Totah Commc'ns, Inc. v. Fed. Commc'ns Comm'n (In re FCC 11-161. Direct Commc'ns Cedar Valley, LLC)

• Citation: 753 F.3d 1015
• Decision Date: 23 May 2014
• Docket Number: 11–9591,12–9531,12–9534,12–9511,12–9514,11–9597,11–9590,11–9587,11–9581,12–9522,12–9532,Nos. 11–9900,12–9510,12–9575.,12–9513,12–9517,12–9523,11–9592,12–9533,12–9500,11–9585,11–9594,12–9528,12–9520,12–9521,11–9588,12–9524,11–9596,12–9530,11–9595,11–9589,11–9586,s. 11–9900
• Court: United States Courts of Appeals. United States Court of Appeals (10th Circuit)
• Parties: In re FCC 11–161. Direct Communications Cedar Valley, LLC, a Utah limited liability company; Totah Communications, Inc., an Oklahoma corporation; H & B Communications, Inc., a Kansas Corporation; Moundridge Telephone Company, a Kansas corporation; Pioneer Telephone Association, Inc., a Kansas corporation; Twin Valley Telephone, Inc., a Kansas corporation; Pine Telephone Company, Inc., an Oklahoma corporation; Pennsylvania Public Utility Commission; Choctaw Telephone Company; Core Communications, Inc.; National Association Of State Utility Consumer Advocates; National Telecommunications Cooperative Association d/b/a NTCA–The Rural Broadband Association; Cellular South, Inc.; AT & T Inc.; Halo Wireless, Inc.; The Voice on the Net Coalition, Inc.; Public Utilities Commission of Ohio; TW Telecom Inc.; Vermont Public Service Board; Transcom Enhanced Services, Inc.; The State Corporation Commission of the State of Kansas; Centurylink, Inc.; Gila River Indian Community; Gila River Telecommunications, Inc.; Allband Communications Cooperative; North County Communications Corporation; United States Cellular Corporation; PR Wireless, Inc.; Docomo Pacific, Inc.; Nex–Tech Wireless, LLC; Cellular Network Partnership, A Limited Partnership; U.S. Telepacific Corp.; Consolidated Communications Holdings, Inc.; National Association of Regulatory Utility Commissioners; Rural Telephone Service Company, Inc.; Adak Eagle Enterprises LLC; Adams Telephone Cooperative; Alenco Communications, Inc.; Arlington Telephone Company; Bay Springs Telephone Company, Inc.; Big Bend Telephone Company, Inc.; The Blair Telephone Company; Blountsville Telephone LLC; Blue Valley Telecommunications, Inc.; Bluffton Telephone Company, Inc.; BPM, Inc., d/b/a Noxapater Telephone Company; Brantley Telephone Company, Inc.; Brazoria Telephone Company; Brindlee Mountain Telephone LLC; Bruce Telephone Company, Inc.; Buggs Island Telephone Cooperative; Cameron Telephone Company, LLC; Chariton Valley Telephone Corporation; Chequamegon Communications Cooperative, Inc.; Chickamauga Telephone Corporation; Chickasaw Telephone Company; Chippewa County Telephone Company; Citizens Telephone Company; Clear Lake Independent Telephone Company; Comsouth Telecommunications, Inc.; Copper Valley Telephone Cooperative; Cordova Telephone Cooperative; Crockett Telephone Company, Inc.; Darien Telephone Company; Deerfield Farmers' Telephone Company; Delta Telephone Company, Inc.; East Ascension Telephone Company, LLC; Eastern Nebraska Telephone Company; Eastex Telephone Coop., Inc.; Egyptian Telephone Cooperative Association; Elizabeth Telephone Company, LLC; Ellijay Telephone Company; Farmers Telephone Cooperative, Inc.; Flatrock Telephone Coop., Inc.; Franklin Telephone Company, Inc.; Fulton Telephone Company, Inc.; Glenwood Telephone Company; Granby Telephone LLC; Hart Telephone Company; Hiawatha Telephone Company; Holway Telephone Company; Home Telephone Company (St.Jacob, Ill.); Home Telephone Company (Moncks Corner, SC); Hopper Telecommunications LLC; Horry Telephone Cooperative, Inc.; Interior Telephone Company; Kaplan Telephone Company, Inc.; KLM Telephone Company; City of Ketchikan, Alaska, d/b/a KPU Telecommunications; Lackawaxen Telecommunications Services, Inc.; Lafourche Telephone Company, LLC; La Harpe Telephone Company, Inc.; Lakeside Telephone Company; Lincolnville Telephone Company; Loretto Telephone Company, Inc.; Madison Telephone Company; Matanuska Telephone Association, Inc.; Mcdonough Telephone Cooperative; MGW Telephone Company, Inc.; Mid Century Cooperative.; Midway Telephone Company; Mid–Maine Telecom LLC; Mound Bayou Telephone & Communications, Inc.; Moundville Telephone Company, Inc.; Mukluk Telephone Company, Inc.; National Telephone of Alabama, Inc.; Ontonagon County Telephone Company; Otelco Mid–Missouri LLC; Otelco Telephone LLC; Panhandle Telephone Cooperative, Inc.; Pembroke Telephone Company, Inc.; Peoples Telephone Co.; Peoples Telephone Company; Piedmont Rural Telephone Cooperative, Inc.; Pine Belt Telephone Company, Inc.; Pine Tree Telephone LLC; Pioneer Telephone Cooperative, Inc.; Poka Lambro Telephone Cooperative, Inc.; Public Service Telephone Company; Ringgold Telephone Company; Roanoke Telephone Company, Inc.; Rock County Telephone Company; Saco River Telephone LLC; Sandhill Telephone Cooperative, Inc.; Shoreham Telephone LLC; The Siskiyou Telephone Company; Sledge Telephone Company; South Canaan Telephone Company; South Central Telephone Association; Star Telephone Company, Inc.; Stayton Cooperative Telephone Company; The North–Eastern Pennsylvania Telephone Company; Tidewater Telecom, Inc.; Tohono O'Odham Utility Authority; Unitel, Inc.; War Telephone LLC; West Carolina Rural Telephone Cooperative, Inc.; West Tennessee Telephone Company, Inc.; West Wisconsin Telcom Cooperative, Inc.; Wiggins Telephone Association; Winnebago Cooperative Telecom Association; Yukon Telephone Co., Inc.; Arizona Corporation Commission; Windstream Corporation; Windstream Communications, Inc., Petitioners, v. Federal Communications Commission; United States of America, Respondents, and Sprint Nextel Corporation; Level 3 Communications, LLC; Centurylink, Inc.; Connecticut Public Utilities Regulatory Authority; Independent Telephone & Telecommunications Alliance; Western Telecommunications Alliance; National Exchange Carrier Association, Inc.; Arlington Telephone Company; The Blair Telephone Company; Cambridge Telephone Company; Clarks Telecommunications Co.; Consolidated Telephone Company; Consolidated Telco, Inc.; Consolidated Telecom, Inc.; The Curtis Telephone Company; Eastern Nebraska Telephone Company; Great Plains Communications, Inc.; K. & M. Telephone Company, Inc.; Nebraska Central Telephone Company; Northeast Nebraska Telephone Company; Rock County Telephone Company; Three River Telco; RCA–The Competitive Carriers Association; Rural Telecommunications Group, Inc.; T–Mobile USA, Inc., Central Texas Telephone Cooperative, Inc.; Venture Communications Cooperative, Inc.; Alpine Communications, LC; Emery Telcom; Peñasco Valley Telephone Cooperative, Inc.; Smart City Telecom; Smithville Communications, Inc.; South Slope Cooperative Telephone Co., Inc.; Spring Grove Communications; Star Telephone Company; 3 Rivers Telephone Cooperative, Inc.; Walnut Telephone Company, Inc.; West River Cooperative Telephone Company, Inc.; Ronan Telephone Company; Hot Springs Telephone Company; Hypercube Telecom, LLC; Virginia State Corporation Commission of the State of Kansas; Montana Public Service Commission; Verizon Wireless; Verizon; AT & T Inc.; Cox Communications, Inc.; National Telecommunications Cooperative Association d/b/a NTCA–The Rural Broadband Association; Independent Telephone & Telecommunications Alliance; National Exchange Carrier Association, Inc. (NECA), Comcast Corporation; Vonage Holdings Corporation; Rural Telecommunications Group, Inc.; National Cable & Telecommunications Association; Central Texas Telephone Cooperative, Inc.; Venture Communications Cooperative, Inc.; Alpine Communications, LC; Emery Telcom; Peñasco Valley Telephone Cooperative, Inc.; Smart City Telecom; Smithville Communications, Inc.; South Slope Cooperative Telephone Co., Inc.; Spring Grove Communications; Star Telephone Company; 3 Rivers Telephone Cooperative, Inc.; Walnut Telephone Company, Inc.; West River Cooperative Telephone Company, Inc.; Ronan Telephone Company; Hot Springs Telephone Company; Hypercube Telecom, LLC, Intervenors. State Members of the Federal–State Joint Board on Universal Service, Amicus Curiae.

753 F.3d 1015

In re FCC 11–161.
Direct Communications Cedar Valley, LLC, a Utah limited liability company; Totah Communications, Inc., an Oklahoma corporation; H & B Communications, Inc., a Kansas Corporation; Moundridge Telephone Company, a Kansas corporation; Pioneer Telephone Association, Inc., a Kansas corporation; Twin Valley Telephone, Inc., a Kansas corporation; Pine Telephone Company, Inc., an Oklahoma corporation; Pennsylvania Public Utility Commission; Choctaw Telephone Company; Core Communications, Inc.; National Association Of State Utility Consumer Advocates; National Telecommunications Cooperative Association d/b/a NTCA–The Rural Broadband Association; Cellular South, Inc.; AT & T Inc.; Halo Wireless, Inc.; The Voice on the Net Coalition, Inc.; Public Utilities Commission of Ohio; TW Telecom Inc.; Vermont Public Service Board; Transcom Enhanced Services, Inc.; The State Corporation Commission of the State of Kansas; Centurylink, Inc.; Gila River Indian Community; Gila River Telecommunications, Inc.; Allband Communications Cooperative; North County Communications Corporation; United States Cellular Corporation; PR Wireless, Inc.; Docomo Pacific, Inc.; Nex–Tech Wireless, LLC; Cellular Network Partnership, A Limited Partnership; U.S. Telepacific Corp.; Consolidated Communications Holdings, Inc.; National Association of Regulatory Utility Commissioners; Rural Telephone Service Company, Inc.; Adak Eagle Enterprises LLC; Adams Telephone Cooperative; Alenco Communications, Inc.; Arlington Telephone Company; Bay Springs Telephone Company, Inc.; Big Bend Telephone Company, Inc.; The Blair Telephone Company; Blountsville Telephone LLC; Blue Valley Telecommunications, Inc.; Bluffton Telephone Company, Inc.; BPM, Inc., d/b/a Noxapater Telephone Company; Brantley Telephone Company, Inc.; Brazoria Telephone Company; Brindlee Mountain Telephone LLC; Bruce Telephone Company, Inc.; Buggs Island Telephone Cooperative; Cameron Telephone Company, LLC; Chariton Valley Telephone Corporation; Chequamegon Communications Cooperative, Inc.; Chickamauga Telephone Corporation; Chickasaw Telephone Company; Chippewa County Telephone Company; Citizens Telephone Company; Clear Lake Independent Telephone Company; Comsouth Telecommunications, Inc.; Copper Valley Telephone Cooperative; Cordova Telephone Cooperative; Crockett Telephone Company, Inc.; Darien Telephone Company; Deerfield Farmers' Telephone Company; Delta Telephone Company, Inc.; East Ascension Telephone Company, LLC; Eastern Nebraska Telephone Company; Eastex Telephone Coop., Inc.; Egyptian Telephone Cooperative Association; Elizabeth Telephone Company, LLC; Ellijay Telephone Company; Farmers Telephone Cooperative, Inc.; Flatrock Telephone Coop., Inc.; Franklin Telephone Company, Inc.; Fulton Telephone Company, Inc.; Glenwood Telephone Company; Granby Telephone LLC; Hart Telephone Company; Hiawatha Telephone Company; Holway Telephone Company; Home Telephone Company (St.Jacob, Ill.); Home Telephone Company (Moncks Corner, SC); Hopper Telecommunications LLC; Horry Telephone Cooperative, Inc.; Interior Telephone Company; Kaplan Telephone Company, Inc.; KLM Telephone Company; City of Ketchikan, Alaska, d/b/a KPU Telecommunications; Lackawaxen Telecommunications Services, Inc.; Lafourche Telephone Company, LLC; La Harpe Telephone Company, Inc.; Lakeside Telephone Company; Lincolnville Telephone Company; Loretto Telephone Company, Inc.; Madison Telephone Company; Matanuska Telephone Association, Inc.; Mcdonough Telephone Cooperative; MGW Telephone Company, Inc.; Mid Century Cooperative.; Midway Telephone Company; Mid–Maine Telecom LLC; Mound Bayou Telephone & Communications, Inc.; Moundville Telephone Company, Inc.; Mukluk Telephone Company, Inc.; National Telephone of Alabama, Inc.; Ontonagon County Telephone Company; Otelco Mid–Missouri LLC; Otelco Telephone LLC; Panhandle Telephone Cooperative, Inc.; Pembroke Telephone Company, Inc.; Peoples Telephone Co.; Peoples Telephone Company; Piedmont Rural Telephone Cooperative, Inc.; Pine Belt Telephone Company, Inc.; Pine Tree Telephone LLC; Pioneer Telephone Cooperative, Inc.; Poka Lambro Telephone Cooperative, Inc.; Public Service Telephone Company; Ringgold Telephone Company; Roanoke Telephone Company, Inc.; Rock County Telephone Company; Saco River Telephone LLC; Sandhill Telephone Cooperative, Inc.; Shoreham Telephone LLC; The Siskiyou Telephone Company; Sledge Telephone Company; South Canaan Telephone Company; South Central Telephone Association; Star Telephone Company, Inc.; Stayton Cooperative Telephone Company; The North–Eastern Pennsylvania Telephone Company; Tidewater Telecom, Inc.; Tohono O'Odham Utility Authority; Unitel, Inc.; War Telephone LLC; West Carolina Rural Telephone Cooperative, Inc.; West Tennessee Telephone Company, Inc.; West Wisconsin Telcom Cooperative, Inc.; Wiggins Telephone Association; Winnebago Cooperative Telecom Association; Yukon Telephone Co., Inc.; Arizona Corporation Commission; Windstream Corporation; Windstream Communications, Inc., Petitioners,
v.
Federal Communications Commission; United States of America, Respondents,
and
Sprint Nextel Corporation; Level 3 Communications, LLC; Centurylink, Inc.; Connecticut Public Utilities Regulatory Authority; Independent Telephone & Telecommunications Alliance; Western Telecommunications Alliance; National Exchange Carrier Association, Inc.; Arlington Telephone Company; The Blair Telephone Company; Cambridge Telephone Company; Clarks Telecommunications Co.; Consolidated Telephone Company; Consolidated Telco, Inc.; Consolidated Telecom, Inc.; The Curtis Telephone Company; Eastern Nebraska Telephone Company; Great Plains Communications, Inc.; K. & M. Telephone Company, Inc.; Nebraska Central Telephone Company; Northeast Nebraska Telephone Company; Rock County Telephone Company; Three River Telco; RCA–The Competitive Carriers Association; Rural Telecommunications Group, Inc.; T–Mobile USA, Inc., Central Texas Telephone Cooperative, Inc.; Venture Communications Cooperative, Inc.; Alpine Communications, LC; Emery Telcom; Peñasco Valley Telephone Cooperative, Inc.; Smart City Telecom; Smithville Communications, Inc.; South Slope Cooperative Telephone Co., Inc.; Spring Grove Communications; Star Telephone Company; 3 Rivers Telephone Cooperative, Inc.; Walnut Telephone Company, Inc.; West River Cooperative Telephone Company, Inc.; Ronan Telephone Company; Hot Springs Telephone Company; Hypercube Telecom, LLC; Virginia State Corporation Commission of the State of Kansas; Montana Public Service Commission; Verizon Wireless; Verizon; AT & T Inc.; Cox Communications, Inc.; National Telecommunications Cooperative Association d/b/a NTCA–The Rural Broadband Association; Independent Telephone & Telecommunications Alliance; National Exchange Carrier Association, Inc. (NECA), Comcast Corporation; Vonage Holdings Corporation; Rural Telecommunications Group, Inc.; National Cable & Telecommunications Association; Central Texas Telephone Cooperative, Inc.; Venture Communications Cooperative, Inc.; Alpine Communications, LC; Emery Telcom; Peñasco Valley Telephone Cooperative, Inc.; Smart City Telecom; Smithville Communications, Inc.; South Slope Cooperative Telephone Co., Inc.; Spring Grove Communications; Star Telephone Company; 3 Rivers Telephone Cooperative, Inc.; Walnut Telephone Company, Inc.; West River Cooperative Telephone Company, Inc.; Ronan Telephone Company; Hot Springs Telephone Company; Hypercube Telecom, LLC, Intervenors.
State Members of the Federal–State Joint Board on Universal Service, Amicus Curiae.

Nos. 11–9900, 11–9581, 11–9585, 11–9586, 11–9587, 11–9588, 11–9589, 11–9590, 11–9591, 11–9592, 11–9594, 11–9595, 11–9596, 11–9597, 12–9500, 12–9510, 12–9511, 12–9513, 12–9514, 12–9517, 12–9520, 12–9521, 12–9522, 12–9523, 12–9524, 12–9528, 12–9530, 12–9531, 12–9532, 12–9533, 12–9534, 12–9575.

United States Court of Appeals,
Tenth Circuit.

May 23, 2014.

[753 F.3d 1026]

James Bradford Ramsay, National Association of Regulatory Utility Commissioners, Washington, D.C., Russell Blau, Bingham McCutchen LLP, Washington, D.C., Robert Allen Long, Jr., Covington & Burling, Washington, D.C., Michael B. Wallace, Wise Carter Child & Caraway, Jackson, MS, Pratik A. Shah, Akin Gump Strauss Hauer & Feld LLP, Washington, D.C., Russell Lukas, Lukas, Nace, Gutierrez & Sachs, LLP, McLean, VA, Joseph K. Witmer, Pennsylvania Public Utility Commission, Harrisburg, PA, Christopher F. Van de Verg, Annapolis, MD, Lucas M. Walker, MoloLamken, Washington, D.C., Don L. Keskey, Public Law Resource Center PLLC, Lansing, MI, Harvey Reiter, Stinson Leonard Street LLP, Washington, David Bergmann, Columbus, OH, E. Ashton Johnston, Communications Law Counsel, P.C., Washington, D.C., Heather M. Zachary, Wilmer Cutler Pickering Hale and Dorr LLP, Washington, D.C., and W. Scott McCollough, McCollough Henry, Austin, TX, Argued for Petitioners.

Richard K. Welch, James M. Carr, and Maureen Katherine Flood, Federal Communications Commission, Washington, D.C., Argued for Respondents.

Scott H. Angstreich, Kellogg, Huber, Hansen, Todd, Evans & Figel, P.L.L.C., Washington, D.C., Howard J. Symons, Mintz, Levin, Cohn, Ferris, Glovsky & Popeo, P.C., and Samuel L. Feder, Jenner & Block LLP, Washington, D.C., Argued for Respondents–Intervenors.

David R. Irvine, Salt Lake City, UT, and Alan L. Smith, Salt Lake City, UT, for Direct Communications Cedar Valley, LLC, Totah Communications, Inc., H & B Communications, Inc., The Moundridge Telephone Company, Pioneer Telephone Association, Inc., Twin Valley Telephone, Inc., and Pine Telephone Company, Inc., for Petitioners.

Bohdan R. Pankiw, Kathryn G. Sophy, Shaun A. Sparks, and Joseph K. Witmer, Pennsylvania Public Utility Commission, Harrisburg, PA, for Pennsylvania Public Utility Commission.

Benjamin H. Dickens, Jr. and Mary J. Sisak, Blooston, Mordkofsky, Dickens, Duffy & Prendergrast, LLP, and Craig S. Johnson, Johnson & Sporleder, Jefferson City, MO, for...