The International
Telecommunication Regulations: time for a revision?
The policy governing all international telecommunication services between
countries rests on principles embodied in one relatively short document: the
International Telecommunication Regulations (ITRs). They represent almost
certainly the oldest regulations of their kind in existence.
A successor to texts of the Union dating back to the days of telegraphic
transmission and the formation of the ITU in 1865, the ITRs were ratified in
their present form in 1988 at the ITU conference on the subject in Melbourne,
Australia, when separate treaties for telephony and telegraphy were essentially
merged.1
The ITRs themselves prescribe (in ten Articles) how international
telecommunication services are defined and mediated between operators and
service providers. For example, they provide for such issues as: traffic flows
between operators, ensuring quality of service of international services,
sufficiency of facilities, international routing, charging, accounting and
billing between operators, the priorities that should be given to health and
safety, and the avoidance of harm to networks and services. The provisions
specifically acknowledge the role of mutual agreement between operators in
providing and exchanging communication services to leave flexibility for
commercial circumstances.
The industry explodes
Now under debate is the need for a possible revision or reinterpretation of
the ITRs. According to some industry observers, the ITRs arguably set the
framework for investment in, and the subsequent massive expansion of,
international networks. In the background, deregulation has transformed the ICT
community worldwide. Thousands of new service providers have appeared around the
world, some 150 independent regulatory agencies have been created, the tidal
wave of privatization has swept over the industry, meaning that most operators
that were formerly state-owned (or the direct arm of government) are now
competing as private companies.
In the foreground, mobile communications and Internet connectivity have grown
beyond imagination. New applications extending well beyond voice have
transformed the telecom landscape. And telecoms traffic of all kinds is
increasingly mediated over networks as IP packets. The question is: can the ITR
system continue to add value to the market as presently constructed or should it
be explicitly revised to take account of the new developments over the past two
decades?
The previous ITU Plenipotentiary Conference of 2006 in
Antalya, Turkey, acknowledged that key factors in the market had changed. It
also recognized that Member States’ evaluations of their policy and regulatory
approaches to support the development of an Information Society might also
require change, although it admitted that a prior review of the ITR system had
not resulted in a consensus about how to proceed. The conference instructed the
ITU Telecommunication Standardization Sector to begin a review of the ITRs
2.Preparatory work, including work for and
during this year’s ITU Plenipotentiary Conference, could provide recommendations
for a potential conference that will highlight the issue, the World Conference
on International Telecommunications (WCIT), scheduled for 2012.
A specialist group, the Council Working Group to Prepare for the World
Conference on International Telecommunications in 2012 (CWG-WCIT12) was created
to report to the ITU Council in 2010 and 2011, to prepare a report for the ITU
Plenipotentiary Conference 2010 and to prepare a final report for the WCIT in
2012.
Why change?
The ITRs are a binding treaty, ratified by 178 Member States of the ITU.
While some Member States say that the ITR system has enabled the industry to
flourish and worked well in terms of its oversight of international
communications and would like to see the ITR framework remain unchanged with no
new issues introduced, others would like to see revisions based on industry
developments.
Some suggest that parts of the ITR operational provisions may either now be
redundant or obsolete, and could be removed. Other views suggest they may be
duplicated by other ITU treaty-level instruments such as the ITU Convention or
Constitution and could be removed, or, if not duplicated, could be moved into
such instruments or into ITU-T Recommendations.
Any option almost certainly requires careful consideration. Even if the ITRs
were to be left unchanged, with no new issues introduced, some experts are also
debating whether they should be interpreted as they would have been in the
1980s, or re-interpreted in light of the environment as it now exists. In some
senses, the ITR debate also focuses attention on the dual, but different,
provisions and approaches between the role of regulation in the telephony world
on the one hand, and the Internet world on the other. As framed, the ITRs do not
specify the technologies or means of connection, and it is likely that any
future versions of the ITRs will also be technologically-neutral.
The debate suggests several issues:
-
How far can, or should, the Internet be accommodated within a
regulatory system that was designed for the global
telecommunications network? Should ITRs be adapted to cover more
recent regimes?
-
What mechanisms should exist to curb abuse, particularly of
resources such as routing, or numbering where service providers
may disguise or suppress originating numbers, or otherwise
practice deception, to obtain commercial advantage vis-à-vis
other providers or to circumvent legitimate prohibition?
-
What – if anything – should be done in a regulatory context
to reduce the high cost of telecommunications that still exists
between some destinations?
-
Should the ITR system incorporate additional provisions such
as cybersecurity protection, perhaps on the basis that ITRs
already make reference to the prevention of harm to facilities
and services?
1
2 , Antalya,
Resolution 146
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