FEDERAL COMMUNICATIONS COMMISSION 
WASHINGTON 
OFFICE OF 
THE CHAIRMAN 
The Honorable Don Young 
U.S. House of Representatives 
2314 Rayburn House Office Building 
Washington, D.C. 20515 
Dear Congressman Young: 
July 27, 2015 
Thank you for your letter urging the Commission to reform our Universal Service Fund 
("USF") mechanisms to support broadband deployment to tribal communities. The universal 
service program is one of the most important tools at our disposal to ensure that consumers and 
businesses on tribal lands and in rural America have the same opportunities as their urban and 
suburban counterparts to be active participants in the 21 st century economy. I share your goal of 
ensuring that the universal service program better reflects today' s marketplace and technology in 
areas served by rate-of-return carriers. 
The Commission is strongly committed to working with Tribal Nations through 
meaningful and vigorous efforts on a regular basis. We are also committed to ensuring that 
Tribal concerns are appropriately considered and addressed as part ofthe Commission's broader 
efforts to improve broadband deployment throughout the United States. As we move 
forward in 2015, the Commission plans to continue to engage and consult with Tribal Nations 
and others in Indian Country on long-term reform of rate-of-return support. 
As you note, I stated at the Senate Commerce Committee' s FCC Oversight Hearing 
earlier this year that resolving the issue of reforming USF mechanisms for areas served by rate of 
return carriers will require all the stakeholders to work together and make hard decisions to reach 
consensus on the best path forward. Everybody agrees that the goal of any changes should be 
supporting broadband in rural areas. With that in mind, I directed my staff and staff members 
from the Commission' s Wireline Bureau to meet with stakeholders in the rate-of-return 
community. Commission staff has also engaged with tribal stakeholders regarding these issues. 
We have encouraged all stakeholders in the rate-of-return community to work together to 
develop an approach that both has the widespread support of the rate-of-return community and 
meets the principles unanimously outlined by the Commission in our April 2014 Further Notice 
of Proposed Rulemaking. To this end, on April28, 2015, FCC staff initiated consultative 
outreach with the National Tribal Telecommunications Association ("NTTA"), the association 
representing Tribally-owned and operated rate-of-return carriers. Additionally, on June 9th, 
NTTA met with my office and each of my fellow Commissioners ' offices, the Wireline Bureau, 
and the Consumer and Governmental Affairs Bureau' s Office ofNative Affairs and Policy to 
discuss alternatives to both model-based and non-model based proposals for rate-of-return 
reform. In those meetings, NTTA committed to submitting its own proposal. On June 19th, 
Page 2-The Honorable Don Young 
NTT A filed a proposal regarding a Tribal Broadband Factor for all rate-of-return carriers serving 
Tribal lands. NTTA' s filing has been included in the record ofthe proceeding and is under staff 
review. 
I recognize the substantial time, effort, and resources that have been invested in this effort 
to date by stakeholders in the rate-of-return community, and I am committed to finding a path 
forward by the end of the year. But it is important to have a solution - or set of solutions -that 
creates the right incentives to deploy modem networks throughout rural America, including 
tribal lands, meets the Commission's overarching policy objectives, and has the widespread 
support of the rate-of-return community. 
I look forward to working with you to make continued progress on the deployment of 
broadband to consumers on tribal lands a reality. 
Sincerely, 
Tom Wheeler 
FEDERAL COMMUNICATIONS COMMISSION 
WASHINGTON 
OFFICE OF 
THE CHAIRMAN 
The Honorable John Y armuth 
U.S. House ofRepresentatives 
435 Cannon House Office Building 
Washington, D.C. 20515 
Dear Congressman Y armuth: 
July 27,2015 
Thank you for your letter urging the Commission to reform our Universal Service Fund 
("USF") mechanisms to support broadband deployment to tribal communities. The universal 
service program is one of the most important tools at our disposal to ensure that consumers and 
businesses on tribal lands and in rural America have the same opportunities as their urban and 
suburban counterparts to be active participants in the 2Pt century economy. I share your goal of 
ensuring that the universal service program better reflects today' s marketplace and technology in 
areas served by rate-of-return carriers. 
The Commission is strongly committed to working with Tribal Nations through 
meaningful and vigorous efforts on a regular basis. We are also committed to ensuring that 
Tribal concerns are appropriately considered and addressed as part of the Commission's broader 
efforts to improve broadband deployment throughout the United States. As we move 
forward in 2015 , the Commission plans to continue to engage and consult with Tribal Nations 
and others in Indian Country on long-term reform of rate-of-return support. 
As you note, I stated at the Senate Commerce Committee' s FCC Oversight Hearing 
earlier this year that resolving the issue of reforming USF mechanisms for areas served by rate of 
return carriers will require all the stakeholders to work together and make hard decisions to reach 
consensus on the best path forward. Everybody agrees that the goal of any changes should be 
supporting broadband in rural areas. With that in mind, I directed my staff and staff members 
from the Commission' s Wireline Bureau to meet with stakeholders in the rate-of-return 
community. Commission staff has also engaged with tribal stakeholders regarding these issues. 
We have encouraged all stakeholders in the rate-of-return community to work together to 
develop an approach that both has the widespread support of the rate-of-return community and 
meets the principles unanimously outlined by the Commission in our April2014 Further Notice 
of Proposed Rulemaking. To this end, on April 28, 2015 , FCC staff initiated consultative 
outreach with the National Tribal Telecommunications Association ("NTT A"), the association 
representing Tribally-owned and operated rate-of-return carriers. Additionally, on June 9th, 
NTT A met with my office and each of my fellow Commissioners ' offices, the Wireline Bureau, 
and the Consumer and Governmental Affairs Bureau' s Office ofNative Affairs and Policy to 
discuss alternatives to both model-based and non-model based proposals for rate-of-return 
reform. In those meetings, NTTA committed to submitting its own proposal. On June 19th, 
Page 2-The Honorable John Y arrnuth 
NTT A filed a proposal regarding a Tribal Broadband Factor for all rate-of-return carriers serving 
Tribal lands. NTTA's filing has been included in the record ofthe proceeding and is under staff 
review. 
I recognize the substantial time, effort, and resources that have been invested in this effort 
to date by stakeholders in the rate-of-return community, and I am committed to finding a path 
forward by the end of the year. But it is important to have a solution- or set of solutions- that 
creates the right incentives to deploy modem networks throughout rural America, including 
tribal lands, meets the Commission's overarching policy objectives, and has the widespread 
support of the rate-of-return community. 
I look forward to working with you to make continued progress on the deployment of 
broadband to consumers on tribal lands a reality. 
Sincerely, 
Tom Wheeler 
FEDERAL COMMUNICATIONS COMMISSION 
WASHINGTON 
OFFICE OF 
THE CHAIRMAN 
The Honorable Peter Welch 
U.S. House of Representatives 
2303 Rayburn House Office Building 
Washington, D.C. 20515 
Dear Congressman Welch: 
July 27, 2015 
Thank you for your letter urging the Commission to reform our Universal Service Fund 
("USF") mechanisms to support broadband deployment to tribal communities. The universal 
service program is one of the most important tools at our disposal to ensure that consumers and 
businesses on tribal lands and in rural America have the same opportunities as their urban and 
suburban counterparts to be active participants in the 2Pt century economy. I share your goal of 
ensuring that the universal service program better reflects today' s marketplace and technology in 
areas served by rate-of-return carriers. 
The Commission is strongly committed to working with Tribal Nations through 
meaningful and vigorous efforts on a regular basis. We are also committed to ensuring that 
Tribal concerns are appropriately considered and addressed as part of the Commission's broader 
efforts to improve broadband deployment throughout the United States. As we move 
forward in 2015 , the Commission plans to continue to engage and consult with Tribal Nations 
and others in Indian Country on long-term reform of rate-of-return support. 
As you note, I stated at the Senate Commerce Committee' s FCC Oversight Hearing 
earlier this year that resolving the issue of reforming USF mechanisms for areas served by rate of 
return carriers will require all the stakeholders to work together and make hard decisions to reach 
consensus on the best path forward. Everybody agrees that the goal of any changes should be 
supporting broadband in rural areas. With that in mind, I directed my staff and staff members 
from the Commission' s Wireline Bureau to meet with stakeholders in the rate-of-return 
community. Commission staff has also engaged with tribal stakeholders regarding these issues. 
We have encouraged all stakeholders in the rate-of-return community to work together to 
develop an approach that both has the widespread support of the rate-of-return community and 
meets the principles unanimously outlined by the Commission in our April 2014 Further Notice 
of Proposed Rulemaking. To this end, on April28, 2015 , FCC staff initiated consultative 
outreach with the National Tribal Telecommunications Association ("NTT A"), the association 
representing Tribally-owned and operated rate-of-return carriers. Additionally, on June 9th, 
NTT A met with my office and each of my fellow Commissioners' offices, the Wireline Bureau, 
and the Consumer and Governmental Affairs Bureau's Office of Native Affairs and Policy to 
discuss alternatives to both model-based and non-model based proposals for rate-of-return 
reform. In those meetings, NTTA committed to submitting its own proposal. On June 19th, 
Page 2-The Honorable Peter Welch 
NTT A filed a proposal regarding a Tribal Broadband Factor for all rate-of-return carriers serving 
Tribal lands. NTT A's filing has been included in the record of the proceeding and is under staff 
review. 
I recognize the substantial time, effort, and resources that have been invested in this effort 
to date by stakeholders in the rate-of-return community, and I am committed to fmding a path 
forward by the end of the year. But it is important to have a solution- or set of solutions- that 
creates the right incentives to deploy modem networks throughout rural America, including 
tribal lands, meets the Commission's overarching policy objectives, and has the widespread 
support of the rate-of-return community. 
I look forward to working with you to make continued progress on the deployment of 
broadband to consumers on tribal lands a reality. 
Sincerely, 
Tom Wheeler 
FEDERAL COMMUNICATIONS COMMISSION 
WASHINGTON 
OFFICE OF 
THE CHAIRMAN 
The Honorable Frank Pallone 
U.S. House ofRepresentatives 
23 7 Cannon House Office Building 
Washington, D.C. 20515 
Dear Congressman Pallone: 
July 27,2015 
Thank you for your letter urging the Commission to reform our Universal Service Fund 
("USF") mechanisms to support broadband deployment to tribal communities. The universal 
service program is one of the most important tools at our disposal to ensure that consumers and 
businesses on tribal lands and in rural America have the same opportunities as their urban and 
suburban counterparts to be active participants in the 21 st century economy. I share your goal of 
ensuring that the universal service program better reflects today' s marketplace and technology in 
areas served by rate-of-return carriers. 
The Commission is strongly committed to working with Tribal Nations through 
meaningful and vigorous efforts on a regular basis. We are also committed to ensuring that 
Tribal concerns are appropriately considered and addressed as part of the Commission's broader 
efforts to improve broadband deployment throughout the United States. As we move 
forward in 2015, the Commission plans to continue to engage and consult with Tribal Nations 
and others in Indian Country on long-term reform of rate-of-return support. 
As you note, I stated at the Senate Commerce Committee' s FCC Oversight Hearing 
earlier this year that resolving the issue of reforming USF mechanisms for areas served by rate of 
return carriers will require all the stakeholders to work together and make hard decisions to reach 
consensus on the best path forward. Everybody agrees that the goal of any changes should be 
supporting broadband in rural areas. With that in mind, I directed my staff and staff members 
from the Commission' s Wireline Bureau to meet with stakeholders in the rate-of-return 
community. Commission staff has also engaged with tribal stakeholders regarding these issues. 
We have encouraged all stakeholders in the rate-of-return community to work together to 
develop an approach that both has the widespread support of the rate-of-return community and 
meets the principles unanimously outlined by the Commission in our April2014 Further Notice 
of Proposed Rule making. To this end, on April 28, 2015, FCC staff initiated consultative 
outreach with the National Tribal Telecommunications Association ("NTTA"), the association 
representing Tribally-owned and operated rate-of-return carriers. Additionally, on June 9th, 
NTTA met with my office and each of my fellow Commissioners' offices, the Wireline Bureau, 
and the Consumer and Governmental Affairs Bureau's Office ofNative Affairs and Policy to 
discuss alternatives to both model-based and non-model based proposals for rate-of-return 
reform. In those meetings, NTT A committed to submitting its own proposal. On June 19th, 
\ 
Page 2-The Honorable Frank Pallone 
NTT A filed a proposal regarding a Tribal Broadband Factor for all rate-of-return carriers serving 
Tribal lands. NTTA's filing has been included in the record of the proceeding and is under staff 
review. 
I recognize the substantial time, effort, and resources that have been invested in this effort 
to date by stakeholders in the rate-of-return community, and I am committed to finding a path 
forward by the end of the year. But it is important to have a solution- or set of solutions -that 
creates the right incentives to deploy modem networks throughout rural America, including 
tribal lands, meets the Commission's overarching policy objectives, and has the widespread 
support of the rate-of-return community. 
I look forward to working with you to make continued progress on the deployment of 
broadband to consumers on tribal lands a reality. 
Sincerely, 
Tom Wheeler 
FEDERAL COMMUNICATIONS COMMISSION 
WASHINGTON 
OFFICE OF 
THE CHAIRMAN 
The Honorable Gwen Moore 
U.S. House ofRepresentatives 
2245 Rayburn House Office Building 
Washington, D.C. 20515 
Dear Congresswoman Moore: 
July 27,2015 
Thank you for your letter urging the Commission to reform our Universal Service Fund 
("USF") mechanisms to support broadband deployment to tribal communities. The universal 
service program is one of the most important tools at our disposal to ensure that consumers and 
businesses on tribal lands and in rural America have the same opportunities as their urban and 
suburban counterparts to be active participants in the 21 51 century economy. I share your goal of 
ensuring that the universal service program better reflects today' s marketplace and technology in 
areas served by rate-of-return carriers. 
The Commission is strongly committed to working with Tribal Nations through 
meaningful and vigorous efforts on a regular basis. We are also committed to ensuring that 
Tribal concerns are appropriately considered and addressed as part of the Commission1s broader 
efforts to improve broadband deployment throughout the United States. As we move 
forward in 2015 , the Commission plans to continue to engage and consult with Tribal Nations 
and others in Indian Country on long-term reform of rate-of-return support. 
As you note, I stated at the Senate Commerce Committee' s FCC Oversight Hearing 
earlier this year that resolving the issue of reforming USF mechanisms for areas served by rate of 
return carriers will require all the stakeholders to work together and make hard decisions to reach 
consensus on the best path forward. Everybody agrees that the goal of any changes should be 
supporting broadband in rural areas. With that in mind, I directed my staff and staff members 
from the Commission' s Wireline Bureau to meet with stakeholders in the rate-of-return 
community. Commission staff has also engaged with tribal stakeholders regarding these issues. 
We have encouraged all stakeholders in the rate-of-return community to work together to 
develop an approach that both has the widespread support of the rate-of-return community and 
meets the principles unanimously outlined by the Commission in our April 2014 Further Notice 
of Proposed Rulemaking. To this end, on April28, 2015, FCC staff initiated consultative 
outreach with the National Tribal Telecommunications Association ("NTTA"), the association 
representing Tribally-owned and operated rate-of-return carriers. Additionally, on June 91h, 
NTT A met with my office and each of my fellow Commissioners' offices, the Wire line Bureau, 
and the Consumer and Governmental Affairs Bureau' s Office ofNative Affairs and Policy to 
discuss alternatives to both model-based and non-model based proposals for rate-of-return 
reform. In those meetings, NTTA committed to submitting its own proposal. On June 191h, 
Page 2-The Honorable Gwen Moore 
NTTA filed a proposal regarding a Tribal Broadband Factor for all rate-of-return carriers serving 
Tribal lands. NTT A's filing has been included in the record of the proceeding and is under staff 
review. 
I recognize the substantial time, effort, and resources that have been invested in this effort 
to date by stakeholders in the rate-of-return community, and I am committed to finding a path 
forward by the end of the year. But it is important to have a solution- or set of solutions- that 
creates the right incentives to deploy modem networks throughout rural America, including 
tribal lands, meets the Commission's overarching policy objectives, and has the widespread 
support of the rate-of-return community. 
I look forward to working with you to make continued progress on the deployment of 
broadband to consumers on tribal lands a reality. 
Sincerely, 
Tom Wheeler 
FEDERAL COMMUNICATIONS COMMISSION 
WASHINGTON 
OFFICE OF 
THE CHAIRMAN 
The Honorable Betty McCollum 
U.S. House ofRepresentatives 
1714 Longworth House Office Building 
Washington, D.C. 20515 
Dear Congresswoman McCollum: 
July 27, 2015 
Thank you for your letter urging the Commission to reform our Universal Service Fund 
("USF") mechanisms to support broadband deployment to tribal communities. The universal 
service program is one of the most important tools at our disposal to ensure that consumers and 
businesses on tribal lands and in rural America have the same opportunities as their urban and 
suburban counterparts to be active participants in the 21st century economy. I share your goal of 
ensuring that the universal service program better reflects today' s marketplace and technology in 
areas served by rate-of-return carriers. 
The Commission is strongly committed to working with Tribal Nations through 
meaningful and vigorous efforts on a regular basis. We are also committed to ensuring that 
Tribal concerns are appropriately considered and addressed as part of the Commission's broader 
efforts to improve broadband deployment throughout the United States. As we move 
forward in 2015, the Commission plans to continue to engage and consult with Tribal Nations 
and others in Indian Country on long-term reform of rate-of-return support. 
As you note, I stated at the Senate Commerce Committee' s FCC Oversight Hearing 
earlier this year that resolving the issue of reforming USF mechanisms for areas served by rate of 
return carriers will require all the stakeholders to work together and make hard decisions to reach 
consensus on the best path forward. Everybody agrees that the goal of any changes should be 
supporting broadband in rural areas. With that in mind, I directed my staff and staff members 
from the Commission' s Wireline Bureau to meet with stakeholders in the rate-of-return 
community. Commission staff has also engaged with tribal stakeholders regarding these issues. 
We have encouraged all stakeholders in the rate-of-return community to work together to 
develop an approach that both has the widespread support of the rate-of-return community and 
meets the principles unanimously outlined by the Commission in our April2014 Further Notice 
of Proposed Rulemaking. To this end, on April28, 2015, FCC staff initiated consultative 
outreach with the National Tribal Telecommunications Association ("NTTA"), the association 
representing Tribally-owned and operated rate-of-return carriers. Additionally, on June 9th, 
NTT A met with my office and each of my fellow Commissioners ' offices, the Wire line Bureau, 
and the Consumer and Governmental Affairs Bureau' s Office of Native Affairs and Policy to 
discuss alternatives to both model-based and non-model based proposals for rate-of-return 
reform. In those meetings, NTTA committed to submitting its own proposal. On June 19th, 
Page 2-The Honorable Betty McCollum 
NTTA filed a proposal regarding a Tribal Broadband Factor for all rate-of-return carriers serving 
Tribal lands. NTTA' s filing has been included in the record ofthe proceeding and is under staff 
review. 
I recognize the substantial time, effort, and resources that have been invested in this effort 
to date by stakeholders in the rate-of-return community, and I am committed to finding a path 
forward by the end of the year. But it is important to have a solution - or set of solutions- that 
creates the right incentives to deploy modern networks throughout rural America, including 
tribal lands, meets the Commission' s overarching policy objectives, and has the widespread 
support of the rate-of-return community. 
I look forward to working with you to make continued progress on the deployment of 
broadband to consumers on tribal lands a reality. 
Sincerely, 
Tom Wheeler 
FEDERAL COMMUNICATIONS COMMISSION 
WASHINGTON 
OFFICE OF 
THE CHAIRMAN 
The Honorable Ben Ray Lujan 
U.S. House ofRepresentatives 
2446 Rayburn House Office Building 
Washington, D.C. 20515 
Dear Congressman Lujan: 
July 27, 2015 
Thank you for your letter urging the Commission to reform our Universal Service Fund 
("USF") mechanisms to support broadband deployment to tribal communities. The universal 
service program is one of the most important tools at our disposal to ensure that consumers and 
businesses on tribal lands and in rural America have the same opportunities as their urban and 
suburban counterparts to be active participants in the 2P1 century economy. I share your goal of 
ensuring that the universal service program better reflects today' s marketplace and technology in 
areas served by rate-of-return carriers. 
The Commission is strongly committed to working with Tribal Nations through 
meaningful and vigorous efforts on a regular basis. We are also committed to ensuring that 
Tribal concerns are appropriately considered and addressed as part of the Commission's broader 
efforts to improve broadband deployment throughout the United States. As we move 
forward in 2015, the Commission plans to continue to engage and consult with Tribal Nations 
and others in Indian Country on long-term reform of rate-of-return support. 
As you note, I stated at the Senate Commerce Committee' s FCC Oversight Hearing 
earlier this year that resolving the issue of reforming USF mechanisms for areas served by rate of 
return carriers will require all the stakeholders to work together and make hard decisions to reach 
consensus on the best path forward. Everybody agrees that the goal of any changes should be 
supporting broadband in rural areas. With that in mind, I directed my staff and staff members 
from the Commission' s Wireline Bureau to meet with stakeholders in the rate-of-return 
community. Commission staff has also engaged with tribal stakeholders regarding these issues. 
We have encouraged all stakeholders in the rate-of-return community to work together to 
develop an approach that both has the widespread support of the rate-of-return community and 
meets the principles unanimously outlined by the Commission in our April 2014 Further Notice 
of Proposed Rulemaking. To this end, on April 28, 2015 , FCC staff initiated consultative 
outreach with the National Tribal Telecommunications Association ("NTTA"), the association 
representing Tribally-owned and operated rate-of-return carriers. Additionally, on June 91h, 
NTTA met with my office and each of my fellow Commissioners ' offices, the Wireline Bureau, 
and the Consumer and Governmental Mfairs Bureau' s Office ofNative Affairs and Policy to 
discuss alternatives to both model-based and non-model based proposals for rate-of-return 
reform. In those meetings, NTTA committed to submitting its own proposal. On June 191h, 
Page 2-The Honorable Ben Ray Lujan 
NTTA filed a proposal regarding a Tribal Broadband Factor for all rate-of-return carriers serving 
Tribal lands. NTTA' s filing has been included in the record ofthe proceeding and is under staff 
review. 
I recognize the substantial time, effort, and resources that have been invested in this effort 
to date by stakeholders in the rate-of-return community, and I am committed to finding a path 
forward by the end of the year. But it is important to have a solution- or set of solutions- that 
creates the right incentives to deploy modem networks throughout rural America, including 
tribal lands, meets the Commission' s overarching policy objectives, and has the widespread 
support of the rate-of-return community. 
I look forward to working with you to make continued progress on the deployment of 
broadband to consumers on tribal lands a reality. 
Sincerely, 
Tom Wheeler 
FEDERAL COMMUNICATIONS COMMISSION 
WASHINGTON 
OFFICE OF 
THE CHAIRMAN 
The Honorable Derek Kilmer 
U.S. House ofRepresentatives 
1429 Longworth House Office Building 
Washington, D.C. 20515 
Dear Congressman Kilmer: 
July 27,2015 
Thank you for your letter urging the Commission to reform our Universal Service Fund 
("USF") mechanisms to support broadband deployment to tribal communities. The universal 
service program is one of the most important tools at our disposal to ensure that consumers and 
businesses on tribal lands and in rural America have the same opportunities as their urban and 
suburban counterparts to be active participants in the 2Pt century economy. I share your goal of 
ensuring that the universal service program better reflects today' s marketplace and technology in 
areas served by rate-of-return carriers. 
The Commission is strongly committed to working with Tribal Nations through 
meaningful and vigorous efforts on a regular basis. We are also committed to ensuring that 
Tribal concerns are appropriately considered and addressed as part of the Commission's broader 
efforts to improve broadband deployment throughout the United States. As we move 
forward in 2015 , the Commission plans to continue to engage and consult with Tribal Nations 
and others in Indian Country on long-term reform of rate-of-return support. 
As you note, I stated at the Senate Commerce Committee' s FCC Oversight Hearing 
earlier this year that resolving the issue of reforming USF mechanisms for areas served by rate of 
return carriers will require all the stakeholders to work together and make hard decisions to reach 
consensus on the best path forward. Everybody agrees that the goal of any changes should be 
supporting broadband in rural areas. With that in mind, I directed my staff and staff members 
from the Commission' s Wireline Bureau to meet with stakeholders in the rate-of-return 
community. Commission staff has also engaged with tribal stakeholders regarding these issues. 
We have encouraged all stakeholders in the rate-of-return community to work together to 
develop an approach that both has the widespread support of the rate-of-return community and 
meets the principles unanimously outlined by the Commission in our April 2014 Further Notice 
of Proposed Rule making. To this end, on April 28, 2015, FCC staff initiated consultative 
outreach with the National Tribal Telecommunications Association ("NTTA"), the association 
representing Tribally-owned and operated rate-of-return carriers. Additionally, on June 9th, 
NTTA met with my office and each of my fellow Commissioners ' offices, the Wireline Bureau, 
and the Consumer and Governmental Affairs Bureau' s Office of Native Affairs and Policy to 
discuss alternatives to both model-based and non-model based proposals for rate-of-return 
reform. In those meetings, NTT A committed to submitting its own proposal. On June 19th, 
Page 2-The Honorable Derek Kilmer 
NTTA filed a proposal regarding a Tribal Broadband Factor for all rate-of-return carriers serving 
Tribal lands. NTTA' s filing has been included in the record ofthe proceeding and is under staff 
review. 
I recognize the substantial time, effort, and resources that have been invested in this effort 
to date by stakeholders in the rate-of-return community, and I am committed to finding a path 
forward by the end of the year. But it is important to have a solution - or set of solutions - that 
creates the right incentives to deploy modem networks throughout rural America, including 
tribal lands, meets the Commission' s overarching policy objectives, and has the widespread 
support of the rate-of-return community. 
I look forward to working with you to make continued progress on the deployment of 
broadband to consumers on tribal lands a reality. 
Sincerely, 
~ 
Torn Wheeler 
FEDERAL COMMUNICATIONS COMMISSION 
WASHINGTON 
OFFICE OF 
THE CHAIRMAN 
The Honorable Jared Huffman 
U.S. House of Representatives 
1630 Longworth House Office Building 
Washington, D.C. 20515 
Dear Congressman Huffman: 
July 27, 2015 
Thank you for your letter urging the Commission to reform our Universal Service Fund 
("USF") mechanisms to support broadband deployment to tribal communities. The universal 
service program is one of the most important tools at our disposal to ensure that consumers and 
businesses on tribal lands and in rural America have the same opportunities as their urban and 
suburban counterparts to be active participants in the 21 st century economy. I share your goal of 
ensuring that the universal service program better reflects today' s marketplace and technology in 
areas served by rate-of-return carriers. 
The Commission is strongly cpmmitted to working with Tribal Nations through 
meaningful and vigorous efforts on a regular basis. We are also committed to ensuring that 
Tribal concerns are appropriately considered and addressed as part of the Commission's broader 
efforts to improve broadband deployment throughout the United States. As we move 
forward in 2015, the Commission plans to continue to engage and consult with Tribal Nations 
and others in Indian Country on long-term reform of rate-of-return support. 
As you note, I stated at the Senate Commerce Committee' s FCC Oversight Hearing 
earlier this year that resolving the issue of reforming USF mechanisms for areas served by rate of 
return carriers will require all the stakeholders to work together and make hard decisions to reach 
consensus on the best path forward. Everybody agrees that the goal of any changes should be 
supporting broadband in rural areas. With that in mind, I directed my staff and staff members 
from the Commission' s Wireline Bureau to meet with stakeholders in the rate-of-return 
community. Commission staff has also engaged with tribal stakeholders regarding these issues. 
We have encouraged all stakeholders in the rate-of-return community to work together to 
develop an approach that both has the widespread support of the rate-of-return community and 
meets the principles unanimously outlined by the Commission in our April2014 Further Notice 
of Proposed Rulemaking. To this end, on April28, 2015, FCC staff initiated consultative 
outreach with the National Tribal Telecommunications Association ("NTTA"), the association 
representing Tribally-owned and operated rate-of-return carriers. Additionally, on June 9th, 
NTTA met with my office and each of my fellow Commissioners' offices, the Wireline Bureau, 
and the Consumer and Governmental Affairs Bureau' s Office ofNative Affairs and Policy to 
discuss alternatives to both model-based and non-model based proposals for rate-of-return 
reform. In those meetings, NTTA committed to submitting its own proposal. On June 19th, 
Page 2-The Honorable Jared Huffman 
NTTA filed a proposal regarding a Tribal Broadband Factor for all rate-of-return carriers serving 
Tribal lands. NTT A' s filing has been included in the record of the proceeding and is under staff 
rev1ew. 
I recognize the substantial time, effort, and resources that have been invested in this effort 
to date by stakeholders in the rate-of-return community, and I am committed to finding a path 
forward by the end of the year. But it is important to have a solution - or set of solutions - that 
creates the right incentives to deploy modem networks throughout rural America, including 
tribal lands, meets the Commission' s overarching policy objectives, and has the widespread 
support of the rate-of-return community. 
I look forward to working with you to make continued progress on the deployment of 
broadband to consumers on tribal lands a reality. 
Sincerely, 
--;;;;#(~_ 
Tom Wheeler 
FEDERAL COMMUNICATIONS COMMISSION 
WASHINGTON 
OFFICE OF 
THE CHAIRMAN 
The Honorable Anna G. Eshoo 
U.S. House ofRepresentatives 
241 Cannon House Office Building 
Washington, D.C. 20515 
Dear Congresswoman Eshoo: 
July 27,2015 
Thank you for your letter urging the Commission to reform our Universal Service Fund 
("USF'') mechanisms to support broadband deployment to tribal communities. The universal 
service program is one of the most important tools at our disposal to ensure that consumers and 
businesses on tribal lands and in rural America have the same opportunities as their urban and 
suburban counterparts to be active participants in the 21 st century economy. I share your goal of 
ensuring that the universal service program better reflects today' s marketplace and technology in 
areas served by rate-of-return carriers. 
The Commission is strongly committed to working with Tribal Nations through 
meaningful and vigorous efforts on a regular basis. We are also committed to ensuring that 
Tribal concerns are appropriately considered and addressed as part of the Commission's broader 
efforts to improve broadband deployment throughout the United States. As we move 
forward in 2015, the Commission plans to continue to engage and consult with Tribal Nations 
and others in Indian Country on long-term reform of rate-of-return support. 
As you note, I stated at the Senate Commerce Committee's FCC Oversight Hearing 
earlier this year that resolving the issue of reforming USF mechanisms for areas served by rate of 
return carriers will require all the stakeholders to work together and make hard decisions to reach 
consensus on the best path forward. Everybody agrees that the goal of any changes should be 
supporting broadband in rural areas. With that in mind, I directed my staff and staff members 
from the Commission's Wireline Bureau to meet with stakeholders in the rate-of-return 
community. Commission staff has also engaged with tribal stakeholders regarding these issues. 
We have encouraged all stakeholders in the rate-of-return community to work together to 
develop an approach that both has the widespread support of the rate-of-return community and 
meets the principles unanimously outlined by the Commission in our April2014 Further Notice 
of Proposed Rulemaking. To this end, on April28, 2015, FCC staff initiated consultative 
outreach with the National Tribal Telecommunications Association ("NTTA"), the association 
representing Tribally-owned and operated rate-of-return carriers. Additionally, on June 9th, 
NTT A met with my office and each of my fellow Commissioners' offices, the Wire line Bureau, 
and the Consumer and Governmental Affairs Bureau's Office ofNative Affairs and Policy to 
discuss alternatives to both model-based and non-model based proposals for rate-of-return 
reform. In those meetings, NTTA committed to submitting its own proposal. On June 19th, 
Page 2-The Honorable Anna G. Eshoo 
NTTA filed a proposal regarding a Tribal Broadband Factor for all rate-of-return carriers serving 
Tribal lands. NTTA' s filing has been included in the record ofthe proceeding and is under staff 
review. 
I recognize the substantial time, effort, and resources that have been invested in this effort 
to date by stakeholders in the rate-of-return community, and I am committed to finding a path 
forward by the end of the year. But it is important to have a solution - or set of solutions- that 
creates the right incentives to deploy modem networks throughout rural America, including 
tribal lands, meets the Commission' s overarching policy objectives, and has the widespread 
support of the rate-of-return community. 
I look forward to working with you to make continued progress on the deployment of 
broadband to consumers on tribal lands a reality. 
Sincerely, 
Tom Wheeler 
FEDERAL COMMUNICATIONS COMMISSION 
WASHINGTON 
OFFICE OF 
THE CHAIRMAN 
The Honorable Suzan DelBene 
U.S. House of Representatives 
318 Cannon House Office Building 
Washington, D.C. 20515 
Dear Congresswoman DelBene: 
July 27, 2015 
Thank you for your letter urging the Commission to reform our Universal Service Fund 
("USF") mechanisms to support broadband deployment to tribal communities. The universal 
service program is one of the most important tools at our disposal to ensure that consumers and 
businesses on tribal lands and in rural America have the same opportunities as their urban and 
suburban counterparts to be active participants in the 2Pt century economy. I share your goal of 
ensuring that the universal service program better reflects today's marketplace and technology in 
areas served by rate-of-return carriers. 
The Commission is strongly committed to working with Tribal Nations through 
meaningful and vigorous efforts on a regular basis. We are also committed to ensuring that 
Tribal concerns are appropriately considered and addressed as part of the Commission's broader 
efforts to improve broadband deployment throughout the United States. As we move 
forward in 2015, the Commission plans to continue to engage and consult with Tribal Nations 
and others in Indian Country on long-term reform of rate-of-return support. 
As you note, I stated at the Senate Commerce Committee's FCC Oversight Hearing 
earlier this year that resolving the issue of reforming USF mechanisms for areas served by rate of 
return carriers will require all the stakeholders to work together and make hard decisions to reach 
consensus on the best path forward. Everybody agrees that the goal of any changes should be 
supporting broadband in rural areas. With that in mind, I directed my staff and staff members 
from the Commission's Wireline Bureau to meet with stakeholders in the rate-of-return 
community. Commission staff has also engaged with tribal stakeholders regarding these issues. 
We have encouraged all stakeholders in the rate-of-return community to work together to 
develop an approach that both has the widespread support of the rate-of-return community and 
meets the principles unanimously outlined by the Commission in our April 2014 Further Notice 
of Proposed Rulemaking. To this end, on April 28, 2015, FCC staff initiated consultative 
outreach with the National Tribal Telecommunications Association ("NTTA"), the association 
representing Tribally-owned and operated rate-of-return carriers. Additionally, on June 9th, 
NTTA met with my office and each of my fellow Commissioners' offices, the Wireline Bureau, 
and the Consumer and Governmental Affairs Bureau's Office ofNative Affairs and Policy to 
discuss alternatives to both model-based and non-model based proposals for rate-of-return 
reform. In those meetings, NTTA committed to submitting its own proposal. On June 19th, 
Page 2-The Honorable Suzan DelBene 
NTT A filed a proposal regarding a Tribal Broadband Factor for all rate-of-return carriers serving 
Tribal lands. NTTA's filing has been included in the record ofthe proceeding and is under staff 
review. 
I recognize the substantial time, effort, and resources that have been invested in this effort 
to date by stakeholders in the rate-of-return community, and I am committed to finding a path 
forward by the end of the year. But it is important to have a solution- or set of solutions- that 
creates the right incentives to deploy modem networks throughout rural America, including 
tribal lands, meets the Commission's overarching policy objectives, and has the widespread 
support of the rate-of-return community. 
I look forward to working with you to make continued progress on the deployment of 
broadband to consumers on tribal lands a reality. 
Sincerely, 
Tom Wheeler 
FEDERAL COMMUNICATIONS COMMISSION 
WASHINGTON 
OFFICE OF 
THE CHAIRMAN 
The Honorable Kevin Cramer 
U.S. House ofRepresentatives 
1032 Longworth House Office Building 
Washington, D.C. 20515 
Dear Congressman Cramer: 
July 27, 2015 
Thank you for your letter urging the Commission to reform our Universal Service Fund 
("USF") mechanisms to support broadband deployment to tribal communities. The universal 
service program is one of the most important tools at our disposal to ensure that consumers and 
businesses on tribal lands and in rural America have the same opportunities as their urban and 
suburban counterparts to be active participants in the 21st century economy. I share your goal of 
ensuring that the universal service program better reflects today's marketplace and technology in 
areas served by rate-of-return carriers. 
The Commission is strongly committed to working with Tribal Nations through 
meaningful and vigorous efforts on a regular basis. We are also committed to ensuring that 
Tribal concerns are appropriately considered and addressed as part of the Commission's broader 
efforts to improve broadband deployment throughout the United States. As we move 
forward in 2015, the Commission plans to continue to engage and consult with Tribal Nations 
and others in Indian Country on long-term reform of rate-of-return support. 
As you note, I stated at the Senate Commerce Committee's FCC Oversight Hearing 
earlier this year that resolving the issue of reforming USF mechanisms for areas served by rate of 
return carriers will require all the stakeholders to work together and make hard decisions to reach 
consensus on the best path forward. Everybody agrees that the goal of any changes should be 
supporting broadband in rural areas. With that in mind, I directed my staff and staff members 
from the Commission's Wireline Bureau to meet with stakeholders in the rate-of-return 
community. Commission staff has also engaged with tribal stakeholders regarding these issues. 
We have encouraged all stakeholders in the rate-of-return community to work together to 
develop an approach that both has the widespread support of the rate-of-return community and 
meets the principles unanimously outlined by the Commission in our April2014 Further Notice 
of Proposed Rule making. To this end, on April 28, 2015, FCC staff initiated consultative 
outreach with the National Tribal Telecommunications Association ("NTTA"), the association 
representing Tribally-owned and operated rate-of-return carriers. Additionally, on June 9th, 
NTTA met with my office and each of my fellow Commissioners' offices, the Wireline Bureau, 
and the Consumer and Governmental Affairs Bureau's Office ofNative Affairs and Policy to 
discuss alternatives to both model-based and non-model based proposals for rate-of-return 
reform. In those meetings, NTTA committed to submitting its own proposal. On June 19th, 
Page 2-The Honorable Kevin Cramer 
NTT A filed a proposal regarding a Tribal Broadband Factor for all rate-of-return carriers serving 
Tribal lands. NTTA's filing has been included in the record of the proceeding and is under staff 
rev1ew. 
I recognize the substantial time, effort, and resources that have been invested in this effort 
to date by stakeholders in the rate-of-return community, and I am committed to finding a path 
forward by the end of the year. But it is important to have a solution- or set of solutions- that 
creates the right incentives to deploy modem networks throughout rural America, including 
tribal lands, meets the Commission's overarching policy objectives, and has the widespread 
support of the rate-of-return community. 
I look forward to working with you to make continued progress on the deployment of 
broadband to consumers on tribal lands a reality. 
Sincerely, 
~ 
Tom Wheeler 
FEDERAL COMMUNICATIONS COMMISSION 
WASHINGTON 
OFFICE OF 
THE CHAIRMAN 
The Honorable Tom Cole 
U.S. House of Representatives 
2458 Rayburn House Office Building 
Washington, D.C. 20515 
Dear Congressman Cole: 
July 27, 2015 
Thank you for your letter urging the Commission to reform our Universal Service Fund 
("USF") mechanisms to support broadband deployment to tribal communities. The universal 
service program is one of the most important tools at our disposal to ensure that consumers and 
businesses on tribal lands and in rural America have the same opportunities as their urban and 
suburban counterparts to be active participants in the 2Pt century economy. I share your goal of 
ensuring that the universal service program better reflects today' s marketplace and technology in 
areas served by rate-of-return carriers. 
The Commission is strongly committed to working with Tribal Nations through 
meaningful and vigorous efforts on a regular basis. We are also committed to ensuring that 
Tribal concerns are appropriately considered and addressed as part of the Commission1s broader 
efforts to improve broadband deployment throughout the United States. As we move 
forward in 2015 , the Commission plans to continue to engage and consult with Tribal Nations 
and others in Indian Country on long-term reform of rate-of-return support. 
As you note, I stated at the Senate Commerce Committee' s FCC Oversight Hearing 
earlier this year that resolving the issue of reforming USF mechanisms for areas served by rate of 
return carriers will require all the stakeholders to work together and make hard decisions to reach 
consensus on the best path forward. Everybody agrees that the goal of any changes should be 
supporting broadband in rural areas. With that in mind, I directed my staff and staff members 
from the Commission' s Wireline Bureau to meet with stakeholders in the rate-of-return 
community. Commission staff has also engaged with tribal stakeholders regarding these issues. 
We have encouraged all stakeholders in the rate-of-return community to work together to 
develop an approach that both has the widespread support of the rate-of-return community and 
meets the principles unanimously outlined by the Commission in our April 2014 Further Notice 
of Proposed Rulemaking. To this end, on April28, 2015, FCC staff initiated consultative 
outreach with the National Tribal Telecommunications Association ("NTTA"), the association 
representing Tribally-owned and operated rate-of-return carriers. Additionally, on June 9th, 
NTTA met with my office and each of my fellow Commissioners' offices, the Wireline Bureau, 
and the Consumer and Governmental Affairs Bureau' s Office ofNative Affairs and Policy to 
discuss alternatives to both model-based and non-model based proposals for rate-of-return 
reform. In those meetings, NTTA committed to submitting its own proposal. On June 19th, 
Page 2- The Honorable Tom Cole 
NTTA filed a proposal regarding a Tribal Broadband Factor for all rate-of-return carriers serving 
Tribal lands. NTTA' s filing has been included in the record ofthe proceeding and is under staff 
review. 
I recognize the substantial time, effort, and resources that have been invested in this effort 
to date by stakeholders in the rate-of-return community, and I am committed to finding a path 
forward by the end of the year. But it is important to have a solution - or set of solutions- that 
creates the right incentives to deploy modem networks throughout rural America, including 
tribal lands, meets the Commission' s overarching policy objectives, and has the widespread 
support ofthe rate-of-return community. 
I look forward to working with you to make continued progress on the deployment of 
broadband to consumers on tribal lands a reality. 
Sincerely, 
Tom Wheeler 
FEDERAL COMMUNICATIONS COMMISSION 
WASHINGTON 
OFFICE OF 
THE CHAIRMAN 
The Honorable Tony Cardenas 
U.S. House of Representatives 
1508 Longworth House Office Building 
Washington, D.C. 20515 
Dear Congressman Cardenas: 
July 27, 2015 
Thank you for your letter urging the Commission to reform our Universal Service Fund 
("USF") mechanisms to support broadband deployment to tribal communities. The universal 
service program is one of the most important tools at our disposal to ensure that consumers and 
businesses on tribal lands and in rural America have the same opportunities as their urban and 
suburban counterparts to be active participants in the 21 st century economy. I share your goal of 
ensuring that the universal service program better reflects today ' s marketplace and technology in 
areas served by rate-of-return carriers. 
The Commission is strongly committed to working with Tribal Nations through 
meaningful and vigorous efforts on a regular basis. We are also committed to ensuring that 
Tribal concerns are appropriately considered and addressed as part of the Commission's broader 
efforts to improve broadband deployment throughout the United States. As we move 
forward in 2015 , the Commission plans to continue to engage and consult with Tribal Nations 
and others in Indian Country on long-term reform of rate-of-return support. 
As you note, I stated at the Senate Commerce Committee's FCC Oversight Hearing 
earlier this year that resolving the issue of reforming USF mechanisms for areas served by rate of 
return carriers will require all the stakeholders to work together and make hard decisions to reach 
consensus on the best path forward . Everybody agrees that the goal of any changes should be 
supporting broadband in rural areas. With that in mind, I directed my staff and staff members 
from the Commission' s Wireline Bureau to meet with stakeholders in the rate-of-return 
community. Commission staff has also engaged with tribal stakeholders regarding these issues. 
We have encouraged all stakeholders in the rate-of-return community to work together to 
develop an approach that both has the widespread support of the rate-of-return community and 
meets the principles unanimously outlined by the Commission in our April 2014 Further Notice 
of Proposed Rule making. To this end, on April 28, 2015 , FCC staff initiated consultative 
outreach with the National Tribal Telecommunications Association ("NTTA"), the association 
representing Tribally-owned and operated rate-of-return carriers. Additionally, on June 9th, 
NTTA met with my office and each of my fellow Commissioners' offices, the Wireline Bureau, 
and the Consumer and Governmental Affairs Bureau's Office ofNative Affairs and Policy to 
discuss alternatives to both model-based and non-model based proposals for rate-of-return 
reform. In those meetings, NTTA committed to submitting its own proposal. On June 19th, 
Page 2-The Honorable Tony Cardenas 
NTT A filed a proposal regarding a Tribal Broadband Factor for all rate-of-return carriers serving 
Tribal lands. NTT A's filing has been included in the record of the proceeding and is under staff 
rev1ew. 
I recognize the substantial time, effort, and resources that have been invested in this effort 
to date by stakeholders in the rate-of-return community, and I am committed to finding a path 
forward by the end of the year. But it is important to have a solution- or set of solutions- that 
creates the right incentives to deploy modem networks throughout rural America, including 
tribal lands, meets the Commission's overarching policy objectives, and has the widespread 
support of the rate-of-return community. 
I look forward to working with you to make continued progress on the deployment of 
broadband to consumers on tribal lands a reality. 
Sincerely, 
Tom Wheeler