Section 5(a)(2) of the Federal Trade Commission (FTC) Act authorizes the FTC to “prevent persons, partnerships, or corporations, except . . . common carriers subject to the Acts to regulate commerce . . . from using unfair methods of competition in or affecting commerce and unfair or deceptive acts or practices in or affecting commerce.” On August 29, in FTC v. AT&T, the Ninth Circuit issued a decision that exempts non-common carrier data services from U.S. Federal Trade Commission (FTC) jurisdiction, merely because they are offered by a company that has common carrier status. This case involved an FTC allegation that AT&T had “throttled” data (slowed down Internet service) for “unlimited mobile data” customers without adequate consent or disclosures, in violation of Section 5 of the FTC Act. The FTC had claimed that although AT&T mobile wireless voice services were a common carrier service, the company’s mobile wireless data services were not, and, thus, were subject to FTC oversight. Reversing a federal district court’s refusal to grant AT&T’s motion to dismiss, the Ninth Circuit concluded that “when Congress used the term ‘common carrier’ in the FTC Act, [there is no indication] it could only have meant ‘common carrier to the extent engaged in common carrier activity.’” The Ninth Circuit therefore determined that “a literal reading of the words Congress selected simply does comport with [the FTC’s] activity-based approach.” The FTC’s pending case against AT&T in the Northern District of California (which is within the Ninth Circuit) regarding alleged unfair and deceptive advertising of satellite services by AT&T subsidiary DIRECTTV (see here) could be affected by this decision.
The Ninth Circuit’s AT&T holding threatens to further extend the FCC’s jurisdictional reach at the expense of the FTC. It comes on the heels of the divided D.C. Circuit’s benighted and ill-reasoned decision (see here) upholding the FCC’s “Open Internet Order,” including its decision to reclassify Internet broadband service as a common carrier service. That decision subjects broadband service to heavy-handed and costly FCC “consumer protection” regulation, including in the area of privacy. The FCC’s overly intrusive approach stands in marked contrast to the economic efficiency considerations (albeit not always perfectly applied) that underlie FTC consumer protection mode of analysis. As I explained in a May 2015 Heritage Foundation Legal Memorandum, the FTC’s highly structured, analytic, fact-based methodology, combined with its vast experience in privacy and data security investigations, make it a far better candidate than the FCC to address competition and consumer protection problems in the area of broadband.
I argued in this space in March 2016 that, should the D.C. Circuit uphold the FCC’s Open Internet Order, Congress should carefully consider whether to strip the FCC of regulatory authority in this area (including, of course, privacy practices) and reassign it to the FTC. The D.C. Circuit’s decision upholding that Order, combined with the Ninth Circuit’s latest ruling, makes the case for potential action by the next Congress even more urgent.
While it is at it, the next Congress should also weigh whether to repeal the FTC’s common carrier exemption, as well as all special exemptions for specified categories of institutions, such as banks, savings and loans, and federal credit unions (see here). In so doing, Congress might also do away with the Consumer Financial Protection Bureau, an unaccountable bureaucracy whose consumer protection regulatory responsibilities should cease (see my February 2016 Heritage Legal Memorandum here).
Finally, as Heritage Foundation scholars have urged, Congress should look into enacting additional regulatory reform legislation, such as requiring congressional approval of new major regulations issued by agencies (including financial services regulators) and subjecting “independent” agencies (including the FCC) to executive branch regulatory review.
That’s enough for now. Stay tuned.
This piece first appeared in Truth on the Market.