We grant the application of Comcast Corporation (Comcast), Time Warner Cable Inc. (Time Warner), Time Warner Cable Information Services (California), LLC (TWCIS) and Bright House Networks Information Services (California), LLC (Bright House) for approval of the transfer of control of TWCIS and Bright House to Comcast. In addition, we grant the application of Comcast, TWCIS and Charter Fiberlink CA-CCO, LLC (Charter Fiberlink) to transfer a limited number of business customers and associated regulated assets of Charter Fiberlink. — Proposed Decision of California Administrative Law Judge Karl J. Bemesderfer

In a decision widely expected by observers for almost a year, the California Public Utilities Commission (CPUC) is poised to conditionally approve the merger of Comcast and Time Warner Cable with dozens of pages of conditions to appease state politicians, concerned commissioners, and interest groups seeking to protect Californians from the competitive impact of what will easily become the state’s largest cable provider, serving 84% of households.

Administrative Law Judge Karl J. Bemesderfer issued his lengthy “proposed decision” in February, acknowledging the deal’s opponents have proved their contention the merger is not in the interests of Californian consumers, but then recommends approving it anyway:

In more concrete terms, the proposed merger between Comcast and Time Warner reduces the possibilities for content providers to reach the California broadband market. While the FCC’s pending reworked Net Neutrality rules may mitigate some of this effect, the sheer dominance of Comcast’s post-merger position causes us concern.

Parties have made a convincing showing of the anti-competitive consequences that Comcast’s post-merger market power may have on the deployment of broadband in California, and of anti-competitive harms that would occur in California if the merger is consummated. We are also persuaded by evidence of Comcast’s Internet Essentials program’s weak performance in closing the digital divide in California and fulfilling universal service goals, and thus do not view it as a mitigating factor without additional conditions.

While the protesters and intervenors vigorously assert that we should deny the applications outright, they also urge us, in the alternative, to impose conditions ameliorating the potential harms should we decide that such conditions are within our powers and sufficient to render the resulting transaction not adverse to the public interest.

While we are troubled by the protesters’ and intervenors’ many examples of potential harms that may flow from the merger, we believe that those harms may be mitigated by the imposition of conditions on our approval consistent with our powers under state and federal law.

Bemesderfer proposes a lengthy list of conditions the cable giant must meet for at least five years after merging, including offering discounted Internet service programs, improve customer service, provide free backup batteries for Comcast phone service, and promise it will stop lobbying against community broadband projects.

But the judge said nothing about Comcast’s runaway rate increases likely in a de facto monopoly environment, its own vice president’s prediction that all Comcast broadband customers will be enrolled in a usage-based billing scheme within five years, and lacks specificity explaining the enforcement measures the CPUC will take against Comcast if it fails to meet the commission’s conditions.

The five-member commission could take up Bemesderfer’s recommendations as early as the end of this month, but is more likely to postpone consideration until later this spring. The commission can adopt, change, or discard Bemesderfer’s recommendations.

Accusations that the CPUC has grown too cozy with the companies it regulates only grew louder after consumer groups complained Bemesderfer bent over backwards trying to get Comcast’s merger deal closer to the concept of “the public interest.” For them, it isn’t nearly close enough.

“To read the recent 100-plus-page decision from the CPUC, you wouldn’t think this proposed merger is good for anyone,” writes Tracy Rosenberg, executive director of Media Alliance, which opposes the deal. “The regulator approved the merger with more than two dozen conditions to mitigate the bad impacts on Californians.”

Rosenberg hints the CPUC is ill-equipped to effectively watch over a multi-billion dollar telecom giant like Comcast. By proposing an ambitious set of requirements the CPUC cannot possibly enforce or defend in court with its current limited budget. Taxpayers may have to dig deep to cover legal bills likely to pile up in Sacramento if Comcast decides to rid itself of CPUC meddling in the courts. Comcast has already announced strenuous objections to at least 20 of the 25 conditions Bemesderfer recommends imposing.

Comcast to California: Hey, slow down a moment. We don’t like your pre-conditions.

Ars Technica’s Jon Brodkin chronicles Comcast’s objections in a convenient clickable format:

The table of contents of Comcast’s 46-page report gives a sense of just how much the cable company disagrees with California’s proposed conditions. Here are the main bullet points as written in Comcast’s argument; we’ve added hyperlinks and additional text in italics to further explain the requirements and Comcast’s objections:

The proposed decision improperly expands the scope of the proceeding beyond the commission’s jurisdiction and authority.

• The proposed decision would impose sweeping common carrier utility type regulation on the merged entity’s broadband and VoIP services in derogation of federal and state law.
• Other conditions in the proposed decision exceed the commission’s authority or are otherwise unlawful. [According to Comcast, these conditions include requirements related to Lifeline phone service, diversity, website design standards, backup batteries, video programming, non-interference with competing voice services, buildout requirements, opposition to municipal broadband projects, and privacy complaints.]

The proposed decision adopts intervenors’ [merger opponents] flawed analyses and claims regarding market share and competition.

• The transaction will not increase market power or reduce consumer choice.
• The FCC’s new definition of “advanced telecommunications capability” has no relevance to this proceeding. [The Federal Communications Commission recently said that Internet service must provide at least 25Mbps download speeds and 3Mbps upload to qualify as broadband or “advanced telecommunications capability.” That decision increased Comcast’s “broadband” market share to 56 percent nationwide.]
• Concerns regarding future overbuilding are baseless and unsupported by the record. [The question here is whether Comcast and Time Warner Cable would ever compete against each other directly if they cannot merge.]
• The transaction presents no risk to edge providers [companies that deliver content and applications over the Internet], the highly competitive internet backbone, or consumers’ access to broadband content.

Other factual findings in the proposed decision are invalid and do not support the suggested conditions.

• TWC is not a “policy competitor” to Comcast. [The California judge’s proposal said TWC is a “policy competitor” to Comcast because it has different positions and business models. “For example, Time Warner has applied to the Commission to offer Lifeline as a tariffed service, while Comcast has not,” the judge wrote.]
• Mandatory diversity measures are unnecessary. [Comcast says California’s requirements amount to mandatory race-based quotas that violate state law and the US Constitution.]
• Concerns regarding Comcast’s battery backup program and other network safety issues are based on inaccurate assertions.
• The transaction will not harm wholesale offerings.
• Internet Essentials is successful by any objective metric and the program’s extension to TWC and Charter areas will provide substantial public interest benefits. [Internet Essentials is a low-cost Internet service for the poor that Comcast was required to create in exchange for approval of its 2011 acquisition of NBCUniversal. California wants Comcast to expand program eligibility further than Comcast is willing to. Comcast objects to a requirement to double download speeds from 5Mbps to 10Mbps. California also wants Comcast to achieve a 45 percent adoption rate among eligible consumers, which Comcast says is an unrealistic goal.]
• The proposed decision imposes unlawful rate and performance regulations based on inaccurate assumptions about TWC services and is in all events unjustified. [California wants Comcast to offer standalone broadband service for five years at prices not exceeding those charged by Time Warner Cable.]
• The proposed decision adopts incorrect data regarding Comcast’s quality of service and network safety and reliability.
• The “benchmark” competition theory adopted in the proposed decision is refuted by the record evidence. [California proposes an annual report requirement because the merger would eliminate the commission’s ability to compare reliability, customer service, prices, and service offerings of Comcast and TWC.]
• Other suggested conditions are unauthorized and unnecessary. [This section further covers a requirement to not interfere with voice services. Comcast says “it is unnecessary because Comcast does not interfere with voice services or degrade customers’ ability to complete calls.” This section also addresses a website accessibility requirement, which Comcast says is unnecessary because the company “already offers a comprehensive and user-friendly website that benchmarks to best practices for website accessibility.”]

Rosenberg argues a merger like Comcast and Time Warner Cable should have been easy to reject just on the basis of its size and scope.

“Economists use a scale called the Herfindahl-Hirschman Index to measure the level of concentration in a market,” Rosenberg said. “Anything with an HHI increase of more than 200 points is likely to enhance market power. The HHI increase for the merger of Comcast and Time Warner Cable is a 4,927-point increase in the fixed broadband market.”

In plain English, “California customers have nowhere to run,” Rosenberg writes. “If they had a choice, many of Comcast’s customers wouldn’t be their customers. If the merger with Time Warner goes through, that choice is about to get a whole lot worse.”

Instead of accommodating a merger proposal that seems clearly the opposite of the public interest, Rosenberg suggest an easier alternative.

“If something takes two dozen onerous conditions to prevent significant damage, then maybe the public is better off without it,” Rosenberg writes. “On March 26, the commission will vote on the Comcast-Time Warner Cable merger. A million conditions can’t make this a good enough deal. There comes a time to just say no.”

FCC-15-24A1

The Federal Communications Commission this morning released its final order detailing the agency’s official Net Neutrality rules intended to protect and preserve a free and open Internet.

The 400-page document includes footnoted, plain language explanations and arguments in favor of the new regulations as well as the rules of the road for Internet Service Providers, details about how to complain about alleged violators, and lengthy objections from the two Republican commissioners who oppose the new net policies.

Despite the exposition and dissent (and the Wall Street Journal editorial page calling the document a “blobfish,” the Net Neutrality rules and supplementary definitions are around 450 words long:

A person engaged in the provision of broadband Internet access service, insofar as such person is so engaged, shall not block lawful content, applications, services, or nonharmful devices, subject to reasonable network management.

A person engaged in the provision of broadband Internet access service, insofar as such person is so engaged, shall not impair or degrade lawful Internet traffic on the basis of Internet content, application, or service, or use of a non-harmful device, subject to reasonable network management.

A person engaged in the provision of broadband Internet access service, insofar as such person is so engaged, shall not engage in paid prioritization.

“Paid prioritization” refers to the management of a broadband provider’s network to directly or indirectly favor some traffic over other traffic, including through use of techniques such as traffic shaping, prioritization, resource reservation, or other forms of preferential traffic management, either (a) in exchange for consideration (monetary or otherwise) from a third party, or (b) to benefit an affiliated entity.

Any person engaged in the provision of broadband Internet access service, insofar as such person is so engaged, shall not unreasonably interfere with or unreasonably disadvantage (i) end users’ ability to select, access, and use broadband Internet access service or the lawful Internet content, applications, services, or devices of their choice, or (ii) edge providers’ ability to make lawful content, applications, services, or devices available to end users. Reasonable network management shall not be considered a violation of this rule.

A person engaged in the provision of broadband Internet access service shall publicly disclose accurate information regarding the network management practices, performance, and commercial terms of its broadband Internet access services sufficient for consumers to make informed choices regarding use of such services and for content, application, service, and device providers to develop, market, and maintain Internet offerings.

A mass-market retail service by wire or radio that provides the capability to transmit data to and receive data from all or substantially all Internet endpoints, including any capabilities that are incidental to and enable the operation of the communications service, but excluding dial-up Internet access service. This term also encompasses any service that the Commission finds to be providing a functional equivalent of the service described in the previous sentence, or that is used to evade the protections set forth in this Part.

A network management practice is a practice that has a primarily technical network management justification, but does not include other business practices. A network management practice is reasonable if it is primarily used for and tailored to achieving a legitimate network management purpose, taking into account the particular network architecture and technology of the broadband Internet access service.

In brief, the new rules forbid providers from fiddling with your Internet traffic for the purposes of speeding up their preferred partners while slowing down everyone else for economic motivations. It does allow providers to engage in reasonable “network management” as long as those management techniques apply equally to all content of a specific type. For instance, Comcast cannot slow down Netflix while speeding up its own affiliated online streaming services.

Speed costs.

At least in central Florida where Bright House Networks provides cable service.

The company’s entire Florida service area will be able to sign up for 300/15Mbps broadband beginning later this month. The cost ranges from $95 a month for customers with a deluxe bundle of services all the way up to $199.95 a month for Internet-only customers.

“We continually look for ways to provide the best available choices to our customers. Just a few months ago, we increased our maximum bandwidth offering to 150Mbps, and now we are making available an additional product at 300Mbps,” said Kevin Hyman, executive vice president, Cable Operations, Bright House Networks. “We’ve opted to make this product available to our entire Florida footprint meaning millions of Floridians will have this choice available to them.”

Bright House will support the speeds on its existing DOCSIS 3 network, which means some customers with older modems and slower speeds may need new equipment to take full advantage of the speed tier. Upload speeds drag behind download speeds because of existing network architecture, although other cable companies are managing to offer higher upload speeds than Bright House. When DOCSIS 3.1 arrives, expect upstream speeds to get a boost.

Verizon reminds us its customers can already get faster upload speeds (300/300Mbps) for around the same price Bright House charges for broadband-only service.

The newest tier joins Bright House’s other tiers, which were upgraded late last year:

Dunedin is New Zealand’s “Gigatown” and ISP Orcon sells residents unlimited access to gigabit speeds for $68.50US a month.

New Zealand is now the world leader in fiber optic broadband deployment, achieving an annual growth rate of 272 percent and on the way to becoming one of the top 10 nations for broadband speed.

“We are now ahead of Australia, the United States and Japan for fixed broadband, with more than 31 broadband subscriptions for every 100 New Zealanders signed up for this service,” said Amy Adams, New Zealand’s Communications Minister. “This is an impressive jump and demonstrates the impact that the government’s $2 billion investment in the Ultra-fast Broadband and Rural Broadband Initiative program is having on the telecommunications services available to New Zealanders. People are increasingly choosing fiber for its superior speeds, capacity and reliability as the build continues across New Zealand.”

Before the government intervened, broadband in New Zealand was notoriously slow and rationed with low usage allowances and speed throttling. Most of the country received ADSL service, a technology that is rapidly being discarded by most developed nations in favor of VDSL in rural areas and fiber optic broadband in urban and suburban communities. Government policy defined broadband as an essential service for the country’s current and future economic growth and implemented a nationwide broadband improvement plan designed to replace or augment outdated copper telephone lines with fiber optic infrastructure.

While countries like the United States and Canada effectively allow private corporations to define and control their digital destinies, New Zealand believes transformational ultra-fast broadband is too important to leave in the hands of industry alone.

“Fiber is very much like electricity was 100 years ago,” said Maxine Elliot, CEO of Ultra-Fast Fibre (New Zealand). “It’s the single biggest infrastructure build we have done in a long time and it will make that kind of difference in our lives. I think when they first began building out electricity, it was all about a light bulb. No one could have imagined we would have microwaves and computers. We cannot begin to imagine the change that we are about to see with fiber.”

The explosive growth of fiber broadband has helped the country leap ahead of much larger OECD members like Australia and the United States.

“Over the past ten years, we have moved up from 22nd place out of 30 OECD countries in June 2004 to being 15th out of 34 OECD countries for fixed broadband subscriptions as at June 2014,” Adams noted. “At the same time, the quality of people’s broadband packages is improving, with greater numbers of customers using VDSL or fiber, rather than the older ADSL technology.”

The fiber infrastructure has also led to other benefits not originally anticipated. Wireless companies throughout the country have tapped into the fiber connections which deliver backhaul connectivity between cell towers and the fiber broadband network, allowing greater wireless broadband speeds and more capacity. Today, New Zealand is in the top 10 in the OECD for wireless broadband.

New Zealand’s fiber network has allowed providers to cut prices, increase speeds, and offer unlimited access as an affordable option for customers who want the service. It is also expected to dramatically cut the costs of maintaining the country’s telecom network, which were growing as older copper infrastructure aged.

[flv]http://www.phillipdampier.com/video/Ultra Fast Fibre Why ultra-fast broadband.mp4[/flv]

New Zealand believes its digital future depends on fiber optics, not on last generation DSL from the phone company. This video explains the immediate benefits of discarding century-old copper infrastructure in favor of fiber optics. (3:17)

[flv]http://phillipdampier.com/video/Ultrafast Fibre Installation process.mp4[/flv]

Ultra-Fast Fibre installation is orderly, on time, and technicians will even plant new grass seed and color-match any replacement concrete or driveway patches. This video explains the three-step process customers go through to get fiber service installed. (3:59)

The deck is stacked against independent cable operators fighting to stay competitive in a marketplace obsessed with consolidation and volume discounts on cable programming. The excessive costs paid by small, often family owned cable operators have now become so great, they are impeding broadband upgrades and expansion, according to the American Cable Association.

The ACA represents small and medium cable operators that live in a different world than Comcast and Time Warner Cable. For years, these smaller, usually rural operators have been at a disadvantage negotiating with cable programmers for reasonable programming rates. The largest cable operators win the best volume discounts, often offset by higher rates for the smaller cable companies that are typical of ACA’s membership roster.

With the FCC now enforcing Section 706 of its mandate requiring the Commission to advance the cause of competitive and ubiquitous broadband, the ACA has gotten creative in comments urging the FCC to crack down on the kinds of unfair programming contracts that force small operators to spend an ever-increasing amount of their budgets on cable television networks instead of broadband expansion.

Video margins are dropping, which means smaller operators have less to invest in broadband. (Chart: SNL/Kagan)

“It has become evident that the increasing prices video programmers and broadcasters charge multichannel video programming distributors (MVPDs) can act as a drag on broadband deployment,” said ACA president Matt Polka. “If these prices continue their upward spiral, existing providers of both broadband and MVPD services and new entrants will be deterred from expanding their broadband networks or otherwise undertaking new builds.”

Removing barriers to investment is one of the requirements the FCC is supposed to enforce under Section 706 and it has recently shown a willingness to do that by overturning Tennessee and North Carolina laws restricting the growth of municipal broadband. The ACA now wants to learn if the FCC will give small cable operators some relief as well.

The ACA argues that broadband providers must offer consumers video along with broadband and voice services, yet they face ever-increasing video programming costs that squeeze margins.  As a result, smaller triple play providers’ ability to achieve a sufficient return on investment for deploying broadband, particularly in new areas, is quickly diminishing.

The trade group wants the FCC to reform program-access rules to guarantee fairer treatment for smaller cable operators who depend on group buying power through buying co-ops like the National Cable Television Cooperative. The ACA also wants a prohibition on programmers yanking their signals in the middle of retransmission consent contract negotiations. The ability to pull a signal off a cable system gives programmers an unfair negotiating advantage according to the ACA.