ࡱ> ;>89: xbjbjqq  ee&6^^T4   hy =! :t!##(##%4;(7)ÁŁŁŁŁŁŁP*Ł*%%**Ł##4ځ$&1&1&1*##]f&1*Á&1&1clg# $ct +d*I<:#ez(0zTgzg)")&1)*)))ŁŁ0R))):****z)))))))))^ g:  Public inquiry to make an access determination for the local bitstream access service Discussion paper February 2012  Commonwealth of Australia 2012 This work is copyright. Apart from any use permitted by the Copyright Act 1968, no part may be reproduced without prior written permission from the Commonwealth available through the Australian Competition and Consumer Commission. Requests and inquiries concerning reproduction and rights should be addressed to the Director Publishing, Australian Competition and Consumer Commission, GPO Box3131, Canberra ACT 2601. Contents  TOC \o "1-1" \h \z \u  HYPERLINK \l "_Toc317770365" Executive Summary  PAGEREF _Toc317770365 \h 1  HYPERLINK \l "_Toc317770366" 1 Introduction  PAGEREF _Toc317770366 \h 2  HYPERLINK \l "_Toc317770367" 2 Consultation process  PAGEREF _Toc317770367 \h 4  HYPERLINK \l "_Toc317770368" 3 Nature of services provided  PAGEREF _Toc317770368 \h 5  HYPERLINK \l "_Toc317770369" 4 Methodology for pricing LBAS  PAGEREF _Toc317770369 \h 6  HYPERLINK \l "_Toc317770370" 5 Duration of access determination  PAGEREF _Toc317770370 \h 7  HYPERLINK \l "_Toc317770371" 6 Non-price terms and conditions  PAGEREF _Toc317770371 \h 8  HYPERLINK \l "_Toc317770372" 7 Summary of questions on which the ԭ seeks views  PAGEREF _Toc317770372 \h 9  HYPERLINK \l "_Toc317770373" Appendix A: LBAS service description  PAGEREF _Toc317770373 \h 11  HYPERLINK \l "_Toc317770374" Appendix B: Legislative framework for access determinations  PAGEREF _Toc317770374 \h 12  Executive Summary This discussion paper commences the Australian Competition and Consumer Commissions (ԭ) public inquiry into making a final access determination (FAD) for the local bitstream access service (LBAS). Because the LBAS is a newly declared service, the ԭ does not currently have detailed information regarding the services being offered. This discussion paper is therefore preliminary in nature, focusing on the issues to be covered in the FAD and to seek information from industry regarding the services offered and the terms on which they are offered. The ԭ is required to declare a Layer 2 bitstream service (hereafter referred to as LBAS) by new provisions in the Competition and Consumer Act 2010 (CCA). The decision to declare the LBAS was made on 22 February 2012. The CCA also requires that the ԭ commence a public inquiry into making an FAD within 30 days after the decision to declare a service. An FAD sets base terms and conditions of access to a declared service. If an access seeker cannot agree with an access provider on terms and conditions of access, the access seeker can rely on the FAD. However, if the parties come to a commercial agreement, that agreement prevails over the FAD to the extent of any inconsistency. The ԭ is seeking submissions on the content of the FAD for the LBAS. Submissions will be accepted until 23 March 2012. The ԭ is seeking information on the following issues: the nature of the current services that may be captured by the LBAS declaration, particularly the location and extent of these services and the commercial terms and conditions under which they are supplied, the appropriate methodology for pricing the LBAS or suggested pricing for the LBAS, the appropriate regulatory period for the LBAS FAD, and the non-price terms and conditions that should be included in the LBAS FAD. Once the ԭ has considered any submissions that it receives, the ԭ will issue a draft FAD for further consultation with industry. At the end of this process, the ԭ will issue the final FAD. Introduction This discussion paper commences a public inquiry under Part 25 of the Telecommunications Act 1997 (Telco Act) into making a final access determination (FAD) under section 152BC of the Competition and Consumer Act (CCA) for the declared local bitstream access service (LBAS). The FAD will provide a base set of terms and conditions that access seekers can rely on if they are unable to come to a commercial agreement with an access provider for access to the LBAS. The paper seeks submissions on the content of the LBAS FAD, particularly on: price terms for access to the LBAS, and non-price terms for access to the LBAS. After considering submissions on the discussion paper, the Australian Competition and Consumer Commission (ԭ) will publish a draft FAD for public comment before making an FAD. This discussion paper marks the beginning of the ԭs inquiry into the terms and conditions on which the LBAS service is offered. As such, it is a preliminary document whose main purpose is to seek further information from industry. Legislative framework for final access determinations Under section 152BCI(1) the ԭ is required to commence a public inquiry into a proposal to make an access determination for any newly declared service. The public inquiry must commence within 30 days after the decision to declare the service is made. Pursuant to this requirement, this discussion paper commences a public inquiry under Part 25 of the Telco Act into making an FAD for the declared LBAS under section 152BC of the CCA. As indicated above, an FAD provides a base set of terms and conditions. If parties come to an agreement on terms and conditions of access, their access agreement will prevail over the FAD to the extent of any inconsistency. The ԭ must have regard to the criteria specified in subsection 152BCA(1) of the CCA when making an access determination. These criteria are: whether the determination will promote the long-term interests of end users (LTIE) of carriage services or services supplied by means of carriage services the legitimate business interests of a carrier or carriage service provider who supplies, or is capable of supplying, the declared service, and the carriers or providers investment in facilities used to supply the declared service the interests of all persons who have rights to use the declared service the direct costs of providing access to the declared service the value to a person of extensions, or enhancement of capability, whose cost is borne by someone else the operational and technical requirements necessary for the safe and reliable operation of a carriage service, a telecommunications network or a facility the economically efficient operation of a carriage service, a telecommunications network or a facility. The ԭ may also take into account any other matters that it thinks are relevant when making an FAD. Further detail on the new access regime and criteria for making FADs can be found in Appendix B of this discussion paper. Compliance with an FAD is both a carrier licence condition and a service provider rule. A breach of either a carrier licence condition or a service provider rule may lead to a pecuniary penalty of up to $10 million for each contravention. Private action to enforce an FAD may also be taken in the Federal Court. Background of the local bitstream access service The ԭ made the decision to declare the LBAS on 22 February 2012. The LBAS is a Layer 2 bitstream service and is declared under subsection 152AL(3) of the CCA. By declaring a service, the ԭ is able to regulate access to that service. A declared service is subject to the standard access obligations, which require that an access provider must: supply the service to an access seeker on request, ensure that the quality and fault handling of the service provided to the access seeker is equivalent to that which it provides itself, and allow interconnection. As part of the level playing field arrangements introduced into the CCA and the Telco Act by the Telecommunications Legislation Amendment (National Broadband Network Measures Access Arrangements) Act 2011 (NBN Access Arrangements Act), the ԭ is required to declare a Layer 2 bitstream service. The LBAS declaration will take effect when the relevant provisions of the NBN Access Arrangements Act commence. The latest date that these provisions may commence is 13 April 2012. The service description for the LBAS can be found in Appendix A. Further information regarding this service can be found in the ԭs Layer 2 bitstream service description: Final Report (February 2012) on the ԭs website. Consultation process The ԭ is required to commence a public inquiry into making an FAD within 30 days after declaring a service. Once a public inquiry has commenced, the ԭ must make a decision on making an FAD within six months. This period may be extend by a further six months if the ԭ explains the reasons for the extension. The ԭ requests written submissions to this discussion paper from interested parties before 5.00 pm on 23 March 2012. The ԭ encourages industry participants, other stakeholders and the general public to make submissions to the ԭ to assist it in determining an FAD for the LBAS. The ԭ invites submissions on the specific issues identified in this discussion paper, the statutory criteria the ԭ must apply under subsection 152BCA(1) of the CCA, and any other matters that respondents consider relevant. After considering submissions on the discussion paper, the ԭ will publish a draft FAD for public comment before making an FAD for the LBAS. To foster an open, informed and consultative process, all submissions will be considered as public submissions and will be posted on the ԭs website. If interested parties wish to submit commercial-in-confidence material as part of their submission to the ԭ, parties should submit both a public and commercial-in-confidence version of their submission. The public version of the submission should clearly identify the commercial-in-confidence material by replacing the confidential material with an appropriate symbol or c-i-c. The ԭ-AER information policy: the collection, use and disclosure of information sets out the general policy of the ԭ and the Australian Energy Regulator (AER) on the collection, use and disclosure of information. A copy of the guideline can be downloaded from the ԭ website:  HYPERLINK "http://www.accc.gov.au/content/index.phtml/itemId/846791" http://www.accc.gov.au/content/index.phtml/itemId/846791. The ԭ prefers to receive submissions in electronic form, either in PDF or Microsoft Word format, which allows the submission text to be searched. Please forward submissions to  HYPERLINK "mailto:accessdeterminations@accc.gov.au" accessdeterminations@accc.gov.au by 23March2012. For further information, please contact: Kathryn Wood Communications Group Australian Competition and Consumer Commission Email:  HYPERLINK "mailto:kathryn.wood@accc.gov.au" kathryn.wood@accc.gov.au Phone: (02) 9230 3895 Nature of services provided The ԭ has recently made the decision to declare the LBAS and published a service description for the service. The ԭ is required to declare a Layer 2 bitstream service, which it described as the local bitstream access service, by the new subsection 152AL(3C) of the CCA. Within 30 days after making the decision to declare the LBAS, the ԭ must commence a public inquiry into making an FAD. This section outlines the services that may be captured by the LBAS declaration and seeks submissions on the nature of services currently being provided. The declaration captures all Layer 2 bitstream services that will be offered in fulfilment of the new Parts 7 and 8 of the Telco Act, known as the level playing field provisions. Those parts require that providers of new fixed line networks that are capable of a transmission rate of 25 Megabits per second (Mbs) must supply a Layer 2 bitstream service and must only supply services at a wholesale level. These networks are known as designated superfast telecommunications networks. The level playing field legislation envisages that a network owner will sell access to its fixed line network (at Layer 2 of the OSI model) to retail service providers (RSPs) who will then sell products to end-users. The Explanatory Memorandum states that the level playing field provisions are designed: to ensure that other providers of superfast broadband networks in Australia can provide to consumers outcomes similar to those available on the NBN and ensure that NBN Co operates on a more level regulatory playing field to assist it to achieve the range of objectives for which it has been established. Because this is a newly declared service and the networks under consideration will have been built or upgraded after 1 January 2011, the ԭ seeks information from industry regarding the nature of the market for this service. Questions on which the ԭ seeks views: Which currently operational networks are designated superfast telecommunications networks under section 152AGA of the CCA? Who operates these networks? What types of access technologies are used in these networks? Fibre, hybrid fibre-coaxial (HFC), copper? How many customers do these designated superfast telecommunications networks serve? How many customers can they potentially serve? What geographic area do these designated superfast telecommunications networks serve? Do these networks currently (as at February 2012) offer wholesale access? If so, at what network layer and under what terms? On what terms do/did these networks offer retail services to end-users? Methodology for pricing LBAS This section outlines issues relating to the pricing of the LBAS. The CCA requires that an access determination contain terms and conditions relating to price or a method of ascertaining price. Because the LBAS is a new service, the ԭ has little information as to the current pricing of these types of services. The ԭ seeks submissions from interested parties on what is an appropriate pricing methodology for the LBAS. A possible price or a pricing methodology of the LBAS will need to be assessed against the criteria in subsection 152BCA(1) of the CCA. The criteria include, most relevantly for the consideration of pricing, whether the determination will promote the long-term interests of end-users, the legitimate business interests of the provider, and the direct costs of providing access. The criteria are described in further detail in Appendix B of this paper. Questions on which the ԭ seeks views: What are the access providers costs in providing the LBAS? Do costs vary depending on access medium, e.g. fibre vis a vis HFC? If so, should regulated prices vary between different access mediums? Do costs vary depending on the size and/or location of the designated superfast telecommunications network? If so should regulated prices vary depending on those factors? Current industry pricing structure As the LBAS is a new service, the ԭ does not have detailed information on the pricing structure that is used in the industry for this service or for any services such as wholesale fibre services. The ԭ is interested in the commercial arrangements of industry and the applicability of these arrangements to regulated pricing. Questions on which the ԭ seeks views: How are commercial prices for the LBAS or like services structured? Are these prices differentiated by port speed? By download quota? If so, how? Do these prices include any backhaul component? Do retail service providers need to purchase anything besides access to the customer access line to provide a customer with services? If so, what products need to be purchased and how are the commercial prices for these products structured? What are the charges that are meaningfully needed to use a service such as the LBAS? For example is it necessary to set: a connection charge, a monthly charge, a disconnection charge, or a churn charge? Which of the above charges needs to be regulated to ensure access to the LBAS? Which charges can be set by market forces? Pricing methodologies The ԭ considers that any pricing methodology of the LBAS needs to ensure that: the service provider is adequately compensated (neither over- nor under- compensated) the service is provided efficiently, and any regulated price is set efficiently. A key consideration in choosing a pricing methodology is what pricing methodology will create incentives for efficient investment in and use of infrastructure and at the same time promote competition. Historically this has involved choosing a pricing methodology that is cost based. In previous pricing processes, the ԭ has considered various different pricing methodologies, including: bottom-up forward-looking long-run incremental cost, such as a total service long-run incremental cost approach top-down forward-looking long-run incremental cost using historical accounting values for assets and making optimisation and efficiency adjustments where necessary fully allocated cost, where actual costs are allocated to particular services, benchmarking of prices international and domestic, and a building block cost model, where each cost category for the regulated business is added together to determine the businesss total revenue requirement. Because of the lack of detailed information regarding the LBAS at this stage and the fact that the service is newly declared, the ԭ seeks information regarding the most appropriate approach or methodology for determining prices for the LBAS. Questions on which the ԭ seeks views: Are any of the above pricing approaches appropriate for pricing the LBAS? What information would be required to implement such an approach? Is there a different pricing approach, not mentioned above, that would be more appropriate? What information would be required to implement such an approach? Duration of access determination Subsection 152BCF(5) of the CCA specifies that an access determination must have an expiry date. Because the LBAS declaration does not expire, it is not possible to align the expiry date of the access determination with the expiry of the declaration as envisaged by subsection 152BCF(6) of the CCA. The ԭ seeks submissions on the appropriate duration of the LBAS FAD. Factors that may influence the duration include: the need for regulatory certainty and the need for flexibility to adapt to a changing environment. Questions on which the ԭ seeks views: What is an appropriate duration for the LBAS FAD? Non-price terms and conditions In access determinations for other declared services the ԭ has included non-price terms and conditions. Those terms are based on the ԭs Model Non-Price Terms & Conditions Determination 2008 (2008 Model Terms). The 2008 Model Terms that could be considered for inclusion in an LBAS FAD cover the following areas: billing and notifications creditworthiness and security liability (risk allocation) general dispute resolution procedures confidentiality communication with end users network modernisation and upgrade suspension and termination facilities access The above list does not include all clauses from the 2008 Model Terms because some will not apply to the LBAS. The ԭ seeks submissions on which of the above non-price terms and conditions should be included in the LBAS FAD. It also seeks submissions on any other terms and conditions that should be included. Questions on which the ԭ seeks views: Which non-price terms and conditions from the 2008 Model Terms should be included in the LBAS FAD? Are there any modification to the 2008 Model Terms necessary to make them appropriate for inclusion in the LBAS FAD? If so, please include details. Are there any other non-price terms and conditions should be included in the LBAS FAD? If so, please include details. Summary of questions on which the ԭ seeks views Submissions should address the following matters: Which currently operational networks are designated superfast telecommunications networks under section 152AGA of the CCA? Who operates these networks? What types of access technologies are used in these networks? Fibre, hybrid fibre-coaxial, copper? How many customers do these designated superfast telecommunications networks serve? How many customers can they potentially serve? What geographic area do these designated superfast telecommunications networks serve? Do these networks currently (as at February 2012) offer wholesale access? If so, at what network layer and under what terms? On what terms do/did these networks offer retail services to end-users? What are the access providers costs in providing the LBAS? Do costs vary depending on access medium, e.g. fibre vs HFC? If so should regulated prices vary between different access mediums? Do costs vary depending on the size and/or location of the designated superfast telecommunications network? If so should regulated prices vary depending on those factors? How are commercial prices for the LBAS or like services structured? Are these prices differentiated by port speed? By download quota? If so, how? Do these prices include any backhaul component? Do retail service providers need to purchase anything besides access to the customer access line to provide a customer with services? If so, what products need to be purchased and how are the commercial prices for these products structured? What are the charges that are meaningfully needed to use a service such as the LBAS? For example is it necessary to set: a connection charge, a monthly charge, a disconnection charge, or a churn charge? Which of the above charges needs to be regulated to ensure access to the LBAS? Which charges can be set by market forces? Are any of the pricing approaches listed on pages 6 to 7 appropriate for pricing the LBAS? What information would be required to implement such an approach? Is there a different pricing approach, not mentioned above, that would be more appropriate? What information would be required to implement such an approach? What is an appropriate length for the regulatory period for the LBAS FAD? Which non-price terms and conditions from the 2008 Model Terms should be included in the LBAS FAD? Are there any modifications to the 2008 Model Terms necessary to make them appropriate for inclusion in the LBAS FAD? If so, please include details. Are there any other non-price terms and conditions should be included in the LBAS FAD? If so, please include details. Appendix A: LBAS service description The local bitstream access service is a point to point service for the carriage of communications in digital form between a network-network interface and a user-network interface supplied using a designated superfast telecommunications network that is: a Layer 2 bitstream service; and a superfast carriage service. This declaration does not apply to services supplied, or capable of being supplied: using a specified network; or using a specified local access line; or by a specified owner of a local access line; where that network, local access line or owner is the subject of a Ministerial exemption under section 141A or statutory exemption under subsection 141B(3) or 141B(4) of the Telecommunications Act and any conditions that apply to the exemption are satisfied. Definitions Where words or phrases used in this declaration are defined in the Competition and Consumer Act 2010 or the Telecommunications Act 1997, they have the meaning given in the relevant Act. Layer 2 bitstream service has the meaning given in section 152AC of the Competition and Consumer Act 2010 designated superfast telecommunications network has the meaning given in subsection 152AGA of the Competition and Consumer Act 2010 a network-network interface means an interface provided by an access provider at a point of interconnection where the access seekers telecommunications network can interface to the access providers designated superfast telecommunications network a point of interconnection is a physical point of interconnection which allows the interconnection of facilities in accordance with subsection 152AR(5) of the Competition and Consumer Act 2010 superfast carriage service has the meaning given in section 152AC of the Competition and Consumer Act 2010 a user-network interface means an interface located at a physically defined end-users premises where the access providers designated superfast telecommunications network is present to an end-user Appendix B: Legislative framework for access determinations The telecommunications access regime contained in Part XIC of the Competition and Consumer Act 2010 (CCA) was amended with effect from 1 January 2011 by the Telecommunications Legislation Amendment (Competition and Consumer Safeguards) Act 2010 (CACS Act). The amendments replace the previous negotiate/arbitrate framework with a range of different access mechanisms, including up-front access determinations. The new access regime enables the ԭ to set default price and non-price terms in access determinations. An access determination will only apply where there is no commercial agreement between the access seekers and access provider. The access determinations create a benchmark which access seekers can fall back on while still allowing parties to negotiate different terms. Access determinations can be interim or final. Where access determinations specify terms and conditions of access they must include terms and conditions relating to price (or a method of ascertaining a price) and may also contain non-price terms, although this is not compulsory. Compliance with access determinations is a carrier licence condition and a service provider rule. The access determinations do not apply to the extent they are inconsistent with various other instruments and agreements, including access agreements between parties. Public inquiry The access regime requires the ԭ to consider making access determinations for all declared services. For a newly declared service, the ԭ must commence a public inquiry into making an access determination within 30 days after the declaration is made. The ԭ must make an FAD within 6 months of commencing a public inquiry. The ԭ can extend the time frame for making an FAD by up to 6 months. Content of access determinations Section 152BC of the CCA specifies what an access determination may contain. These include, among other things, terms and conditions on which a carrier or carriage service provider (CSP) is to comply with the standard access obligations provided for in the CCA and terms and conditions of access to a declared service. Access determinations can make different provisions with respect to different access providers or access seekers. Fixed principles provisions An access determination may contain a fixed principles provision, which allows a provision in an access determination to have an expiry date after the expiry date of the access determination. Such a provision would allow the ԭ to lock in a term so that it would be consistent across multiple access determinations. Varying an access determination Section 152BCN allows the ԭ to vary or revoke an access determination. A fixed principles provision cannot be varied or removed unless the access determination sets out the circumstances in which the provision can be varied or removed, and those circumstances are present. Commencement and expiry provisions Section 152BCF of the CCA sets out the commencement and expiry rules for access determinations. An access determination must have an expiry date. Criteria to consider when making an access determination The ԭ must have regard to the criteria specified in subsection 152BCA(1) of the CCA when making an access determination. These criteria are: whether the determination will promote the long-term interests of end users (LTIE) of carriage services or services supplied by means of carriage services the legitimate business interests of a carrier or carriage service provider who supplies, or is capable of supplying, the declared service, and the carriers or providers investment in facilities used to supply the declared service the interests of all persons who have rights to use the declared service the direct costs of providing access to the declared service the value to a person of extensions, or enhancement of capability, whose cost is borne by someone else the operational and technical requirements necessary for the safe and reliable operation of a carriage service, a telecommunications network or a facility the economically efficient operation of a carriage service, a telecommunications network or a facility. The subsection 152BCA(1) criteria mirror the repealed section 152CR(1) criteria that the ԭ was required to take into account in making a final determination in an access dispute. The ԭ intends to interpret the subsection 152BCA(1) criteria in a similar manner to that used in access disputes. Subsection 152BCA(2) sets out other matters that the ԭ may take into account in making access determinations. Subsection 152BCA(3) allows the ԭ to take into account any other matters that it thinks are relevant. The ԭs initial views on how the legislative criteria in section 152BCA should be interpreted for the access determination process are set out below. Paragraph 152BCA(1)(a) The first criterion for the ԭ to consider when making an access determination is whether the determination will promote the long-term interests of end users of carriage services or of services supplied by means of carriage services. The ԭ has previously published a guideline explaining what it understands by the phrase long-term interests of end users in the context of its declaration responsibilities. This approach to the LTIE was also used by the ԭ in making determinations in access disputes. The ԭ considers that the same interpretation is appropriate for making an access determination for the LBAS. In the ԭs view, particular terms and conditions promote the interests of end users if they are likely to contribute towards the provision of: goods and services at lower prices goods and services of a high quality, and/or a greater diversity of goods and services. The ԭ also notes that the Australian Competition Tribunal (Tribunal) has offered guidance in its interpretation of the phrase long-term interests of end users (in the context of access to subscription television services): Having regard to the legislation, as well as the guidance provided by the Explanatory Memorandum, it is necessary to take the following matters into account when applying the touchstone the long-term interests of end users: *End users: end users include actual and potential [users of the service] *Interests: the interests of the end users lie in obtaining lower prices (than would otherwise be the case), increased quality of service and increased diversity and scope in product offerings. [T]his would include access to innovations in a quicker timeframe than would otherwise be the case *Long-term: the long-term will be the period over which the full effects of the decision will be felt. This means some years, being sufficient time for all players (being existing and potential competitors at the various functional stages of the industry) to adjust to the outcome, make investment decisions and implement growth as well as entry and/or exit strategies. To consider the likely impact of particular terms and conditions on the LTIE, the CCA requires the ԭ to have regard to whether the terms and conditions are likely to result in: promoting competition in markets for carriage services and services supplied by means of carriage services achieving any-to-any connectivity, and encouraging the economically efficient use of, and economically efficient investment in: the infrastructure by which listed carriage services are supplied, and any other infrastructure by which listed services are, or are likely to become, capable of being supplied. Promoting competition In assessing whether particular terms and conditions will promote competition, the ԭ will analyse the relevant markets to which the declared service is an input and consider whether the terms set in those markets remove obstacles to end users gaining access to carriage services and services supplied by means of carriage services. Obstacles to accessing these services include the price, quality and availability of the services and the ability of competing providers to provide telephony and broadband services. The ԭ is not required to precisely define the scope of the relevant markets in which the declared services are supplied. The ԭ considers that it is sufficient to broadly identify the scope of the relevant markets likely to be affected by the ԭs regulatory decision. The ԭs view is that the relevant markets for the purpose of making an access determination for the LBAS are: the market for the wholesale supply of Layer 2 bitstream services, and the market for the wholesale and retail supply of Layer 3 bitstream services. Any-to-any connectivity The CCA gives guidance on how the objective of any-to-any connectivity is achieved. It is achieved only if each end user who is supplied with a carriage service that involves communication between end users is able to communicate, by means of that service, with each other end user who is supplied with the same service or a similar service. This must be the case whether or not the end users are connected to the same telecommunications network. The ԭ considers that this criterion is relevant to ensuring that the terms and conditions contained in FADs do not create obstacles for the achievement of any-to-any connectivity. Efficient use of and investment in infrastructure In determining the extent to which terms and conditions are likely to encourage the economically efficient use of and investment in infrastructure, the ԭ must have regard to: whether it is, or is likely to become, technically feasible for the services to be supplied and charged for, having regard to: the technology that is in use, available or likely to become available whether the costs involved in supplying and charging for, the services are reasonable or likely to become reasonable, and the effects or likely effects that supplying and charging for the services would have on the operation or performance of telecommunications networks the legitimate commercial interests of the supplier or suppliers of the services, including the ability of the supplier or suppliers to exploit economies of scale and scope incentives for investment in the infrastructure by which services are supplied; and any other infrastructure (for example, the NBN) by which services are, or are likely to become, capable of being supplied, and the risks involved in making that investment. The objective of encouraging the economically efficient use of, and economically efficient investment in ... infrastructure requires an understanding of the concept of economic efficiency. Economic efficiency consists of three components: productive efficiency this is achieved where individual firms produce the goods and services that they offer at least cost allocative efficiency this is achieved where the prices of resources reflect their underlying costs so that resources are then allocated to their highest valued uses (i.e.those that provide the greatest benefit relative to costs) dynamic efficiency this reflects the need for industries to make timely changes to technology and products in response to changes in consumer tastes and in productive opportunities. On the issue of efficient investment, the Tribunal has stated that: An access charge should be one that just allows an access provider to recover the costs of efficient investment in the infrastructure necessary to provide the declared service. efficient investment by both access providers and access seekers would be expected to be encouraged in circumstances where access charges were set to ensure recovery of the efficient costs of investment (inclusive of a normal return on investment) by the access provider in the infrastructure necessary to provide the declared service. access charges can create an incentive for access providers to seek productive and dynamic efficiencies if access charges are set having regard to the efficient costs of providing access to a declared service. Paragraph 152BCA(1)(b) The second criterion requires the ԭ to consider the legitimate business interests of the carrier or provider when making an FAD. In the context of access disputes, the ԭ considered that it was in the access providers legitimate business interests to earn a normal commercial return on its investment. The ԭ is of the view that the concept of legitimate business interests in relation to FADs should be interpreted in a similar manner, consistent with the phrase legitimate commercial interests used elsewhere in Part XIC of the CCA. For completeness, the ԭ notes that it would be in the access providers legitimate business interests to seek to recover its costs as well as a normal commercial return on investment having regard to the relevant risk involved. However, an access price should not be inflated to recover any profits the access provider (or any other party) may lose in a dependent market as a result of the provision of access. The Tribunal has taken a similar view of the expression legitimate business interests. Paragraph 152BCA(1)(c) The third criterion requires the ԭ to consider the interests of all persons who have the right to use the service when making an FAD. The ԭ considers that this criterion requires it to have regard to the interests of access seekers. The Tribunal has also taken this approach. The access seekers' interests would not be served by higher access prices to declared services, as it would inhibit their ability to compete with the access provider in the provision of retail services. People who have rights to currently use a declared service will generally use that service as an input to supply carriage services, or a service supplied by means of carriage service, to end users. The ԭ considers that this class of persons has an interest in being able to compete for the custom of end users on the basis of their relative merits. This could be prevented from occurring if terms and conditions of access favour one or more service providers over others, thereby distorting the competitive process. However, the ԭ does not consider that this criterion calls for consideration to be given to the interests of the users of these downstream services. The interests of end users will already be considered under other criteria. Paragraph 152BCA(1)(d) The fourth criterion requires that the ԭ consider the direct costs of providing access to the declared service when making an FAD. The ԭ considers that the direct costs of providing access to a declared service are those incurred (or caused) by the provision of access, and includes the incremental costs of providing access. The ԭ interprets this criterion, and the use of the term direct costs, as allowing consideration to be given to a contribution to indirect costs. This is consistent with the Tribunals approach in an undertaking decision. A contribution to such apportioned costs can also be supported by other criteria. However, the criterion does not extend to compensation for loss of any monopoly profit that occurs as a result of increased competition. The ԭ also notes that the Tribunal (in another undertaking decision) considered the direct costs criterion is concerned with ensuring that the costs of providing the service are recovered. The Tribunal has also noted that the direct costs could conceivably be allocated (and hence recovered) in a number of ways and that adopting any of those approaches would be consistent with this criterion. Paragraph 152BCA(1)(e) The fifth criterion requires that the ԭ consider the value to a party of extensions, or enhancements of capability, whose cost is borne by someone else when making an FAD. In the 1997 Access Pricing Principles, the ԭ stated: This criterion requires that if an access seeker enhances the facility to provide the required services, the access provider should not attempt to recover for themselves any costs related to this enhancement. Equally, if the access provider must enhance the facility to provide the service, it is legitimate for the access provider to incorporate some proportion of the cost of doing so in the access price. The ԭ considers that this application of paragraph 152BCA(1)(e) is relevant to making FADs. Paragraph 152BCA(1)(f) The sixth criterion requires the ԭ to consider the operational and technical requirements necessary for the safe and reliable operation of a carriage service, a telecommunications network or a facility when making an FAD. The ԭ considers that this criterion requires that terms of access should not compromise the safety or reliability of carriage services and associated networks or facilities, and that this has direct relevance when specifying technical requirements or standards to be followed. The ԭ has previously stated in the context of model non-price terms and conditions, it is of the view that: this consideration supports the view that model terms and conditions should reflect the safe and reliable operation of a carriage service, telecommunications network or facility. For instance, the model non-price terms and conditions should not require work practices that would be likely to compromise safety or reliability. The ԭ considers that these views will apply in relation to the paragraph 152BCA(1)(f) criterion for the making of FADs. Paragraph 152BCA(1)(g) The final criterion of subsection 152BCA(1) of the CCA requires the ԭ to consider the economically efficient operation of a carriage service, a telecommunications network facility or a facility when making an FAD. The ԭ noted in the Access Dispute Guidelines (in the context of arbitrations) that the phrase economically efficient operation embodies the concept of economic efficiency as discussed earlier under the LTIE. That is, it calls for a consideration of productive, allocative and dynamic efficiency. The Access Dispute Guidelines also note that in the context of a determination, the ԭ may consider whether particular terms and conditions enable a carriage service, telecommunications network or facility to be operated efficiently. Consistent with the approach adopted by the Tribunal in considering an undertaking, the ԭ considers that in applying this criterion, it is relevant to consider the economically efficient operation of: retail services provided by access seekers using the access providers services or by the access provider in competition with those access seekers, and the telecommunications networks and infrastructure used to supply these services. Subsection 152BCA(2) Subsection 152BCA(2) of the CCA provides that, in making an access determination that applies to a carrier or carriage service provider who supplies, or is capable of supplying, the declared services, the ԭ may, if the carrier or provider supplies one or more eligible services, take into account: the characteristics of those other eligible services the costs associated with those other eligible services the revenues associated with those other eligible services, and the demand for those other eligible services. The Explanatory Memorandum states that this provision is intended to ensure that the ԭ, in making an access determination, does not consider the declared service in isolation, but also considers other relevant services. As an example, the Explanatory Memorandum states: when specifying the access price for a declared service which is supplied by an access provider over a particular network or facility, the ԭ can take into account not only the access providers costs and revenues associated with the declared service, but also the costs and revenues associated with other services supplied over that network or facility. Subsection 152BCA(3) This subsection states the ԭ may take into account any other matters that it thinks are relevant when making an FAD.  Subsection 152AL(3C) of the CCA. Note that references to the CCA are references to those acts as amended by the Telecommunications Legislation Amendment (National Broadband Network Measures Access Arrangements) Act 2011.  Subsection 152BCI(1) of the CCA.  Section 152BCC of the CCA.  Subsection 152BCA(3) of the CCA.  Sections 152BCO and 152BCP of the CCA.  Section 570 of the Telco Act.  Section 152BCQ of the CCA.  Section 152AR of the CCA.  Subsection 152AL(3C) of the CCA. Note that references to the Telco Act and the CCA are references to those acts as amended by the Telecommunications Legislation Amendment (National Broadband Network Measures Access Arrangements) Act 2011.  See:  HYPERLINK "http://www.accc.gov.au/content/index.phtml/itemId/1002378" http://www.accc.gov.au/content/index.phtml/itemId/1002378.  Subsection 152BCI(1) of the CCA.  Section 152BCK of the CCA.  Subsection 152AL(3C) of the CCA was inserted by the Telecommunications Legislation Amendment (National Broadband Network Measures Access Arrangements) Act 2011. Subsection 152AL(3C) will commence on 13 April 2012 at the latest.  New refers to networks that are built or upgraded after 1 January 2011 so that they are capable of a transmission rate of 25 Mbs, see sections 141 and 143 of the Telco Act.  See section 152AGA of the CCA.  Revised Explanatory Memorandum, Telecommunications Legislation Amendment (National Broadband Network Measures Access Arrangements) Bill 2011, p. 166.  Subsection 152BC(8) of the CCA.  See: ԭ, Domestic Transmission Capacity Service: An ԭ Discussion Paper reviewing pricing of the domestic transmission capacity service, April 2010; ԭ, Review of the 1997 telecommunications access pricing principles for fixed line services: Draft report, September 2010; ԭ, Domestic Mobile Terminating Access Service (MTAS): Public Inquiry to make an Access Determination: Discussion Paper, June 2011.  These access determinations can be found on the Register of Access Determinations on the ԭ website:  HYPERLINK "http://www.accc.gov.au/content/index.phtml/itemId/971651" http://www.accc.gov.au/content/index.phtml/itemId/971651.  The 2008 Model Terms can be found on the ԭs website at: http://www.accc.gov.au/content/index.phtml?itemId=849788.  Subsection 152BC(3) of the CCA.  Sections 152BCO and 152BCP of the CCA.  Section 152BCC of the CCA.  Subsection152BCI(1) of the CCA.  Subsections 152BCK(2) and (3) of the CCA.  Subsection 152BC(5) of the CCA.  Subsection 152BCD of the CCA.  Subsection 152BCN(4) of the CCA.  Subsection 152BCF(5) of the CCA.  ԭ, Telecommunications services declaration provisions: a guide to the declaration provisions of Part XIC of the Trade Practices Act, July 1999, in particular pp. 31-38.  ibid., p. 33.  Seven Network Limited (No 4) [2004] ACompT 11 at [120].  Subsection 152AB(2) of the CCA.  Subsection 152AB(4) of the CCA. This approach is consistent with the approach adopted by the Tribunal in Telstra Corporations Limited (No 3) [2007] A CompT 3 at [92]; Telstra Corporation Limited [2006] A CompT at [97], [149].  Subsection 152AB(8) of the CCA.  Subsections 152AB(6) and (7A) of the CCA.  Telstra Corporation Ltd (No. 3) [2007] ACompT 3 at [159].  ibid. at [164].  ibid.  ԭ, Resolution of telecommunications access disputes a guide, March 2004 (revised) (Access Dispute Guidelines), p. 56.  ԭ, Access pricing principlestelecommunications, July 1997 (1997 Access Pricing Principles), p. 9.  Telstra Corporation Limited [2006] ACompT 4 at [89].  Telstra Corporation Limited [2006] ACompT 4 at [91].  ibid.  ibid.  Application by Optus Mobile Pty Limited and Optus Networks Pty Limited [2006] ACompT 8 at [137].  See Explanatory Memorandum for the Trade Practices Amendment (Telecommunications) Bill 1996, p. 44: [T]he direct costs of providing access are intended to preclude arguments that the provider should be reimbursed by the third party seeking access for consequential costs which the provider may incur as a result of increased competition in an upstream or downstream market.  Telstra Corporation Limited [2006] ACompT 4 at [92].  ibid. at [139].  1997 Access Pricing Principles, p. 11.  ԭ, Final determination Model Non-price Terms and Conditions, November 2008, p. 8.  Access Dispute Guidelines, p. 57.  Telstra Corporation Limited [2006] ACompT 4 at [94]-[95].  Eligible service has the same meaning as in section 152AL of the CCA.  Explanatory Memorandum, Telecommunications Legislation Amendment (Competition and Consumer Safeguards) Bill 2010, p. 178.  ibid.      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