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### Viewing cable 05PARIS1432, FRANCE: ANNUAL SECTION 1377 REVIEW OF TELECOM TRADE

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
05PARIS1432 | 2005-03-04 16:12 | 2011-08-24 00:00 | UNCLASSIFIED | Embassy Paris

`

    This record is a partial extract of the original cable. The full text of the original cable is not available.

` `

    UNCLAS SECTION 01 OF 04 PARIS 001432

    SIPDIS

    STATE FOR EB/CIP FOR TIM FINTON, EUR/WE, AND EUR/ERA
    STATE ALSO PASS TO USTR FOR K SCHAGRIN AND J MCHALE
    USDOC FOR NTIA, ITA, AND 4212/MAC/EUR/OEURA
    FCC FOR INTERNATIONAL

    E.O. 12958: N/A
    TAGS: ECPS ETRD FR WTO
    SUBJECT: FRANCE: ANNUAL SECTION 1377 REVIEW OF TELECOM TRADE
    AGREEMENTS

    NOT FOR INTERNET DISTRIBUTION

    Ref: STATE 026652

    -------------------------
    Introduction and Summary
    -------------------------
    ¶1.  On January 26, EconOff and visiting USTR telecom trade
    specialist Ken Schagrin met with GOF Industry Ministry
    (DIGITIP) officials as well as Telecom Regulatory Authority
    (ART) officials to discuss concerns raised in response to the
    reftel Federal Register Notice published on November 24, 2004.
    The three sections that follow are based on our dialogue with
    these officials as well as our conversations with local telecom
    operators and industry groups throughout the year.  In response
    to our follow-up questions, ART provided further comments
    regarding unbundled leased lines in early March.  In sum, they
    noted changes to French law and subsequent changes to the
    process for negotiating the reference interconnection offering
    and stressed their view that the strengthening of ART's
    authority as well as the process of market analysis are
    calculated to provide the kind of remedies that are fundamental
    to a sound and well-functioning competitive telecom market.
    Indeed, ART wields much more power, as was noted by DIGITIP
    officials when they said that the EU regulatory framework's
    implementation is totally in the hands of the regulator, i.e.
    there is no role for the Industry Ministry in the process of
    drafting regulatory texts.  End summary and introduction.

    -------------------------------------------
    EXCESSIVE FIXED TO MOBILE TERMINATION RATES
    -------------------------------------------
    Is there any ratio between rates charged for termination on
    fixed networks and rates charged for termination on mobile
    networks that reflects the disparate costs of the different
    networks?  What would be a reasonable ratio?

    ¶2.  Our contacts have never mentioned a ratio, neither at the
    telecom regulator (ART) nor among industry experts.  There is
    general agreement in France that mobile termination charges are
    too high.  However, there is also widespread acknowledgement
    that ART has made significant and steady progress addressing
    this issue through mandatory decreases, which are imposed upon
    all mobile operators.  ART began regulating fixed-to-mobile
    (F2M) termination in 1999, imposing a series of reductions (20%
    in 1999, 20% in 2000, and 40% over three years from 2002-2004)
    that have moved France from one of the worst offenders in
    Europe for excessive pricing of F2M to one of the best in
    Europe.  During our January meeting, ART officials highlighted
    for us that they had once again just compelled all three mobile
    operators to reduce these charges further by 36% over two
    years.  This reduction was not required to be immediate, nor
    was it required to affect calls originating in foreign
    countries.  Nevertheless, mobile operators have taken quick
    action and are including foreign-originated calls in the
    reductions, we were told.

    ¶3.  Orange began to lower its rates beginning in January 2005,
    with regular reduction from now until 2007 in order to allow
    the market to progressively adapt over the course of the
    period.  ART officials assured us that calls of foreign origin
    will experience the same evolution.  The lowering of
    termination charges decided upon by the ART (36% over 2 years)
    from January 1, 2005, will -- just like the tariffs themselves
    -- be identical for calls originating in France and in foreign
    countries.  To address charges of cross-subsidization between
    mobile and fixed line services, our ART contact noted that,
    while some have charged that Orange and SFR are vertically
    integrated companies, mobile and fixed phone services have
    separate accounts (an obligation contained in the European
    directives).  Moreover, mobile operators in France now include
    MVNO (Breizh Telecom and Debitel) and competition is
    progressing.

    --  What is the status of your implementation of the EU
    directive to analyze telecom submarkets and identify instances
    of significant market power, with respect to mobile
    termination?  If you have found SMP, what is the status of
    implementing remedies?

    ¶4.  ART is in the process of carrying out the market analyses
    and taking the necessary measures according to the results of
    these analyses.  (The status of the various market analyses can
    be found on ART's web site at:  www.art-telecom.fr)  For
    instance, ART completed on February 1, 2005, its market
    analysis of voice call termination on mobile networks for
    overseas departments.  As a result, ART imposed a 49% decrease
    in wholesale prices for call termination over three years on
    the two main mobile operators in Reunion and in the Antilles-
    Guyana zone, with an initial decline of 20% on April 1, 2005.
    This measure should reduce the cost of fixed-mobile calls in
    France's overseas departments by 38% over three years.
    Currently for mainland France, ART is still in the process of
    doing the market analyses and will be envisioning some
    remedies: obligation of access, non-discrimination and
    transparency (reference: "Bill and Keep"), separation of
    accounting, determination of the reference costs, cost control
    and lowering rates over several years.

    ¶5.  More generally, we found it noteworthy that DIGITIP
    officials not only acknowledged, but highlighted for us ART's
    increased power under the new EU regulatory framework that was
    transposed into French law last July.  DIGITIP Deputy Director
    for Institutional Relations Henri Breuil told us "our role was
    to give (regulatory) power to ART (such that) ART now has the
    same powers as the UK's Ofcom."

    -     Does ART's decision of December 10, 2004, to decrease
    fixed-to-mobile interconnection rates by 36% apply to calls
    originating outside of France?   If not, why not?

    ¶6.  Our understanding of ART's explanation of their most recent
    imposed decreases in F2M charges was that, while ART did not
    require that these decreases be applied to calls outside of
    France, Orange and other operators were applying the reduced
    charges to all calls no matter what their origin.  (See para 3
    above.)

    ------------------------------------------
    EXCESSIVE PRICING AND PROVISIONING DELAYS
    FOR ACCESS TO LEASED LINES
    ------------------------------------------
    RATES:  Are the wholesale (carrier) rates being charged for
    leased lines used by carriers (e.g., two megabit link between a
    carrier's network and its customers) regulated?  If so, how are
    the rates set?  Does the regulator benchmark them against other
    comparable markets?  Is the process for determining rates
    transparent?  Can interested parties challenge cost-data
    submitted by the incumbent operator?
    PROVISIONING:  Is the regulator aware of complaints about the
    time it takes to receive a line?  What are the factors that
    effect delivery?  We have heard allegations that the incumbent
    is providing leased lines faster to their end-user customers
    than they are providing them to requesting competitors.  Are
    there reporting requirements to monitor this?  If not, how is
    this monitored?   If so, are the reports public?

    ¶7.  While DIGITIP officials confirmed to us that the GOF
    Ministry of Finance and Industry has no role or power over
    leased lines, in response to these questions, ART officials
    told us that the process of supplying leased lines complies
    with the general approval process of the interconnection
    catalogue, namely the annual approval process of wholesale
    charges, which is identical for leased lines and for the
    interconnection network traffic.  ART detailed for us the
    approval process steps:
    --Proposed offerings ("the base offer") are sent by FT mid-year
    the year before offers are to take effect.
    --Negotiations with ART and with new entrants via the
    interconnection committee.
    --Discussion of rate levels (a comparison of the charges
    proposed by FT and those given by the CMILT Bottom Up model).
    --Comparison between the list of services proposed by FT and
    the needs of the new entrants to improve the base offer.
    --Final phase of direct negotiation between ART and FT.
    --Approval and publication by ART at the end of the year (we
    have noted that this usually occurs in November) to enter into
    force on January 1.

    ¶8.  ART contacts told us that this process will be modified in
    2005 under the new law.  The new process anticipates that FT
    will publish its base offer without ART's preliminary approval.
    ART can then ask FT to make modifications at any time.  Article
    ¶L. 38 of the new law, which transposed the EU framework
    directive, inter alia, specifies that "The (SMP or dominant)
    operators ... should publish a detailed account of technical
    and rate aspects of the interconnection or access they are
    offering, when they are obliged to be non-discriminatory.  ART
    can impose modifications on such an offer at any time in order
    to make it conform to the terms of the present code. To that
    end, the operator communicates all necessary information to
    ART."  This portion of the new law includes an obligation to
    make interconnection and access information publicly available.
    ART believes that this obligation applies to all of the
    wholesale markets on which France Telecom exerts a dominant
    position.

    ¶9.  FT's base offer must be sufficiently detailed to guarantee
    that the companies are not obliged to pay for resources that
    are not necessary for the requested service.  It will include a
    clear description of the pertinent offers for the all wholesale
    markets of narrow band services, accompanied by the technical
    and rate conditions and the means of provision.  Adhering to
    the access directive, ART will be able to specify the
    information that is to be provided, the level of detail
    required and the mode of publication.  The base offer will
    specify the delays in application and the cancellation
    conditions for the entirety of the services offered.  With
    respect to delays in modifications of the base offer, rate
    changes must be preceded by a warning sufficient to assure ART
    and that the entire sector will be able to reflect these
    developments in retail prices.  As for the benchmarks, our ART
    contacts referred us to European Commission documents that give
    detailed information about how difference countries are
    performing in regards to leased line pricing.  (Post emailed
    these EC documents to EB/CIP, USTR, and EUR/WE on March 4.)
    With respect to the leased lines base offer, they also noted
    that the Commission is currently considering "Methodology,
    reference configuration and data of leased lines in Member
    States."  Finally, on provisioning, ART officials said that a
    sensible improvement is the first step toward a new European
    framework.  The strengthening of ART's authority, and the
    process of market analysis, are calculated to provide remedies
    that are relative to the anticipated delivery in the base offer
    of leased lines, which they viewed as fundamental criteria to
    this type of market.

    --------------------------------------------- -----------
    INDEPENDENCE OF THE REGULATOR / FAVORING THE INCUMBENTS
    --------------------------------------------- -----------
    How does France reconcile the continued shared oversight of
    France Telecom between ART and the Ministry of Finance with its
    Reference Paper commitment to have an independent regulatory
    body? Preferential loans recently extended to France Telecom
    underscore this appearance of favoritism.  What steps, if any,
    in the last year has the French government undertaken to
    rectify this situation?

    ¶10.  In response to our questions on this subject, ART pointed
    out that, on the one hand, the GOF reduced its stake in the
    capital of FT.  Since September 2004, the state has no longer
    been majority shareholder in FT (GOF currently owns 42.25%).
    On the other hand, the ART is competent to accept or refuse the
    rates of the dominant operators, i.e., there will no longer be
    any "homologization" by the Minister of Industry to approve
    ART's opinion.  The new regulatory framework confers new powers
    on the regulator and reinforces its independence.  ART, and no
    longer the Minister as was previously the case, acts alone to
    homologize the retail rates, if necessary.

    ¶11.  ART officials assured us that analysis of the markets
    follows a transparent process that limits the government's
    power of intervention.  In this context, they noted their
    activities with respect to public consultations, consultations
    with the Competition Council and with the opinion of France's
    highest Administrative Court, the State Council, as well as
    other national regulators.  We have heard nothing from our
    industry contacts to contradict ART's assurances regarding
    transparency and independence of this process.  On the question
    of illegal state aid Given to FT, our ART contacts made only
    one comment:  the European Commission concluded that, although
    it was a clear case of state aid, it did not justify a fine or
    a demand for reimbursement.

    ¶12.  DIGITIP officials -- beyond noting that to implement the
    new law which transposed the EU telecom framework directive
    their role was "to give (regulatory) power to ART" as noted
    above -- said that their current role is similar to the U.S.
    Commerce Department's NTIA with, although they are somewhat
    more involved in rulemaking.  DIGITIP sits on the industry side
    of the GOF Ministry of Finance and Industry, but DIGITIP
    officials nonetheless pointed out the Finance Ministry has
    delegated authority to an independent Agency of State
    Participation (known by the French acronym APE) to act on its
    behalf as a shareholder in France Telecom and other companies
    in which the GOF has capital holdings.  In our view, this is
    meant in effect not only to create a Chinese wall behind which
    the GOF can claim that it acts as an unbiased policymaker, but
    also to de-politicize to the extent possible management of its
    financial interests and thereby maximize the value of its
    assets.

    Leach

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