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ABSTRACT
The telecom industry in India underwent drastic changes over the past 13 years. It has gone from
being the darling of investors in 2007 to being among the most heavily indebted industries
in the country. This is a descriptive study that aims to analyse the past decade’s events to
understand the reasons behind the indebtedness of telecom operators and stress in the
industry. The study showed that the government regulations facilitated high levels of competition,
with over 16 operators in the industry at its height, which put pressure on the pricing power and
profitability of the operators. High reserve prices in spectrum auctions caused overbidding,
contributing significantly to the industry’s debt. Taxes and levies eroded the operators’ profit
margins. Coupled with the obligations of servicing the debt, it is no surprise that the industry was
under tremendous stress. The services of Reliance Jio offered at near free prices led to a wave of
consolidation in the industry. From over sixteen operators, the industry currently has four. The
current stability in the sector is fragile and any regulation or policy must be carefully measured
before implementation.
Keywords: Telecom; India; regulation; competition; telecom policy; Jio; debt; spectrum auctions.
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adequately utilised [2]. Investments in telecom and two blocks of 15 MHz for CDMA services [1].
infrastructure have positively affected economic There are about three or four operators in most
productivity and growth [3,4]. Considering its countries [8]. Spectrum allocation policy is to be
strategic importance in national development and well thought out keeping in mind the
security, the telecommunications is among the characteristics and conditions of the industry and
handful of regulated sectors in India. The raw nation. No spectrum auction design fits all
material for wireless services, airwaves markets [9].
(spectrum), is owned by the Government of India
and is managed by the Department of Telecom The opportunity cost of spectrum in the 2010
(DoT). DoT is tasked with granting licences to auctions was higher in the metro circles than in
telecom operators and providing them with other circles, indicating fierce competition to
spectrum usage rights. obtain spectrum in strategically important
markets. Due to the allocation of only two blocks
1.2 Trajectory of 5MHz each, mobile broadband has not taken
off in the country [10]. The reserve price set for
In February 2007, telecom stocks provided the 2010 3G auctions were significantly higher at
investors with the maximum returns, indicatingan Rs. 3,540 crores ($ 0.48 billion) per MHz than
optimistic outlook of the industry as a whole [5], what should have been at Rs. 850 crores ($ 0.12
with Vodafone entering the market by acquiring billion) [1]. When a government has undue
Hutchison’s 67% stake in Hutchison Essar for $ control over aspects of an industry, regulations
11.72 billion [6]. The market was dominated imposed directly impact the industry [11,12]. In
mainly by voice and SMS services. Almost all developing countries, operators are required to
major real estate companies had applied for a serve large sections of the society who have a
telecom licence in 2007. lower propensity to pay than their developed-
nation peers. With a lack of wired infrastructure,
However, from being the darling of investors, the institutions and mechanisms must facilitate
industry’s trajectory over the next 13 years was spectrum sharing and trading [13].
in stark contrast to the optimism shown by the
market. The sector was mired by controversial According to Investopedia, the Herfindahl-
political and regulatory actions such as the Hirschman Index (HHI) is a market concentration
spectrum allocation scandal, dubbed as the “2G measure, which is the sum of squares of the
Scam,” which led to the cancellation of 122 individual market shares of the firms in an
licenses issued in 2008 [7]. A significant increase industry. The formula for the HHI is as follows:
in the industry debt levels and the erosion of
2
pricing power due to excessive competition led to HHI = ∑ si
firms being under severe stress, with a wave of
th
consolidation hitting the industry by 2019. where: si is the market share of the i firm
This paper analyses the impact of government The determinants of profitability were noticed to
policy and competition on the telecom industry be using internal funds for future expansions and
since 2007. the growth of operations [14].
The initial licences (1995 to 2003) were bundled This is a descriptive study in which we have
with startup spectrum of two blocks of 4.4MHz adopted an explanatory approach to describe the
and 6.2 MHz, which could be increased to up to changes over the study period. The data
two blocks of 12.5MHz based on the subscriber collected is longitudinal and is from secondary
base of the operators. Between 2003 and 2006, sources. We have referred to data published by
the policy was tweaked such that the licences TRAI and DoT, annual reports, published
would be issued for a fixed fee and spectrum literature, and news articles from reputed
would be allotted on payment of the amount as sources. The missing values identified in the data
determined by the fourth-highest bid. There was have been filled by using simple averages. INR
an operator holding limit of two blocks of 10MHz figures have been translated to USD using the
for GSM and two blocks of 5MHz for CDMA exchange rate as on January 3 2021, Rs. 73.14
services. The global average of spectrum holding per USD. The statistics of minutes of usage per
per operator was two blocks of 20MHz for GSM month per subscriber, outgo per subscriber per
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month, and average revenue per user have been service using any technology over liberalised
averaged using the subscriber base of GSM and spectrum purchased at an auction. This was a
CDMA users as the base. The figures have been positive step ahead of the previously restrictive
standardised to represent a percentage of the licences [19].
total of individual items.
From the 2012 auction onwards, the government
4. ANALYSIS AND INTERPRETATION provided the option of deferring the payment for
spectrum rights won, along with interest. This
4.1 Government Regulation and increased the borrowing costs of the operators
Intervention and negatively impacted their profitability.
4.1.1 Licencing and spectrum allocation In 2014, trading of the liberalised spectrum was
permitted, and this opened up the opportunity for
As mentioned before, DoT is the government operators to sell their underutilised spectrum with
authority with the power to grant licences to other operators who faced a lack of spectrum,
telecom operators and provide them with the thereby ensuring efficient utilisation of the
rights to use airwaves. In 2007, the government airwaves [20].
decided to completely open up the telecom
sector and allow for as much competition as 4.1.2 Revenue Share and other levies
possible. They had removed the previously
imposed cap on the number of operators The New Telecom Policy, 1999 provided for
permitted per circle [15]. This generated operators to pay a proportion of their adjusted
widespread interest, and in 2008, 120 licenses gross revenues as license and spectrum usage
were granted to sixteen operators [16]. Until charges. The definition of AGR was a matter of
2007, spectrum was allotted based on licences dispute between the operators and the
and specific technologies. Post-2010, all government. Adjusted gross revenues are the
airwaves were allotted by way of auctions. The gross revenue net of service taxes and
large number of operators coupled with a scarcity interconnection expenses. The point of conflict
of airwaves led to overbidding in the 3G auctions was that telecom operators held that the gross
held in 2010, garnering bids for over Rs. 1.06 revenues should only include income from
trillion ($ 14.52 billion). This led to a considerable telecommunications services for which the
increase in industry debt levels. The sustained license was granted, however, the government
competition and scarcity of airwaves contended that it should consist of all company
underpinned the success of further airwave revenues, including non-core telecom revenues.
auctions held by the Department of These levies in addition to service tax and
Telecommunications [17]. The auction interconnection charges, ate up 17% to 45.58%
mechanism ensured that India had the cheapest over the period from 2006 to 2020.
call rates, and the airwaves are among the most
expensive in the world [18]. The government also The 14-year legal battle over this was settled by
introduced a Unified Licence for which a one- the Supreme Court, whose verdict required the
time fee of Rs. 1,650 crores ($ 0.23 billion) were telecom companies to pay Rs. 1.20 lakh crores
required to be paid. With these licences, ($ 16.41 billion) in annual dues, penalty and
operators could provide any telecommunication interest [21].
Year Bid (in cr) Upfront (in cr) Deferred (in cr)
2010 1 06 262.26 1 06 262.26 .00
2012 9 407.64 5 572.22 3 835.42
2013 3 639.48 1 626.32 2 013.16
2014 60 677.36 18 267.19 42 410.17
2015 1 09 227.78 32 377.85 76 849.93
2016 65 789.12 32 434.10 33 355.02
Cumulative 3 55 003.64 1 96 539.94 1 58 463.70
Source: Department of Telecommunications
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Table 2. Licence Fee and Spectrum Usage Charges as percentage of Gross Revenues
4.1.3 Cash flow pressure and insolvency dues led to concerns over the viability of
proceedings Vodafone Idea, which abated only when further
fusion of funds was announced [27]. The industry
The method of spectrum allocation followed by has now stabilised with four operators serving
the Indian government has been criticised by the populace. However, this is only fragile
industry leaders and analysts several times over because there is no evidence that the future
the year. They contended that the government auction reserve prices will be similar to those of
focused on maximising revenues by setting 2016 [28].
astronomical base prices for spectrum auctions
[10,22,1]. Bharti Airtel’s Sunil Mittal commented The bankruptcy proceedings of Aircel and
that the practice of auctioning spectrum and then Reliance Communications had reached a
charging a spectrum usage fee was like selling conclusion when the National Company Law
an asset and then collecting rent on it [23]. Tribunal approved bids of reconstruction
Through auctions alone, conducted between company UVARC. However, the proceedings
2012 to 2016, telecom operators racked up a were halted due to bickering among the Ministry
debt of Rs. 1.58 lakh crores ($ 21.67 billion) as of Corporate Affairs and the Ministry of
deferred dues on which operators had to pay Telecommunications over the sale of spectrum
interest to the government. The amount of rights of the companies. This has stopped the
upfront payment of Rs. 1.97 lakh crores ($ 26.87 recoveries of $5.7 billion [29], ultimately
billion) made to the government for spectrum defetingthe purpose of the Insolvency and
rights in auctions from 2010 to 2016 made a Bankruptcy Code, 2016, which aims to resolve
significant contribution to the Rs. 4.6 lakh crores corporate insolvencies in a time-bound manner
($ 62.89 billion) of debt on the books of the to boost the confidence of creditors and increase
telecom operators in 2018 [24]. the availability of credit.
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throughout the entire period, as per data from taxes and interconnection charges. Thus, it can
TRAI. Fig. 1 shows the market share by GSM be said that it is the pure topline made from
and CDMA users. telecommunication operations. We observed a
considerable difference in the Herfindahl-
It is to be noted that the level of concentration in Hirschman Index during the period. The average
the industry was not straight forward. Market HHI based on AGR was 0.3387, which indicates
share of each company was measured based on high concentration; the same based on
Subscriber share and AGR. AGR reported is the subscriber count, was 0.1445, depicting a
amount of revenue earned by operators from reasonably competitive market.
telecommunications operations net of indirect
GSM CDMA
Market Share
Period
0.4
0.35
0.3
0.25
HHI
0.2
0.15
0.1
0.05
0
Quarter
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The average HHI of 0.1445 was because the 8.92% to 17.38%. The changes to AGR during
subscriber base was divided relatively equal the period are shown in Fig. 3.
among the industry. The large players throughout
the period were Airtel and Vodafone, The major players based on AGR – Airtel, Idea,
commanding a consistent subscriber base of and Vodafone, had a significant share of the
19% to 24% and 15% to 19%, respectively. subscriber base. This indicates a situation where
Reliance Communications had a market share of the smaller players were charging lower prices to
17% during the fourth quarter of 2008-09 and lost gain a higher subscriber share. Several
ground to end up at 9.57% by the first quarter of executives and experts in the media had
2016-17. Similarly, BSNL lost, and Idea gained addressed this situation as a “price war”. The
ground during the same period with their price war led to erosion of earnings for the
subscriber base from 19.01% to 9.73% and overall industry, as is evident by the trend of
9.05% to 16.59%, respectively. Aircel, Tata ARPU. Although the number of subscribers
Communications and the Indian arm of Telenor increased, the average revenue earned declined
were medium-sized players consistently during the period. This was due to a decline in
throughout the period. the price charged to the customers per minute
(average outgo per minute).
The average HHI of 0.3387 was because, unlike
the subscriber base, the AGR was not divided As can be seen in Fig. 5, despite an increase in
fairly equal among the industry. As opposed to the overall subscriber base and relative stability
four or five large players based on subscriber in the minutes of usage per subscriber, the
base, there were three large players each of ARPU and average outgo per minute fell from
whom had over 16% of the market size by Rs. 272.82 ($3.73) per user and Rs. 1.04
revenue. Airtel and Vodafone were consistently ($0.0146) per minute in the first quarter of 2007-
large, with Vodafone increasing their market 08 to Rs. 124.10 ($1.70) per user and Rs. 0.48
share from 16.43% to 20.06% during the period, ($0.0066) per minute in the last quarter of 2015-
while Airtel held its own with a fairly consistent 16. Due to capital input, the declining
average market share of 28.79%. BSNL lost out fundamentals of the industry, coupled with high
on its market share from a dominant 23.58% in debt service costs, put cash flow pressures on
the fourth quarter of 2008-09 to a middling 6.98% the companies. The intense competition to gain a
in the first quarter of 2016-17. Idea Cellular higher share of the subscriber base and all the
gained market share during the period from players’ delicate cash flow situation meant that
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the industry was ripe for consolidation. However, caved under the pressure of a behemoth of an
only four operators exited the industry during this upstart, Jio Infocomm (Previously Reliance Jio
period – operations of Spice Telecom were Infocomm).
merged with Idea Cellular. Etisalat DB and S-Tel
called it quits after the Honourable Supreme 4.2.2 2016 to 2020
Court cancelled all the telecom licenses issued to
it on the grounds of graft, and Loop’s assets and In February 2016, Reliance Industries Ltd (RIL)
operations were acquired by Airtel [30,31]. was India’s most profitable country and was
th
Further consolidation in the industry came after ranked 215 on the Fortune Global 500 list [32].
the resilient mid-sized and small-sized operators RIL, in 2013, controlled Infotel Broadband
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Services Ltd paid Rs. 1,658 crores towards opted to provide voice calls over IP, which would
obtaining a unified licence to enable them to drastically bring down the cost of providing
provide cellular services on any liberalised services. As mentioned before, the nature of the
spectrum [33]. This marked the beginning of the telecom industry is such that even a previously
disruptive behemoth, Jio Infocomm (Jio). In the net-debt free entity like RIL had a total debt of
financial years 2014-15, 2015-16 and 2016-17 Rs. 1.6 lakh crores ($21.88 billion) against cash
(till September 2016), Jio spent Rs. 1.12 lakh and cash equivalents of Rs. 84,472 crores
crores ($ 15.37 billion) on developing and ($11.55 billion) [34]. On September 2, 2016, the
deploying Fourth Generation cellular services pricing of services was revealed to the public. It
technology, and committed to pay Rs. 65,553 was revealed that Jio would offer 1GB of 4G data
crores ($8.96 billion) for acquiring spectrum at Rs. 50 ($0.68) and voice calls will be free for a
rights. Extract from the balance sheets of Jio is lifetime [35]. Not only were the significant
as follows Table 3. investments in technology and spectrum rights
backed by the cash-rich RIL, but the launch
On December 27 2015, Jio’s 4G services were pricing was also fueled by the cash generated by
officially unveiled to the world. The company the refining operations of RIL. The competitors of
Table 3. Non-Current Assets and Liabilities of Jio (all figures in crores rupees)
16-1716-1716-1716-1717-1817-1817-1817-1818-1918-19 18-1918-1919-2019-2019-2019-20
Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4
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Jio criticised them for subsidising the prices with suite of entertainment and utility apps. The
oil money in a bid to capture market share. telecom venture was, in essence, a data highway
However, the true disruption lay in the approach connecting the masses to the internet, and it was
of RIL. The launch of Jio was accompanied by a the services provided over the internet that would
push in the development of Reliance Retail and a be monetised [36].
35.00%
30.00%
25.00%
20.00%
15.00%
10.00%
5.00%
0.00%
16-17 17-18 18-19 19-20
45.00%
40.00%
35.00%
30.00%
25.00%
20.00%
15.00%
10.00%
5.00%
0.00%
-5.00% 16-17 17-18 18-19 19-20
Aircel Airtel BPL/Loop
BSNL Etisalat DB HFCL/Quadrant
Idea Jio MTNL
RCOM S Tel Spice
SSTL TATA Unitech/Telewings/Telenor
VI Videocon Vodafone
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0.45
0.4
0.35
0.3
0.25
HHI
0.2
0.15
0.1
0.05
0
16-17 16-17 17-18 17-18 17-18 17-18 18-19 18-19 18-19 18-19 19-20 19-20 19-20 19-20
Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4
Quarter
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APPENDIX
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