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The Federal Communications Commission: Current Structure and Its Role in the Changing Telecommunications Landscape

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. The Federal Communications Commission: Current Structure and Its Role in the Changing Telecommunications Landscape Patricia Moloney Figliola Specialist in Internet and Telecommunications Policy March 19, 2015February 22, 2016 Congressional Research Service 7-5700 www.crs.gov RL32589 c11173008 The Federal Communications Commission . Summary The Federal Communications Commission (FCC) is an independent federal agency with its five members appointed by the President, subject to confirmation by the Senate. It was established by the Communications Act of 1934 (1934 Act) and is charged with regulating interstate and international communications by radio, television, wire, satellite, and cable. The mission of the FCC is to ensure that the American people have available—at reasonable cost and without discrimination—rapid, efficient, nation- and world-wide communication services, whether by radio, television, wire, satellite, or cable. Although the FCC has restructured over the past few years to better reflect the industry, it is still required to adhere to the statutory requirements of its governing legislation, the Communications Act of 1934. The 1934 Act requires the FCC to regulate the various industry sectors differently. Some policymakers have been critical of the FCC and the manner in which it regulates various sectors of the telecommunications industry—telephone, cable television, radio and television broadcasting, and some aspects of the Internet. These policymakers, including some in Congress, have long called for varying degrees and types of reform to the FCC. Most proposals fall into two categories: (1) procedural changes made within the FCC or through congressional action that would affect the agency’s operations or (2) substantive policy changes requiring congressional action that would affect how the agency regulates different services and industry sectors. President Obama signed H.R. 82, the Consolidated and Further Continuation Appropriations Act, 2015, into law (P.L. 113-483) on December 16, 2014. The law provides the FCC with an FY2015 budget of $339,844,000. As in recent previous years, the FCC’s FY2014 budget is to be derived For FY2017, the FCC has requested a budget of $358,286,000, all derived from regulatory fees collected by the agency rather than through a direct appropriation. The fees, often referred to as “Section (9) fees,” are collected from license holders and certain other entities (e.g., cable television systems) and deposited into an FCC account. The law gives the FCC authority to review the regulatory fees and to adjust the fees to reflect changes in its appropriation from year to year. It may also add, delete, or reclassify services under certain circumstances. There are nine collected by the agency. This request is $25,726,497 less than the FY2016 funding of 384,012,497. Part of the FY2016 budget, $44,168,497, was specifically made available for expenses associated with moving to a new facility or reconfiguring the existing facility space to reduce space consumption and associated budget costs. For FY2017, the FCC requested $16,866,992 for that same purpose. There are 15 bills in the 114th Congress that would have an impact on the way in whichhow the FCC conducts its business and seven hearings related to FCC operations. c11173008 conducts its business. The Senate and the House have held a total of 16 FCC-related hearings. Congressional Research Service The Federal Communications Commission . Contents Overview of the Federal Communications Commission ................................................................. 1 FCC Leadership ......................................................................................................................... 2 FCC Structure ............................................................................................................................ 2 FCC Strategic Plan .................................................................................................................... 3 FCC Operations: Budget, Authorization, and Reporting to Congress ............................................. 4 FCC FY2016FY2017 Budget ................................................................................................................. 5 FCC FY2015 Budget ................................................................................................................. 5 FCC AuthorizationAuthorization ............................................................................................................................................................. 6 5 FCC Reporting to Congress. ...................................................................................................... 6 FCC-Related Congressional ActionActivity—114th Congress ..................................................................... 7 Figures Figure 1. Historical FY2000-FY2016 Appropriated Budget Authority ........................................... 5 Tables Table 1. Legislation—114th Congress .............................................................................................. 8 Table 2. Hearings—114th Congress ................................................................................................ 11 10 Appendixes Appendix A. FCC-Related Congressional Action—113th Congress .............................................. 11 12 Appendix B. FCC-Related Congressional Action—112th Congress .............................................. 14 15 Appendix C. FCC-Related Government Accountability Office Studies ........................................ 17 18 Contacts Author Contact Information. .......................................................................................................... 19 c11173008 Congressional Research Service The Federal Communications Commission . Overview of the Federal Communications Commission The Federal Communications Commission (FCC) is an independent federal agency with its five members appointed by the President, subject to confirmation by the Senate. It was established by the Communications Act of 1934 (1934 Act or “Communications Act”)1 and is charged with regulating interstate and international communications by radio, television, wire, satellite, and cable.2 The mission of the FCC is to ensure that the American people have available, “without discrimination on the basis of race, color, religion, national origin, or sex, a rapid, efficient, Nationwide, and worldwide wire and radio communication service with adequate facilities at reasonable charges.”3 The 1934 Act is divided into titles and sections that describe various powers and concerns of the commission.4 •   Title I—FCC Administration and Powers. The 1934 Act originally called for a commission consisting of seven members, but that number was reduced to five in 1983. Commissioners are appointed by the President and approved by the Senate to serve five-year terms; the President designates one member to serve as chairman. No more than three commissioners may come from the political party of the President. Title I empowers the commission to create divisions or bureaus responsible for specific work assigned and to structure itself as it chooses. • Title II—Common carrier regulation, primarily telephone regulation, including circuit-switched telephone services offered by cable companies. Common carriers are communication companies that provide facilities for transmission but do not originate messages, such as telephone and microwave providers. The 1934 Act limits FCC regulation to interstate and international common carriers, although a joint federal-state board coordinates regulation between the FCC and state regulatory commissions. Title III—Broadcast station requirements. Much existing broadcast regulation was established prior to 1934 by the Federal Radio Commission and most provisions of the Radio Act of 1927 were subsumed into Title III of the 1934 Act. 1 The Communications Act of 1934, 47 U.S.C. §151 et seq., has been amended numerous times, most significantly in recent years by the Telecommunications Act of 1996, P.L. 104-104, 110 Stat. 56 (1996). References in this report are to the 1934 Act, as amended, unless indicated. A compendium of communications-related laws is available from the House Committee on Energy and Commerce at http://energycommerce.house.gov/108/pubs/108-D.pdf. It includes selected Acts within the jurisdiction of the committee, including the Communications Act of 1934, Telecommunications Act of 1996, Communications Satellite Act of 1962, National Telecommunications and Information Administration Organizations Act, Telephone Disclosure and Dispute Resolution Act, Communications Assistance for Law Enforcement Act, as well as additional communications statutes and selected provisions from the United States Code. The compendium was last amended on December 31, 2002. 2 See “About the FCC,” at http://www.fcc.gov/aboutus.html. 3 47 U.S.C. §151. 4 When Congress established the FCC in 1934, it merged responsibilities previously assigned to the Federal Radio Commission, the Interstate Commerce Commission, and the Postmaster General into a single agency, divided into three bureaus, Broadcast, Telegraph, and Telephone. See Analysis of the Federal Communications Commission, Fritz Messere, at http://www.oswego.edu/~messere/FCC1.html and the Museum of Broadcast Communications Archive at http://www.museum.tv/archives/etv/F/htmlF/federalcommu/federalcommu.htm for additional information on the history of the FCC. c11173008 Congressional Research Service 1 The Federal Communications Commission . • Title III—Broadcast station requirements. Much existing broadcast regulation was established prior to 1934 by the Federal Radio Commission and most provisions of the Radio Act of 1927 were subsumed into Title III of the 1934 Act.     Sections 303-307 define many of the powers given to the FCC with respect to broadcasting; other sections define limitations placed upon it. For example, Section 326 of Title III prevents the FCC from exercising censorship over broadcast stations. Also, parts of the U.S. code are linked to the Communications Act. For example, 18 U.S.C. 464 makes obscene or indecent language over a broadcast station illegal. • Title IV—Procedural and administrative provisions, such as hearings, joint boards, judicial review of the FCC’s orders, petitions, and inquiries. • Title V—Penal provisions and forfeitures, such as violations of rules and regulations. • Title VI—Cable communications, such as the use of cable channels and cable ownership restrictions, franchising, and video programming services provided by telephone companies. • Title VII—Miscellaneous provisions and powers, such as war powers of the President, closed captioning of public service announcements, and telecommunications development fund. FCC Leadership The FCC is directed by five commissioners appointed by the President and confirmed by the Senate for five-year terms (except when filling an unexpired term). The President designates one of the commissioners to serve as chairperson. Only three commissioners may be members of the same political party. None of them can have a financial interest in any Commissioncommission-related business. The commissioners are: •      Tom Wheeler, Chair (confirmed by the Senate on October 29, 2013, and sworn in on November 4, 2013); • Michael O’Rielly (confirmed by the Senate on October 29, 2013, and sworn in on November 4, 2013); • on November 4, 2013); Mignon Clyburn (sworn in for a second term on February 19, 2013); Jessica Rosenworcel (confirmed by the Senate on May 7, 2012, and sworn in on May May 11, 2012); • Ajit Pai (confirmed by the Senate on May 7, 2012, and sworn in on May 12, 14, 2012, for a term ending on June 30, 2016); and • Mignon Clyburn (sworn in for a second term on February 19 Michael O’Rielly (confirmed by the Senate on October 29, 2013, sworn in on November 4, 2013). FCC Structure The day-to-day functions of the FCC are carried out by 7 bureaus and 10 offices. The current basic structure of the FCC was established in 2002 as part of the agency’s effort to better reflect the industries it regulates. The seventh bureau, the Public Safety and Homeland Security Bureau, was established in 2006. c11173008 Congressional Research Service 2 The Federal Communications Commission . The bureaus process applications for licenses and other filings, analyze complaints, conduct investigations, develop and implement regulatory programs, and participate in hearings, among Congressional Research Service 2 The Federal Communications Commission other things. The offices provide support services. Bureaus and offices often collaborate when addressing FCC issues.5 The bureaus hold the following responsibilities: •       Consumer and Governmental Affairs Bureau—Addresses all types of consumerrelated matters from answering questions and responding to consumer complaints to distributing consumer education materials. • Enforcement Bureau—Enforces FCC rules, orders, and authorizations. • International Bureau—Administers the FCC’s international telecommunications policies and obligations. • Media Bureau—Develops, recommends, and administers the policy and licensing programs relating to electronic media, including cable television, broadcast television, and radio in the United States and its territories. • Public Safety and Homeland Security Bureau—Addresses issues such as public safety communications, alert and warning of U.S. citizens, continuity of government operations and continuity of operations planning, and disaster management coordination and outreach. • Wireless Telecommunications Bureau—Handles all FCC domestic wireless telecommunications programs and policies.6 Wireless communications services include cellular, paging, personal communications services, public safety, and other commercial and private radio services. This bureau also is responsible for implementing the competitive bidding authority for spectrum auctions. • Wireline Competition Bureau—Administers the FCC’s policies concerning common carriers—the companies that provide long distance and local service to consumers and businesses. These companies provide services such as voice, data, and other telecommunication transmission services. FCC Strategic Plan The current FCC Strategic Plan covers the five-year period FY2014FY2015–FY2018.7 The plan outlines eight goals: • Connect America: Maximize Americans’ access to—and the adoption of— affordable fixed and mobile broadband where they live, work, and travel. • Maximize Benefits of Spectrum: Maximize the overall benefits of spectrum for the United States. • Protect and Empower Consumers: Empower consumers by ensuring that they have the tools and information they need to make informed choices; protect consumers from harm in the communications market.four goals:   Promoting Economic Growth and National Leadership. Telecommunications networks are a vital component of technological innovation and economic growth, helping to ensure that our nation remains a leader in providing its citizens opportunities for economic and educational development. Competition drives these networks to develop improved transmission technologies and to offer new services at competitive prices, and consumers can benefit from these fruits of competition. The FCC has a responsibility to promote the expansion of these networks and to ensure they have the incentive and the ability to compete fairly with one another in providing broadband services. Protecting Public Interest Goals. A change in technology may require us to review and revise our rules, but it does not change the rights of users or the responsibilities of network providers. This civil bond between network providers 5 FCC Fact Sheet, http://www.fcc.gov/cgb/consumerfacts/aboutfcc.html. Except those involving satellite communications broadcasting, including licensing, enforcement, and regulatory functions. These functions are handled by the International Bureau. 6 c111730087 The plan originally covered FY2014-FY2018 and was revised in 2015. 6 Congressional Research Service 3 The Federal Communications Commission . • Promote Innovation, Investment, and America’s Global Competitiveness: Promote innovation in a manner that improves the nation’s ability to compete in the global economy, creating a virtuous circle that results in more investment and in turn enables additional innovation. • Promote Competition: Ensure a competitive market for communications and media services to foster innovation, investment, and job creation and to ensure consumers have meaningful choice in affordable services. • Public Safety and Homeland Security: Promote the availability of reliable, interoperable, redundant, rapidly restorable critical communications infrastructures that are supportive of all required services. • Advance Key National Purposes: Through international and national interagency efforts, advance the use of broadband for key national purposes. • Operational Excellence: Make the FCC a model for excellence in government by effectively managing the commission’s human, information, and financial resources; by making decisions based on sound data and analyses; and by maintaining a commitment to transparent and responsive processes that encourage public involvement and best serve  and users includes consumer protection, competition, universal service, public safety and national security. The FCC must protect and promote this Network Compact. Making Networks Work for Everyone. Because broadband networks are essential to our national wellbeing, it is not enough for the FCC simply to promote their development. We must also ensure that all Americans can take advantage of the services they provide to enjoy 21st century educational systems, health care, communication capabilities for our first responders, and accessibility for Americans with disabilities, and to assure innovation without artificial impediments. Promoting Operational Excellence. The FCC should be a model for excellence in government by effectively managing its resources and maintaining a commitment to transparent and responsive processes that encourage public involvement and decisionmaking that best serves the public interest. The FCC has identified performance objectives associated with each strategic goal. Commission management annually develops targets and measures related to each performance goal to provide direction toward accomplishing those goals. Targets and measures are published in the FCC’s Performance Plan, submitted with the commission’s annual budget request to Congress. Results of the commission’s efforts to meet its goals, targets, and measures are found in the FCC’s Annual Performance Report published each February. The FCC also issues a Summary of Performance and Financial Results every February, providing a concise, citizen-focused review of the agency’s accomplishments. FCC Operations: Budget, Authorization, and Reporting to Congress Since the 110th Congress, the FCC has been funded through the Financial Services (House) and Financial House and Senate Financial Services and General Government (SenateFSGG) appropriations processprocesses as a single line item. Previously, it was funded through what is now the Commerce, Justice, Science appropriations process, also as a single line item. Most or all ofSince 2009 the FCC’s budget ishas been derived from regulatory fees collected by the agency rather rather than through a direct appropriation.78 The fees, often referred to as “Section (9) fees,” are collected collected from license holders and certain other entities (e.g., cable television systems), and deposited into an FCC account. The law gives the FCC authorityFCC is authorized to review the regulatory fees and to adjust the feeseach year and adjust them to reflect changes in its appropriation from year to year. Most years, appropriations language prohibits the use by the commission of any excess collections received in the current fiscal year 7 or any prior years. These funds remain in the FCC account and are not made available to other agencies or agency programs nor redirected into the Treasury’s general fund. The FCC’s budgets from FY2000 to FY20169 are in Figure 1. 8 The Omnibus Budget Reconciliation Act of 1993 (P.L. 103-66, 47 U.S.C. §159) requires that the FCC annually collect fees and retain them for FCC use to offset certain costs incurred by the commission. The FCC implemented the regulatory fee collection program by rulemaking on July 18, 1994. c11173008 Congressional Research Service 4 The Federal Communications Commission . or any prior years. These funds remain in the FCC account and are not made available to other agencies or agency programs nor redirected into the Treasury’s general fund. The FCC’s budgets from FY2000 to FY2016 are in Figure 1. 9 The figure for FY2016 is the FCC’s requested budget. Congressional Research Service 4 The Federal Communications Commission Figure 1. Historical FY2000-FY2016 Appropriated Budget Authority Source: FCC. FCC FY2016FY2017 Budget TheFor FY2017, the FCC has requested a FY2016 budget of $388,000,000. As in recent previous years, the FCC’s budget is all to bebudget of $358,286,000, all derived from regulatory fees collected by the agency rather than through a direct appropriation. The fees, often referred to as “Section (9) fees,” are collected from license holders and certain other entities (e.g., cable television systems) and deposited into an FCC account. The law gives the FCC authority to review the regulatory fees and to adjust the fees to reflect changes in its appropriation from year to year. It may also add, delete, or reclassify services under certain circumstances. FCC FY2015 Budget President Obama signed H.R. 82, the Consolidated and Further Continuation Appropriations Act, 2015, into law (P.L. 113-483) on December 16, 2014. The law provides the FCC with an FY2015 c11173008 Congressional Research Service 5 The Federal Communications Commission . budget of $339,844,000, all to be derived from regulatory fees collected by the agency rather than through a direct appropriation collected by the agency. This request is $25,726,497 less than the FY2016 funding of 384,012,497. Part of the FY2016 budget, $44,168,497, was specifically made available for expenses associated with moving to a new facility or reconfiguring the existing facility space to reduce space consumption and associated budget costs. For FY2017, the FCC has requested $16,866,992 for that same purpose. FCC Authorization The FCC was last formally authorized in the FCC Authorization Act of 1990 (P.L. 101-396). Since that time, five bills have been introduced that would have reauthorized the FCC, but none were signed into law. •   108th Congress, S. 1264, FCC Reauthorization Act of 2003, Senator John McCain;8 • 10 104th Congress, H.R. 1869, Federal Communications Commission Authorization Act, Representative Jack Fields; • 103rd Congress, H.R. 4522, Federal Communications Commission Authorization Act, Representative Edward Markey, and 10 For more information, see S.Rept. 108-140, at http://www.gpo.gov/fdsys/pkg/CRPT-108srpt140/pdf/CRPT108srpt140.pdf. Congressional Research Service 5 The Federal Communications Commission  103rd Congress, S. 2336, Federal Communications Commission Authorization Act, Senator Daniel Inouye; and • 102nd Congress, S. 1132, Federal Communications Commission Authorization Act, Senator Daniel Inouye. In the 114th Congress, Representative Greg Walden released a discussion draft of the “FCC Reauthorization Act of 2015.”11 The draft legislation was released in advance of the March 19 oversight hearing by the House Commerce Committee Subcommittee on Communications and Technology, but has not been formally introduced. The draft would    authorize $9 billion per year in appropriations, which would be offset by fund contributions for the preservation of universal service support mechanisms; authorize appropriations to the FCC for spectrum auction expenses at current levels through 2022, the last year of the existing auction authority; and provide for an independent inspector general for the agency. FCC Reporting to Congress The FCC publishes four reports for Congress.    FCC Reporting to Congress The FCC publishes four reports for Congress. • Strategic Plan. The Strategic Plan is the framework around which the FCC develops its yearly Performance Plan and Performance Budget. The FCC submitedsubmitted its current four-year Strategic Plan in February 2014, in accordance with the Government Performance and Results Modernization Act of 2010, P.L. 111-352. • Performance Budget. The annual Performance Budget includes performance targets based on the FCC’s strategic goals and objectives, and serves as the guide for implementing the Strategic Plan. The Performance Budget becomes part of the President’s annual budget request. • Agency Financial Report. The annual Agency Financial Report contains financial and other information, such as a financial discussion and analysis of the agency’s status, financial statements, and audit reports. 8 For more information, see S.Rept. 108-140, at http://www.gpo.gov/fdsys/pkg/CRPT-108srpt140/pdf/CRPT108srpt140.pdf. c11173008 Congressional Research Service 6 The Federal Communications Commission . • Annual Performance Report. At the end of the fiscal year, the FCC publishes an Annual Performance Report that compares the agency’s actual performance with its targets.912 All of these reports are available on the FCC website, http://www.fcc.gov/encyclopedia. FCC-Related Congressional Action—114th Congress Congressional action in the 114th Congress is detailed in Table 1 and Table 2. 9 11 The draft is available at http://energycommerce.house.gov/sites/republicans.energycommerce.house.gov/files/114/ BILLS-114hr-PIH-FCCReauthorization.pdf. The draft has not been introduced. 12 OMB Circular A-136 allows agencies the option of producing (1) two separate reports, an Agency Financial Report and an Annual Performance Report, or (2) a consolidated Performance and Accountability Report. The same information is provided to Congress in either case. The FCC elected the first option for FY2011. Also, in addition to the reports it submits to Congress, the FCC publishes an annual Summary of Performance and Financial Information, which is a citizen-focused summary of the FCC’s yearly activities. c11173008Congressional Research Service 6 The Federal Communications Commission FCC-Related Congressional Activity—114th Congress Congressional action in the 114th Congress is detailed in Table 1 and Table 2. Congressional Research Service 7 . Table 1. Legislation—114th Congress Introduced Bill # Bill Title Sponsor Brief Summary Committee Bill Status 1/12/15 H.R. 279 No title Rep. Robert Latta Amend the Communications Act of 1934 to limit the authority of the FCC over providers of broadband Internet access service House Energy and Commerce 1/16/15: Referred to the Subcommittee on Communications and Technology. 1/26/1526/2015 S. 253 Federal Communications Commission Consolidated Commission Consolidated Reporting Act of 2015 Sen. Dean Heller Amend the Communications Act of of 1934 to replace various reporting reporting requirements with a biannual communications bi-annual communications marketplace report that the FCC would be required to publish on its website and submit to Congress. Senate Commerce, Science, and Transportation 2/26/2015: Reported with an amendment in the nature of a substitute favorably. 02/02/20156/10/15: Passed the Senate. 6/11/15: Received in the House and held at the desk. S.Rept. 11458 2/02/15 H.R. 655 FCC ‘ABCs’ Act of 2015 Rep. Robert Latta Amend the Communications Act of of 1934 to direct the FCC, in the case of a proposed or final rule (including a proposed or final amendment to an existing rule) that may have an economically economically significant impact, to include in the notice a cost-benefit analysis analysis demonstrating that the benefits benefits outweigh the costs. House Energy and Commerce 2/06/2015: Referred to the Subcommittee on Communications and Technology. 2/04/201525/15: Received in the Senate and referred to the Committee on Commerce, Science, and Transportation. 2/04/15 H.R. 734 Federal Communications Commission Consolidated Commission Consolidated Reporting Act of 2015 Rep. Steve Scalise See summary of S. 253 House Energy and Commerce 2/25/2015: Received in the Senate and referred to the Committee on Commerce, Science, and Transportation. H.Rept. 114-27 2/10/2015 c11173008 CRS-815: Received in the Senate and referred to the Committee on Commerce, Science, and Transportation. H.Rept. 114-27 2/10/15 S. 421 Federal Communications Commission Commission Process Reform Act of 2015 Sen. Dean Heller Amend the Communications Act of of 1934 to provide for greater transparency and efficiency in the procedures followed by the FCC, and and for other purposes. Senate Commerce, Science, and Transportation 2/10/2015: Referred to the Committee on Commerce, Science, and Transportation. . Introduced Bill # Bill Title Sponsor Brief Summary Committee Bill Status 2/12/2015 H.R. 279 No title Rep. Robert Latta Amend the Communications Act of 1934 to limit the authority of the Federal Communications Commission over providers of broadband Internet access service House Energy and Commerce 1/16/2015: Referred to the Subcommittee on Communications and Technology 02/26/2015 H.R. 1106 States’ Rights Municipal Broadband Act of 2015 Rep. Marsha Blackburn Amend Section 706 of the Telecommunications Act of 1996 to provide that such section does not authorize the Federal Communications Commission to preempt the laws of certain States relating to the regulation of municipal broadband, and for other purposes. House Energy and Commerce 2/26/2015: Referred to the House Committee on Energy and Commerce 02/26/2015 S. 597 States’ Rights Municipal Broadband Act of 2015 Sen. Thom Tillis See summary of H.R. 1106 Senate Commerce, Science, and Transportation 2/26/2015: Read twice and referred to the Committee on Commerce, Science, and Transportation. 03/03/2015 H.R. 1212 Internet Freedom Act Rep. Marsha Blackburn Prohibit the Federal Communications Commission from reclassifying broadband Internet access service as a telecommunications service and from imposing certain regulations on providers of such service. Energy and Commerce 3/03/2015: Referred to the House Committee on Energy and Commerce 03/17/2015 H.R. 1396 Federal Communications Commission Collaboration Act of 2015 Rep. Anna Eshoo Amend the Communications Act of 1934 to authorize a bipartisan majority of Commissioners of the FCC to hold nonpublic collaborative discussions. Energy and Commerce 3/17/2015: Introduced in the House. Source: CRS c11173008 CRS-9 . Table 2. Hearings—114th Congress House of Representatives Energy and Commerce Oversight and Government Reform Judiciary Date Title Date Title Date Title 2/25/2015 The Uncertain Future of the Internet 2/25/2015 FCC Process: Examining the Relationship Between the FCC and the White House 3/2/2015 Discussion of H.R. 1155, the Searching for and Cutting Regulations that are Unnecessarily Burdensome (“SCRUB”) Act of 2015 3/04/2015 Reauthorization of the Federal Communications Commission: The FCC’s FY2016 Budget Request 3/17/2015 FCC: Process and Transparency 3/19/2015 FCC Reauthorization: Oversight of the Commission (This hearing also included discussion of two bills not related to FCC procedure: H.R. 348, the “RAPID Act” and H.R. 712, the “Sunshine for Regulatory Decrees and Settlements Act of 2015.”) Appropriations 3/24/2015 FCC Budget Hearing Senate Commerce Date Title Date Title 03/18/15 Oversight of the Federal Communications Commission 2/25/2015 Toward a 21st-Century Regulatory System Source: CRS Note: Past hearings are shown in italics. c11173008 Homeland Security and Government Affairs CRS-10 Judiciary No hearings. The Federal Communications Commission . Appendix A. FCC-Related Congressional Action— 113th Congress There were seven bills in the 113th Congress that would have had an impact on the way in which the FCC conducts its business and six hearings related to FCC operations. Legislation Federal Communications Commission Collaboration Act (H.R. 539, S. 245) •15: Referred to the Committee on Commerce, Science, and Transportation. 2/26/15 H.R. 1106 States’ Rights Municipal Broadband Act of 2015 Rep. Marsha Blackburn Amend Section 706 of the Telecommunications Act of 1996 to provide that such section does not authorize the FCC to preempt the laws of certain States relating to the regulation of municipal broadband, and for other purposes. House Energy and Commerce 2/27/15: Referred to the House Subcommittee on Communications and Technology. 2/26/15 S. 597 States’ Rights Municipal Broadband Act of 2015 Sen. Thom Tillis See summary of H.R. 1106 Senate Commerce, Science, and Transportation 2/26/15: Referred to the Committee on Commerce, Science, and Transportation. CRS-8 Introduced Bill # Bill Title Sponsor Brief Summary Committee Bill Status 3/3/15 H.R. 1212 Internet Freedom Act Rep. Marsha Blackburn Prohibit the FCC from reclassifying broadband Internet access service as a telecommunications service and from imposing certain regulations on providers of such service. House Energy and Commerce 3/6/15: Referred to the House Subcommittee on Communications and Technology. 3/17/15 H.R. 1396 Federal Communications Commission Collaboration Act of 2015 Rep. Anna Eshoo Amend the Communications Act of 1934 to authorize a bipartisan majority of Commissioners of the FCC to hold nonpublic collaborative discussions. House Energy and Commerce 3/20/15: Referred to the Subcommittee on Communications and Technology. 6/18/15 S. 1607 Independent Agency Regulatory Analysis Act of 2015 Sen. Rob Portman Authorizes the President to require an independent regulatory agency to (1) comply with regulatory analysis requirements applicable to other federal agencies; (2) provide the Office of Information and Regulatory Affairs with the costs and benefits of a proposed or final economically significant rule and an assessment of alternatives to the rule; and (3) submit for review any proposed or final economically significant rule. Prohibits judicial review of the compliance or noncompliance of an independent regulatory agency with the requirements of this act. Senate Homeland Security and Govern. tal Affairs 10/7/2015: Ordered to be reported with an amendment in the nature of a substitute favorably. 3/17/15 S. 760 Federal Communications Commission Collaboration Act of 2015 Sen. Dean Heller Amend the Communications Act of 1934 to authorize a bipartisan majority of Commissioners of the FCC to hold nonpublic collaborative discussions. Senate Commerce, Science, and Transportation 3/17/15: Referred to the Committee on Commerce, Science, and Transportation. 5/29/15 H.R. 2583 Federal Communications Commission Process Reform Act of 2015 Rep. Greg Walden Amend the Communications Act of 1934 to provide for greater transparency and efficiency in the procedures followed by the FCC. House Energy and Commerce 6/3/15: Ordered to be reported (amended) by voice vote. 6/1/15 H.R. 2589 No title Rep. Renee L. Ellmers Amend the Communications Act of 1934 to require the FCC to publish on its Internet website changes to the rules of the Commission not later than 24 hours after adoption. House Energy and Commerce 6/5/15: Referred to the Subcommittee on Communications and Technology CRS-9 Introduced Bill # Bill Title Sponsor Brief Summary Committee Bill Status 06/1/15 H.R. 2592 No title Rep. Adam Kinzinger Amend the Communications Act of 1934 to require the FCC to publish on the website of the Commission documents to be voted on by the Commission. House Energy and Commerce 6/5/15: Referred to the Subcommittee on Communications and Technology 6/1/15 H.R. 2593 No title Rep. Robert E. Latta Amend the Communications Act of 1934 to require identification and description on the website of the FCC of items to be decided on authority delegated by the Commission. House Energy and Commerce 6/5/15: Referred to the Subcommittee on Communications and Technology Source: CRS. CRS-10 Table 2. Hearings—114th Congress House of Representatives Energy and Commerce Oversight and Government Reform Judiciary Date Title Date Title Date Title 2/25/15 The Uncertain Future of the Internet 2/25/15 FCC Process: Examining the Relationship Between the FCC and the White House (POSTPONED) 3/2/15 Discussion of H.R. 1155, the Searching for and Cutting Regulations that are Unnecessarily Burdensome (“SCRUB”) Act of 201513 3/04/15 Reauthorization of the Federal Communications Commission: The FCC’s FY2016 Budget Request 3/17/15 FCC: Process and Transparency 3/25/15 Wrecking the Internet to Save It? The FCC’s Open Internet Rule 3/19/15 FCC Reauthorization: Oversight of the Commission 4/30/15 FCC Reauthorization: Improving Commission Transparency 5/15/15 FCC Reauthorization: Improving Commission Transparency—Part II 7/28/15 Continued Oversight of the Federal Communications Commission 11/17/15 Oversight of the Federal Communications Commission 1/12/16 A Legislative Hearing on Four Communications Bills Appropriations 3/24/15 FCC Budget Hearing Senate Commerce Homeland Security and Government Affairs Date Title Date Title 03/18/15 Oversight of the Federal Communications Commission 2/25/15 Toward a 21st-Century Regulatory System Judiciary No hearings. Appropriations 5/12/15 FCC Budget Hearing Source: CRS. 13 This hearing also included discussion of two bills not related to FCC procedure: H.R. 348, the “RAPID Act” and H.R. 712, the “Sunshine for Regulatory Decrees and Settlements Act of 2015.” CRS-11 The Federal Communications Commission Appendix A. FCC-Related Congressional Action— 113th Congress There were seven bills in the 113th Congress that would have had an impact on the way in which the FCC conducts its business and six hearings related to FCC operations. Legislation Federal Communications Commission Collaboration Act (H.R. 539, S. 245)   Status. H.R. 539 was introduced by Representative Anna Eshoo in the House Committee on Energy and Commerce on February 6, 2013. The bill was referred to the Subcommittee on Communications and Technology on February 8, 2013. S. 245 was introduced by Senator Amy Klobuchar in the Senate Committee on Commerce, Science, and Transportation on February 7, 2013. • Summary. These bills would amend the Communications Act of 1934 to allow, notwithstanding a specified open meeting provision, three or more commissioners of the Federal Communications Commission (FCC) to hold a meeting that is closed to the public to discuss official business if (1) no agency action is taken; (2) each person present is an FCC commissioner or employee; (3) for each political party of which any commissioner is a member, at least one commissioner who is a member of the respective party is present, and, if any commissioner has no party affiliation, at least one unaffiliated commissioner is present; and (4) an attorney from the FCC’s Office of General Counsel is present. It would require public disclosure of the meeting, attendees, and matters discussed. FCC Analysis of Benefits and Costs (“ABCs”) Act of 2013 (H.R. 2649) •  Status. H.R. 2649 was introduced by Representative Robert Latta in the House Committee on Energy and Commerce on July 10, 2013, and referred to the Subcommittee on Communications and Technology on July 12, 2013. This bill is also called the FCC Process Reform Act of 2013. • Summary. This bill would amend the Communications Act of 1934 to reform the FCC by requiring an analysis of benefits and costs during the rulemaking process and creating certain presumptions regarding regulatory forbearance and biennial regulatory review determinations. Federal Communications Commission Process Reform Act of 2013 (H.R. 3675) c11173008 •   Status. H.R. 3675 was introduced by Representative Greg Walden in the House Committee on Energy and Commerce on December 9, 2013. It was passed in the House and, on March 12, 2014, received in the Senate and referred to the Committee on Commerce, Science, and Transportation. • Summary. This bill would require the FCC to (1) survey the state of the marketplace through a notice of inquiry before initiating every new rulemaking; (2) identify a market failure, consumer harm, or regulatory barrier to investment Congressional Research Service 11 The Federal Communications Commission . before adopting “economically significant” rules, as well as demonstrate that the benefits of the regulation outweigh the costs; (3) make the full text of a rule available to the public for 30 days of comments and 30 days of reply comments Congressional Research Service 12 The Federal Communications Commission prior to voting on the proposed rule, and issue a final rule within three years; and (4) set “shot clocks” for orders, decisions, reports, or actions. Independent Agency Regulatory Analysis Act of 2013 (S. 1173) •  Status. S. 1173 was introduced by Senator Rob Portman in the Senate Committee Committee on Homeland Security and Governmental Affairs on June 18, 2013. • Summary. This bill would authorize the President to require an independent regulatory agency to: (1) comply, to the extent permitted by law, with regulatory analysis requirements applicable to other federal agencies; (2) publish and provide the Administrator of the Office of Information and Regulatory Affairs with an assessment of the costs and benefits of a proposed or final economically significant rule (i.e., a rule that is likely to have an annual effect on the economy of $100 million or more and is likely to adversely affect sectors of the economy in a material way) and an assessment of costs and benefits of alternatives to the rule; and (3) submit to the Administrator for review any proposed or final economically significant rule. It would also prohibit judicial review of the compliance or noncompliance of an independent regulatory agency with the requirements of this act. Federal Communications Commission Consolidated Reporting Act of 2013 (H.R. 2844, S. 1379) •  Status. H.R. 2844 was introduced by CongressmanRepresentative Steve Scalise on July 26, 2013. It was reported by the Committee on Energy and Commerce on September 9, 2013 (H.Rept. 113-189), and referred to the Senate Committee on Commerce, Science, and Transportation on September 10, 2013. S. 1379 was introduced by Senator Dean Heller on July 29, 2013, and it was referred to the Committee on Commerce, Science, and Transportation. • Summary. These bills would amend the Communications Act of 1934 to require the FCC to publish on its website and submit to Congress a biennial report on the state of the communications marketplace assessing competition, deployment of communications capabilities, and whether laws, regulations, or regulatory practices pose a barrier to competitive entry or expansion of existing providers of communications services. They would also require the FCC to compile a list of geographic areas that are not served by any provider of advanced telecommunications capability and consider market entry barriers in the communications marketplace. Finally, the bills would repeal and/or consolidate various FCC reports. Hearings FCC Oversight. On December 10, 2014, the House Committee on Energy and Commerce’s Subcommittee on Communications and Technology held a hearing on issues related to FCC oversight. The hearing focused on the FCC’s “Net Neutrality” rules. c11173008 Congressional Research Service 12 The Federal Communications Commission . FCC Oversight. On May 20, 2014, the House Committee on Energy and Commerce’s Subcommittee on Communications and Technology held a hearing on issues related to FCC oversight.10 14 14 http://energycommerce.house.gov/hearing/oversight-federal-communications-commission-0. Congressional Research Service 13 The Federal Communications Commission FCC Oversight. On March 12, 2013, the Senate Committee on Commerce, Science, and Transportation held a hearing on issues related to FCC oversight.1115 All five FCC commissioners testified.1216 “Improving the FCC Process.” On July 11, 2013, the House Committee on Energy and Commerce Subcommittee on Communications and Technology held a hearing on “Improving the FCC Process.” The hearing was held to review two draft bills based on two bills that were passed by the House of Representatives in the 112th Congress: H.R. 3309, the Federal Communications Commission Process Reform Act, and H.R. 3310, the Federal Communications Commission Consolidated Reporting Act. The draft bills are intended to “minimize the potential for procedural failings and abuse, and to improve agency transparency, efficiency, and accountability.” The committee heard from one panel: Stuart M. Benjamin, Douglas B. Maggs Chair in Law and Associate Dean for Research, Duke Law; Larry Downes, Internet industry analyst and author; Robert M. McDowell, former FCC Commissioner and Visiting Fellow, Hudson Institute; Randolph J. May, President, Free State Foundation; Richard J. Pierce Jr., Lyle T. Alverson Professor of Law, George Washington University Law School; and James Bradford Ramsay, General Counsel, National Association of Regulatory Utility Commissioners. Nomination Hearing. The Senate Committee on Commerce, Science, and Transportation held a hearing on the nomination of Mr. Tom Wheeler on June 18, 2013.1317 FCC Oversight. On December 12, 2013, the House Committee on Energy and Commerce’s Subcommittee on Communications and Technology held a hearing on issues related to FCC oversight. All five FCC commissioners testified.14 10 http://energycommerce.house.gov/hearing/oversight-federal-communications-commission-0. 18 15 Information about this hearing, including a video of the hearing, is available at http://www.commerce.senate.gov/ public/index.cfm?p=Hearings&ContentRecord_id=18f83ea5-3d7d-4ef9-92ad-30a3421c11d3&ContentType_id= 14f995b9-dfa5-407a-9d35-56cc7152a7ed&Group_id=b06c39af-e033-4cba-9221-de668ca1978a. 1216 A number of organizations published summaries of the hearing, for example, Reuters, http://www.reuters.com/ article/2013/03/12/us-usa-fcc-oversight-idUSBRE92B17420130312. 1317 The hearing was held in two sessions, online at http://www.c-spanvideo.org/program/ChairNom and http://www.cspanvideo.org/program/ChairNomi. 1418 http://energycommerce.house.gov/hearing/oversight-of-the-federal-communications-commission. 11 c11173008 Congressional Research Service 1314 The Federal Communications Commission . Appendix B. FCC-Related Congressional Action— 112th Congress One hearing was held on FCC oversight and nine bills were introduced that would affect the manner in which the FCC conducts its business. Hearings On February 16, 2012, the House Committee on Energy and Commerce Subcommittee on Communications and Technology held a hearing on the budget and spending of the FCC.1519 FCC Chairman Julius Genachowski; Mr. David H. Hunt, FCC Inspector General; and Mr. Scott Barash, Chief Executive Officer of the Universal Service Administrative Company, testified. Legislation Cost-Benefit Analysis of Proposed Rulemaking FCC Analysis of Benefits and Costs Act of 2011 (H.R. 2289) H.R. 2289   Status. H.R. 2289, also called the “FCC ABCs Act,” was introduced by Representative Robert Latta in the House Committee on Energy and Commerce on June 22, 2011. The bill was referred to the Subcommittee on Communications and Technology June 22, 2011. H.R. 2289 Summary. This bill would require the FCC to include in each notice of proposed rule rule making and in each final rule issued by the FCC an analysis of the benefits and costs of such proposed rule or final rule. It would prohibit any appropriations for the express purpose of carrying out this act. Commission Collaboration Federal Communications Commission Process Reform Act (H.R. 3309) Federal Communications Commission Process Reform Act (S. 1784) Telecommunications Jobs Act (S. 1817)   H.R. 3309 and S. 1784 Status. H.R. 3309 was introduced by Representative Greg Walden in the House Committee on Energy and Commerce on November 2, 2011. It was reported (H.Rept. 112414)16112-414)20 on March 19, 2012, and referred to the Senate the next day, where it was read and referred to the Committee on Commerce, Science, and Transportation. S. 1784 was introduced by Senator Dean Heller in the Senate Committee on Commerce, Science, and Transportation on November 2, 2011. H.R. 3309 and S. 1784 Summary. This bill would require the FCC to (1) survey the state of the marketplace through a notice of inquiry before initiating every new rulemaking; (2) identify a market failure, consumer harm, or regulatory barrier to investment before adopting “economically 15 significant” rules, as well as demonstrate that the benefits of the regulation outweigh the costs; (3) make the 19 Information about this hearing, including a video of the hearing, is available at http://energycommerce.house.gov/ hearings/hearingdetail.aspx?NewsID=9278. 1620 http://www.gpo.gov/fdsys/pkg/CRPT-112hrpt414/pdf/CRPT-112hrpt414.pdf. c11173008 Congressional Research Service 1415 The Federal Communications Commission . significant” rules, as well as demonstrate that the benefits of the regulation outweigh the costs; (3) make the   full text of a rule available to the public for 30 days of comments and 30 days of reply reply comments prior to voting on the proposed rule, and issue a final rule within three years; and (4) set “shot clocks” for orders, decisions, reports, or actions. S. 1817 Status. S. 1817 was introduced by Senator Dean Heller in the Senate Committee on Commerce, Science, and Transportation on November 8, 2011. S. 1817 Summary. This bill is substantially similar to S. 1784. Federal Communications Commission Collaboration Act (H.R. 1009) H.R. 1009   Status. H.R. 1009 was introduced by Representative Anna Eshoo in the House Committee on Energy and Commerce on March 10, 2011. The bill was referred to the Subcommittee on Communications and Technology on March 15, 2011. H.R. 1009 Summary. This bill would amend the Communications Act of 1934 to allow, notwithstanding a specified open meeting provision, three or more commissioners of the Federal Communications Commission (FCC) to hold a meeting that is closed to the public to discuss official business if (1) no agency action is taken; (2) each person present is an FCC commissioner or employee; (3) for each political party of which any commissioner is a member, at least one commissioner who is a member of the respective party is present, and, if any commissioner has no party affiliation, at least one unaffiliated commissioner is present; and (4) an attorney from the FCC’s Office of General Counsel is present. It would require public disclosure of the meeting, attendees, and matters discussed. Report Consolidation and Paperwork Reduction Federal Communications Commission Consolidated Reporting Act (H.R. 3310) Federal Communications Commission Consolidated Reporting Act (S. 1780) H.R. 3310 and S. 1780   Status. H.R. 3310 was introduced by Representative Steve Scalise in the House House Committee on Energy and Finance on November 2, 2011, and was reported (H.Rept. 11244317112-44321) on April 18, 2012. On May 30, 2012, the bill was passed by the House and it was referred to the Senate Committee on Science, Commerce, and Transportation, on June 4, 2012. S. 1780 was introduced by Senator Dean Heller in the Senate Committee on Commerce, Science, and Transportation on November 2, 2011. H.R. 3310 and S. 1780 Summary. This bill would amend the Communications Act of 1934 to consolidate the reporting obligations of the FCC to improve oversight and reduce reporting reporting burdens. Enhancing the Technical Expertise of the Commission FCC Technical Expertise Capacity Heightening Act (S. 611) FCC Commissioners’ Technical Resource Enhancement Act (H.R. 2102)   21 S. 611 Status:. S. 611 was introduced by Senator Olympia Snowe in the Senate Committee on Commerce, Science, and Transportation on March 17, 2011. S. 611 Summary. This bill is substantially similar to its companion bill, H.R. 2102, but unlike 17 c11173008 that bill, S. 611 also includes a requirement that the FCC “enter http://www.gpo.gov/fdsys/pkg/CRPT-112hrpt443/pdf/CRPT-112hrpt443.pdf. Congressional Research Service 1516 The Federal Communications Commission . that bill, S. 611 also includes a requirement that the FCC “enter   into an arrangement with the National Academy of Sciences to complete a study of the technical policy decision making and decisionmaking and the technical personnel at the commission.” H.R. 2102 Status. H.R. 2102 was introduced by Representative Cliff Stearns in the House Committee on Energy and Commerce on June 2, 2011. The bill was referred to the Subcommittee on Communications and Technology on June 3, 2011. H.R. 2102 Summary. This bill would amend the Communications Act of 1934 to permit each commissioner of the FCC to appoint an electrical engineer or computer scientist to provide technical consultation and to interface with the Office of Engineering and Technology and other FCC bureaus and technical staff. It would require such engineer or scientist to hold an undergraduate or graduate degree in his or her field of expertise. c11173008 Congressional Research Service 1617 The Federal Communications Commission . Appendix C. FCC-Related Government Accountability Office Studies The Government Accountability Office (GAO) has conducted two studies since 2008 related to the operation of the FCC. FCC: Regulatory Fee Process Needs to Be Updated (August 2012)1822 The FCC must, by law, assess annual regulatory fees on telecommunications entities to recover most or all of its appropriations—about $336 million in fiscal year (FY) 2011. Recently, the agency stated that it was planning to consider reforms to its regulatory fee process. GAO was asked to assess the FCC’s: •   process for assessing regulatory fees among industry sectors; and • regulatory fee collections over the past 10 years, and alternative approaches to assessing regulatory fees. For this assessment, GAO: •     reviewed FCC data and documents; • interviewed officials from the FCC and the telecommunications industry; • identified alternative approaches to assessing regulatory fees; and • met with five fee-funded U.S. and Canadian regulatory agencies. GAO found that the FCC is currently assessing regulatory fees based on obsolete data, with limited transparency. The Communications Act requires fees to be based on the number of fulltime equivalents (FTE) that perform regulatory tasks in certain bureaus, among other things. The FCC based its FY2011 regulatory fee assessments on its FY1998 FTE data. It has not updated the assessment on updated FTE data in part to avoid fluctuations in fees from year to year. FCC officials stated that the agency has complied with its statutory authority since the statute does not prescribe a specific time to update its FTE analysis. As a result, after 13 years, FCC has not validated the extent to which its fees correlate to its workload. The GAO recommended that: •   Congress consider whether FCC’s excess fees should be appropriated for FCC’s use or, if not, what their disposition should be; and • the FCC should: a. perform an updated FTE analysis and require at least biennial updates going forward; 18 b. determine whether and how to revise the current fee schedule, including the number and type of fee categories; c. increase the transparency of its regulatory fee process; and d. consider the approaches of other fee-funded regulatory agencies. 22 GAO, Report to the Ranking Member, Committee on Energy and Commerce, and Ranking Member, Subcommittee on Telecommunications and the Internet, Committee on Energy and Commerce, House of Representatives, “FCC: Regulatory Fee Process Needs to be Updated,” August 10, 2012, http://www.gao.gov/assets/600/593506.pdf. c11173008 Congressional Research Service 1718 The Federal Communications Commission . b. determine whether and how to revise the current fee schedule, including the number and type of fee categories; c. increase the transparency of its regulatory fee process; and d. consider the approaches of other fee-funded regulatory agencies. The FCC agreed with GAO’s recommendations. Enforcement Program Management (February 2008)1923 According to the GAO analysis of FCC data, between 2003 and 2006, the number of complaints received by the FCC totaled about 454,000 and grew from almost 86,000 in 2003 to a high of about 132,000 in 2005. The largest number of complaints related to violations of the do-not-call list and telemarketing during prohibited hours. The FCC processed about 95% of the complaints it received. It also opened about 46,000 investigations and closed about 39,000; approximately 9% of these investigations were closed with an enforcement action and about 83% were closed with no enforcement action. The GAO was unable to determine why these investigations were closed with no enforcement action because the FCC does not systematically collect these data. The FCC told GAO that some investigations were closed with no enforcement action because no violation occurred or the data were insufficient. The GAO noted that the FCC assesses the impact of its enforcement program by periodically reviewing certain program outputs, such as the amount of time it takes to close an investigation, but it lacks management tools to fully measure its outcomes. Specifically, FCC has not set measurable enforcement goals, developed a well-defined enforcement strategy, or established performance measures that are linked to the enforcement goals. The GAO stated in its report that without key management tools, FCC may have difficulty assuring Congress and other stakeholders that it is meeting its enforcement mission. The GAO found that limitations in FCC’s current approach for collecting and analyzing enforcement data constitute the principal challenge the agency faces in providing complete and accurate information on its enforcement program. These limitations, according to the GAO, make it difficult to analyze trends; determine program effectiveness; allocate Commission resources; or accurately track and monitor key aspects of all complaints received, investigations conducted, and enforcement actions taken. 19Author Contact Information Patricia Moloney Figliola Specialist in Internet and Telecommunications Policy pfigliola@crs.loc.gov, 7-2508 23 GAO, Report to the Chairman, Subcommittee on Telecommunications and the Internet, Committee on Energy and Commerce, House of Representatives, “FCC Has Made Some Progress in the Management of Its Enforcement Program but Faces Limitations, and Additional Actions Are Needed,” February 15, 2008, http://www.gao.gov/new.items/ d08125.pdf. c11173008 Congressional Research Service 18 The Federal Communications Commission . Author Contact Information Patricia Moloney Figliola Specialist in Internet and Telecommunications Policy pfigliola@crs.loc.gov, 7-2508 c11173008 Congressional Research Service 19