ded support for broadband services. An NPRM contains proposed changes to FCC rules and seeks comments from the public related to these changes. The pro- posed ruling essentially expands universal service and ICC from voice only to broad- band. It states that it envisions voice being provided more efficiently over IP networks rather than over separate circuit-switched facilities. The proposed rule would gradually eliminate access fees and replace the USF with the Connect America Fund. These changes would be phased in over a period of time and completed by 2020, with inter- mediate steps taken in the interim. The overall goals are to eliminate waste and provide affordable broadband. In its proposed rulemaking, the FCC suggested universal availability of broadband with 4Mbps downstream and 1Mbps upstream from the customer to the provider. Down- stream refers to speeds from carriers to customers. Upstream refers to speed from the customer to the carrier. Unlike the USF, the Connect America Fund would try to grant money and subsidies only to mobile and landline carriers in areas where there are no other providers. These funds would support new projects and maintenance of existing broadband. According to the NPRM, competition from wireless and cable companies now exists in many areas where telephone companies receive subsidies. The NPRM recommended eliminating use of rate of return to determine grant and subsidy amounts. The FCC stated that a guaranteed rate of return removes the incentive to operate efficiently. Rather, the rulemaking proposes using competitive reverse auc- tions, also referred to as purchase auctions, for granting money for nonserved areas. With reverse auctions, organizations win grants for low bids rather than high bids. Competition, Industry Structures, and Regulations Access Fee Exemptions Access fees for toll traffic do not currently apply to VoIP calls that originate and termi- nate on the Internet. Nor do access fee regulations apply to wireless carriers. Rather, wireless carriers pay indirect