Mapping the field: Retrospective of the federal universal service programs

The Telecommunications Act of 1996 (1996 Act) established the framework for four federal universal service programs: the High-Cost program, the Low-Income program, the Schools and Libraries (E-rate) program, and the Rural Health Care program. During the past 15 years, these programs have been examined from a number of perspectives in an attempt to measure their efficiency and effectiveness, including the funding mechanisms that support them. The Federal Communications Commission is in the process of restructuring the universal service programs to move support to broadband-based technologies. This is an opportune time to examine what is known about whether these programs have met the universal service objectives of the 1996 Act and have efficiently and effectively used universal service funding. To that end, this article surveys both oversight reports by federal government agencies and academic research literature drawn from a variety of sources to identify areas of concern regarding the mission, implementation, and impact of the federal universal service programs and support mechanisms. The article also includes research findings on how the economic incentives created by the federal universal service programs affect corporate investment and deployment decisions and consumer service and technology adoption decisions.     

Universal service subsidies and cost overstatement: Evidence from the U.S. telecommunications sector

Utility subsidies are often defended as promoting universal service. However, specific support formulas may be poorly targeted and/or designed. The U.S. high-cost loop support (HCLS) program (formerly referred to as the Universal Service Fund (USF)), has been a key component of the FCC's USF program. With proposed initiatives for universal access to broadband, it is useful to critically evaluate how the HCLS creates a moral hazard problem. This study finds that companies receiving HCLS subsidies have an incentive to report high costs to the FCC in order to qualify for still higher support payments. Using data from 1136 rural telecom firms in 50 states (1992-2002), this study shows that some companies respond to current incentives by overstating costs (or incurring higher costs) as they approach the subsidy cutoff points. Compared to the no-subsidy group, companies at the point of greatest subsidy jump appear to overstate costs more due to larger marginal benefits. Such perverse incentives need to be recognized in future universal service initiatives.     

Behind the scenes of the telecommunications miracle: An empirical analysis of the Indian market

The paper analyzes the demand and supply characteristics of the Indian telecommunications market, with the aim of contributing to the debate on the effectiveness of universal access policies in developing countries. The discussion is supported by some empirical evidence derived from a small time-series-cross-section dataset, containing mainly information on the fixed-lines segment of the market. The analysis suggests that the price elasticity of demand for fixed lines might be sensibly higher than the levels usually found in developed countries, while the crucial role of income and other sociodemographic variables seems to be confirmed. The paper also studies the impact of cellular penetration on fixed-lines diffusion. The results suggest the existence of a (positive) network effect in low penetration areas, while substitution (displacement) seems to arise in the most developed ones. Finally, the paper analyzes the supply side of the market, to assess the impact of market competition on investment. Competition seemingly helps stimulating investment in the most developed areas, but does not seem to have a significant impact in the less developed ones.     

The diffusion of new telecommunication technologies

This article assesses the recent diffusion of new telecommunication technologies. Drawing upon an historical framework, the authors find that new technologies face significant barriers to rapid penetration in the home and office. Data on cable television, electronic text services, teleconferencing and alternative video distribution technologies are analysed to highlight the constraints facing the growth of new telecommunications services.     

Universal service in China and India: Legitimating the state?

This paper examines the contrast between China's and India's universal service policies as manifestations of the two states' differing self-conceptualizations and legitimation strategies. We examine the timeline of universal service policies in the two countries, differentiating between the territorial, demographic and layered dimensions of universal service. The analysis reveals many similarities between the two countries, as well as some differences primarily related to the mode of funding universal service programs and the lead China has taken in deploying informatization services. We identify some of the proximate causes that resulted in these policy decisions. But in addition, we also examine how universal service policies are related to contrasting models of state legitimation.     

Leveraging the EU regulatory framework to improve a layered policy model for US telecommunications markets

What is the best way to overhaul the current telecommunications legislative framework in the United States? This is an ongoing debate among telecom policy analysts and many others affected by the legacy of regulatory compromises that govern US telecommunications (and related information and media) industry sectors. This paper compares a Layered Model for US telecommunications policy with the regulatory framework adopted by the European Union. Both approaches focus on service characteristics rather than underlying technological traits.¹ It becomes clear that the Layered Model could be adopted to move away from sector-specific regulation, and could successfully use conventional market analysis criteria.     

Telecommunications interception in Australia: Recent trends and regulatory prospects

This article reviews recent trends and regulatory prospects relating to telecommunications interception in Australia. The steady expansion of surveillance powers in Australia over the past two decades, particularly at the federal level, is critically evaluated. Drawing comparisons with the United States, the article analyzes the strengths and weaknesses of the existing regulatory system for telecommunications interception, including legal safeguards such as judicial warrants and civil actions for unlawful interception. The authors conclude by sketching a new normative framework for telecommunications interception that repudiates the idea of “balancing” competing interests in favor of a regulatory model that promotes human rights and due process as paramount considerations.     

The impact of non-neutral federal regulatory policy on competition

We present a duopoly competition model to illustrate how the simultaneous incorporation of two US federal regulatory programs negatively affected telecommunications competition during the past decade. Our model shows that the simultaneous implementation of the Universal Service Fund policy that grants subsidies to incumbent telecommunications providers serving in high-cost areas, and the carrier of last resort policy that mandates incumbents to provide service in under-served geographic areas, deters competitive entry in low-cost markets and thereby runs counter to the objectives for which the policies were intended. This model provides a theoretical explanation of a failure of federal policy.     

Spatial–historical landscapes of telecommunication network survivability

Network security and survivability are critical components of the global telecommunication infrastructure. However, due to a string of recent events, including the attacks on the World Trade Center, the ability of this infrastructure to provide a robust platform for the movement of critical financial, political and cultural information is in doubt. In the United States, both law enforcement and national security agencies are questioning the fundamentals of network security and survivability. This resurgence of interest in telecommunication network performance (particularly the Internet) by the US government is not only cyclical in nature, but has a decidedly geographic component. The purpose of this paper is to trace the evolution of telecommunication network survivability from the Cold War era to the present day, paying particular attention to its spatial manifestations. This includes an extended examination of network topology and survivability. In addition, this paper utilizes basic statistical analysis and a geographic information system to empirically examine a series of legacy communication bunkers scattered throughout the US. Results suggest that their locations were not only strategic during the 1960s, but remain geographically strategic today.     

The evolution of telecommunications policy-making: Comparative analysis of China and India

This paper is a comparative analysis of the telecommunications policy-making process in China and India. Adopting an institutionalist perspective and multi-streams framework, the paper analyzes the formal structures, rule-making procedures and interest groups involved in telecommunications policy-making in the two countries, in terms of their evolution over the last two decades. Though the two systems began this period with a somewhat similar ministerial-bureaucratic decision-making model, and faced similar problems of assimilating new interest groups and responding to international pressures, the paper finds that the decision systems in the two countries evolved in significantly different directions. China's telecommunications decision-making is significantly affected by the macro level political rearrangement and is more likely to be non-incremental. On the other hand, confronted by an increasingly litigious environment and a more fractious interest group culture, India represents a somewhat classical textbook case of incremental policy making. Nevertheless, numerous challenges remain in both countries, including institutional capacity and excessive regulatory deference to political authority.     

The public service potential of videotex and teletext

There are many public service applications for videotext such as closed captioning, librabry resources, educational aids, and dissemination of agricultural, community, and government information. Because videotext developed in a commercial environment, these applications have not yet been fully realized. However, a number of small scale experiments are being conducted in several countries. The author reviews the most noteworthy of these experiments. He also raises a number of policy questions concerning future use of vodeotext for public service.     

The role of farmer organizations in supplying supermarkets with quality food in Vietnam

The development of supermarkets in Vietnam, as in other emerging countries, is accompanied by increasing consumer concern for food quality. This paper investigates whether farmer organizations are able to help small-scale farmers obtain access to supermarkets as well as examines the role that supermarkets and public support play in the emergence and development of these organizations. The paper is based on case studies of a number of stakeholders marketing vegetables, flavored rice and litchi fruit in Vietnam. Eight farmer groups operating in the form of private commercial organizations act as regular supermarket suppliers for the selected products. Their ability to supply supermarkets is related to the combination of functions they make available to their members, especially with regard to promoting and controlling quality for which they receive public support. Their participation in flexible contracts with supermarkets, shops and schools is also a key issue. Supplying supermarkets via farmer associations increases farmers’ profits per kilo compared to traditional chains, but the quantities supplied to supermarkets remain limited. The paper argues that changes in farmer organizations are not primarily due to supplying supermarkets, but rather to public and international support for food quality improvement which has been of benefit to supermarkets.     

The evolution of the telecommunications policy agenda: Forty years of articles in Telecommunications Policy

This paper investigates the evolution of the telecommunications policy agenda by means of text mining forty years –from 1976 to 2016– of papers in the journal Telecommunications Policy. Text mining techniques help identify the key topics, the dominant combinations of concepts and the main areas of research within this multidisciplinary –technical, economic, social, policy– discipline. In addition they depict an evolution of the policy agenda more nuanced than the conventional public service, pre-competition and post-liberalisation stages typical of telecommunications. Also, in combination with bibliometric information, the results display the relationships between areas of research and methodologies, countries and authors’ background, all together providing a deeper understanding of the past, present and future avenues for research in telecommunications policy.     

Telecommunications policy and individuals with disabilities: Issues of accessibility and social inclusion in the policy and research agenda

Information and communications technologies have become an integral part of life in an information society, affecting employment, education and many other daily activities. For individuals with disabilities, equal access to telecommunications remains a concern, as many technologies that are developed do not allow for equal access. Law and policy have made significant progress in some nations, but sizeable barriers remain to the social inclusion of individuals with disabilities in telecommunications technologies and services. This paper examines the importance of equal access to telecommunications for individuals with disabilities in both the formulation and the implementation of policy. Analyzing issues of policy and implementation, this paper discusses policy questions and potential areas of research to better understand the relationship of telecommunications policy to access for persons with disabilities.     

Economy size and performance: An efficiency analysis in the telecommunications sector

The existing empirical evidence on the relationship between economy size and performance has been inconclusive. This paper employs stochastic frontier analysis to estimate economic measures of efficiency for the telecommunications sectors of 139 economies and examine their relationship with economy size. Simultaneously, it controls for the effects of competition in telecommunications, privatization of state-owned providers, independent regulators, and the quality of political institutions on sector performance. The findings suggest that economy size has a positive but decreasing impact on sector performance. Small economies have an incentive to grow to improve sector performance, though larger size is not a sufficient condition for efficiency. Sector policy and the quality of polity may contribute significantly to sector performance.     

Universal service in Turkey: Recent developments and a critical assessment

The meaning of universal service in telecommunications has changed considerably in the last decade. Technological advances have created the necessity to redefine the legal framework. While the demand for old universal services falls, new and wider services are to be included in the scope of legal obligations such as broadband. In this transformation of public policy toward universal services, political preferences take precedence over economic considerations. Turkey provides a good case in point. In this paper, the authors assess the legal framework of universal services and its institutional structure in Turkey. The tension between enlarging the scope of universal service and pressures on using revenues efficiently is emphasized.