Communications is one of the most innovative sectors of the U.S. economy. Industries ranging from broadcasting, smart phones, over-the-top Internet, cable, and satellite are battling for a larger slice of the market for entertainment and communication, broadly defined. So far, the secret to success has usually been the introduction of a new technology or business model that improves users’ experience. Regulators should welcome this type of marketplace competition since it produces faster growth and better living standards. It also helps boost U.S. competitiveness in a strategic competition against international challengers.
However, companies sometimes engage in another form of competition. That is, seeking to pressure regulators to give their own preferred technology or standards an advantage by adopting rules that favor them. This can be done by forcing competitors to use a favored regulatory standard or discouraging the use of a rival one. Either option conveys a competitive advantage in the marketplace. While it is normally preferable for companies that may compete with each other to face similar regulatory burdens, this is almost always better achieved by lowering the total burden rather than increasing it. Specifically, regulators should be very careful not to favor one technology over another absent compelling circumstances.
The broadcasters’ request has attracted opposition, including from cable and satellite operators who would have to adopt Next Gen TV in order to deliver broadcasters’ channels to their subscribers. The broadcasters are also requesting that the FCC should set a firm deadline ending use of the current ATSC 1.0 signals. This would force everyone to switch over to the new standard. Viewers would have to buy either converters to translate the new standard or new televisions with the new tuners.
As the NCTA writes: “[T]he cable industry does not oppose broadcasters’ use of new technologies. We simply believe that broadcasters’ transition to a new standard should not come at the expense of [multichannel video programming distributors], equipment manufacturers, and consumers, with no guarantee of meaningful benefits.”
The FCC may lack the power to do what broadcasters are requesting. As the NCTA points out, current must carry requirements were passed when it was possible to argue that cable carriage was necessary to protect free, over-the-air broadcasting because there was little competition between content providers. Since then there has been an explosion in video offerings. In addition to the traditional over-the-air broadcasters, many homes can choose between cable, satellite, fiber, and over-the-top content on the Internet. The rationale for regulation is much weaker now.
In addition, courts have adopted less deferential standards for reviewing agency action, especially for issues of “vast economic and political significance,” unless Congress has clearly empowered the agency with authority over the issue. FCC rules may not survive a challenge under the new doctrine. The NCTA argues that forced conversion, by requiring significant costs, would represent a taking and force their members to carry certain broadcasts against their will.
Continued innovation in the communications marketplace over the next decade will be much faster if two conditions are met. The first is that new technical standards are welcome provided they increase value to consumers. Second, such new standards will need to spread through voluntary adoption driven by consumer demand. The FCC should not favor one set of standards over others.
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