Regulating "Caller ID:" Emulation and learning in US state-level telecommunication policy processes

Analysis of the development of Calling Line Identification (CLID) Service (commonly described as "Caller ID") policy in all 51 state telecommunication regulatory agencies and the Federal Communications Commission over time shows state telecommunication policy to be embedded in complex emulation, learning and innovation processes. Our analysis shows a convergence around specific policy solutions at specific time periods, but the convergence points are shifted when commissions 'break from the pack' as a result of learning. CLID number-blocking solutions shift from low-privacy to high-privacy forms over time. The notion of a learning curve, whereby commissions and stakeholders learn about the new service over time utilizing discovery, interrogatory, cross-examination and other procedures, explains the direction of policy development. The likely mechanisms of policy convergence and divergence are discussed. The zigzags of federal policy on number blocking are explained utilizing Noll's external signals theory, the FCC's isolation from state-level policy networks, and federal pre-emption concerns.