The involvement of utilities in the development of broadband infrastructure: A comparison of EU case studies

Energy companies and other utility providers have been often involved in the provision of telecommunications services. Nevertheless, their contribution to broadband development has varied significantly over time. In the late 1990s, both local and national utilities in the European Union (EU) engaged in the provision of broadband networks, but only few of them managed to establish themselves as major broadband providers. More recently, new projects involving national utilities have been announced in several EU countries, opening new scenarios for utilities’ contribution to Next Generation Access (NGA) development. This paper identifies and explores the factors affecting the entry and the success of utilities in the EU broadband market, through the comparison of four case studies from four EU countries (Germany, Italy, Sweden and the UK). The evolution of utility involvement in the EU broadband markets is assessed against the interaction of market, technology and policy factors, focusing on the impact of policy and regulatory measures. As a result, this paper provides fruitful insights into the relevance and effectiveness of public interventions in broadband markets. Across the four case studies, public support and public ownership emerged as the main drivers for the involvement of utilities in EU broadband markets, with regulatory measures and economies of scope exerting a limited and decreasing influence. However, the contribution of utilities has varied significantly across the cases studied, reflecting the different approaches taken at national and local level to support broadband development, in spite of the common regulatory framework.     

Regional differences in residential demand for very high bandwidth broadband internet in 2025

The future demand for data and the role of gigabit networks are central issues in the context of Next Generation Access (NGA) network roll-out. Based on a generic model, which allows to predict unconstrained future broadband demand in different regions and countries, the authors compare the results for Germany, the UK and the Flemish region, and discuss reasons for the different outcomes. The generic market potential model thereby allows to project the future demand for bandwidth from residential customers on the basis of applications and their bandwidth needs, user profiles and population structure on a household level. Despite a general trend towards an increasing need for broadband, there are clear differences. On the one hand, these point to the relevance of socio-demographic factors for broadband adoption. On the other hand, the relatively high proportion of refusals shows that there is still a need for further educational work on the part of public authorities and providers. Finally, it has to be stated, that our forecast relies on the assumption that connectivity and thus that the availability of area-wide gigabit capable broadband access does not represent a bottleneck.     

Long term risk sharing contracts as an approach to establish public–private partnerships for investment into next generation access networks

This paper develops an investment/pricing model for the deployment of basic broadband networks which, along with other applications, is applicable to public–private partnership projects. In particular, a new investment model is suggested to be used for finance deployment over a longer term by enabling both private and public investors to participate in the roll-out of next generation access (NGA) infrastructure. This so-called “long-term risk sharing concept” has several notable benefits compared with the traditional regulatory approach. Above all, the model enables both private operators and public authorities to share the risk of investing in NGA infrastructure. Thus the model offers a way for public authorities to achieve a timely and countrywide roll-out of NGA networks, including in areas where NGA investment would otherwise not occur.     

Factors determining municipal broadband strategies across Europe

Recognizing that high-speed broadband connectivity emerges as a key element for growth, city authorities engage in fiber access deployments to empower their local communities in the digital economy. Currently, a growing number of municipal fiber projects are underway or planned while the international community and the telecommunications industry are yet undecided about the role and type of municipal intervention. This paper takes a holistic view of municipal broadband in Europe, aiming to understand the factors that determine municipal strategies in fixed Next-Generation Access (NGA) networks and the implications of municipal broadband to regulation and markets. The data suggests that the determining factors are (a) the engagement of public utilities; (b) the involvement of the private sector in joint infrastructure projects; (c) the local demand for retail and wholesale services; and (d) the institutional and regulatory framework at the European and national scale. The findings of the study indicate that (a) municipal initiatives are highly dependent on national factors, thus the resulting interventions fare strong resemblance within a single country, while they can be substantially different across national contexts; (b) current EU provisions for public involvement in broadband development stimulate municipal plans for large scale arrangements; and (c) national regulatory frameworks, that primarily address vertical integrated incumbents and nationwide markets, may need adjustments to handle emerging access monopolies of regional and city broadband infrastructures.     

Rural broadband: The provider matters

As broadband use has grown over the past few years, scholars and policymakers have turned some of their attention to the urban-rural broadband divide. While existing research offers important insights into this divide, no research has fully explored the differences in broadband deployment patterns among various types of telecommunications providers, including both large and small telephone and cable providers. Through data collected from interviews with telecommunications company representatives, this research assesses the extent to which different types of providers are deploying broadband in urban and rural areas. The interviews are also used to ascertain factors shaping the broadband deployment decision-making process for different types of providers. Both the quantitative and qualitative elements of this research demonstrate clear patterns among different types of providers in relation to rural broadband deployment, as different types of companies are influenced by somewhat unique regulations, competitiveness concerns, resource levels, and existing infrastructure conditions.     

A CDS approach to induce facilities-based competition over NGA networks

The current regulatory framework in the European NGA market provides the basic principles for the gradual migration from service-based competition over the legacy copper access networks to facilities-based competition over fiber-based Next Generation Access (NGA) networks. This paper initially reviews the related literature and shows that: (i) an unbundling policy that boosts entry by alternative operators promotes service-based competition but provides operators with disincentives to invest in network upgrade; (ii) there is no consensus about the optimal regulatory policy that promotes competition and encourages investments in NGA networks; and (iii) the reviewed research articles are not consistent with the current regulatory framework in the European NGA market in terms of both the evolution of the regulatory goals over time and the recommended regulatory settings. This paper aims to propose a novel approach in order to effectively meet the current regulatory goals using the recommended settings. It is shown that the proposed approach, which is based on the basic principles governing a Credit Default Swap (CDS), provides an effective migration path towards facilities-based competition over NGA networks.     

Unbundling and infrastructure competition for broadband adoption: Implications for NGA regulation

The common idea of open access policy is that it refers to the sharing of particular elements, such as wholesale access networks, backhaul, under-sea cable and internet exchange points in fixed and mobile networks. In broadband networks, the use of open access policy usually refers to the infrastructure parts, which are considered a bottleneck. Many regulators have generally focused open access policy on fixed broadband networks, especially digital subscriber line (DSL) technology, in the last decade. Local loop unbundling (LLU) regulation is one of the main strategies for the regulator to open access to an incumbent’s bottleneck network in order to soften its monopoly power and encourage competition in the DSL broadband market. The OECD countries have different strategies regarding unbundling local loop and infrastructure competition, as the characteristics and infrastructure networks of countries vary. There are currently more choices of next generation network (NGN) technologies to develop. While local loop unbundling may not be applied fully to NGN development (the cost is not sunk, more technologies are available to implement, incentive of investment by operator), it can indicate benefits and drawbacks of open access policy in the past decade that can be adapted to NGN.The empirical results of this study show that during 2002–2008, LLU regulation was one of the strategies used to increase broadband adoption in countries that had difficulty encouraging infrastructure competition. Unbundling regulation can therefore be implemented carefully and differently in each country that has inefficiency that is harmful to consumers in its market from a monopoly incumbent. Infrastructure competition, on the other hand, is introduced as another strategy to increase broadband adoption. The empirical results of this study indicate that infrastructure competition can be used as a strategy when there are already enough infrastructures in the area or country. These results support the idea of using open access and infrastructure competition policy depending on the existing competition of broadband infrastructure in each country.     

Who replies to consultations,and what do they say? The case of broadband universal service in the UK

Over the last decade or so, access to broadband services has become increasingly important. While many in the UK already benefit from the provision of broadband, some, especially those located in more rural and remote areas, do not – they may not be able to access the Internet and when they do, their connection and consumer experience may be poor. After trying to resolve this through a stream of different initiatives, the UK government announced a broadband universal service obligation (USO) of 10 Mbps in late 2015. Ofcom, the telecommunications regulator, launched a consultation in April 2016 and sought the views of interested parties. The consultation attracted considerable interest, but after the submissions from orchestrated campaigns are discounted just over 100 responses remain. But who contributed and what did they say? To explore these two questions, this paper adopts a qualitative approach, using NVIVO, to analyse the responses to the consultation. We show that contributions were highly diverse, reflecting both the complexity of the issue as well as its politicised nature. A lack of agreement among the responses is revealed and divergent views on key issues like the appropriateness of 10 Mbps, whether this should change, how it should be funded or what technologies should be used exist. In this paper, we provide a critical discussion of and derive implications for the broadband USO. We tentatively conclude that those in rural and remote areas that the USO intends to help are caught between two countervailing forces – speed and cost deployment – that interact to ensure that whatever resolution to provide broadband access, some will likely be unhappy.     

Examining the prospects for Gigabit Broadband: Lessons learned from Google Fiber

This study examines possible lessons learned from the deployment of residential Gigabit networks based upon the novel approach taken by the Google Fiber project started in 2010. Even though Google Fiber paused any project expansion in 2016, calling into question the viability of their business model, the approach taken by Google Fiber elicits further research interest given four major innovations that this analysis identifies in its fiber-to-the-home business model. Based on a “top-down” financial model to estimate the costs of fiber deployment, this analysis shows that these four innovations pursued by Google Fiber, and now adopted on a widespread basis by other broadband providers, lower the costs of building residential Gigabit networks, and therefore can improve the prospects for new entry of service providers of residential broadband services. With technology advances pointing to further cost reductions in the cost of Gigabit networks, this analysis elevates the need for more detailed study of ongoing changes in the cost structure of local access networks to better anticipate future prospects for broadband competition.     

Comparing FTTH access networks based on P2P and PMP fibre topologies

There is an ongoing discussion in the market which Next Generation Access (NGA) architecture best suits future needs and which investment and cost differences exist. The discussion can be subsumed as P2P vs. GPON, which is somewhat misleading as this article reveals. The discussion is driven by the fact that the high capital cost and the long asset life time of fibre mean that the technology choices made today will dominate the opportunities for telecommunication business of all market players, incumbents, competitors, content providers and business and residential users for many years in the future.The paper analyzes the cost and other differences between Fibre-to-the-Home (FTTH) access network architectures and their related different wholesale approaches by using the well-known and understood steady state approach applied in other NGA analyses in the past. In addition to the steady state analysis a dynamic cost evaluation is included taking into account the different investment behaviour of the FTTH architectures over time. The results describe investment and cost differences between architectures, incumbents and wholesale based competitive operators. The analysis has been performed for different geotypes (clusters) of decreasing population density in a representative European settlement structure.     

The participation society and its inability to correct the failure of market players to deliver adequate service levels in rural areas

This paper critically reviews the ‘participation society’ inspired policy measures of two Dutch provinces (Drenthe and Groningen) for providing rural broadband. Based on a database with broadband initiatives, interviews with stakeholders, focus groups and document analysis, it analyzes how rural broadband initiatives and regional governments interact in their ventures to provide superfast broadband to rural communities. Essential in this is that in the Dutch participation society concept, citizens' initiatives are seen as an important actor to deal with failing service delivery by market players in rural areas. The relation between regional governments and citizens' initiatives, however, is troublesome, resulting in inadequate policies. Key findings are that even when governments come up with supportive policies for citizens' initiatives, initiatives still experience governmental efforts as constraining factors. Regional governments apply ‘old style’ governance and construct generic policy instruments, forcing initiatives to put a lot of effort in complying with generic policy requirements or political goals. Overall, solving a national market problem at the regional level proves to be problematic. More national guidance is needed to solve the rural broadband gap.     

The Market Structure of Broadband Telecommunications

The recent growth of the Internet is creating markets for broadband telecommunications networks. In the past, virtually all such 'infrastructure' networks have been subject to government regulation. Two reasons advanced for this market intervention are (i) such networks constitute a natural monopoly, and (ii) to achieve 'universal service', in which all citizens have access to services. In this paper, we develop a model and estimate it using engineering data which tests if these two hypotheses are likely to obtain for broadband networks. We find that oligopolistic competition is likely to emerge for demand levels approaching that of today's cable television.     

The tribal digital divide: Extent and Explanations

This paper documents home Internet access, types of Internet access, connection speeds, and prices for basic home Internet in tribal areas of the United States. We find that the share of households with Internet access is 21 percentage points lower in tribal areas than in neighboring non-tribal areas. When compared to these non-tribal areas, download speeds, whether measured using fixed or mobile broadband networks, are approximately 75% slower in tribal areas, while the lowest price for basic Internet services in tribal areas is 11% higher. Regression techniques reveal that traditional cost factors such as terrain and population density fully explain the price gap but account for only a fraction of the tribal differences in Internet access and connection speeds. Income differences are strong predictors of Internet access but do not affect connection speeds. A sizable amount of the variation in the access and home connection gap between tribal and non-tribal is left unexplained. We conclude with a discussion of how federal broadband programs have penetrated Indian Country, how tribal-specific factors are related to the variation in Internet access within Indian Country, and the potential policy implications of our findings.     

Race to the top: Does competition in the DSL market matter for fibre penetration?

High speed broadband creates potential productivity gains and has a positive impact on economic growth. Achieving Europe's broadband access objectives will require large scale investment in next generation broadband networks, and it is imperative that an appropriate investment climate is created to encourage fibre network rollout. This study considers whether and how competition in the DSL market affects the incentives of operators to invest in the deployment of high-end fibre optic networks. Most earlier research on the drivers of investment in broadband technology has focused on the effect of mandatory access policies, such as local loop unbundling, or competing infrastructures. We posit that competition in the DSL sector may also influence fibre penetration, possibly to a considerable extent. We find that the relationship between service-based competition and fibre penetration is non-linear: a lack of or severe DSL competition is correlated with a negative effect on fibre penetration, but if a moderate degree of competition is already present in the market, more service-based competition may positively influence fibre penetration. The scale of these effects however varies with the openness of the DSL market: operators' incentives to invest in fibre appear to be more sensitive to changes in DSL competition if there is extensive local loop unbundling.     

Demand-side broadband policy in the context of digital transformation: An examination of SME digital advisory policies in Wales

Increasing attention has been paid to the potential for demand-side policies to stimulate use of broadband networks. Such policies form part of the increasing digitalisation of the economy and wider society. This is an area where governments are also facing challenges in their efforts to maximise the efficiency and effectiveness of their policies. The paper sheds light on the impact that the transition towards digital has had on demand-side policies supporting the adoption of broadband and digital technologies by SMEs, and draws out the implications for policy, using a case study of Wales in the UK over a ten-year period. It shows that digitalisation has seen policy mechanisms and messages evolving as policy makers have created a more integrated and multi-channel approach to the delivery of advisory support to SMEs, but that the emergence of multiple types of actors (large digital platform businesses) and ongoing digitalisation are adding complexity to policies and their interaction with other forms of public and private business support.     

The impact of intra-platform competition on broadband penetration

There has been an extensive debate about the role of broadband access regulation on market outcomes. This paper estimates the impact that the different modes of competition have had on broadband take-up to date, using a data set for EU27 countries. We find that ULL, which is one of main types of access-based competition in Europe, has had a positive impact on broadband take-up. However, the impact of ULL becomes smaller as its share increases. That is, ULL entry is less effective in areas where ULL take up is already high. Further, there is evidence of a crowding out effect between ULL and inter-platform competition. This means that ULL is less effective in enhancing broadband penetration in the areas where alternative networks already have a significant share of broadband lines.     

Unlocking the potential of Italian broadband: Case studies and policy lessons

A number of regional initiatives have recently revived the Italian broadband sector, although their fortunes vary depending on governance, market and geographical issues. However, all these initiatives jointly succeeded in sparking a heated debate on how public–private interplay can facilitate the deployment of broadband networks in a country still lagging behind European frontrunners such as Denmark, Sweden and the Netherlands. In the light of European Union regulation and recent case law, the paper examines three regional initiatives (Progetto Banda Ultra Larga Lombardia, Trentino Network and Lepida Emilia Romagna) by using the conceptual model on public private interplay developed by Nucciarelli, Sadowski, and Achard (2010). Thereafter, the paper elaborates on initiatives' ups and downs to focus on conditions and trigger events that have made them a success or a failure story. Lessons learnt conclude.     

Maximizing the adoption of fixed number portability within the EU: An empirical analysis

Number portability (NP) is considered by the European Commission as a key measure for promoting competition within the telecom sector especially regarding network access infrastructure. However, NP requires several modifications to the network architecture and to the business processes of each operator that, depending on network size, may result in a significant financial cost. This is true for fixed networks in particular. Given the requirement for such an investment, National Regulatory Authorities (NRAs) desire a clear picture on what to expect, in terms of progress in access competition, when introducing fixed NP in their respective markets. The paper approaches this question by correlating several fixed telephony market indices related to access competition to the degree of success of fixed NP. Relevant analysis based on European Union member states’ data indicates that fixed NP does not significantly contribute to local loop unbundling (LLU) adoption in markets where there are other access technologies available. In these markets, access competition via these other technologies and fixed NP initially achieve similar penetration rates. Consequently, when access competition exceeds a certain threshold and given a reasonable pricing regime then fixed NP is further boosted to include broadband connections based on several broadband technologies/methodologies such as LLU and cable as well as existing narrowband access technologies (e.g. narrowband cable connections). In markets where LLU is the only alternative for access then the rate of Fixed NP adoption is directly correlated with the success of LLU. Consequently, these conclusions are considered within a high-level stepwise approach for NP implementation, which is based on the experience acquired from the respective Greek national project.     

Net neutrality and market power: The case of South Africa

Net neutrality rules have been implemented in many developed countries, often in response to concerns over network operator market power and potential blocking or throttling of content. However, developing countries typically have significantly lower levels of internet penetration and usage. Market power in respect of internet access looks quite different given that mobile is the predominant means of connection and there are often three or more mobile operators. In South Africa, there is a quasi-monopoly in the paid satellite broadcasting market and broadband providers zero-rating content from third parties (such as Netflix) may bring about more competition. We test the main theories of harm arising in the net neutrality debate, including network operator market power and exclusion among content providers using data on the number of announced prefixes and peers and IP addresses and considering examples of bundling and zero-rating conduct by operators. We find that net neutrality rules are less likely to be required in South Africa and other developing countries and that strict enforcement of such rules could in fact hinder competition in markets for content, telecommunications networks and other related markets.     

Rollout and regulation of Fibre-To-The-Premises networks. Insights from the Spanish case

In 2017, the coverage of Fibre-to-the-Premises (FTTP) infrastructure reached 71% of households in Spain, surpassing most of the other Member States of the European Union (EU) and only outweighed by Portugal, Latvia and Lithuania. This article analyses the factors that have contributed to the deployment of these fibre networks by both the incumbent and the alternative operators that previously relied on the Local Loop Unbundling (LLU) of copper cables. An investment-friendly regulatory framework, which did not mandate access to the optical loops, and a telecommunications market comprised of dissimilar actors in the fixed and mobile segments, have been key to the deployment of FTTP networks in Spain. Additionally, based on historical coverage data, we test retrospectively, the sensitivity of geographic market segmentation to the time of the analysis and criteria for potential NGA competition. As per the analysis, the unregulated area where facility-based competition may be expected range between 23% and 61% of the premises upon the case. We discuss the implications of having mandated a Virtual Unbundled Local Access (VULA) to New Generation Access (NGA) infrastructure in 2013, examining the most likely operators' strategies. We conclude that, in the Spanish market, an earlier regulation would have reinforced inter-platform NGA competition at the expense of more limited coverage. The analysis can provide policy-makers with useful insights about the trade-off between coverage and infrastructure competition.