BEFORE THE
NATIONAL TELECOMMUNICATIONS
AND INFORMATION ADMINISTRATION
Washington, DC
In the Matter of )
)
Request for Comments on Deployment )
of Broadband Networks and ) Docket No. 011109273-1273-01
Advanced Telecommunications )
)
COMMENTS OF THE
NATIONAL RURAL TELECOMMUNICATIONS COOPERATIVE
The National Rural Telecommunications
Cooperative (NRTC) is pleased to submit these
comments in response to the Notice issued by the National Telecommunications and
Information Administration (NTIA) seeking input on a wide range of issues
related to broadband deployment throughout the United States.
- Summary
- While NRTC is encouraged by the steady deployment of broadband services
in rural America, we support the NTIA’s efforts to articulate a national
goal of universal broadband access, similar to those implemented for
universal electrification and telephone service. Such a policy – currently
being encouraged by the Federal Communications Commission (FCC) – would
ensure access to critical broadband services for all Americans, regardless
of location.
- To achieve widespread deployment of broadband services, the NTIA should
promote facilities-based competition. A multitude of competitive providers
throughout the country will best ensure universal access to broadband.
- To facilitate this goal, the FCC’s regulatory definitions should be
revised. For example, the two currently competitive Ku-band Internet
services meet the FCC’s definition of "advanced services" (i.e.
capable of delivering transmission speeds in excess of 200 kbps in at
least one direction). Pending legislation and many rural broadband
support programs, however, ignore this definition and rely solely on the
FCC’s more restrictive definition of "advanced telecommunications
capability" (i.e., infrastructure capable of delivering a speed in
excess of 200 kbps in each direction). These different, inconsistent
definitions have impaired the development of a uniform national policy on
broadband and have limited the availability of funding for some high-speed
services.
- FCC Chairman Michael K. Powell recently expressed his interest in
adopting less rigid definitions of broadband that focus on general
functionality rather than on specific characteristics of speed or
technology. We agree that rigid definitions are inappropriate. The NTIA
should urge the FCC to revise its current definitions in order to encourage
the growth of packet-switched Internet technologies, which are
faster-than-dial-up, during the transition to higher speed, more competitive
services.
- Background.
- NRTC is a not-for-profit cooperative comprised of 684 rural electric
cooperatives, 124 rural telephone cooperatives, 184 independent rural
telephone companies and affiliates located throughout 46 states. NRTC’s
mission is to assist its members in providing advanced telecommunications
technologies to rural America. NRTC has long been a provider of
satellite-delivered multichannel video programming services to rural
households, beginning with C-band programming services and continuing today
as a distributor of DIRECTV direct broadcast satellite (DBS) programming.
NRTC’s members and affiliates currently provide DIRECTV service to more than
1.8 million DBS subscribers.
- Bandwidth to support broadband communications has become a key
telecommunications priority for rural America. This past year, NRTC entered
into agreements with the two currently competing Ku-band Internet carriers –
Hughes Network Systems, Inc. (HNS) and EchoStar’s StarBand Communications –
to distribute high-speed service via satellite to subscribers throughout
rural America. Recently, some NRTC members have begun to offer HNS’s
DIRECWAY and EchoStar’s StarBand services in various rural areas through
NRTC’s "TrueBand High-Speed Internet" (HSI) program.
- The NTIA Should Adopt a Goal of "Access For All" to Broadband Services.
- The impact of broadband services on the economic and social well-being
of the United States cannot be overstated. Without access to broadband
services, persons living in rural areas are unable to compete on the same
level as urban Americans. The NTIA recgonized the importance of broadband
services to rural America, when it stated in a joint report with the
Department of Agriculture’s Rural Utilities Service (RUS) that "the rate of
deployment of broadband services will be key to the future economic growth
of every region, particularly in rural areas that can benefit from
high-speed connections to urban and world markets."
- This goal of universal access to broadband services is one strongly
championed by FCC’s Chairman Powell. In a recent interview, Chairman Powell
stated his belief that a "principal objective" for broadband policy should
be the "commit[ment] to achieving universal availability of broadband."
- A recent survey by the National Telephone Cooperative Association (NTCA)
illustrates overwhelming support of the Chairman’s view. NTCA is a national
association of approximately 540 local exchange carriers in 44 states
providing service primarily in rural areas. All NTCA members are small
carriers that are "rural telephone companies" as defined in the
Telecommunications Act of 1996. Population density in most member service
areas is in the range of 1 to 5 customers per square mile. In its report,
NTCA noted that virtually all survey respondents recognize the importance of
broadband to their future business development.
- High-speed, interactive tools are exactly what rural communities need to
promote economic development. The NTIA previously concluded that rural areas
are lagging behind central cities and urban areas in broadband penetration.
Despite higher penetration rates in urban areas, NRTC remains optimistic
about the availability and growth of various technologies for rural
consumers to achieve access to broadband services. The source of this
optimism is the current availability of two competitive Ku-band broadband
satellite services and – more importantly – the promising advent of a
multitude of Ka-band competitors.
- NRTC’s members currently distribute two competing Ku-band high-speed
satellite Internet services: EchoStar’s StarBand Communications, Inc., and
HNS’s DIRECWAY. Rural subscribers today can access streaming video over
Ku-band satellite Internet services at data rates up to 400 kbps downstream,
which provides significantly superior quality when compared to streaming
media from dial-up or ISDN lines. In addition, rural viewers can receive
combined DBS video and High-Speed satellite Internet services over the same
dish.
- Even more promising, however, are the next-generation Ka-band
technologies that promise to offer video/broadband capabilities at much
faster speeds. Within the last few years, twenty-one Ka-band licensees have
been authorized by the FCC to provide a wide variety of broadband
interactive, video and Internet services to all areas of the United States,
including under-served and rural areas. Continually improving upstream
speeds in the Ka-band, compared to 128 kbps for current Ku-band systems,
should promote the deployment of satellite broadband services throughout the
country.
- While satellite technology is the most effective way to reach remote
areas of the country, we recognize that landline technologies will compete
with satellite Internet/video in some rural areas. Several Silicon Valley
companies and other technology developers worldwide already offer IP-based
digital head end systems that may support combined
video-on-demand/High-Speed Internet services over broadband copper, fiber
and hybrid fiber coaxial infrastructures.
- NRTC believes that a multifaceted competitive approach will best ensure
that rural Americans are fully served. The NTIA has advocated this same
principle of diversity in facilities-based providers, finding that "there is
probably not one technological ‘silver bullet.’ Providing broadband service
to rural America will likely require a combination of . . . technologies."
NRTC also agrees with the NTIA’s conclusion that "competition can accelerate
the diffusion of broadband applications."
- To achieve widespread deployment of broadband services, the NTIA should
promote facilities-based competition. A multitude of competitive providers
throughout the country will best ensure universal access to
broadband.
- The NTIA Should Encourage the FCC to Revise the Definition of Broadband to
Include Services Capable of Delivering Transmission Speeds of 200 Kbps or
Greater in Either Direction.
- While NRTC is encouraged by the extent of broadband technologies
available today – and on the horizon – current regulatory definitions may
inadvertently hinder their deployment. The FCC’s definitions of "advanced
telecommunications capability" (more than 200 kbps in each direction) and
"advanced services" (more than 200 kbps in at least one direction) are
important benchmarks that Congress and federal agencies often use to define
"broadband."
- Although the FCC has established its own definitions of broadband, in a
recent speech to the National Summit on Broadband Deployment, Chairman
Powell stated that a "uniformly accepted definition evades us." The
FCC’s inability to date to establish a uniformly accepted definition has
adversely affected the development of policies to promote advanced services.
- For example, the RUS uses the FCC’s definition of advanced
telecommunications capability in administrating a loan guarantee program for
rural telecommunications companies deploying high-speed Internet services.
On the other hand, some pending legislation specifies no upstream minimum,
while other legislation defines broadband by setting specific transmission
rates.
- The currently competing Ku-band services, DIRECWAY and StarBand, meet
the definition of advanced service but may not meet the FCC/RUS definition
of advanced telecommunications capability. Where available, digital
subscriber line (DSL) services also may not qualify for RUS support under
the current eligibility requirements.
- Although providing service to rural customers poses numerous challenges
(population density, terrain, etc.), respondents to NTCA’s membership survey
indicated that they have made impressive progress toward the FCC’s call for
ubiquitous advanced services in all regions of the country. Sixty percent of
respondents’ residential customers were able to order at least 200 kbps
downstream data from their provider, thereby meeting the advanced services’
one-way requirement.
- While virtually all of the NTCA survey respondents acknowledged the
importance of broadband technology to their future business development,
several cited the lack of affordable loans for "last-mile" customers as a
significant hindrance. In fact, sixty-three percent of the respondents cited
the cost of deployment as the major barrier to offering broadband service in
their telephone service area.
- It is imperative that government policies and funding decisions promote
facilities-based competition to solve these types of problems. The NTIA
should clarify as a matter of national policy that speed is important, but
not of paramount importance in defining broadband services. In the coming
years, as a result of competition from a multitude of new Ka-band satellite
providers, data rates will exceed 200 kbps in both directions. Meanwhile, we
need an opportunity to transition smoothly from the existing Ku-band and
other broadband services.
- Current Generation Technologies Offer the Smooth Transition to Packet
Switching and an Opportunity to Gain Experience With Rural Broadband
Businesses.
- The Notice asks about specific problems encountered with respect to the
deployment of broadband services via satellite. In their efforts to
establish Ku-band satellite service, NRTC and its members are gathering
valuable experience and finding innovative ways to improve their service
offerings. As of today, NRTC members in 26 states offer HSI. More members
are considering the product in additional states.
- Many aspects of the rural high-speed satellite Internet business –
installation, service contracts, warranties, distribution agreements, and
equipment delivery procedures – require new approaches as we ask rural
America to explore this new service. Our experience to date is informative.
- For example, service installation and authorization is proving to be one
of the most complex aspects of the satellite Internet business. The
installer must adjust the dish to an exact position in order to receive data
streams from the Ku-band satellites. The task, therefore, requires a
professional installer. NRTC’s HSI members must find ways to recruit and
train installers quickly in order to serve consumers scattered over large
geographic areas. Within a few weeks of launching its DIRECWAY business in
August 2001, one NRTC member, 3 Rivers Telecommunications ("3 Rivers") in
Fairfield, Montana, found a way to build and deploy a force of 40 trained
installers throughout the state.
- The West Florida Electric Cooperative ("West Florida"), located on
Florida’s Panhandle, deployed DIRECWAY satellite Internet services over an
area even greater than 3 Rivers’. Upon completing NRTC’s HSI training, West
Florida’s manager of Internet services crafted a distance learning solution
for a religious organization with private schools located throughout the
country. Today, West Florida has 20 satellite Internet sites installed, and
about half of them are in small town schools throughout the nation.
- Rural providers offering Ku-band services are pioneering the satellite
Internet business. They are dealing with the problems facing satellite
Internet providers in rural America and are establishing business models
that will be field-tested and expanded to include the Ka-band carriers of
the future. In the meantime, they are delivering high-speed services where
the demand exists today.
- Conclusion.
- The NTIA can promote its goal of universal broadband access through
fostering competitive broadband services from a multitude of providers.
Currently competing Ku-band satellite providers are offering the first step
in the provision of broadband services to rural America, while a host of
competitive satellite Internet carriers may soon be able to operate with
greater bandwidths via Ka-band satellites. If a multitude of Ka-band
providers emerge, rural homes could gain access to new high-speed services
even before some urban areas have access to extensive fiber networks, fixed
wireless or mobile networks.
- Over time, new services are expected to perform well in excess of the
FCC’s current definition of "advanced telecommunications capability." Unless
and until competitive services are readily available in rural areas,
however, NRTC urges the NTIA to abandon rigid definitions of broadband and
to focus instead on formulating policies that foster facilities-based
broadband competition from a multitude of providers.
Respectfully Submitted,
Steven T. Berman, Senior Vice President
Business Affairs and General Counsel
Adam D. Schwartz, Vice President
External Affairs
NATIONAL RURAL TELECOMMUNICATIONS
COOPERATIVE
2121 Cooperative Way, Suite 500
Herndon, VA 20171
_____________________________
By: Jack Richards
Kevin G. Rupy
Keller and Heckman LLP
1001 G Street, NW
Washington, D.C. 20001
December 19, 2001