Please cite this paper as:

OECD (2005-02-23), “Regulatory Reform as a Tool for

Bridging the Digital Divide”, OECD Digital Economy Papers,
No. 90, OECD Publishing, Paris.
http://dx.doi.org/10.1787/232862231573

OECD Digital Economy Papers No. 90

Regulatory Reform as a Tool

for Bridging the Digital
Divide

OECD
REGULATORY REFORM AS A TOOL FOR BRIDGING THE
DIGITAL DIVIDE

ORGANISATION FOR ECONOMIC CO-OPERATION AND DEVELOPMENT

 FOREWORD

This document has been prepared under the supervision of the Information Computer and Communications
Policy Division, of the Directorate for Science, Technology and Industry, and is published under the
responsibility of the Secretary-General of the OECD. This work was funded by the Japan International
Co-operation Agency.

Copyright OECD, 2004.

Applications for permission to reproduce or translate all or part of this material should be made to:
Head of Publications Service, OECD, 2 rue André-Pascal, 75775 Paris Cedex 16, France.

2
 TABLE OF CONTENTS

FOREWORD ................................................................................................................................................... 2
REGULATORY REFORM AS A TOOL FOR BRIDGING THE DIGITAL DIVIDE.................................. 4
Abstract ........................................................................................................................................................ 4
Introduction .................................................................................................................................................. 5
The scope of the digital divide ..................................................................................................................... 5
Digital progress ............................................................................................................................................ 9
Telecommunication market liberalization .................................................................................................. 12
Regulatory independence ........................................................................................................................... 15
Spectrum policy and wireless connectivity ................................................................................................ 17
Success stories ............................................................................................................................................ 18
Human capacity building............................................................................................................................ 21
Regulatory aspects of disaster warning and recovery................................................................................. 22
Hong Kong, China: SARS information by SMS .................................................................................... 24
United Kingdom: City Alert Texting System (C.A.T.S.) ....................................................................... 24
United States: Emergency fixed-line notifications ................................................................................. 25
Ireland: Mobile phone network protects lone workers ........................................................................... 26
United Kingdom: Childwatch ................................................................................................................. 26
Japan: “I Am Alive” (IAA) system......................................................................................................... 26
Conclusion.................................................................................................................................................. 27
NOTES........................................................................................................................................................... 28

Boxes

Used handsets fuelling mobile growth in Cambodia.................................................................................... 8

Peruvian Community Access Struggles ....................................................................................................... 9
Comparison of a competitive mobile and monopoly fixed-line network in Paraguay ............................... 13

3
 REGULATORY REFORM AS A TOOL FOR BRIDGING THE DIGITAL DIVIDE

Abstract

The digital divide touches all regions and economies of the world and threatens to slow progress
towards the goal of an all-inclusive information society. Policy makers are faced with the divide’s daunting
complexity but have a range of policy tools that have proven effective in expanding access throughout the
world. Of these tools, regulatory reform has had perhaps the largest impact in both developed and
developing economies alike.

The severity of the digital divide in OECD countries is much less than in other parts of the world, due
partially to higher income levels, but also as a result of important regulatory reforms initiated over the past
several decades. These reforms have paved the way for competitive markets to develop and flourish with
minimal intervention.

Regulatory reform can play a key role in non-OECD economies. Policy makers in developing
economies should consider the regulatory reforms that have proven the most successful in the OECD,
namely liberalizing telecommunication markets, creating a separate telecommunications regulator, opening
spectrum for new wireless technologies and promoting the development of human ICT capacity.

As regulatory reforms take effect, telecommunication markets become more efficient and social and
economic welfare are enhanced for all stakeholders in an economy via positive externalities.
Telecommunications infrastructure can play a key role in economic development, which can create a
virtuous cycle where incomes improve and access increases. Telecommunication technologies have also
played an important role in enhancing total factor productivity in OECD economies and in employment
growth.

As recent events have shown, telecommunication networks can also play a key public safety role in an
economy, especially as a tool for disaster warning and recovery efforts. Economies with under-developed
telecommunication markets and networks may face higher risks in the face of future catastrophes than
economies with extensive networks and public safety systems in place. As a result, this paper includes a
section on the need to examine the role of regulatory reform of emergency telecommunication services as a
cost-effective and essential way to ensure the optimum contribution of ICTs to disaster warning and
recovery.

This paper examines one narrow aspect of the digital divide, the effects of regulatory reform on
telecommunication networks. While regulatory reform is only one part of the global digital divide problem,
it can play a key role in helping telecommunication markets bridge some of the gaps on their own. It is
therefore imperative that policy makers consider regulatory reform as a necessary but not sufficient step
towards overcoming the digital divide.

4
Introduction

The digital divide is an important problem that policy makers face and it is much more complex than
simply building out telecommunication networks and infrastructure. The divide is the result of a wide
range of social factors, including but not limited to income, education and literacy. Telecommunication
infrastructure alone will not guarantee that users will be able to access and take advantage of services on
the network.

In many developing economies, low literacy rates decrease the utility of a number of Internet services
available to users. The lack of software and instructions in minority languages also presents a huge barrier
to ICT adoption in many parts of the world. However, one of the main hindrances to ICT adoption is
simply income. For many, the cost of owning a mobile handset or even making a phone call is prohibitive.
Therefore, policy discussions of digital divide policy must consider social, technical and economic factors.

Because of the digital divide’s complex nature, researchers often must evaluate narrow aspects of the
divide and make corresponding policy suggestions. This is not to imply that other aspects of the digital
divide are not important or that the digital divide can be solved with individual, narrow remedies. Rather it
reflects the need for a multi-disciplinary approach to ensuring equal access to ICTs.

This paper will focus on one element that can help improve access to telecommunications in all the
world’s economies, regulatory reform1. While an economy’s regulatory regime is only one aspect of the
overall digital divide, proper implementation of key policies can effectively help expand networks, reduce
prices, improve quality of service and increase user access. Telecommunication markets in many
economies have grown and flourished under private sector control as long as certain regulatory elements
were in place. This paper will examine the elements that have been the most successful throughout the
OECD and look at ways in which they can be applied and adopted in developing economies as a way to
expand access to telecommunications2.

The paper will begin with a brief introduction to the digital divide, followed by key regulatory
reforms that have laid the foundation for successful markets in the OECD. The paper will then highlight
several non-OECD economies where regulatory reform has been successful and briefly examine how
human capital investments can have long-term benefits for ICT adoption. Finally, the paper will conclude
with an overview of the regulatory aspects of emergency warning and recovery.

The scope of the digital divide

Telecommunication markets and regulatory policies in OECD countries have been particularly
successful at extending access to rural and remote regions. While the digital divides in developing
economies are often much more pronounced than those faced in the OECD, the fundamental problem
remains the same: extending access to all in a society and all geographic areas. Elements from OECD
country experiences can be extracted and applied in developing economies as a first step towards
improving access. Policy makers in developing economies should consider the policy tools which have
shown the most success throughout the OECD3, namely liberalizing telecommunication markets,
developing a sound regulatory framework and fostering of effective competition among telecommunication
providers4.

As mentioned earlier, the digital divide is a multifaceted problem, forcing policy makers to develop a
multi-level approach to bridging it. Some of the problems include a dearth of physical infrastructure and
telecommunication investment, difficult topography, low population densities, a lack of both general and
ICT-specific skills, regulatory uncertainty and a lack of efficient market structures, institutions and
competition. The situation has become much more pronounced for many developing economies, as

5
settlement payments from international voice calls have fallen, decreasing the availability of hard currency
for network investments. Technologies such as Voice over IP (VoIP) offer benefits to users, but also
reduce revenues for traditional fixed-line operators who may be responsible for providing access.

Figure 1. Figure 1. Global ICT subscriber and population ratios (OECD and Non-OECD)

Global ICT subscriber and population ratios, 2003

Non-OECD OECD

Population

Fixed

Mobile

Internet

Broadband

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

Source: ITU World Telecommunication Indicators Database.

Policy makers have been concerned about access inequalities since the introduction of telephone
service more than 100 years ago. In the 1990’s, the focus started shifting from providing access to voice
services over fixed lines to dial-up Internet access. In 1995, 1998 and 2000, the United States Department
of Commerce released its Falling through the Net reports that examined unequal access between rural and
urban areas, race, education level, gender and age. In 2000, the OECD released Understanding the Digital
Divide, which examined the unequal distribution of access throughout OECD countries. These reports, and
many others from the same period, focused on Internet access at speeds of 14.4 to 56 kbit/s. Only a few
years later, those previously characterised as “haves” as dial-up users would be considered “have nots” for
the emerging broadband divide.

The digital divide has narrowed according to several measures of access around the world, although
the divide varies significantly by technology (see Figure 1). OECD member countries account for only
18% of the world population but a majority of the world’s fixed, mobile, Internet and broadband
subscribers. Non-OECD countries have made significant gains in fixed telephony, accounting for just
fewer than 50% of the world’s fixed lines. The penetration of mobile telephony is also expanding quickly
outside the OECD, in part due to calling-party-pays billing and pre-paid mobile minutes. Non-OECD
countries make up 46% of the world’s total mobile subscribers.

The gains made throughout non-OECD countries in Internet and broadband are impressive but there
remains much room for increased growth. Internet subscribers in non-OECD countries accounted for only
one-third of the world’s Internet subscriber base in 2003. The subset of broadband subscribers shows an
even greater disparity. Only 17% of the world’s broadband subscribers were from outside the OECD in
2003. The significant progress among non-OECD countries in fixed and mobile telephony has taken time
so as new technologies emerge, especially in OECD countries, there may be more pronounced gaps
between OECD and non-OECD countries.

6
 Figure 2. Figure 2. Total international Internet bandwidth in developing economies

Total international Internet bandw idth, kbit/s, selected econom ies, 2003

Sw aziland
Solomon Islands
Sierra Leone
Niger
Chad
Turkmenistan
Comoros
Liberia
Guinea Bissau

Denmark (single residential user)

0 500 1000 1500 2000

Source: ITU World Telecommunication Indicators Database, ITU Internet Reports: The Portable Internet.

The digital divide has been most pronounced in the lowest income areas of the world. Often, the lack
of basic network infrastructure significantly hampers the adoption of new end-user technologies. Internet
technologies, which often require an expensive outside connection from the country to the world, have
been particularly slow to reach users in low-income economies. As an example, the total population of
Liberia must share an international Internet connection of just 256 kit/s, the equivalent of just one baseline
residential broadband connection in the OECD. Other developing economies face similar bandwidth
constraints. A single 100 Mbit/s broadband user in a leading broadband country such as Japan has access to
as much international connectivity as the 45 countries with the lowest international connectivity
combined5. Figure 2 compares the total international Internet bandwidth available in several developing
economies with broadband speeds available to a single residential user in another leading broadband
country, Denmark.

The problem is particularly acute in many developing economies with low Internet connectivity and
little local content available to domestic users. International bandwidth demands will remain high until
Internet content and services are available on servers in domestic markets. The rollout of new Internet
exchanges in developing economies has helped keep some data exchange local and lowered the
international bandwidth costs. In Egypt for example, investments in Internet exchange points have
typically had a return on investment of six months6. Operators have reported that the maintenance costs are
negligible compared to the dramatic cost savings of keeping Internet data exchange local.

Local content and services – especially in local languages – will be a key to increasing demand. There
is a symbiotic relationship between the development of content and the development of connectivity in
many OECD countries. The experiences in developing economies should be similar, with increases in
connectivity facilitating the development of local content.

In addition to more international exchanges, high-speed, international infrastructure is becoming more

accessible in developing economies. A recent example is the new SAT3/WASC/SAFE submarine fibre
cable extending from Spain and Portugal, down the west coast of Africa, around the Cape and over to the
west coast of India. Costal countries in Africa can tap into the fibre, while landlocked countries can
establish connections via costal countries. International Internet connectivity via satellite and terrestrial
wireless services is also falling in price.

7
 The digital divide is not simply about a lack of cabled or wireless telecommunication infrastructure to
users. The actual network interfaces such as mobile handsets, PCs and PDA-type devices are often too
expensive for individual users in many developing economies. However, secondary markets for handsets
and computers are helping supply much-needed terminals to users in developing economies at affordable
prices. Used handsets in the developed economies, for example, are often turned in and may eventually
make their way to users in developing economies, providing inexpensive, mobile connectivity for users
with low monthly incomes (see Box 1).

Box 1. Used handsets fuelling mobile growth in Cambodia

Cambodia’s fixed-line penetration has grown from 0.04 to 0.22 lines per 100 inhabitants in the ten years
leading up to 2003. Cambodia’s low fixed-line penetration rate was more of a concern in 1993 than in 2003, due to
the rapid take-up of mobile telephony. In 2003, Cambodia had 750 000 mobile subscribers compared to 30 000
subscribers on the fixed-line network – a ratio of 25 mobile phone subscribers per fixed line.

Much of Cambodia’s rapid take-up of mobile phones has been due to the availability of second-hand mobile
handsets and pre-paid mobile phone plans. Users can purchase mobile handsets for roughly USD 10 to use with a
pre-paid GSM SIM card. With Cambodia’s gross national income per capita at USD 310 in 2003, the initial handset
cost is roughly three per cent of annual income. Mobile tariffs are relatively inexpensive with users often spending
USD 5 per month on calls.

Internet access penetration rates in Cambodia are very low due to the low number of PCs (12 000 in the
country), a sporadic electrical supply, expensive access charges and a lack of Khmer-language content. While PC-
based Internet access has been slow to expand, Internet access provided over a mobile phone may offer the best
method for delivering data services, especially as next generation handsets start reaching secondary markets.

Source : Ministry of Posts and Communications of Cambodia

Much of the digital divide effort is focused on extending telecommunication infrastructure and
supplying terminals to users. However, illiteracy and a lack of IT skills are major components of the digital
divide and must be considered and addressed alongside efforts to expand the physical network.

The combination of low literacy levels and low bandwidth presents policy makers in developing
economies with a bandwidth paradox. Users in developing economies often do not have literacy or ICT
skills sufficient to take advantage of low-bandwidth, text communication. Illiterate ICT users require audio
and video technologies to take advantage of ICTs, helping to partially explain the rapid take-up of mobile
telephony in developing economies. However, users in developing economies have such limited access to
bandwidth that usually their only choices for communication are text-based. The result is an entire segment
of the population underserved by text-based communication technologies.

Policy makers, telecommunication operators and aid agencies must be keenly aware of complex social
situations in the planning and implementation of digital divide projects. Efforts to simply supply a village
with Internet access, without considering social consequences can lead to failure of the project (see Box 2).

8
 Box 2. Peruvian Community Access Struggles

Projects to bring ICTs to rural and underserved populations can have limited success if certain social issues
within the community are not sufficiently addressed. In 2000, IDRC Canada and Red Cientifica Peruana established
an Internet telecentre in the Peruvian Amazon in Marakiri Bajo as a way to preserve the indigenous culture and
improve access to education, markets and politics. Marakiri Bajo had no running water or electricity and the
telecentre was established using a generator and satellite communication links. One of the key components of the
project was a video conferencing system that allowed people to access courses from educational institutions across
Peru.

While the telecentre was intended to service the whole community of both indigenous Ashaninka and newer
inhabitants, the “mesticos”, it was operated and used dominantly by the Ashaninka. The result was non-Ashaninka
and people in surrounding communities were reported to feel excluded from the centre and the services it offered. In
August of 2001, the telecentre burned down and the circumstances around the fire were unclear. The surviving
equipment was eventually put to use to power a local radio station instead of another telecentre.

Source : Bjorn Soren Gigler, Including the Excluded – Can ICTs empower poor communities? Towards an alternative evaluation
framework based on the capability approach.

Digital progress

While the digital divide is a very significant problem in developing economies, recent data show that
people around the world have much better access to ICTs than they did even 10 years ago, with the largest
improvements in middle-income countries. This has been possible with advances in technology and
regulatory reform. However, just as the connectivity for a certain technology (e.g. dial-up Internet access)
improves across income levels, a new technology (e.g. broadband) appears – leaving users in developing
economies continually “playing catch-up” (see Figure 3).

Figure 3. Figure 3. Internet users and broadband subscribers per 100 inhabitants worldwide

Internet users per 100 inhabitants, by incom e Broadband subs per 100 inhab., by incom e level
level
80 10
High High
70 9
Upper middle 8 Upper middle
60
Low er middle 7 Low er middle
50 6
Low Low
40 5
30 4
3
20
2
10 1
0 0
1996 1997 1998 1999 2000 2001 2002 2003 2000 2001 2002 2003

Source: ITU World Telecommunication Indicators Database.

The cycle of technological development is likely to continue along the same path: adoption and
commercialization of new ICT technologies in higher-income economies, slower penetration into lower-
income markets, and the subsequent development of new technologies. In such a rapidly changing market,
the “technologies of the day” are less important than the overall efficiency of the market and the regulatory
environment. In a well functioning market, only technologies that are economically viable and efficient

9
will survive. Therefore, the role of policy makers should be to create an efficient and agile market that is
capable of quickly integrating new technologies and keeping prices low for consumers via competition.

Over the past 20 years, the OECD has been urging governments to liberalize the telecommunication
sectors in their countries. These policies have included setting up a regulatory framework, creating an
independent and separate regulator, developing a strong foundation for regulatory action, encouraging
competition throughout the sector and privatising telecommunication operators. These policies were often
initially met with scepticism. However, over a period of two decades they have proven to be, on the whole,
very effective.

In 2003, the 30 OECD countries accounted for 50% of the world’s fixed-line subscribers, 53% of
mobile subscribers, 67% of Internet subscribers, and 83% of the world’s broadband subscribers. High
income levels have certainly played a role in telecommunication penetration rates throughout the OECD,
but sound policy, efficient markets and effective regulation have also been important components in the
success.

While telecommunication liberalization is in the advanced stages throughout the OECD, policy
makers in some non-OECD economies have also successfully applied the same market principles in their
own economies with similar success. This paper will re-examine some of the basic policy instruments, with
a focus on how policy makers outside the OECD are implementing them.

Before looking into specific policies, it is worth noting which countries have the highest
telecommunication penetration rates at certain income levels. This allows policy makers to examine policy
and market conditions that may have played a role in a country’s ICT success. Penetration rates are only
one measure of an ICT market, but it can be helpful to compare the adoption of communication
technologies among countries at similar income levels. Policy makers have long noted the relationship
between ICT access and GDP. Scatter plots of penetration rates over GDP can offer an effective way to see
how countries compare with similar-income counterparts (see Figures 4, 5 and 6).

Figure 4. Figure 4. Fixed-line penetration and GDP per capita

M ainline s pe r 100 inhabitants and GDP pe r capita, 2003

45

HRV
40
BGR

35 EST

LCA
BLR DMA
30
LV A MUS GRD
URY
LTU
25 BIH Y UG RUS BRA CRI
V CT
UKR CHL IRN
CHN ROM
20 LBN
COL
MDA MY S
JA M
15 CPV SUR
A RM
GEO KA Z PA N LBY
A ZE TON SLV DOM BLZ V EN
10 FSM
GUY
KGZ A LB MHL
BWA
PER
5 CUB
MA R
GA B
GNQ
0
1 000 2 000 3 000 4 000 5 000 6 000

Source: ITU World Telecommunication Indicators Database.

10
 Figure 5. Figure 5. Mobile penetration and GDP per capita

M obile s ubs cribe rs pe r 100 inhabitants and GDP pe r capita, 2003

45

40 THA
BGR ZA F
35 A LB
Y UG
ROM
SUR BWA
30 PRY
DOM
BIH BRA
PHL
25 MA R JOR
CHN
20 TUN
ECU SLV
BOL
15 COL MDV
MNG WBG FJI GTM
CPV BLR NA M RUS
10 MDA A ZE GEO GUY PER
MRT COG
EGY
GMB LKA SWZ
KA Z
5 HND WSM FSM
DZA
V UT TON
SY R
BTN TKM CUB MHL
0
500 1 000 1 500 2 000 2 500 3 000

Source: ITU World Telecommunication Indicators Database.

Figure 6. Figure 6. Internet users per 100 inhabitants and GDP per capita

Inte r ne t us e r s pe r 100 inhabitants and GDP pe r capita, 2003

BGR
20
ROM

15
GUY BLR

THA
PER
10 STP
FSM
JOR SLV BRA
Y UG
FJI ZA F
MDA CHN TUN DOM
MNG
A RM MDV
5 PHL
TGO V NM ZWE SUR RUS BWA
A ZE NA M
KGZ GTM
TON MHL
HND BIH
WSM
UKR
KA Z DZA
LKA SY R A LB
CMR TKM CUB
0
500 1 000 1 500 2 000 2 500 3 000

Source: ITU World Telecommunication Indicators Database.

11
 Figures 4, 5 and 6 show scatter plots of various ICT subscriptions per 100 inhabitants by income
level. A simple linear trend line is included for basic comparison but should not be considered a robust
measure of the relationship between GDP and penetration rates. Economies are represented by their ISO 3-
digit codes.

Figure 4 shows mainline penetration and GDP throughout the world in 2003. There is substantial
variation among penetration rates at similar income levels with several economies having much higher
penetration rates than their incomes alone would predict. The former Soviet Republics such as Armenia,
Belarus, Estonia, Georgia, Latvia, Lithuania, Moldova, Ukraine and the Russian Federation all have higher
penetration rates than other countries at similar income levels. At lower income levels, other examples
include Cape Verde, China, Colombia, Romania, Brazil, Dominica, Mauritius, Sri Lanka, Grenada and
Suriname. At higher income levels, non-OECD economies with relatively higher penetration levels include
Bulgaria, St. Lucia, Bosnia and Herzegovina, St. Kitts and Nevis, Malta, Chinese Taipei, and Cyprus.

Figure 5 examines the relationship between the number of mobile subscribers per 100 inhabitants and
GDP. The figure again includes a fitted trend line. Some economies in the chart have mobile penetration
rates significantly higher than their levels of GDP would suggest. Examples include Paraguay, Albania,
Bulgaria, Morocco, Thailand, South Africa, Romania, the Philippines, China, Ecuador, Bolivia and
Mongolia. At higher income levels, economies with relatively higher penetration rates include Jamaica,
Estonia, Lithuania, Seychelles, Malta, Slovenia, Chinese Taipei, and Hong Kong (China).

Figure 6 shows the relationship between GDP and Internet access. Several economies with relatively
low income levels have impressive penetration levels. These include Bulgaria, Romania, Belarus, Guyana,
São Tomé and Principe and Moldova. At higher income levels, economies such as Jamaica, Chile,
Barbados, Latvia, Estonia, Slovenia, Chinese Taipei, Malaysia, Singapore and Hong Kong (China) have
higher penetration rates than other economies at similar income levels.

The economies listed above have high ICT penetration rates for a variety of reasons, often particular
to each economy. However, there are other elements of their success that are common among economies
and OECD members as well. These typically include regulatory reform elements, such as market
liberalization, effective competition, and the presence of a separate regulator.

Telecommunication market liberalization

The level of competition in the market is often a good indicator of telecommunication penetration
rates. Economies with higher levels of competition usually benefit from lower prices and higher
penetration levels. The contrast between penetration rates in monopoly and competitive markets, even
within the same country can be pronounced (see Box 3).

Liberalized markets in the same region and at similar income levels typically have penetration rates
higher than those with non-liberalized markets. For example, the Latin American countries of Belize and
Brazil have similar income levels but fixed-line penetrations vary considerably. In Belize, the incumbent
operator maintains a monopoly on fixed-line provision and the penetration rate is low at only 11.3 lines per
100 inhabitants. In Brazil, the fixed-line market is considered fully competitive and the penetration rate is
more than double that of Belize, at 24.1 subscribers per 100 inhabitants.

Mobile markets show similar trends. Competitive mobile markets typically show higher penetration
rates than those which have not been liberalized. Jordan and Oman are good examples. Jordan’s GDP per
capita in 2003 was roughly USD 1800, less than one fourth of Oman’s GDP per capita of USD 8 100.
However, Jordan’s mobile penetration rate of 22.9 in 2002 was higher than Oman at 18.3 (see Figure 7).

12
 Box 3. Comparison of a competitive mobile and monopoly fixed-line network in Paraguay

The government in Paraguay started liberalizing the telecommunications market in 1996 with the creation of a
separate regulator, Conatel. Mobile licenses were awarded and competition in the mobile market thrived, helping
push mobile penetration rates towards 30 subscribers per 100 inhabitants in 2003. By contrast, the government-
owned fixed-line operator still has a monopoly on the provision of fixed services. Plans to privatise the incumbent
operator, Copaco (formerly Antelco), were initially delayed, and finally abandoned in June 2002. As a result,
Paraguay’s mobile market thrives while the fixed-line market languishes.

The efficiency of Paraguay’s mobile market can be seen in regional comparisons. Paraguay’s mobile
penetration rate of 29.9 mobile subscribers per 100 inhabitants is just slightly under the regional average of 34.4 for
the Americas. The fixed-line situation is very different. Paraguay’s fixed-line penetration rate of 4.61 is much lower
than the regional average of 34.5 fixed lines per 100 inhabitants.

Paraguay: m obile penetration grow th

35
Mobile
Name change of fixed-line
30 Fixed
operator Antelco to Copaco in
preparation for privatisation
25
Creation of separate
20 regulator Mobile competition
flourishes
15
Plans to privatise
10 fixed line operator fail

0
1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003

Source : ITU Telecommunication Regulatory Database

Much of Jordan’s success in the mobile market can be attributed to the regulatory reforms started in
1994. Jordan lagged behind Oman in mobile penetration until competition was introduced into the mobile
market in 1999. Oman’s mobile growth has still been considerable, given the mobile operator’s monopoly
position. However, the liberalized market in Jordan eclipses Oman’s growth, despite differences in income
levels between the two.

Finally, markets with effective Internet competition often have higher penetration rates than their
incomes alone would suggest. This can be seen in countries such as Latvia and Estonia, where penetration
rates are as high as those found in many of the world’s richest economies. Latvia’s Internet penetration rate
of 40.6 Internet users per 100 inhabitants in 2003 was higher than Chinese Taipei, France, Switzerland,
Italy and Belgium despite the country having a GDP per capita of USD 3600 per year. Both Latvia and
Estonia have very efficient ISP markets with a large number of licenses awarded to Internet service
providers (ISPs). In 2004, Latvia had 195 ISP licenses, while Estonia had 112.

13
 Figure 7. Figure 7. Mobile growth in Jordan and Oman

Mobile penetration per 100 inhabitants

25

20
Slow mobile
Jordan creates grow th until mid Privatization of
separate regulator 1998 w hen Jordan Telecom
15 (TDC) and issuance of
JMTS' 4 year
exclusivity ends additional mobile
Jordan initiates licenses
10 telecom reform

Jordan

5 Oman

0
1994 1995 1996 1997 1998 1999 2000 2001 2002

Source: ITU Telecommunication Regulatory Database.

The examples of Paraguay, Brazil, Jordan, Estonia and Latvia highlight the key role competition plays
in increasing access. In the markets with competition, penetration rates increased faster than in similar
markets with monopoly market structures.

Regional statistics on the status of telecommunication markets highlight certain areas where
competition has taken a greater hold than others. Figures 8 and 9 show the regional breakdown of market
structure in mobile and fixed lines in 2003. At the end of 2003, slightly more than 80% of European
economies had full competition in the fixed-line market. Monopoly providers operated in around 14% of
economies. In Africa a majority of economies (54%) have markets with fixed-line monopolies. Only 23%
of economies in Africa are fully competitive. In Asia, nearly 42% of economies still have monopoly fixed-
line provision, in contrast with 55% with either partial or full competition.

Competition in the mobile sector is higher than fixed lines in all regions except for Europe. The level
of full mobile competition in Africa, at 54%, is similar to the percentages for both Europe and the
Americas. Competition in Africa’s mobile sector helps account for Africa’s robust growth in mobile
services and increasing penetration levels.

On a global level, mobile markets have been traditionally more competitive than fixed-line markets.
While fixed-line networks are characterized by an element of natural monopoly relating to the access
network, mobile markets typically have multiple providers, each with a different frequency band assigned
by the regulator. This typically allows for much more robust competition in the mobile market than fixed-
lines.

Competition in mobile markets is responsible for an innovation that has arguably played a vital role in
reducing the digital divide throughout the world, pre-paid telephony. Since users in developing economies
often have little or no access to credit, the introduction of pre-paid services in markets around the world
has allowed users without credit to have mobile service. Pre-paid accounts now comprise 36% of all
mobile accounts in the world7.

14
 Figure 8. Figure 8. Status of fixed-line competition

Status of fixed-line com petition, by region, 2003

100%

80%
Monopoly
Duopoly
60%
Partial
Competition
40%

20%

0%
Africa Americas Asia Europe Oceania

Source: ITU Telecommunication Regulatory Database.

Figure 9. Figure 9. Status of mobile competition

Status of m obile com petition, by region, 2003

100%

80%

Monopoly
60% Duopoly
Partial
Competition
40%

20%

0%
Africa Americas Asia Europe Oceania

Source: ITU Telecommunication Regulatory Database.

Regulatory independence

As telecommunication markets evolve, so does the need for a strong, effective regulatory regime.
Effective regulation is important to ensure that markets function properly and services are delivered to

15
consumers and businesses efficiently and fairly. Evidence shows that one of the key elements of regulatory
success is the existence of an independent and separate regulator, outside the influence of both government
policy and private-sector interests.

The evolution of telecommunication regulation in developing economies is closely following earlier

experiences in the OECD. In most countries of the world, telecommunication services were initially
provided by the government. As the technologies improved and penetration rates increased, the limitations
of monopoly provision became more pronounced.

In many countries, the first step was to separate the duties of service provision and regulation and put
them into separate entities. This process is essential to promote impartiality and create a truly separate
regulator who is not beholden to outside interests. The second step was to separate policy from regulatory
functions ensuring that the regulator had sufficient authority to implement policy effectively.

In 2004, 90% of OECD countries had an independent regulator in comparison to 58% worldwide (see
Figure 10). The role of the regulator varies from country to country, but common policy tools include
privatising state-owned operators, licensing new entrants, determining interconnection policy, ensuring
non-discriminatory access, setting price controls in non-competitive market segments, developing and
enforcing competition regulation, and mandating universal service requirements.

Figure 10. Figure10. The status of independent regulation in the OECD and worldwide

Independent regulators, 2004

Separate Not separate

World 125 73

OECD 27 3

0% 20% 40% 60% 80% 100%

Source: ITU World Telecommunication Indicators Database.

Certain regions with traditionally low penetration rates have benefited from the introduction of
separate regulator to oversee the development of the telecommunication market. In Africa, roughly two-
thirds of economies have regulators who are separate from the government. In several African markets the
introduction of a separate regulator has been immediately followed by rapid growth in mobile penetration.
The examples of Cameroon and Botswana are given in Figure 11.

16
 Figure 11. Figure 11. Growth in Africa and the creation of separate regulators

Mobile subscribers per 100 inhabitants

30

25

Botsw ana creates

20
separate regulator
Cameroon creates
Botsw ana
15 separate regulator
Cameroon

10

0
1996 1997 1998 1999 2000 2001 2002 2003

Source: ITU World Telecommunication Indicators Database.

The introduction of a separate regulator is an important first step when liberalizing a

telecommunication market. However, the existence of separate regulator, in itself, does not guarantee the
success of a market.

Several other elements must be in place to ensure the success of the regulatory body. First, the
existing legal framework for telecommunications must be created. This usually entails the creation of a
telecommunication law that facilitates the opening of the market and sets out the powers of the regulatory
body. Second, the law must give the regulator the authority, autonomy, and means to effectively apply
regulations in a market. These characteristics are important, especially in markets where incumbent
operators have extensive political and financial power. At the same time, the regulator must have the
authority to enact policies that will be vital to the development of the telecommunications market. These
include, but are not limited to, mandating interconnection, unbundling the local loop and imposing open
access requirements.

Regulatory reform is a process that takes time to achieve results, especially regulatory and
administrative capacity building. Investment in capacity building in all countries involves initial costs but
deliver high future returns.

Spectrum policy and wireless connectivity

Wi-Fi (IEEE 802.11)8 adoption has been very high throughout the OECD as users install wireless
home systems, operators roll out commercial networks and equipment manufacturers build Wi-Fi
connectivity into their products. The rapid adoption of Wi-Fi has pushed prices down and allowed
entrepreneurs in developing economies to use off-the-shelf equipment to quickly roll out wireless
networks.

These new wireless networks usually operate in license-exempt spectrum bands. Policy makers can
help spur innovation in these wireless networks by making certain frequency bands license-exempt. On a
global scale, the World Radio Conference in 2003 allocated spectrum in the 5 GHz band for license-
exempt use. However, the most common and least-expensive Wi-Fi equipment operates in the 2.4 GHz

17
band which has not been harmonized for use worldwide. Spectrum policy makers in developing economies
should thus examine ways to allow the rollout of Wi-Fi based systems.

New and evolving technologies such as WiMAX (IEEE 802.16)9 will also require new spectrum from
regulators. Difficulties in obtaining spectrum for new wireless technologies will hamper the market in
providing innovative solutions to the digital divide. Regulators in developing economies should examine
existing spectrum allocations and work to accommodate new wireless technologies.

Success stories

Asia has recently received considerable attention from telecommunication policy makers as Asian
economies top the rankings in broadband penetration, broadband speeds, mobile penetration and mobile
Internet use. Asian economies, those belonging to the OECD such as the Republic of Korea and Japan, and
non-OECD economies such as Chinese Taipei and Hong Kong, China have received the most attention due
to their top tier rankings. However, several developing economies in Asia have made significant progress
in bridging the digital divide and building out networks. This section examines regulatory developments in
three Asian countries: Sri Lanka, India and China.

The introduction of competition to markets has a profound effect on penetration rates, even when the
competition comes via a different technology. Evolving wireless technologies such as WiMAX may
dramatically increase the reach of backbone networks in developing economies, but other wireless
technologies have already been implemented and have made a difference in competitive markets around
the world.

The Telecommunications Regulatory Commission of Sri Lanka introduced competition to the fixed-
line market in 1996, with the awarding of wireless local loop (WLL) licenses to Suntel and Lanka Bell.
The licenses allowed each company to set up wireless last-kilometre connections to end users, and started a
period of strong competition for fixed-line services. The awarding of licenses was part of a new regulatory
framework put into place in 1991 with the creation of the separate regulator. The new regulatory
framework and subsequent competition for fixed lines has led to rapid growth in Sri Lanka’s access
opportunities (see Figure 12).

Sri Lanka’s fixed-line market benefited from the competition provided by a wireless technology,
highlighting the importance of inter-modal competition in telecommunication markets. As inter-modal
competition continues to grow, so will the importance of technologically-neutral regulation.

18
 Figure 12. Figure 12. Competition in Sri Lanka via wireless local loop

Sri Lanka: fixed-line subscribers per 100 inhabitants

6

5 Incumbent privatised (SLTL)

private company

4 2 WLL licenses aw arded

3 Regulator created

2
Competition introduced (mobile)
1

0
1960 1975 1978 1981 1984 1987 1990 1993 1996 1999 2002

Sources: ITU World Telecommunication Indicators Database and http://www.comunica.org/samarajiva.html.

Figure 13. Figure 13. The effect of India’s successful regulatory reforms on mobile penetration and price

Lowering of
ADC from 30%
Fixed Tariff Cellular Tariff WLL(M) Tariff Subscriber Base
to 10% of
16.00 sector revenue40
NTP-99

Cellular subscriber base (millions)

14.00 35
Unified 33.60
Telecom
12.00 Access 30
Effective tariff (Rs./min)

Tariff Order

10.00 3rd & 4th CPP 25

WLL
cellular introduced
introduced
8.00 operator 20

6.00 15
13.00
4.00 10

6.50
2.00 3.58 5
1.20 1.88
0.88
0.00 0
Mar-98 Mar-99 Mar-00 Mar-01 Mar-02 Mar-03 Mar-04

Source: Telecom Regulatory Authority of India.

In India, the Telecom Regulatory Authority of India (TRAI) has completely restructured its regulatory
framework to promote technological neutrality and take advantage of inter-modal competition. The
decision was made, in part, due to the astounding success of several unregulated services (e.g. SMS, VoIP)
that compete directly with regulated services. As a result, TRAI has been in the process of moving towards

19
a unified licensing regime that would replace separate licensing based on technology, service or geographic
area. Any licensee with one wired or wireless connection will be able to provide any service including:
telephony, Internet access, broadband, television and other value-added services.

Also as part of the new regulatory framework, TRAI introduced new competition by issuing
additional mobile licenses in 2001 and 2002 and awarding WLL licenses in 2002. In another important
step, India moved from receiving-party-pays (RPP) to a calling-party-pays (CPP) structure in an effort to
spur mobile take-up. India’s reforms have been very successful, with a marked increase in mobile
subscribers and a fall in mobile tariffs (see Figure 13). The reforms introduced by TRAI in India may
eventually have an impact on the global telecommunication market, given India’s large population and
potential market size.

While India’s large telecommunication market continues to grow, China now has the largest mobile
and fixed-line markets in the world. In July 2004, there were 299 million fixed-line subscribers and 310
million mobile subscribers. Internet subscribers reached 87 million with a penetration rate of 6.7
subscribers per 100 inhabitants. Chinese broadband infrastructure is also growing at the rate of nearly 1
million new subscribers per month, with 18.8 million subscribers in July 2004.

Much of China’s recent growth is a result of effective competition in the Chinese mobile and fixed-
line markets. The Chinese government introduced competition into the market in 1994, with the creation of
China Unicom. Neither the incumbent, China Telecom, nor China Unicom has been privatised but
competition flourishes. The result of this competition has been a dramatic increase in both mobile and
fixed access (See Figure 14).

Figure 14. Figure 14. China’s regulatory reform and infrastructure growth

Total fixed lines, selected econom ies, m illions

250 China
United States China Mobile spun off
Japan from China Telecom
Competition begins
200 Germany
w ith China Unicom
India
Brazil
150 Russian Federation
United Kingdom
France

100

50

1975 1978 1981 1984 1987 1990 1993 1996 1999 2002

Source: : ITU World Telecommunication Indicators Database.

20
Human capacity building

Much of the research on telecommunication markets has focused on what policy makers can do to
improve the amount of physical telecommunication capital in an economy. However, physical
infrastructure is only one component of an efficient and vibrant telecommunications market, with human
capital also playing a vital role.

Telecommunication markets are complex and require a wide range of skills from users who access the
network, engineers who maintain it, and policy makers who regulate. As physical telecommunication
infrastructure develops so must the capacity of users, network technicians and policy makers. High-
capacity IP networks are of limited use in economies where users lack basic ICT knowledge. Up-to-date
networks may fail in an economy that lacks competent technicians and engineers. Economies must also
produce people with the skills to build and maintain networks, run telecommunication businesses as well
as develop and enforce regulations.

Policy makers in several governments have focused on building an inclusive information society by
targeting youth in schools. Programs that connect and educate students create a generation of savvy
computer users who form the foundation of a vibrant telecommunication market.

OECD countries have emphasized ICT skills in their efforts to connect all schools to the Internet, train
students in ICTs and provide programs for non-students to obtain computer literacy. These efforts have
paid off handsomely in countries such as Korea where a strong government push to supply ICT training to
those affected by the 1997 financial crisis has helped fuel PC and broadband adoption. Policy makers in
non-OECD countries have created similar plans and have boosted penetration rates. One such economy is
Estonia where government initiatives aimed at promoting a computer-literate generation have been
successful.

Estonian policy makers have been successful developing a broad base of ICT skills throughout the
country. The government’s flagship program, Tiger Leap, has successfully integrated information and
communication technologies into classroom instruction, resulting in a new generation of students with
computer skills who demand faster Internet connections, better content and more extensive
telecommunication network coverage. In Estonia, introducing students to computers early in their studies
has also helped move more students towards technical careers later.

The results have been strong impressive with Estonians achieving penetrations equal or higher than
other richer countries in Europe. In June 2004, TNS Emor Internet usage surveys show that 52% of
Estonians between the ages of 6 and 74 use the Internet. The same study finds that the most active Internet
users are people between the ages of 12 and 24, 90% of whom use the Internet. The percentages are also
high for primary school students where two-thirds of students between the ages 6 and 9 are Internet users10.

In addition to teaching ICT skills early to students, Estonia’s policy makers have made promoting ICT
use a priority. One example is new street signs giving the direction and distance to the nearest public
Internet access point. The signs are marked with “@ Internet”, an arrow and the distance to the nearest of
700 public Internet access points across the country. The government has also taken a pro-active approach
to integrating computers and telecommunications into government activities. The Estonian government has
paperless “e-cabinet” meetings where government cabinet members can examine documents and cast votes
via computer. Estonia’s projects have largely been a success, with mobile, fixed and Internet penetration
rates as high as other leading European economies (see Figure 15).

21
 Figure 15. Figure 15. Estonia’s high Internet penetration rate among similar-income economies

Internet users per 100 inhabitants, selected econom ies, by decreasing incom e level, 2002

Libya
Iran, Islamic Rep.
Croatia
Venezuela
Lebanon
Estonia
Chile
Grenada
Equatorial Guinea
Malaysia
Costa Rica
Lithuania

0 5 10 15 20 25 30 35

Source: ITU World Telecommunication Indicators Database.

Regulatory aspects of disaster warning and recovery

Recent natural disasters have highlighted the importance of developed, and well-functioning
telecommunication markets – as well as the importance of ensuring that users around the world have
access to potentially life-saving emergency telecommunication services. A number of these services fall
under the authority of the regulator as components of universal service requirements. Therefore, it is
important to examine how the regulatory environment may need to evolve to ensure the best emergency
services are available to the largest percentage of the population as possible.

On December 26, 2004, the world’s largest earthquake in forty years unleashed a powerful tsunami on
nations around the Indian Ocean’s rim, causing cataclysmic damage. Estimates have calculated the initial
loss of life at over 150,000 people, most of whom had no advanced warning of the approaching wave.
Rescue workers, aid agencies and government officials mobilized quickly to respond to the crisis while
engineers worked at re-establishing communication links with affected areas. SMS messages and mobile
communications proved resilient in the aftermath of the devastation.

In the weeks following the disaster, the key priorities were providing clean water, food and shelter to
those affected and minimizing the threat of disease. However, many of the discussions in the press after the
disaster reflected on how communication networks could be used as an advance warning tool to mitigate
the effects of future natural disasters. Indeed, as telecommunication networks expand, particularly mobile
networks, so does the government’s ability to quickly spread key information in times of crisis or danger.

Broadcast networks, such as radio and television, have typically been among the most cost-effective
and efficient at sending mass messages quickly. However, as the number of mobile subscribers in an
economy surpasses a certain penetration threshold, mobile phones offer a much more effective and
constant method for locating users and passing along vital information. There are several benefits of
spreading information via text messages to mobile phones. First, users typically carry their phones with
them at all times and can be reached when away from a television or radio. Second, the low-data intensity
of text messaging allows for messages to make it through even when circuits can not handle a simple voice
call11.

22
 The telecommunication networks in the affected areas were used not only by the rescuers to pass
information but also as a tool to locate people stranded in the aftermath of the tsunami. Sri Lankan network
operators were able to identify 10,252 internationally roaming mobile phones on their networks at the time
the waves hit land. After the Sri Lankan operators sent each roaming phone a text message asking users to
contact emergency response, nearly 23% responded. As mobile network operators quickly re-established
service to affected areas with the use of portable electric generators, any mobile phones appearing on the
network could be quickly traced and emergency crews dispatched. The Swedish government asked its
country’s mobile operators to send text messages to all Swedish-registered phones in Thailand requesting
users either call their families or contact the Swedish Embassy. Danish operators were able to provide
information about all mobile phone communications between Denmark and Indonesia, Thailand and Sri
Lanka just before and after the tsunami12.

Finally, the Internet also played a key role in rescue and recovery operators after the tragedy as
pictures of victims and missing people appeared on websites for families and relatives to search. Certainly
the economies with extensive networks to begin with were, in one aspect, better prepared to deal with
emergency response than other, less-developed telecommunication markets. Indeed, one of the most potent
lessons from the tragedy has been how people from all countries of the world benefit in times of crisis from
developed telecommunication networks in affected economies.

Emergency services in an economy are often handled by a number of government, public and private
entities. Various agencies specialize in different aspects of disaster warning and recovery but coordination
during a disaster has sometimes proven difficult. Telecommunication regulators are often involved with
emergency communications during a disaster since there is often a requirement that emergency telephone
services are provided as part of universal service requirements for fixed-line providers.

Existing emergency regulations have worked well in economies with high fixed-line penetration rates.
However, most economies struggling with the digital divide lack the type of developed fixed-line
infrastructure necessary to sufficiently cover the population, severely hampering the effectiveness of fixed-
line emergency services. Since mobile phones greatly outnumber fixed lines in many developing
economies, regulators should examine how existing policies may need to be reconsidered to take advantage
of mobile telephony.

This section will briefly examine several emergency telecommunication services that are currently
available, their benefits and possible ways they could be adapted to take advantage of new communication
technologies. The list is only a small sample of the many emergency preparedness systems available
around the world. These examples do not necessarily represent best practices but rather offer a glimpse into
how telecommunication networks are currently being used to provide emergency services in several
countries.

As mentioned earlier, the tsunami has helped highlight how telecommunication networks could be
used as an important emergency broadcast system. Systems currently exist in Hong Kong (China), the
United Kingdom and the United States that can notify users of danger in their area via either a mobile
phone or a fixed line.

One of the proposals to come out of the discussions after the tsunami is an emergency SMS service
that could send a bulk message to all mobile subscribers near cell towers in an affected area. The SMS
messages could be targeted geographically, by cell tower, and sent quickly by the mobile providers. The
efficiency of such a system would likely be highly correlated to the mobile penetration rate in a given area,
highlighting the importance of expanded mobile access. Hong Kong, China’s use of such a system during
the SARS pandemic is probably the largest experience to date.

23
Hong Kong, China: SARS information by SMS

The government of Hong Kong, China used such a system in April 2003, broadcasting 6 million SMS
messages in an effort to quell a rumour that the city would be quarantined during the SARS pandemic13. A
rumour was purportedly started by a teenager who built a mock website stating Hong Kong was an
“infected city”. Once the rumour started to cause panic in the city, the government quickly launched a
blanket SMS that transmitted a message from the Director of Heath announcing that there were no plans to
declare Hong Kong an infected area.

Hong Kong, China’s use of the SMS broadcast was largely seen as a success. However, the
experience highlighted some areas for improvement for future mass SMS warnings. Network congestion
prevented some of the messages from arriving and many of the messages arrived up to six hours later.

United Kingdom: City Alert Texting System (C.A.T.S.)14

Mobile users in the United Kingdom can register the postal codes where they live and work with an
emergency news texting service (C.A.T.S.) and receive detailed emergency messages when problems arise
in any of their registered postal codes. The system can send warnings about critical events such as severe
weather, chemical fires, terrorist alerts, traffic accidents and road delays. Users are given simple directions
to follow in the text message to keep them out of danger. Subscribers are charged GBP 1.50 per postal
code registered, which includes unlimited alerts for one year. C.A.T.S. services are currently available in
several cities throughout the United Kingdom.

One drawback of the C.A.T.S system is the inability to pass information based on the physical
location of the phone. Subscribers to the service input the zip codes where they spend most of their time
but would not be notified, for example, if they happened to be near a dangerous situation in a zip code they
had not registered.

SMS alert systems show great promise for early warning but there are several problems that must be
resolved for them to be effective. For example, the authenticity of early-warning systems that rely on SMS
must be verifiable by users. If they are not, malicious SPAM messages could start dangerous rumours and
degrade the trustworthiness of such a system. Several challenges to building an early SMS warning system
are given in Table 1 below.

Table 1. Table 1. Challenges to building an SMS early warning system

1. Authenticity:
Users must have a way to verify the authenticity of messages they receive. This involves developing
methods to verify the source as well as educating the public on how to recognize “spoofed” messages.

2. Local languages:
Delivering timely, emergency information may require operators to send messages in several languages
from the same cell tower. This would require a method for determining which language would be the most
appropriate for a given subscriber.

3. Voice messages in areas with low literacy areas

SMS messages would be largely ineffective in areas characterised by low levels of literacy. In these areas a
recorded voice message may be more appropriate for a mass broadcast. Mobile operators could send SMS
messages to all subscribers who had ever sent an SMS from their phone (indicating a level of literacy) and
voice messages to all other subscribers. Maximizing the number of SMS messages sent would help keep
traffic levels lower on the network during the crisis.

4. Prioritizing emergency calls

Fixed-line networks can give priority to calls destined to emergency response numbers and a similar system

24
 on mobile networks could help keep lines available for emergency personnel during peak-usage times
around a disaster.

United States: Emergency fixed-line notifications

A number of communities throughout the United States have set up emergency fixed-line telephone
notification systems to quickly contact residents in the case of a natural disaster or other emergency
situation. These services have been particularly popular in areas of the mountain west, which are prone to
wildfires that can spread quickly and shift suddenly, threatening entire communities15. In the case that a
wildfire is approaching a community, an automated system can quickly call all residents in the affected
area with a recorded message, telling them to take certain precautions or evacuate the area. The system
usually makes a series of calls, first warning users to prepare and then a later call to leave the premises
when they are in imminent danger.

Residential phone numbers are mapped to individual street addresses so calls can be made on a street-
by-street basis or over an entire city or town at once. These systems have been successful at passing along
important messages to residences but are limited to fixed-line telephones.

Fixed-line emergency notification systems typically work well in areas with high fixed-line
penetrations. The success is partially due to the ability to “geo-code” a phone number to a stationary
address (e.g. a house). Emergency personnel can then simply designate certain areas of a city or town, and
with a simple database query, can have a computer send out bulk phone messages to affected homes.

A similar system could work for mobile users, although location information would need to be
gathered by different means, either by a global positioning system (GPS) or via information gleaned from
cell towers in communication with a mobile phone. Mobile phone manufacturers have begun including
GPS capabilities into mobile phones, in part due to emergency service regulations mandated by
governments. Rollout of these devices has been slow, due in part to satellite reception problems inherent in
GPS systems. GPS position reporting from a mobile phone will only work when the phone has an
unobstructed view of a good portion of the sky, typically outdoors. Phones that are indoors or in dense
urban areas with high buildings will be unable to report their position accurately. Even outdoors, GPS
systems require an initial “warm-up” period of up to one minute while the phone analyzes satellite signals
to obtain its bearings.

Mobile operators can also determine the precise location of a mobile phone via triangulation of radio
frequency (RF) communications with mobile towers in the near vicinity. One drawback is these systems
are computationally prohibitive for operators with a large number of users on the network at any given
time.

Policy makers and operators may be more inclined to look into a system which could leverage the
both GPS position reporting and cell tower communication to broadcast targeted emergency
communications in over a very small area. Otherwise, the most cost effective and efficient method for
broadcasting an emergency message would be to simply send an SMS to all users serviced by a given
tower.

The examples above looked at ways emergency communication systems can pass information on to a
large number of people quickly. Other emergency systems have a much narrower focus, protecting an
individual. Services in Ireland and the UK focus on the safety two vulnerable groups of people in
particular, those whose work takes them to dangerous places alone and children.

25
Ireland: Mobile phone network protects lone workers16

The mobile operator O2 in Ireland has introduced a system to help lone workers who may enter
dangerous or risky areas as part of their jobs, specifically social workers, community nurses and postal
staff. With the system, the mobile user first records a message giving the details of the visit before leave.
Once the mobile user completes the visit, he or she is required to confirm that the visit has ended safely by
tapping a code into their phone.

If the mobile user does not log off, the system will send two phone calls, at five minute intervals, to
check for a response from the mobile user. If the second call remains unanswered, emergency crews can
quickly be dispatched to the area of the phone using details included in the pre-recorded message.

The system also includes a panic button users can press that immediately sends out a distress signal to
an emergency response centre. Economies with high mobile phone penetration rates have also been able to
take advantage of the technologies to locate missing children or individuals.

United Kingdom: Childwatch17

The Childwatch system in the United Kingdom is a registry of mobile phone numbers of people who
associate with a particular child. The list could include friends, teachers, neighbours and family. If a child
goes missing, an emergency message is quickly relayed to the entire list of mobile subscribers who
associate with the child, asking if they know where the child is and where he or she was last seen. Often
one of the contacts knows the whereabouts of the child and the chain of emergency procedures can stop. If
no one on the contact list knows the child’s whereabouts the police and other relevant agencies can then
take swift action. The system has been credited with improving the chances of locating abducted children
by decreasing the amount of time required to verify the abduction. It has also reduced the number of “false
alarm” child alerts.

Telecommunication networks provide important early-warning functions during disasters but also
play a vital role in coordinating and passing along information about survivors and victims to family and
friends after a disaster. These systems can be used to arrange reunions or to identify victims, particularly
internationally. The “I Am Alive” system was developed after the Kobe earthquake in Japan and provides a
repository for survivor and victim’s information after a disaster.

Japan: “I Am Alive” (IAA) system18

An earthquake in Kobe, Japan in January 1995 caused massive damage and claimed the lives of over
5000 people. The “I Am Alive” Alliance evolved in the aftermath of the earthquake as a way to gather and
organize information about survivors and victims. IAA systems allow various organizations to accumulate
and store information in a common database by use of automated data exchange. Information can be
submitted to the IAA system by Internet, mobile phone or fax and then searched online.

The emergency systems mentioned above are only a few of many such systems around the world but
highlight the availability of technologies that can notify users during emergencies and keep them out of
harm’s way. Regulators may be faced with significant challenges when working to incorporate new
technologies into existing emergency system requirements. Open discussion of the difficult regulatory
issues will be necessary to find solutions and ensure the economy moves closer to an optimum contribution
of ICTs to disaster warning and recovery.

26
Conclusion

Telecommunication networks and services play an important role in modern economies as an enabling
technology in traditional economic sectors and in new economic activities such as electronic commerce.
Telecommunication technologies have also played an important role in enhancing total factor productivity
in OECD economies and in employment growth19. As recent events have shown, telecommunication
networks can also play a key public safety role in an economy, especially as a tool for disaster warning and
recovery efforts. Economies with under-developed telecommunication markets and networks may face
higher risks in the face of future catastrophes than economies with extensive networks and public safety
systems in place. While the benefits of e-learning, e-health and e-commerce cannot be overlooked, the
public safety aspect of telecommunication networks has recently intensified the focus on the need to ensure
good ICT access to all the world’s inhabitants.

This paper has looked at one narrow aspect of the digital divide, the effects of regulatory reform on
telecommunication networks. While regulatory reform is only one part of the global digital divide problem,
it can play a key role in helping telecommunication markets bridge some of the gaps on their own. It is
therefore imperative that policy makers consider regulatory reform as a necessary but not sufficient step
towards overcoming the digital divide.

The severity of the digital divide in OECD countries is much less than other parts of the world, in part
to higher incomes but also as a result of important regulatory reforms initiated over the past 30 years.
These reforms have paved the way for markets to develop and supply telecommunication services with the
least amount of intervention. There still remain problems with the digital divide in the OECD, especially in
rural and remote areas. However, operators in the OECD have expanded networks quickly and the scope of
the problem should be well diminished in the next two years.

The situation outside of the OECD is more pronounced, with large parts of the population without
basic ICT access in many economies and regions. Certain technologies, such as the mobile phone, have
helped bridge the communication divide but the rapid pace at which telecommunication technologies are
evolving has left many economies in a constant state of “catch-up”. Regulatory reform can thus play a key
role in many of these economies as a way to ensure the telecommunication market is given the best chance
of succeeding on its own without intervention. Policy makers in non-OECD economies should consider the
policies that have been the most successful in the OECD, namely liberalizing markets, creating a separate
regulator, opening spectrum for new wireless technologies and developing human capital in regards to
ICTs.

Policy makers throughout the world should be concerned about the digital divide, not simply because
of the services ICTs provide to users but because of the externalities that accompany developed networks
and ICT-savvy users. Telecommunications infrastructure can play a key role in economic development,
which can create a virtuous cycle where incomes improve and access increases20. Developing economies
have increasingly been able to attract IT and service outsourcing from developed economies and these
gains rely on a high-quality telecommunications infrastructure and a population with ICT skills21.
Examples include India and Sri Lanka’s call centres and the outsourcing of computer programming to
Eastern Europe.

As mentioned earlier, an economy’s regulatory regime is only one facet of a very complex problem
that includes affordability, education and other social circumstances. Policy makers must take all into
account when devising an overall digital divide strategy since many of the factors are interconnected.
While the social situation in each economy varies drastically, the key principles behind regulatory reform
have been tried and tested with success in countries and regions around the world.

27
 NOTES

1
The OECD report, Providing Low-Cost Information Technology Access to Rural Communities in
Developing Countries: What works? What pays? (2004) takes a broader approach to the digital divide in
the rural areas of developing economies, offering detailed experiences and evaluation of several business
plans for telecommunication service provision.
2
The OECD report, The development of broadband access in rural and remote areas (2004), highlights new
technologies and policies that have helped extend access to rural areas within the OECD. Solutions for the
digital divide in rural areas of the OECD can also be applied in rural areas of developing economies.
http://www.oecd.org/dataoecd/38/40/31718094.pdf
3
For more information on the success of regulatory reform throughout the OECD, see The OECD Reports
on Regulatory Reform Series, http://www.oecd.org/topic/0,2686,en_2649_37421_1_1_1_1_37421,00.html
4
The World Bank has a large number of publications on the effects of telecommunication competition in
developing economies. For more information readers should consult InfoDev’s Telecommunications
Regulation Handbook, edited by Hank Intven, 2000. In addition, the World Bank publication,
Implementing Reforms in the Telecommunications Sector, Lessons from Experience, Edited by Bjorn
Wellenius and Peter A. Stern, offers examples from around the world.
5
ITU World Telecommunication Indicators Database.
6
Amr M. Aboualam, EgyNet, National and Pan-African IXP Special Workshop, ITU TELECOM Africa,
May 6, 2004.
7
ITU World Telecommunication Indicators Database.
8
Wi-Fi is short for wireless fidelity. It is a term developed by the Wi-Fi Alliance to describe wireless local
area network (WLAN) products that are based on the Institute of Electrical and Electronics Engineers’
(IEEE) 802.11 standards. Wi-Fi is typically used as a means to connect computers wirelessly to the Internet
over a range of up to 100 metres. (http://www.wi-fi.org/).
9
WiMAX is a standards-based technology enabling the delivery of last mile wireless broadband access as an
alternative to cable and DSL. WiMAX should provide fixed, nomadic, portable and, eventually, mobile
wireless broadband connectivity without the need for direct line-of-sight with a base station. WiMAX
should be able to extend a wireless Internet connection within a typical cell radius deployment of three to
10 kilometres. At these distances, WiMAX equipment should allow up to 40 Mbit/s of connectivity,
roughly the equivalent of 700 dial-up Internet connections. (http://www.wimaxforum.org/about/faq/).
10
Information from the Estonian Ministry of Foreign Affairs at:
http://www.vm.ee/estonia/kat_175/pea_175/2972.html
11
See the BBC story, “Text messages aid disaster recovery” at:
http://news.bbc.co.uk/2/hi/technology/4149977.stm
12
Story from the Boston Globe, December 29, 2004, “Internet, cellphones are aiding the search”, at:
http://www.boston.com/news/world/asia/articles/2004/12/30/internet_cellphones_are_aiding_the_search/

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13
For more information, see “Text messaging used to allay SARS fears”, April 3, 2003 at:
http://www.guardian.co.uk/online/news/0,12597,928906,00.html
14
For more information see: http://www.cityalert.co.uk/static/aboutcats.htm
15
Services mentioned were from http://www.intrado.com/
16
For more information see:
http://www.techcentral.ie/techcentral/pcwork/wireless_mobile/guardian_to_protect_vulnerable_workers.x
ml
17
Information about the services is available at: http://www.cityalert.co.uk/static/aboutcats.htm
18
The IAA Alliance website is available in Japanese with main pages translated into English at:
http://www.iaa-alliance.net/en/about/
19
The OECD Communication Outlook 2005 highlights how the telecommunications industry, over the past
decade, has played an increasingly important role in economy-wide productivity growth and technological
diffusion. The industry’s infrastructure and services provide a fundamental underpinning for information
economies.
20
The OECD Report, The New Economy: Beyond the Hype (2001), concluded that ICTs have a large
potential to contribute to more rapid growth and productivity gains. The OECD revisited the same topic in
2003 with ICT and Economic Growth: Evidence from OECD Countries, Industries and Firms (2003) and
found that the assumptions and conclusions drawn in 2001 still hold.
21
Rapid developments in ICT provide increasing opportunities for international sourcing. In particular,
“knowledge work” such as data entry and information processing (IT services), research and consultancy
services can be carried out remotely via the Internet and through multimedia conferencing. The OECD
Information Technology Outlook 2004 highlights the drivers and impediments to outsourcing of business
services, the dynamics of business process restructuring, and the skills dimension of international sourcing
.

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