Role of Government in Increasing Broadband Penetration - Helani Galpaya
Consumer protection and the regulator -...
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Consumer protection and the regulator
Rohan Samarajiva & Helani Galpaya Communication Regulatory Authority of Namibia
11 December 2013
This work was carried out with the aid of a grant from the International Development Research Centre, Canada.
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Professor Stephen Littlechild on consumer protection
• “Competition is indisputably the most effective - perhaps the only effective – means of protecting consumers against monopoly power. Regulation is essentially the means of preventing the worst excesses of monopoly; it is not a substitute for competition. It is a means of ‘holding the fort until competition comes.’”
2
1983 Report to UK Government, Para 4.11
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Consumer protection in a monopoly setting
• In a monopoly environment, the government has major responsibilities with regard to consumer protection
• When there are no exit options (alternatives), voice is all that is left (other than doing without)
– Voice can be direct: consumer speaks/complains to supplier
– Voice can be directed to 3rd party (consumer protection agency/telecom regulator) who has power over supplier
– Voice can lead to anti-supplier agitation, even to demands for expropriation
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Consumer protection under competition
• Caveat emptor (Let the buyer beware) is the starting position
– Assumes homogenous products costless exit options
– Assumes perfect knowledge • Obviously unrealistic; For all markets, but especially for markets in
infrastructure services
• Government actions in absence of assumptions – Regulate suppliers proportionate to variance from perfect
market, i.e., higher the HHI, stricter the regulation
– Reduce information asymmetries 4
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Low-quality equilibrium trap
• Hirschman’s Exit, voice and loyalty analysis shows that low-quality equilibrium could result, if no significant quality differences among suppliers – Number leaving = number joining no net loss in market
share/revenue effective market signal to supplier
• Therefore, simply reducing information asymmetries may not be enough in imperfectly competitive ICT infrastructure markets
• But we still must reduce information asymmetries and also obtain diagnostic information on where regulatory interventions are needed
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APPROACHES TO BROADBAND QUALITY OF SERVICE EXPERIENCE
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Quality testing can be done by different parties – regulator is well positioned
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Diagnostics conducted by
Pros Cons
Service Providers (ISPs/operators)
• Easy to implement
• Results based on equipment placed in the most optimized points of the network • Not representative of the ‘actual’ speeds
Users • Represents actual user experiences
• Assumes user’s PC is virus-free, with no parallel process running etc. • Dependant on user’s willingness to participate • Large files impact user’s data limits
National Regulatory Authorities (NRAs)
• In a position to request operator involvement when necessary
• Known test locations will prompt operators to optimize networks in selected areas
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Hardware offers accuracy, but may be expensive
- Equipment directly connects to the line between the router and the PC
Accurate
- Expensive
- SamKnows is being used by the FCC (US), Ofcom (UK), IDA (Singapore),
European Commission etc.
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Software may be more cost effective
- Levels of accuracy can vary
- Cost effective
- E.g: TRCSL (Sri Lanka | Implemented),
ICTA (Mauritius), BICMA (Bhutan | Ongoing),
CAM (Maldives | Ongoing), PIRRC
(Fiji | Ongoing), LIRNEasia - since 2008
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What to measure? Think beyond download speed
+++ Highly relevant; ++ Very relevant; + Relevant; - Irrelevant
Service Download (kbps)
Upload (kbps)
Latency (Round Trip Time, RTT) (ms)
Jitter (ms)
Packet Loss (%)
Browsing (Text) ++ - ++ - -
Browsing (Media) +++ - ++ + +
Downloading +++ - - - -
Transactions - - ++ + -
Streaming media +++ - ++ ++ ++
VOIP + + +++ +++ +++
Games + + +++ ++ ++
- RTT has implications on client-server interactive systems
- Jitter adds to the ‘noise’ of the transmission
- Packet Loss affects streaming media Source: Gonsalves, T.A & Bharadwaj, A. (2009) 10
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Various attributes impact measurement; Trade-offs involved in any practical solution Attributes Ideal case Minimum requirement
Location Statistically representative Random locations
Service provider All Largest service provider
Broadband Plan All Select plans based on advertised speeds. For example: • Up to 1 Mbps • 2 Mbps – 4 Mbps • 5 Mbps – 10 Mbps • Above 10 Mbps
File size Accurate results are obtained by using a large file that maximises use of the channel capacity. Example of file sizes: • 10 MB for connections up to 10 Mbps • 35 MB for connections above 10 Mbps
Domains Local, National and International
International
Test times Multiple times of the day, multiple days of the week (including weekends) to account for off peak / peak variations
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LIRNEasia tried different approaches
• First, crowdsourcing – Blogger and telecenter operator meet-ups+ training;
– Small community; High transaction cost abandoned after 1 or 2 rounds
– But worked in Africa: different incentives?
• Then (and now) test it ourselves – researchers spread across Asia (cover their cost)
– Successful; but limited to where we can find a tester
• Given free to regulators. Got them to adopt – ICTA (Mauritius), BICMA (Bhutan), CAM (Maldives),
Fiji and Pacific Islands
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InternetInternet
User
1st Entry point to US
Yahoo.com
ISP
National Server
3 Domains…
Servers
of the
User’s
ISP
Server of
another
operator, in
the country
First entry point to
the cloud
(US/UK/China/…..).
Outside country
WHERE the data is hosted
makes a difference.
We focused on 3 domains
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Software based, new testing methodology
• Developed methodology and software in partnership with Indian Institute of Technology (IIT), Madras
• Testing in multiple domains
- ISP, National and International (yahoo)
• Multiple broadband packages or links
– 256kbps – 2Mbps
• Multiple times a day
– 6 times a day; ranging from peak to off peak
• Multiple Locations (cities)
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Actual performance differs from advertised. In surprising ways
0
100
200
300
400
500
600
700
800
900
1000
08:00 11:00 15:00 18:00 20:00 23:00
BSNL (512 kbps) Bangalore, IN BSNL (256 kbps) Chennai, IN
SLT (2 Mbps) Colombo, LK 3BB (5 Mbps) Bangkok, TH
3BB (5 Mbps) Chiang Mai , TH
0
250
500
750
1000
0800 1100 1500 1800 2000 2300Time
Druknet Leased line (512 kbps) ThimphuTashi InfoComm Leased line (256 kbps) ThimphuDruknet (prepaid) ADSL (256 kbps) ThimphuDruknet (prepaid) ADSL (256 kbps) ParoBhutan Telecom 3G (550kbps to 1Mbps) Thimphu
Bhutan: Delivered (actual) as % of
advertised, from international server
India, Sri Lanka, Thailand: Delivered
(actual) as % of advertised, from local
server
Rati
o,
ac
tua
l to
ad
ve
rtis
ed
(%)
Rati
o,
ac
tua
l to
ad
ve
rtis
ed
(%)
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Source: LIRNEasia, 2009
South Asian users get low value for money compared to N American counterparts
Do
wn
load
sp
eed
per
Do
llar
(kb
ps p
er
US
D)
0
10
20
30
40
50
60
70
80
90
100
0800 1100 1500 1800 2000 2300
Package per month in
USD
Sirius (256 kbps) Dhaka, BD 15
SKYbd (256 kbps) Dhaka, BD 15
BSNL (256 kbps) Bangalore, IN 16
Airtel, (256 kbps) Delhi, IN 16
SLT (2 Mbps) Colombo, LK 48
Dialog (2 Mbps) Colombo, LK 44
Bell (6 Mbps) Ottawa, CA 60
Rogers (10 Mbps) Ottawa, CA 45
Verizon (3 Mbps) Buffalo, US 30
Comcast (6 Mbps) Denver, US 60
All high values for kbps/USD from N America
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Indian users get lower speeds when downloading international content
0
1000
2000
3000
4000
5000
800 1100 1500 1800 2000 2300
Do
wn
load
sp
eed
(kb
ps)
Time
India - Download from ISP server
Airtel (512 kbps) Bangalore, IN BSNL (512 kbps) Bangalore, IN
Airtel (512 kbps) Chennai, IN BSNL (256 kbps) Chennai, IN
Airtel ( 2 Mbps) Mumbai, IN MTNL (512 kbps) Mumbai, IN
Airtel (512 kbps) New Delhi, IN MTNL (2 Mbps) New Delhi, IN
0
1000
2000
3000
4000
5000
800 1100 1500 1800 2000 2300
Do
wn
load
sp
eed
(kb
ps)
Time
India - Download from International server
Airtel (512 kbps) Bangalore, IN BSNL (512 kbps) Bangalore, IN
Airtel (512 kbps) Chennai, IN BSNL (256 kbps) Chennai, IN
Airtel ( 2 Mbps) Mumbai, IN MTNL (512 kbps) Mumbai, IN
Airtel (512 kbps) New Delhi, IN MTNL (2 Mbps) New Delhi, IN
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…as do Sri Lankan users
0
500
1000
1500
2000
2500
3000
3500
4000
4500
5000
800 1100 1500 1800 2000 2300
Do
wn
load
sp
ee
d (
kbp
s)
Time
Sri Lanka - Download from ISP server
SLT (2 Mbps) Colombo, LK
0
500
1000
1500
2000
2500
3000
3500
4000
4500
5000
800 1100 1500 1800 2000 2300
Do
wn
load
sp
ee
d (
kbp
s)
Time
Sri Lanka - Download from International server
SLT (2 Mbps) Colombo, LK
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Round trip time deteriorates (increases) also when going international from India ..
0
100
200
300
400
500
600
700
800
0800 1100 1500 1800 2000 2300
RT
T (m
s)
Time
India - RTT when pinged to ISP server
Airtel (512 kbps) Bangalore, IN BSNL (512 kbps) Bangalore, IN
Airtel (512 kbps) Chennai, IN BSNL (256 kbps) Chennai, IN
Airtel ( 2 Mbps) Mumbai, IN MTNL (512 kbps) Mumbai, IN
Airtel (512 kbps) New Delhi, IN MTNL (2 Mbps) New Delhi, IN
0
200
400
600
800
0800 1100 1500 1800 2000 2300
RTT
(m
s)
Time
India - RTT when pinged to International server
Airtel (512 kbps) Bangalore, IN BSNL (512 kbps) Bangalore, IN
Airtel (512 kbps) Chennai, IN BSNL (256 kbps) Chennai, IN
Airtel ( 2 Mbps) Mumbai, IN MTNL (512 kbps) Mumbai, IN
Airtel (512 kbps) New Delhi, IN MTNL (2 Mbps) New Delhi, IN
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….and from Sri Lanka
0
100
200
300
400
500
600
700
800
0800 1100 1500 1800 2000 2300
RT
T (m
s)
Time
Sri Lanka - RTT when pinged to ISP server
SLT (2 Mbps) Colombo, LK
0
100
200
300
400
500
600
700
800
0800 1100 1500 1800 2000 2300
RT
T (m
s)
Time
Sri Lanka - RTT when pinged to International server
SLT (2 Mbps) Colombo, LK
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Country examples of Regulator-lead Implementations of Broadband Performance
Measures
• Malta – Following a consultation process in January 2012 the Malta Communications Authority
(MCA) issued the final decision notice on measuring broadband performance.
– ISPs to follow a passive measurement technique, a method that uses live traffic streams to monitor the network without placing additional traffic loads.
– The broadband characteristics include data transmission speed (upload and download), network availability of the core network and the access network, latency and packet loss, among others.
– ISPs are required to report the performance every quarter for each broadband plan offered.
• The Pacific Islands – A recent initiative lead by the Pacific ICT Regulatory Resource Center (PiRRC) encouraged
regulators to actively measure and the performance of their broadband networks.
– Fiji, Samoa and Papua New Guinea are using the AT Tester (a tool developed by IIT-Madras and LIRNEasia) hosted by the PiRRC.
– Vanuatu is in the process of running the diagnostics using the same tool with the guidance of the PiRRC.
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Singapore and Hong Kong contrast in regulatory intervention
• Singapore – The Infocommunication Development Authority of Singapore (IDA) sets stringent
standards to ensure consumer requirements are met although operators requested otherwise.
– The decision to set standards was based on the fact that, at the time, the market was still developing.
– IDA published performance indicators (network availability > 99%, Latency < 50ms and < 300ms for local and international segments respectively, among others) with a non-compliance penalty.
– Since April 2012 there have been campaigns to recruit 900 volunteers to partake in a 12-month study conducted by SamKnows.
• Hong Kong – The Office of the Communications Authority (OFCA) says the market is so competitive
that interventions are not needed
– Setting performance measures is unrealistic because there are so many factors to consider
– The level of competition ensures that service providers offer the best to consumers
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LEARNINGS FROM RESEARCH ON CUSTOMER (MICRO-ENTERPRISES AT BOP) RELATIONSHIP MANAGEMENT 23
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Demand-side CRM study • Micro-entrepreneurs defined as those employing 0 -9
employees (may be paid part- or full-time workers including family members)
• BOP = Socio-economic classification (SEC) C, D and E.
• Representative survey of 3,180 urban, BOP micro entrepreneurs (ME)
Dhaka – 915
Delhi and Patna -- 1,279
Colombo – 986
• Qualitative study with 88 participants: in-depth interviews, ethnographies and focus groups
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Most used ICT for business related activities
5%
89%
4% 2% 2% 0%
52%
0% 0% 0%
22%
79%
4% 2% 2%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Landline (including CDMA) Mobile phone Computers/laptop Internet via computer Internet via mobile
Do you use the following for your business purposes- Yes (% of BOP MEs)
Bangladesh India Sri Lanka
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Mobiles most used for contacting suppliers & customers
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
To contact orcoordinate with
suppliers
To contact orcoordinate with
customers
To contact orcoordinate with with
employees
To access a wider setof people/
businesses ofrelevance to my
business
To act or contactothers in anemergency
To get informationrelevant to my
business
No particular reason
Most important reason for using a mobile for business (% BOP MEs who use mobiles for business) [SC]
Bangladesh India Sri Lanka
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Most MEs do not interact with telecom service provider
8%
30%
10%
65%
38%
50%
9% 17% 20%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Bangladesh India Sri Lanka
Last time the ME interacted with the telecom service provider
(% BOP MEs who use mobiles for business) [SC]
Can't remember
Never
More than a few months ago
Few months ago
0-4 weeks
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Those who do: How?
56%
92%
69%
38%
7%
28%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Bangladesh India Sri Lanka
How MEs normally contact the telecom service provider (%BOP MEs who have interacted with service provider) [SC]
Others
SMS
Walk-in to the authorized agent /operator's stores
Through the call center
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Those who do: Level of satisfaction
86%
74%
46% 51%
36%
65% 68%
71%
27%
91%
83%
44%
51%
72% 77%
61% 55%
31%
93% 89%
69% 70% 74%
80% 80%
41%
16%
I was treatedpolitely
Informationrelevant was
available easily
Information onhow to contact
the serviceprovider was
readily available
Information onprocedures tofile complaintswas available
Waiting time wassatisfactory
Time taken toresolve the
problem wassatisfactory
I am satisfied bythe action takenby the operator
Automatedresponses are
clear
Call center agentredirected me to
use (IVR,Internet, USSD
etc) withoutanswering the
query
Experience with service provider – YES (%BOP MEs who have interacted with service
provider)
Bangladesh India Sri Lanka
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Call drops & coverage: The most significant problems
0%
5%
10%
15%
20%
25%
30%
35%
40%
Call drops Coverage problems Billing related Activation of VASservice withoutknowledge of
customer
Unsubscribing fromsome services
SIM not working Unable to call othernetworks
Mobile related problems (% BOP MEs who use a mobile) [MA]
Bangladesh India Sri Lanka
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Those problems affect ME livelihoods
35%
30%
41%
Bangladesh India Sri Lanka
MEs for whom network dis-connectivity / call drops affect their business (%BOP MEs who use mobiles for business)
Bangladesh India Sri Lanka
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Problem- Call Drops
Name: Mohammad Asim Mamdhoom Age: 56 years Location: Colombo Education: Grade 9 Occupation: Rental company dealing with furniture, cutlery, glassware Number of Employees: Four (Family members) I have been running my business for the 15 years and I need good telecom service for my business. I need to be constant touch with my customers to follow up with them about their requirements and my payments.
“There are times when there is no network coverage because of which I lose out on my business. I wish there was a way to resolve this instantly.”
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Solution to problem- Call Drops
SMS 1-
AREA_No Coverage to
****
SMS 2- Thank you for
your feedback.
Solution: Crowd Sourced Call Drop Map
Enable customers to log in problems pertaining to coverage through USSD/ SMS. This information will be saved in the form of a database enabling the operator to optimize phased introduction of new towers to improve network connectivity.
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Call drops when calling customer care center
“Every time I call up the telecom customer care, I need to go through
the IVR to speak to the customer care executive. A lot of times, the call drops and I need to repeat the entire process and narrate my problem to a
new executive.”
Name: Biasdev Sharma Age: 54 years Location: Delhi Education: Grade 9 Occupation: Tea and savories shop owner Number of Employees: None I have been running my business for the 15 years and I started this business as I had no other option since I am not very educated.
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Solution to problem of call drops when calling customer care center
Real time digitization of problem under
customer profile
SP calls back High Value
Customers (A different SP
could call back)
ME calls back
Customer call is prioritized in the
queue.
Solution: While addressing a customers call, the Customer Care Executive digitizes the issue in real time. In case of a call drop and the customer calls back within a stipulated span of time, the customer is prioritized in the queue. Customer will not need to repeat the problem as it is in the database.
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Problem- Activation of unwanted VAS and long text messages
Name: Ramesh Kumar Age: 28 years Location: Patna Education: Grade 9 Occupation: Bike Mechanic Number of Employees: One (Family member) I have been running my business for the past seven years and I tend to get irritated with the messages I get from my telecom company.
“The telecom company sends a lot of long messages that I am unable to
understand. There are times when they send a VAS activation message, I tend
to press the button to activate it since I don’t understand what it says. I have stopped opening my messages due to
this.”
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Solution to problem of activation of unwanted VAS
Kindly press8 if you wish to confirm
activation of service, press 9 if you
wish to deactivate the service.
8 9
Solution 1: On activation of VAS, the ME receives a confirmation call through IVR, or SMS requesting them to confirm their activation. This way the ME can realize if the VAS was activated by mistake and press the required digit to avoid it.
Solution 2: Reconfirmation request sent through SMS or IVR about VAS activated on phone at a given
frequency (every 3-4 months). If VAS is not confirmed, it will get automatically deactivated.
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Solution to problem of activation of unwanted VAS
Solution: Create more awareness about SMS based deactivation of VAS, thus enabling MEs to initiate the process on his
own. MEs who are not comfortable using SMS can take the help of friends/family/ local telecommunications vendor to
initiate the process on their behalf.
Your reference number is
####. This service will
be deactivated within 24
hours
SMS 1- VAS_CT_DEA
to ###
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Solution to problem of long text messages sent by telcos
Date: 25-07-2013
Recharge Successful for a
Talktime of Rs. 60 Service Tax: Rs
6.60
Balance: Rs 60.36
Solution: Redesign the messages that are sent to customers. The length of the SMS can be reduced in addition to emphasizing on key information for the customer.
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Problem- Lack of a phone backup if SIM gets lost
“I lose my SIM frequently due to which I keep losing my contacts.
Obtaining a SIM replacement is also a very tedious process, I am asked
for old documents which I am unable to produce. I wish there could be a
phone back up service.”
Name: Lokman Hossain Rabbi Age: 30 years Location: Dhaka Education: Grade 5 Occupation: Mechanic Number of Employees: Four I have been running my business for the past 18 years. I learnt this work and then started my own business.
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Solution to problem of lack of a phone backup if SIM gets lost
ME gets his lost contacts on getting a replacement SIM
Solution: Provision of a phone backup service for customers. The customer can back up his data on the operators system. In case the ME loses the SIM, they can visit the telecom outlet t and get a new SIM along with back up of their contacts
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Postpaid Lite for MEs- other services for MEs
SMS - Your last call cost was Rs. 2 and your current total
charge is Rs. 20
Option of mobile top ups if above the
credit limit
ME Identification
Postpaid package linked to other
relevant services (e.g. loans)
Provision of ME centric postpaid scheme with lower credit limit , no physical bills and relevant VAS applications To avoid bill shock, MEs are able to subscribe to a SMS for call charges on a pull or push basis (every day/week or after every Rs100 spent)
Information on the type of business will be recorded at the time of getting a new connection. The postpaid connection will also be linked to a broad package of services such as business loans / accounts. Super agents selected amongst the local telecom vendors to assist with relevant ME services.
Postpaid Lite can also help establish a ME’s credit history
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In India, 2 out of 3 MEs with problems complain to provider; in other countries 1 out of 3
28%
63%
35%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Bangladesh India Sri Lanka
MEs who complained about problems (% MEs who have mobile related
problems)
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Why not complain?
71%
49%
83%
27%
51%
15%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Bangladesh India Sri Lanka
Reasons for not complaining to the service provider (% BOP MEs who faced problems but didn’t complain)
Others
I am scared of them
I do not know how to contact them
Its of no use/ did not think it was worthcomplaining
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Automated Complaint Registration
Your reference number is ####.
VAS will be deactivated within 24
hours.
Solution: Automate VAS complaint registration by the use of machine at the telecom operators outlet. This will enable the
ME to deactivate the service without having to queue up/ call up customer care for the same