Telecom reforms: Relief with hope?
This could be a good first step towards a real transformation
At first glance, the big-bang telecom relief package last month might seem disappointing. A closer look shows the possibility of real promise. Could it be a subtle masterstroke, the first in a series of steps that will revive the sector? Here’s why.
By not fully resolving the debt burden to result in sustainable cash flows, it gives the impression of a grudging debt-restructuring that doesn’t quite revive the patient, while prolonging the agony.
However, it provides immediate relief with a fouryear moratorium on cash outflows.
An issue that defied resolution since 2003, of what constitutes revenues for sharing, has been defined rationally as revenues from telecom.
The spectrum usage charge has been rescinded.
Solutions for revival are to be worked out as next steps.
Although the last three are prospective, telcos get immediate relief without awaiting the formulation of complex solutions. The relief is temporary though, as outstanding dues must be paid with interest. Unless much more is done, there will be a prolonged attrition, with high opportunity costs from the continuing nonavailability of services that severely constrain our capacity and productivity.
Meanwhile, another significant reform was introduced unobtrusively: Active network sharing. Blocking active sharing amounts to depriving the country of full utilisation of capital-intensive resources. Imagine having separate private road systems, or gas pipelines, and insisting that vehicles (or gas) must go from place to place only on their own networks. This was the situation in telecom until interconnection was made mandatory, but the latter did not eliminate network duplication, whereas active network sharing allows for eliminating it.
Thereafter, news that the government may change its position on spectrum charges due suggests more pragmatism. If the above interpretation is correct, the subtlety and quick action while avoiding opposition by not seeming to give away too much augur well.
For transformative reforms and a genuine revival, the Ministry of Communications and Information Technology could take the approach that worked reasonably well for NTP99, with coordinated planning and initiatives through the PMO across ministries and corporations, and external advice as appropriate. While it was not perfect, the NTP-99’S adoption of revenue sharing succeeded in expanding mobile telephony enormously. Learning from that experience in handling the details may help to avoid situations such as the legal wrangles on the scope of revenues, and the false starts. For instance, the government’s share was set too high initially at 15 per cent, and thereafter, spectrum auctions after the “2G scam” crippled the sector because of the “winner’s curse”, as auctions did in much of the world. We had best avoid such situations.
Wi-fi small cells
The ongoing evolution to small cells amplifies the need for sharing. Mobile handoff to Wi-fi is already the norm for 4G. Ubiquitous 4G networks and later upgrade to 5G and 6G will require the installation of many more small cells, with Wi-fi for high-speed user access. These could augment existing Wi-fi bands (2.4 and 5 GHZ) with 6 GHZ and 60 GHZ when these bands are permitted. Proliferation of small cells will be more feasible because of lower costs and easier installation with wireless point-to-point links instead of fibre, and mandatory sharing. “Wireless fibre” links could use light-licensed (open access to licensed service providers for connecting to the internet) spectrum in the 60 GHZ (V-band) and 70-80 GHZ (E-band). Gigabit delivery at far lower cost than fibre could be deployed across urban, semi-urban, and rural markets.
Small cells for users need to be built out with “wireless fibre” links from where fibre terminates in much of the country, in urban as well as rural areas. An alternative depending on costs is satellite links to small cells. In effect, the need is for the national fibre network, Bharatnet, to be extended to non-urban users outside district and block headquarters. Small cells funded by the Universal Service Obligation Fund combined with the BSNL’S and other installed networks could fulfill this need, with service providers given non-discriminatory access on payment through revenue sharing. A consortium approach with private sector leads could be considered.
Shared spectrum & infrastructure
A burdensome remaining constraint for network proliferation is licensed spectrum costs. Yet, the alternative of giving access to a spectrum pool without auctions for a share of revenues would probably result in much higher government revenues, as happened with licence fees after NTP-99 (see charts).
Shared access by licensed telcos to pooled spectrum will enable broadband for more areas and people, with full utilisation of unused spectrum greatly increasing traffic and revenues. The DOT needs to start with regulations for spectrum bands in 60 GHZ, 70-80 GHZ, and 6 GHZ. Thereafter, regulations could be considered for shared spectrum without auctions.1
Debt resolution for cash flows
An immediate priority for the sector is sustainable cash flows. The burden of adjusted gross revenue (AGR) and spectrum usage dues arose from misconceived policy errors, by efforts to include unrelated revenues, and overcharging for spectrum. Debt restructuring customarily involves elements such as reduced principal (“haircuts”), interest waivers, and extension of repayment periods, to enable sustainable cash flows. Much of the principal for AGR dues was created by including revenues unrelated to the licences to be paid for, an error corrected going forward. Past licence-related revenues would be much less, and favourable judgments prior to 2019 upheld this. The interest component in AGR dues is about three times the principal. The government could justifiably adopt policies to reduce most or all outstandings with this reasoning, as also consideration of the effort, cost and hardship endured by service providers, their employees, and the public for service deprivation of the critical support that broadband can/could have provide/(d). Further, this would also facilitate investment for better services.
Corrective policies & laws
A participative process on these issues starting with debt resolution could be used to frame policies going forward, including the requisite legislation. The above measures can revive and invigorate our telecom sector.