The politics of relevance and the ITU

Ruben Näslund has done the telecommunications community a service by stimulating debate on the issues facing the ITU in the wake of the Nairobi Plenipotentiary Conference. The Nairobi Conference was important for both what was said and resolved and what was unsaid and unresolved. When sovereign nations meet for six weeks there is an interplay of emotions and perceptions which imperceptibly mould policy formulation well after the event. A Plenipotentiary Conference is a political event, however much the engineers, technicians and PTT administrators of the telecommunications community prefer or pretend that is not. The purpose of this article is to examine some of the outstanding ITU issues in light of certain basic facts which structure the interests of member countries.     

ITU conference in Nairobi: Confrontation or mutual understanding?

This article discusses decisions taken at the Nairobi Plenipotentiary Conference on the technical cooperation activities of the International Telecommunication Union, and relates them to other important ITU activities. Proposals for a new regulatory framework for telecommunication services to be considered at the forthcoming World Administrative Telegraph and Telephone Conference are also examined.     

ITU Plenipotentiary Conference and beyond : A case for serious foreign policy

The ITU Plenipotentiary Conference held in Nairobi in the Fall of 1982 was a significant international instrument for the conduct of telecommunication foreign policy. Growing demand for telecommunication services and products coupled with the economic and sociocultural impact of new technologies have resulted in greater global interest in the problems, issues and technical complexities of maintaining order in global telecommunication. A major theme of this article is that ITU deliberations and decisions are all part of the growing telecommunication foreign policy agenda and that the benefits of successful diplomancy are usually worth the costs of effective and coordinated domestic and international policy development.     

Open doors and open questions: interpreting the results of the 1998 ITU Minneapolis Plenipotentiary Conference

The 1998 ITU Plenipotentiary Conference (PP-98 in ITU jargon) took place in Minneapolis from 12 October to 6 November. As well as electing a new team of officials to lead the organization and establishing a financial envelope for the next four years, PP-98 faced two main issues. The first was to conclude the work begun at the 1992 Geneva Additional Plenipotentiary Conference by amending the ITU Constitution to give greater rights and responsibilities to the ITU’s private sector members. The second was to adopt strategic policies and plans to guide the Union into the 21st century. After first situating the Minneapolis conference in the context of the ITU’s unique organizational structure, culture and working methods, the paper describes the main results of the Minneapolis conference with respect to these two issues. It highlights constitutional amendments made which open the ITU to greater participation by the private sector, as well as to give non-governmental actors a greater role in providing advice and making decisions on technical issues. The paper then outlines the five strategies adopted by the conference to guide the activities of the Union in the next four years. In conclusion, it attempts to assess the principal challenges facing the ITU in terms of policy and organizational development.     

The missing link: a political hot potato

The Maitland Commission's report, The Missing Link, contains a cascade of recommendations - political, financial, institutional and operational. But, by setting a timetable for implementation of its recommendations before the next ITU Plenipotentiary the Commission has ensured that The Missing Link will be a political hot potato for the rest of the decade.     

The evolving 5G case study in spectrum management and industrial policy

Even before the International Telecommunication Union (“ITU”) reaches consensus on spectrum allocations for fifth generation wireless technologies (“5G”), commercial ventures scramble to offer new equipment and services. Expediting 5G wireless service can benefit consumers and businesses at the risk of stressing the traditional process of spectrum planning that combines study, dialogue and consensus building at ITU conferences.This paper explains why most nations refused to endorse key United States 5G spectrum allocation proposals at the ITU’s, 2015 World Radio Conference. U.S. representatives underestimated the time needed for consensus building, despite increasing demand for wireless video and the evolving Internet of Things. Other contributing factors include U.S. support for treating spectrum like property, use of “incentive auctions” to clear broadcast television spectrum with unprecedented speed and enough existing wireless spectrum allocations in most nations.The paper concludes that the U.S. cannot expect faster frequency reallocations, particularly when it and other nations pursue matters having little to do with spectrum optimization. The paper offers recommendations on best practices for improving the consensus building process.     

The evolving 5G case study in United States unilateral spectrum planning and policy

This paper tracks increasingly aggressive initiatives by the United States government to reallocate spectrum on an expedited and unilateral basis well before conclusion of inter-governmental coordination. Rather than embrace the customary commitment to achieve consensus on global spectrum allocations at the International Telecommunication Union (“ITU”), the Federal Communications Commission (“FCC”) has auctioned off large blocks of frequencies for the next generation (“5G”) of wireless services.The FCC might have framed its first 5G auction, reassigning Ultra High Frequency (“UHF”) spectrum, as a one-time deviation from compliance with long standing, intergovernmental coordination procedures. These frequencies have ideal signal propagation characteristics and the Commission could use financial incentives—unavailable in most nations—to expedite “repacking” by incumbent broadcasters willing to move, share or abandon spectrum in exchange for ample financial compensation. However, the FCC has continued to auction off 5G spectrum on grounds that it must find ways to abate an acute shortage of wireless bandwidth and doing so will regain or maintain global leadership in wireless technologies. This paper offers a critical rebuke to unilateral spectrum management, because the short-term benefits expected by the U. S. government likely will be offset by countervailing harms to 5G manufacturers, carriers and consumers. The paper tracks fractious preparation for the ITU's 2019 World Radio Conference by the U.S. delegation and the mixed record achieved there. Additionally, the paper explains how injecting trade, industrial policy and national security issues at the ITU can trigger more delays and disputes, including possible retaliation by nations displeased with U.S. efforts to subvert traditional technology optimization goals.A worst case scenario has the ITU deadlocked and unable to reach closure on “mission critical” spectrum planning issues at World Radio Conferences, convened every four years. The paper concludes that costs and likely challenges to the efficacy and legitimacy of the ITU will reduce the benefits accruing from the FCC's unilateral, spectrum planning campaign.     

Setting technical standards for improved communication flows

This article deals with telecommunications standardization in relation to world trade, needs of developing countries, and facilitating user access to worldwide communication. The author comments on the responsibility of ITU members to support standardization activities carried out in ITU forums.     

WARC-ORB-85: Guaranteeing access to the geostationary orbit

The measures that have been introduced to regulate the use of the geostationary orbit are considered by the vast majority of ITU members to be inadequate in their ability to guarantee access to the orbit by all states. In the absence of any powers of enforcement for the ITU, it would seem that ORB-85 may decide that only a long term plan, for the fixed-satellite service, could guarantee access to all states. An alternative is suggested that could meet the objectives of all states.     

Preparing for the next revolution in telecommunications: implementing the WTO agreement

The forces of globalization and convergence are generating the need for a new international system of governance for telecommunication. This future system is in the process of being planned, shaped, and implemented and the ITU is facilitating its development. Key considerations include governance based on the principles of internationalism, universalism, regulatory symmetry and independence, and open access. The ITU’s expanding structure, which now involves the participation in global policy development by industry as well as government can take major steps toward achieving real universal service and bringing more people into the world community.     

Regulatory institutions and processes in telecommunications : An international study of alternatives

This article reviews national regulatory institutions and processes for telecommunications, and assesses some advantages and disadvantages of the alternatives. It is based on a report commissioned by the International Telecommunication Union (ITU) in connection with its Regulatory Colloquium programme. The report was prepared by an independent team, and represents their views, not an ITU view. It summarizes experience in numerous countries, and includes detailed case studies.     

Why has multilateral space and spectrum resource management become more difficult?

This paper explains why the coordination of satellite orbits and spectrum use among nations may become more contentious and protracted. The potential for greater risks, delays, and conflicts may occur, despite treaty-level commitments by most nations to promote the peaceful uses of outer space and access to radio spectrum and satellite orbits free of signal interference and collision risk. Heretofore, specialized sectors of the United Nations (“UN”) have worked effectively in forging multilateral consensus on these matters.Since the onset of artificial satellite technology, the UN has created five space-related treaties covering such issues such as freedom of exploration, liability for damage caused by space objects, the prevention of harmful interference with space activities and the environment, the notification and registration of space activities, exploitation of natural resources in outer space and settlement of disputes. The International Telecommunication Union (“ITU”), a specialized agency of the UN, has largely achieved the goal of preventing harmful signal interference, formulating technical standards promoting equipment compatibility, and establishing uniform, operational rules of the road. Until now, month long ITU spectrum planning conferences have reached closure on both mundane and critical matters, albeit at a slow and methodical pace.The paper explains how several chronic and emerging factors challenge the successful record of multilateral consensus building on space and spectrum resource management issues. The probability of collisions of spacecraft with other objects, including space debris and harmful signal interference has increased, because the United States has opted to make domestic satellite rules and frequency allocations and in advance of final ITU consideration. Additionally, initiatives by China and Russia to expand the ITU’s mission to include elements of Internet governance could promote balkanization of Internet access and recognize the sovereign right of individual nations to surveil and control access to broadband networks.The paper assesses whether and how UN agencies can continue to establish timely and effective policies and procedures for reducing space debris and the potential for spacecraft collisions, and preventing harmful signal interference. The paper concludes that China, Russia, and the U.S., should renew efforts to promote collegiality, consensus building, and longstanding, shared goals at UN and ITU conferences.     

Toward international settlement reform: FCC benchmarks versus ITU rates

The global telecommunications service market is undergoing significant change as more countries privatize suppliers, liberalize national markets, and encourage entry. Despite these changes, international settlement rates remain significantly higher than the cost to terminate calls and many carriers reap substantial monopoly profits from the settlement payments they receive. Annual US settlement payments approximate $5 billion. Settlement rates are declining but the progress has been slow. High settlement rates, by raising the cost of international telephone service, result in high calling prices. To accelerate a reduction in settlement rates, the US Federal Communications Commission (FCC) adopted a set of maximum rates, called benchmark rates, which it expects US carriers to use in their settlements with other carriers and created a process designed to insure the implementation of these rates. The FCC benchmark rates vary primarily on the basis of a country's level of economic development. When the FCC took its action, the benchmark rates, which range from 15 to 23¢, were significantly below the rates in effect with most countries. The FCC action was widely criticized even though the rates exceed costs, vary according to countries’ levels of economic development, and will be phased in over five years to give countries time to adjust. The International Telecommunication Union (ITU) took an unprecedented step of proposing an alternative set of settlement rates for its members. The ITU rates differ significantly from the FCC rates, being much lower for economically advanced countries and significantly higher for less developed countries. The ITU rates vary according to a country's teledensity but the rationale for the ITU categories lacks support. In addition, other, arbitrary categories are part of the plan. Neither the FCC nor the ITU approach to reducing settlement rates address the problem of reforming the international settlement process and replacing it with an economically efficient, market oriented payment scheme. The first stage of the FCC policy went into effect in 1999. Complemented by changing market conditions, the policy has lead to lower US settlement rates, but most rates still exceed competitive market levels. Virtually all US minutes in the FCC's top two income categories comply with the prescribed benchmark rates. In fact, many countries in these two categories have rates with US carriers that are below benchmark levels. Several less developed countries have also negotiated rates with US carriers that conform to the FCC plan. As a result, US carriers benefit from the FCC policy as their average settlement costs decline. These cost reductions make possible lower calling prices but the market structure of US international communications service industry may inhibit the flow-through of these savings to US consumers. US consumer's prices were falling before the FCC acted on settlement rates. The FCC action seems to have increased the pressure to further reduce these rates. At the same time, however, service markets are being increasingly segmented and price discrimination is more widely practiced so only some US consumers benefit from lower settlement rates.     

The ITU and development assistance: North,South and the dynamics of the CCIs

The International Telecommunication Union (ITU), like other UN agencies, has been called upon to assist the developing countries in establishing a telecommunications infrastructure. This article charts the change of the ITU from being an organization concerned solely with matters of technical coordination to one which is involved in development assistance. The development of its various International Consultative Committees is also explained. The author argues that the developed countries have had to accept the change in the ITU's purpose demanded by its Third World members because of an imperative to consolidate the worldwide operation of telecommunications networks. As the industrialized nations' stake in those networks increases, the higher is the cost of breaking up the collective arrangements which make their operation possible.     

Mobile communications – On standards,classifications and generations

The research question addressed in this paper is concerned with the manners in which the general technological progress in mobile communications is characterized and the reasons for the differences in these modes of manifestation. The relevance of this research question is that the different manifestation modes create a degree of confusion in communications and discussions on mobile technologies. At the same time, it should be recognized that different manners of categorizing technologies illustrate the fact that categorizations are based on different purposes of the classification exercises. Also, the paper discusses the role of the International Telecommunication Union (ITU) in the processes of mobile standardization.In common parlance, progress in mobile technologies is mostly referred to as generations. In ITU, the classification terminology is that of International Mobile Telecommunication (IMT) standards. In the specialized standards body with a central position in the standardization of core mobile technologies, namely 3GPP (3rd Generation Partnership Project), the terminology of ‘releases’ is used. In order to address the research question, the paper uses an analytical framework based on the differences and relationships between the concepts of standards, classifications and generations.     

The future role of international telecommunications institutions

The telecommunications world is being swept by technological and national regulatory changes. The international telecommunication institutions — the ITU, INTELSAT and CEPT — were founded in times when technological trends were more stable and national regulation was more homogeneous. How will they cope with these new changes? In an era of growing heterogeneity, the ITU may need to look increasingly beynd itself to maintain its centrality. Meanwhile, INTELSAT faces challenges from new market entrants and a more flexible approach to new technological and commercial imperatives in satellite and cable services. The EEC is awakening to the need for institutional change within Europe and this is already having an impact on CEPT. It is concluded that to survive and to maintain relevance the existing international institutions will need to initiate changes or face a loss of authority to other institutions such as OECD and EEC.     

Development of policy in the ITU

As one of the oldest functional-purpose international organisations, the ITU is dedicated to voluntary agreements. These concern allocation of a scarce, internationally shared resourced, the radio frequency spectrum; standardisation of telecommunication services and systems; and joint planning. The organisation's policy making in pursuit of these objectives is outlined. Powers given to different organs are explained. Several cases are cited as illustrations of policy problems and their solutions. In summary, the rationale for the ITU's complex, federated structure is described.     

Improving development assistance for telecommunications

The stable development of telecommunications in the developing countries has been hindered by a variety of difficulties. Development assistance by the developed countries and a number of organizations has an important role in helping the developing countries overcome these difficulties and promote their telecommunications development. This paper examines different kinds of development assistance and suggests that the role of the ITU will be crucial to any improvement in coordination of assistance.     

Telecommunications for development: findings of the ITU-OECD project

This article presents the main findings of a major research project jointly sponsored by the International Telecommunication Union (ITU) and the Development Centre of the Organisation for Economic Cooperation and Development (OECD). The purpose of the project was to shed some light on the ways in which telecommunications contribute to economic and social development. The author also describes one approach to rural telecommunications explored by the project — the GLODOM concept.     

Walloon & Flemish videotex trials

This article focuses on the problems surrounding ‘compunication’, ie the growing imbrication between electronic computers and telecommunications. (The corresponding French term is télématique). More precisely, the specific problems of videotex systems thrown up by different experiments in Belgium are examined. The CCITT of the ITU uses the term videotex as the generic name referring to all systems that make it possible to gain information through telecommunication networks (Hertzian waves, cable TV distribution networks or telephone lines). Requested information appears on a TV screen (at home, in a place of work or in a public place).