Carrier of Last Resort (COLR) Rulemaking

In June 2024, the CPUC started a process to review and possibly update the rules for what’s known as the “Carrier of Last Resort” or COLR. This review is part of a formal proceeding known as Rulemaking 24-06-012.

What is a COLR?

A COLR is a telecommunications company that is required to offer basic telephone service to anyone who asks for it in a certain area — no matter where they live or what their income is. This ensures that all Californians have access to essential, reliable, and affordable telecommunications service.

There are 16 COLRs in California. AT&T is the biggest, covering large parts of the state. Frontier is the second largest.

Importantly, COLR service can be delivered using any technology — like traditional landlines, internet-based phones, or wireless services (not just copper wire) — as long as it meets the state’s minimum service standards.

Why is this important to you?

The CPUC is taking a fresh look at the COLR rules to make sure they still make sense in today’s world, where technology and how we use phones are changing fast. This includes:

• Reviewing what “basic service” should include
• Deciding which companies should be responsible for offering it
• Considering when and how a company might be allowed to stop being the COLR for an area

If you would like to comment on these issues to help inform this proceeding, please see the information below on Public Forums.

Important note

This review is not the same as AT&T’s recent request to stop being the COLR in its service areas. That request was denied by the CPUC in June 2024. 

What happens if a company wants to stop offering service as a COLR?

The CPUC’s current rules require that there be a COLR for every Californian and no telecommunications service provider may stop being a COLR unless another telecommunications service provider stands ready to assume the legal obligation to offer basic service in the designated COLR territory. In addition, Federal rules require any provider seeking to discontinue service to a particular customer or community to first obtain permission from the Federal Communications Commission (FCC) by filing a petition for Discontinuance of Service. 

This proceeding will examine the COLR rules, including the current legal obligation to serve customers, the definition of basic service, which company is obligated to offer basic service, and the conditions under which a company could seek to no longer serve as COLR for a particular community.

Which telecommunications service providers serve as a COLR and where do they serve?

Below is a map of the telecommunications service providers currently serving as COLRs, and the territories where they serve as a COLR. A larger version of the map may be viewed here.  

What is “basic service”?

The CPUC has rules in place to make sure that everyone in California—no matter where they live—can get reliable and essential communications service. This is called “basic service.”

Basic service includes the following features:

If you qualify based on income or enrollment in certain public assistance programs, California LifeLine helps lower your phone bill. It provides discounted landline, wireless, or VoIP (internet-based) phone service. All COLRs are required by law to provide LifeLine discounts, unlike other companies who may choose whether or not to provide LifeLine discounts. 

Can Basic Service Be Provided Without a Landline?

Yes. Basic service doesn’t have to come through a traditional copper landline. It can be provided using any type of technology—like wireless, internet-based (VoIP), or future tech—as long as it meets the state’s basic service standards. The rules are technology-neutral to keep up with how communications are evolving.

Want to Share Your Thoughts? Attend a Public Forum or Submit a Comment

The CPUC wants to hear from you! As part of this process, we are holding Public Forums so you can speak up about your experience and what you think should change.

You can:

Or, submit your comment online.

Or mail your comment to: CPUC Public Advisor’s Office, 505 Van Ness Ave., San Francisco, CA 94102. Please reference Rulemaking 24-06-12 in any communications you have with the CPUC regarding this matter.

Need help or an interpreter? Contact the Public Advisor’s Office at least five days before the hearing for assistance or translation into a language other than English or Spanish: 1-866-849-8390 (toll-free) or email Public.Advisor@cpuc.ca.gov.

The dates, times, and venues for the Public Participation Hearings are as follows:

Recent Activity in This Proceeding

On February 14, 2024, the assigned Administrative Law Judge in this proceeding issued a ruling scheduling Public Participation Hearings and directing certain carriers to provide notice of the Public Participation Hearings. For more information, scroll down to see the schedule information posted to this webpage or review the ruling here.

The Assigned Commissioner issued a Scoping Memo and Ruling on February 4, 2025, identifying the issues and schedule within the scope of this proceeding. Review the Scoping Memo and Ruling here. 

Parties to this proceeding submitted Initial Proposals responsive to the Order Instituting Rulemaking on September 30, 2024. Parties submitted Reply Comments to the Initial Proposals on October 30, 2024. Some parties submitted revised versions of their Initial Proposals on December 6, 2024. Initial Proposals, Reply Comments, and Revised Initial Proposals may be viewed at the links below.