The California Public Utilities Commission is in the final stages of collecting public input before updating decades-old rules that require telecommunications carriers like AT&T to provide landline service.
At the final public hearing on Tuesday, May 13, landline users expressed anger and alarm at the prospect of being forced to switch to what many called inferior services. Meanwhile, supporters of the carriers' point of view advocated for newer technologies such as VoIP and wireless.
The public can still provide input online, by writing to the CPUC, or by emailing the agency and citing Rulemaking 24-06-012 on carriers of last resort (COLRs). The rulemaking is expected to conclude by the end of 2025.
The concept of a “carrier of last resort” — a provider required to offer service within a defined territory — was embedded in the Communications Act of 1936, with more explicit requirements added in the Telecommunications Act of 1996. That same year, the CPUC adopted its own COLR rules requiring the provision of “basic service.”
Today, basic service can be delivered using landline, wireless, or VoIP technology.
Speaking at Tuesday’s hearing, CPUC Commissioner John Reynolds said the purpose of the rulemaking is to update the rules “so that they're as effective and relevant today as possible.”
Reynolds noted: “Most Californians today do not rely on basic voice services typically provided on plain old telephone service or landline telephone service and instead [are] moving to more data-intensive internet-based services on cell phones or broadband. These have required … investment in modern higher bandwidth communications infrastructure, and both public and private sectors have participated in that investment.”
At the same time, Reynolds acknowledged legacy copper-wire landlines can be “the most reliable form of communication service for residents in certain areas where cell phone service and broadband are not readily available or accessible.”
Defenders of landline service spoke passionately about the reliability, safety, accessibility and security of traditional telephone service.
“Millions of Californians have remained faithful to landlines for good reason,” said Josh Hart of Portola. “This is a good indication that especially when it comes to clarity, quality, reliability, and simplicity, there is nothing better available than basic copper and unlikely to be in the future.”
Aaron Johnson from Sacramento cited the importance of technological resilience. “In vital matters like communications, resilience and security must come before profitability and the move to modernize.”
Johnson continued, “Keeping a public telephone switch telephone network .., that runs on an analog system and separate from the computer networks which are vulnerable to cyber attacks is critical to our national security. It's a national treasure in the way that railroads are. Our plain old telephone service needs to be maintained because once it's gone, we won't be able to resurrect it. Existing older technology is not bad or outdated technology. Copper landlines are long lasting, proven, superior technology that are critical to our state and our country's infrastructure, our national security, and our community's ability to communicate regularly and in emergencies.”
Marcia Eden, a disabled resident of Shasta County, said, “My location on the river prohibits the reliable use of cell phones. I do not have a compute. … I have lived here through floods, I-5 incidents, fires, and extended power outages. I've been notified of these problems by phone and because of my disability, the landline has been a lifesaver. I have had an ambulance here on occasion and the phone saved my life.”
Eden urged the CPUC to continue mandating landline service for small rural communities, and she emphasized that her use of a landline was not a “whimsical” choice. It's all that can be provided and will be provided here.”
Several individuals identifying with racial and ethnic groups spoke in favor of modernization. Angela Gibson Shaw, president of the Greater Los Angeles African-American Chamber of Commerce, said, “Reliable fast internet is critical for businesses and our overall economic growth.” She added, “Modernization and reform of the state's carrier of last resort policy is the key to achieving this goal, and we employ and encourage the CPU to act now.”
A woman who identified herself as Roselle from the Filipino Women's Network in Torrance said she relies on high-speed internet to attend virtual classes, manage important documents, communicate with family abroad, and pursue professional and personal goals. “It’s time to invest in stronger, smarter, and more equitable infrastructure to meet today’s needs,” she said.
Former AT&T employees also testified to set the record straight. Beverly Taylor, who identified herself as a former AT&T employee and retiree, said modern technologies are not reliable compared to copper lines, which she said were 99.999% reliable. Taylor added that products like VoIP and wireless are not secure or resilient to outages.
“If their services go out, you’re down,” she said, noting this could be particularly detrimental to small businesses.
Taylor said the issue is accountability. She argued that legacy products like broadband delivered over copper wire are more highly regulated than VoIP. “What we have now is a cheap way that AT&T could make money without being accountable,” she said.
Administrative Law Judge Tom Glegola described the hearings as a “fact-finding” process. He said staff will synthesize the comments and present a proposal “on how, if at all, the COLR rules should change.” Glegola said parties in the proceeding will have a chance to file comments on the staff proposal and that evidentiary hearings may be held, followed by the filing of briefs.
“No changes can occur without a vote on a proposed decision supported by a majority of the five commissioners,” Glegola said. He also noted that specific dates or milestones in the proceeding have yet to be determined.
Anyone interested in receiving notifications or becoming a party in the proceeding can contact the CPUC Public Advisor’s Office at (866) 849-8390.
