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© Frontier Economics Pty \ Ltd., Melbourne Telstra’s applications for WLR and LCS exemptions A REPORT PREPARED FOR THE COMPETITIVE CARRIERS COALITION October 2007 NON-CONFIDENTIAL VERSION i Frontier Economics | October 2007 | Public version Co\ ntents 07-10-30 Final Rep WRD public Telstra’s applications for WLR and LCS exemptions Executive summary....................................................................................... i 1 Introduction ........................\ ................................................................. 1 1.1 CCC request..................................................................................................1 1.2 The Exemption process.......................................\ .......................................1 1.3 Background to the Exemption Issues.......................................................1 1.4 Two key questions .......................................................................................3&\ #13;1.5 This report ....................................................................................................3 2 Enduring bottlenecks and principles of access regulation..................5 2.1 Enduring bottlenecks ......................\ ............................................................5 2.2 Enduring bottlenecks and deregulatory thresholds ................................6 2.3 Conclusions ..................................................................................\ ................9 3 Will competition be effective in retail markets if exemptions are granted? .............................................................................................. 10 3.1 Defining relevant retail and wholesale markets\ .....................................10 3.2 Competition in the relevant retail markets.............................................11 3.3 The Path to effective retail competition.................................................12 3.4 The effec\ t of the declaration on competition in retail markets...........14 3.5 Conclusions ................................................................................................22 4 Will granting the exemptions promote efficient investment? ....\ .......23 4.1 Efficient use and efficient investment ....................................................23 4.2 Investment in existing LCS and WLR infrastructure ...........................23 4.3 Investment in new WLR and LCS infrastructure ..\ ...............................26 4.4 Conclusions ................................................................................................27 Annex – Deregulatory rules adopted in other jurisdictions........................29 UK \(\ Ofcom\) .........................................................................................................29 Canada \(CRTC\) ....................................................................................................30 ii Frontier \ Economics | October 2007 | Public version Tables & figures ii Telstra’s applications for WLR and LCS exemptions Figure 1: Truncation of returns - risky investment ...................................................25 Figure 2\ : Truncation of returns - less risky investment ............................................25 i Frontier Economics | October 2007 | Public version Executive summary Executive summary 1 In July 2007, Telstra applied for individual exemptio\ ns from the standard access obligations relating to the supply of two services: the local carriage service \(LCS\) and wholesale line rental \(WLR\) in 371 exchange service areas \(ESAs\) in metropolitan Australia. 2 Frontier Economics has\ been asked by the Competitive Carriers’ Coalition \(CCC\) to provide its views to the Australian Competition and Consumer Commission \(the Commission\) on Telstra’s application for the exemptions. 3 The criteria for whether the ex\ emptions should be granted relate to whether the exemptions will promote the long-term interests of end-users \(LTIE\). The LTIE is a somewhat imprecise objective, but is given more substance by specified subcriteria relating to the promotion \ of competition, and efficient use of, and investment in, infrastructure by which the WLR and LCS and downstream services are supplied. 4 Two particular issues were identified by the Commission as being critical to the outcome of the exempt\ ion application: whether competition in markets downstream of the wholesale WLR and LCS services would be effectively competitive in the absence of declaration; and whether maintaining the declaration would discourage further investment at&#\ 13;local exchanges, thus denying consumers the benefits of quasi-infrastructure competition. 5 Aside from these issues, there is also an overarching issue as to how these exemption applications fit within the Commission’s expressed desir\ e to regulate ‘enduring bottlenecks’ – on the basis that regulating these services, and these services only, is likely to be in the LTIE. 6 In our report, we address the issue of enduring bottlenecks first. We find this a \ ;useful criterion in theory, but one that is difficult to apply in practice. Entrybased rules are one way to implement such a criterion – on the basis that where there is entry, bottlenecks are unlikely to persist – but in the current&\ #13;environment, it is also necessary to take into account additional criteria to determine whether the entry-based rule proposed by Telstra would be in the LTIE. 7 We next consider the effectiveness of competition in downstream markets that&#\ 13;use WLR and LCS as inputs, assuming that the exemption order was granted. We find that competition for supply of retail fixed voice services has developed on a national basis, but that competition at the wholesale or quasi-infrastructure-based&\ #13;level will potentially become more differentiated by exchange area. Regardless of the specific market definition adopted, and on the basis of a counterfactual in which Telstra either increases prices or refuses supply of WLR and LCS, our v\ iew is that granting the exemption will likely increase the difficulty of providing retail fixed voice services in the exemption areas. The barriers to effective competition are likely to include: ii Frontier Economics | October 2007 | Public \ version Executive summary difficulties in self-supplying WLR and LCS services, such as: • achieving minimum efficient scale at the exchange level using ULLS and traditional voice switching, or ULLS and VoIP; • quality and \ customer perception issues with VoIP as a complete PSTN replacement; • other non-price impediments to switching between wholesale products and the ULLS, including issues of migration processes and timely access to exchanges; and \ the lack of well-developed wholesale markets for WLR and LCS services in the exemption areas. 8 It is arguable that some of these barriers are of a transitory nature. While that is possible, we find that it would be premature to grant the exe\ mption prior to clearer evidence that these barriers are being overcome. 9 Finally, we find there is little evidence to suggest that ongoing declaration of WLR and LCS services in the proposed exemption areas would be detrimental to invest\ ment. Pricing regulation of these services is relatively benign, being based on retail-minus principles, while upstream inputs \(by which substitute services can be developed\) are cost-based. This means there is little burden on Telstra from \ the regulation being in place, but also that the access seekers’ move off these wholesale services will make it readily apparent when the declaration is irrelevant. In any event, we argue that in light of overarching investment issues re\ lating to next generation access networks, in would be unwise to assume that granting the exemptions would increase investment. 1 Frontier Economics | October 2007 | Public version Introduction 1 Introduction 1.1 CCC REQUEST 10 Fro\ ntier Economics has been engaged by the Competitive Carriers’ Coalition \(CCC\) to provide a report for the Australian Competition and Consumer Commission \(the Commission\) on the exemption applications recently filed by Telstra in rela\ tion to wholesale WLR and LCS services. 11 In particular, the CCC has asked Frontier to address the key questions in the ԭ’s discussion paper, as well as any points that are pertinent to the exemption process. 1.2 THE EXEMPTION PR\ OCESS 12 The Commission has received an application from Telstra for individual exemptions from the standard access obligations under section 152AT of the Trade Practices Act 1974 \(TPA\). The exemptions relate to the supply of two service\ s: the LCS and WLR in 371 exchange service areas \(ESAs\) in metropolitan Australia. 13 The process for review of the exemption applications is straightforward - the Commission must not make such a determination unless it believes that grantin\ g the exemption order will promote the long-term interests of end-users \(LTIE\) as defined in section 152AB of the TPA. In considering whether a thing promotes the LTIE: “…regard must be had to the extent to which the thing is\ likely to result in the achievement of the following objectives: \(a\) the objective of promoting competition in markets for listed services; \(b\) the objective of achieving any-to-any connectivity in relation to carriage services that i\ nvolve communication between end-users; \(c\) the objective of encouraging the economically efficient use of, and the economically efficient investment in: \(i\) the infrastructure by which listed services are supplied; and \(ii\) any othe\ r infrastructure by which listed services are, or are likely to become, capable of being supplied.” \(S152AB\) 14 An exemption order may be unconditional or subject to such conditions or limitations as are specified in the order. 1.3\ BACKGROUND TO THE EXEMPTION ISSUES 15 The exemption applications must be viewed within the context of a wide range of ongoing regulatory work at the Commission. 16 The LCS and WLR services were declared by the Commission in July 2006 as p\ art of its Local services review. The LCS had previously been declared by the 2 Frontier Economics | October 2007 | Public version Introduction Commission in July 1999 as part of its inquiry into local telecommunications services. 17 I\ n the Local services review, the Commission considered that declaration of both services would be likely to promote the LTIE by both promoting competition and encouraging the economically efficient use of and investment in infrastructure. In r\ eaching this view, the Commission noted that, outside of CBD areas, there were no widespread effective substitutes for either service, with implications at both the wholesale and retail level. 18 In April 2007, the Commission released a second\ position paper in its ongoing Fixed services review. The primary purpose of the position paper was to outline a robust framework for the review of existing service declarations, including WLR and LCS as well as ULLS and LSS. 19 In the sec\ ond position paper, the Commission considered that ex ante access regulation under Part XIC should focus on those elements of the fixed-line network that continue to represent ‘enduring bottlenecks’. The Commission considered that \ an enduring bottleneck would generally refer to a network element or facility that exhibits natural monopoly characteristics and is ‘essential’ to providing services to end-users in downstream markets in a way that promotes the LTI\ E. 20 Where an enduring bottleneck does not persist, the Commission stated that it will be inclined to progressively withdraw ex ante access regulation where it is confident that declaration is not required to promote the LTIE. 21 Particul\ arly relevant to the exemption applications, the Commission’s stated approach was “based on the principle that, where it is economically efficient, facilities-based competition is more likely to promote the LTIE”. The Commiss\ ion further noted that its proposed approach was: … also based on the principle that, for services or network elements which are not enduring bottlenecks, competitors that do not wish to invest in their own infrastructure will, more than\ likely, have the opportunity to enter into commercially negotiated arrangements for access with third parties \(or the incumbent\) without the need for ex ante regulatory intervention. In this regard, the withdrawal of access regulation at ce\ rtain network layers does not necessarily suggest that these forms of competition will cease, or that their price will necessarily be raised excessively by the access provider. Rather, it is recognition that ex ante regulation is no longer req\ uired to ensure that these services are competitively priced at or near their underlying costs. 22 In its second position paper, the Commission also flagged its intention to conduct a comprehensive review of fixed service declarations \(includ\ ing WLR and LCS\) commencing in mid-2008. 23 Telstra has now pre-empted the Commission by applying for individual exemptions from all access obligations \(SAOs\) for the LCS and WLR declared services in 371 ESAs. Telstra has chosen the ESA\ s in the proposed exemption area based on the presence of competing infrastructure and, in particular, the presence of DSLAM-based infrastructure by Telstra’s competitors. Each ESA in 3 Frontier Economics | October 2007 | Public version&\ #13;Introduction the proposed exemption area has at least one DSLAM deployed by a competitor of Telstra. 24 The Commission notes that “the second position paper…clearly provides relevant guidance for the ԭ’s considerat\ ion of Telstra’s exemption applications” \(Discussion paper, p. 11\). 1.4 TWO KEY QUESTIONS 25 The Commission has indicated in its discussion paper that, in assessing the exemption applications under the LTIE criteria, it will \ take particular account of responses to two questions: Without the declared LCS and WLR, will competition be effective in downstream retail markets? How will granting the exemptions affect the incentives for rollout of infrastructure\ , such as DSLAMs, by telecommunications companies? 1.5 THIS REPORT 26 In this report, we address the question of whether granting the exemptions would be in the long-term interests of end-users \(LTIE\). 27 In section 2, we consider the is\ sue of enduring bottlenecks, and to what extent access to infrastructure used to provide WLR and LCS services is likely to be an enduring bottleneck. 28 In section 3, we focus on whether granting the exemption will be likely to promote com\ petition in markets for retail telephony services. 29 In section 4, we discuss whether granting the exemption will be likely to lead to more roll-out of infrastructure, and more efficient investment in infrastructure. 5 Frontier Economics\ | October 2007 | Public version Enduring bottlenecks and principles of access regulation 2 Enduring bottlenecks and principles of access regulation 2.1 ENDURING BOTTLENECKS 30 In its recent work, the Commission has indicated that it w\ ants to focus access regulation on enduring bottlenecks. 31 For example, in its most recent statement on the regulation of fixed-line services, it expresses the view that: “ex ante regulation under Part XIC of the Act should focus on\ those elements of the fixed line network that continue to represent ‘enduring bottlenecks’.” \(p. ii\) 32 The reason for this view is that the Commission considers that facilities-based competition is more likely to promote \ the LTIE, where that facilities-based competition is efficient. By this it means that duplication of network elements should be encouraged where the competitive gains from duplication outweigh any loss of technical or allocative efficiency.\ 3;33 For services that are not enduring bottlenecks, the Commission’s view is that competitors that do not wish to invest in their own infrastructure will, more than likely, have the opportunity to enter into commercially negotiated arrangem\ ents for access with third parties \(or the incumbent\) without the need for ex ante regulatory intervention. 34 The Commission’s position here seems consistent with good regulatory practice. Having said that, the concept lacks pract\ ical meaning in many circumstances, as whether a bottleneck may be ‘enduring’ is subject to significant uncertainty and change. 35 There are two inter-related sources of change – the timeframe over which one views the bot\ tleneck, and the rapidity of technological progress. While it is possible to have some concept of likely developments in fixed and other networks within the next 5 years, it becomes significantly more difficult to predict to what extent any te\ lecommunications infrastructure could be declared an enduring bottleneck. 36 We have recently seen such a shifting of the prevailing paradigm. Few would have thought when the ULLS was first declared in 1999 that parts of the copper access \ network could become redundant within 6-7 years \(as it indeed would have if Telstra had gone ahead with its Fibre-to-the-node plans\). 37 Under an FTTN network, what part of the service would be the bottleneck is not clear. It may well be the\ connection between the premises and the node \(rather than the local exchange\). However, if it would be uneconomic or technically infeasible to provide services at the sub-loop level – as appears likely – then the enduring bottle\ neck may actually revert to a higher level service which is accessed at the local exchange \(or other aggregation point\), such as bitstream access and WLR / LCS equivalents. 6 Frontier Economics | October 2007 | Public version Enduring bo\ ttlenecks and principles of access regulation 38 The Commission states that the major bottleneck has been, and will likely continue to be, Telstra’s CAN.1 In stating that, it does not necessarily suggest that unbundled access to the CAN \ should be the only declared fixed service. The Commission notes in the discussion paper that: “…in areas where there is evidence of quasi-facilities based competition, or the potential for substainable and efficient quasi-facilties\ based competition, the main question for review is whether regulated re-sale based services are require to promote the LTIE.” \(p. 17, quoting from the April 2007 FSR position paper\) 39 That view is also shared by other regulators. For\ example, Ofcom shares the Commission’s view that access regulation should be focused on ‘enduring bottlenecks’ but mandates access to a WLR product.2 40 It should also be noted that a focus on bottlenecks also implies that t\ he Commission should consider regulating bottlenecks that are not currently declared. For example, it is apparent that where there is no ULL-based entry either present or reasonably likely to emerge \(e.g. lower density exchanges in bands \ 3 and 4\), then the enduring bottleneck is likely to be wholesale ADSL services and WLR / LCS services. This is not simply a matter of comparing the benefits from service-based competition with the cost of regulation. It is also important to n\ ote that the benefits that service-based competition can deliver are not limited to the particular geographic region. Often, services are provided \(particularly to business customers\) across regions on a ‘whole-of-business’ basis,\ 3;so that bottleneck control in certain regions can be used to foreclose competitors that do not have the same ubiquity of coverage. 41 The conclusion we draw from this is that while the basic focus on enduring bottlenecks makes sense, it does\ not necessarily lead to easy answers as to what to regulate, or what not to regulate. 2.2 ENDURING BOTTLENECKS AND DEREGULATORY THRESHOLDS 42 One of the main issues in Telstra’s application for exemptions is the use of a competi\ tive-entry based rule as a proxy for where there is no longer an enduring bottleneck, and hence that competitive conditions are such that Part XIC access regulation is no longer required. In this section, we outline Telstra’s proposed ru\ le and comment on whether it is likely to be adequate as a deregulatory threshold. 2.2.1 Telstra’s proposal 43 Telstra’s view is that enduring bottlenecks no longer exist when there is a competitive entrant. That view is based \ on the notion that a bottleneck occurs 1 ԭ, Fixed Services Review – A second position paper, April 2007, pp. 21-22. 2 See Ofcom’s Strategic Review Statement, http://www.ofcom.org.uk/consult/condocs/telecoms_p2/statement/ 7 F\ rontier Economics | October 2007 | Public version Enduring bottlenecks and principles of access regulation where only one firm controls an important input, and where there is duplication, this must demonstrate a lack of material barriers to en\ try.3 44 In that light, in its exemption application Telstra effectively proposes a rule that where there is one existing entrant with DSLAM infrastructure, there should be an exemption from having to provide WLR and LCS services. For complete\ ness, we note that Telstra does not claim that a single entrant would provide sufficient competitive discipline on Telstra absent WLR / LCS regulation. Rather, it is used because Telstra considers that it demonstrates the “inevitability \ of constraint on Telstra’s retail pricing behaviour.”4 45 Telstra further claims in its supporting submission that 97% of ESAs in its proposed exemption area will have two or more DSLAMs present in its exchange, and 76% will ha\ ve three or more. 46 We note that Telstra’s proposal does not relate to infrastructure that is used to provide WLR and LCS \(or equivalent\) services. DSLAMs in many instances have been put in place by entrants to provide ADSL services, \ not voice services, using LSS as an input. 2.2.2 Entry based rules 47 The Commission notes in its discussion paper that where it is confident an enduring bottleneck does not persist, it will be inclined to progressively withdraw ex ant\ e access regulation, where it is confident that the declaration is not required to promote the LTIE.5 Although it does not propose a simple rule for deregulation, it further notes that the ‘replicability’ of fixed-line network elements\ may provide guidance towards practically assessing whether it is likely to be economically efficient for competitors to duplicate infrastructure.6 48 The Commission has, however, previously considered entry-based rules to determine whethe\ r a removal of access is appropriate. In relation to transmission capacity services it reviewed in 2004, it applied the following rule: “The Commission has therefore applied the criterion that where there are at least three optical fibre\ providers, including Leighton/Nextgen as a potential provider \(where its network is within 1km or less from the GPO of a regional centre for a given capital-regional route\), this serves as evidence of sufficient competition/contestability t\ o warrant removal of that route from declaration.”7 49 The issue of deregulatory rules of the kind which are being considered in these proceedings is also being discussed in other jurisdictions. Other regulators in these jurisdictions ar\ e noting that the application of policies designed to encourage facilities or quasi-facilities based entry are beginning to come to 3 See e.g. p. 23 of Telstra’s submission in support of the exemptions. 4 CRA statement, p. 41. 5 Disc\ ussion paper, p. 10. 6 Discussion paper, 7 ԭ, Transmission Capacity Service: Review of the declaration for the domestic transmission capacity service, Final Report, April 2004 8 Frontier Economics | October 2007 | Public version End\ uring bottlenecks and principles of access regulation fruition, leading to calls for different regulations in areas where such entry is occurring. Ofcom has been a proponent of such an approach, while the CRTC in Canada has also confronted sim\ ilar issues. We summarise these approaches in the Annex to this report. 50 The previous Commission approach and approaches proposed in overseas jurisdictions raise two questions in the application of an entry based rule here: • is th\ e proposed entry-based rule sufficiently robust that one could be confident that granting the exemption would be in the LTIE; and • would the application of such a rule overlook some important additional concerns? 2.2.3 Problems with\ entry-based rules 51 Clearly, at some level, a significant number of entrants presents unambiguous evidence that barriers to entry are relatively low and that the enduring bottleneck no longer exists. In the current circumstances, the questio\ n is whether one can be confident in the use of Telstra’s rule \(which merely requires one additional DSLAM-based entrant\) or other simple entry-based rule, or whether additional criteria should also be considered. 52 Our view is th\ at the rule proposed by Telstra and other DSLAM-based entry rules are not sufficient to be confident that granting the exemption would be in the LTIE. As is stands, the Telstra rule takes no account of: The type of entry \(e.g. ULLS-based ent\ ry, as opposed to entry based on LSS\); the percentage of lines taken away from Telstra \(actual competitive pressure\); or the availability of other wholesale suppliers. 53 ULLS-based entry Telstra’s rule focuses on the presence o\ f competitive infrastructure \(i.e. DSLAMs\), not whether the entrant has been able to provide a substitutable WLR or LCS service. In that regard, it glosses over potential commercial and technical problems associated with providing a voice se\ rvice using ULLS We comment on these issues in the following section of the report. 54 Percentage of lines The proposed rule takes no account of the notion that the success of entry should also be taken into account when determining whether\ 3;competition is effective or not. While Telstra and the Commission have pointed out that entry of itself is important, because the low variable-cost, high fixed-cost structure of entrants lends itself to aggressive pricing, it should be recognise\ d that fixed line services are subject to a great deal of inertia. The Commission noted this factor as a limitation in the Competitive Safeguards Report for 2005/06: “Customer inertia, or status quo bias, also acts as a barrier to achiev\ ing sufficient scale to compete effectively. When combined with actual switching costs \(such as contract lock-in\) and information asymmetry about the range of available contracts, Telstra has considerable advantages as the incumbent default \ provider of local telecommunications. Fn: It is difficult to ameliorate status quo bias in the short-medium term, as it is consumers’ greater knowledge of and confidence in 9 Frontier Economics | October 2007 | Public version Endurin\ g bottlenecks and principles of access regulation alternative providers and their service offerings that will mitigate consumers’ tendency to stick with their original service provider..” \(p. 18\) 55 Telstra has presented informat\ ion on churn statistics in its submissions \(see Appendix B\), and claims that these are indicative of highly competitive retail voice markets. However, it does not provide any statistics on the number of customers that have never churned, whi\ ch is more relevant in this context because it determines the scope of the ‘addressable market’ for competitors. 56 Availability of wholesale options If Telstra’s submissions on an entry-based rule were accepted, it could be \ quite possible in some exchanges \(where there is no overlap with Optus’s HFC network\) that there will either be a quasi-monopoly in the provision of wholesale WLR and LCS services, or there may be no suppliers of these wholesale servic\ es if Telstra elects to withdraw supply, and the competitive entrant elects to not provide wholesale services. In that light, it is arguable that while there would be competitive constraint from the entrant, it could well limit the ability of \ other entrants to compete in that exchange area. 2.3 CONCLUSIONS 57 On its face, Telstra’s proposed entry-based rule appears to overlook some important considerations in determining whether granting the exemptions is likely to be in \ the LTIE. We now turn to address these issues in more detail, particularly focusing on the detailed questions asked by the Commission: Without the declared LCS and WLR, will competition be effective in downstream retail markets? How will\ granting the exemptions affect the incentives for rollout of infrastructure, such as DSLAMs, by telecommunications companies? 10 Frontier Economics | October 2007 | Public version Will competition be effective in retail markets if exemptions&\ #13;are granted? 3 Will competition be effective in retail markets if exemptions are granted? 58 In considering whether exemption would be in the LTIE, a key issue is whether competition in markets dependent on WLR and LCS inputs would be \ effective if the exemption was granted. Answering this question requires an understanding of the markets in which firms compete to provide retail services, including the progress of these markets in evolving from non-competitive structures to&\ #13;effectively competitive markets. 3.1 DEFINING RELEVANT RETAIL AND WHOLESALE MARKETS 59 We largely agree with the Commission’s approach to defining retail and wholesale product markets for the affected services. That is, the relev\ ant retail product markets are those for either a bundle of line rental and local calls, or a bundle of line rental, local calls and other types of fixed calls. Either way, the relevant wholesale product markets therefore include WLR and LCS s\ ervices. The supply of broadband services is also clearly linked to the supply of fixed voice services, although whether this is considered to be a separate market is probably not critical to the analysis of WLR and LCS exemptions. 60 Clea\ rly, determining the appropriate geographic market definition is not so straightforward. As we explain below, we consider that retail fixed voice markets are primarily characterised by competition at a national level. The wholesale- or self-su\ pply of WLR and LCS does appear potentially subject to significantly greater heterogeneity in competitive conditions across Australia. The difficulty is in deciding whether it would currently be appropriate to identify geographically separate \ wholesale markets on an ‘exchange by exchange’ basis, commensurate with the existence and type of competitive entry in that exchange region \(or ESA\), or whether the differences are sufficiently minor to treat the wholesale market\ as effectively homogenous across Australia. 61 The Commission has already recognised that competition in CBD areas is fundamentally different, given the characteristics of purchasers \(mainly businesses\) and the existence of competitive infr\ astructure. Whether this can be extended to other regions where there has been some competitive entry \(both based on Telstra’s network and independent infrastructure\) is less certain. 62 Part of the difficulty is that there is no singl\ e answer to drawing appropriate market boundaries. While exchange boundaries are an important determinant of competition within the fixed line market \(because of ULL- and LSS-based entry\), other infrastructure exists which is not bounded by \ Telstra’s exchange boundaries \(e.g. Optus’s HFC network\). There will undoubtedly be situations where one customer with access to Optus’s HFC network will be connected to the same Telstra exchange as another customer who doe\ s not have access. The Commission also notes that there is potentially an interdependency between the product and geographic market definition. In particular, if one include mobiles in 11 Frontier Economics | October 2007 | Public version \ Will competition be effective in retail markets if exemptions are granted? the relevant retail market, then markets would tend to be national in geographic scope, with a wholesale self-supply dimension.8 63 We draw no concrete conclusions \ on the appropriate wholesale geographic market definition. We find that, as there are overarching issues with own-supply, or wholesale supply, of WLR and LCS independent of region or exchange area, the particular wholesale geographic market de\ finition is not critical to whether this exemption application should be granted 64 One oversight in the Commission’s analysis in the discussion paper is that there is no clear distinction made between the retail and wholesale markets. O\ ur observation is that competition at one level seems to operate quite differently from competition at the other. In the following section, we explain why we consider that the relevant retail markets are best seen as national in scope, and,\ 3;therefore, why the regulatory structure at the wholesale level needs to give some consideration to promoting competition in the national retail market. 3.2 COMPETITION IN THE RELEVANT RETAIL MARKETS 65 LCS and WLR services are used as an inp\ ut into the retail supply of line rental and local calls. These types of calls are also commonly bundled with other call t

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© Frontier Economics Pty \ Ltd., Melbourne Telstra’s applications for WLR and LCS exemptions A REPORT PREPARED FOR THE COMPETITIVE CARRIERS COALITION October 2007 NON-CONFIDENTIAL VERSION i Frontier Economics | October 2007 | Public version Co\ ntents 07-10-30 Final Rep WRD public Telstra’s applications for WLR and LCS exemptions Executive summary....................................................................................... i 1 Introduction ........................\ ................................................................. 1 1.1 CCC request..................................................................................................1 1.2 The Exemption process.......................................\ .......................................1 1.3 Background to the Exemption Issues.......................................................1 1.4 Two key questions .......................................................................................3&\ #13;1.5 This report ....................................................................................................3 2 Enduring bottlenecks and principles of access regulation..................5 2.1 Enduring bottlenecks ......................\ ............................................................5 2.2 Enduring bottlenecks and deregulatory thresholds ................................6 2.3 Conclusions ..................................................................................\ ................9 3 Will competition be effective in retail markets if exemptions are granted? .............................................................................................. 10 3.1 Defining relevant retail and wholesale markets\ .....................................10 3.2 Competition in the relevant retail markets.............................................11 3.3 The Path to effective retail competition.................................................12 3.4 The effec\ t of the declaration on competition in retail markets...........14 3.5 Conclusions ................................................................................................22 4 Will granting the exemptions promote efficient investment? ....\ .......23 4.1 Efficient use and efficient investment ....................................................23 4.2 Investment in existing LCS and WLR infrastructure ...........................23 4.3 Investment in new WLR and LCS infrastructure ..\ ...............................26 4.4 Conclusions ................................................................................................27 Annex – Deregulatory rules adopted in other jurisdictions........................29 UK \(\ Ofcom\) .........................................................................................................29 Canada \(CRTC\) ....................................................................................................30 ii Frontier \ Economics | October 2007 | Public version Tables & figures ii Telstra’s applications for WLR and LCS exemptions Figure 1: Truncation of returns - risky investment ...................................................25 Figure 2\ : Truncation of returns - less risky investment ............................................25 i Frontier Economics | October 2007 | Public version Executive summary Executive summary 1 In July 2007, Telstra applied for individual exemptio\ ns from the standard access obligations relating to the supply of two services: the local carriage service \(LCS\) and wholesale line rental \(WLR\) in 371 exchange service areas \(ESAs\) in metropolitan Australia. 2 Frontier Economics has\ been asked by the Competitive Carriers’ Coalition \(CCC\) to provide its views to the Australian Competition and Consumer Commission \(the Commission\) on Telstra’s application for the exemptions. 3 The criteria for whether the ex\ emptions should be granted relate to whether the exemptions will promote the long-term interests of end-users \(LTIE\). The LTIE is a somewhat imprecise objective, but is given more substance by specified subcriteria relating to the promotion \ of competition, and efficient use of, and investment in, infrastructure by which the WLR and LCS and downstream services are supplied. 4 Two particular issues were identified by the Commission as being critical to the outcome of the exempt\ ion application: whether competition in markets downstream of the wholesale WLR and LCS services would be effectively competitive in the absence of declaration; and whether maintaining the declaration would discourage further investment at&#\ 13;local exchanges, thus denying consumers the benefits of quasi-infrastructure competition. 5 Aside from these issues, there is also an overarching issue as to how these exemption applications fit within the Commission’s expressed desir\ e to regulate ‘enduring bottlenecks’ – on the basis that regulating these services, and these services only, is likely to be in the LTIE. 6 In our report, we address the issue of enduring bottlenecks first. We find this a \ ;useful criterion in theory, but one that is difficult to apply in practice. Entrybased rules are one way to implement such a criterion – on the basis that where there is entry, bottlenecks are unlikely to persist – but in the current&\ #13;environment, it is also necessary to take into account additional criteria to determine whether the entry-based rule proposed by Telstra would be in the LTIE. 7 We next consider the effectiveness of competition in downstream markets that&#\ 13;use WLR and LCS as inputs, assuming that the exemption order was granted. We find that competition for supply of retail fixed voice services has developed on a national basis, but that competition at the wholesale or quasi-infrastructure-based&\ #13;level will potentially become more differentiated by exchange area. Regardless of the specific market definition adopted, and on the basis of a counterfactual in which Telstra either increases prices or refuses supply of WLR and LCS, our v\ iew is that granting the exemption will likely increase the difficulty of providing retail fixed voice services in the exemption areas. The barriers to effective competition are likely to include: ii Frontier Economics | October 2007 | Public \ version Executive summary difficulties in self-supplying WLR and LCS services, such as: • achieving minimum efficient scale at the exchange level using ULLS and traditional voice switching, or ULLS and VoIP; • quality and \ customer perception issues with VoIP as a complete PSTN replacement; • other non-price impediments to switching between wholesale products and the ULLS, including issues of migration processes and timely access to exchanges; and \ the lack of well-developed wholesale markets for WLR and LCS services in the exemption areas. 8 It is arguable that some of these barriers are of a transitory nature. While that is possible, we find that it would be premature to grant the exe\ mption prior to clearer evidence that these barriers are being overcome. 9 Finally, we find there is little evidence to suggest that ongoing declaration of WLR and LCS services in the proposed exemption areas would be detrimental to invest\ ment. Pricing regulation of these services is relatively benign, being based on retail-minus principles, while upstream inputs \(by which substitute services can be developed\) are cost-based. This means there is little burden on Telstra from \ the regulation being in place, but also that the access seekers’ move off these wholesale services will make it readily apparent when the declaration is irrelevant. In any event, we argue that in light of overarching investment issues re\ lating to next generation access networks, in would be unwise to assume that granting the exemptions would increase investment. 1 Frontier Economics | October 2007 | Public version Introduction 1 Introduction 1.1 CCC REQUEST 10 Fro\ ntier Economics has been engaged by the Competitive Carriers’ Coalition \(CCC\) to provide a report for the Australian Competition and Consumer Commission \(the Commission\) on the exemption applications recently filed by Telstra in rela\ tion to wholesale WLR and LCS services. 11 In particular, the CCC has asked Frontier to address the key questions in the ԭ’s discussion paper, as well as any points that are pertinent to the exemption process. 1.2 THE EXEMPTION PR\ OCESS 12 The Commission has received an application from Telstra for individual exemptions from the standard access obligations under section 152AT of the Trade Practices Act 1974 \(TPA\). The exemptions relate to the supply of two service\ s: the LCS and WLR in 371 exchange service areas \(ESAs\) in metropolitan Australia. 13 The process for review of the exemption applications is straightforward - the Commission must not make such a determination unless it believes that grantin\ g the exemption order will promote the long-term interests of end-users \(LTIE\) as defined in section 152AB of the TPA. In considering whether a thing promotes the LTIE: “…regard must be had to the extent to which the thing is\ likely to result in the achievement of the following objectives: \(a\) the objective of promoting competition in markets for listed services; \(b\) the objective of achieving any-to-any connectivity in relation to carriage services that i\ nvolve communication between end-users; \(c\) the objective of encouraging the economically efficient use of, and the economically efficient investment in: \(i\) the infrastructure by which listed services are supplied; and \(ii\) any othe\ r infrastructure by which listed services are, or are likely to become, capable of being supplied.” \(S152AB\) 14 An exemption order may be unconditional or subject to such conditions or limitations as are specified in the order. 1.3\ BACKGROUND TO THE EXEMPTION ISSUES 15 The exemption applications must be viewed within the context of a wide range of ongoing regulatory work at the Commission. 16 The LCS and WLR services were declared by the Commission in July 2006 as p\ art of its Local services review. The LCS had previously been declared by the 2 Frontier Economics | October 2007 | Public version Introduction Commission in July 1999 as part of its inquiry into local telecommunications services. 17 I\ n the Local services review, the Commission considered that declaration of both services would be likely to promote the LTIE by both promoting competition and encouraging the economically efficient use of and investment in infrastructure. In r\ eaching this view, the Commission noted that, outside of CBD areas, there were no widespread effective substitutes for either service, with implications at both the wholesale and retail level. 18 In April 2007, the Commission released a second\ position paper in its ongoing Fixed services review. The primary purpose of the position paper was to outline a robust framework for the review of existing service declarations, including WLR and LCS as well as ULLS and LSS. 19 In the sec\ ond position paper, the Commission considered that ex ante access regulation under Part XIC should focus on those elements of the fixed-line network that continue to represent ‘enduring bottlenecks’. The Commission considered that \ an enduring bottleneck would generally refer to a network element or facility that exhibits natural monopoly characteristics and is ‘essential’ to providing services to end-users in downstream markets in a way that promotes the LTI\ E. 20 Where an enduring bottleneck does not persist, the Commission stated that it will be inclined to progressively withdraw ex ante access regulation where it is confident that declaration is not required to promote the LTIE. 21 Particul\ arly relevant to the exemption applications, the Commission’s stated approach was “based on the principle that, where it is economically efficient, facilities-based competition is more likely to promote the LTIE”. The Commiss\ ion further noted that its proposed approach was: … also based on the principle that, for services or network elements which are not enduring bottlenecks, competitors that do not wish to invest in their own infrastructure will, more than\ likely, have the opportunity to enter into commercially negotiated arrangements for access with third parties \(or the incumbent\) without the need for ex ante regulatory intervention. In this regard, the withdrawal of access regulation at ce\ rtain network layers does not necessarily suggest that these forms of competition will cease, or that their price will necessarily be raised excessively by the access provider. Rather, it is recognition that ex ante regulation is no longer req\ uired to ensure that these services are competitively priced at or near their underlying costs. 22 In its second position paper, the Commission also flagged its intention to conduct a comprehensive review of fixed service declarations \(includ\ ing WLR and LCS\) commencing in mid-2008. 23 Telstra has now pre-empted the Commission by applying for individual exemptions from all access obligations \(SAOs\) for the LCS and WLR declared services in 371 ESAs. Telstra has chosen the ESA\ s in the proposed exemption area based on the presence of competing infrastructure and, in particular, the presence of DSLAM-based infrastructure by Telstra’s competitors. Each ESA in 3 Frontier Economics | October 2007 | Public version&\ #13;Introduction the proposed exemption area has at least one DSLAM deployed by a competitor of Telstra. 24 The Commission notes that “the second position paper…clearly provides relevant guidance for the ԭ’s considerat\ ion of Telstra’s exemption applications” \(Discussion paper, p. 11\). 1.4 TWO KEY QUESTIONS 25 The Commission has indicated in its discussion paper that, in assessing the exemption applications under the LTIE criteria, it will \ take particular account of responses to two questions: Without the declared LCS and WLR, will competition be effective in downstream retail markets? How will granting the exemptions affect the incentives for rollout of infrastructure\ , such as DSLAMs, by telecommunications companies? 1.5 THIS REPORT 26 In this report, we address the question of whether granting the exemptions would be in the long-term interests of end-users \(LTIE\). 27 In section 2, we consider the is\ sue of enduring bottlenecks, and to what extent access to infrastructure used to provide WLR and LCS services is likely to be an enduring bottleneck. 28 In section 3, we focus on whether granting the exemption will be likely to promote com\ petition in markets for retail telephony services. 29 In section 4, we discuss whether granting the exemption will be likely to lead to more roll-out of infrastructure, and more efficient investment in infrastructure. 5 Frontier Economics\ | October 2007 | Public version Enduring bottlenecks and principles of access regulation 2 Enduring bottlenecks and principles of access regulation 2.1 ENDURING BOTTLENECKS 30 In its recent work, the Commission has indicated that it w\ ants to focus access regulation on enduring bottlenecks. 31 For example, in its most recent statement on the regulation of fixed-line services, it expresses the view that: “ex ante regulation under Part XIC of the Act should focus on\ those elements of the fixed line network that continue to represent ‘enduring bottlenecks’.” \(p. ii\) 32 The reason for this view is that the Commission considers that facilities-based competition is more likely to promote \ the LTIE, where that facilities-based competition is efficient. By this it means that duplication of network elements should be encouraged where the competitive gains from duplication outweigh any loss of technical or allocative efficiency.\ 3;33 For services that are not enduring bottlenecks, the Commission’s view is that competitors that do not wish to invest in their own infrastructure will, more than likely, have the opportunity to enter into commercially negotiated arrangem\ ents for access with third parties \(or the incumbent\) without the need for ex ante regulatory intervention. 34 The Commission’s position here seems consistent with good regulatory practice. Having said that, the concept lacks pract\ ical meaning in many circumstances, as whether a bottleneck may be ‘enduring’ is subject to significant uncertainty and change. 35 There are two inter-related sources of change – the timeframe over which one views the bot\ tleneck, and the rapidity of technological progress. While it is possible to have some concept of likely developments in fixed and other networks within the next 5 years, it becomes significantly more difficult to predict to what extent any te\ lecommunications infrastructure could be declared an enduring bottleneck. 36 We have recently seen such a shifting of the prevailing paradigm. Few would have thought when the ULLS was first declared in 1999 that parts of the copper access \ network could become redundant within 6-7 years \(as it indeed would have if Telstra had gone ahead with its Fibre-to-the-node plans\). 37 Under an FTTN network, what part of the service would be the bottleneck is not clear. It may well be the\ connection between the premises and the node \(rather than the local exchange\). However, if it would be uneconomic or technically infeasible to provide services at the sub-loop level – as appears likely – then the enduring bottle\ neck may actually revert to a higher level service which is accessed at the local exchange \(or other aggregation point\), such as bitstream access and WLR / LCS equivalents. 6 Frontier Economics | October 2007 | Public version Enduring bo\ ttlenecks and principles of access regulation 38 The Commission states that the major bottleneck has been, and will likely continue to be, Telstra’s CAN.1 In stating that, it does not necessarily suggest that unbundled access to the CAN \ should be the only declared fixed service. The Commission notes in the discussion paper that: “…in areas where there is evidence of quasi-facilities based competition, or the potential for substainable and efficient quasi-facilties\ based competition, the main question for review is whether regulated re-sale based services are require to promote the LTIE.” \(p. 17, quoting from the April 2007 FSR position paper\) 39 That view is also shared by other regulators. For\ example, Ofcom shares the Commission’s view that access regulation should be focused on ‘enduring bottlenecks’ but mandates access to a WLR product.2 40 It should also be noted that a focus on bottlenecks also implies that t\ he Commission should consider regulating bottlenecks that are not currently declared. For example, it is apparent that where there is no ULL-based entry either present or reasonably likely to emerge \(e.g. lower density exchanges in bands \ 3 and 4\), then the enduring bottleneck is likely to be wholesale ADSL services and WLR / LCS services. This is not simply a matter of comparing the benefits from service-based competition with the cost of regulation. It is also important to n\ ote that the benefits that service-based competition can deliver are not limited to the particular geographic region. Often, services are provided \(particularly to business customers\) across regions on a ‘whole-of-business’ basis,\ 3;so that bottleneck control in certain regions can be used to foreclose competitors that do not have the same ubiquity of coverage. 41 The conclusion we draw from this is that while the basic focus on enduring bottlenecks makes sense, it does\ not necessarily lead to easy answers as to what to regulate, or what not to regulate. 2.2 ENDURING BOTTLENECKS AND DEREGULATORY THRESHOLDS 42 One of the main issues in Telstra’s application for exemptions is the use of a competi\ tive-entry based rule as a proxy for where there is no longer an enduring bottleneck, and hence that competitive conditions are such that Part XIC access regulation is no longer required. In this section, we outline Telstra’s proposed ru\ le and comment on whether it is likely to be adequate as a deregulatory threshold. 2.2.1 Telstra’s proposal 43 Telstra’s view is that enduring bottlenecks no longer exist when there is a competitive entrant. That view is based \ on the notion that a bottleneck occurs 1 ԭ, Fixed Services Review – A second position paper, April 2007, pp. 21-22. 2 See Ofcom’s Strategic Review Statement, http://www.ofcom.org.uk/consult/condocs/telecoms_p2/statement/ 7 F\ rontier Economics | October 2007 | Public version Enduring bottlenecks and principles of access regulation where only one firm controls an important input, and where there is duplication, this must demonstrate a lack of material barriers to en\ try.3 44 In that light, in its exemption application Telstra effectively proposes a rule that where there is one existing entrant with DSLAM infrastructure, there should be an exemption from having to provide WLR and LCS services. For complete\ ness, we note that Telstra does not claim that a single entrant would provide sufficient competitive discipline on Telstra absent WLR / LCS regulation. Rather, it is used because Telstra considers that it demonstrates the “inevitability \ of constraint on Telstra’s retail pricing behaviour.”4 45 Telstra further claims in its supporting submission that 97% of ESAs in its proposed exemption area will have two or more DSLAMs present in its exchange, and 76% will ha\ ve three or more. 46 We note that Telstra’s proposal does not relate to infrastructure that is used to provide WLR and LCS \(or equivalent\) services. DSLAMs in many instances have been put in place by entrants to provide ADSL services, \ not voice services, using LSS as an input. 2.2.2 Entry based rules 47 The Commission notes in its discussion paper that where it is confident an enduring bottleneck does not persist, it will be inclined to progressively withdraw ex ant\ e access regulation, where it is confident that the declaration is not required to promote the LTIE.5 Although it does not propose a simple rule for deregulation, it further notes that the ‘replicability’ of fixed-line network elements\ may provide guidance towards practically assessing whether it is likely to be economically efficient for competitors to duplicate infrastructure.6 48 The Commission has, however, previously considered entry-based rules to determine whethe\ r a removal of access is appropriate. In relation to transmission capacity services it reviewed in 2004, it applied the following rule: “The Commission has therefore applied the criterion that where there are at least three optical fibre\ providers, including Leighton/Nextgen as a potential provider \(where its network is within 1km or less from the GPO of a regional centre for a given capital-regional route\), this serves as evidence of sufficient competition/contestability t\ o warrant removal of that route from declaration.”7 49 The issue of deregulatory rules of the kind which are being considered in these proceedings is also being discussed in other jurisdictions. Other regulators in these jurisdictions ar\ e noting that the application of policies designed to encourage facilities or quasi-facilities based entry are beginning to come to 3 See e.g. p. 23 of Telstra’s submission in support of the exemptions. 4 CRA statement, p. 41. 5 Disc\ ussion paper, p. 10. 6 Discussion paper, 7 ԭ, Transmission Capacity Service: Review of the declaration for the domestic transmission capacity service, Final Report, April 2004 8 Frontier Economics | October 2007 | Public version End\ uring bottlenecks and principles of access regulation fruition, leading to calls for different regulations in areas where such entry is occurring. Ofcom has been a proponent of such an approach, while the CRTC in Canada has also confronted sim\ ilar issues. We summarise these approaches in the Annex to this report. 50 The previous Commission approach and approaches proposed in overseas jurisdictions raise two questions in the application of an entry based rule here: • is th\ e proposed entry-based rule sufficiently robust that one could be confident that granting the exemption would be in the LTIE; and • would the application of such a rule overlook some important additional concerns? 2.2.3 Problems with\ entry-based rules 51 Clearly, at some level, a significant number of entrants presents unambiguous evidence that barriers to entry are relatively low and that the enduring bottleneck no longer exists. In the current circumstances, the questio\ n is whether one can be confident in the use of Telstra’s rule \(which merely requires one additional DSLAM-based entrant\) or other simple entry-based rule, or whether additional criteria should also be considered. 52 Our view is th\ at the rule proposed by Telstra and other DSLAM-based entry rules are not sufficient to be confident that granting the exemption would be in the LTIE. As is stands, the Telstra rule takes no account of: The type of entry \(e.g. ULLS-based ent\ ry, as opposed to entry based on LSS\); the percentage of lines taken away from Telstra \(actual competitive pressure\); or the availability of other wholesale suppliers. 53 ULLS-based entry Telstra’s rule focuses on the presence o\ f competitive infrastructure \(i.e. DSLAMs\), not whether the entrant has been able to provide a substitutable WLR or LCS service. In that regard, it glosses over potential commercial and technical problems associated with providing a voice se\ rvice using ULLS We comment on these issues in the following section of the report. 54 Percentage of lines The proposed rule takes no account of the notion that the success of entry should also be taken into account when determining whether\ 3;competition is effective or not. While Telstra and the Commission have pointed out that entry of itself is important, because the low variable-cost, high fixed-cost structure of entrants lends itself to aggressive pricing, it should be recognise\ d that fixed line services are subject to a great deal of inertia. The Commission noted this factor as a limitation in the Competitive Safeguards Report for 2005/06: “Customer inertia, or status quo bias, also acts as a barrier to achiev\ ing sufficient scale to compete effectively. When combined with actual switching costs \(such as contract lock-in\) and information asymmetry about the range of available contracts, Telstra has considerable advantages as the incumbent default \ provider of local telecommunications. Fn: It is difficult to ameliorate status quo bias in the short-medium term, as it is consumers’ greater knowledge of and confidence in 9 Frontier Economics | October 2007 | Public version Endurin\ g bottlenecks and principles of access regulation alternative providers and their service offerings that will mitigate consumers’ tendency to stick with their original service provider..” \(p. 18\) 55 Telstra has presented informat\ ion on churn statistics in its submissions \(see Appendix B\), and claims that these are indicative of highly competitive retail voice markets. However, it does not provide any statistics on the number of customers that have never churned, whi\ ch is more relevant in this context because it determines the scope of the ‘addressable market’ for competitors. 56 Availability of wholesale options If Telstra’s submissions on an entry-based rule were accepted, it could be \ quite possible in some exchanges \(where there is no overlap with Optus’s HFC network\) that there will either be a quasi-monopoly in the provision of wholesale WLR and LCS services, or there may be no suppliers of these wholesale servic\ es if Telstra elects to withdraw supply, and the competitive entrant elects to not provide wholesale services. In that light, it is arguable that while there would be competitive constraint from the entrant, it could well limit the ability of \ other entrants to compete in that exchange area. 2.3 CONCLUSIONS 57 On its face, Telstra’s proposed entry-based rule appears to overlook some important considerations in determining whether granting the exemptions is likely to be in \ the LTIE. We now turn to address these issues in more detail, particularly focusing on the detailed questions asked by the Commission: Without the declared LCS and WLR, will competition be effective in downstream retail markets? How will\ granting the exemptions affect the incentives for rollout of infrastructure, such as DSLAMs, by telecommunications companies? 10 Frontier Economics | October 2007 | Public version Will competition be effective in retail markets if exemptions&\ #13;are granted? 3 Will competition be effective in retail markets if exemptions are granted? 58 In considering whether exemption would be in the LTIE, a key issue is whether competition in markets dependent on WLR and LCS inputs would be \ effective if the exemption was granted. Answering this question requires an understanding of the markets in which firms compete to provide retail services, including the progress of these markets in evolving from non-competitive structures to&\ #13;effectively competitive markets. 3.1 DEFINING RELEVANT RETAIL AND WHOLESALE MARKETS 59 We largely agree with the Commission’s approach to defining retail and wholesale product markets for the affected services. That is, the relev\ ant retail product markets are those for either a bundle of line rental and local calls, or a bundle of line rental, local calls and other types of fixed calls. Either way, the relevant wholesale product markets therefore include WLR and LCS s\ ervices. The supply of broadband services is also clearly linked to the supply of fixed voice services, although whether this is considered to be a separate market is probably not critical to the analysis of WLR and LCS exemptions. 60 Clea\ rly, determining the appropriate geographic market definition is not so straightforward. As we explain below, we consider that retail fixed voice markets are primarily characterised by competition at a national level. The wholesale- or self-su\ pply of WLR and LCS does appear potentially subject to significantly greater heterogeneity in competitive conditions across Australia. The difficulty is in deciding whether it would currently be appropriate to identify geographically separate \ wholesale markets on an ‘exchange by exchange’ basis, commensurate with the existence and type of competitive entry in that exchange region \(or ESA\), or whether the differences are sufficiently minor to treat the wholesale market\ as effectively homogenous across Australia. 61 The Commission has already recognised that competition in CBD areas is fundamentally different, given the characteristics of purchasers \(mainly businesses\) and the existence of competitive infr\ astructure. Whether this can be extended to other regions where there has been some competitive entry \(both based on Telstra’s network and independent infrastructure\) is less certain. 62 Part of the difficulty is that there is no singl\ e answer to drawing appropriate market boundaries. While exchange boundaries are an important determinant of competition within the fixed line market \(because of ULL- and LSS-based entry\), other infrastructure exists which is not bounded by \ Telstra’s exchange boundaries \(e.g. Optus’s HFC network\). There will undoubtedly be situations where one customer with access to Optus’s HFC network will be connected to the same Telstra exchange as another customer who doe\ s not have access. The Commission also notes that there is potentially an interdependency between the product and geographic market definition. In particular, if one include mobiles in 11 Frontier Economics | October 2007 | Public version \ Will competition be effective in retail markets if exemptions are granted? the relevant retail market, then markets would tend to be national in geographic scope, with a wholesale self-supply dimension.8 63 We draw no concrete conclusions \ on the appropriate wholesale geographic market definition. We find that, as there are overarching issues with own-supply, or wholesale supply, of WLR and LCS independent of region or exchange area, the particular wholesale geographic market de\ finition is not critical to whether this exemption application should be granted 64 One oversight in the Commission’s analysis in the discussion paper is that there is no clear distinction made between the retail and wholesale markets. O\ ur observation is that competition at one level seems to operate quite differently from competition at the other. In the following section, we explain why we consider that the relevant retail markets are best seen as national in scope, and,\ 3;therefore, why the regulatory structure at the wholesale level needs to give some consideration to promoting competition in the national retail market. 3.2 COMPETITION IN THE RELEVANT RETAIL MARKETS 65 LCS and WLR services are used as an inp\ ut into the retail supply of line rental and local calls. These types of calls are also commonly bundled with other call t

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