Almost 20 million Americans still do not have
access to broadband and, according to recent reports, more than 160 million Americans are not using it.
The rural divide is as pronounced as ever with one in four rural Americans lacking access to high-speed
broadband compared with just one-and-a-half percent of urban Americans. Plus, the FCC’s official
maps—which are supposed to tell us where broadband and wireless service does and does not exist—
have major inaccuracies in them.
We have real work to do—not just in updating our reporting for tomorrow’s communications
marketplace, but in learning from it. For that reason, I concur.
12741
Federal Communications Commission
Index of Appendices
A. Mobile Wireless Market Appendices
B. Video and Audio Market Appendices
C. Fixed Communications Market Appendices
D. Broadband Deployment Appendices
E. International Broadband Data Report Appendices
F. Measuring Broadband America Appendices
The Appendices listed above are available online at:
https://docs.fcc.gov/public/attachments/FCC-18-181A6.pdf
https://docs.fcc.gov/public/attachments/FCC-18-181A7.pdf
https://docs.fcc.gov/public/attachments/FCC-18-181A8.pdf
https://docs.fcc.gov/public/attachments/FCC-18-181A9.pdf
https://docs.fcc.gov/public/attachments/FCC-18-181A10.pdf
https://docs.fcc.gov/public/attachments/FCC-18-181A11.pdf
12742
FCC 18-181
| File Type | application/pdf |
| File Modified | 2019-05-28 |
| File Created | 2019-05-28 |