ࡱ> YX[ #`bjbj 0jjZVl   |||81L(((r,1a1c1c1c1c1c1c1$2 41|III1||((g1IF|(|(1BIa1^Q&S+||-( q̽d,-101,55-.",.Z"||TELSTRAS SUBMISSION IN SUPPORT OF ITS UNDERTAKINGS DATED 14 NOVEMBER 2003 A INTRODUCTION On 14 November 2003, Telstra gave to the Australian Competition and Consumer Commission (Commission) undertakings pursuant to section 152BS of the Trade Practices Act 1974 (the Undertakings) in respect of the following services: domestic PSTN originating and terminating access (PSTN OTA) and the local carriage service (LCS); and the unbundled local loop service (ULLS). The services the subject of the Undertakings are together referred to in this Submission as the UT Services. The Undertakings relate to the 2003/04, 2004/05 and 2005/06 financial years for PSTN OTA and ULLS, and to the 2003/04 and 2004/05 financial years for LCS. In this Submission, Telstra summarises the reasons why the terms and conditions specified in the Undertakings are reasonable and should be accepted by the Commission. In addition to the matters summarised in this Submission, Telstra relies on the following: Telstras Submission in Relation to the Methodology used for Deriving Prices Proposed in its Undertakings, dated 13 February 2003 (the Methodology Submission) which has already been provided to the Commission and made available to the industry for comment; the PIE II model which has already been the subject of industry scrutiny; and Telstras Further Submission in Support of its Undertakings (the Further Submission), which will shortly be provided to the Commission. The Further Submission will explain further the PIE II model and the matters the subject of the Methodology Submission and some minor operational matters relating to individual Undertakings. It will contain in large part the information in Telstras Detailed Submission in support of its Undertakings dated 31 July 2003, updated for the 2005/06 financial year in respect of PSTN OTA and ULLS. B SUBMISSIONS Telstra has given the Undertakings with the primary objective of providing both the industry and itself with increased regulatory certainty over future prices for the UT Services. Securing a reasonable degree of certainty is important to the future planning of Telstras telecommunications network and for the planning purposes of businesses that seek access to Telstras network. This in turn allows better provision of service to end-users, which is plainly consistent with end-users long term interests. B1 Prices should approximate efficient costs There is now a broad consensus that prices for PSTN OTA and ULLS should approximate long run efficient costs, as most recently confirmed in the Commissions Final Determination for model price terms and conditions of the PSTN, ULLS and LCS Services dated 28 October 2003 (the Final Determination). The Commission estimates these costs using what is known as a Total Service Long Run Incremental Cost (TSLRIC) methodology. Such a forward-looking optimised cost approach abstracts from the actual Telstra network and seeks to approximate the costs that an efficient operator would incur in supplying the projected volume and range of UT Services in Australia using a newly built network. For LCS, prices based on efficient costs would result in wholesale prices of LCS being above retail prices of local calls. Consequently, the Commission sets the price of LCS on a retail-minus basis, in effect requiring Telstra to bear a higher proportion of costs than its wholesale customers in the provision of this service. In Telstras view, allowing service providers to recover efficient costs is necessary if consumers are to benefit from continued investment in the telecommunications network. Such investment is essential for the supply of new and enhanced services, for the continued reduction of costs of existing services, and to improve the quality and ensure the widest possible availability of those services. In all of these ways, allowing recovery of efficient costs is vital to promoting the long term interests of consumers of telecommunications services. B2 Efficient costs of the UT Services Telstra has sought to address disputes that have arisen over the appropriate quantum of costs by developing a revised economic cost model that incorporates the latest PSTN technologies and deployment practices. This model is known as the PIE II model and has been made available to relevant parties within the industry for review, subject to appropriate confidentiality agreements and safeguards. The PIE II model optimises the network based on over 8 million actual customer locations rather than relying on broad averages of cable lengths to calculate network costs. Telstra believes that this model is significantly superior to any other telecommunications cost model developed or used in Australia for determining efficient long-run costs, and offers new insights into telecommunications costs. Annexure A describes the UT Services, how they are provided, and the basis on which efficient long-run costs are estimated by the PIEII model. Telstra has used the PIE II model to estimate the efficient long-term costs of the UT Services for the periods 2003/04 and 2004/05. In order to calculate the cost estimates for 2005/06, Telstra has performed a trend analysis on the results obtained for the previous years. Using the PIE II model and the trend analysis, the efficient costs of the UT Services (assuming that local calls bear costs up to the price cap of those calls) are as follows: ServiceEFFICIENT COSTS*2003/042004/052005/06PSTN OTA2.40 per call end minute2.06 per call end minute1.77 per call end minute LCS19.26 per call19.26 per callULLS - for RSS connected services$62.36 per service per month$62.39 per service per month$62.42 per service per month* These costs include non-network costs incurred by a supplier of the UT Services, such as wholesale billing, marketing and administration costs. B3 Undertaking Prices The costs referred to in paragraph 10 are higher than prices currently prevailing for the UT Services in the Australian telecommunications market - prices which were set in the context of costs estimated by the Commissions economic cost model which was developed for the Commission by NERA 5 years ago. Telstra contends that the PIE II model clearly demonstrates that current wholesale prices do not reflect those that an efficient operator would expect to receive under the TSLRIC pricing methodology. However, the headline prices proposed by Telstra for the UT Services are consistent with those set out in the Commissions Final Determination and are as follows: ServiceHeadline Prices2003/042004/052005/06PSTN OTA1.25 per call end minute (calculated using all traffic on Telstras network)1.15 per call end minute (calculated using all traffic on Telstras network)1.0 per call end minute (calculated using all traffic on Telstras network)LCS13.61 per call 13.61 per call ULLS - SIO per month per RSS connected serviceBand 1(CBD)$13$13*$13*Band 2 (metro)$22$22*$22*Band 3 (regional)$40$40*$40*Band 4 (remote)$100$100*$100** These prices are subject to an adjustment mechanism in the terms set out in the Commissions Final Determination (ie for every 10% increase or decrease above or below forecast demand, there will be a corresponding $1 decrement or increment to prices for the subsequent period, capped at 60 % deviation from those forecasts). The rates set out in the Undertakings for PSTN OTA are as follows: for 2003/04: CCA CategoryIntra CCA flagfall Charge (Cents per successful Call) Intra CCA conveyance Charge (Cents per conversation Minute)CBD1.11320.4946Metro1.10520.6356Provincial1.21870.8472Rural2.51294.1244 for 2004/05: CCA CategoryIntra CCA flagfall Charge (Cents per successful Call) Intra CCA conveyance Charge (Cents per conversation Minute)CBD0.98910.4484Metro0.98270.5863Provincial1.09580.7922Rural2.34053.8610 for 2005/06: CCA CategoryIntra CCA flagfall Charge (Cents per successful Call) Intra CCA conveyance Charge (Cents per conversation Minute)CBD 0.75830.3780Metro0.75340.5128Provincial0.86610.7131Rural2.06303.5863 B4 Prices are reasonable Telstra believes that the prices in the Undertakings ought to be accepted by the Commission as they are: below the efficient costs of providing the UT Services; below the prices which Telstra is entitled to charge pursuant to Part XIC of the Act; below the prices which an access seeker ought fairly to pay for the UT Services; not inconsistent with the legislative criteria set out in Part XIC of the Act, except to the extent to which they impose a greater burden on Telstra as an access provider, than it could be otherwise expected to bear; significantly below the efficient network costs of providing PSTN OTA, ULLS and LCS , and thus are less than those that an efficient operator would expect to receive under the TSLRIC pricing standard; and in conformity with the prices specified in the Commissions Final Determination, the principal purpose of which was to provide clear guidance regarding the Commissions views as to what constitutes reasonable terms and conditions of access to the UT Services. C OTHER SERVICES 15 The Undertakings only operate in respect of services which are described in those Undertakings. Services which do not fall within the description in the Undertakings will be provided by Telstra on terms to be agreed. ANNEXURE A - ESTIMATING EFFICIENT COSTS OF THE UT SERVICES A. THE UT SERVICES PSTN OTA involves the carriage of calls to/from an end user connected to Telstras Public Switched Telephone Network (PSTN) from/to a point of interconnection between Telstras PSTN and the network of an access seeker (POI). PSTN OTA is a service used by access seekers to supply local, domestic long distance, international long distance, fixed to mobile and mobile to fixed calls to end users (Retail PSTN Services). As PSTN OTA is an input into Retail PSTN Services, its costs are generally recouped from prices charged for Retail PSTN Services to the end users. LCS involves the sale of local calls to access seekers. It involves the carriage of calls from an end user to a separately located end user in the same local calling area. LCS is used by access seekers to supply local calls to end users. The price of local calls sold by Telstra is subject to a price cap of 22 cents per call (including GST). This price cap does not apply to the price of local calls supplied by Telstra to access seekers, nor does it apply to the price of local calls supplied by access seekers to their end user customers. Local calls are generally not offered by access seekers to end users without those access seekers also supplying other Retail PSTN Services. Accordingly, the cost of LCS and the other UT Services is generally recouped from prices charged to end user customers for a bundle of Retail PSTN Services supplied, including local calls. ULLS involves the provision of a copper wire from end user customers to a POI on the end user side of a customer access module. Put simply, ULLS provides the access seeker with the use of the copper wire connecting the end user customer to Telstras network. ULLS can be used by access seekers to provide voice calls (such as the Retail PSTN Services) and data services. The costs of ULLS are generally recovered from the prices charged to end user customers for services supplied using ULLS, whether they are voice or data services. B. THE INFRASTRUCTURE USED TO PROVIDE THE UT SERVICES The UT Services are supplied by Telstra using the infrastructure of Telstras PSTN which is also used by Telstra to supply Retail PSTN Services to its own end user customers. The PSTN largely consists of switches connected by transport systems somewhat similar to road intersections with traffic lights (switches) connected by roads (transport systems). Switches are complex devices (comprising hardware and software) which enable temporary connections to be established on demand between end user customers wishing to communicate with each other. They are also used to route calls along appropriate transport systems. Transport systems can transmit calls by using electrical current (along copper wires) or by using light (along optical fibre). Other devices may also be located along the transport systems to aggregate the calls or to amplify the signal along the route. Additional specialised equipment is also used in the PSTN to provide things such as network control, synchronisation and the power supply. Although the design of the PSTN is complicated, it can be simply represented as follows:  EMBED Word.Picture.8  The PSTN is made up of the Customer Access Network (CAN) and the Inter-Exchange Network (IEN). The CAN extends between points A and C on the above diagram and is typically made up of: a link (copper wire based) between the end user customer and a pillar (A to B); a pillar which aggregates all the links from up to approximately - 160 customers (B). This is done to reduce the number of copper wires required in the next transport system link; a transport system (copper wire based) between the pillar and the Remote Access Unit (RAU) (B to C); and a RAU which concentrates customer calls to ensure efficient use of the capacity in the next transport system link (C). The IEN extends between points C and E (or F) on the above diagram and is made up of: (a) switches (eg D, E & G); transport systems between switches (which are normally optical fibre based systems) (eg C to D, D to D(ii), D to E, E to D(i) and E to F(ii)); and POIs (eg F(i) or F(ii)). The above is a simplistic representation of any PSTN. In reality, the constituent components of the PSTN are significantly more complex. The UT Services use the following PSTN infrastructure as illustrated in the diagram: (a) PSTN OTA uses the infrastructure from A to F(i) and/or F(ii), being the transport system connecting the end user customer to the pillar, the pillar, the transport system connecting the pillar to the RAU, the RAU, the transport system connecting the RAU to the switch, the switches and the transport system between the switches limited in area to one interconnect call charging area; (b) LCS uses the entire PSTN, with the exception of transport between capital centres (E to G); (c) ULLS uses the CAN infrastructure from A to C, being the transport system connecting the end user customer to the pillar, the pillar and the transmission system connecting the pillar to the RAU. Accordingly, the UT Services share the infrastructure that constitutes the PSTN, together with the Retail PSTN Services supplied by Telstra. The UT Services may also give rise to service specific costs. For example in order to provide ULLS, alterations and additions must be made to the computer systems that manage wholesale products to cater for the specific characteristics of ULLS. C. THE PRINCIPLES FOR EFFICIENT COST DETERMINATION In order to ensure that investment in the PSTN in Australia continues (whether that investment is in an alternate PSTN to Telstras PSTN or by way of upgrade or extension of the existing Telstra PSTN), investors must have an expectation that the costs of building and maintaining the PSTN will be recovered from prices paid for the Retail PSTN Services and the UT Services. To do otherwise, will make it difficult to attract investment in the PSTN thus causing a loss of both social and economic benefits from such investment and, more generally, from the operation and use of the PSTN. Those benefits include the value consumers place on Retail PSTN Services, including the value to end users of being able to contact other end users with whom they wish to communicate. In addition, investors must also recover any costs incurred directly as a result of providing the UT Services (which costs are additional to the general costs of the PSTN). Otherwise, investors would not provide those services. Ideally, each UT Service would cover its incremental costs, with all UT and Retail PSTN Services together covering the common costs which their provision entails. In practice, regulatory and other constraints on the prices that can be charged for particular Retail PSTN Services may prevent a particular PSTN Service from covering the costs that would normally be allocated to it. Consequently, some UT or Retail PSTN Services may need to contribute less than they otherwise would towards the costs of providing them, while others may need to pay more. What is important is that the charges for the UT and Retail PSTN Services supplied by an investor in the PSTN cover the total costs of the PSTN which an investor incurs. The costs allocated to each of the UT Services should be consistent with those allocated to Retail PSTN Services supplied by the efficient access provider. To do otherwise would mean that the input costs into the Retail PSTN Services faced by the efficient access provider and an access seeker would be different. If the efficient access provider faces higher input costs for Retail PSTN Services than those faced by access seekers, then the access seekers could undercut the efficient access provider in end user markets, potentially take the majority of the market for Retail PSTN Services and thus prevent the efficient access provider from recouping all of the costs of its investment. This is because the efficient access provider would no longer sell the Retail PSTN Services from which higher costs were recovered but would be forced to sell the UT services from which lower costs were recovered. In addition, prices ought to be determined on a consistent basis for each of the different UT services. To do otherwise could cause: usage of the various services to shift from less costly to more costly ones even though that may not be the efficient outcome; the non recovery of all costs of the PSTN from the UT and Retail PSTN Services. In accordance with the Commissions previous statements and decisions, Telstra accepts that the prices for the UT Services other than LCS will be set on the basis of their TSLRIC plus an allocation of common costs, most importantly the PSTN CAN costs and any service specific costs. The resulting costs are often called Efficient Costs. Incremental costs do not ordinarily include common costs, but unless an allocation of common costs is recovered from the UT Services, the total costs of PSTN will not be recovered. The Efficient Costs are generally intended to represent the costs which an efficient provider of the services would incur today, were it today constructing a network to provide those services in Australia. To that extent, the Efficient Costs reflect the least amount a hypothetical provider of the UT Services, using a newly built PSTN, would need to expect to receive in order to be willing to build that PSTN. If such a hypothetical service provider could not expect to recover all of its common costs, it would not choose to build the PSTN that was being modelled. Charges set on the basis of the Efficient Costs ought to be determined in such a way as to ensure that the hypothetical access provider would be no worse off constructing and operating the hypothetical new build PSTN than it would be merely seeking access to it as an access seeker. This is the principle of competitive neutrality. If this principle is not respected, an otherwise efficient provider of the service being modelled would choose not to provide it, and no Retail PSTN Services would be provided to the community. If the prices are set at Efficient Costs, Telstra would not be rewarded for any inefficiency which may exist in its current provision of the UT Services. D. THE EFFICIENT COSTS OF EACH OF THE UT SERVICES Quantification of Efficient Costs The network Efficient Costs of a UT Service are best approximated by using a total element long run incremental cost (TELRIC) model. This approach has been adopted by regulators in all major jurisdictions, and has informed Telstras construction of the PIE II model. The PIE II model is more appropriate in assessing the network Efficient Costs of the UT Services than any other model that has previously been used in the Australian context (including the NERA model and the PIE model) because: (a) it is based on the best in use technology as at 1 July 2002; (b) it calculates costs using actual customer locations rather than estimates of average distances between customer locations and the nearest telephone exchange; (c) it is more detailed than other models which have been developed, and therefore more accurately reflects the conditions of supply of services within Australia. PSTN CAN costs The costs that need to be recovered from PSTN and UT Services include the costs of the PSTN CAN, which is a cost common to all of the services using the PSTN. To calculate the PSTN CAN costs, the costs of the CAN should be allocated between PSTN access services and other access services which also use the CAN. The CAN costs allocated to the PSTN ought then be distributed amongst the Retail PSTN Services and the UT Services (which use the PSTN and are acquired by access seekers and used by them in the provision of access seekers own Retail PSTN Services), subject to the following adjustments. First, Telstra receives some revenue from the sale of the basic access service to both end user customers and to access seekers. This revenue is subject to a legislative price cap. This revenue would equally be available to a hypothetical provider of the UT Services over a new build PSTN. Thus, to the extent that Telstra is able to receive such revenue (up to the level of the price cap), such revenues ought to be deducted from the costs of the PSTN CAN before the PSTN CAN costs are allocated to the Retail PSTN and UT Services. Second, Telstra receives payments pursuant to the Universal Service Obligation Scheme (USO Scheme) under Telecommunications (Consumer Protection and Service Standards) Act 1999. These payments (insofar as they relate to the PSTN) would also be available to a hypothetical provider of the UT Services over a new build PSTN. The amount received from the USO scheme that can be attributed to the PSTN CAN ought, therefore, be deducted from the costs of the PSTN CAN. The net PSTN CAN costs (derived by deducting the two amounts of revenue identified above from the total PSTN CAN costs) ought to be recovered from all of the Retail PSTN and UT Services provided by Telstra. Given that the PSTN CAN costs are generally fixed irrespective of the amount of traffic on the PSTN, the PSTN CAN costs ought to be allocated pro rata across all Retail PSTN and UT Service calls. If one of the Retail PSTN or UT Services is unable to bear the costs so allocated to it (for example, due to legislative caps imposed on retail prices) the other UT and Retail PSTN Services ought to bear those costs proportionately. Service Specific Costs The service specific costs incurred as a result of providing the particular UT Service ought to be recovered from prices of that UT Service.  Telstra does not agree with the Commissions estimate of the long term efficient costs of providing the UT Services as set out in the Final Determination.  Telstra Carrier Charges - Price Control Arrangements, Notification and Disallowance Determination No. 1 of 2002, para 13(2). 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