So you thought the Verizon forbearance news was over with last week's FCC decision to reject Verizon's latest forbearance petition? Verizon lost that round, but they had actually won a prior forbearance petition in early 2006, and a federal appeals court upheld that win for Verizon on Friday. It turns out that Qwest and Sprint Nextel were jealous that Verizon had won a little bit of forbearance, while Qwest and Sprint had none, so they did the American thing...if you can't beat them, sue them.
Actually, Qwest and Sprint didn't sue Verizon...they appealed to the government to overturn Verizon's old 2006 forbearance win. And the news today is that Qwest and Sprint lost their appeal.
So, this is probably getting kind of confusing. Verizon won some forbearance and lost some other forbearance? How did that happen? And what is this forbearance thing all about, anyway?
Back when congress passed the Telecom Act of 1996, requiring the big incumbent local exchange carriers to sell access to their plant at wholesale prices, congress did what congress does best: they created a loophole. This particular loophole said that if a regulated incumbent thought enough competition had developed in one of their markets, they could petition the FCC for relief from regulation, and that if the FCC didn't act on the petition within a year and 90 days, then the petition was "deemed granted". Kind of like when you sign up for a few free issues of a magazine and forget to cancel it before you have to start paying for it. You forget to act and you're stuck.
That's what happened with that old 2006 Verizon forbearance petition, which was just for regulatory relief on large data services like ATM, frame relay, and optical services. The FCC sat on the petition and sat on the petition without acting on it, and as the deadline neared, they were deadlocked at two votes for the petition and two votes against it. The FCC normally has five commissioners, but the fifth commissioner was pending congressional approval and hadn't been seated yet. Republican Chairman Kevin Martin and Commissioner Deborah Taylor Tate were in favor of granting the petition, while Democratic Commissioners Jonathan Adelstein and Michael Copps were against it.
The deadline came and it suited Martin and Tate just fine, because at the passing of the deadline the petition was deemed granted, and Verizon got regulatory relief, even though Martin and Tate didn't have a majority of the votes needed.
This created a mess, of course. Now, Verizon has regulatory relief on some parts of its business, while none of the other incumbent telcos has the same kind of relief. AT&T, Qwest, and Sprint might be justified in feeling left out of the regulatory relief bonanza.
Verizon, flush with success from the granting of that petition in early 2006 submitted additional forbearance petitions in hopes that they would be granted too.
Meanwhile, Commissioner Robert McDowell was approved by the Senate and was seated in June, 2006. Like Martin and Tate, McDowell is a Republican, but he doesn't always vote with Martin and Tate. Recently, he lined up against Martin on the issue of cable regulation, and on the issue of forbearance petitions, McDowell has usually imposed a higher standard.
Most notably, McDowell has looked for real evidence that an incumbent has lost reasonable market share to competitors as an indicator that a forbearance petition should be approved. Martin has used a lower standard of looking for evidence of the existence of facilities-based competitors, whether or not they have won significant market share, in order to favor approval of a forbearance petition.
Personally, I think McDowell is on the right track, while Martin is not. Sure, you can point to the cable industry as evidence of facilities-based competition in residential telephone service, but two competitors do not make for much price competition. The two giant competitors usually engage in a kind of dugout-to-third-base-coach signing and sign-stealing exercise that amounts to a "I won't cut prices if you won't cut prices" understanding, and consumers are stuck overpaying. All it really takes is for an executive of one of the companies to do an interview where they say something like "We think prices will stabilize here" and the other company gets the message loud and clear, and if nobody cuts prices for a few months after that then they know they got agreement.
And while cable is a facilities-based competitor, they are more formidable in the residential space now than in the business space, so it would be way premature to unregulate the telcos on wholesale T1 and DS3 pricing, which are the products most often purchased by small and medium-sized businesses.
So, the FCC is living with the mess they created by granting Verizon's first big forbearance petition, but not granting very many other petitions after that, and as a result, they have a fractionally unregulated world in which there is not a level playing field. The debate these days is whether to undo the one big Verizon forbearance petition that has already been granted. That's pretty messy, too, since Verizon says they have already signed a few hundred large business customer contracts with the new unregulated pricing.
I think this mess is on Chairman Martin's head. When he allowed the 2006 Verizon forbearance petition to be granted, and on the recent cable regulation issue, he tried to act before he really understood if he had the political support he needed to finish the job.