Circumscribing the Public Interest in the Voip Debate
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Florida State University Libraries Electronic Theses, Treatises and Dissertations The Graduate School 2006 Circumscribing the Public Interest in the VOIP Policy Debate Kimberley Leahy Follow this and additional works at the FSU Digital Library. For more information, please contact [email protected] THE FLORIDA STATE UNIVERSITY COLLEGE OF COMMUNICATION CIRCUMSCRIBING THE PUBLIC INTEREST IN THE VOIP POLICY DEBATE By KIMBERLEY LEAHY A Dissertation submitted to the Department of Communication in partial fulfillment of the requirements for the degree of Doctor of Philosophy Degree Awarded: Summer Semester, 2006 Copyright 2006 Kimberley Leahy All Rights Reserved The members of the Committee approve the dissertation of Kimberley Leahy defended on January 20th, 2006. ______________________________ Stephen McDowell Professor Co-Directing Dissertation ______________________________ John K. Mayo Dean Co-Directing Dissertation ______________________________ Barney Warf Outside Committee Member ______________________________ Jonathan Adams Committee Member _____________________________ Marilyn J. Young Committee Member Approved: ________________________________________________________________________ Stephen McDowell, Chairperson, Department of Communication ________________________________________________________________________ John K. Mayo, Dean, College of Communication The Office of Graduate Studies has verified and approved the above named committee members. ii For John, My love and my life. iii ACKNOWLEDGEMENTS I would like to give special thanks to the people who helped see my through this challenging process. First, I wish to thank Stephen McDowell for his teaching and direction over the past four years. His guidance during my research and writing instilled in me a respect for answering the question why. His knowledge allowed me to grow as a researcher and his patience allowed me to grow as an individual. I will always appreciate his calm assuredness and his dedication to thorough research. I would like to thank John Mayo for his contribution of innovation diffusion concepts to my manuscript. His insights into the public interest of VoIP diffusion gave shape to a once scattered research outline. I would like to thank Barney Warf for his contribution of political economic principles to my manuscript. His observations concerning global resource distribution resonated not only within my manuscript, but also within my personal beliefs. I would like to thank Marilyn Young for her contribution of rhetorical discourse to my manuscript. Her guidance ensured that my manuscript remained focused throughout the argument I presented. I would like to thank Jonathan Adams for his technical expertise as I wrote my manuscript. He challenged me to examine aspects of Internet technology that once evaded me, but ultimately gave me a knowledge base upon which I could build salient technological observations on VoIP applications. I would like to offer a personal thanks to Kelly Andrews Smith. Without her friendship, her laughter, and her cheers I could never have weathered the storms that accompanied these past four years. Finally, I would like to thank my husband John Leahy. His unwavering faith in this project gave me the strength to complete the most challenging undertaking of my career thus far. I owe the realization of this dream to his patience across so many long nights of seemingly endless work. Thank you, John, for rejoicing in my soaring highs and lifting me from my bottomless lows. I love you with all my heart. This is for you. iv TABLE OF CONTENTS Abstract ............................................................................................Page vii 1. The Voice over Internet Protocol Policy Debate ..........................................Page 1 Background. ............................................................................................Page 3 Stakeholder Discourse .............................................................................Page 7 The Research Questions ..........................................................................Page 8 2. Circumscribing of the Public Interest in Communication Literature.............Page 13 Debating the Public Interest.....................................................................Page 15 Innovation, Technology and the Market...................................................Page 19 Economics, Competition and the Public Interest ......................................Page 26 Universal Service ....................................................................................Page 30 3. Telecommunication’s Public Interest History ...............................................Page 38 Early Regulatory History.........................................................................Page 39 The Communications Act of 1934 ...........................................................Page 45 Mid-Century Public Interest Shift............................................................Page 47 The 1982 Consent Decree and 1996 Telecommunications Act.................Page 53 IP-enabled Services Policy ......................................................................Page 56 4. Framing the Debate .....................................................................................Page 64 Rhetorical Theory....................................................................................Page 65 Methods of Analysis................................................................................Page 67 Research Examples..................................................................................Page 73 Research Questions .................................................................................Page 75 The Data ............................................................................................Page 78 5. The VoIP Forum and the NPRM ..................................................................Page 80 Setting the Stage......................................................................................Page 80 The VoIP Forum......................................................................................Page 81 Stakeholders not Included in the Forum Proceedings ...............................Page 99 The NPRM ............................................................................................Page 104 6. Stakeholder Frames Around VoIP and Technology ......................................Page 105 FCC Issue Framing..................................................................................Page 112 Telephone and Transmission Technology ................................................Page 112 VoIP Technology ....................................................................................Page 115 Internet Architecture................................................................................Page 120 Stakeholder Technology Claims ..............................................................Page 123 v 7. Stakeholder Claims Concerning VoIP and Competition................................Page 175 Framing the Claims .................................................................................Page 176 Stakeholder Competition Comments........................................................Page 178 8. The Universal Service Issue .........................................................................Page 228 The Universal Service Debate..................................................................Page 228 Definitions and Contributions..................................................................Page 230 9. Changes in Public Interest Conceptions........................................................Page 269 Innovation, Competition, and Universal Service ......................................Page 271 Looking Back..........................................................................................Page 273 The Larger Regulatory Picture.................................................................Page 275 Changes over Time..................................................................................Page 276 Global Applications for Public Interest Framing......................................Page 279 Reflections and Future Research..............................................................Page 280 Appendix A ............................................................................................Page 283 Appendix B ............................................................................................Page 284 Appendix C ............................................................................................Page 285 Appendix D ............................................................................................Page 287 References ............................................................................................Page 288 Biographical Sketch .........................................................................................Page 309 vi ABSTRACT This inquiry evaluates claims made by stakeholders attempting to circumscribe the concepts of the public interest in the Voice over Internet Protocol policy debate using technology, competition, and the universal service as their foil. The three policy options under debate as stakeholders respond to the 2004 Federal Communications Commission Notice of Proposed Ruling-making 04-28, In the Matter of IP-enabled Services, are the layered approach, the functional approach, and, what this dissertation terms, the dichotomous approach. Each of these approaches to