WORLD TRADE
ORGANIZATIONS/C/W/110/Add.8
24 June 1999
(99-2601)
Council for Trade in Services
Special Session on Telecommunications Services
COMMUNICATION FROM THE CHAIRMAN OF THE
TELECOMMUNICATIONS REGULATOR'S
ASSOCIATION OF SOUTHERN AFRICA
Addendum
PART I - The Origins and Objectives of the Telecommunications
Regulator’s Association of Southern Africa (TRASA)1
The origins and objectives of TRASA can be traced to the foundation of the Southern African
Development Community (SADC), formerly k nown as the Southern African Development
Co-ordination Conference (SADCC).  SADC was formed from a May 1979 conference of foreign
ministers on economic co-operation.  The ministers agreed to convene an international conference in
Arusha, Tanzania, with donor governments and international companies.  The Arusha Conference,held in July 1979, brought together for the first time government and international agency
representatives from all parts of the world to discuss regional co-operation in Southern Africa.  In
turn, the Arusha Conference led to the landmark  Lusaka Summit held in the Zambian capital in
April 1980.  The then nine majority-ruled countries of Southern Africa - Angola, Botswana, Lesotho,
Malawi, Mozambique, Swaziland, Tanzania, Zambia and Zimbabwe - met and declared their
commitment "to pursue policies aimed at economic liberation and integrated development of our
national economies."
The Summit adopted the Lusaka Declaration entitled “Southern Africa: Toward Economic
Liberation” as well as a Program of Action co vering areas of Food and Agriculture, Industry,
Manpower Development and Energy. The Heads of State also identified Transport and
Communications as a priority for regional co-operation.  Namibia and South Africa joined in 1990and 1994 respectively.  Mauritius joined in 1995 foll owed by the Democratic Republic of the Congo
and Seychelles in 1997.
The co-ordination of telecommunications issues  within SADC occurs through the Southern
Africa Transport and Communications Commission (SATCC).  Based in Maputo, Mozambique, the
SATCC has been involved in a series of initiatives, including the ratification of the SADC Protocol on
Transport, Communications and Meteorology in 1998.  With statutory support from the Protocol, the
SATCC has been instrumental in the institutional development of TRASA.
2  Through financial and
technical assistance of the Southern African Regional Telecommunications Restructuring (RTR)
                                                     
1  This article was written by Jay Gullish of PricewaterhouseCoopers LLP as part of the RTR Program,
an USAID funded initiative.  The article was adapted in part from “A Framework for Regional Co-operation onRegulatory Issues -- Lessons from TRASA,” by S. E. Funde, TRASA Chairman, South Africa, presented atAfrican Telecom Summit, May 1999, Accra, Ghana.
2 Art. 10.7 of the Protocol provides for the separation between regulation and operation of telecoms
services; Art. 13.13 encourages the creation of regional bodies to provide a framework for collaboration among
members.S/C/W/110/Add.8
Page 2
Program, an USAID-funded project managed by Pric ewaterhouseCoopers, the SATCC is acting as the
temporary TRASA Secretariat.
Prior to the establishment of TRASA, regional regulatory matters were discussed by the
Southern African Telecommunications Admini stration Conference (SATA), an organisation
representing the region’s telecommunications operators.
With the formation of TRASA, which became effective on April 22, 1998, the role of SATA
has migrated toward an organisation representing the region’s telecommunications operators.   The
following is a chronological overview of TRASA’s development and recent activities:
16th SATA Conference
9 -11 July 1996 (Pretoria)
Participants recommended that a separate forum be established for Southern African telecom
regulators
SATCC Regulatory Workshop
15 -17 July 1997 (Johannesburg)
Reinforced the decision through the development of a draft charter for the proposed regional
regulators body
Action Planning Workshop for SADC Protocol on Transport, Communications and
Meteorology
26 -28 January 1997 (Pretoria)
Further consideration and discussion of the proposal for the establishment of TRASA
SATA Conference
22 - 25 April 1997 (Windhoek)
Formal separation of regulators from SATA and the formalisation of the establishment of
TRASA
TRASA Inaugural Meeting
15 - 19 September 1997 (Dar es Salaam)
Special TRASA Meeting
4 December 1997 (Cape Town)
Adoption of TRASA Constitution
1st TRASA AGM
19 - 20 November1998 (Johannesburg)
Election of Executive Committee
TRASA Action Plan
Important role of telecoms in social and economic development
With the increasing globalisation of the telecommunications sector, intra-regional and
international co-operation between regulatory authori ties is critical to understanding and addressing a
rapidly changing environment.  Co-operative planing has been further enhanced by the recent
development and adoption within SADC of regional  policies, programmes and legislation, including
the SADC Model Telecommunications Policy and the SADC Model Telecommunications Legislation.
TRASA aims to bridge the gap between the formulation and creation of regional legislation and
policies by supporting effective implementation at the national level.S/C/W/110/Add.8
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Since regional governments recognise the benefits of harmonisation, one of TRASA's
principle goals is to increase communications and co-ordination between the region’s regulatory
authorities.  Additionally, TRASA seeks to encourage investment in the telecommunications sector by
supporting creation of a common enabling environment, i.e., regulation and taxation, for the SADC
region.  In addition, TRASA seeks to standardise the allocation of radio frequencies and standards.TRASA also endeavours to develop the human capital required to deliver cost-effective
telecommunications services throughout the region.
By working together, TRASA members maximise the utilisation of scarce resources,
including financial and human assets, to prepare for the complex and dynamic regulatory environment
required to achieve open, competitive markets.  The following is a summary of TRASA’s objectives,
as outlined in its Constitution:
• Separation of duties of government, operator and regulator in those countries where
this has not already occurred;
• Establishment of stable, independent regulatory bodies;
• Encouraging legislation that that reflects the policy framework of the individual
countries, the sub-region  and the region;
• Establishment of a mechanism for con tinental co-ordination of regulators;
• Co-ordination of spectrum management and frequency planning;
• Promotion of universal service and access;
• Development of local telecommunications industries;
• Encouragement of private investment through the creation of conditions for an
investor-friendly environment;
• Promotion of fair competition;
• Collaborating with SADC and in particular the South African Transport and
Communications Commission (SATCC);
• Co-operating with other institutions within and outside of the sub-region;
• Holding workshops for capacity building and regulatory policy formulation;
• Forming working groups to deal with specific issues such as spectrum and standards;
and,
• Participating in the activities of other organisations with objectives similar to those of
TRASA.
TRASA Membership
At the end of 1998, six (6) of the region’s independent regulators had signed the TRASA
constitution.  Institutions responsible for regulation in countries without independent regulators also
currently participate in TRASA activities, but wi thout voting privileges.  However, as regulatory
reform in the region continues, the new independent regulators are likely to join TRASA.  Following
are the current TRASA members, along with thos e regulatory authorities that have specific
institutional responsibility:
Botswana (Executive Committee)
Mozambique
Namibia
South Africa (Chair)
TanzaniaZambia (Executive Committee)S/C/W/110/Add.8
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Opportunities for the Future
The institutional development of TRASA offers tremendous opportunity for the region’s
regulators to co-operate in continental efforts to  address pressing issues in the telecommunications
sector.  TRASA participated in the meeting of African Ministers of Communications and the resulting
African Connection document in May 1998.  At that meeting, TRASA representatives were
instrumental in identifying priority areas to be addressed at a regional level, including:
• Rural telecommunications development
• Standards setting
• Spectrum planning and management
• Capacity building and human resource development
• African Centres of Excellence
• Co-ordinating the financing and funding of telecommunications development in
Africa
TRASA has also participated in a number of other international and regional conferences,
meetings and workshops.
Regulatory reform and economic liberalisation in the fourteen SADC countries continue to
gain momentum, attracting new investment and stat e-of-the-art technology to the region.  While each
country pursues its own strategy and pace of change, one overarching trend is clear: the SADC
governments are embarking on ambitious initiatives to improve the economic and social well being of
their populations through reform of the telecommunications sectors.  Whether the agenda is institution
building, privatisation or the licensing of new service providers, these projects provide tremendous
opportunity for the private sector to invest in  telecommunications infrastructure, as well as
modernisation and improved access to advanced telecom technology and information services.  Withthe objective of facilitating regional co-operation, increased investment, and universal services,
TRASA provides a critical focal point to for enabling the harmonisation of regional policy and
optimising the benefits of telecommunications for all of region’s inhabitants.S/C/W/110/Add.8
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PART II - TRASA ACTION PROGRAMME (TAP)
April 1999 – June 2001
A. BACKGROUND
TRASA was established primarily on the basis of the “SADC Protocol on Transport,
Communications and Meteorology” (the Protocol), and the SADC “Model Telecommunication
Legislation.”
The Model Telecommunications legislation was prepared in conjunction with the Model
Policies for SADC in pursuance of the provisions of Article 10.2, Chapter 10 of the Protocol. In line
with these Articles, the aim of TRASA is to be a consultative and collaborative body ofTelecommunications Regulators in order to play a fitting role in the development of
telecommunications in Southern Africa.
Article 10.2 requires SADC Member States to develop a common regional
telecommunications policy in order to develop national telecommunications networks for theprovision of reliable and affordable telecommunications services.
Furthermore, Article 10.7 of the Protocol provides for the separation of  regulation from the
operation of telecommunications services, as well as the creation of autonomous, independent and
national regulatory bodies with statutory authority to regulate and monitor specifictelecommunications related activities.
Article 13.13 of the Protocol encourages the creation of regional bodies to provide a
framework for collaboration and inter-action between and among service providers, users, regulators,
labour and other stakeholders to participate as equal partners in the process of implementation of theProtocol.
The paper, hereunder, provides an outline of the TAP for 1999 -- 2001.  In addition to the
documents noted above, the TAP, is guided by the objectives of TRASA as formulated in its
Constitution, the African Connection,  and the decisions taken at the 1
st TRASA Annual General
Meeting (Johannesburg, November 1998)
The TAP  can be divided into two parts – the Regulatory Action Programme, and the
Operations Action Programme.   These two programmes consist of four components: Strategies,
Actions, Key Performance Indicators, and Time Frames.
B. OBJECTIVES OF TRASA
The Objectives of TRASA as stated in Article 3 of the TRASA Constitution are:
• To coordinate regulatory matters and to exchange ideas, views and           experiences
on all aspects of regulation of the telecommunications sector throughout the Southern
Africa region.
• To promote a uniform level of understanding of regulatory matters
• To promote the establishment and operation of efficient, adequate and cost-effective
telecommunications networks and services in the Southern African region which meetthe diverse needs of customers while being economically sustainable.S/C/W/110/Add.8
Page 6
• To maximise the utilisation of scarce resources in specialist areas of
telecommunications
C. STRATEGIES
To fulfil its objectives, TRASA will need to implement seven key strategies which are in line
with its policy objectives. The strategies of TRASA are to:
1. Encourage and support the timely formation and operation of autonomous regulatory
institutions in the SADC region.
2. Address training and skills development needs of telecommunications regulatory practitioners
in the region.
3. Adopt regulatory policies and practices to provide an enabling environment to facilitate
investment in the information and communications sector.
4. Develop regulatory policies and procedures to serve as a TRASA model  for the operation of
regulatory institutions in the region.
5. Promote the Protocol, Model Legislation and other documents that guide the work of
TRASA.
6. Address the Operational issues that will facilitate the development of TRASA and assist the
organisation to function effectively.
7. Ensure that TRASA has adequate resources to sustain its regulatory Action Programme and
on-going operations
D. ACTIONS TO ACHIEVE THE STRATEGIES
1. Encourage and support the timely formation of autonomous regulatory institutions in
the SADC region.
The formation of regulatory institutions is underpinned by formal agreement of the officials
of SADC, as embodied in a number of documents, including the Protocol and theTelecommunications Policies and Model Legislati on for SADC.  These documents are the references
for the development of regulatory institutions in Southern Africa.
Furthermore, TRASA has the unique ability to demonstrate, to SADC Member States whose
regulatory function still resides within the relevant Ministry or PTT, the benefits of establishing
autonomous regulatory institutions in Southern Africa.
Since regulation is a key element in SADC to achieve an information society, any delay in
establishing effectively operating regulatory institutions can only impair this strategy.
Accordingly, the activities under this action are as follows:
• Implement legislation in telecommunications that provides for the formation and
operation of  autonomous regulatory institutions by all members of SADCS/C/W/110/Add.8
Page 7
• Ensure that the policies  and legislation within the member states are aligned with the
Model Policy and Legislation and are completed timeously.
• Coordinate with members where any difficulty exists that impedes the formation
and/or operation of regulatory institutions.  This requires a progress monitoringmechanism to be established.  If necessary intervention of TRASA may be sought to
resolve any such difficulty.
2. Address training and skills development needs of telecommuncations practitioners in
the region.
The development of the information and communications sector depends on    the availability
of regulatory skills in the country.  Although skills development is a national problem and should be
dealt with at Ministerial level, regulatory auth orities possess information that allows them to
contribute to national efforts.
The following activities shall be undertaken by TRASA:
• Survey and establish skills inventory in the region through a human resource needs
analysis of regulatory authorities in the telecommunications sector.
• Encourage the development of a national Human Resource Development Fund or
another mechanism to fund skills development within the sector
• In collaboration with educational institutions, encourage the establishment of
regulatory courses and their use by TRASA member organisations for professionaldevelopment.
• Set up mechanism to facilitate skills transfer in the region.
• Development of schedule of TRASA trai ning programmes, seminars and workshops
and encourage member states to participate.
• Work with institutes towards an effective executive programme and affordable tariffs.
3. Adopt practices to increase investment in  the information and communication sector.
One of  the major impediments to expansion of telecommunications infrastructure in Africa
generally has been the shortage of funds. The participation of the private sector in the supply of
information and communications services has been accepted by the SADC as an effective strategy.
Regulation is the instrument through which investment in information and communication can be
facilitated.
To this end, the following activities are required of TRASA:
• Ensure the availability of regional  information and communication infrastructure
development plans.
• Collaborate with  investment promotion agencies to attract investment from the
private sector and organise the diffusion of relevant information to this effect.S/C/W/110/Add.8
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• Adopt fair and transparent procedures in processing requests from applicants
including investors, operators and relevant stakeholders.
• Maintain appropriate record of demand and supply of information and
communications technologies, operating entities and services in each country.
4. Develop regulatory policies procedures and guidelines as a TRASA model for the
operation of regulatory institutions in the region
To carry out its duties, which are to ensure the availability of adequate supply of information
and communications services to meet national expectations, each regulatory institution has to be
equipped to fulfil a set of regulatory policies, procedures and guidelines.  The common elements in
these policies , procedures and guidelines could be harmonised among TRASA members so as to
become standards of TRASA, thereby offering the opportunity to speed up the construction of the
information and communications infrastructure in SADC.
The areas in which regional regulatory policy procedures and/or guidelines are needed  are
highlighted as follows:
Universal Service & Universal Access
Determine national and regional understanding of universal service and universal access on
the basis of critical services, geographic coverage, targeted level per service and zone, and universal
service funds.
Licensing
Ensure the availability of clear policies, directives and models regarding classes of licenses,
especially in regard to services to be awarded limited exclusivity periods and those to be operated
under rules of competition.
Tariffs, Cost, and Pricing
Develop guidelines that ensure cost-based ta riffs for services that fall within regulatory
frontiers, and  ensure fair competition in domestic, long distance and international traffic.
Interconnection
Establish national rules guiding interconnection between service providers to allow inter-
operability.
Frequency  Spectrum
Design national and regional plans for allocation and assignment of frequency bands directed
at the economic and timely provision of information and communications service, and regional
coordination.
Numbering
Formulate national and regional plans for allocating telephone numbers to
telecommunications operators to allow for effective traffic routing.S/C/W/110/Add.8
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Standards
Collaborate with industry and standardisation bodies to establish national and regional
standards aimed at achieving economies of scale, and quality of service.
Gender Equity
Formulate national and regional policies and guidelines to address the problem of  inequality
in the telecommunications sector.
Empowerment of Indigenous Peoples
Formulate national and regional policies and guidelines to address issues of the empowerment
of indigenous peoples, particularly those that are economically disadvantaged.
New and Advanced Technologies
Collaborate with industry and other relevant stakeholders in order to understand and regulate
new and advanced technologies.
In addressing the policy areas listed above, TRASA must:
• Establish Committees with  convener, co-convener, and detailed Terms of Reference
• Develop a Competition Policy framework
• Conduct regional Action Planning Workshops
• Develop recommendations in the form of policy documents, guidelines,  and
procedures
• Appoint  a Programme Manager to support the operations of TRASA including  the
Committees and TRASA Workshops
5. Promote and support the Protocol, Model Legislation and other documents that guide
the work of TRASA.
TRASA must ensure that there is increased awareness of the organisation both regionally and
internationally.  In so doing, TRASA will be able to better fulfil its objectives.  Further, TRASA will
be in a better position to seek and secure support from various organisations.  In essence, TRASA
must ensure that it has a positive public relations strategy.
As such, TRASA should ensure its:
• Introduction to similar and relevant organisations including other national regulators
outside SADC, investment pr omotion agencies, ITU, UN, cooperating partners, etc.
• Participation at  relevant regional, continental and international conferences.S/C/W/110/Add.8
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6. Address the Operational issues that will facilitate the development of TRASA and assist
the organisation to function effectively.
In order for TRASA to function efficiently and effectively, it is necessary that administrative
procedures are in place, and that logistical and operational details are addressed on both a national, as
well as a regional level.  As such much responsibility lies on national regulators to ensure thatprocedures and practices are in place.  The role of TRASA in this regard is mainly one of monitoring,
overseeing and in some cases consolidating.
Thus, at a national level Members must:
• Make Annual Contributions  to TRASA ($5,000) Resolution 4-98
• Develop a national Website for the regulator
• Develop a national Databases Resolution 5-98
• Ensure implementation of Y2K Compliance Measures
Resolution 12-98
TRASA must conduct the above-mentioned activities on a regional level, and must monitor
and evaluate the completion of these tasks by the national regulators in the region.  Further to that,TRASA must:
• Finalise the Logo and letterhead Resolution 15-98
• Develop the TRASA Website and Database
• Submit Application to Telecommunications Committee for TRASA to be a
consultative member Resolution 2-98
• Coordinate the Second AGM ,  Resolution 16-98
7. Ensure that TRASA has adequate resources to sustain its Regulatory Action
Programme and on-going Operations
TRASA will require adequate financial means to implement the  actions needed to address the
strategies listed within the proposed time scale of two years.
Financial resources will be necessary to meet TRASA’s administrative requirements and
conduct regulatory-related development activities.
Part of the resources are expected to come from the contributions of TRASA members. Each
member must contribute US$ 5,000 per annum to TRASA as membership dues (Resolution 4-98).  In
the short run, contributions from members may not be sufficient.  TRASA will therefore have to seek
and acquire funding from other sources, or review the membership contribution.
As such TRASA should:
• Design and establish a special purpose regulatory fund to support the implementation
of the TRASA Action Programme, including projects designed at achieving andsustaining an accelerated development of national regulatory institutions.S/C/W/110/Add.8
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• Determine a strategy designed at seeking funding from multiple sources, including
private sector, and /cooperating partners.  Finance from these sources will
complement the contribution from members.
• Consolidate its Secretariat by appointment of full time staff to carry out the duties of
TRASA in an effective manner.
• Establish an information system for TRASA, accessible to members and other
interested parties, to disseminate progress in policy, regulatory and business areas of
the information and communication sector and make these available through the
TRASA website.
E. TARGETED TIME SCALE
A time frame is necessary to ensure that the TAP is implemented.
"The African Connection" has set June 2000 as the deadline for the establishment of
regulatory institutions in Africa.  The SADC countries can adopt this target for completing the
formation of regulatory institution.  In addition, one more year would be provided to complete the
whole TAP.
Deadlines for individual actions are list ed on the attached matrix (Annex 1).
F. IMPLEMENTATION STRUCTURE
TRASA has two years to address the seven strategies and implement the actions in the TAP.
To ensure its timely implementation, TRASA must adhere to the deadlines listed on the attached
matrix.
* * * * *
REFERENCES
1. SADC Protocol on Transport, Communications and Meteorology
2. SADC Model Telecommunications Legislation
3. African Connection
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