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DPC2XfXP7  PT6QXP, DUC2XyXU7  pTQX O)0(X}h07  PT6QhP n9B8*X B7  PT6QP B"(!Xm,(7  PT6Q,Pj n9C8*X'C7  xTQXj DPC2X'XP7  xTQXX?xxxX@Xx6X@JQX@Times New Roman (TT)Times New Roman (Bold) (TT)Times New Roman (It) (TT)CG Times (W1)Courier New (TT)CG Times (W1) (Italic)?6?? 2]  E e' ` `  Federal Communications Commission  *xxXFCC 9962  et'______________________________________________________________________________  X (#   e'] Before the x Federal Communications Commission  e'-Washington, D.C. 20554 Đ\ ` `  eH4` `   hhC  e14In the Matter of hhCq)  e 4` `  hhCq)WT Docket No. 9782  e 4Request for ExtensionhhCq)  e 4Of the Commission's hhCq)  e 4Initial NonDelinquency Period forhhCq)pp  e 4C and F Block Installment Paymentsq) ` `  hhC  eb'|  MEMORANDUM OPINION AND ORDER Đ\  e4Adopted: March 25, 1999hhCqppReleased: April 2, 1999  e4By the Commission: Commissioners FurchtgottRoth and Tristani dissenting and ` `  issuing a joint statement.  e41. We have before us petitions for reconsideration ("Petitions") filed by SouthEast Telephone, Inc. ("SouthEast") and Wireless Ventures, Inc. ("Wireless Ventures") (collectively "Petitioners"). They seek review of the Commission's order, released October 29, 1998, denying requests for waiver of the October 29, 1998, deadline for late resumption of installment payments filed by several broadband PCS C and F block licensees, including  e74Petitioners.7 nZ'#X\  P6G; P#эSee In the Matter of Requests for Extension of the Commission's Initial NonDelinquency Period for C  nZx'and F Block Installment Payments, WT Docket No. 9782, Order, FCC 98290 (released October 29, 1998)  nZ@ '("October 29th Order"). On November 30, 1998, Wireless Ventures submitted a filing styled an application for  nZ!'review of a Bureau order, rather than a petition for reconsideration of the Commission's October 29th Order, as procedure mandates. For the purpose of this order, we will treat Wireless Ventures' Application for Review as a  nZ"'petition for reconsideration.#Xj\  P6G;fXP# Additionally, SouthEast filed an Emergency Request for Stay ("Emergency  e 4Request") of the October 29th Order%Xy @ nZ%'#X\  P6G; P#эSouthEast filed both its Petition and Emergency Request on November 4, 1998. SouthEast also submitted a Supplement to Petition for Reconsideration on November 30, 1998, a Second Supplement to Petition  nZ&'for Reconsideration on December 4, 1998 ("Second Supplement"), and a Third Supplement to Petition for"&,''XX&"  nZ'Reconsideration on February 25, 1999 ("Third Supplement"). Pursuant to Section 1.106(f) of the Commission's  nZX'rules, SouthEast's Second Supplement and Third Supplement are untimely. Nevertheless, we will address the  e 4issues they raise.#Xj\  P6G;fXP# % and a Request for Stay of the auction of the licenses"  ,''ee"  e4formerly held by SouthEast.(  nZ'#C\  P6Q P#эSouthEast filed a Request for Stay Or, In the Alternative, For Withdrawal of Markets From Relicensing  nZ'Process on March 11, 1999 ("Request for Stay").#XR"  P7jQfXP#( On November 20, 1998, by Public Notice, we requested  e4comment on SouthEast's Petition.%a nZ'#X\  P6G; P#э"Wireless Telecommunications Bureau Seeks Comment of Petition for Reconsideration," Public Notice,  nZ 'DA 982343 (released November 20, 1998). #Xj\  P6G;fXP#% We received two comments in support of the Petition.5 nZS '#X\  P6G; P#эSee Comments of AirNet Communications Corporation ("AirNet"), filed November 30, 1998, and  nZ 'Comments of DiGiPh PCS, Inc. ("DiGiPh"), filed November 30, 1998.#Xj\  P6G;fXP#5  e4For the reasons stated below, we deny the Petitions and SouthEast's Emergency Request.   e42. Petitions. SouthEast contends that the Commission did not address the specific facts and circumstances that supported SouthEast's request for waiver under the "hard look"  ev4standard set forth in WAIT Radio v. FCC.v  nZ8'#X\  P6G; P#э418 F.2d 1153 (D.C. Cir. 1969) ("WAIT").#x6X@`7X@#ѭ Commenters AirNet and DiGiPH support this  e_4argument._  nZ'#X\  P6G; P#эComments of DiGiPH at 2; Comments of AirNet at 2.#Xj\  P6G;fXP#Ѱ Wireless Ventures argues that the Commission erred in holding that the public  eH4interest would not be harmed by denying its request for waiver.H1 nZ*'#X\  P6G; P#эSee Wireless Ventures' Petition for Reconsideration at 3.#Xj\  P6G;fXP#Ѿ  e 43. We disagree with Petitioners' contentions. At the outset, we note that the court in  e 4WAIT stated that because the "very essence of waiver is the assumed validity of the general  e 4rule; . . . an applicant for waiver faces a high hurdle even at the starting gate."   nZ^'#X\  P6G; P#э418 F.2d at 1157. See BellSouth Corporation and BellSouth Wireless, Inc. v. FCC, No. 971630 (D.C. Cir. January 8, 1999) (upholding Commission denial of a waiver request). The  e 4Commission has repeatedly given a hard look to the facts supporting these requests for  e 4waiver. Indeed, before issuing the October 29th Order, the Commission looked carefully at  e 4the facts of each individual waiver request, including SouthEast's,I   nZq!'#X\  P6G; P#эSee Emergency Request for Temporary Waiver or Suspension of the Automatic Cancellation Provision  nZ9"'of Section 1.2110(f)(4)(iii) of the Commission's Rules, dated October 26, 1998.#Xj\  P6G;fXP#I as well as additional facts  e4submitted by SouthEast.Y Xq nZ$'#X\  P6G; P#эSee Letter to Amy Zoslov, Chief, Auctions and Industry Analysis Division, Wireless Telecommunications Bureau, from Jay N. Lazrus, Myers Keller Communications Law Group, dated October 28,  nZB&'1998.#Xj\  P6G;fXP#Y SouthEast has not provided any new facts to convince us that our" ,''ee" previous decision was wrong.  e44. The Commission's decision in the October 29th Order was clearly contemplated by  e4the C Block Second Report and Order, the C Block Order on Reconsideration of the Second  e4Report and Order and the Election and Payment Date Order, in which the Commission  e4carefully considered all aspects of the installment payment issues raised by Petitioners and  ev4provided restructuring options and a lengthy suspension of installment payments./ @v nZ'#X\  P6G; P#эSee Amendment of the Commission's Rules Regarding Installment Payment Financing For Personal  nZ'Communications Services (PCS) Licensees, WT Docket No. 9782, Second Report and Order, FCC 97342, 12  nZ 'FCC Rcd 16436 (1997) ("C Block Second Report and Order"); Amendment of the Commission's Rules Regarding Installment Payment Financing For Personal Communications Services (PCS) Licensees, WT Docket  nZ 'No. 9782, Order, FCC 9828 (released February 24, 1998) at  2 ("Election and Payment Date Order"); Amendment of the Commission's Rules Regarding Installment Payment Financing for Personal Communications  nZ 'Services (PCS) Licensees, WT Docket No. 9782, Order on Reconsideration of the Second Report and Order, 13  nZg 'FCC Rcd 8345 (1998) ("C Block Order on Reconsideration of the Second Report and Order").#Xj\  P6G;fXP#/ In the C  e_4Block Second Report and Order, the Commission informed the public that it was unlikely to grant waivers of the payment resumption deadlines in light of public interest considerations, particularly as the Commission had already afforded licensees a significant period to raise  e 4capital during the time that installment payments were suspended.   nZ'#X\  P6G; P#э12 FCC Rcd at 16541.#Xj\  P6G;fXP#ѓ We observed in the  e 4October 29th Order that "[i]n formulating, as well as reconsidering, the restructuring options,  e 4the Commission addressed the challenges of raising capital." `  nZ'#X\  P6G; P#эOctober 29th Order at  4.#Xj\  P6G;fXP#Ѣ Acknowledging that access to capital remains an important issue for most C block licensees, including Petitioners, the Commission nonetheless concluded that "a further extension of the nondelinquency period  e 4would only serve to undermine the Commission's enforcement of its payment deadlines."  nZH'#X\  P6G; P#эOctober 29th Order at  5.#Xj\  P6G;fXP#Ѣ Petitioners' requests for waiver were denied not because the Commission failed to give them the hard look they warranted, but rather because the Commission does not agree with Petitioners that further extension of the payment deadline would serve the public interest. 5. Furthermore, we disagree with SouthEast's argument that the Commission's  e4payment rules are unclear and do not necessarily result in the automatic cancellation of  e4licenses for a late installment payment.  nZ7"'#X\  P6G; P#эSouthEast Petition at  13.#Xj\  P6G;fXP#ѝ At the time that SouthEast purchased its licenses, the payment rules provided that a license would cancel following the expiration of any grace  e4period without the successful resumption of payment or upon default with no grace period. nZ%'#X\  P6G; P#э47 C.F.R.  1.2110(e)(4)(iii) (1996).#Xj\  P6G;fXP#Ѩ  e4The C Block Order on Reconsideration of the Second Report and Order amended the rules to",''ee" provide that a payment made "more than ninety (90) days" after the resumption payment due  e4date would be deemed a default on the part of the C or F block licensee. nZb'#X\  P6G; P#эC Block Order on Reconsideration of the Second Report and Order, 13 FCC Rcd at 8354.#Xj\  P6G;fXP# In a Public  e4Notice, released April 17, 1998, the Wireless Telecommunications Bureau ("Bureau") stated that licensees that failed to meet the July 31, 1998, payment resumption deadline could  e4submit their payment on or before October 29, 1998, without being considered delinquent, if  e4they timely pay a five percent late payment fee.X nZ'#X\  P6G; P#эSee "Wireless Telecommunications Bureau Announces June 8, 1998 Election Date for Broadband PCS C  nZ^ 'Block Licensees," Public Notice, DA 98741 (released April 17, 1998). #X\  P6G; P#See also 47 C.F.R.  1.2110(f)(4)(iii).#Xj\  P6G;fXP#Ѥ Most recently, the Bureau reiterated this policy in a Public Notice, dated September 18, 1998, in which it stated that licensees that miss the late payment deadline shall be in default and their licenses shall automatically  eH4cancel.H nZ '#X\  P6G; P#эSee Public Notice, DA 981897 (released September 18, 1998).#Xj\  P6G;fXP# Contrary to its contentions, SouthEast was well aware that its licenses would cancel automatically if it failed to make full payment of amounts due on October 29, 1998, and  e 4cannot claim that the rules do not operate as a matter of law to effectuate automatic cancellation.  e 46. In denying Petitioners' requests, we reject SouthEast's argument that grant of its  e 4waiver request would be consistent with the TEMCG decision, @ e4#X\  P6G; P#эSee Third Supplement#Xj\  P6G;fXP#. in which the Bureau granted  e 4Specialized Mobile Radio (SMR) licensee TEMCG's request for waiver of 47 C.F.R.   e490.812, which governs installment payments for 900 MHz SMR licensees.& nZ2'#X\  P6G; P#эSee Letter to Lloyd W. Coward, Esq., from Thomas J. Sugrue, Chief, Wireless Telecommunications  nZ'Bureau, DA 99258 (released January 29, 1999).#Xj\  P6G;fXP#& In that case, as a result of an administrative oversight, the Bureau accepted late payment of several installments and timely payment of subsequent installments from TEMCG, constructively waiving the deadlines for the late regularly scheduled payments. In contrast, after clearly stating its intention not to extend the October 29, 1998 late payment deadline, the Commission expressly refused to grant Petitioners' waiver requests. Thus, unlike the TEMCG case, the Commission has committed no act that could reasonably be construed as constructively waiving the applicable October 29, 1998, late payment deadline, obviating the need to grant a waiver in this instance. Therefore, we declined to grant SouthEast's waiver on the merits of its case,  e4and the TEMCG decision is inapposite.  e47. Lastly, SouthEast contends that application of the Commission's rules on late  e|4installment payments and resumption payments|I  nZv%'#B7  PT6Q P#э47 C.F.R.  1.2110(f)(4)(iii) and 1.2110(f)(4)(iv) (1998).#XP7  PT6QfXP# to SouthEast is retroactive rule making"| ,''ee"  e4prohibited by the Administrative Procedure Act. nZy'#B7  PT6Q P#эSouthEast Petition at  1421; see 5 U.S.C.  551 et seq.#XP7  PT6QfXP# More specifically, SouthEast claims that the  e4Commission's elimination of the provisions for grace period requests under former Section  e41.2110(e)= X nZ'#B7  PT6Q P#э47 C.F.R.  1.2110(e)(4) (1997). See Amendment of Part 1 of the Commission's Rules Competitive Bidding, Allocation of Spectrum Below 5 GHz Transferred from Federal Government Use, 46604685 MHz, WT  nZk'Docket 9782, ET Docket No. 9432, Third Report and Order and Second Further Notice of Proposed Rule  nZ3'Making, 13 FCC Rcd 374, 43642, 106113 ("Part 1 Third Report and Order").#XP7  PT6QfXP#= impaired SouthEast's rights with respect to its previously established installment  e4payment obligations. AirNet supports this contention.@ nZ '#B7  PT6Q P#эComments of AirNet at 3.#XP7  PT6QfXP#ї In effect, SouthEast is requesting  e4reconsideration of the Part 1 Third Report and Order, which was the Order in which the  e4Commission eliminated the grace period provisions. This request is untimely. nZ'#B7  PT6Q P#эSee 47 C.F.R.  1.429(d).#XP7  PT6QfXP#ѡ Nevertheless,  ev4timely filed petitions for reconsideration of the Part 1 Third Report and Order raising this  e_4issue are pending before the Commission._`  nZp'#B7  PT6Q P#эSee 63 Fed. Reg. 9793 (1998).#XP7  PT6QfXP#Ѣ  e148. Requests for Stay. SouthEast bases its Emergency Request and its Request for  e 4Stay on the four prong test for issuance of a stay set forth in Virginia Petroleum Jobbers  e 4Ass'n v. FPC,  nZ'#X\  P6G; P#э259 F.2d 921 (D.C.Cir. 1958) ("Virginia Petroleum").#Xj\  P6G;fXP#ѹ as modified in Washington Metropolitan Area Transit Comm'n v. Holiday  e 4Tours, Inc.  nZ'#X\  P6G; P#э559 F.2d 841 (D.C. Cir. 1977) ("Washington Metropolitan").#Xj\  P6G;fXP#ѿ Under this test, a stay is warranted if the movant can demonstrate that: (1) it is likely to prevail on the merits; (2) it will suffer irreparable harm absent a stay; (3) interested parties will not be harmed if the stay is granted; and (4) the public interest would favor a grant of the stay. Upon examination of the Emergency Request and the Request for Stay, we  e4find that SouthEast's arguments fail to meet the standards set forth in Virginia Petroleum and  ey4Washington Metropolitan.y nZ:'#X\  P6G; P#эOn October 28, 1998, SouthEast filed an Emergency Petition for Stay of the payment resumption  nZ 'deadline in the U.S. Court of Appeals for the D.C. Circuit.  The court denied the request on October 28, 1998.  nZ 'See SouthEast Telephone, Inc. v. FCC, No. 981491 (D.C. Cir. October 28, 1998). On October 29, 1998,  nZ!'SouthEast filed an ex parte request for a temporary restraining order ("TRO") in the U.S. District Court for the  nZZ"'Eastern District of Kentucky, which the court granted, but rescinded on November 5, 1998. See SouthEast  nZ"#'Telephone, Inc. v. FCC, No 98-465, Order dissolving TRO (E.D. Ky. Nov. 5, 1998). Subsequently, SouthEast filed an Emergency Petition to Stay Under the all Writs Act of the payment resumption deadline in the U.S.  nZ$'Court of Appeals for the D.C. Circuit, which the court denied on December 4, 1998. See SouthEast Telephone,  nZz%'Inc. v. FCC, No. 981555 (D.C. Cir. December 4, 1998). We note that SouthEast filed as its Second Supplement, copies of submissions made in connection with this last case in the D.C. Circuit. "B&,''XX/&"Ԍ e4ԙ#Xj\  P6G;fXP#ѓ SouthEast bases its contention that it meets the standards for"yy,''ee" issuance of a stay on the expectation that the Commission will grant its Petition. As discussed above, this is not the case. Therefore, SouthEast does not meet the test. 9. Accordingly, IT IS ORDERED that, pursuant to the authority granted in Section 4(i), 303(r), and 309(j) of the Communications Act of 1934, as amended, 47 U.S.C.  154(i), 303(r), and 309(j), the petitions for reconsideration submitted by SouthEast and Wireless Ventures ARE DENIED as provided herein.  eH4 10. IT IS FURTHER ORDERED that SouthEast's Emergency Request IS DENIED.  e 4 11. IT IS FURTHER ORDERED that SouthEast's Request for Stay IS DENIED. ` `  hhCqFEDERAL COMMUNICATIONS COMMISSION ` `  hhCqMagalie Roman Salas ` `  hhCqSecretary