ࡱ> UXRST ?bjbjqq ZGee< N1 """T"""# $"JY% (:C(L((4fGDcLd"OM3l4OO}!}!(( gRgRgRO}!("(EgROgRgR)Q"Ta( _"O~N10JK+Q<aa|"ݨT.OOgROOOOOgROOOJOOOOOOOOOOOOO :  Migration Plan Required Measures relating to the pull through connection process Discussion Paper December 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 Box 3131, Canberra ACT 2601 or by email to publishing.unit@accc.gov.au. www.accc.gov.au List of acronyms and other terms ԭ Australian Competition and Consumer Commission August 2011 Discussion Paper ԭs Assessment of Telstras Structural Separation Undertaking and draft Migration Plan, Discussion Paper, August 2011 CCA Competition and Consumer Act 2010 DBCDE The Department of Broadband, Communications and the Digital Economy Definitive Agreements Contractual arrangements between Telstra and NBN Co relating to the rollout of the NBN fibre network (the) Determination Telecommunications (Migration Plan Principles) Determination 2011 Final Decision Paper ԭs Assessment of Telstras Structural Separation Undertaking and draft Migration Plan, Final Decision Paper, February 2012 HFC Hybrid Fibre Coaxial NBN National Broadband Network NBN Co NBN Co Limited NTD Network Termination Device PCD Premises Connection Device RSP Retail Service Provider SSU Structural Separation Undertaking Telstra Telstra Corporation Limited WBA Wholesale Broadband Agreement Contents  TOC \o "1-2" \f \h \z HYPERLINK \l "_Toc343588608"1. Introduction  PAGEREF _Toc343588608 \h 1 HYPERLINK \l "_Toc343588609"1.1 Migration Plan Required Measures  PAGEREF _Toc343588609 \h 1 HYPERLINK \l "_Toc343588610"1.2 Decision making framework for Required Measures  PAGEREF _Toc343588610 \h 2 HYPERLINK \l "_Toc343588611"2 Consultation  PAGEREF _Toc343588611 \h 5 HYPERLINK \l "_Toc343588612"2.1 Overview  PAGEREF _Toc343588612 \h 5 HYPERLINK \l "_Toc343588613"2.2 Making a Submission  PAGEREF _Toc343588613 \h 5 HYPERLINK \l "_Toc343588614"3 Pull through activities  PAGEREF _Toc343588614 \h 6 HYPERLINK \l "_Toc343588615"3.1 The NBN Rollout model  PAGEREF _Toc343588615 \h 7 HYPERLINK \l "_Toc343588616"3.2 The steps in the pull through process  PAGEREF _Toc343588616 \h 7 HYPERLINK \l "_Toc343588617"4 Obtaining pull through consents and releases from wholesale customers (required measure 1(a))  PAGEREF _Toc343588617 \h 9 HYPERLINK \l "_Toc343588618"4.1 Overview  PAGEREF _Toc343588618 \h 9 HYPERLINK \l "_Toc343588619"4.2 Issues for Comment  PAGEREF _Toc343588619 \h 10 HYPERLINK \l "_Toc343588623"5 Notification of pull through exception events (required measure 1(b))  PAGEREF _Toc343588623 \h 15 HYPERLINK \l "_Toc343588624"5.1 Overview  PAGEREF _Toc343588624 \h 15 HYPERLINK \l "_Toc343588625"5.2 Issues for Comment  PAGEREF _Toc343588625 \h 15  Introduction Migration Plan Required Measures On 27 February 2012, the ԭ accepted Telstras structural separation undertaking (SSU) and approved the draft migration plan. The SSU came into force on 6 March 2012 and the migration plan on 7 March 2012. Further detail on the ԭs assessment of Telstras SSU and migration plan can be found in the ԭs August 2011 discussion paperAssessment of Telstras Structural Separation Undertaking and draft Migration Plan, and in its February 2012 Final Decision paper. Both papers are available at HYPERLINK "http://www.accc.gov.au/content/index.phtml/itemId/1003999"http://www.accc.gov.au/content/index.phtml/itemId/1003999. Clause 5 of the migration plan provides that Telstra may develop certain disconnection measures or processes after the migration plan commences and submit them to the ԭ for approval. These measures are referred to as required measures, and comprise specific disconnection processes needed to facilitate migration to the NBN and a plan setting out how Telstra will ensure that information sourced from NBN Co under the Definitive Agreements is secured from retail business units. There are six required measures: Pull through processes, which Telstra has lodged separately as: process for obtaining consents and releases from wholesale customers for NBN Co to use pull through during the connection process process for notifying wholesale customers that pull through exception events have occurred. Process for managed disconnection of copper services (which are not special services) on the disconnection date. Process for managed disconnection of hybrid fibre coaxial (HFC) services. Process for Telstra to build copper paths at premises which had previously been permanently disconnected, in order to supply special services and special service inputs to that premises. Processes which will be used to manage and implement disconnection of copper services of each special service class. The NBN information security plan. The migration plan sets out the process that Telstra must follow when developing and lodging draft required measures for ԭ approval. This process requires the development of a high level road map and individual work plans for each measure. These documents are available on the HYPERLINK "http://www.telstrawholesale.com.au/nbn/migration-plan/index.htm"Telstra Wholesale website. On 22 November 2012, the ԭ released a discussion paper on Telstras draft required measures 2, 3, 4 and 6. Submissions to that discussion paper were due with the ԭ by 14December 2012. This discussion paper relates to draft required measures 1(a) and 1(b) which relate to pull through activities. Telstra lodged required measure 1(a) by the deadline of 7 September 2012. The ԭ granted Telstra an extension to lodge required measure 1(b) by 30November2012. Copies of the draft required measures and supporting submissions are available on the ԭ website: HYPERLINK "http://www.accc.gov.au/content/index.phtml/itemId/1082236"http://www.accc.gov.au/content/index.phtml/itemId/1082236. Decision making framework for Required Measures The ԭ must approve a draft required measure if it is satisfied that it complies with the migration plan principles or, if it is not satisfied of this, direct Telstra to submit an amended draft measure to address the ԭs concerns. In deciding whether to direct Telstra to make a particular amendment to a draft required measure, the ԭ must have regard to the costs to Telstra that would flow from the amended draft measure, the effectiveness of the draft measure and the relative costs and benefits relative to alternative measures that could be established. The migration plan provides further detail as to what certain required measures must include in order to constitute the required measure. However, the ԭ must ultimately be satisfied that the required measures comply with the migration plan principles in order to approve them (see discussion at section 1.2.2 on migration plan principles). The ԭ has discretion to undertake public consultation on the draft required measures. The ԭ has 60 business days from the date of lodgement to approve a required measure, or otherwise direct Telstra to resubmit an amended draft. Telstra has 40 business days from receipt of such a direction to resubmit the draft required measure that addresses the concerns raised by the ԭ. These processes apply recursively. Once approved, a required measure forms part of the migration plan. If, through operational experience or otherwise, an approved required measure is found to not comply with the general migration plan principles (see below), then the ԭ may issue a direction to Telstra to rectify the required measure to ensure that it is compliant. 1.2.1 The migration plan and pull through The migration plan outlines the processes that Telstra will use to disconnect premises from its copper and HFC networks as the NBN is rolled out around Australia. Section 24 of the Telecommunications (Migration Plan Principles) Determination 2011 (the Determination) requires that the migration plan must specify the processes Telstra will use for communications services that are disconnected during the pull through process. One example of an existing commitment under the migration plan relating to pull through is the requirement for Telstra to maintain interim call diversion arrangements as a standard feature of wholesale line rental services so that they are available to the end users of a wholesale customer at premises where pull through is used. Clause 10 of the migration plan sets out specific requirements that Telstra must provide for in required measures 1(a) and (b). These are outlined in sections 4 and 5 below. If the ԭ is satisfied that the draft required measures meet these requirements, the ԭ must then assess the draft required measures for compliance with the migration plan principles. The relevant principles are outlined below. 1.2.2 Migration plan principles The migration plan principles define the objectives and scope of the migration plan and are found in the Determination. There are three different types of principles: General principles, which describe the overarching principles that must be met by the migration plan. These include equivalence and continuity of service objectives. Specific principles, which provide further specificity regarding how some of the general principles are to be given effect in the migration plan. Procedural principles, which set out the procedural provisions that must be included in the migration plan. In its assessment of Telstras draft migration plan, the ԭ considered each clause against the general, specific and procedural principles. The ԭ must assess the draft required measures in the same way. The ԭ considers that the following migration plan principles will be most relevant to assessing both draft required measures 1(a) and 1(b): The general principles in subsections 8(1)(b) and (c), which require the migration plan to have processes that minimise disruption to the supply of carriage services and, to the greatest extent practicable, give wholesale customers autonomy over the sequencing of disconnection with connection to the NBN. The general principle in section 8(3), which requires that policies and business practices relating to the above processes must provide for Telstra to facilitate the management by wholesale customers of the migration of their customers. The general principle in section 21, which requires that the migration plan must provide for equivalent treatment in the implementation of disconnection processes. The specific principle in section 9(2), which requires that the processes must be set out in sufficient detail to enable the ԭ to be satisfied that that the processes accord with the general principles in sections 8 and 21. The specific principle in section 11, which requires that the migration plan must set out how Telstra will give wholesale customers autonomy in relation to decisions (about disconnection) in order to minimise the period of any service outage. The specific principle in section 19, which requires that the migration plan must set out the reasonable steps that a wholesale customer may take in order to control the timing of disconnection and any known circumstances where the wholesale customer may not be able to take these steps. In this regard, the ԭ considers that the principal objectives of the pull through required measures are: To the greatest extent practicable, provide wholesale customers with autonomy over the decisions about the timing of pull through to enable them to minimise the period of the service outage. To minimise disruption to the supply of fixed-line carriage services, to the extent that it is in Telstras control. To provide for equivalent treatment of wholesale customers and Telstras retail business units in the implementation of the relevant processes. A detailed discussion of the ԭs interpretation of the migration plan principles relating to pull through is provided in the ԭs August 2011 Discussion Paper. Consultation Overview The ԭ is seeking feedback from interested parties on whether draft required measures 1(a) and 1(b) meet the requirements of the migration plan and comply with the migration plan principles. In addition, the ԭ seeks specific feedback on a number of issues relating to each required measure. As part of the process for developing required measures 1(a) and 1(b) Telstra consulted wholesale customers and NBN Co. Further information on Telstras consultation is available on the HYPERLINK "http://www.telstrawholesale.com.au/nbn/migration-plan/index.htm"Telstra Wholesale website. Telstra prepared a confidential summary of the feedback it received from wholesale customers as well as Telstras response to each concern. Telstra provided this summary document to the ԭ on a confidential basis. The ԭ has considered this confidential summary document in the preparation of this consultation paper. Making a Submission Submissions in response to this discussion paper will be accepted until 5:00 pm on 1February 2013. Any submissions received after this time may not be considered. All submissions will be considered public and posted on the ԭs website. If stakeholders wish to submit commercial-in-confidence material to the ԭ they should submit a public and a 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 at HYPERLINK "http://www.accc.gov.au/"www.accc.gov.au. The ԭ prefers to receive electronic copies of submissions in either Adobe PDF or Microsoft Word format that is text searchable. Please send submissions to the following email address: HYPERLINK "mailto:mssu-migration@accc.gov.au"ssu-migration@accc.gov.au. The ԭ also accepts hard copies of submissions. Any hard copy should be sent to: Sean Riordan General Manager Industry Structure and Compliance, Communications Group Australian Competition and Consumer Commission GPO Box 520, Melbourne VIC 3001 Any questions about this consultation process should be directed to Evan Marginson at HYPERLINK "mailto:evan.marginson@accc.gov.au"evan.marginson@accc.gov.au or by calling: (03) 9658 6416. Pull through activities These draft required measures concern the practice of using an existing lead in cable to pull through an NBN fibre optic cable from the street to the premise. In order to pull through a new fibre cable, the existing copper line or HFC cable is disconnected and attached to the fibre cable and used to draw it through the conduit. Once the fibre cable is in place, the copper or HFC line will be reinstated if it is still required. The use of pull through will often be a step in a process that culminates in the disconnection of the existing service or services being supplied over the copper line. For instance, if the end user has agreed to switchover all of their existing services, the lead in cable used for pull through will not be reinstated and the existing services will be disconnected within Telstras systems at the conclusion of the NBN provisioning process without further action being required of the end user. As discussed below, NBN Co has advised that it does not intend to use pull through activities unless a lead in cable cannot otherwise be installed in the existing conduit from the curb to a premise. Pull through activities will only be undertaken following an end user submitting an order to switchover existing services onto the NBN. Pull through can be beneficial, in that it increases the extent to which existing conduits can be reused, rather than having to duplicate the underground conduits or use aerial deployments to the premise. However, its use does mean that there will be an interruption to existing services before NBN service(s) are provisioned. As outages will likely pose some risk to end usersparticularly for businesses or consumers with special needsit will be necessary for end users to be advised of the potential for service interruption so that they can make an informed decision about the use of pull through and take any necessary steps to protect their interests, such as establishing a call diversion or having access to an alternative communications service. Similarly, it will also be important for existing communications service provider(s) using the line to be informed of the use of pull through and any problems encountered so as to properly address end user enquiries regarding the service interruption and reinstatement process. That said, these required measures relate to the role and responsibilities that Telstra will take on, in its capacity as access provider to the existing access network, when pull through is to be undertaken. This role and these responsibilities will form an important piece in the overall arrangements that will be required to support pull through activities. End users, retail service providers, and NBN Co will also need to cooperate to make sure end user interests and competition are not put at risk as a consequence of pull through activities. 3.1 The NBN Rollout model In its 2012-2015 Corporate Plan, NBN Co announced that it would be using a build drop model for the NBN rollout. This entails NBN Co contractors connecting fibre to the premises at the time of the local fibre network construction where feasible to do so. This is in contrast to a pure demand drop approach, which required an end user to place an NBN connection order before fibre was run to the premises. Further information on the NBN rollout is available on the NBN Co website. At present, NBN Co intends to connect most premises within the fibre rollout region by pushing fibre through an existing underground conduit between an end user's premise and the property boundary. These conduits are referred to as a lead-in-conduit (LIC). Where the fibre cannot be pushed through the LIC, NBN Co will need to connect the premises another way, including: by digging and installing a new LIC; by using an aerial fibre cable; or by use of pull through. NBN Co has advised that it does not intend to use pull through during the build drop stage, and hence it will only be used following a retail service provider (RSP) submitting a connection order for an NBN service on behalf of the end user. 3.2 The steps in the pull through process Attachment A to this discussion paper provides a high level overview of the pull through process. NBN Co has provided the ԭ with feedback on this document. The stages at which Telstras required measures will come into operation have been highlighted to assist interested parties in preparing a submission. The ԭ considers that the following aspects of the end-to-end process provide important context within which to consider the draft required measures: During the build drop, where an NBN Co contractor determines that the fibre cannot be pushed through the LIC, they will assess whether pull through can be used. If the NBN Co contractor considers that pull through cannot be used, the premises will then be connected either via the installation of a new LIC or by an aerial fibre cable. If the NBN Co contractor considers that pull through can be used, they will advise the end user that it was not possible to connect their premises at that time, and that the premises will instead by connected after the end user places an order with its RSP. Where pull through activities are to be undertaken, the NBN Co contractor will contact Telstra and rely on Telstras advice as to whether an existing cable can be used for pull through. Similarly, where problems are encountered during the pull through process, the NBN Co contractor will advise Telstra of this and Telstra will be responsible for communicating with affected Telstra retail and wholesale customers. The ԭ understands that NBN Co will, through the Wholesale Broadband Agreement (WBA), be seeking to require all NBN service providers to undertake reasonable endeavours to obtain the consent of their end users for pull through to be used as well as information on priority assistance or medical alert services at the premises. The ԭ understands that NBN Co does not intend to use pull through where NBN Co has been made aware that priority assistance services are being acquired at the premises. Consequently, and as reflected in the scope of the required measures, Telstra will have an important role to play as an intermediary between its wholesale customers and NBN Co and its contractors. The end-to-end process will likely influence the end user experience when pull through activities are to be undertaken, as well as the ability of service providers to assist end users in that process. The end-to-end process appears to provide opportunities for end users to be properly consulted and to take steps to protect their interests during their dealings with their RSP. For instance, the RSP could explain pull through and its benefits and detriments to end users and obtain an informed consent regarding its use when taking a connection order where pull through is likely to be required. Similarly, it will also be important for end users to be advised on the day as to whether pull through will in fact be required. Keeping end users informed of when services have been reinstated will assist them to manage any potentially adverse consequences of pull through. That said, at this stage there is a lack of clarity regarding the precise nature of the roles and responsibilities that all parties will take on in the end-to-end pull through process, or the extent to which all parties will in fact cooperate to ensure that pull through is undertaken in an appropriate manner. Submitting parties should bear this in mind when commenting on the detail of the required measures that have been proposed. The ԭ considers that appropriate protections for vulnerable consumers, including those requiring medical priority assistance or medical alerts, should be provided throughout the pull through process. Telstras draft required measures are one regulatory mechanism by which the protection of these interests may be assured. The ԭ would be open to considering other potential regulatory arrangements to provide additional assurance that these consumers are protected should this be necessary. Obtaining pull through consents and releases from wholesale customers (required measure 1(a)) Overview In deciding whether to use pull through to connect a premise, the NBN Co contractor must confirm with Telstra the cables that they can use to pull through the fibre. The ԭ understands that on the day, the NBN Co contractor will contact Telstra to determine whether there are any copper lines or HFC cables that are non-removable. For example, if Telstra indicates that there are special services on a particular line it will be considered non-removable and pull through will not proceed. A cable will also be considered non-removable if the RSP has not provided its consent for pull through to be used. Telstra must confirm whether a cable can be used for pull through within one hour of being contacted by an NBN Co contractor. Under the Definitive Agreements, Telstra has consented to the use of pull through on all of its copper and HFC cables that it supplies retail services over that are otherwise removable. It has also provided NBN Co with a number of releases from liability as well as undertakings to provide information about the services on a particular line and to perform tests to determine that the existing communications services can continue to be supplied to that premises. Migration plan requirements The migration plan requires Telstra to develop a required measure that establishes a standardised process that enables it to use reasonable endeavours to obtain: Consent from wholesale customers for NBN Co to undertake pull through during the connection process. A release from wholesale customers in favour of an NBN Co benefited person for certain losses or claims relating to pull through. Consent from wholesale customers for NBN Co to use and disclose confidential information for the purpose of performing pull through. An undertaking by the wholesale customer to provide information directly to NBN Co on request about any priority assistance service, medical alert service or other alert service being supplied. Telstra is not required to seek or obtain the consent of an end user of a wholesale customer or to provide NBN Co with notice of priority assistance services, medical alert services or other alarm services that are supplied by a person other than Telstra. Draft required measure 1(a) Under draft required measure 1(a), Telstra proposes to obtain, on a once off and global basis, the consents, releases and undertakings from wholesale customers outlined above. Telstra proposes to do this via a Deed Poll (Attachment B) which, if agreed to by the wholesale customer, can then be used by Telstra to confirm with NBN Co whether a cable can be used to perform pull through. Telstra also seeks contact details for wholesale customers and a consent to disclose these details to NBN Co. This will allow NBN Co, should it wish to do so, to directly contact any wholesale customer that may not have provided consent for pull through. Draft required measure 1(a) also seeks an undertaking from wholesale customers to perform certain tests to ensure the connectivity of reinstated or temporary lines to premises at which pull through has been used. Reinstatement tests are to be used to ensure the connectivity of reinstated copper lines or HFC cables. Remote tests will be used to ensure the connectivity of temporary lines. Telstra wholesale customers may expressly indicate that they do not require these tests to be performed. 4.2 Issues for Comment The ԭ seeks feedback on whether draft required measure 1(a) complies with the migration plan and the migration plan principles. Does the process for obtaining wholesale customer consents for pull through comply with the requirements of the migration plan and the migration plan principles? In addition, the ԭ seeks feedback on a number of specific elements of the draft required measure. The global nature of the consents and notice of pull through activities The Determination requires that the migration plan must provide, to the greatest extent practicable, for disconnection processes that enable wholesale customers autonomy over decisions about sequencing disconnection with connection to the NBN in order to minimise disruption to the supply of communications services. It its supporting submission, Telstra has stated that an efficient and practical process is required (for obtaining wholesale customer consents) because Telstra must respond to NBN Co pull through inquiries within one hour. The ԭ agrees that it is likely to be more efficient for Telstra and NBN Co to obtain the consents in this manner. As Telstra notes, it may also remove an administrative burden for wholesale customers to respond to NBN Co inquiries for each line that may be subject to pull through. However, the ԭ notes that by providing the consents on a global basis, wholesale customers would appear to lose control over the timing of pull through and the capacity to minimise the period of any service outage and disruption to the supply of communication services to any individual consumers for whom pull through would not be appropriate. The ԭ understands that in the course of Telstras consultation, wholesale customers suggested a process by which they could better manage the consequences of pull through for their end users than under a global consent model. This involves a communication being provided to the wholesale customer ahead of the pull through being undertaken. This would allow the wholesale customer to contact the end user and assist them in establishing a call diversion service, or if necessary, to withdraw consent. Telstra has acknowledged that RSPs will be responsible for the management of their own end users. In its supporting submission, Telstra has stated that wholesale customers who agree to pull through are able to manage any outages with their end-users thorough the use of options such as call diversion features, the availability of mobile phones services etc. This position relies on the wholesale customer being aware of the use of pull through. However, it appears to the ԭ that a wholesale customer may not know if pull through will be used and therefore may not be able to make appropriate arrangements to assist their end-users with call diversion and other interim arrangements. This is because the decision to connect a premises by pull through will ultimately be made by the NBN Co contractor on the assigned connection date. Further, where an end user churns to another RSP during switchover, the existing copper based service provider will likely not be aware of the NBN connection date at all. Telstra has also indicated that wholesale customers are not required to sign the Deed Poll and provide a global consent. However, the ԭ considers that this option may also be unattractive to wholesale customers, as it could result in their end user not having access to pull through and instead being connected through the installation of new underground infrastructure or by way of aerial deployment in all circumstances where NBN Cos attempt to push the NBN fibre cable through an existing LIC is unsuccessful. Another means by which wholesale customers could be better able to manage the use of pull through might be to allow them to consent, or withhold consent, to pull through on a line by line basis. This would likely improve their autonomy to make decisions to minimise disruptions to the supply of communications services to those end users for whom pull through should not be undertaken. However, it may also introduce inefficiencies and an administrative burden on parties. An alternative approach may be to allow wholesale customers to provide a global consent, but then identify certain categories of services, or individual lines upon which consent is not granted. The ԭ notes that ultimately, any benefits of allowing wholesale customers to undertake a more granular approach to providing consent for pull through must be balanced against any efficiency costs, including any potential limits to NBN Cos capacity to undertake pull through in a timely manner. Does the global nature of the consents sought under the Deed Poll undermine wholesale customer capacity to minimise the period of any service outage and disruption to the supply of communication services to their end users? What arrangements for providing consent to pull through would be most likely to benefit wholesale customer autonomy while also not unduly limiting the timeliness and efficiency of the pull through process? Would the inclusion in the required measures of a notification process to wholesale customers ahead of the use of pull through assist wholesale customers manage service continuity for their end users? The scope of the release sought under clause 1.6(c) of the draft Deed Poll The draft Deed Poll includes a number of clauses that release NBN Co and Telstra from liability from any loss or claim relating to the operation or lack of operation of the existing copper services that may arise from pull through. In its supporting submission, Telstra states that it has provided NBN Co with relevant consents to conduct pull through activities for its retail customers and that the draft required measure provides the same opportunity to wholesale customers. Regardless, some of the releases under the draft Deed Poll are fairly wide in scope. For example, clause 1.6(c) of the draft Deed Poll provides that, subject to a negligent act or omission, the wholesale customer: absolutely releases each NBN Co Person and each Telstra Person in relation to any Loss or Claim for or in relation to...the operation, or lack of operation, of any carriage service on a Pull Through Cable (caused) by the Pull Through Activities, Cable Rectification or installation of a Temporary cable, for the period commencing on installation of a Temporary Cable until commencement of Cable Rectification. The ԭ understands that NBN Co intends to install temporary cables at premises where the copper line or HFC cable cannot be rectified. The effect of draft clause 1.6(c) would appear to be that neither NBN Co or Telstra is liable for the failure of the temporary cable to facilitate the supply of the existing services to the premises. Consequently, in the event of an extended period of service outage, in circumstances where there is delayed commencement of the NBN fibre service, the wholesale customer would appear to have little capacity to ensure continuity of service for their end users. Does the release under draft clause 1.6(c) of the Deed Poll undermine the capacity of wholesale customers to minimise the period of any service outage for their end users? Priority assistance and medical alert services Telstra has up to 600,000 priority assistance customers, with other service providers supplying a smaller number of such services.The ԭ is aware that there are up to 300,000 medical alert service customers in Australia. It is likely that many of these consumers are Telstra customers. Some but not all would likely be priority assistance customers. As noted previously, where NBN Co is made aware of the existence of priority assistance services, its intention is not to use pull through. Clause 10.1(f) of the migration plan limits Telstras responsibility for providing any information on the priority assistance and medical alert services status of a wholesale customer line. Rather, as reflected in clause 1.5 of the draft Deed Poll, wholesale customers are to provide this information to NBN Co on request. In light of the potentially serious consequences for vulnerable customers that may arise from service outages occasioned by pull through, the ԭ is considering whether the arrangements proposed in the required measure are sufficient to ensure that, to the greatest extent practicable, information on priority assistance and medical alert services provided over a particular copper line is available to NBN Co when it is deciding on the use of pull through. Do the required measures provide assurance that wholesale customers of Telstra obtain and supply information to NBN Co regarding the existence of priority assistance and medical alert services? What information do wholesale customers currently provide to Telstra about priority assistance and medical alert services? There is potential that these consumers may not always identify either to their own RSP (or to a NBN Co technician) that they acquire priority assistance or medical alert services. In this regard, it is likely that a RSP would have to take positive steps to ascertain whether a medical alert service is being provided over a line, as there would often be instances where the customers current service provider will not know of the existence of such a service. Further, if a customer is churning to a new service provider in the course of migration, the customer might not raise that need with the new service provider on the misunderstanding that the existing arrangements will be migrated to the NBN automatically. The ԭ understands that NBN Co intends to seek an undertaking from RSPs to use reasonable endeavours to provide NBN Co with information on the existence of any priority assistance or medical alert services at a premises on behalf of which they are lodging a connection order. However, it is not clear what steps RSPs will take to fulfil this contractual obligation, or what the consequences would be for the RSP if they did not comply with that obligation. Could the required measures be amended in any way to provide additional assurance that priority assistance and medical alert customers will be identified to NBN Co? What other measures could be established to provide such additional assurance? Tests to determine whether the service outage is over As noted under section 4.1 of this discussion paper, the Deed Poll seeks an undertaking from wholesale customers to perform certain tests to ensure the connectivity of reinstated or temporary lines to premises at which pull through has been used. Draft clause 1.4 of the Deed Poll commits RSPs who sign the relevant box at the end of the Deed Poll to undertake reasonable endeavours to carry out Reinstatement and Remote Tests within one hour of being requested to do so by NBN Co. These tests will be important to ensuring that communications services can recommence for end-users that do not migrate all their services over to the NBN on the connection date. Telstra has indicated that wholesale customers may expressly opt out of having to perform these tests by not ticking the box under the Deed Poll. The ԭ understands that in circumstances where wholesale customers opt out of undertaking these tests, NBN Co will still be required to undertake a basic test to determine whether there is a current on the cable. However, there does not appear to be any obligation to ensure that the existing communications services can recommence supply to the premises. Given the scope of the releases under draft clause 1.5 of the Deed Poll, the ԭ considers that allowing wholesale customers to opt out from these tests may inappropriately undermine the migration plans continuity of service objectives. In the absence of wholesale customer agreement to undertake Reinstatement or Remote Tests, is there sufficient assurance that existing communications services will be able to recommence for end-users who do not migrate all their services over to the NBN on the connection date? Notification of pull through exception events (required measure 1(b)) Overview In some cases, difficulties will be encountered during the pull through process and it might not be able to be completed promptly. For example, if poor weather conditions or an occupational health and safety risk occurred, the NBN Co contractor might be prevented from completing pull through activities on the day. Such circumstances are known as pull through exception events. If a pull through exception event occurs, or the copper or HFC cable cannot be reinstated, then the NBN Co contractor must install a temporary cable to enable the continued supply of the existing communications service(s) to the premises. This temporary cable will remain until NBN Co can reinstate the copper line or HFC cable permanently. It is intended that each RSP will undertake tests to ensure that the communications service(s) can be supplied over the replacement lines. Ultimately, the reinstated service(s) will be disconnected in accordance with disconnection processes provided under the migration plan. Clause 10.2 of the migration plan requires Telstra to develop a required measure outlining how it will give prompt notification to affected wholesale customer(s) if NBN Co advises Telstra that a pull through exception event has occurred or that NBN Co has installed a temporary cable (together referred to as notification events). Pages 4-5 of draft required measure 1(b) outline how Telstra proposes to notify its wholesale customers in these circumstances. Issues for Comment The ԭ seeks feedback on whether draft required measure 1(b) complies with the migration plan and the migration plan principles. Does the process for notifying wholesale customers that a notification event has occurred comply with the requirements of the migration plan and the migration plan principles? In addition, the ԭ seeks feedback on a number of specific elements of the draft required measure. Prompt notification As noted above, the migration plan requires Telstra to promptly advise affected wholesale customer(s) of any notification event. Prompt notification of the nature of the event and the steps being taken to address it will obviously be important to enable wholesale customers to respond to their end users queries or concerns, as well as to determine whether an alternative communications product and/or service is required and if so, the most appropriate alternative. In terms of Telstras proposed timing, the process flow diagram on page 6 of the draft required measure states that advice of an exception event is to be received [by a wholesale customer] as soon as practicable, no later than 2 business days after receiving the notice from NBN Co. However, on page 5 of the draft required measure, Telstra states that it expects that in 90 per cent of cases, wholesale customers will be advised that a notification event has occurred within four hours. The draft required measure is silent on what information this notification to affected wholesale customers will include. The draft required measure outlines that Telstra Wholesale will make contact with the Wholesale Customer using at least one channel of communication (eg email), to advise of the Notification event. However, the mode of communication appears to be entirely at Telstras discretion, as opposed to being a communication channel agreed between Telstra and the customer. Within what time period would wholesale customers need to be provided with notification of a pull through exception event in order to take steps to minimise disruption of their end users services? What information do wholesale customers need to know regarding a notification event in order to effectively manage the supply of services to their end users? In particular, in what ways would additional information benefit wholesale customers to do this? In responding to this question please consider information relating to: the type of exception event the particulars of the exception event, including an anticipated timeframe for rectification. In order to maintain transparency over the timeliness of Telstras notifications to affected wholesale customers, the ԭ considers that required measure 1(b) should include an additional metric relating to the time taken by Telstra to advise wholesale customers of notification events. Equivalent treatment of wholesale customers and Telstra Retail Business Units Section 21 of the Determination requires that the migration plan must provide for the equivalent treatment of wholesale customers and retail business units in the implementation of disconnection processes. Both the draft required measure and Telstras supporting submission are silent on the process that Telstra will follow when alerting Telstra Retail Business Units to a notification event that affects a Telstra retail customer. For this reason, the ԭ is currently unable to assess whether draft required measure 1(b) complies with section 21 of the Determination. However, on page 5 of draft required measure 1(b), Telstra states that [t]he Telstra help desk is the primary point of contact for NBN Co to advise Telstra about the Notification Event. The help desk will be staffed by trained Telstra employees who will be experts in communication activities. It is unclear whether the Telstra help desk will be situated in either a Telstra Retail, Telstra Wholesale or Telstra Network business unit. This location could have important implications for equivalence. The ԭ considers that in order to provide for the equivalent treatment of wholesale customers and Telstra retail business units, the Telstra help desk should be situated outside both Telstra Retail and Telstra Wholesale. In addition, the Telstra help desk employees should follow a similar, if not identical, process when alerting retail business units to a notification event as is following when providing notification to a wholesale customer. In addition, the draft required measure outlines that in addition to logging the notification event in the NBN Transition Tool (the computer system used by Telstra to manage migration of services to the NBN), Telstra help desk employees will also record the notification event in Telstras assurance system for recording customer faults (SIIAM). The ԭ understands that Telstra Retail call centres will have access to the SIIAM record and hence be in a good position to respond to end user enquiries about notification events at the first contact with a Telstra Retail end user. It is unclear whether wholesale customers will have access to this SIIAM record and hence be in the same position to answer questions from their end users that contact their call centres. Can wholesale customers access SIIAM records to check the fault status of a line without contacting Telstra Wholesale? Attachment A: Overview of steps in the pull through connection process             Migration plan, clause 5.1(c).  Migration plan, sch. 7.  HYPERLINK "http://www.telstrawholesale.com.au/nbn/migration-plan/index.htm"www.telstrawholesale.com.au/nbn/migration-plan/index.htm.  Migration plan, clause 5.4(d).  Migration plan, clause 28.2(b).  Migration plan, clause 5.4(b).  Migration plan, clause 5.4(e).  Migration plan, clause 5.4(g).  Migration plan, clause 26(a).  Available on the Department of Broadband, Communications and Digital Economys website at HYPERLINK "http://www.dbcde.gov.au"www.dbcde.gov.au.  Migration plan, clause 10.3.  Telecommunications (Migration Plan Principles) Determination 2011, s. 6(1).  Telecommunications (Migration Plan Principles) Determination 2011, s. 7(1).  August 2011 Discussion Paper, p.147-148  HYPERLINK "http://www.telstrawholesale.com.au/nbn/migration-plan/index.htm"www.telstrawholesale.com.au/nbn/migration-plan/index.htm.  Definition of pull through in the Migration Plan Principles Determination 2011  See HYPERLINK "http://www.nbnco.com.au"http://www.nbnco.com.au.  Effectively this means that pull through will only occur after NBN Co declares a region ready for service as RSPs will only be able to place connection orders for Fibre Access Services after this date. Therefore, where an end user places a connection order at a premise that requires pull through, the premises will be fitted with a Network Termination Device (NTD) as well as a Premises Connection Device (PCD).  A complete list of non-removable cables is provided in the definitions section of the draft Deed Poll attached to this discussion paper.  Special services are specific types of copper services that may not have an appropriate NBN-based alternative for retail service providers to migrate their end users to. See migration plan, p. 30 (Explanatory Note: Disconnection of Direct Special Services).  Migration plan, clause 10.1.  Telecommunications (Migration Plan Principles) Determination 2011, s.8(1)(c).  Telstras supporting submission to required measure 1(a), p.3.  Ibid, p.3.  Ibid, p.7.  Ibid, pp.7-8.  Draft Deed Poll, clause 1.6(c)  Draft clause 1.4 of the Deed Poll  As noted above, Reinstatement tests are to be used to ensure the connectivity of reinstated copper lines or HFC cables. Remote tests will be used to ensure the connectivity of temporary lines.  Unless there is a complete migration event (where all copper services are migrated to the NBN at the time pull through is completed)  Draft required measure 1(b), p5.  Draft required measure 1(b), p5.     Migration Plan Required Measures Discussion PaperNovember/2012  PAGE \* MERGEFORMAT 1 Migration Plan Required Measures Discussion PaperNovember 2012  PAGE \* MERGEFORMAT iv Migration Plan Required Measures Discussion Paperpull through processesDecember 2012  PAGE \* MERGEFORMAT 2 The following overview represents the ԭs understanding of the pull through process at the time of publication of this discussion paper. NBN rollout: build drop phase NBN Co fibre and Premises Connection Device will be installed to the premises at the time of the local network construction. No pull through activities at this stage. Where it is apparent that the existing lead-in-conduit (LIC) cannot be used, even for pull through, the premises will be connected using aerial fibre or by installation of a new LIC. Where it is determined that the LIC could be used for pull through, the end user will receive a notice indicating that the NBN connection could not be completed on the day and that the NBN connection can still occur but at a later date when the end user submits an order for NBN service(s). End user places order for NBN connection: demand drop phase At its discretion, NBN Co may declare a region Ready for Service after 90 percent of premises in the region are passed by NBN fibre. After this date, end users can contact a retail service provider (RSP) to order an NBN service. When contacted by an end user, the RSP will: Clarify whether the premises is NBN Serviceable by way of NBN service qualification. Be required to use reasonable endeavours to ask the end user to indicate whether they provide consent for NBN Co to perform pull through and so have a temporary outage of their current copper or HFC services. Retail service provider places order with NBN Co When the order is placed with NBN Co, the RSP will: Indicate whether the end user has consented to the performance of pull through/temporary outages on their existing copper and HFC services for the installation of NBN Co equipment. Select an available date for the installation from the NBN Co booking system. Communicate the installation date to the end user. Make arrangements for the provision of interim call diversion services if necessary. NBN Co attends site to connect premise The NBN Co installer: Undertakes an inspection of the LIC to determine whether they believe that pull through can be completed on the day. If the installer decides that pull through can be completed they will check with Telstra whether there are any cables that cannot be used for pull through. It is at this point that Telstra will check whether a wholesale customer that provides services to the premises has signed the Deed Poll and therefore provided the necessary consents, releases and undertakings for pull through to occur (required measure 1(a)). NBN Co has indicated that it: Does not intend to contact any Telstra wholesale customer at this time to confirm consent for pull through. Will not need to seek end user consent for pull through on the day (because this will have been provided at the time the connection order is placed). Will not perform pull through at any premises where information provided by the RSP at the time the connection order was placed indicates that there is a priority assistance, medical alert or other comparable service provided to the premises. If pull through can be undertaken NBN Co will: Inform the end-user/nominated representative when an outage starts and ends. Reinstate the copper or HFC line used for pull through and test whether it works. Contact Telstra or a wholesale customer to test whether the reinstated line works. If pull through fails The ԭ understands that NBN Co will: Seek to install a temporary cable. Notify the end-user that pull through has not been successful. Contact Telstra to inform it that a pull through exception event has occurred. It is at this point that Telstra will notify any affected wholesale customer that a pull through exception event has occurred. 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