The role of state in broadband development - Alison Gillwald
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Transcript of The role of state in broadband development - Alison Gillwald
Diálogo Regional sobre Sociedad de la InformaciónThe Role of the State The Role of the State
in Broadband in Broadband DevelopmentDevelopment
Alison GillwaldExecutive Director Research ICT Africa &
Adjunct Professor University of Cape Town,
Graduate School of Business,
Management of Infrastructure Reform and Regulation Programme.
DIRSI Young Scholars Programme DIRSI Young Scholars Programme Lima 18 May 2011Lima 18 May 2011
Research ICT Africa
ICT policy and regulatory think tank based in Cape Town South Africa that hosts a 20 African network across the continent conducting research in the absence of data and analysis required for evidence based policy
Policy research based on series of supply and demand side research undertaken by 20 country African research network which is triangulated with a telecommunications regulatory environment survey
Outline
Role of broadband in growth
Role of State – political
economy of reform
Global benchmarking
Policy responses in Africa
Analysis Absence of policy/vision
Lack of co-ordination
(cross cutting nature of
ICTs)
Institutional arrangements
Market structure – Vertical
integration/
concentration/ownership
Licensing - ahead and
behind
Absence of
vision/strategy/ demand
stimulation
South African case
Recommendations
ICTs and MDGs
“Broadband is the next tipping point, the next truly transformational technology. It can generate jobs, drive growth and productivity, and underpin long-term economic competitiveness. It is also the most powerful tool we have at our disposal in our race to meet the Millennium Development Goals, which are now just five years away.”
Hamadoun Touré, Secretary General
International Telecommunications Union.
Kenny & Kenny (2011) critique decontextualised, generalised claims of benefits of different types of broadband at different speeds for different audience segments (business vs. residential)
Telecom investment & economic growth
Correlations between telecom penetration and growth, job creation and productivity
Causality? Network effects World Bank 2010 study - 10% increase
in broadband penetration accelerates economic growth by 1.38% point in developing countries, more than in developed economies.
Kenny & Kenny (2011) critique decontextualised, generalised claims of benefits of different types of broadband at different speeds for different audience segments (business vs. residential) as justifications for subsidies.
2004 2005 2006 2007 2008
South Africa 5,17 6,38 7,43 .. ..
Senegal 6,84 7,81 8,96 9,75 ..
Brazil 3,37 4,15 4,62 4,61 ..
China 3,30 3,19 3,06 2,88 ..
India 2,28 2,42 2,02 .. ..
Kenya 4,34 4,74 4,05 6,05 6,32
Turkey 2,78 2,60 2,27 2,51 2,27
Tunisia 4,08 4,28 4,17 4,20 4,33
Korea, Rep. 4,62 4,67 4,70 4,65 4,72
Telecommunications revenue as % of GDP
Source: World Bank, IC4D database 2010
ITU Broadband Commission Report 2010
ITU Broadband Commission Report 2010
Average retail price for basic broadband in Sub-Saharan Africa $366 p/m vs. $40 in Europe (and India)
(Mark Williams (2008) Broadband for Africa, infoDev) Per 100 inhabitants Mobile broadband subscriptions
2005 2006 2007 2008 2009 2010
Africa - 0.1 0.3 1.0 3.0 3.6*
Arab States 0.1 0.2 0.8 3.3 6.2 9.7*
Asia & Pacific 1.2 2.3 3.4 4.5 5.7 7.1*
CIS - - 0.7 1.8 19.5 25.9*
Europe 3.9 9.0 17.8 25.9 35.3 46.3*
The Americas 0.4 1.4 6.2 10.3 16.4 24.2*
Estimated Internet users Africa 2.2 3.0 3.6 5.9 8.8 9.6*
Arab States 8.0 10.6 13.8 16.9 20.5 24.9*
Asia & Pacific 9.5 10.7 13.6 16.6 19.5 21.9*
CIS 10.7 12.9 18.4 25.2 35.7 46.0*
Europe 45.9 49.4 54.7 59.0 61.8 65.0*
The Americas 36.3 39.2 44.8 46.3 50.4 55.0*Fixed broadband subscriptions Africa - 0.1 0.1 0.1 0.1 0.2*
Arab States 0.3 0.5 0.9 1.2 1.7 2.3*
Asia & Pacific 2.2 2.7 3.3 3.9 4.7 5.7*
CIS 0.6 1.3 2.3 4.5 6.1 8.7*
Europe 10.8 14.6 18.3 20.6 22.2 23.9*
The Americas 7.2 9.1 10.9 12.4 13.5 15.5*Source: © INTERNATIONAL TELECOMMUNICATION UNION, 2010. Updated on 21 October 2010.
Source: RIA SA Communications Sector Performance Review 2009
Mobile vs fixed broadband in South Africa
Total Cost of Mobile Ownership
Policy reform outcomes Overall sector growth but suboptimal While phenomenal mobile growth fixed line growth for voice services,
opportunity to extend customers up value chain inhibited by access and usage high costs, low PC ownership and IT literacy.
Sector supported by high end users able to pay high prices but quickly becomes saturated, not reaching critical mass for network effects for next generation ICTs.
Low penetration of fixed broadband and unlike mature economies, mobile broadband used as primary service rather than complementary services for many broadband users
High prices for all retail and wholesale services inhibit optimal usage and high input cost into other sectors.
High input costs for business, inflate costs of service sector and inhibit investment, location of regional business headquarters and BPO opportunities with associated negative consequences on job creation.
Dearth of competencies and capacity in state institutions, private sector and users
Absence of official ICT statistics and indicators for evidence based policy or delivery or co-ordination
Broadband Communications Supply Chain
Adapted by author from Williams, 2010
Undersea cable developments
Capacity of Undersea Cables
Source: Steve Song, Shuttleworth
Foundation 2010
Terrestrial backbone challenge -Arising broadband policy questions
Open access policy - access to what? Facilities or service based licences? inter-platform competition main driver of broadband penetration.
Facilities-based intra-platform competition is found to have had a insignificant impact on broadband penetration, while services based intra-platform competition is found to have had even a negative impact. ULL?
penetration and ladder of investment theoriese not provide the justification to impose extensive mandateory access obligations (Bouckaert, van Dijk, Verboven 2010)
Service based competition, short term gains – lower prices, range of services – but negative long term investment consequences (Bauer 2010)
State capacity to manage strategies eg. ‘ladder of investment’? Functional / Structural separation? Models of funding/participation – public private partnerships, anchor
tenants.
Backbone extension strategies Ownership and management
Investment US$2010
Ethiopia 10 000km network jointly built by government and Chinese vendor ZTE
Incumbent 2billion
Cote d’Ivoire 2000 km fibre optic network Cote d’Ivoire Telecom (incumbent)
90m
Kenya Private sector contracted to build 5000km fibre optic network
Telkom Kenya(incumbent)
60m
4000km complete Kenya Data Networks(Private)
2009 Altech provided 39.5m
South Africa Network has expanded to 12250km (trunk)
Infraco Broadband Limited (wholly owned by the state)(Telkom )
2006/2008: 19m (funding from DPE)2009/2010: 34.7m
5000km network (trunk & metro)
MTN, Neotel and Vodacom (co-build)
300 m
2200km dark fibre laid (metro)
Dark Fibre Africa(Private)
300 m
Uganda Huawei contracted to rollout 2100 km of fibre in three phase (concession – BOT)
Uganda Telecom(incumbent)
106.59m
State sector relations – political economy of reform
• Calls for unfettered markets fail to acknowledge complexity of infrastructure industry, inherent bottlenecks , required co-operation among competitors and investment incentives.
• Reduction of state size associate with neo liberal reforms reduced state ability to implement very economic/political reforms being proposed
• Lack of institutional capacity to reform monopoly and duopoly markets and regulate them effectively
• Not a question of How much state? But What kind?
• Each sector presents distinct constrains and opportunities for State involvement
• Considerable evidence of success of regulatory state – well regulated markets efficiently allocating resources in ICT sector, with associated price and distribution effects.
• Also underpins democratic policies which protect citizen’s rights communication which might be undermined by market failure or lack of service to uneconomic areas, seek to promote consumer welfare and information societies and knowledge economies.
Developmental State
Characteristics of success developmental state (East Asian Tigers – Japan, through to Korea, Taiwan, Singapore) Johnson (1989), Castells (1999), Evans (1995), Haggard (2004), Woo Cummings (1999), Schneider (1999) Singh (1999) Makandawire (2000) Khan (2002)
Autocratic state Embedded state
(domestic capital) Efficient/meritocratic
bureaucracy Legitimacy/national
project
‘Dessarollista’ state (political capitalism) of Latin America// South Africa?
India/South African ?developmental state - ‘fettered’ by democracy
‘Predatory’ state of Africa.
VS
Telecom Regulatory Environment
EfficientInefficient
Summary of SA telecom market
Source: ITU
2010
SA has a very concentrated market
result: high prices
•The state remains a significant player in the telecoms market although it has sold its stake in some companies
•Mobile market: dominated by MTN and Vodacom, CellC captures a small market share
•Fixed market: dominate by Telkom, Neotel is a new entrant
Market Concentration
Herfindahl-Hirschman Index (using customer market share)
Source: Vodacom & MTN Annual Reports, CellC press releases, authors’
own calculations
The State is a significant player in the sector
Shareholdings in Telkom, Sentech and Infraco (through Eskom and Transtel)
• New structure in state ownership• Sale of Telkom Media • Sale of IT company Aviria.com• Telkom sold a 15% stake in Vodacom to
Vodafone; it distributed the remaining 35% to its shareholders
• The Government continues to own 37,7% of Telkom and 14% direct shareholding in Vodacom
Market structure - Ownership
Source: Research ICT Africa 2010 Sector Performance Review
South Africa - state owned broadband company
Without reference to the public and cutting across the ‘failed’ policy of managed liberalisation’, Ministry of Public Enterprises announced state owned broadband company.
Minister of Public Enterprises Alec Erwin : Markets in Africa not deep enough for foreign investment. (Untested).
Head of Competition Tribunal David Lewis: it is not that markets in South Africa not working, but we have not created working markets.
Incorporation of power and transport communications networks into new state owned broadband company...
Broadband Infraco Act 33 of 2007, but only licensed in October 2009.
“state led intervention to rapidly normalise telecoms market efficiency by commoditising only those part of infrastructure that impeded private sector
development and innovation in telecom services and content offerings.” (Infraco Annual Report 2008).
Practically the intervention has two components. national long distance fibre optic network, building on the original fibre optics assets deployed by the power utility Eskom’s power transmission lines and the railway infrastructure of Transnet. the international marine cable network, WACS, between South African and the United Kingdom, in competition with the club consortium monopoly cable, SAT 3.
Network investment and development...
Internet usage in South Africa
Source: RIA South African 2007/8 ICT Household and Individual User Survey
PerformanceInternet | Usage
Households with a working computer and
internet connection in Africa
Source: RIA ICT Access and Usage
Household and Individual Survey 2007-2008
SA continues to dominate internet access within sub-Saharan African but with lower penetrations rates and high prices by other lower middle income country standards
Proportion of household with Internet access at home
Source: ITU 2010
Extraordinarily high prices and low penetration compared to other middle income countries 2,8 subscribers per 100
inhabitants in 2009 ICTs and broadband at centre of
economic policies in leading countries and of African best performers - Algeria, Tunisia, Morocco, Mauritius, Kenya.
PerformanceBroadband | Access
Broadband subscribers per 100 inhabitants, in OECD graph
2009
The lowest uncapped and unshaped bandwidth being offered in most countries exceeds the highest in South Africa
PerformanceBroadband | Price
Minimum Subscription Price, USD for OECD countries, October 2009, compared
to SA
South Africa's lowest (left of bar) & highest (right of bar) broadband prices
compared to OECD
Policy and regulatory issues arising Lack of state policy and regulatory co-ordination (managed
liberalisation in sector with infrastructure development as part of developmental state).
Clash of public utility and competition/sector regulation cultures
Concentration of state ownership in sector and potential conflict of interest
Open Access to backbone unclear, terms of entry Concerns that ROR pricing may be anti-competitive, low cost
of capital Concerns that it has squeezed out private investment –
delays meant private investment returned by co- build by MTN, Vodacom, Neotel
Co-ordination of rights of way, access to spectrum
New broadband policy – October 2009
Fails to address what the bottlenecks and restrictions within sector itself
Fails to consider what is preventing the development of the market
No reference to regulatory framework, issues of co-ordination of rights of way, spectrum management, that have plagued first phase roll out.
No clear separation of services and infrastructure to create greater clarity market pricing and access to infrastructure.
New broadband policy - 2
No clarity on open access: Faster market development, local champions, enable rapid deployment in poorer areas, opportunities for innovation, SME
No direction on infrastructure sharing / functional separation/ structural separation
No opportunity for maximizing public and private finance in infrastructure , new investment models , cheaper bandwidth
No location in macro-economic recovery stimulation, job creation, llinkages between broadband penetration and increases in GDP/demand side
Key factors for success Next generation policy & regulation which includes the
incentivisation of innovation in a dynamic ecosystem. State co-ordination and demand side stimulation Institutional arrangements – clear role separation Institutional capacity and technical capabilities Enable provincial or municipal initiatives on open access
basis Market entry, open access network including
bitstream/LLU? Open access to carrier network Interconnection/spectrum/ numbers Co-ordinate rights of way / spectrum access
This research is made possible by the International Development Research Council of Canada.
For further information see www.researchICTafrica.net
Contact Alison Gillwald at [email protected]
+27 214476332
References Evans, P. (1997). Embedded Autonomy: States and Industrial Transformation: Princeton
Paperbacks. Fukuyama, F. (2005). State Building: Governance and World Order in the 21st Century (Second
ed. Vol. Profile Books Ltd.). London. Haggard, S. (2004). Institutions and Growth in East Asia Studies. Comparative International
Development, 38(4), 53-81. Gillwald and Stork (2008) Towards Evidence Based Policy: ICT access and usage in 14 African
countries available at www.researchICTafrica.net Calandro, Gillwald, Moyo & Stork (2010) Towards Evidence based policy: ICT Sector
Performance Across 17 African countries available at www.researchICTafrica.net Johnston, C. (1999). The Developmental State: Odyssey of a Concept. In M. Woo-Cummings
(Ed.), The Developmental State. New York: Cornell University Press Khan, M. H. (2005). Markets, State and Democracy: Patron-Client Networks and the Case for
Democracy in Developing Countries. Democratization, 12(Issue 5 Special Issue of Democratisation: On the State of Democracy), 704-724.
Mkandawire, T. (2001). Thinking about Developmental Sates in Africa. . Cambridge Journal of Economics(25), 289-214
Schneider, B. R. (1999). The Desarrollista State in Brazil and Mexico. In M. Woo-Cummings (Ed.), The Developmental State. New York: Cornell University Press.
Singh, J. (1999). Leapfrogging Development? The Political Economy of Telecommunications. New York: State University of New Work Press.