This document summarizes a presentation on franchising communications providers. It discusses defining cable, telecommunications, and information services; reviewing industry financial statistics; determining if fees are being collected correctly from providers; issues with bundled revenues; renewing franchises; and key provisions for franchise negotiations. The presentation provides information on types of communications services, top cable operators, industry revenues, the need to impose fees on rights-of-way users, and questions for cities to consider regarding franchise agreements and renewals.

1. International Municipal Lawyers Association
2012 Annual Conference
October 21-24, 2012 - Austin, TX
Brian T. Grogan, Esq., Moss & Barnett
FRANCHISING
COMMUNICATIONS PROVIDERS

2. 1

3. Introduction
• Define types of communications services
• Review industry financial statistics
• Is your City collecting fees from providers
• Bundled revenues – determine fees owed
• Renewal of franchises
• Process to be followed
• Key provisions in franchise negotiations
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4. Types of Communications Services
• Information services
– Cities have no legal authority to regulate
• Telecommunication services
– Some states permit local franchising/fees
• Cable services
– 50% of states permit local franchising
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5. Information Services
Information services means:
the offering of a capability for generating, acquiring,
storing, transforming, processing, retrieving, utilizing,
or making available information via
telecommunications, and includes electronic
publishing, but does not include any use of any such
capability for the management, control or operation
of a telecommunications system or the management
of the telecommunications service.
47 U.S.C. § 153(20)
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6. Telecommunications Service
Telecommunications Service means:
the offering of telecommunications for a fee directly
to the public, or to such classes of users as to be
effectively available directly to the public, regardless
of the facilities used.
47 U.S.C. § 153(46)
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7. Cable Service
Cable Service means:
(A) the one-way transmission to subscribers of
(i) video programming, or
(ii) other programming service and
(B) subscriber interaction, if any, which is required for the
selection or use of such video programming or other
programming service.
47 U.S.C. § 522(6)
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8. Top 15 Cable Operators
2010 Subs 2012 Subs
1. Comcast Corporation 23,212,000 22,118,000
2. Direct TV 18,760,000 19,914,000
3. Dish Network Corporation 14,318,000 14,061,000
4. Time Warner Cable, Inc. 12,706,000 12,484,000
5. Cox Communications, Inc. 5,038,000 4,661,000
6. Charter Communications, Inc. 4,716,000 4,269,000
7. Verizon Communications, Inc. 3,203,000 4,473,000
8. Cablevision Sys. Corp. 3,067,000 3,257,000
9. AT&T, Inc. 2,504,000 4,146,000
10. Bright House Networks, LLC 2,222,000 2,059,000
11. Suddenlink Communications 1,225,000 1,230,000
12. Mediacom 1,216,000 1,037,000
13. Insight Communications 710,000 Sold to TW
14. CableOne, Inc. 654,000 613,000
15. WideOpenWest Networks, LLC 393,000 456,000
Source: NCTA website
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9. 8
Cable Industry Revenue (in billions)
Year Res Video Other Rev Total Rev
• 1996 $24,136 $2,984 $27,120
• 1997 $26,270 $3,532 $29,802
• 1998 $27,626 $6,152 $33,778
• 1999 $30,050 $7,341 $37,391
• 2000 $32,541 $9,575 $42,116
• 2001 $35,734 $9,743 $45,477
• 2002 $36,738 $11,160 $47,898
• 2003 $39,338 $15,056 $54,394
• 2004 $41,813 $18,212 $60,025
• 2005 $43,832 $21,846 $65,678
• 2006 $46,518 $25,354 $71,872
• 2007 $49,105 $29,719 $78,824
• 2008 $51,467 $34,470 $86,281
• 2009 $53,040 $36,861 $89,901
• 2010 $55,470 $38,310 $93,780
• 2011 $56,938 $40,660 $97,598
Source: SNL Kagan – NCTA website

10. Subscribers v. Revenue
Basic Video Subscribers Total Revenue
2005 65.4 million $65.7 billion ($ 83.69/sub/mo)
2007 64.9 million $78.8 billion ($101.21/sub/mo)
2009 62.1 million $89.9 billion ($120.64/sub/mo)
2011 58.0 million $97.6 billion $140.23/sub/mo)
Subscribers down but per subscriber revenue up
Source: NCTA website
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11. 10
Three Questions to Ask
1. Who is working in your ROW?
– Franchised/licensed
– Subcontractor
2. Are they complying with the local
code/franchise?
– Permitting – fees
– Restoration
– Bonding
3. Is the City being compensated?
– Franchise/license fees - % of revenue
– Linier foot charges
– Utility taxes, occupation tax

12. Follow-up Questions
• Does code/franchise maximize compensation
options?
– Consistent with state and federal law
• Has the City verified required payments?
– Review of fees remitted by ROW users
• Has the City verified the classification of
services?
– VOIP (IP voice) – Is it telecom or broadband?
• Audit v. review
– Rarely is an audit performed
– Agreed upon procedures = review
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13. Why Impose Fees?
• Municipalities impose fees on ROW users:
– To recover fair rental rate for ROW occupation
– To reimburse for the disruption of the ROW
• ROW disruption imposes a financial burden
– Should not be borne by municipality
• But by ROW user
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14. ROW Occupation = Financial Burdens
1. Disruption caused by system construction
2. Reduced value (integrity/life span) of ROW
Following multiple street cuts
3. Difficulty accessing existing facilities
In an already crowded ROW
4. Ongoing maintenance and oversight of ROW
5. Added cost of ROW replacement
Given added facilities that must be relocated
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15. Example - Cable Provider
• Cities have right to review accuracy of payments
– Regardless of state issued franchise, or
– Locally issued franchise
• Issues to consider:
– Gross revenue definition
• Permitted exclusions
– GAAP issues
– Bundling of services
– Interest due on late/underpaid fees
– Statute of limitations
– Reimbursement of audit fees
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16. 15
Bundled Revenues
• Cable operator charges $99 for triple play
– Voice, video and data (broadband)
– Only required to remit 5% fee on video/cable
• How is the $99 allocated by operator?
• 33% to video?
• Is video offered at steeper discount
– to reduce franchise fee burden?
• Review can verify how revenue is booked
– Determine allocation of $99 among bundled services

17. Fee on Fee
• Still most common source of underpayment
• Accounts for additional .25% on 5% fee
• Franchise fee is assessed on operator
– Not subscriber
• If cable bill = $20.00
– If fee is built into the $20 rate, 5% fee = $1.00
• $19 to operator, $1 to City
– If fee is added as line item, 5% fee = $1.05
– $1.00 franchise fee is revenue to operator
– $20 to operator, $1.05 to City
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18. Fee on Fee
• Typical cable bill = $70.00 /mo
• Assume City with 20,000 cable subscribers
– $840,000/year for 5% franchise fee
– Failure to include fee on fee
– Results in loss of $42,000/year
• Over 5 years (statute of limitations)
– $250,000 (including interest)
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19. Do you know who is in your ROW?
• Most cities have nearly a dozen telecommunications
providers occupying portions of ROW
– What services are they providing?
– What regulations apply to their services
• Use to have one company – narrow line of service
– Today every communications company competes
• Allowing fee use of the ROW costs all residents.
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20. 19
Why is Renewal More
Difficult Now Than 15 Years Ago?
1. Industry consolidation over the last decade
2. Increased competition from Direct TV
3. AT&T and Verizon franchising efforts
4. State franchising - impacting over 20 states
5. Online competition
a. YouTube and over-the-top competition (Hulu)
b. Wireless devices – “cable anywhere” (iPad, iPhone, laptops)
6. Poor economy
a. Fewer subscribers
b. Reduced cash flow for operator – less staff
c. Less capital expenditures
d. Tight restrictions on franchise commitments

21. Why Does One Contract
Require So Much Effort?
• Because it’s not just the cable franchise that is impacted
• During renewal cities must also consider:
– Cable regulatory ordinance
– Right-of-way ordinance or code provisions
– Customer service provisions
– General code provisions
– Competing operators’ franchises
– Gas, electric, telephone franchises
• Some of the City Code may require redrafting
• Certain agreements with operator may be in “side letter”
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22. 21
Renewal Documents
Existing
Cable Franchise
City Code Provisions
ROW Provisions
Customer Service
New Cable
Franchise
Cable Regulatory
Ordinance
Separate
Letter Agreement

23. 22
Why Can’t We Put the Cable
Franchise Up For Competitive Bid?
• Cable Act prohibits a City from denying a cable operator’s
request for franchise renewal
– Just because another operator may be willing to agree to
more favorable franchise terms
• Under the Cable Act an operator can only be denied
franchise renewal for one of the following four reasons:
1. Operator’s failure to comply with existing franchise
2. Quality of operator’s service
3. Operator’s legal, technical and financial qualifications
4. Reasonableness of operator’s proposal to meet the
City’s assessment of needs and interests
- Taking into consideration associated costs

24. 23
Should We Conduct Informal
or Formal Renewal Process?
• Short answer – prepare for both
• Operator must request renewal 3 years prior to
franchise expiration
– Request triggers the formal protections
– Failure to request renewal
• Loss of Cable Act formal protections
– Request will also ask for informal negotiations
– City has 6 months to “initiate” renewal
• If you chose to proceed informally -
– Be careful not to “paint yourself in a corner”

25. 24
Informal Process
1. Most franchises are negotiated informally
2. Still need to know local needs/interests
– Needs Assessment remains crucial
3. Be careful not to get backed into a corner
a. Nowhere to go – must accept poor proposal
b. What if operator changes deal at 11th hour
- What is City’s recourse?
4. Renewal is like buying a new car
a. Make certain you have a plan B
b. Be prepared to walk if price is too high
5. Preparation for formal
a. Provides City with options
b. Allows for successful negotiations

26. What is a Needs Assessment?
1. Franchise fee and PEG fee review/audit
2. Technical/engineering review of the cable system
- Condition of current cable plant
- How well the system has been maintained
- Compliance with electric safety code
3. Telephone survey of cable subscribers
4. Nonprofit/civic organizations/departmental surveys
5. Review of current PEG Access facilities and
operations
- Evaluate condition of equipment and facilities
- Evaluate services offered and channels utilized
- Evaluate operational procedures and connectivity
6. Public hearings
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27. 26
Can Operators’ Itemize
Fees on Subscriber Bills?
• Yes
• Subscriber bill itemization - Cable Act §622(c) [542(c)]
– Each cable operator may identify as a separate line item
on each regular bill of each subscriber:
1. The amount of the total bill assessed as a franchise fee
- And the identity of the LFA (City) to which the fee is paid
2. Franchise imposed support for PEG channels or the use of
such channels
3. The amount of any other fee, tax, assessment
- Imposed by any governmental authority
- On transaction between the operator and subscriber

28. 27
Can City Obtain PEG
Support Beyond the 5% Fee?
• Yes
• The term "franchise fee" does not include:
– Capital costs which are required by the franchise to be
incurred by the cable operator for public, educational, or
governmental access facilities.
 47 U.S.C. § 542
• Operators oppose PEG fees – Operators argue:
– Makes them less competitive than Direct TV / Dish
– Use your franchise fees, that’s what they’re for
– Why do you want raise taxes; Mayor won’t like that?
– Nobody watches PEG anyway
– No other cities ask for PEG fees
– We never pay PEG fees – corporate policy

29. 28
What Are the Key
PEG Issues to Consider?
Start with the four “C’s”
1. Channels - Identify needed PEG channels
a. Analog/digital migration (HDTV)
b. Location, location, location
c. Transmission compatibility
2. Connectivity with origination facilities
a. Two-way connections
b. I-Net obligations
3. Cash - capital and operational support
a. Capital - equipment and facilities = “depreciable life”
b. Operator will argue against “operational support”
4. Content –who will program the channels
- City, Schools, Colleges, Non-profit, public users

30. 29
What Is An
Institutional Network?
The term Institutional Network “I-Net” means:
– Cable Act §611(f) [531(f)]
• A communication network which is constructed or
operated by the cable operator
• Generally available only to subscribers who are not
residential subscribers
– In practice an I-Net is typically:
• a dedicated network built by an operator
• used by a City free of charge or at a low cost
• for voice, video and data transmissions
– Operators want to convert I-Nets to:
• Commercial services contracts to increase profits

31. 30
Can an Operator Say NO
to a Requested I-Net?
• Cable operator usually cites to:
- Cable Act §621(b) [541(b)]
A franchising authority may not impose any requirement that
has the purpose or effect of prohibiting, limiting, restricting,
or conditioning the provision of a telecommunications service
by a cable operator or an affiliate thereof.
• Cities should look to:
- Cable Act §621(b) [541(b)]
Except as otherwise permitted by sections 611 and 612, a
franchising authority may not require a cable operator to
provide any telecommunications service or facilities, other
than institutional networks, as a condition of the initial
grant of a franchise, a franchise renewal, or a transfer of a
franchise.

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Can City’s Still
Regulate Customer Service?
1. FCC standards:
a. Office hours and telephone available
b. Installations, outages, and service calls
c. Comm. b/t operators and subscribers
d. Billing, refunds, and credits
e. Local office
• Look to both 47 C.F.R. § 76.309 and § 76.1601 - 1604 (notices)
2. Reporting/enforcement – not in FCC regs
– Specify in franchise
3. Operator may argue - competitive disadvantage
– May want relief if FCC amends regs
4. City can adopt separate Customer Service Ordinance
– Part of City Code

33. Will Operator Still Provide
Free Cable to Schools and Public Buildings?
• What is operator currently providing?
– Basic, expanded, other?
– Free additional drops, free equipment?
• Are facilities using free service?
– Schools are moving to IP based solutions
• Operator policy for service to new facilities?
– Distance from active plant
– Internal distribution
– Terminal equipment
– Costs
• Should needs assessment address issue?
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34. Is a Level Playing Field
Provision Mandatory in Renewal?
• No
• Operator will demand LPF language
– Nothing in federal law requires such a provision
– Check state law for state obligation
 Why should the City agree to any language more
burdensome than state or federal law?
• Issues to watch for in proposed language
– “Opt-out” provisions that allow operator to avoid franchise
obligations
– “Line item veto” - allows the operator to unilaterally
modify franchise if different than competing franchise
– See paper for sample language
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35. 34
Thank You
Brian T. Grogan, Esq.
Moss & Barnett, A Professional Association
4800 Wells Fargo Center, 90 South Seventh Street
Minneapolis, MN 55402-4129
(612) 877-5340 phone / (612) 877-5999 facsimile
e-mail: GroganB@moss-barnett.com
Website: municipalcommunicationslaw.com