Implementing policy on next-generation broadband networks and implications for equity of access to high speed broadband: A case study of Australia's NBN

Next generation telecommunications infrastructure is expanding and supporting rapid growth of broadband technologies and a digital economy. In this context, digital information and communications technologies (ICTs) are of increasing importance as a means for people to gain access to health or social services, employment opportunities, information and social networks. In this article we draw on our recent case study research to examine the policy (and politics) shaping implementation of Australia's National Broadband Network (NBN) and its likely effects on equity of access to high speed broadband (HSB) services. We monitored NBN policy and implementation from 2015 to 2018 through policy documents, reports, and media. To assess likely effects of NBN policy on implementation and subsequently on equity of access to HSB we: a) applied a framework defining four elements of equity of access; and b) analysed stakeholder views drawn from media articles and 22 interviews with experts on NBN policy including politicians, government staff, and industry representatives. We found that equity considerations competed with political and commercial imperatives during the rollout of the NBN. This resulted in positive and negative consequences for equity of access to HSB, with a change in policy and implementation in 2013 bringing greater risks to equity of access. The case study provides a framework for considering equity in the implementation of next generation telecommunications infrastructure and highlights the importance of considering equity in the evaluation of telecommunications infrastructure.     

Determining the level of regulation in EU telecommunications. A preliminary assessment

The attention of the EU is currently focused on which aspects of telecommunications should be regulated at a national and which at a European level. The paper argues that in practice this is not an ‘either/or’ question, but a question of the degree of regulatory detail at the European level. The criteria for making choices on this dimension should be the standard ones of efficiency, equity, accountability and (in this case) consistency with the single market. The presence of externalities favours a central solution, while reliance on local information and a desire for political accountability favour decentralization. A number of possible regulatory frameworks are analysed, including the creation of an independent European regulator. In many contexts, some form of policy coordination is preferable to the creation of new centralized institutions.     

Telecommunications policy and the pleasure principle

Most serious discussion of telecommunications policy is governed by a utilitarian framework in which the success of communications networks is measured by some criterion of productivity. This exclusive emphasis creates undesirable rigidities in large communications systems upon which industrialized societies are so dependent. An analysis of productivity constraints on the social flexibility of existing networks is offered in support of an argument for deliberately building playfulness, in line with certain modest proposals, into the organization of emerging networks of communication.     

Communication satellites for rural service: Problems and potentials

The author discusses three interrelated facets of the problem and potentials of communication satellites for rural development. The first concerns the nature of the needs for rural telecommunications, and differences from urban telecommunications needs. The second facet is the technical and economic nature of satellites, compared to other technologies, as it relates to the task of meeting rural needs within rather severe economic constraints. Finally, a set of policy issues emerges from the review of technical and economic characteristics in the context of rural needs.     

Statistical precision of productivity change: A bootstrap application to Taiwan’s telecommunications industry

This study investigates the impacts of telecommunications policy on productivity change of the Chunghwa Telecom Company (CHT) from pre- to post-privatization. A three-stage method is employed to measure the productivity scores of CHT during the period 1966–2008. The Malmquist productivity index (MPI) is used in the first stage to assess the productivity of CHT. In the second stage, the statistical confidence intervals of productivity scores of CHT were obtained using the bootstrapping algorithm. Finally, the Chow test and multiple regression models were also utilized to investigate the impact of telecommunications policy on productivity change of CHT. Results of empirical examination indicate that on average TFP scores obtained by the bootstrapping technique are smaller than those obtained by the MPI technique. In addition, there is no difference in productivity change of CHT between pre- and post-privatization according to the MPI and bootstrapping MPI. The results show that the effect of privatization on productivity change is insignificant. Instead, the operational efficiency of CHT is affected by the government involvement in decision-making under its private/public joint ownership, which causes CHT to be a firm with little managerial profit orientation.     

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.     

FCC policy research

Since 1967 the Federal Communications Commission has conducted a programme of research and policy studies to provide guidance on long-term technical and policy problems in all areas of telecommunications. This programme is now under the direction of the Office of Plans and Policy, which undertakes studies and research projects using the skills and expertise of its multidisciplinary staff. It organizes and implements conferences and symposia on behalf of the Commission, whereby Commission staff can interact with outside experts on topics of significant policy concern. Finally, it manages the FCC's programme of contractual research studies.     

Mexico's international telecommunications policy: Origins,the WTO dispute,and future challenges

Mexico is by far Latin America's largest trader and the country with the most free trade agreements. Notwithstanding the success of its trade policy, the liberalization of its telecommunications sector was limited and generated a dispute at the WTO. This article offers an overview of Mexico's trade policy, with special emphasis on its policy regarding trade in telecommunications services and the 2002–2004 Mexico–United States dispute over telecommunications at the WTO. The dispute is the first one over trade in telecommunications services at the WTO and has generated interest among many developed and developing countries.     

The impact of trade liberalization in telecommunications services: The case of APEC countries

This paper examines the impact of liberalizing the telecommunications services sector on investment and output in the Asia-Pacific Economic Cooperation (APEC) countries by estimating a system of four structural equations that takes into account the causal relationship between national income and telecommunications infrastructure. The degree of openness to trade in telecommunications is represented by a carefully constructed index that reflects a country’s trade and investment policy in terms of market access, national treatment and regulatory principles. One interesting finding from the empirical analysis is that the effects of trade liberalization depend on the risk rating of a country. In countries with relatively high risk ratings liberalization reduces investment in telecommunications.     

Spatial data constraints: Implications for measuring broadband

The accurate determination of where broadband telecommunication services are available in the United States continues to be a significant challenge. Existing data regarding broadband provision, such as that provided by the Federal Communication Commission (FCC) simply designate ZIP codes with at least one high-speed Internet subscriber. As ZIP code areas vary greatly in size and shape, the lack of geographic specificity as to exactly where broadband is available, particularly within ZIP code areas, confounds communications policymaking. Further, there are a number of additional geographic nuances concerning broadband availability that also inhibit empirical examination and policy generation, including the spatial limitations of digital subscriber line services. The purpose of this paper is to briefly review the issues concerning broadband measurement in the United States and provide an empirical analysis of several spatial data constraints that must be accounted for when interpreting and constructing public telecommunications policy.     

Telecommunications/ transportation substitution and energy conservation: Part 1

The substitution of telecommunications for transportation is held to have major potential for increasing energy conservation within the USA, other developed nations, and even developing nations. This article is the first of a two-part re-examination of the substitution hypothesis based on research and experience of the past decade. This part examines the theoretical potential of telecommunications-transportation substitution for energy conservation, and reviews recent research both on public attitudes towards substitution of telecommunications for travel and on the operational experience with substitution experiments in organizations. Part 2, which appears in the June 1982 issue of Telecommunications Policy, examines the major factors which influence whether individuals and institutions will in fact choose telecommunications over travel, and then discusses government policy which could facilitate telecommunications substitution for travel.     

Closing information asymmetries: A scale agnostic approach for exploring equity implications of broadband provision

A persistent challenge for telecommunications policy is the determination of broadband provision footprints in both space and time. In the United States, Form 477 data from the Federal Communications Commission (FCC) provide a valuable snapshot of broadband provision at the block level, but there are often inconsistencies with the underlying data. These inconsistencies include overly-optimistic self-reports from providers, requirements to report broadband provision within inflexible census administrative units, and a modest temporal reporting schedule (biannual) with a significant, one year temporal lag. These uncertainties are often compounded by telecommunications providers refusing to disclose any information on service footprints, geographic expansion plans or the characteristics of populations served by broadband. This type of obfuscation drastically limits the ability of policy analysts to evaluate outcomes (both positive and negative) associated with service provision and the digital divide, more generally. With the recent entry of Google Fiber to several metropolitan markets in the United States, many of the broadband reporting and evaluation challenges have re-emerged. The purpose of this paper is to leverage basic data mining techniques, a scale agnostic geographic framework and exploratory spatial data analysis (ESDA), to uncover the geographic intricacies of Google Fiber (Fiber) service for both Provo, Utah and Austin, Texas and compare them to Form 477 reports. In addition, we use basic statistical approaches to explore issues of broadband access and equity, accounting for the differences in socio-economic and demographic status of the populace served/not served for both cities, as well as basic pricing within and between communities.     

Excess capacity in international telecommunications

International telecommunications facilities—both satellite and cable circuits—in the Atlantic and Pacific Ocean basins are characterized by persistent excess capacity. Although some excess is desirable to provide flexibility and protection against system failure, the problem is so great that Intelsat has 100 satellite transponders deemed surplus to international requirements. However, plans are under way for continued expansion of cable and satellite capacity. This article examines why telecommunications organizations are investing in such a seemingly wasteful manner. Three possible explanations are explored: (a) over-optimistic traffic forecasts, (b) market structure and regulatory policy, and (c) inefficient pricing of circuits.     

Global political economy of technology standardization: A case of the Korean mobile telecommunications market

This paper examines empirical cases of standardization in the Korean mobile market as vehicles for approaching the broader political and institutional context of standardization in telecommunications. A consideration of Korean standardization in the mobile telecommunications market is particularly interesting because it reveals how the state's political interests influence standards decisions, which are primarily driven by market and technological changes in telecommunications. Judged from the social construction of technology perspective which sheds light not only on technology itself but also on political, social and economic interests that surround transformations in technology, this paper highlights power relations among the major actors that have made technology standards decisions in Korea regarding second (2G) and third-generation (3G) mobile telephony. The paper also attempts to show how the Korean government has dealt with the diverse interests of various market actors while pursuing its own policy agenda.     

Mergers,acquisitions and control of telecommunications firms in Europe

New evidence is presented about 12 large acquisitions by telecommunications firms in Europe. The average effect on acquirers’ shareholder value is not significantly different from zero, which confirms a paradox found by previous studies: bidding firms’ shareholders do not benefit from takeovers. There is high dispersion in the results. This suggests that detailed studies may uncover important aspects of the constraints that exist in the corporate control market of telecommunications firms. A case study of the Spanish firm Telefonica suggests that corporate governance problems and political intervention are significant components of these “agency” constraints.     

Has Europe missed the endgame of telecommunications policy?

The European Electronic Communications Code (EECC) is a major milestone in the EU's telecommunications policy. But is it such a step forward and are the technical and market developments such that the EECC is the endgame? An endgame would mean that sustainable competition is reached in all telecommunications markets. The current paper argues that the EECC's new policy goal of investment in very high capacity connectivity could actually lead to policies that end in sustainable infrastructure competition. The EECC's policies, however, are not courageous enough to reach this goal. This lack of courage also characterizes the EU's gatekeeper policies on call terminations and net neutrality. In both these areas an endgame with sustainable competition is possible.     

Does smallness affect the liberalisation of telecommunications? The case of Cyprus

A review of the literature on small economies and on telecommunications policy suggests that policy makers disregard the possible effects of the size of the economy on liberalisation outcomes. This paper builds on the literature on small economies to classify economy size according to economic, demographic, and geographical measures in order to empirically examine whether small size affects the effective culmination of liberalisation of telecommunications. A cluster of small economies that have a maximum population of 9.2 million (Guinea), GDP of US $86.17 billion (Singapore), and arable area of 19.3 thousand km² (Central African Republic) are the main focus of analysis. In particular, the paper capitalises on an in-depth analysis of the liberalisation of telecommunications in Cyprus and an econometric analysis of the respective European experience. The country-specific outcomes of liberalisation in Cyprus are consistent with the general tendency in small European economies and jointly provide strong evidence that smallness affects the success of liberalisation. The paper concludes with an array of policy suggestions for small economies.     

Trade patterns,industry structure and industrial policy in telecommunications

This article examines three major changes which have been occuring in the telecommunications market: liberalization, leading to increased competition in services and equipment, the internationalization of the equipment market, and a rapidly changing industrial structure. The interrelationship among the three trends is analyzed, and the authors hypothesize that it is the technological determinants which are driving the changing structure of the industry and its trade patterns and regulatory environment. The instruments of industrial policy are discussed, with examples from several countries. The European Community's policy in telecommunications is explained in some detail.     

Can information and communication technologies be pro-poor?

There is over 20 years of accumulated cross-country evidence on the link between telecommunications provision and economic growth. Looking at micro-studies from a range of countries including Bangladesh, Botswana and Zimbabwe, there is also some evidence that provision of telephony has a dramatic effect on the income and quality of life of the rural poor. This paper examines cross-country evidence to discover if teledensity (the number of telephones per capita) has a pro-poor growth impact—fostering increased average incomes while reducing inequality. It also examines the impact of telecommunications rollout on quality of life variables including infant mortality and literacy. It finds that, historically, telecommunications rollout has had a positive and significant impact on increasing inequality and little impact on quality of life variables. A reason for this is tested and preliminarily confirmed that rollout has (historically) only benefited the wealthy. The paper will then turn to emerging evidence on the role of the Internet in poverty relief and statistics on the access gap in provision between rich and poor, suggesting that this new ICT will also be a force for income divergence. Using the results of the cross-country analysis on telecommunications, the paper will conclude with a discussion of potential policy responses (such as sector reform and universal access programs) to turn telecommunications from a source of growth that also increases inequality to a source of growth that diminishes it.