Table of contents Page 1 Working definition of IP telephony.............................................................................. 1 1.1 Technical motivations for IP telephony....................................................... 1 1.2 Introduction to the different types of IP telephony...................................... 2 1.2.1 Scenario 1: PC to PC........................................................................ 2 1.2.2 Scenario 2: Phonetophone over IP................................................ ! 1.2.! Scenario !: PC to phone or phone to PC.......................................... " 1.! Working definition of IP telephony............................................................. # 2 $evie% of current regulatory frame%ork...................................................................... & 2.1 'eneral remarks........................................................................................... & 2.2 (vervie%...................................................................................................... ) 2.! *reas for revie%........................................................................................... ) 2.!.1 *chieving policy goals in the conte+t of convergence and e+isting market conditions............................................................................. ........................................................................................................, Internet Protocol (IP) Attachments 2.!.2 -ncouraging investment. spurring innovation. advancing development and opening markets................................................... ........................................................................................................, 2.!.! Customer /enefits............................................................................. , 2.!.0 1niversal service2access o/3ectives for telecommunication services............................................................................................. ........................................................................................................, 2.!." Consideration of technological issues such as 4uality of service. . . . , 2.!.# Interconnection and access policies................................................. 15 2.0 *gency contacts........................................................................................... 15 Internet Protocol (IP) Attachments Page ! Case studies and e+perience sharing............................................................................. 15 !.1 Introduction.................................................................................................. 15 !.2 $esults of policies em/racing IP telephony................................................. 15 !.! Policies consistent %ith transition2convergence of net%orks...................... 15 !.0 Sharing e+perience in developing ne% methodologies and approaches...... 11 !.0.1 'eneral remarks............................................................................... 11 !.0.2 *pproaches to technologyneutral. sectorspecific regulation......... 11 !.0.! *pplication of domestic telecommunication regulation esta/lish ing effective competition. universal service2 access o/ligations in cluding any other. further o/ligations. and other e+periences......... ......................................................................................................12 0 Conclusions: policy aspects.......................................................................................... 12 Internet Protocol (IP) Attachments IP telephony and voice over IP (VoIP) 1 1 Working definition of IP telephony 11 Technical motivations for IP telephony *lthough IP telephony does not yet constitute a su/stantial percentage of the glo/al %orld%ide telephony traffic volume. it is e+panding rapidly as a result of the follo%ing technical motivations: 16 The circuits%itched net%ork %as designed and optimi7ed to provide a single product 8 fullduple+ 0 k97 s%itcha/le voice channels /et%een points :#0 ;/2s digital channels6. 26 <=ata<. in general. are characteri7ed /y /ursts of information rather than the constant /it rate flo%s typically associated %ith speech. !6 =ata /ursts can /e most efficiently transported using packets of information that can /e interleaved in time %ithin a net%ork %ith other packets /eing carried /et%een other sources and destinations. 06 >or more than 05 years. voice has /een digitally encoded into #0 ;/2s streams that can /e transported over the #0 ;/2s channels. 9o%ever. advances in voice coding permit a %ide range of options. e.g. from ") ;/2s to higher 4uality audio at #0 ;/2s. ?ultiple+ing voice at a rate other than #0 ;/2s is difficult over the #0 ;/2s circuits%itched net%ork. 9o%ever. IP telephony su/scri/ers need to interconnect %ith the more than 1 /illion %orld%ide classical telephony su/scri/ers. and implementation of a transcoding mechanism makes it necessary to transform their lo%er /itrate to the legacy #0 ;/2s encoding :much like %hat happened %hen the lo%rate encoding of mo/ile net%orks %as connected to fi+ed PST@ net%orks6. "6 Significant %ork has /een performed in I-T> and else%here to provide realtime or near realtime capa/ilities using IP that permit voice to /e transported over IP using the range of voice coding. Carriergrade products that integrate those protocols are /eing introduced in the field to produce 4uality of service that satisfies their customers. I-T> is currently %orking on protocols that ensure that AoS constraints are met in a consistent manner over a set of traversed net%orks. #6 This fle+i/ility to transport a variety of user information streams. i.e. constant and varia/le /it rate. different speeds. etc.. allo%s packets%itched net%orks to evolve to%ards the o/3ective of one integrated net%ork for a %ide range of applications. &6 * single integrated net%ork :packets%itching6 can mean less operational and maintenance costs compared %ith multiple overlay net%orks. 9o%ever. in the short term there may /e additional e+penses. )6 In addition the fle+i/ility of packets%itched net%orks to accommodate ne% information streams. %ith a %ide range of characteristics and /ased on the IP and the host of open. standardi7ed interfaces and languages availa/le to it. allo%s the introduction of ne% applications producing ne% revenue streams. In some cases those capa/ilities could /e the real driver for the introduction of IP transport %ithin telecomunication net%orks rather than the <reproduction< of e+isting telephony services. 1 The material in this section has /een provided /y B=T. Attachment 15 IP telephony and voice over IP (VoIP) 1 Internet Protocol (IP) Attachments ,6 IP/ased net%orks can use the same underlying lo%er layer transport facilities. i.e. t%isted metallic pairs. ca/le. %ireless. optical fi/re. satellite. The evolution to IP/ased net%orks can /e accomplished economically /y deploying IP/ased packet s%itches2routers that can /e connected /y e+isting transport facilities. This %as a tremendous vehicle for offering Internet access to mass markets in developed countries o%ing to the availa/ility and u/i4uity of those transport facilities. 1! Introd"ction to the different types of IP telephony *ccording to the nature of the IP net%ork used. %e may speak of t%o ma3or categories for voice transmission over IP net%orks. The first is essentially /ased on the Internet. %hich is seen as the interconnection of a host of pu/lic or private net%orks on a glo/al scale. The second is provided /y service operators using managed IP net%orks. %ithin %hich a num/er of preinstalled mechanisms :routing algorithms. coding. etc.6 serve to ensure a 4uality of service level that is accepta/le for speech. There are three voice over Internet protocol :CoIP6 usage scenarios according to terminal e4uipment and types of net%ork: 1!1 #cenario 1$ P% to P% In this scenario. the calling and called parties /oth have computers 2 that ena/le them to connect to the Internet usually via the net%ork of an Internet service provider :ISP6 ! . The t%o correspondents are a/le to esta/lish voice communication only /y prior arrangement. since /oth users have to /e connected to the Internet at the same time :having fi+ed in advance the time at %hich they %ill communicate via the Internet. unless of course they are permanently online6 and use CoIP compati/le soft%are 0 . >urthermore. the caller must kno% the IP address of the called partyD to overcome this correspondents must agree to consult an online directory server :updated %ith each connection6 %here users register prior to each communication or have other %ays of locating and /eing a%are of the availa/ility of their correspondentEs connection to the Internet :Instant ?essaging technologies6. 2 *ctually the term computer or PC indicates a device capa/le of e+ecuting a CoIP application soft%are program. Today. %e see the emergence of advanced user appliances like personal digital assistants :P=*6 or advanced mo/ile handsets that are capa/le of running CoIP soft%areD therefore the term PC used in the se4uel is used for convenience and should /e understood in the a/ove general meaning. ! The role of the ISP is primarily to allo% his su/scri/ers to connect to his net%ork and provision them %ith an IP address allo%ing them to use Internet applications. The case of accessing to the Internet through an ISP is cited here as the dominant e+ample. (f course users connected directly to a F*@ or W*@ :enterprises or academia net%orks6 can have an IP address 8 al/eit a private one /ehind a net%ork address translation :@*T6 scheme 8 and use the Internet applications %ithout the intervention of an ISP. 0 The telephony soft%ares currently availa/le on the market all have a similar structure. displaying a control panel from %hich the main telephony functions may /e controlled and the configuration and options menus consulted. *ll such soft%ares provide access to Internet relay chat :I$C6 areas. in %hich users can e+change te+t messages in real time. to %hich end a list of individuals using the same soft%are and currently online is displayed. *ccording to the product. there is also a menu %hich ena/les the user to make a call to a specific IP address that is permanent and corresponds to a machine that is already connected to the net%ork. Some products may include encryption of voice communication. * voicemail option ena/les voice messages to /e recorded /y the machine. Attachment 15 IP telephony and voice over IP (VoIP) 2 Internet Protocol (IP) Attachments In this scenario. the ISP is generally accessed via the pu/lic telephone net%ork /y means of a simple telephone call. This means of access still predominates. even in developed countries. *lternative solutions. kno%n as </road/and< and /ased on the telephone net%ork :+=SF technology6. a ca/le television net%ork or a %ireless access net%ork :F=?S technology6. are currently at the early stages of deployment. and are not yet in %idespread use. even though certain countries are already %ell e4uipped " . The ISPEs role in this scenario is limited to the simple provision of access to the net%ork. %hich in turn ena/les the user to access the Internet. The voice application used /y the customer is transparent for the ISP. %hich takes no specific measures to guarantee the 4uality of the voice service. In short. one cannot in such a scenario speak of <telephony< in the conventional sense of the %ord. i.e. the provision of a service /y a third provider. /ut merely of the use of a voice application via the Internet. such usage having /ecome as commonplace as any other net%ork application. The protocol used /et%een the t%o communicating parties is often the 9.!2! :see *nne+ >.1 to IT1T $ecommendation 9.!2!6 protocol defined /y IT1T :e.g. the @et?eeting application6D ho%ever. I-T>Es SIP protocol :see *nne+ >.26 could see more %idespread use in the future. This solution is illustrated in >igure 1 /elo%.
Internet *ccess net%ork *ccess net%ork I#P I#P 1ser * 1ser B
I#P net&ork I#P net&ork 'ig"re 1 ( P%)to)P% IP telephony 1!! #cenario !$ Phone)to)phone over IP In this case. the calling and called parties are /oth su/scri/ers to the pu/lic telephony net%ork :fi+ed or mo/ile 6 and use their telephone set for voice communication in the normal %ay. There are t%o methods for communicating /y means of t%o ordinary telephone sets via an IP or Internet net%ork. " The main -uropean 1nion. @orth *merican and ;orean operators already report an availa/ility in the order of ,5G *=SF access :see also IT1Es <@e% Initiatives: Broad/and< reports6. Attachment 15 IP telephony and voice over IP (VoIP) 3 1!!1 *se of gate&ays This means that one or more telecommunication players have esta/lished gate%ays that ena/le the transmission of voice over an IP net%ork in a %ay that is transparent to telephone users. What %e have in this case is not the Internet /ut a <managed< IP net%ork. i.e. a net%ork %hich has /een dimensioned in such a %ay as to ena/le voice to /e carried %ith an accepta/le 4uality of service. >igure 2 /elo% illustrates such a scenario. +anaged IP net&ork 1ser * ,ate&ay Telephony 'i-ed or Wireless .et&ork ,ate&ay 1ser B Telephony 'i-ed or Wireless .et&ork 'ig"re ! ( Phone)to)phone IP telephony "sing gate&ays In this scenario. the gate%ays and managed IP net%ork could /elong to different players. depending on %hether %e are looking at: a6 the purely internal use of CoIP %ithin the net%ork of a single telephone operator. %hich o%ns and manages the entire operation. handling /oth users * and BD /6 the provision of a longdistance voice service /y a longdistance operator using CoIP technology :users * and B in this case /elonging to different net%orks6. in %hich case the %hole operation /elongs to and is managed /y such a longdistance operator. 1!!! *se of adapter bo-es * num/er of companies market /o+es %hich resem/le modems and are installed /et%een the userEs telephone set and his connection to the PST@. In order for this arrangement to %ork properly. each of the t%o users needs to have a su/scription %ith an ISP %hose access parameters have /een preprogrammed in the /o+. The calling party initiates his call in the same %ay as in a conventional telecommunication net%ork. and the first phase of the call is in fact set up on that net%orkD ho%ever. immediately after this the /o+es e+change the information re4uired for the second phase. The conventional call is then /roken off and the /o+es. on the /asis of the data they have e+changed and the preesta/lished parameters. esta/lish a connection /et%een each of the t%o correspondents and their respective ISP. (nce the 4 Attachment 5 IP telephony and voice over IP (VoIP) Internet Protocol (IP) Attachments call has /een esta/lished. the /o+es locally convert the voice signals into IP packets to /e transported over the Internet as illustrated in >igure !. This scenario is in principle very similar to scenario 1. e+cept that the t%o users do not re4uire a PC and the need for an Internet <rende7vous< is facilitated /y the procedure /eing initiated in the form of a telephone call. 9o%ever. this type of arrangement has /een only marginally successful since it re4uires 8 as in the PCtoPC case 8 that the t%o correspondents each /e e4uipped %ith the same type of /o+. Internet 1ser * P#T./I#0. net&ork 1ser B P#T./I#0. net&ork 1o- ,ate&ay 1o- ,ate&ay 'ig"re 2 ( Phone)to)phone IP telephony "sing adapter bo-es The t%o methods in this scenario call on t%o types of net%ork to esta/lish the telephone call. i.e. the Internet or a managed IP net%ork. and the PST@. 1!2 #cenario 2$ P% to phone or phone to P% In this scenario. one of the users has a computer /y %hich he connects to the Internet via an access net%ork and an ISP :in a similar %ay to scenario 16. %hile the other user is a <normal< su/scri/er to a fi+ed or mo/ile telephone net%ork. 1!21 P% to phone 3 When the computeri7ed user %ishes to call a correspondent on the latterEs telephone set. he must /egin /y connecting to the Internet in the traditional manner via the net%ork of his ISP. (nce connected. he uses the services of an Internet telephony service provider :ITSP6 operating a gate%ay %hich ensures access to the point that is closest to the telephone e+change of the called su/scri/er. It is this gate%ay that %ill handle the calling partyEs call and all of the signalling relating to the telephone call at the called party end. It should /e noted that the ITSP provides a one%ay PCtophone service and does not manage su/scri/ers as suchD in fact, the PC subscriber uses the ITSP's services solely for outgoing calls. It should also /e noted that the ITSP has a managed IP net%ork. there/y ensuring a certain 4uality of service for voice as far as the gate%ay closest to the called su/scri/er. and that the ITSP also manages the interconnection %ith the latterEs telephone operator. =espite their use of CoIP technology. ITSPs consider themselves to /e telephone service providers and generally provide their services to individuals in the conventional manner. i.e. %ith a charge per minute. # The same remark noted for scenario 1 applies hereD the ISP case is only the dominant e+ample. The user can /e connected to the Internet /ehind a F*@ or W*@ %ithout the need of ISP mediation. Attachment 15 IP telephony and voice over IP (VoIP) 5 1!2! Phone)to)P% In this case the calling party is the telephony user and the called party is the PC user. Since a telephony user can essentially dial an -.1#0 num/er to reach the called party. then someho% the PC user should have an -.1#0 num/er 8 either indirectly: in case of its interconnection to the net%ork /ehind an IPtechnology private /ranch e+change :P*BH6 s%itch :actually in this case %e can more properly speak a/out an <IP phone< rather than a PC device that is connected to the F*@ managed /y the IP P*BH6D 8 or directly: in this case the IPside su/scri/er has an -.1#0 address allocated /y an IP telephony operator. Technically speaking only the first of the a/ove cases %orks today through the availa/ility of IP P*BH devices. The second case %ill %ork pending the availa/ility of a translation mechanism /et%een implemented /y the IP side that translates the pu/lic -.1#0 num/er to the IP address of the called party. This %ill only /e availa/le pending the implementation of a technology like -@1?. >igure 0 /elo% illustrates this scenario. *ccess net%ork I#P 1ser * 1ser B Telephony 'i-ed or Wireless .et&ork ,ate&ay or IP PA14 Internet I#P5s net&ork Internet telephony provider5s net&ork 'ig"re 6 ( P%)to)phone or phone)to)P% IP telephony 12 Working definition of IP telephony IT1T Study 'roup 2 issued the follo%ing e+planations of the term <IP telephony<: <IP is an acronym for Internet Protocol. It is a communications protocol developed to support a packet s%itched net%ork. The protocol has /een developed /y the Internet -ngineering Task >orce :I-T>6. IP Telephony is the e+change of information primarily in the form of speech that utilises a mechanism kno%n as Internet Protocol< The position of Study 'roup 2 regarding the term <Internet telephony< should also /e noted: 6 Attachment 5 IP telephony and voice over IP (VoIP) Internet Protocol (IP) Attachments <The com/ination of the term EInternetE %ith the term EtelephonyE is seen as inappropriate. The Internet offers many capa/ilities to users including the a/ility to carry /idirectional speech in real time or near real time. We consider this to /e an intrinsic capa/ility of the Internet and not a tele communication service< *part from the possi/le use of the telephone net%ork as a net%ork providing access to the Internet. it is possi/le to categori7e the scenarios presented a/ove into t%o types: Type 1: Those re4uiring the intervention of an operator and ena/ling. /y means of a gate%ay. the partial :in one direction as in scenario !6 or full :in /oth directions as in scenario 2 %ith gate%ays6 provision of communication to the glo/al pu/lic s%itched net%ork. Type !: Those re4uiring no intervention /y a third provider :as in scenario 1 or scenario 2 %ith /o+es6 and %ithout the need for a gate%ayD in this case. the application of CoIP is seen as one of the multiple applications of the Internet %orld. Type 2 is close to %hat Study 'roup 2 considers as <Internet telephony< in the sense that it uses <the intrinsic capa/ilities of the Internet and IdoesJ not IinvolveJ a telecommunication service<. Type 1 scenarios on the other hand use the Internet protocol as a /earer for speech /ut involve an intervention of an operator if only for the provision of an interconnection service to%ards a telephony net%ork su/scri/er. They are closer to the a/ove definition of IP telephony though that definition focuses only on the transport technology used for speech transmission :namely. the Internet protocol6 and does not seem to address the other kno%n attri/utes of telephony as a service provided /y an operator. It goes %ithout saying that the first type of usage is the more advantageous. at least in the short and medium terms. It is alone in providing access to over one /illion telecommunication net%ork users throughout the %orld. there/y contri/uting to universal access to telecommunication services. The second type of usage is of interest. in the short term. only to the community of Internet users. and %ill /ecome valid as a long term universal communication model once all user e4uipment :particularly terminals6 throughout the %orld has migrated to <native< IP technology for accessing the Internet. and once the technologies needed to implement the 4uality of service for applications involving interaction /et%een individuals :%hether /y voice and2or other media6 have /een %idely introduced in IP net%orks. Fater in this document. %e shall /e focusing on the discussion of pro/lems relating to implementation of the IP telephony service and to the %ays in %hich the PST@ and net%orks using IP technology interact. We shall also /e looking at the technological factors favouring migration /y the telephony service to IP net%ork technology and at the prospects that are opened up /y that migration in terms of ne% services. ! 7evie& of c"rrent reg"latory frame&ork !1 ,eneral remarks The introduction and gro%th of IP telephony raises a num/er of important policy issues. IT1= is challenged %ith advising and assisting ?em/er States and Sector ?em/ers in response to specific concerns and needs of developing countries regarding the policy implications that surround the introduction of <IP telephony<. & In this report. e+pert advice and assistance is provided in three ma3or sections: 16 revie% of current regulatory frame%orksD & (pinion = http:22%%%.itu.int2IT1 =2e strategy2internet2iptelephony2=ocuments2%tpf25512Chaireport.htmlK(PI@I(@= Attachment 15 IP telephony and voice over IP (VoIP) 7 26 country case studiesD and !6 shared e+periences in developing ne% methods and approaches for the introduction of IP telephony. This part of this report is meant to serve as a general guide. not a step/ystep plan. The Secretary 'eneralEs report to. and the ChairmanEs report of. the third World Telecommunication Policy >orum :WTP>6. http:22%%%.itu.int2osg2spu2%tpf2%tpf25512inde+.html provide useful /ackground discus sions of the many policy issues. as %ell as a survey of the varied domestic regulatory policy approaches of IT1 ?em/er States. The survey reveals that there is no single policy approach. and indicates that the policy issues %ill continue to evolve as IP telephony technology is enhanced and more %idely deployed. *spects of the Secretary 'eneralEs report and the WTP> ChairmanEs report have /een included in this report %here applica/le. $eaders are encouraged to consult the full reports as %ell as the source documents prepared for the WTP> for additional detail. 9o%ever. as the underlying technologies and markets evolve. it is important to consider the effects of these changes on policies and to plan for change %ithin the policymaking process. !! 8vervie& *s IP net%orks and IP telephony /ecome more %idespread. policymakers face the challenge of evaluating %hether current regulatory frame%orks. developed initially for circuit/ased net%orks. are relevant and appropriate for IP/ased net%orks. This challenge is arising at a time %hen many ?em/er States are lightening their regulatory regimes and moving to greater reliance on competition to ensure consumers the /roadest possi/le access to telecommunication services. (%ing to the very different regulatory regimes created to address particular domestic economic. political and infrastructure challenges. ?em/er States may %ant to focus their revie%s on the rationale /ehind their policy frame%orks. and especially the desired effects in the conte+t of overall economic and social development. In particular. the e+isting level of net%ork development and state of the communications market generally are issues that most likely %ill have to /e taken into account. Countries that have very lo% teledensity levels must address the most /asic difficulty of /uilding a telecommunication infrastructure. Within these /road policy frame%orks. IP telephony may raise a num/er of specific 4uestions for policymakers and regulators re4uiring a careful and informed /alancing of different and sometimes competing interests. *s a threshold matter. it is useful to understand the short and longterm economic conse4uences of any policy decision. It is also essential for regulators and policymakers to understand that there is no policy model that is universally applica/le. * num/er of approaches may /e appropriate. It is recommended that ?em/er States consider the /enefits of: 16 >irst. defining the /road telecommunication policy o/3ectives for the country. %ithin the conte+t of overall economic development and social needs. and 26 Second. tailoring the regulatory regime to reach these o/3ectives. !2 Areas for revie& *s the /asis for determining policies specific to IP telephony. the 'roup of -+perts /elieves that ?em/er States may /enefit from a revie% of their more general domestic telecommunications regulatory frame%orks %ith the follo%ing in mind: Attachment 5 IP telephony and voice over IP (VoIP) Internet Protocol (IP) Attachments !21 Achieving policy goals in the conte-t of convergence and e-isting market conditions ?em/er States may need to evaluate their policy goals /efore determining %hat. if any. regulation is necessary in a converged market. >or e+ample. it may /e appropriate to limit regulation in a converged. competitive marketplace. employing regulation only %hen there is market failure. !2! 9nco"raging investment: sp"rring innovation: advancing development and opening markets * competitive telecommunications environment allo%s for competition among multiple service providers and for multiple investors. -+perience around the %orld reveals that competitive telecommunication models have /een adopted to attract capital investment for telecommunication and IP/ased net%ork infrastructure /uildout. It is also evident that policymakers and regulators have successfully implemented a competitive model /y ensuring appropriate safeguards against undue market po%er. Policies that allo% multiple carriers and Internet service providers :ISPs6 have /een sho%n to stimulate infrastructure /uildout and lo%er prices for /usiness and consumer access. !22 %"stomer benefits Competition has /een sho%n to enhance endcustomer choice /y providing more options /oth in terms of price and 4uality. Consumer %elfare is usually the greatest in an environment %here there are no limits on the num/er of suppliers and services. !26 *niversal service/access ob;ectives for telecomm"nication services In some circumstances the market may not function to provide telecommunication services to certain su/sets of users. 1niversal access can /e defined as governmentsponsored programmes designed to provide access to specified telecommunication services for a community. Several countries in the developing %orld have adopted universal access models to provide access to a defined set of telecommunication services in rural and remote areas. and for lo%income individuals. Without access to these services. Internet and other advanced IP services access and use is inhi/ited. Countries that implement universal access programmes may %ant to consider the follo%ing: * universal access programme that is created to promote the development of telecommu nication infrastructure in rural and remote areas. and for lo%income individuals. * universal access programme for telecommunications that is operated in a transparent. competitively neutral and nondiscriminatory manner. Clear identification of the universal service re4uirements and provider o/ligations. When universal access to local services is funded /y a crosssu/sidy :for e+ample. from long distance telecommunications6. that any crosssu/sidy /e clearly and transparently identified. * funding mechanism that is clear as to %hether the funds come from ta+es or revenues. * universal access plan that promotes infrastructure development and is procompetition. !25 %onsideration of technological iss"es s"ch as <"ality of service The service and 4uality capa/ilities of IP telephony technologies are still evolving. To reach the full range of market needs. it is e+pected that IP technology %ill have functional capa/ilities similar to circuits%itched technology. Policies that allo% fle+i/ility in choice of technology and application to address user needs and to permit users to choose among different prices and 4ualities are more likely to encourage investment and stimulate development. Attachment 15 IP telephony and voice over IP (VoIP) ! !23 Interconnection and access policies Within the conte+t of net%ork transition one role of policymakers may /e to ensure that e+isting services remain availa/le as ne% services are introduced. as driven /y market forces. Interconnection policy can play a critical role /y ensuring that ne% and e+isting infrastructure can coe+ist. thus preserving and enhancing the value of /oth. In technology transitions. such as the one from circuits%itched to packets%itched communication transport mechanisms. there is usually a period of coe+isting technologies. Policies that recogni7e transition /y allo%ing multiple net%ork platforms and encouraging their interconnection are prefera/le. !6 Agency contacts IT1 maintains a contact data/ase of the regulatory agencies and key contacts of each ?em/er State. Contact information can /e found at http:22%%%.itu.int2'lo/al=irectory2inde+.html *n additional source of country/ycountry contact information is availa/le online at: http:22%%%.totaltele.com2links2list.aspLCategoryI=M2#& 2 %ase st"dies and e-perience sharing 21 Introd"ction While some developing countries have policies prohi/iting IP telephony. others have policies em/racing it. Some do not regulate IP telephony at all. %hile others have chosen to include it in a positive manner %ithin their telecommunications regulatory frame%ork. These countries may /e motivated /y a desire to encourage and stimulate emerging technologies that can lo%er costs. increase total revenue opportunities and promote innovation and national economic gro%th. These policies may /e linked to concerns a/out imposing regulations on technologies that are not fully mature. Fimitations placed on IP telephony may /e seen as inconsistent %ith approaches designed to stimulate the deployment and migration to IP/ased net%orks. *lso. regulators may /e hesitant to intervene in ne% markets unless there is evidence of market failure. =ecisions to prohi/it. regulate or not regulate IP telephony are often coupled %ith longterm policy o/3ectives for the development of the communication infrastructure2net%ork. 2! 7es"lts of policies embracing IP telephony The World Bank has created an Internet 9conomic Toolkit for African Policy)makers addressing many of the above iss"es in the conte-t of developing economies This toolkit presents a model of the likely impacts of the Internet on *frican telecommunication companies and Internet service provider revenues. models of the cost structure and potential reach of Internet service. data on the e+tent of Internet development in *frica and e+amples of its current use. With this /ackground. the toolkit goes on to discuss policy choices faced /y countries that hope to e+pand Internet use %ithin the conte+t of needed telecommunication reform and government private partnerships involving universities and @'(s. It is availa/le in five pdf files and an -+cel spreadsheet containing the model itself. It can /e accessed online at: http:22%%%.infodev.org2pro3ects2finafcon.htm 22 Policies consistent &ith transition/convergence of net&orks Case studies can provide useful insight into the impact of regulation on the development and e+pansion of the telecommunication market %ithin a particular economy. Caution should /e e+ercised. ho%ever. in e+trapolating the findings to economies that do not share the /asic characteristics of the studied economy. 9o%ever. the methodologies used in these studies can /e 1" Attachment 5 IP telephony and voice over IP (VoIP) Internet Protocol (IP) Attachments particularly useful to others conducting their o%n case study. IT1 has completed case studies of " ?em/er States: ;orea. China. Peru. Colom/ia and Canada. These studies are availa/le on line through the IT1 %e/site at: http:22%%%.itu.int2osg2spu2%tpf2%tpf25512casestudies2inde+.htm (ver the past four years. the (rganisation for -conomic Cooperation and =evelopment :(-C=6 has undertaken indepth revie%s of the telecommunication regulations in a num/er of economies. This %ork is aimed at producing. for each country revie%ed. a multidisciplinary revie% of progress on regulatory reform /ased on international /enchmarking. selfassessment and peer revie%. The recent revie%s of 9ungary. Poland and the C7ech $epu/lic are specially noted. The revie%s of 9ungary http:22electrade.gfi.fr2cgi/in2(-C=BookShop.storefront2-@2Catalog2B(11!++ and the C7ech $epu/lic http:22electrade.gfi.fr2cgi/in2(-C=BookShop.storefront2-@2Catalog2B(11!++ are availa/le through (-C= pu/lications. 26 #haring e-perience in developing ne& methodologies and approaches 261 ,eneral remarks Countries have taken %idely differing policy approaches to%ard IP telephony. %hich may /e related to different prevailing market conditions or degrees of li/erali7ation. The sharing of these different approaches can help policymakers define and evaluate options to address issues specific to the environment in their country. 26! Approaches to technology)ne"tral: sector)specific reg"lation Technological neutrality is a principle that is invoked /y some policymakers and regulators %hen addressing IP telephony and other emerging communication technologies. This concept can /e generally characteri7ed as an effort to apply regulations in an identical manner to like services. regardless of the technology used to provide these services in a competitive market. 1nless other policy imperatives take precedence. the purpose of this concept is to support competition policy /y ensuring that one provider is not given more favoura/le regulatory treatment than another %hen providing e4uivalent services. (thers /elieve that policymakers should not /e indifferent to technology. They assert that emerging technologies might /enefit from a <%indo%<. i.e. a form of asymmetric regulation during an introductory phase. %hich %ould allo% them to develop and gro% outside traditional regulation. The principle of technological neutrality %as %idely discussed at the WTP> meetings and the -+pert 'roup meetings. @o consensus %as reached. 9o%ever. many /elieve that: 16 * country first must have effective competition in order to apply a principle like technological neutrality. 26 Technological neutrality is a legitimate consideration in policy and regulatory deli/erations. /ut it should not override /roader procompetition o/3ectives. The -uropean 1nion :-16 has concluded proceedings to create technologyneutral regulation. The =irective on access to. and interconnection of. electronic communication net%orks :C(?:556!)0final of 12 Nuly 25556 harmoni7es the %ay in %hich -1 ?em/er States regulate the market /et%een suppliers of communication net%orks and services in the Community. The =irective lays do%n a frame%ork of rules that are technologically neutral. /ut %hich may /e applied to specific product or service markets in particular geographical areas. to address identified market pro/lems /et%een suppliers of access and interconnection. The =irective <Interconnection and access in the ne% -1 regulatory frame%ork for electronic communications services< and additional material may /e consulted at the -1 %e/site http:22%%%.europa.eu.int2informationOsociety2topics2telecoms2regulatory2ne%Orf2inde+Oen.htm Attachment 15 IP telephony and voice over IP (VoIP) 11 262 Application of domestic telecomm"nication reg"lation establishing effective compe) tition: "niversal service/ access obligations incl"ding any other: f"rther obligations: and other e-periences a6 The 1nited ;ingdomEs independent regulator. (>T-F. has had e+tensive e+perience %ith different regulatory approaches including price caps. and of ad3usting the scope and intensity of regulation to take into account the level of competition in the market and technological change. Its %e/site is: http:22%%%.oftel.gov.uk2 /6 In the 1nited States there has /een e+tensive competition in certain sectors of the telecommunication market since the 1,&5s. especially in long distance and enhanced or valueadded services. In 1,,#. national legislation %as adopted that specifically opened the local telecommunication market to competition. *n overvie% of the 1nited States e+perience is provided in: http:22%%%.itu.int2IT1 =2e strategy2internet2iptelephony2Seminars22nd-'?2documents2 policy2IPTel21.pdf c6 India is e+perimenting %ith IP telephony in limited applications. 1nder the @TP 1,,,. Internet telephony is not yet permitted in India. The 'overnment of India has committed to monitor the development of IP telephony and its impact on national development and %ill revie% the issue at an appropriate time. The 'overnment. at present. is %orking on various issues relating to the IP telephony. ?ean%hile. the incum/ent operator BS@F has plans to use IP technology for real time service for transit traffic /et%een tandem e+changes. /ypassing the tandems on an e+perimental /asis at si+ locations in the country using a separate IP/ased net%ork. *t present it is not envisaged to connect these links to the Internet. (nly domestic long distance traffic is proposed for e+perimentation %ith CoIP and no international directdial calls are proposed in this e+periment. This e+periment %ill cover realtime voice and fa+ services. %hereas data services %ill /e transacted through the Internet. 6 %oncl"sions$ policy aspects The policy implications of IP telephony should /e e+amined %ithin the conte+t and comple+ity of the changes in the market environment. =eveloping countries face the additional challenge of addressing relatively lo% teledensity levels. *s IP net%orks and IP telephony /ecome more %idespread. policymakers may face the challenge of evaluating %hether current policy frame%orks. developed initially for circuit/ased net%orks. are relevant and appropriate for IP /ased net%orks. *s the /asis for determining policies specific to IP telephony. ?em/er States may /enefit from a revie% of their more general domestic telecommunications regulatory frame%orks %ith the follo%ing in mind: 16 ?em/er States may need to evaluate their /roader policy goals /efore determining %hat. if any. regulation is necessary in a converged market. 26 -+perience around the %orld reveals that competitive telecommunication models have /een adopted to successfully attract capital investment for telecommunication and IP/ased net%ork infrastructure /uildout. !6 Customer /enefits are usually the greatest in an environment %here there are no limits on the num/er of suppliers and services. 06 In some circumstances %here the market may not function to provide telecommunication services to a certain su/set of users. governmentsponsored universal access2service programmes may /e helpful. 12 Attachment 5 IP telephony and voice over IP (VoIP) Internet Protocol (IP) Attachments "6 Policies that allo% fle+i/ility in the choice of technology and its application to address user needs and to permit users to choose among different prices and 4ualities are more likely to encourage investment and stimulate development. #6 Consider. in competitive markets. %hether to take a technologyneutral approach /y applying regulations in an identical manner to like services. regardless of the technology used to provide these services. &6 Policies that allo% for the coe+istence of multiple net%ork technology platforms and encourage their interconnection are preferred. Countries have taken %idely differing policy approaches to%ard IP telephony. %hich may /e related to different prevailing market conditions or degrees of li/erali7ation. @o policy model is universally applica/le. * num/er of approaches may /e appropriate. The sharing of these different approaches can help policymakers define and evaluate options to address issues specific to their country. Training for policymakers. regulators and operators is essential to help understand the implications of ne% technologies. ne% market structures and alternative regulatory models. * num/er of institutions. organi7ations and companies provide training programmes. ?em/ers are encouraged to take advantages of these programmes. ?em/ers are also encouraged to contact each other and to share first hand their e+periences. Attachment 15 IP telephony and voice over IP (VoIP) 13