Florida Public Service Commission native order document 06757-2024

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FILED 6/20/2024
DOCUMENT NO. 06757-2024
FPSC - COMMISSION CLERK

BEFORE THE FLORIDA PUBLIC SERVICE COMMISSION

In re: Petition for designation as eligible DOCKET NO. 20240066-TP
telecommunications carrier in the State of ORDER NO. PSC-2024-0205-PAA-TP
Florida, by Boomerang Wireless, LLC d/b/a ISSUED: June 20, 2024

enTouch Wireless.

The following Commissioners participated in the disposition of this matter:

MIKE LA ROSA, Chairman
ART GRAHAM
GARY F. CLARK
ANDREW GILES FAY
GABRIELLA PASSIDOMO

NOTICE OF PROPOSED AGENCY ACTION
ORDER GRANTING ELIGIBLE TELECOMMUNICATIONS CARRIER DESIGNATION

BY THE COMMISSION:

NOTICE is hereby given by the Florida Public Service Commission that the action
discussed herein is preliminary in nature and will become final unless a person whose interests
are substantially affected files a petition for a formal proceeding, pursuant to Rule 25-22.029,
Florida Administrative Code (F.A.C.).

Background

On April 17, 2024, Boomerang Wireless d/b/a enTouch Wireless’s (Boomerang or
Company) filed a petition with the Florida Public Service Commission (FPSC or Commission)
seeking designation as an eligible telecommunications carrier (ETC) for the sole purpose of
providing Lifeline service to qualifying consumers throughout Florida. Boomerang is a provider
of commercial mobile radio service (CMRS) and offers prepaid wireless telecommunications
services to consumers as a reseller. Specifically, Boomerang uses the network infrastructure and
wireless transmission facilities of T-Mobile USA, Inc. (T-Mobile) to operate as a Mobile Virtual
Network Operator. Boomerang is currently designated as an ETC providing Lifeline service in
37 other states.

As a CMRS provider, Boomerang is regulated as a common carrier pursuant to 47 U.S.C.
§ 153(11).! Boomerang is an Iowa limited liability company (LLC) authorized to do business as
a foreign LLC in the state of Florida. The company asserts in Florida it will be operating under

' 47 U.S.C. § 153(11) (defining a common carrier as “any person engaged as a common carrier for hire, in interstate
or foreign communications by wire or radio... .”; 47 U.S.C. §332(c)(1)(A) (treating commercial mobile service
providers as common carriers).

ORDER NO. PSC-2024-0205-PAA-TP
DOCKET NO. 20240066-TP
PAGE 2
its authorized fictitious name “enTouch”. Boomerang is wholly owned by ViaOne Acquisitions
Company, LLC.
Boomerang asserts that it meets all applicable federal requirement for designation as a
Lifeline only ETC in Florida pursuant to 47 U.S.C. § 214(e) and 47 C.F.R. § 54.201. Boomerang
acknowledges and asserts that, if approved, it will comply with Sections 364.10 and 364.105,
Florida Statutes (F.S.), and Rule 25-4.0665, Florida Administrative Code (F.A.C.), which govern
Lifeline service and provide for a transitional discount for customers who no longer qualify for
Lifeline. In addition to the federal rules and statutes discussed above, we have jurisdiction in this
matter pursuant to Section 364.10, F.S.
Section 214(e)(2) of the Telecommunications Act of 1996 (the Act) provides state public
utility commissions with “primary responsibility” for the designation of ETCs. We initially
exercised this authority to designate both wireline and wireless carriers as ETCs. In 2011, the
Florida Legislature removed the FPSC authority to designate wireless ETC providers.2 However,
the Florida Legislature amended Section 364.10, F.S., in 2024 to specifically grants us
jurisdiction to address wireless ETC petitions for Lifeline purposes only.3
Decision
I. 	Requirements for ETC Designation
This Order addresses whether Boomerang qualifies for ETC designation to provide
Lifeline service throughout the State of Florida.4 Section 364.10, F.S. allows us to approve
wireless Lifeline ETC petitions for requesting carriers. Specifically, paragraphs 364.10(1)(a) and
(3)(a) F.S., provide us with the authority to designate a CMRS provider as an ETC for the limited
purpose of providing Lifeline service.
Federal rules outline the requirements for ETC designation.5 To obtain ETC designation
to provide Lifeline services, federal rules require that carriers:
1) 	Be a common carrier;
2) 	Offer the services that are supported by the federal universal support mechanisms
either using its own facilities or a combination of its own facilities and resale of
another carrier’s services;
3) 	Advertise the availability of its Lifeline service through a media of general
distribution;
2 House Bill 1231 (2011), effective July 1, 2011.
3 Senate Bill 478 (2024), effective April 15, 2024.
4 47 C.F.R. § 254(e)
5 47 U.S.C. § 214(e)(1), 47 C.F.R. § 54.101, 47 C.F.R. § 54.201, and 47 C.F.R. § 54.401; While Section 47 C.F.R. §
54.101(a) also includes requirements addressing toll limitation services to qualifying low-income consumers, the
FCC in its 2012 Lifeline and Link Up Reform Order (FCC 12-11) stated that: “ETCs are not required to offer toll
limitation service to low-income consumers if the Lifeline offering provides a set amount of minutes that do not
distinguish between toll and non-toll calls.”

ORDER NO. PSC-2024-0205-PAA-TP
DOCKET NO. 20240066-TP
PAGE 3
4) 	Provide voice grade access to the public switch network or its functional
equivalent;
5) 	Offer minutes of use for local service at no additional charge to end users;
6) 	Provide access to the emergency services available by local government or other
public safety organizations;
7) 	Provide Broadband Internet Access Service;6
8) 	Demonstrate that it is financially and technically capable of providing the
supported Lifeline service. and
9) 	Not charge Lifeline customers a monthly number-portability charge.
In addition, Florida law requires the following for ETC designation:
1) 	Offer a discounted transitional basic telecommunications service.7
2) 	Participate in the Lifeline Promotion Process.8
II. 	Forbearance of Facilities Requirements
Boomerang plans to offer all of the supported services enumerated under Section
254(c) of the Act through its wireless resale agreement with T-Mobile. Therefore, it
sought forbearance of the facilities requirement from the FCC. On August 8, 2012, the
FCC approved Boomerang’s compliance plan as a condition of obtaining forbearance
from the facilities requirement for the provision of Lifeline service. As part of its
compliance plan Boomerang committed to do the following:
1) 	Provide the supported services throughout the carrier’s designated areas;
2) 	Remain functional in emergency situations;
3) 	Comply with the Cellular Telecommunications and Internet Association's
Consumer Code for Wireless Service;
4) 	Demonstrate that it is financially and technically capable of providing the
Lifeline service in compliance with federal rules; and
5) 	Describe the terms and conditions of the broadband Internet access service
plans offered to Lifeline subscribers.
Because Boomerang will offer the supported services and is compliant with the FCC
requirements pursuant to 47 U.S.C. 214(e) and 47 C.F.R. 54.201, as well as the Florida specific
requirements, Boomerang is eligible for designation as a Lifeline only ETC in Florida.
6 Broadband Internet Access Service (BIAS) is defined as a mass-market retail service that provides the capability to
transmit and receive data, but excluding dial-up service.
7 Section 364.105, F.S states that each ETC shall offer a residential basic local telecommunications service at 70
percent of the residential local telecommunications service rate for any Lifeline subscriber who no longer qualifies
for Lifeline for a period of 1 year after the date the subscriber ceases to qualify for Lifeline .
8 Rule 25-4.0665(3), F.A.C. The Lifeline Promotion Process is an electronic system developed in collaboration with
the Florida Department of Children and Families, ETCs and the FPSC. This system helps assist ETCs and the FPSC
in providing information on how to apply for Lifeline assistance to eligible customers.

ORDER NO. PSC-2024-0205-PAA-TP
DOCKET NO. 20240066-TP
PAGE 4
III. 	Financial, Managerial, and Technical Capabilities
As noted in its petition, Boomerang has offered service since 2008 and has not filed for
any form of bankruptcy relief. The company has operated as an ETC in 37 states and has not
been subject to any enforcement actions or ETC revocation proceedings. The Company has over
15 years of technical and managerial experience, and it does not rely exclusively on Lifeline
reimbursements for its operating revenues. As Boomerang will be providing resold wireless
service, it will also rely upon the managerial and technical expertise of its underlying carrier.
IV. 	Public Interest
State commissions are required to find that ETC designation is in the public interest.9
Boomerang asserts granting its ETC designation will bring Lifeline eligible consumers more
choice in providers without creating an additional burden on the federal high-cost programs. In
Florida, consumers are currently limited to three wireless Lifeline providers. These three
companies represent 98 percent of the Lifeline market in Florida.10 However, the FPSC’s
estimated Lifeline participation rate for the last two years has hovered around 18 percent.11 The
increase in carriers servicing this market may increase participation through additional marketing
and would serve the public interest.
V. 	Conclusion
We have reviewed Boomerang’s petition for ETC designation in Florida. Boomerang
meets 	all 	the 	requirements 	for 	designation 	as 	an 	ETC. 	Additionally, 	the 	Company 	has
demonstrated sufficient financial, managerial, and technical capabilities. Therefore, we find
Boomerang shall be granted an ETC designation throughout the State of Florida as identified in
Attachment A of this Order. We further find that if there is a future change of Company
ownership, the new owners shall be required to file a petition with us to demonstrate that it is in
the public interest to maintain the Company’s ETC designation.
Based on the foregoing, it is
ORDERED by the Florida Public Service Commission that Boomerang Wireless d/b/a
enTouch 	Wireless’s 	Petition 	for 	Designation 	as 	an 	Eligible 	Telecommunications 	Carrier
throughout the State of Florida is GRANTED. It is further
ORDERED that Boomerang Wireless d/b/a enTouch Wireless is designated an eligible
telecommunications carrier for the sole purpose of providing Lifeline service to qualifying
consumers in the State of Florida. It is further
9 47 U.S.C. 214(e)(2)
10 2023 Florida Lifeline Assistance Report, December 2023, Appendix C, p 24.
11 Ibid, p 13.

ORDER NO. PSC-2024-0205-PAA-TP
DOCKET NO. 20240066-TP
PAGES
ORDERED that if there is a future change in Boomerang Wireless d/b/a enTouch
Wireless's ownership, the new owners shall file a petition with the Commission to demonstrate
that it is in the public interest to maintain the ETC designation. It is further
ORDERED that the provisions of this Order, issued as proposed agency action, shall
become final and effective upon the issuance of a Consummating Order unless an appropriate
petition, in the form provided by Rule 28-106.201, F.A.C., is received by the Commission Clerk,
2540 Shumard Oak Boulevard, Tallahassee, Florida 32399-0850, by the close of business on the
date set forth in the "Notice of Further Proceedings" attached hereto. It is fu11her
JDI
ORDERED that in the event this Order becomes final, this docket shall be closed.
By ORDER of the Florida Public Service Commission this 20th day of June, 2024.
Florida Public Service Commission
2540 Shumard Oak Boulevard
Tallahassee, Florida 32399
(850) 413-6770
www.tloridapsc.com
Copies furnished: 	A copy of this document is
provided to the parties of record at the time of
issuance and, if applicable, interested persons.

ORDER NO. PSC-2024-0205-PAA-TP
DOCKET NO. 20240066-TP
PAGE 6
NOTICE OF FURTHER PROCEEDINGS OR JUDICIAL REVIEW
The Florida Public Service Commission is required by Section 120.569(1), Florida
Statutes, to notify parties of any administrative hearing that is available under Section 120.57,
Florida Statutes, as well as the procedures and time limits that apply. This notice should not be
construed to mean all requests for an administrative hearing will be granted or result in the relief
sought.
Mediation may be available on a case-by-case basis. 	If mediation is conducted, it does
not affect a substantially interested person's right to a hearing.
The action proposed herein is preliminary in nature. Any person whose substantial
interests are affected by the action proposed by this order may file a petition for a formal
proceeding, in the form provided by Rule 28-106.201, Florida Administrative Code. 	This
petition must be received by the Office of Commission Clerk, 2540 Shumard Oak Boulevard,
Tallahassee, Florida 32399-0850, by the close of business on July 11, 2024
In the absence of such a petition, this order shall become final and effective upon the
issuance of a Consummating Order.
Any objection or protest filed in this/these docket(s) before the issuance date of this order
is considered abandoned unless it satisfies the foregoing conditions and is renewed within the
specified protest period.

ORDER NO. PSC-2024-0205-PAA-TP

DOCKET NO. 20240066-TP

PAGE 7

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Boomerang Wireless d/b/a enTouch Wireless
Florida Coverage Area Zip Codes

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ATTACHMENT A

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ATTACHMENT A

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ORDER NO. PSC-2024-0205-PAA-TP

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ATTACHMENT A

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ATTACHMENT A

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33823
33825
33826
33827
33830
33831
33834
33835
33836
33837
33838
33839

ATTACHMENT A

33840
33841
33843
33844
33845
33846
33847
33848
33849
33850
33851
33852
33853
33854
33855
33856
33857
33858
33859
33860
33862
33863
33865
33868
33870
33871
33872
33873

ORDER NO. PSC-2024-0205-PAA-TP

DOCKET NO. 20240066-TP

PAGE 15

33875
33876
33880
33881
33882
33883
33884
33885
33890
33896
33897
33898
33900
33901
33903
33904
33905
33907
33908
33909
33910
33911
33912
33913
33914
33915
33916
33917

33918
33919
33920
33921
33922
33924
33927
33928
33929
33930
33931
33932
33935
33936
33938
33944
33945
33946
33947
33948
33949
33950
33951
33952
33953
33954
33955
33956

33957
33960
33965
33966
33967
33970
33971
33972
33973
33974
33975
33976
33980
33981
33982
33983
33990
33991
33993
33994
34102
34103
34104
34105
34106
34107
34108
34109

34110
34112
34113
34114
34116
34117
34119
34120
34133
34134
34135
34136
34142
34143
34145
34146
34201
34202
34203
34204
34205
34206
34207
34208
34209
34210
34211
34212

ATTACHMENT A

34215
34216
34217
34218
34219
34220
34221
34222
34223
34224
34228
34229
34230
34231
34232
34233
34234
34235
34236
34237
34238
34239
34240
34241
34242
34243
34249
34250

ORDER NO. PSC-2024-0205-PAA-TP

DOCKET NO. 20240066-TP

PAGE 16

34251
34264
34265
34266
34268
34269
34270
34272
34274
34275
34276
34277
34278
34280
34281
34282
34284
34285
34286
34287
34288
34289
34290
34291
34292
34293
34295
34420

34421
34428
34429
34430
34431
34432
34433
34434
34436
34441
34442
34445
34446
34447
34448
34449
34450
34451
34452

34453

34461
34464
34465
34470
34471
34472
34473

34474
34475
34476
34477
34479
34480
34481
34482
34483
34484
34487
34488
34489
34491
34492
34498
34601
34602
34603
34604
34605
34606
34607
34608
34609
34610
34611
34613

10

34614
34636
34637
34638
34639
34652
34653
34654
34655
34656
34660
34661
34667
34668
34669
34673
34674
34677
34680
34682
34683
34684
34685
34688
34689
34690
34691
34692

ATTACHMENT A

34695
34697
34698
34705
34711
34712
34713
34714
34715
34731
34734
34736
34737
34739
34740
34741
34742
34743
34744
34745
34746
34747
34748
34749
34753
34755
34756
34758

ORDER NO. PSC-2024-0205-PAA-TP

DOCKET NO. 20240066-TP

PAGE 17

34759
34760
34761
34762
34769
34770
34771
34772
34773
34777

34778
34785
34786
34787
34788
34789
34797
34945
34946
34947

34948
34949
34950
34951
34952
34953
34954
34956
34957
34958

11

34972
34973
34974
34981
34982
34983
34984
34986
34987
34990

ATTACHMENT A

34991
34992
34994
34995
34996

34997