•ir -Ù COMMISSION OF THE EUROPEAN COMMUNITIES 
Brussels, 20.11.1996 
COM(96) 590 final 
TOWARDS A EUROPEAN NUMBERING ENVIRONMENT 
GREEN PAPER 
ON A NUMBERING POLICY FOR 
TELECOMMUNICATIONS SERVICES IN EUROPE 
(presented by the Commission) 

EXECUTIVE SUMMARY 
WHY IS NUMBERING IMPORTANT? 
Efficient telecommunications services are a key factor for the emergence of the Information 
Society. An appropriate numbering policy is an essential element to facilitate access to 
telecommunications services for all European businesses and citizens. 
Telecommunications operators and service providers as well as business users increasingly 
look towards Europe as their future market place. But this is an evolution which will affect 
more and more every citizen. Call centres and customer service help desks are often organised 
on a regional or European basis. New services such as teleshopping rapidly enter the European 
market with great expectations for the future. Personal communications are on the doorstep and 
are likely to be broadly available before the tum of the century. At the same time, the regulatory 
environment is changing with 1 January 1998 as the date by which services and infrastructures 
will be fully liberalised across the European Union. 
Numbering is a key enabler of these developments and is rapidly becoming a key commercial 
and competitive factor for the telecommunications industry. It is therefore important to develop 
a European numbering policy. Such a numbering policy must be based on defined political 
priorities. This includes objectives driven by the process of liberalisation and objectives 
resulting from the rapidly changing economic and technological environment. Moreover, with 
the Union-wide introduction of competition, special attention must be given to the take off of 
pan-European networks and services in order to overcome the effects of commercial forces 
which might, in the absence of a clear European policy, tend to fragment the European 
marketplace. 
WHAT DOES THE CUSTOMER GET OUT OF THIS? 
The debate on numbering must take account of the view of the users. They are the ones that 
benefit, from the effects of numbering reform and the introduction of new mechanisms to 
enhance customer choice. 
For instance, the introduction of carrier selection is likely to bring large direct and indirect 
benefits to the European society and economy. It is an essential element to bring increased 
competition on long-distance and international traffic which in turn could save the European 
users as much as 20 to 25 BECU per year. Number portability is another example that allows 
the users to retain their number when they wish to change operators and allows them to make 
the best choice in terms of quality, service and cost. 
Acu 
The opening of service platforms for special pan-European services such as freephone could 
not only bring important additional revenues to operators but also provide easy and user-
friendly access to product marketing and sales organisations with consequential benefits for 
Europe's economy. By way of example, 435 B$ of goods were sold on freephone calls in the 
US in 1993. 
National numbering schemes have to be reformed because of the growth of and changes in the 
market. This presents a unique opportunity to build-in a convergence aim: that is to harmonise 
national numbering schemes such that the European users in the future will face a more 
singular structure throughout Europe which is simple to understand and hence would stimulate 
the propension of using the telephone. Moreover, important psychological barriers associated 
with making international calls could be removed within the European Union. 
KEY ISSUES FOR A NUMBERING POLICY WITHIN THE EUROPEAN UNION 
This Green Paper stresses that discussions on numbering must be part of the general 
regulatory debate. It therefore invites both general and detailed comments of all 
interested parties on a range of issues, including comments on the timetable and 
mechanisms by which policy can be implemented and on the approaches needed to safeguard 
the interests of consumers and of all users. 
KEY ISSUES FOR NUMBERING POLICY WITHIN THE EUROPEAN UNION 
I The role of numbering in ensuring effective competition, and in particular: 
- Carrier selection. 
- Number portability. 
- Restructuring of national numbering plans to foster competition and the role of 
national regulatory authorities in ensuring adequate numbers are available. 
(I Facilitating the single market and, in particular: 
- ' The creation of a European Telephony Numbering Space, 
and within that the need for common access codes for pan-European services 
(such as freephone, shared cost, premium rate or mobile network services). 
- The need for European numbering to be administered by an appropriate 
administrative structure at a European level 
III Adapting Europe's numbering environment to the needs of the 
Information Society, and, in particular: 
- The creation of a long term numbering plan for Europe 
- Naming and addressing in the Internet and other emerging multi-media and on line 
services. 
ESTABLISHING AN AGENDA FOR EUROPE 
Summary of proposals for action 
In order to achieve these objectives the Commission proposes the following targets: 
From 1 January 1998 
1. The implementation of carrier selection (i.e. users are offered a simple, non­
discriminatory mechanism enabling them to select the carrier of their choice on a call 
by call basis). 
2. The implementation as soon as possible of number portability for the local loop 
and, at the latest by 2000 (i.e. allowing users in all major centres of population to keep 
their telephone number at a particular location when changing to another operator or 
service provider). 
3. The promotion of action at a national level to open up and to ensure the convergence 
of national number plans including the harmonisation of specific access codes and 
the adoption of a common standard for keypads supporting alpha-numeric dialling (i.e. 
allowing users to 'dial' names instead of numbers, e.g. 'FLOWERS' for a florist). 
4. The implementation of a European Telephony Numbering Space (i.e. the 
implementation of a common numbering scheme and common access codes for 
special pan-European services : freephone, premium rate and shared cost calls, and, 
if needed, for personal communications services). 
5. The establishment of a common framework for the regulation and administration 
of a common European numbering scheme (including the allocation of European 
service access codes and carrier selection codes, as well as the promotion of the 
Community's interest in international numbering fora). 
6. The review of the issues associated with naming and addressing in the context of 
the Internet and to consider the need, if any, of regulatory action. 
From 1 January 2000 
7. The implementation of carrier pre-selection (i.e. allowing users a simple, non­
discriminatory mechanism enabling them to pre-select the carrier of their choice on a 
permanent or default basis). 
8. The extension of number portability for users of mobile and personal 
communications networks as well as for users of special services (e.g. allowing 
users to retain valuable numbers for freephone or personal communications services), 
taking into account the state of network development and the level of demand. 
From 2000 onwards 
9. The implementation of a long-term numbering plan, involving the creation of a 
European country code ("3"-XX) with the administration and management of the code 
transferred to the European level. 
Comments are invited on each of these proposed measures as well as on the 
proposed timetable. 
The Commission is aware that the introduction of new mechanisms such as those for carrier 
selection as well as measures aimed at a harmonisation of the numbering plans may bring 
significant costs to the industry and more importantly to the user. However, the increase of 
demand for telecommunications services and the introduction of competition mean that 
numbering plans must be adapted in most countries. The aim of this Green Paper is to ensure 
that the changes are made taking into account long term planning objectives and European 
mteuration. 
4 C 
When establishing the agenda and implementation time schedule for Europe we must take 
account of the costs and benefits that may be derived from the measures implemented. On 
balance however, the Commission believes that costs involved will be more than offset by the 
greater choice, improved quality of service and indeed lower tariffs that numberplan changes 
can facilitate. 
Obviously, the propositions made in this Green Paper reach further than the European Union. 
For instance, the ultimate goal of establishing a unique European identity (e.g. Europe 
identified by the initial digit "3" of a three digit country code) would involve the countries in 
Central and Eastern Europe. The discussion can therefore not be confined to the European 
Union only but needs to be broadened to involve CEPT ECTRA to find answers to important 
questions such as how to move forward with a unified numbering environment for Europe but 
at the same time leave sufficient room for a phased introduction of competition in different 
markets according to the different liberalisation time scales of the countries involved. 
And further mechanisms must be sought to ensure the continuing involvement of all interest 
groups at a national and European level in the development of Europe's numbering 
environment. 
COMMENTS ARE INVITED 
This Green Paper is intended to launch an active discussion involving the Council of the 
European Union and the European Parliament; the Economic and Social Committee and the 
Committee of the Regions; the ad-hoc high level Committee of National Regulatory 
Authorities; consumers and business users; fixed and mobile network operators, and service 
providers; manufacturers of equipment; together with the trade unions and other organisations 
representing the social interests in the sector. Comments and opinions are invited on all the 
positions set out in this Green Paper and, in particular, on the proposed targets established in 
the table above. 
On the basis of the Consultation political positions will be developed. The Commission will 
forward those to the Council and the European Parliament. 
Comments should be sent to the European Commission, DG XLII A/1, Rue de la Loi 200, B-
1049 Brussels to the attention of Mr. de Cockborne (fax +32 2 2968391) at the latest by Friday 
21 February 1997. Comments may also be sent by e-mail to: numbering@bxl.dgl3.cec.be 
with reference to "Numbering Green Paper" (in format Word for Windows or Wordperfect). 
siJL 
TABLE OF CONTENTS 
I INTRODUCTION: WHY NUMBERING REFORM? 1 
II THE CURRENT SITUATION 2 
II. 1 The organisation of numbering policy at a global, European and national level 2 
11.2 Much has already been done in the field of numbering 3 
11.3 But key regulatory decisions arc increasingly urgent 6 
III THE KEY TASKS FOR A EUROPEAN NUMBERING POLICY 9 
111.1 Regulatory evolution: "making competition effective" 10 
111.2 Economic evolution: creating an internal market for special services 11 
111.3 Technological evolution: promoting innovation 12 
111.4 Evolution of numbering from the customer's perspective: need for harmonisation 12 
111.5 European numbering: a continuum between national and global numbering 13 
IV PROPOSALS FOR ACTION 15 
rV.l Ensuring effective competition 15 
IV.2 Facilitating a single market 19 
IV.3 Adapting to the Information Society 21 
V CONCLUSIONS 25 
ANNEX I: COMMENTS ON THE ECTRA STRATEGIC OPTIONS FOR NUMBERING AND 
ANALYSIS OF THE COST-BENEFITS 26 
ANNEX II: CARRIER SELECTION 29 
ANNEX ni: NUMBER PORTABILITY 32 
ANNEX IV : PERSONAL COMMUNICATIONS 36 
ANNEX V : A REFERENCE SCENARIO FOR MOVING TO AN OPEN AND UNIFIED 
EUROPEAN NUMBERING ENVIRONMENT 37 
ANNEX VI: ETO/ECTRA STUDIES ON NUMBERING 39 
LIST OF ABBREVIATIONS 40 
GLOSSARY 41 
SI J? 
1 
I INTRODUCTION: WHY NUMBERING REFORM? 
With the emergence of a liberalised telecommunications market within the European 
Union, the availability of adequate numbers, allocated on a fair, transparent and non­
discriminatory basis, is an essential condition for effective competition, innovation and 
consumer choice. 
Numbering was recognised in the 1995 Green Paper on the liberalisation of 
telecommunications infrastructure1 as "a key facilitator - a pivot in market liberalisation 
and the introduction of competition". It was seen as necessary to ensure that the 
"development of telecommunications networks and services are not hampered on 
numbering grounds" and that "this challenge needs to be addressed by careful 
management of the overall numbering schemes, at a global, European and national 
level". 
Moreover, for the completion of the internal market Europe requires the availability of a 
European numbering environment to promote the emergence of pan-European services. 
Easy access to these services through harmonised access codes on a European scale is 
key for the customer and the industry2. 
In the transition to full competition in Europe, numbers are becoming as important a 
resource as frequencies or rights of way3. Over recent years, the number of telephone 
numbers in use within the European Union has significantly increased and exceeds the 
growth in the number of subscribers. Such an increase reflects both the growth in 
business communications and computing. However, even in the home, demand for 
numbers is increasing as users are beginning to take second or third fixed telephone lines 
for faxes or for modems4, and an increasing percentage of the population carry a mobile 
telephone or a pager. 
In addition there are the new entrants in the market such as the cable TV operators and 
the mobile network operators. These operators require equal access conditions which in 
numbering terms means equal quality or equal opportunity numbers. 
This substantial increase in demand is putting pressure on existing national numbering 
plans and leading to important reforms at a national level designed to free extra capacity 
for operators and, ultimately, for users. 
This pattern of reform shows very different national approaches. It does not resolve 
many of the fundamental competitive and consumer issues created by a multi-operator 
environment, nor does it provide an immediate response to the demand for unique 
2 
3 Green Paper on the liberalisation of telecommunications infrastructure and cable TV networks - Part II : A 
common approach to the provision of infrastructure in the European Union (COM(94)6S2 final, 25.1.95) 
According to Article 129b of the Treaty "the Community shall aim at promoting the interconnection and 
interoperability of national networks as well as access to such networks". 
Unlike frequencies and right.s of way which are physically constrained, numbering is elVeclively constrained 
because changes are costly and highly resented by the public. 
More than 6 of the 15 Member States have a residential main line penetration rate per 100 households of 
over 100%, with the ligure reaching 121% in Sweden. See Communication of 13 March 1996 on universal 
service for télécommunications in the perspective of a fully liberalised environment, COM(%) 73. 
. I 
Europe-wide numbers for certain operators or certain services - numbers which can only 
be provided if adequately co-ordinated at a European or global level. 
Solutions are urgently needed : 
- to offer choice to the customer: unless users can easily choose or even pre-select 
competing carriers and can keep their fixed or mobile telephone number when they 
change telephone companies or service providers, competition will be held back. 
- to minimise total cost of change: frequent changes in a national numbering scheme 
involve high costs in re-programming equipment and updating software. For 
companies providing pan-European services to customers, the pattern of continual 
and uncoordinated change place significant costs on operators and service providers, 
as do the existence of difference numbers and service access codes in different 
countries. A stable long term plan, communicated to the market well in advance, can 
lead to important cost saving as it allows businesses to reprint stationary, repaint 
vehicles and inform customers as part of their normal procedures. 
- to facilitate easy and informed access: in an increasingly complex environment, 
simple and easily understood numbering schemes help users to make and receive 
calls, to select different operators for different national and pan-European services 
both inside and outside their home country. They would also provide important tariff 
indications to the customer about what they can expect to pay for a call. 
- to bring about further harmonisation across Europe: the possibility of innovative 
approaches to numbering, for example replacing numbers with words, will further 
ease the use of telephone but to achieve this Europe must have a standard telephone 
keypad. Further, a European Telephony Numbering Space (ETNS) could provide 
common service access codes across Europe (for example, for European-wide 
freephone, value-added or mobile services or for shared cost services5). 
The proposals and positions set out in this Green Paper in respect of these various issues 
are consistent with the general approach followed by the Community in the area of 
- telecommunications since 1987. This approach, which has been confined to those areas 
where action is required and appropriate at European level, balances the gradual opening 
up of markets with an accompanying regulatory framework ensuring fair competition 
and protecting the public interest, and a case by case application of competition rules. 
II THE CURRENT SITUATION 
II. 1 The organisation of numbering policy at a global, European and national level 
Today there is a complex set of rules governing numbering policy established at a 
national level, through Community action in some areas or by ECTRA / ETO in 
others, and an overall framework established by the International 
Telecommunications Union (ITU) with regard to a range of issues having a global 
impact, from the allocation of country codes to the maximum length of telephone 
numbers and the introduction of global numbers, for services such as global 
freephone (based on the 800 number). 
Given that relevant access codes lor mobile and value-added services vary between Member States, a user 
calling such a number from another Member State may often be unaware that he or she is dialling a number 
to which a premium or higher call rate will apply. 
The regulation of country codes is one of the most important functions of the ITU 
in relation to numbering. A process of review is currently underway as to how the 
World telephony numbering plan might evolve to meet the demand. In particular, 
both Governments and operators are pushing for country codes to be allocated not 
only to new States, but also to specific types of service (for example, satellite-
based personal communications services - where each system operator has 
requested the allocation of a country code for global access), and even to specific 
networks or network operators . With only 85 country codes remaining, the limits 
of the current global numbering plan are becoming apparent6. 
At the national level, numbers have been traditionally owned and managed by the 
incumbent telecommunications organisation. Those companies allocated the 
dialling codes for particular cities or particular services (e.g. mobile or paging 
systems), the individual numbers for their customers and, where they existed, the 
numbers used by their competitors. Such national numbering schemes vary 
between Member States, but conform to general rules established at a global level 
under the auspices of the ITU. 
Whilst the day to day administration of national numbering, in line with the 
principle of subsidiarity, will remain a national function to be carried out by an 
authority independent of the operators, further action is needed at a European level, 
both to developing a long term strategy and structure for numbering in Europe and 
to co-ordinate and present common European positions in relation to external 
developments, such as those within the ITU. Given the extensive resources 
required to follow the work within ITU Working Groups a co-ordinated European 
position represents the only practical way for a number of European countries to 
ensure that their voice can be adequately heard. 
This dual approach will continue the process of co-ordination between national, 
regional and global action and complete the development of the internal market for 
telecommunications, whilst protecting basic user needs. 
II.2 Much has already been done in the field of numbering 
Since the early 1990's, the European Commission, the Council and the European 
Parliament have been active in developing an open and unified numbering 
environment within Europe. These initiatives are already achieving key regulatory 
objectives: 
Common Europe-wide numbers for emergency or international calls in 
Member States. 
- A Europe-wide access code for emergency services (112), to operate from 
1992 and only in justified cases from 1996 alongside existing national 
emergency codes . 
The capacity of the global numbering plan cannot be easily expanded because the maximum number length 
is fixed at 15 digits. Moreover, it is increasingly difficult and lime-consummg to obtain the necessary 
consensus within the ITU to proceed with changes to the current global plan within a workable limescalc. 
given the commercial and political interests involved. 
Council Decision of 29 .Uily 1991 on the introduction of a single Huropcan emergency call number 
(91/396/Hl-:c. ( ).l 1.2 17/3 1. 06.08.91) 
8 
il 
12 
13 •4 
A Europe-wide access code for international dialling (00) to be introduced 
between 1992 and 19988. 
A clear role for national regulatory authorities 
The basic principles governing numbering and number allocation were examined 
in the 1994 Mobile Green Paper9 and in the 1995 Infrastructure Green Paper10 and 
attracted wide comment and support11. These positions have now been 
incorporated into the emerging regulatory framework for a liberalised 
telecommunications environment. 
- Member States must separate operational and regulatory activities in the area 
of numbering. National numbering plans must be controlled by the National 
Regulatory Authority and adequate details of them must be published at a 
national level. 
- Additionally, obligations have been placed on Member States or proposed to 
ensure that : 
adequate numbers are available for all telecommunications services (by 
1 July 1997)12. 
numbers are allocated in an, objective, non-discriminatory, 
proportionate and transparent manner and on the basis of individual 
applications by operators or service providers13. 
adequate numbering ranges are available for all publicly available 
telecommunications services; and that "number portability" (i.e. the 
possibility of a user to retain his/her telephone number when changing 
telephone company at a particular location) is introduced within the 
fixed network as early as possible and at least in all major centres of 
population by 1 January 2003 at the latest14. 
Council Decision of 11 May 1992 on the introduction'of a standard international telephone access code in the 
Community (92/264/EEC; OJ L137/21, 20.05.92) 
Towards the Personal Communications Environment : Green Paper on a common approach in the field of 
mobile and personal communications in the European Union, COM (94) 145 final, 27.4.94 
Green Paper on the liberalisation of telecommunications infrastructure and cable TV networks, Part II, A 
commbn approach to the provision of infrastructure for telecommunications in the European Union, 
COM(94) 682 final, 25.01.95 
See Commission Communication on the consultation on the Mobile Green Papu, OOM(94) 492, 23.11.94 
and Commission Communication on the consultation of the Green Paper on the liberalisation of 
telecommunications infrastructure and cable television networks, COM(95) 158, 3.5.95 
Commission Directive 96/19/EC of 13 March 1996 amending Directive 90/388/EEC with regard to the 
implementation of full competition in telecommunications markets, OJ L 74/13, 22.3.96 
Directive 95/62/EC of the European Parliament and of the Council of 13 December 1995 on the application 
of open network provision (ONP) to voice telephony. OJ L 321/6. 3 1.12.95 
" Common Position (EC) No 34/96 adopted by the Council on IS June 1996 with a view to adopting a 
European Parliament and Council Directive on intereonncciion m telecommunications with regard to 
ensuring universal service and interoperability through application of the principles of Open Network 
Provision (ONI1), in particular Articles 6, 9 and 1 2. OJ 96/C 22o/u3. 29.7.96 
5 
Establishing a framework extending beyond the European Community for co­
operation on numbering. 
In 1992 the Council set the establishment of a European Telephony 
Numbering Space as a major goal and called on Member States to work 
within the CEPT to develop a framework for numbering co-ordination 
involving the European Commission15. 
In 1994 the Commission signed a Memorandum of Understanding with the 
European Committee of Telecommunications Regulatory Authorities 
(ECTRA), together with a Framework Contract for the European 
Telecommunications Office (ETO) with the aim of part-financing studies and 
working groups, involving representatives from 43 European countries, on a 
wide range of numbering issues. Studies carried out for the Commission on 
the subject of numbering are listed in Annex VI. 
- In 1994 a European Numbering Forum (ENF) was created in order to involve 
all interested parties in the evolution of numbering policy within Europe. 
The ENF, which is open to any European organisation having an interest in 
numbering or addressing1 , prepares opinions, recommendations and reports 
for both the Community and for ECTRA. 
- With regard to numbering activity at a regional and global level, considerable 
effort is devoted by the Commission in promoting common European 
positions (within ECTRA), which can then form the basis for negotiations 
within the ITU and other fora. 
Towards a European Telephony Numbering Environment 
The 1992 Council Resolution, invited the Member States to start work in the 
context of ECTRA on the establishment of a European Telephony Numbering 
Space (ETNS) i.e. a numbering space for parallel implementation to the existing 
national numbering schemes. A market-oriented study identified demand for pan-
European numbered services . A later study by ETO concluded that an ETNS 
would provide Europe with the vital flexibility required to implement pan-
European services and necessary to ensure Europe's future competitiveness on the 
world scene . 
ECTRA defined an evolutionary strategy for progression from today's numbering 
environment towards an open and unified numbering environment with a clear 
16 Council Resolution of 19 November 1992 on the promotion of Europe-wide co-operation on numbering of 
telecommunications services (92/C 318/02; OJ C318/2, 04.12.92) 
The following bodies are member of the ENF: the European Public 'lelecommunications Network Operators' 
Association (ETNO), the European Telecommunications Standards Institute (ETSI), the European 
Information Industry Association (EIIA), the European Telecommunications Manufacturers Association 
(ECTEL), the luiropean Computer Manufacturers Association (ECMA), the GSM MoU luiropean Interest 
Group (EIG), ECTRA and the luiropean Commission. Further applications for membership are expected. 
Potential Opportunities Afforded by a New luiropean Telephony Numbering Space. Final Report, Mary 
Ann O'l.oughlin and Stuart Sharrock marketing consultants, 20 April 1994 
Preparation of submission to ITU requesting a virtual country code for the imple/iienta/ion of a numbering 
space for special ser\-ices of pan-lùiropean nature, ETO, 3 I March 1995 
European identity19 and launched a broad consultation of participating numbering 
administrations and the European Numbering Forum (see Annex I). Four options 
were proposed: 
- Option 1 : Maintaining the current situation. 
- Option 2 : Implementing an ETNS for special services (e.g. freephone, 
premium rate and/or shared cost services) 
- Option 3 : Creation, in addition to providing numbers for special services, of a 
clear European numbering identity (three digit numbering codes) by using the 
number "3" to proceed current national country codes (e.g. "333" for France or 
"344" for the UK). This would liberate up to 50 new country codes within 
Europe and allow the current codes starting with number "4" to be recycled 
within the world-wide numbering plan. 
- Option 4 : Creation of a single digit country code for Europe, (similar to the use 
of "1" to call North America from other parts of the world or "I" + the local 
area code to call long-distance within North America) within a unified 
European numbering scheme, which would over time merge with national 
schemes. 
The consultation showed that whilst Option 1 was widely rejected and there was 
support for rapid progress on Option 2, there was a clear split of opinion between 
incumbent operators and new market players with regard to the need for rapid 
progress on Options 3 and 4. . 
II.3 But key regulatory decisions are increasingly urgent 
Whilst progress has been made, further action is required at a European level to 
respond to new market market developments resulting from the ongoing 
liberalisation process whilst ensuring an adequate protection of the customer 
interests. 
Responding to user and market needs 
Numbering schemes must be opened for competition, if users* are to have a real 
choice as to who provides them with service. Even the efforts to ensure 
independent allocation and management of numbering will be of limited benefit, if 
the regulator is working with a numbering. scheme designed for a monopoly 
environment. New entrants must be able to obtain equal quality numbers for 
example through dialling parity22. Carrier selection and number portability are 
considered essential to allow customers to choose their long-distance carrier or 
retain their number if they wish to change operator and make the best choice in 
19 Strategic options for numbering of telecommunications services m Euiope, 1 l i AA FT N, 27 July 1994 
20 Report on the consultation on strategic options for numbering of telecommunications services in Europe, by 
ECTRA PTN. 10 July 1995 
This split of opinion was confirmed by the contributions received on the consultation mi the Green Paper on 
the liberalisation olTelceommunieations infrastructure anil cable IV networks, COM(9-l) 6S2. 25.01.95 
22 dialling parity exist when the same number of digits have to be dialled for access to services of competing 
operators 
service, service quality and price. Besides the direct benefits of price savings, this 
is expected to bring large indirect benefits to society and economy. 
Numbering will be a key facilitator for the completion of the internal market for 
telecommunications networks and services, and, in particular, for take off of new 
pan-European services "> (such as Europe-wide freephone services, tele-shopping, 
easy access to road-side emergency, transport or tourism information), based on 
single Europe-wide numbers. It will give European business better opportunities 
to take advantage of the Information Society, and strengthen Europe's 
telecommunications industry as it competes in a more open World market. 
In a multi-operator environment and in a Europe, where more and more people are 
travelling, working and living in different parts of the Union, expectations are 
raised that use of the telephone should be simple and user-friendly. Furthermore, 
users expect the numbers they dial to give some indication of price (e.g. 
international, long-distance, mobile or premium-rate tariffs are today readily 
identifiable from the numbers, even if there is a confusing variation from country to 
country). A new approach to numbering at a European level may present an 
opportunity to meet these concerns through the harmonisation of dialling 
arrangements across Europe, providing this can be justified on the basis of 
demand, the level of network developments and the costs involved 
If Europe wishes to reap the full benefits of the liberalised internal market, it will 
need a numbering environment that can fully accommodate present and future 
requirements. This may involve major restructuring of national numbering plans, 
but such changes are proceeding today at national level in any event and they are 
not always part of a clear long-term strategy reflecting the reality of a Europe-wide 
market. 
Users and the telecommunications industry demand a clear picture of the future 
numbering landscape. This involves not only the numbers and technical facilities 
linked to those numbers, but who will be taking the decisions on numbering and, in 
the context of promoting pan-European services based on Europe-wide numbers, 
how the tasks of operating and managing a European Telephony Numbering Space 
can be split. 
Finally, the changes which this Paper envisages, if not adequately managed, could 
be costly, disruptive and unpopular24. This means that the Paper must focus not 
only on the decisions to be taken, but the way in which the implementation of 
numbering decisions will be managed and the timescale within which the targets 
set out in this Paper can be reached. The long lead times involved in restructuring 
the number format (e.g. for carrier selection) means that the need for decisions is 
seen by operators, service providers and equipment manufacturers as urgent. 
2" The introduction in the Union of earner selection for international and long-distance trunk traffic would put 
some 40 - 50 billion ECU per year of telecommunications revenues at stake; the opening of a freephone 
market would lead to incremental revenues as high as 4 to 5 billion ECU per year; see The harmonised 
European telephone services market: the economic stakes and the need for numbering solutions, Sagalel, 
Paris, March 1996. 
2'' One example, is that the cost of changing switchboards and other customer equipment related to a major 
numbcrplan change in Germany has been estimated at around 3000 man-years o\ effort. See Private 
Network Perspective on the Cost of Number Changes, ECMA. -I March 1996 
At the same time, numbering changes have already been undertaken at a national 
level and those changes may themselves need to be adapted to decisions taken at a 
European or global level. Only a co-ordinated approach to numbering reform can 
minimise this disruption. This means that Member States should avoid 
unnecessary changes pending the emergence of a long-term European strategy for 
numbering. 
Furthermore, users must be closely involved in the formulation of a long-term 
numbering strategy for Europe, and, where changes are necessary, a proper 
assessment must be made of both the cost's involved and the benefits which will 
follow for both business and consumers. 
Responding to the political mandate for change 
The issues of user and market need identified above, find a parallel in the political 
framework for the changes which this Paper proposes. In three specific areas, work 
remains to be done to fulfil the political objectives identified by Council and the 
European Parliament over the last three years in the numbering area. These can be 
summarised as 
- Completing the télécoms regulatory framework for Ml liberalisation in 
1998 and consulting on the future regulatory framework required to ensure 
an efficient management of numbers (i.e. to ensure fair competition and 
equitable treatment for the vatious market players26), 
This goes beyond the framework introduced by the ONP Voice Telephony 
. Directive27, the proposed Interconnection Directive28, the proposed Licensing 
Directive29 and the Full Competition Directive""0, whose provisions on 
25 Council Resolution 93/C213/01 on the review of the situation of the telecommunications sector and the need 
for further development in that market, OJ C 213, 6.8.1993, p. 1 
20 Council Resolution on the implementation of the future regulatory framework for telecommunications, OJ 
. 95/C 258/01, 18.09.95 
2' Directive 95/62/EC of the European Parliament and of the Council of 13 December 1995 on the application 
of open network provision (ONP) to voice telephony, OJ L321, 31.12.95 and; Proposal for a European 
* Parliament and Council Directive on the application of open network provision (ONP) to voice telephony 
and on universal service for telecommunications in a competitive environment (replacing 95/62/EC), 
COM(96) 419, 11 September 1996, OJ... to be published 
28 Common Position (EC) No 34/96 adopted by the Council on 18 June 1996 with a view to adopting a 
European Parliament and Council Directive on interconnection in telecommunications with regard to 
ensuring universal service and interoperability through application of the principles of Open Network 
Provision (ONP), in particular Articles 6, 9 and 12, OJ 96/C 220/13, 29.7.96 
h' Common Position adopted by the Council of 27 September 1996 with a view to adopting a European 
Parliament and Council Directive on a common framework for general authorizations and individual 
licenses in the field of telecommunications services, to be published shortly, proposal ref: COM(95) 545 
final, Brussels, 14.11.1995. Within the current framework , the granting of numbers can be implemented 
through general authorisations or individual licenses, conditions and procedures must be transparent and 
non-discriminator)', time limits arc imposed on Member States and fees can be charged. The reasons for 
limiting the number of individual licenses (only to the use of radio frequencies was a limitation in the 
Commission's initial proposal) have been extended to numbering, but only on a temporary basis and subject 
to compliance with applicable Community law, which inter alia refers to Commission Directive 96/19/EC 
(OJ 1. 71/1 3, 22.3.96) 
:'° Commission Directive 96/19/EC of 13 March 1996 amending Directive 90/388/EEC with regard to the 
implementation of full competition in telecommunications markets. ( )..' 22.3.'?o 
numbering were outlined above, but to look beyond 1998 to the numbering 
challenges in a multi-operator environment. 
Facilitating the rapid introduction of pan-European services based on (he 
European Telephony Numbering Space (ETNS/1, 
This proposal was linked to the completion of additional studies. These studies 
have shown an identified demand for pan-European services. Technical studies 
on the implementation are underway arid will be concluded in the mid of 1997. 
In the light of that work, this Paper makes proposals in relation to both the 
numbers themselves and the framework for their future management and 
control. 
Establishing clear schedules for numbering for mobile and personal 
communications, 
Following the consultation on the Mobile Green Paper"2, the political 
discussions in the. Council3^ and the European Parliament34 resulted in a call for 
action in this field. 
Council Resolution of 19 November 1992 on the promotion of Europe-wide cooperation on numbering of 
telecommunications services (OJ 92/C 3 18/02) 
Towards the Personal Communications Environment: Green Paper on a common approach in the field of 
mobile and personal communications in the European Union, COM(94)145 final, 27.04.1994 
Council Resolution of 29 June 1995 on the further development of mobile and personal communications in 
the European Union (OJ 95/C 188/02) 
luiropean Parliament Resolution on the further development of mobile and personal communications in the 
European Union. A4-0097/95, ( ).l C 151/473, 19 06.95 
10 
HI THE KEY TASKS FOR A EUROPEAN NUMBERING POLICY 
hi responding to the future needs of the market and the European customers, the 
following key tasks can be identified for a European numbering policy: 
KEY ISSUES FOR A NUMBERING POLICY WITHIN THE EUROPEAN UNION 
I The role of numbering in ensuring effective competition, and in particular: 
- Carrier selection. 
- Number portability. 
- Restructuring of national numbering plans to foster competition and the role of 
national regulatory authorities in ensuring adequate numbers are available. 
II Facilitating the single market and, in particular: 
- The creation of a European Telephony Numbering Space, 
and within that the need for common access codes for pan-European services 
(such as freephone, shared cost, premium rate or mobile network services). 
- The need for European numbering to be administered by an appropriate 
administrative structure at a European level 
III Adapting Europe's numbering environment to the needs of the 
Information Society, and, in particular: 
- The creation of a long term numbering plan for Europe 
- Naming and addressing in the Internet and other emerging multi-media and on line 
services. 
III.l Regulatory evolution: "making competition effective" 
For competition to be effective, users must be able to choose easily between thé 
services of competing carriers. This principle of open access is likely to impact all 
current numbering arrangements. In practice, it is likely to mean, for example : 
- the use of specific short codes for access to directory enquiries or to different 
long-distance carriers; 
- the need for operators and service providers to have "fully open" access to 
numbering ranges for services such as freephone; or 
- the ability for subscribers to take their existing numbers with them when they 
change operators or service provider (portability of numbers between 
operators). 
Competing service providers, both those providing telecommunications services 
and those providing services employing telecommunications for access, will be 
concerned not only with the quantity of numbers they are allocated, but also with 
their "quality". This may, for example, involve numbers that are easy to learn, 
remember or subjectively pleasing or the user recognition of the meanings of 
11 
certain codes e.g. for appropriate access branding (identification). These service 
providers must therefore also be given equal access to numbers. This concept must 
pervade the development of numbering schemes and the allocation of numbers. 
Under the framework contract between the Commission and ETO, ETO has 
carried out two numbering studies in this areaj5. Under a new work order from the 
Commission, ETO will turn the outcome of these studies into Numbering 
Conventions which establish an important policy baseline for Numbering 
Administrations and provide common rules, for example, on the rights associated 
with numbers and the procedures for allocating them. 
III.2 Economic evolution: creating an internal market for special services 
A recent study for the Commission36 and the work by ECTRA outlined above 
show that there is a strong demand for the development of a range of special 
Europe-wide services, such as freephone services, shared revenue or premium rate 
services, calling card/country direct services and, emerging service areas such as 
shared cost services. This would allow goods and services to be offered Europe-
wide on the basis of a single number, offering the businesses using such numbers 
significant cost savings in their marketing and advertising costs, whilst stimulating 
further the growth in cross-border provision of goods and services and stimulating 
employment in these sectors, often in the Unions less favoured regions37. It would 
lead to a significant increase in European telephone traffic offering potentially 
significant cost-reductions for the telecommunications industry. 
The study for Commission also concluded that common Europe-wide access codes 
within a European numbering space would provide Europe with the vital flexibility 
to meet future service requirements while responding to a clear demand from, 
today's market. Moreover; that it would provide nascent market sectors with the 
opportunity to develop regional services with a truly European identity. 
Thus, the establishment of a European numbering space would provide the 
flexibility to meet the future demands of the internal market for special 
telecommunications services , offering both business and consumers greater choice 
and reduced costs" . European service providers would benefit from economies of 
Under a study on non-discriminatory access to numbering resources, ETO investigated issues such as the 
allocation and rights of use of numbers, number ownership, tradability of numbers, non-discriminatory 
access to directory services and the allocation of data network identification codes (DNICs/PNICs). Another 
study on numbering related to the topic of user-friendliness aimed at defining structured and logical dialling 
arrangements for future service access codes across Europe. It also involved the harmonised alpha-numeric 
keypad in Europe to allow for re-introduction of alpha-numeric dialling in the future. The final reports will 
be delivered to the Commission in the course of 1996 and will contain the ECTRA approved findings and 
proposals as well as any comments individual ECTRA members may have on these issues. 
Potential Opportunities Afforded by a New European Telephony Numbering Space, Final Report, Mary 
Ann O'Loughlin and Stuart Sharrock marketing consultants, 20 April 1994. Comments were invited from 
network operators, managed service bureaux and information service providers throughout Europe. 
One example, is that of Call Centres located in one Member Stale, handling tclc-sales from all over Europe 
or offering 'help desk" services within the computer and software industries. More than 6000 companies in a 
wide range of industries now have service "call centres" to provide information to customers (many on a 
pan-European basis). These employ around 130,000 Europeans and are expected lo generate another 
100,000 jobs by 2000. The development of these facilities has been strongest in Ireland. Source K.PMG 
1996. 
In principle, pan-European services could also be numbered from within global numbering resources where 
available (eu., global freephone or 800). In question'here are the perceived threat ol US dominance with a 
12 
scope and scale, which should in turn be passed on to customers in terms of lower 
prices and greater innovation. Moreover, it would put European service providers 
in a better position to prepare themselves for global services competition and create 
a more outward-looking focus on emerging markets. 
III.3 Technological evolution: promoting innovation 
Numbering must facilitate the combination of different types of 
telecommunications services based on a mixture of technologies and standards, 
(such as a single subscription offering the user mobile and fixed network services) 
instead of requiring a different telephone number to be associated with each of the 
systems. At present, users are allocated numbers which are country, network and 
operator specific. In the future however, users may wish to have numbers which 
are independent of network or service provider, service type, location and terminal 
equipment. In other words, users should have personal numbers which are 
allocated to the user rather than to the network. 
Such personal numbers would allow a user to be contacted in his or her office, 
home, car or whilst "roaming" anywhere in Europe or beyond. The customer 
would rarely know or care whether the communication was being passed via a 
mobile, satellite or fixed network (i.e. the PSTN/ISDN), but would benefit from 
the ability to stay in touch, whilst being receiving service and being billed from a 
single point of contact. 
New combined technology concepts have already been introduced such as the 
"follow me" functionality or are on the horizon such as the concept of personal 
communications which is being build on the massive growth of mobile and 
personal communications. Given the ability of such new concepts to combine 
numbering borders, both in terms of different numbers associated with different 
technologies and in terms of geographical boundaries set by national numbering 
plans into single combinations solutions, they require a unique numbering solution 
at a regional and global level. 
III.4 Evolution of numbering from the customer's perspective: need for 
harmonisation 
In the emerging liberalised environment, users have a right to expect that more 
choice does not simply mean longer and more complex numbers. Here regulatory 
intervention may be justifiable in order to overcome the risk that commercial 
• pressures lead to users facing a diverse set of new access codes and different 
number structures for identical services, fragmented on the basis of national 
borders or any particular group of countries or even individual operators" . 
global approach, the speed of implementation of ditTerent solutions, the flexibility to respond to as yet 
unknown future requirements and the possiblity to accommodate special numbers unique to Europe Further, 
regional and global numbering solutions may live alongside each other with the possibilities for a graceful 
migration from one to the other. 
39 In this respect, conuncrcial operators have recently called in ITU-T Study Group-2 for the allocation of 
special country codes lo network/network operators lo open up access possibilities and allow for 
"Telco branding*' of their services on a global level. Apart from the fact that this would conflict with 
the aim of portability and could result in an inefficient utilisation of numbering resources as 
network/network operator codes would start lo compete with general sen ice codes. Tclco branding 
seems contradictory to basic customer needs such as an understandable numbering scheme that 
allows Iheni lo s:el a broad indication of service and charge before they make ;i call. 'The growing 
13 
Beyond action to harmonise certain access codes for specific services, as well as 
number structures, both consumers and business should be able to benefit from so-
called "alpha-numeric" dialling. This facility, which was once common in Europe, 
and which has taken on a significant role in the US freephone market, allows users 
to make calls on the basis of more easily remembered names or words, rather than 
numbers. 
For alpha-numeric dialling to take off once again in Europe, the keypads on 
telephone handsets must be harmonised, so that the same letters are assigned to the 
same numbers on every telephone. At présent different assignments are in use 
within Europe, therefore agreement on just one format for the alpha-numeric 
keypad would form a first important step40. 
III.5 European numbering: a continuum between national and global numbering 
global versus European numbering solutions 
Preparations are underway in the ITU-T to open global service codes for the 
Universal International Freephone Service (UIFS or global freephone) and for 
Universal Personal Telecommunications (UPT). There is a tendency to assume that 
business and users will prefer these global solutions and that consequently the 
demand for European-wide numbers will be of a much lower order. The 
Commission considers that that view is incorrect. 
Firstly, ITU-T Recommendations offer a relatively weak enforcement mechanism 
which, when the competitive impact of a UIFS becomes fully clear, may be 
insufficient to ensure that a true pan-European freephone market emerges. As 
such, the UIFS will provide merely a framework for commercial agreement where 
the best we can hope for are fragmented service offerings negotiated between 
individual operators on a bilateral basis. 
Secondly, the extent to which specific Europe-wide numbers may be required 
should not be underestimated. The internal market presents opportunities for 
services providers that do not exist at the national level. European service providers 
have tended to identify specific European, rather than global, market 
opportunities41, in terms of information and entertainment services through to 
product marketing and promotion to direct response and teleshopping services . 
Although many products are available world-wide, their sales, marketing and 
customer support activities are usually organised on a regional basis for cultural, 
power of commercial forces in ITU-T raises also fundamental questions about objectivity, 
transparency and a possible bypass of national regulations. 
10 The harmonisation of keypads is currently under discussion in ECTRA. In parallel, ACTE is looking into 
this matter. It is thought to be unlikely that a hamioniscd keypad could be considered to be covered by the 
Terminal Directive 91/263 (OJ LI28/1, 23.05.91) However, AC'l'E believes that harmonisation is desirable 
and the matter is due to be discussed further. 
Sec, Potential Opportunities Afforded by a New European Telephony Numbering Space, Final Report, 
Mary Ann O'Loughlin and Stuart ShaiTock marketing consultants, 20 April 1994. 
c Teleshopping in this context means all new forms of teleshopping in the broad sense including those 
meant by the Council Common Position of S July 1996 with a view lo adopting a Directive amending 
Directive 89/552/ËEC of 3 October 1989 "Television without Frontiers" as well as other new forms of 
teleshopping through interactive tclc-scrviccs 
14 
linguistic and logistical reasons, so there are not necessarily significant cost 
benefits to be associated with a global rather than a regional freephone number. In 
the end, multi-nationals may well make their decision based on an assessment of 
whichever numbers are made available in a timely and consistent manner within 
the region within which they operate. 
Thirdly, global developments do not address latent demands for Europe-wide 
services such a premium rate and shared cost services. 
Fourthly and perhaps most importantly, the pace of the liberalisation in the Europe 
Union is progressing more rapidly than in many other parts of the World. Current 
work in the ITU must inevitably take account of both the more rapid progress 
towards liberalisation in certain countries and the slower progress in others. It is 
doubtful whether the ITU will be able to produce the type of open numbering 
environment that Europe requires to fully accommodate the needs of the liberalised 
sector . Indeed, such an environment would pose significant competitive threats 
to national operators in those countries where liberalisation is not so advanced. The 
European Union cannot wait for ITU developments, but must take its own 
initiatives in this field. 
a European dimension to national numbering 
As Member States prepare for a competitive environment and also respond to the 
tremendous growth in the telecommunications lines and traffic, they are preparing 
(or in some cases have already undertaken) extensive changes to their national 
numbering schemes to cope with future demands. Urgent agreement on the policy 
objectives and direction for European numbering is of critical importance if these 
national decisions are to take into account the needs of the internal market and the 
framework provided by the Community's regulatory policy. The risk for businesses 
and users is that national numbering schemes will need change again, if reform is 
planned in isolation, leading to additional costs and dissatisfaction. 
some control over numbering at the European level is imperative 
Although the Commission is supportive of global numbering efforts and recognises 
that these global numbering efforts may provide numbering solutions for global 
businesses such as Internet, it takes the position that in order to accommodate the 
requirements of both a liberalised market and the development of pan-European 
services, not only must a common strategy for numbering in Europe be developed, 
but the administration and management of certain aspects of that strategy must be 
co-ordinated at a European level. 
Here, the current discussions in ITU-T are not encouraging. Discussions on 
Recommendation E. 190 (governing the criteria for allocation of country codes) and 
Recommendation E. 164 (procedures and criteria for country code allocation) have 
so far not resulted in an "open" mechanism which would allow the set up of 
regional (read European) numbering entities. 
The Commission believes that European Administrations and market players 
should recognise the value of a regional numbering scheme and ensure that new 
ITU-T proposals do not exclude such a development possibility 
Note, lor instance, thai III J-T is not vet close to ameeine on the introduction of carrier selection mechanisms 
15 
Further, with the rapidly growing importance of computer network services such 
as Internet and other innovative multi-media and on-line services, any long term 
European approach to numbering and addressing should be extended into that 
domain as well. 
IV PROPOSALS FOR ACTION 
A clear policy on numbering at a European Union level will need to respond to the future 
needs of the citizens and businesses in the Union. Moreover, it will need to create the 
legal certainty needed for investment and innovation, whilst providing safeguards for a 
fair and open competitive environment and will need to ensure that the internal market 
for special lelecommunications services such as Europe-wide freephone can and does 
emerge on the basis of easy, user-friendly access across Europe. 
The Commission does not believe that, in the absence of a clear and predictable 
regulatory framework, market forces on their own are enough to guarantee the 
emergence of an open numbering environment. At the same time, the sufficiency of the 
current ECTRA44 and ITU-T mechanisms to create an open numbering environment, 
capable of accommodating the needs of the post-1998 liberalised market within the 
necessary timescale is in question. 
The Commission seeks the views of the sector on this. Comments are invited on 
both the general approach and on the specific elements detailed hereafter. 
IV. 1 Ensuring effective competition 
Carrier selection 
The implementation of full competition will lead to the replacement of current traffic 
handling arrangements based on correspondent relationships between national network 
operators by new relationships between specialised regional and global long-distance 
operators, with lower costs due to higher traffic volumes and strategic partnerships. 
Such operators will be entitled to sufficient access numbers in each Member State 
from 1 January 1998 on. This should result in cost-savings which can be passed on to 
customers in the form of lower tariffs. Simple dialling codes to access those long­
distance carriers are essential if users are to benefit from these lower prices. 
Moreover, by encouraging users to choose between long-distance carriers, the 
development of regional operators within Europe will be encouraged, potentially 
offering further improvements in price and quality of service, and at the same time, 
promoting services with a global reach. 
The introduction of long-distance carrier selection potentially offers large direct and 
indirect benefits to consumers, business and the telecommunications industry. The cost 
of introducing carrier selection is relatively small if compared with the benefits that can 
Whilst ECTRA and the ETO has provided a vital forum for pan-European discussion of numbering issues, 
as well as an increasing centre of numbering expertise, ECTRA has no mechanism with which to enforce the 
implementation of the decisions which its members take, nor a judicial body which can interpret the 
resulting commitments taken in the case of disputes as to their scope of application. Moreoxer, the majority 
of ECTRA members are in a very premature stage of their liberalisation programmes and have indicated that 
they arc not yet ready to open their markets, and hence, unlikely to need or welcome the type of relonn which 
the internal market and the goal of full liberalisation now lequues 
16 
be derived. Carrier selection can be introduced through a gradual staged approach. 
Annex II sets out three main options: 
- The default long-distance carriers is determined by the local access provider (often 
the same company), with the possibility of the user over-riding that choice on a call 
by call basis. 
- Carrier pre-selection by the user with the possibility of a call by call over-ride. 
- Assignment of carrier selection codes for all calls (including to access the long­
distance network of the local carrier). This last option would actually make 
dialling more complex for users and therefore does not seem desirable. 
Estimates suggest that the introduction of carrier selection could substantially assist 
users to benefit from annual savings of between 20 and 25 Billion ECU on long­
distance call charges in the Community which competition is bringing about45. 
Estimates of the cost of these changes to the télécoms industry vary, but the 
Commission believes that a figure of around 2 Billion ECU over a ten year period may 
be a reasonable estimate. 
Carrier selection is essential, if fair and non-discriminatory competitive conditions are 
to be created, in line with the Community's regulatory framework. Technical and 
organisational measures will be required to ensure equal access is implemented in 
exchanges, whilst the assignment and management of carrier identifications codes must 
be carried out at a European level and will require inter alia a European management 
body. 
Member States should introduce carrier selection, starting in 1998 with a 
solution where the local operator sets the default long-distance carrier with a 
carrier selection override by the customer and moving towards a pre­
selection by the user with override by the year 2000. 
A range of regulatory issues stand out, for instance, on how to implement pre-selection 
and who has a right to or qualifies for pre-selection, given that short codes are a scarce 
resource. Another issue is whether an obligation to provide pre-selection should apply 
to all operators or only to those with "market power"; and for international traffic only 
or for all long-distance traffic. Billing is another equally significant issue with 
significant customer implications. The Commission seeks views and opinions on 
these and any other issues related to the introduction of carrier selection in the 
Union. 
Number portability 
Subscribers attach a high value to their number. Polls have indicated that some 80 - 90 
percent of business customers would not consider switching operators if they can not 
take their number with them. 
Number portability allows subscribers to retain their number when they decide to 
switch operators. Number portability thus is an important pre-requisite, if users are to 
be able to choose from whom they obtain telecommunications services and if 
Such estimates arc based on decreases of between 40 and 50% in current tariff rales, whilst resulting traffic 
growth - judging by experience in markets such as the USA or Finland - could substantially offset the 
potential loss of revenue lo operators. 
17 
competition is to become genuinely effective. As identified in Annex III below, number 
portability can in fact relate to three issues : 
- Location portability : the ability of the user to keep a number, when changing 
location either in same exchange area or any where in a Member State ; 
- Service portability : the ability to keep a number when changing to a different 
service in the same service area, (e.g. the user keeps his or her PSTN number 
when taking a subscription to an ISDN service, though it is actually provided via a 
different exchange in the same areas), and -
- Sen>ice provider portability : the ability for a user to keep a number when 
changing operators at the same location, or within the same exchange area. 
Within the European Union a first priority must be to promote service provider 
portability within the local calling area. As indicated in Annex ITJ, the economic and 
customer benefits derived from the introduction of number portability in the local loop 
far outweigh the costs. 
Member States should ensure that, where technical restrictions would still 
prohibit local loop operator portability, all necessary measures are taken to 
remove these as soon as possible, and at the latest that number portability is 
available in major centres of population by 1 January 2000 . 
Analysis also shows that number portability for mobile services and for non-
geographical services such as freephone (e.g. to allow customers to take their golden 
numbers) should be considered as a matter of urgency and is critical for creating equal 
conditions for access and opportunity for new entrants. 
Member States should ensure that any technical restrictions that still 
prohibit number portability for mobile and personal communications 
services as well as non-geographic services are removed as quickly as 
possible, and at the latest that number portability is available by 1 January 
2000. 
The Commission invites comments on the importance of number portability and 
the desired timing for its introduction for the different categories of services, as 
well as on the impact that such a requirement might have on entry into a 
competitive market. The Commission also invites comments on the allocation of 
costs involved (administrative, set up and additional conveyance costs). Further, 
comments are sought on the long term solution and any migration strategies that 
could be followed. 
Restructuring national numbering schemes 
Today, national numbering schemes which were conceived in a monopoly environment 
often limit the possibilities for new market entrants, both on the local or retail level and 
on the carrier/service provider level. Competition in local operation or service retailing 
The proposed Directive on interconnection (Common Position EC No 34/96, Oi 96/C 220/03, 29.7.96) 
requires this measure to be realised before 1 January 2003. In the view of the accelerating 
liberalisation process and the recognition of number portability as a key factor for opening up local 
markets to competition, the need of anticipating that date must be seriously considered. This Green 
Paper requests comments from the sector. 
47 18 
requires fair and equal access to end-user numbers which may already have a high 
level of consumer recognition. Services with well-known "branding", notably national 
freephone, shared cost and premium rate services but also mobile services should be 
made available to all competing operators and service providers. This principle of open 
access is in addition to the issue of equal access outlined above. 
In view of the 1998 date for full liberalisation of telecommunications services and the 
pivotal role that national numbering schemes play in enabling competition, there is an 
urgent need to open up national numbering schemes to competition. It is expected that 
this will require adaptation of most if not all national numbering schemes. 
The Commission's approach to numbering encompasses a phased approach. 
In the first stage, and before 1 July 1997, except as regards those Member 
States which were granted additional implementation periods under Directive 
96/19/EC, adequate numbers must be made available to allow in particular 
new entrants to provide voice telephony to the public47. In a second stage, the 
national schemes should be reviewed towards further integration of the 
national numbering plans. 
Independently from the adoption of the national numbering schemes in order to ensure 
that adequate numbers are available by 1 July 1997, the Commission will produce 
common guidelines, on the basis of work done by ETO, for use by national regulatory 
authorities with a view to ensure the further development of the national numbering 
schemes in a balanced manner across the EU and to build-in a convergence aim 
towards a more unified numbering environment48. 
After the completion of the technical work by ETO, Member States should 
start adapting their national numbering schemes according to the agreed 
common guidelines and complete this process by the year 2000. In the 
meantime and in order not to jeopardise a future European approach, 
Member States should not allocate numbers beyond the length of 13 digits49. 
The Commission invites comments, on the characteristics desirable for the 
national numbering schemes (e.g. dialling parity, flexibility to meet future demand, 
facilitate market development and innovation, user-friendliness, options for branding 
and supply of "golden numbers", perceived relationship between number and 
geographic location, number structure and need for consistency of number length, local 
dialling and tariffing information), and on the relative importance of the various 
characteristics. 
Commission Directive 96/19/EC (OJ L 74/13, 22.3.96) requires that Member States ensure the 
availability of adequate numbers for all lelecommunications services by 1 July 1997 
Convergence is required for example for short codes e.g. canicr selection codes at the l-.uropean level. 
Moreover, consideration should be given lo the need for hannonising the access codes to special services 
such as freephone (e.g. 800), premium rale (e.g. 900) and personal communications services and UPT (e.g. 
500 or 700). 
the numlvr lenuth includes the counliy code but excludes the international prelix or canicr selection prchx 
19 
50 
51 IV.2 Facilitating a single market 
Establishment of a European Telephony Numbering Space (ETNS) 
50 A Universal International Freephone Service (UIFS) has been agreed in the ITU-T 
and will be introduced in 1997 . However, the Commission does not believe that the 
UIFS can be considered the platform that will create a seamless Europe-wide blanket 
for special services. Firstly, under ITU rules, service offerings under the UIFS will be 
subject to commercial negotiation between individual operators and are likely to result 
in fragmented service offerings Secondly, the UTFS does not address any other needs 
of the internal market than freephone. 
The establishment of an ETNS, as was recently decided upon by ECTRA, would allow 
for the implementation of special pan-European services such as freephone, shared cost 
and shared revenue services numbered from a Europe-wide numbering space. 
Moreover, the emergence of Personal Communications Services (PCS) could be 
facilitated by the availability of a European numbering solution52 to support the 
combination of different services and technologies via a single service platform (see 
Annex IV). 
A well developed internal market for special services would create new business 
opportunities within telecommunications, develop the internal market for goods and 
services and stimulate employment. As indicated in Annex I strong net-benefits can be 
derived from the introduction of a pan-European numbering environment. Estimates 
prepared for the European Commission53 suggest on the basis of experience in the 
USA that the market for freephone and shared revenue services could be as much as 
4.6 Billion ECU by 2003 (compared with a freephone market today of around half a 
Billion ECU) where introduction cost is believed to be small . The Commission also 
Freephone allows the freephone operator to establish a direct relationship between himself and the 
customer. Within a global scheme such as a UIFS, the customer may be anywhere in the World. The 
freephone operator collects the charges from the organisation using the freephone number. This control 
over the revenue stream gives the freephone operator a strong bargaining position in' relation to local 
network operators in the countries where the calls originated. 
The freephone market has developed much further in North America than in Europe. In the US, freephone 
is a US$ 10 billion market, the European market is only a few percent of that. Estimates suggest that 
around 40% of peak rate long-distance traffic in the United States is attributable to 'toll-free' calls, in 
comparison with 20% in Canada and less than 1% in Europe. One reason for the success of freephone in 
the United States has been the requirement for freephone numbers to-be fully ponabile since 1993. It is 
commonly beleivcd that this global freephone platform offers great commercial opportunities to operators in 
markets where competition is well developed and scale-economies exist such as in the US. 
The recently created UMTS Forum will address the numbering of PCS. The issue is further supported by an 
ETO study that has been contracted under the framework contract with the Commission. It is proposed lhat, 
in line with the current agenda of the UMTS Forum and after completion of the HIT) study on the numbering 
of PCS, the Commission will come by the end of 1997 with proposals for a regulatory framework for UMTS 
which will, besides important licensing and frequency matters, have to include proposals for the numbering 
of PCS m Europe. 
The harmonised European telephone services market: the economic slakes and the need for numbering 
solutions, Sagalcl, Paris, March 1996; and Potential Opportunities Afforded bv a At'u European Telephony 
Numbering Space. Mary Ann O'Loughlin and Stuart Sharrock marketing consultants. .0 April 1994. 
see lor instance ETNO common position on the ECTRA exercise ol consultation legarding European 
nuinberinv.. HTN( ). IX March l')<;5 
20 
believes that a vibrant home market will allow European businesses to increase their 
share of the emerging global market for telecommunications services. 
55 Member States should take the necessary steps to ensure that a European 
Telephony Numbering Space (ETNS) is implemented following the completion 
of current ECTRA and ETSI work and at the latest by 1 January 1998. 
Rapid creation of an ETNS could require adoption of a Resolution by the Council and 
the European Parliament inviting the Member States to support, inter alia, a request to 
the ITU for the allocation a regional code number. 
The Commission invites comments on the necessity and desired characteristics 
of the European Telephony Numbering Space and on the timetable of its 
introduction. 
Private and corporate networks 
The development of the market will lead increasingly to so-called network-network 
attachment scenario's, where private networks (e.g. Corporate Networks, VPNs, 
LANs, Campus networks, CitylnformationHighways) are connected to the public 
network base with new service features introduced such as Direct-Dialling-In (DDI). 
These networks also serve an important economic function. A recent study for the 
Commission55 argued that it is critical to develop corporate networks as efficient 
telecommunications solutions for the Small and Medium size Enterprises (SMEs) as 
they are the lifeblood of the European economy with a total of 12.9 million businesses 
and about 60 million people employed56. SMEs should be able to easily establish 
corporate networks and closed user groups with pan-European or even global reach to 
meet their evolving business requirements. 
The handling of calls to and from private or corporate networks may be facilitated by 
special service codes to indicate to the public network that the call needs special 
treatment and routing. Under the framework contract with the Commission, ETO will, 
with the technical support of ETSI and taking into account the requirements of global 
corporate networks, carry out a study on the numbering requirements of private and 
corporate networks and -if a need is found- propose harmonised procedures for the 
Europe-wide access to private networks. 
The Commission seeks commenis on the importance of private and corporate 
networks and the need to develop European solutions. 
The harmonised luiropean telephone services market: the economic stakes and the need for numbering 
solutions, Sagalel, Paris, March 1996 
Compare this with the l.V"K>() large luiropean businesses (>500 people) employing in total 15 million 
people. These businesses do often have elTieicni corporate networks provideil by the dominant and global 
telecommunications operators. 
21 
Need for a new structure for regulation and administration of numbers 
Control of the numbering environment at the European level involves the development 
of an appropriate administrative structure with at least the following functions being 
carried out a European level : 
- policy making, 
- dispute resolution, 
- maintenance of number data bases, and . 
- processing applications for pan-European numbers. 
Bearing in mind the character of numbers as a scarce national or regional resource, any 
approach should accept the possibility of a commercial value being placed on particular 
numbering resources, as a means of encouraging their efficient use. 
Several administrative models can be envisaged such as a single regulatory authority 
handling all functions or a model based around either a co-ordinating role assigned to 
a Numbering Committee, made up of national regulatory authorities or industry 
representatives (determining policy and resolving disputes with a pan-European 
dimension) while a separate administrator would maintain administrative number data 
bases and process applications for numbers. 
With the growing importance of European numbering solutions, Europe must urgently 
address the administrative model it wants to put in place to guide policy and tackle 
basic regulatory issues. In view of the important role of numbering, Europe must also 
ensure that European interests are adequately promoted in ITU-T. 
TheEuropean Union, in conjunction with ECTRA, should urgently develop and 
propose a new structure for regulation and administration of numbers in 
Europe by 1 January 1998 at the latest. 
The Commission invites comments to the proposal for the development of such a 
new structure for the regulation and adminstration of number and its proposed 
timetable. 
IV.3 Adapting to the Information Society 
Long term European numbering plan 
The long-term development of European numbering has been the subject of a study for 
the Commission58. The study looked at ways for progressing towards a more unified 
numbering environment for Europe. On the basis of this study and on-going work in 
A study carried out for the Commission showed a general consensus amongst service providers and network 
operators that the administration of numbers in a European numbering environment should be the 
responsibility oi' an independent structure which must be located in Europe. Many players consulted 
emphasised that European concerns and commercial requirements differ from those o[ the USA and some 
expressed openly their fears that an inappropriate and under resourced administrative structure could give 
their US compelitois an unfair advantage. 
Securing a stable and long term approach to luiropean numbering, Coopers it Eybraiui. April 1995 
22 
ECTRA/ETO"v, the Commission has prepared a reference scenario for progression 
towards an open and unified numbering environment (see Annex V). 
When implemented, this new numbering environment would provide the necessary 
numbering capacity for new services and expected future demand. It would provide for 
harmonised access to pan-European services such as freephone, premium rate and 
shared cost services and personal communications services. It- would provide 
harmonised prefixes and short codes for services such as carrier selection, VPN 
services and directory enquiry services. It would also provide a clear European identity 
when calling from outside Europe, for example: 
European country national destination or service code 
code code and subscriber number (maximum) 
3 49 XXX.XXX.XXX.XXX 
European players, through co-ordination in the ENF, should line up their contributions 
to ITU-T with the European strategic plan and work towards the necessary degree of 
control of the numbering environment at the European level. 
A long-term strategic plan for numbering in Europe should be developed by 1 
January 1998; this should include the creation of a European country code 
("3-XX) with transfer of responsibility of administration and management of 
the last two digits to Europe and a unified numbering environment by the 
year 2000. " 
The Commission invites comments on the necessity and desired characteristics 
of such a strategic plan and thcproposed timetable for its development. 
Naming in the Internet 
The rapid growth of the Internet has produced strains in the system for allocation of 
Internet names and addresses. The Internet IP address (usually expressed in the form 
158.169.50.11) has a domain name which refers to it, and which is intended to be more 
meaningful to users (in the form "europe.eu.int"). 
These names and addresses were originally allocated by a university or academic 
institution, normally one in each country. In some countries, these activities have now 
been transferred to private companies charging fees for their services. Although many 
"top level" domain names are national such as "fr" for France, ".de" for Germany or 
",uk" for the United Kingdom60, some domain names, of which the most important is 
the ".com" domain, have become global in practice61 and are administered by the US 
svstem. 
«I ETO has recently been given study contracts under the framework contract with the Commission to assist in 
the definition and elaboration of a long tenu luiropean numbering plan (European numbering strategy and 
transition plan, potential for harmonisation of short codes and for whal services). 
domain names refer cither to Ihc counlr)' from whicii ihc service is originated (following the ISO 3166 
standard) or lo the specific nature oflhc service 
'.com"" is a non-geographic international top level domain thai can be used by anyone in the world. As o\' 
June 1V)%. non-US entities account for about 7\00O ol" the 250,000 international top level domain 
23 
With the growth of the commercial use of the Internet, value has become attached to 
the domain name, because of its memorability, and disputes have arisen between 
businesses claiming the same name. 
A series of issues have therefore been raised: 
- managerial issues where some disquiet has been expressed at the fact that some of 
the most significant global domains are administered by a private company in the US; 
- principles of allocation are regarded as lacking transparency and the mechanism for 
resolving conflicts is unsatisfactory ; 
- on the need to introduce further geographical or territorial components to domain 
name space such as ".eu". 
The use of trade-marks, which are geographical and limited to a particularly trade, in 
the naming system and the fact that domain names may be global and are not inherently 
linked to a particular commercial activity, means that a simple application of the 
principles of trade-mark law may not resolve all the issues63. 
The Commission invites comments on the scope for regulatory involvement in 
issues of Internet naming and addressing, and if so what should be done at the 
level of the European Union. 
Consideration should be given to the situation with regard to Internet naming 
and addressing in the Member States and, if necessary, measures proposed to 
safeguard their fair and non-discriminatory allocation. 
<>2 
M Europe's numbering environment must also be able to cope with the growth of new and 
innovative multi-media and on-line services which are emerging as a key factor in the 
Information Society. In general, the framework set out above is likely to be adequate 
with regard to ensuring the availability of numbers, but consideration is being given in 
some Member States to the possible allocation of specific access codes to identify 
particular groups of services. This may be an important means of providing consumer 
and pricing information. Developments at a, national level and the views of interested 
parties will be noted* in reviewing the need for further action. 
For the long-term development of numbering and addressing, the interdependency with 
E.164 based telephone numbers and naming and addressing schemes based on X.400 
or Internet should be considered and transition mechanisms towards a more integrated 
advanced telephone-network-addressing scenario be studied. The Commission invites 
views on how numbering and addressing policy should evolve to prepare for the 
Information Society. 
registrations - and their relative percentage is rising. What is going to happen when more non-US companies 
want in and start waving their national trademarks too? 
Internet Domain Names: Whose Domain Is This?, Robert Shaw. ITU, Geneva. Switzerland, see 
hit p://\vw\v.itu.ch/inlreg/dns. html 
IXi XV recently launched a qucstionaire on "Industrial Property in the Information Society"' The réponses 
arc awaited lor the end of November 1996. Proper follow up actions will be decided upon depending on the 
outcome of the qucstiomaic 
24 
SUMMARY OF PROPOSALS FOR ACTION 
In order to achieve these objectives the Commission proposes the following targets: 
From 1 January 1998 
1. The implementation of carrier selection (i.e. users are offered a simple, non­
discriminatory mechanism enabling them to select the carrier of their choice on a call 
by call basis). 
2. The implementation as soon as possible of number portability for the local loop 
and, at the latest by 1 January 2000 (i.e. allowing users in all major centres of 
population to keep their telephone number at a particular location when changing to 
another operator or service provider). 
3. The promotion of action at a national level to open up and to ensure the convergence 
of national number plans including the harmonisation of specific access codes and 
the adoption of a common standard for keypads supporting alpha-numeric dialling (i.e. 
allowing users to 'dial' names instead of numbers, e.g. 'FLOWERS' for a florist). 
4. The implementation of a European Telephony Numbering Space (i.e. the 
implementation of a common numbering scheme and common access codes for 
special pan-European services : freephone, premium rate and shared cost calls, and, 
if needed, for personal communications services). 
5. The establishment of a common framework for the regulation and administration 
of a common European numbering scheme (including the allocation of European 
service access codes and carrier selection codes, as well as the promotion of the 
Community's interest in international numbering fora). 
6. The review of the issues associated with naming and addressing in the context of 
the Internet to consider the need, if any, of regulatory action. 
From 1 January 2000 
7. The implementation of carrier pre-selection (i.e. allowing users a simple, non­
discriminatory mechanism enabling them to pre-select the carrier of their choice on a 
permanent or default basis). 
8. The extension of number portability for users of mobile and personal 
communications networks as well as for users of special services (e.g. allowing 
users to retain valuable numbers for freephone or personal communications services), 
taking into account the state of network development and the level of demand. 
From 2000 onwards 
9. The implementation of a long-term numbering plan, involving the creation of a 
European country code ("3-XX) with the administration and management of the code 
transferred to the European level. 
Comments are invited on each of these proposed measures, as well as the proposed 
timetable. 
25 
CONCLUSIONS 
The objectives of competition and the development of pan-European services and trans-
European networks impact directly on the telecommunications numbering policy. 
Present numbering schemes have essentially developed in isolation and inherently lack the 
flexibility to accommodate the liberalisation of the market by 1998. The fragmentation 
along national numbering schemes also poses significant hindrances to the further 
development of personal communications and continues to be a psychological barrier for 
the creation of a single market for telecommunications services. 
A convergent European approach towards a unified numbering scheme will benefit users, 
allowing them to taste the real fruits of the Community's liberalisation programme and can 
become an important symbol of our common European identity. 
Further, single Europe-wide numbers will benefit European enterprises by creating new 
pan-European telecommunication" services, stimulating the growth in cross-border 
provision of goods and services and employment in these sectors, and giving European 
enterprises better opportunities to take advantage of the Information Society. 
Policy makers today have an exceptional chance to prepare Europe's numbering 
environment for the future, but they can only be successful if they take on a long-
term view in the broad political context: This requires them to start the process of 
moving towards an open and unified numbering environment that enables 
competition, promotes the emergence of a single dynamic and innovative 
telecommunications market and responds to the need for harmonisation of future 
dialling arrangements in an increasingly complex telecommunications environment. 
This Green Paper is intended to launch an active discussion involving the Council of the 
European Union and the European Parliament; the Economic and Social Committee and 
the Committee of the Regions; the ad-hoc high level Committee of National Regulatory 
Authorities; consumers and business users; fixed and mobile network operators, and 
service providers; manufacturers of equipment; together with the trade unions and other 
organisations representing the social interests in the sector. Comments and opinions are 
invited on all the positions set out in this Green Paper and, in particular, on the 
proposed targets established in the table above. 
On the basis of the Consultation political positions will be developed. The Commission 
will forward those to the Council and the European Parliament. 
Comments should be sent to the European Commission, DG XIII A/1, Rue de la Loi 200, 
B-1049 Brussels to the attention of Mr. de Cockborne (fax +32 2 2968391) at the latest 
by Friday 21 February 1997. Comments may also be sent by e-mail to: 
numbering@bxl.dgl3.cec.be with reference to "Numbering Green Paper" (in format 
Word for Windows or Wordperfect). 
26 
ANNEX I: COMMENTS ON THE ECTRA STRATEGIC OPTIONS FOR NUMBERING AND 
ANALYSIS OF THE COST-BENEFITS 
ECTRA defined strategic options 
As indicated above, ECTRA defined four options for a European strategy to numbering64, 
which could constitute steps in an evolutionary approach towards a long-term numbering 
strategy in Europe. 
Option 1 comprises a continuation of the present situation and only be reactive to market 
forces or ITU developments. 
Option 2 implements a European Telephony Numbering Space (ETNS) for special pan-
European services such as freephone, premium rate or shared cost services without 
making changes to country codes. (Its implementation was initially foreseen via the 
allocation of a virtual country code by ITU65). 
Option 3 establishes a consistent set of three-digit country codes for European countries 
(e.g. 332 for Belgium) and can be realised in 1997 when the new international standard 
that controls the maximum length of telephone numbers comes into effect. Option 3 
could: 
- provide the medium-term ability to manage country code resources at the European 
level (independently from ITU), 
- give Europe a clear numbering identity ("3"), comparable with the "1" found in the 
North American Numbering Plan, and 
- create significant empty space for Europe, while freeing 50 country codes to be used 
as extra geographical codes for certain countries with high demand, as well as for 
additional non-geographic service codes 
Under Option 3 country codes starting with "4" would be relinquished. This would 
release "4XX" to meet demand elsewhere in the World. 
Option 4 would establish a single digit country code for Europe linked to an open and 
unified European numbering scheme with which national schemes would gradually be 
fully integrated. Option 4 would again act as symbol of Europe's unique identity, whilst 
facilitating competition through short dialling for carrier services and the take off of 
personal communications services 
analysis of the strategic options 
As indicated above, the consultation on these four Options showed that Option 1 was 
widely rejected and there was support for rapid progress on Option 2 via a number of 
parallel actions (i.e. through requesting ITU for a virtual country code and exploring 
further the possibilities of using national numbering ranges and/or numbering resources 
Strategic options for numbering of telccoininunications services in Europe. HCTRA PI N. 27 July 1994 
CounliA' code 38X has been sel aside and marked unavailable until mid-1997 pending further studies in 
lùiropc on the set up of an HTNS. 
Report on the consultation on strategic options lor nuinbciing of telecommunications services in Europe, by 
EXTRA IT N, draft 10 July 1995 
27 
made available for global service applications such as global 800). This view was put 
forward, in particular, by ETNO and supported by ETSI. Incumbent operators further 
suggested that further opening of any pan-European services should be a matter for 
commercial agreement between operators involved. 
At the same time, there was a clear split of opinion between incumbent operators and 
new market players with regard to the need for rapid progress on Options 3 and 4. 
Incumbents tended to take a more conservative view, favouring only Option 2, whilst new 
entrants, service providers, users and manufacturers generally stressed the strong 
desirability for opening up the numbering environment in Europe in the short term, and 
stressed the urgent need for clear political decisions on this. 
This split of opinion was largely confirmed by the contributions received on the 
consultation on the Infrastructure Green Paper, where the competitive and consumer 
impact of numbering policy was also stressed. 
On this basis, ECTRA adopted a decision in its October 1995 meeting which calls for: 
support by member states of a submission to ITU to secure country code 388; further 
study on the use of national resources for pan-European needs; and the preservation of 
the CEPT interests in ITU. It was further decided to review the decision by June 1996 
which date has now been further postponed. 
cost/benefits of special pan-European services under Option 2 
In making policy choices an assessment must, of course, be made of the resulting costs 
and of the financial benefits which the change should facilitate. Both ECTRA and the 
Commission have carried out such studies. At the same time, the potential costs 
identified are only those attributable to the telecommunications industry and not the often 
significant costs which must be borne by business and users. Data on those costs are not 
currently available, but comments addressing those issues are specifically invited. 
Studies have suggested that there is strong latent demand for special Europe-wide 
services, such as freephone, premium rate or shared-cost services, even though their 
development until now has been held back by the absence of a common numbering 
approach, as well as by cultural and linguistic factors. This contrasts with the 
phenomenal success of freephone services in the USA , where portability of freephone 
numbers both between different locations and between different operators has been 
required. 40% of US long-distance call traffic is to freephone numbers against 20% in 
Canada and only 1% in Europe. US freephone revenue represents $10 Billion 
annually against $500 Million in Europe. In 1993, $435 billion of goods were sold via 
freephone calls. The average telecommunications cost to the seller was 2 - 9 % of the 
/TO 
amount of sale. At the same time, a study suggests a potential in Europe for additional 
revenues of up to 4.6 Billion ECU by the year 2003 Europe-wide freephone services 
(including calling card services) and shared revenue services. 
The cost of introducing advanced service platforms for freephone, shared cost and shared 
revenue services requires interconnection and interoperability of national Intelligent 
Networks (i.e. interconnection of Signalling System 7 networks across Europe and the 
The hannonised Euro|>can telephone services niarkcl: ihc economic slakes and the need for numbering 
solutions. Sagatel, Paris, March 1996 
Potential Opportunities AlVordcd by a New European Telephony Numbering Space. Final Rc]x>rt. Mars' Ann 
O'i.oughlin and Stuart Shanock marketing consultants, 20 April 1994 
28 
creation of a pan-European number database and service management system to support 
portability) have been estimated as extremely small' . 
overall cost benefit assessment of progression towards an open and unified numbering 
plan under Options 3 and 4 
In addition to the additional revenues generated by special pan-European services, an 
open and unified European numbering plan should improve the efficiency of European 
operators and service providers and offer certain scale economies At the same time, the 
costs involved in adapting national numbering" schemes for the telecommunications 
industry would be significant, though relatively small in relation to the potential benefits 
to the customer. 
ECTRA70 has estimated the direct costs per subscriber for numbering changes to be 
within the following ranges: the cost of a subscriber number change is estimated at 10 -
50 ECU, the cost of a change in national destination code at 1 - 10 ECU and the cost 
of a country code change (Option 3) at less than 0.5 ECU. On this basis, the total cost 
for Option 3 is estimated to be lower than 1 Billion ECU. The total cost for Option 
4, which would involve some revamping of national numbering plans, was difficult to 
estimate because it involves medium to long term planning with very different starting 
situations in the Member States. A reasonable estimate of the direct costs would amount 
to some 2 billion ECU71. Further indirect costs may occur but there is little data available 
to give reliable indications as to the amount of such costs. Further analysis may be 
required in order to derive a reliable overall cost/benefit ratio. 
Report on costs of number changes, ECTRA Project Team on Numbering, 10 July 1995 
Report on costs of number changes, ECTRA Project Team on Numbering, 10 July 1995 
With about 200 million subscriber lines and a cost of 10 ECU per line, the direct cost would amount oC 2 
billion ECU onlv. The Council Decision on the introduction of the common emergency number "1 12" and 
the conseciucntial resicw ol" a number o\' national numbering schemes has significantly lacilitatcd the 
introduction of other short codes starling with "I" 
72 29 
ANNEX II: CARRIER SELECTION 
options for carrier selection 
One possibility for carrier selection is through the use of prefixes (short codes) to be 
dialled in front of the subscriber number in a single stage dialling procedure. 
Identification of the calling party is done through the Calling Line Identification (CLI). 
Another possibility is by calling a special service access codes to carrier services after 
which the dialled number is entered together with a special code for authentication of the 
subscriber. This latter possibility is a two stage dialling procedure which is more prone 
to fraud and resembles calling card services in use today. For the remainder of this 
analysis, we will concentrate on the first option. 
The main options for carrier selection in a single stage dialling procedure are: 
A: default carrier determined by access network operator (local operator) with 
possibility of override by user on call by call basis. This options is sometimes 
referred to as easy access; 
B: pre-selection of carrier by the customer plus possibility of override on call by call 
basis. There are some variants on this method e.g. change default carrier through 
instant DTMF dialling (change pre-selected carrier on-line) or pre-selected carrier 
determined by regulator on the basis of market share. This option is referred to as 
ecpial access; 
C: the use of earner selection codes for all calls. Clearly, this option is in 
contradiction with the Council Decision on the introduction of a standard 
telephone access code . 
The Commission believes that the requirement for a harmonised access code should 
prevail as, with the implementation of Option B, it does not form a barrier to the 
development of effective competition. Option C is therefore not considered further. 
With the implementation of easy access (Option A), operators will not loose market share 
in long-distance and international traffic as quickly and substantially as with the 
implementation of equal access (Option B) bec'ause they will normally elect to route their 
long-distance and international traffic via their own channels. Option A could therefore be 
an intermediate step in a phased approach with Option B as the medium to long-term goal 
and cause a more gradual transition towards an open competitive market then with the 
implementation of Option B right from the start. 
cost/benefit of carrier selection 
Studies carried out for the Commission * and ETO concluded that carrier selection 
mechanisms are mandatory to foster competition in main telecommunications markets. 
Users must be able to easily select a carrier wherever they are in Europe for their national 
and international long-distance telephony services. 
Council Decision of I 1 May 1992 on the introduction o[' a standard telephone access code in the 
Community, 92/264/EEC, OJ El 37/21, 20 05.92) 
The harmonised luiropean telephone services market the economic slakes and the need for numbering 
solutions, Sagalel, Paris, March 19% 
" Carrier .selection studv for ETO, ' >V'l !M, June 1996 
30 
The experience with carrier selection is strongest in the US where, after the divestiture of 
AT&T and the introduction of inter-exchange long-distance competition, the long­
distance rates have been slashed by approximately 40 %. Another example is Finland. 
Since the introduction of long-distance competition between Telecom Finland and the 
long-distance carrier of the independent local operators in 1993, long distance tariffs fell 
by more than 50 %. Remarkably, the total revenue did fall but not as substantial because 
of increased telephone usage. 
The total revenues of the telecommunications market in the European Union in 2000 is 
estimated at 110 - 120 Billion ECU. Some 50 % of the traffic is business traffic with 
some 20 % international traffic. By introducing carrier selection throughout the EU, it 
works out that between 40 - 50 Billion ECU of revenues is at stake. Extrapolating the 
effects on long-distance tariffs which were seen in the US and Finland to the European 
Union, the introduction of carrier selection could save the European customer as much as 
20-25 Billion ECU per year. Obviously, the reductions of tariffs would change telephone 
calling patterns and thus offset somewhat the loss of revenues for operators. 
The lower prices of telephone traffic would make the diffusion of information cheaper 
and thus form an immediate stimulus to the European economy. These direct effects are 
difficult to quantify in financial terms but are believed to be huge ". Besides that, the 
introduction of carrier selection would assist in the migration of users from one operator 
to the other. It would make customers more aware of competitive alternatives, customers 
would not have to invest so much time and money (including any necessary CPE 
alterations) in changing to a new operator, customers could try out new operators on a 
call-by-call basis with no long term commitment, and customers would avoid having to 
dial additional digits in order to access an other operator's network. 
The cost of introducing carrier selection cover local network implementation cost for the 
incumbent operator and any other local operator required to provide equal access; costs 
for long distance operators; any extra costs of network capacity or operations that result 
from increased customer chum; and end user equipment costs. 
An analysis of the cost of implementation of equal access to long-distance carrier was 
carried out in the UK76. The total direct cost to BT over the period 1995 - 2004 was 
estimated between 136.6 and 261.2 £M77. This included cost for network changes, cost 
for information system changes, and cost for data build maintenance and staff, training 
and organisation. The cost for other operators for the same period was estimated at 68.6 
JEM. 
Extrapolating this to the European Union market and assuming similar degrees of 
network digitisation and efficiency, the introduction of carrier selection at the European 
level would cost about 2 Billion ECU over the ten year period considered. 
It is obvious from this very rudimentary analysis that the benefits of introducing carrier 
selection by far outweigh its costs. Even if the drop in long-distance tariffs would be 
much less than assumed, benefits of equal access to carriers will exceed costs. 
see for example the Bangemann report on Europe and the Global Information Society. Recommendations lo 
the luiropean Council, 26.05.1994 
7" Cost Benefit Analysis of Equal Access, a consultation paper issued by OFTEE, July 1995 
In sharp contrast is the cost of carrier selection in Sweden. The cost of implementing a new carrier code m 
the network of Telia (incumbent in Sweden) is only 60 kECU. The numbers poioduccd by the OFTEE report 
are disputed ami arc said to be excessis'ely high 
31 
Pre-selection equal access was introduced in the US and Australia using slightly different 
methods. 
move to equal access in (he US 
Pre-selection was introduced in the US from September 1984 as local exchanges were 
given equal access capabilities in rolling conversion programmes. To begin with, once an 
exchange had been converted to equal access, their was no immediate requirement for all 
customers to be balloted on their preferred long-distance carrier. By early 1985, it 
became apparent that only around 30 % of customers connected to equal access 
exchanges were pre-selecting a long-distance carrier (either AT&T or one of the other 
long-distance carriers) whilst the remaining 70 % were staying with AT&T by default. 
In May 1985 the FCC released an Order specifying a balloting and allocation plan to be 
used by local exchange carriers (LECs) on the introduction of equal access into their 
exchanges and a retroactive balloting process in cases where equal access had already 
been introduced. This process required a re-ballot of customers who failed to respond to 
the first ballot, after which customers who did not respond to either ballot had to be 
assigned a long-distance carrier in proportion to those who did respond in the first ballot. 
Under this system, LECs found that between 60 % and 75 % of their customers now pre­
selected a long-distance carrier, whilst the remaining 24 % to 40 % were assigned a 
carrier. This increase in pre-selection has been argued to have been a major factor behind 
AT&T's loss of market during the late 1980s. In particular, its share of inter-state 
switched traffic fell from 82 % in 1985 (when it had already faced eight years of 
competition from MCI without equal access), to 63 % in 1991 when equal access had 
78 
been rolled out to over 90 % of access lines in the US . 
move to equal access in Australia 
Australia licensed a second carrier, Optus, in December 1991. The new carrier's network 
was operational in major cities by November 1992, and was available to 65 % of the 
population by the end of 1993. Within 18 months of launch it had captured about 15 % of 
national and international traffic. Originally access to the Optus network was through a 
simple dialling code prefix - "1". If this prefix was omitted calls would be routed over the 
Telstra (incumbent) network. However, it was always intended to move to an equal 
access system of pre-sèlection with call-by-call override. 
Pre-selection balloting began in Australia in July 1993, and will continue on a sequential 
city-by-city basis until 1997. The process takes the form of a first ballot, with the option 
for'Optus to call for a second ballot in cities where the response rate is less than 60 %. 
Non-respondents remain with the existing carrier (in contrast to the US system where 
they were assigned). It is likely that the share of traffic captured by Optus exceeds its 
share of lines since it will have tended to have captured customers with higher than 
average calling rates. 
On the basis of the experience of the US and Australia, it appears that effective pre­
selection would require the balloting of all customers; and an option of a second ballot if 
response rates are low. There are however other possibilities than ballots to let users 
make their pre-selection for instance through marketing campaigns. Unlike the ballot, this 
latter method allows a better control quality and quantity of customers by the new entrant 
and allows new entrants with less marketing resources to compete fairly. 
Cost Benefit Analysis of Equal Access, a consultative paper issued by OFTEE, .Inly 19'»5 
32 
ANNEX 111: NUMBER PORTABILITY 
Number portability is a generic term which comprises three basic types: service provider 
portability, service portability, and location portability (geographic portability). 
1) location portability 
Location portability refers to the ability of end-users to retain the same telephone numbers 
when moving from one location to another, either within the area served by the same 
telephone switch or between areas served by different telephone switches. 
Today location portability is normally possible when relocating office or home within the 
local area or district but customers must change their telephone numbers when they move 
outside the local or area served by their current switch. Clearly, with full location 
portability of numbers, information in the number such as tariff indications to the user, 
would be lost. 
Businesses and increasingly residential customers may get full location portability by 
using non-geographic service access codes with national and -in the future- European or 
even global scope. Personal numbered services, even those on the fixed network, may 
offer full portability in the same way. 
It must however be mentioned that the main drive for these developments today does not 
emanate from a demand for freedom to move around with numbers but a .demand for 
easy customer access to services, even beyond national borders. The Commission seeks 
views on the relative importance of location portability. 
2) service portability 
The need for service portability arises when a particular service is available only through 
a particular switch. For example, if operators deploy ISDN by installing new ISDN 
switches within existing service areas of switches that provide POTS, customers that 
wish to receive ISDN services must change their telephone number. 
Clearly, service portability can only apply to a selected set of services while for some 
services porting numbers would imply that the unique meaning of certain access codes 
like 800 (for freephone services) and 900 (for premium rate services) would be entirely 
lost. The Commission seeks comments on the relative importance of service portability. 
3) service provider portability (transferability between operators) 
The issue of service provider portability spans a broad spectrum from portability at the 
national level between local operators all the way through to portability at the global level 
for global services. And, that any new application for service can obtain the service from 
any company at a local, national, European or even global level. Customers can then 
enjoy the best value in terms of features, services, reliability, quality and cost. Hence, 
service provider portability is considered a major instrument to boost competition in the 
market. 
The competitive importance of service provider number portability depends primarily on 
the value that customers assign to their current telephone numbers. When users attach a 
significant value to retaining their telephone numbers while changing service providers, a 
lack of number portability would likely deter entry by competitive providers of local 
services. A survey in the US indicates that 40 - 50 % of residential customers and 70 - 80 
% of business customers who otherwise svere willing, to consider changing their local 
33 
telephone operator would be unlikely to consider such a change if they had to change their 
79 telephone numbers . Business customers, in particular, may be reluctant to incur the 
administrative, marketing and goodwill costs of changing telephone numbers. 
Four areas are considered important for Europe at the short to medium term: number 
portability in the local loop, number portability of non-geographic services such as 800 
services, number portability of mobile services and number portability of pan-European 
services. 
Number portability in the local loop 
With the full liberalisation of the telecommunications sector, alternative methods for local 
access (e.g. through cable TV networks and through new radio infrastructures such as 
those based on DECT and the GSM/DCS-1800 standards) are being introduced rapidly 
often by new entrants to the market. Number portability in the local loop is considered 
crucial by these new entrants to give them a fair chance compete with the incumbent and 
establish a market position. 
Without number portability between local operators, new market entrants face a 
significant barrier to entering the market. Lack of portability may even become a 
disincentive to invest in alternative local loop networks with detrimental effects on the 
development of effective competition in Europe. 
Number portability for non-geographic services 
Number portability for non-geographic services such as nation-wide freephone and 
premium rate services is currently under study in several Member States. The argument 
for local number portability hold for the non-geographic services. 
A recent brainstorm in the context of the ENF concluded that number portability for 
freephone services is key to allow customers to retain their valued freephone numbers if 
they want to change service provider and in fact becomes compulsory when applying the 
equal access principle on the freephone numbering space. 
Number portability for mobile services 
The market for mobile and personal communications is the fastest growing market in 
telecommunications today. Europe now counts over 20 million mobile subscribers with 
an average penetration of about 5 %. The expectations for the future are enormous with 
personal communications entering the mass consumer market with highly innovative 
products and services and with penetration levels exceeding 50 % of the population. 
But in most countries, competition in this market has not fully developed where in some 
countries the second mobile operator is still rolling out his network and a third operator 
has not even been appointed. In order to stimulate competition in this volatile and 
innovative market, number portability between mobile service providers should be 
considered to stimulate growth and innovation. 
A recent study carried out for the administration of the Netherlands shosvs that the net 
benefits to be gained by introducing number portability for mobile services accrue to as 
Notice of proposed rulemaking in the matter of telephone number portabihts', US FCC. July \}. 1995 
34 
much as 500 million ECU per year for the Dutch market onlyM . Indeed, there seems to be 
a very strong case for number portability among mobile service providers and operators. 
Number portability for pan-European services 
The market for pan-European services is developing quickly with service codes for 
accessing pan-European services likely to become available in the near future. 
For the unconstrained development of a competitive market, it is important that 
customers are not locked into an early service provider but can freely take their number 
with them if they wish to change pan-European service provider. This requires number 
portability in the European numbering space81. 
Besides freedom to the customer, the introduction of number portability in a European 
numbering space would also create more balanced market conditions with the US where 
number portability for country wide freephone services was introduced in the early 1990s 
with a highly competitive freephone market as a result. 
cost/benefit of number portability 
A study carried out recently by the UK Office of Telecommunications (OFTEL) indicates 
that number portability in the local loop delivers considerable benefits - estimated at some 
1.8 B£ over 10 years . Such benefits far outweigh the costs. BT, which will incur the 
majority of the costs, estimates them at £ 220 million over the next five years, and falling 
steeply thereafter. The other operators cost was estimated at less than £ 3 million each83. 
This is in sharp contrast with the conclusions of a study carried out in the Netherlands 
where the initial set up cost was estimated at £ 12 million with an additional £ 7 per 
porting line84. 
The UK's Monopolies and Mergers Commission has produced an agreed allocation of the 
costs of portability, in which BT and other operators bear 70 % of its own administrative 
costs and recover the remainder from the operators to whom portability is being provided. 
The cost for technical changes to the own network is borne by each operator himself. 
Besides number portability in the local loop, other forms of portability such as portability 
of mobile and freephone numbers should be considered. A recent study carried out for the 
Ministry of Post and Telecommunications in the Netherlands indicates that the 
economic benefits outweigh the costs for these latter services. The detailed issues will 
have to be worked out further and are best tackled from a European level. 
Number portability in the Netherlands, Final report for HDTP, OVUM, 14 March 1996 
The introduction of number portability svithin a European numbering space is not an issue svhich stands 
entirely by itself. In fact, in the more mature situation an intelligent system is required to support the routing 
of calls placed svithin a European numbering space. Such an intelligent system svould grcally facilitate the 
portability of certain pan-European numbers. 
This figure includes £ 550 million ol" direct benefits in saving cost on télécoms and £ 1.2 billion of indirect 
benefits llosving to all customers as a result of increasing genuine competition for all categories ol 
customers. 
Number portability: a paper by the (Office of telecommunications of the United Kingdom. March 1996 
Study on number portability by OVIJM for the Dutch Ministiy of Post and Telecommunications. 1996 
Study on number portability by ( )VUM for the Hutch Minislrv of Post and Telecommunications. 1996 
35 
portability in the US 
In order to further boost competition in freephone services, the US FCC, in a 1991 ruling, 
ordered number portability for freephone services to begin by 1993. Local and long­
distance telephone companies have spend hundreds of millions of dollars for the 
necessary changes and additions to their networks. The new post-portability environment 
in the US calls for a centralised database and operational management system. This will 
enable all long-distance companies to reserve, activate and deactivate freephone numbers. 
When considering that over 40 % of all long-distance calls in the US (comparable with 
intra-European calls) are freephone calls, the impact of this measure on competition in the 
US market is clear. Moreover, it has prepared US players better than European players 
for global services competition. 
Moreover, the recent Telecommunications Act86 specifies that Regional Bell Operating 
Companies will be free to compete in the long-distance market, but only when they have 
opened their own networks by complying with a 14 point checklist which includes the 
obligation to provide full number portability. Local number portability trials have now 
started all over the US. Clearly the Act creates a lot of additional impetus to progress 
rapidly with the introduction of number portability. 
US Telecommunications Act of 1996, adopted February 8. 1996 
36 
ANNEX IV : PERSONAL COMMUNICATIONS 
The views on Personal Communications Services (PCS) and on the related issue of Universal 
Personal Telecommunications (UPT) are very divergent87. Conceptually however, UPT 
embraces much of the same thinking as PCS but was, unlike PCS which was driven by the 
competitive mobile sector, defined in ITU and driven by the wireline sector. 
UPT requires an intelligent logical layer above existing networks. The implementation of UPT 
is a commercially sensitive issue, certainly on a European or global level, in particular where it 
concerns the need for IN facilities storing subscriber data (such as subscriber service profiles 
and data relating personal numbers with network termination points or physical network 
numbers). It would put mobile and cable operators that lack these IN facilities in a 
disadvantageous position vis-à-vis other (incumbent) operators since the latter would have to 
process the UPT calls including those calls originating in and destined for mobile and cable 
networks. 
With the fast evolving mobile communications networks, the PCS concept is emerging, in 
Europe on the basis of the GSM/DCS environment. At the local level, it is likely that this PCS 
concept is further enhanced with micro-cellular networks and individual micro-cells 
interworking with the GSM/DCS environment. Through service roaming, this PCS concept 
could be readily turned into a global PCS concept including the GSM/DCS environment and 
other environments such as D-AMPS, PDC and satellite PCS88. 
The PCS concept has inherent advantages over the UPT concept. True mobility is inherently 
part of it. It has a large and fast growing user base. Since customer profiles reside with the 
individual operators, it does not seem to have the same commercial barriers to implementation 
as UPT. Further, the PCS concept is driven from the highly competitive mobile sector and thus 
seems to offer better guarantees for a level playing field for all players. 
If we would add the possibility to port numbers between mobile operators and perhaps even 
the possibility to port numbers between mobile operators and fixed operators, an environment 
is created where the telephone numbers of today (the network termination points) become the 
de-facto personal numbers of the future. 
The Commission solicits views on the further development of personal communications and 
personal numbering and on mechanisms to promote effective competition in converging 
markets. 
Pan-European roamers represent a significant market with a hugh potential for increase who 
demand, besides operator-to-operator portability, geographical portability. New entrants argue 
that they need European number ranges, particularly service resellers. The Commission seeks 
views on the need for a European numbering solution for PCS . 
87 A generally accepted definition of PCS is: "PCS is used as a generic term for services which provide person-
to-person calling, independent of location, terminal used, ihc means of transmission (wireline or svirelcss) 
and/or the choice of technology"; sec for instance "I7.TO discussion paper for a svorkshop on numbering of 
Personal Communications Services (PCS) in I;.uro|>c", 19 April 1996. 
Inter-syslcm roaming between various mobile networks including the possibility o\' SIM card roaming is 
under discussion 
The recently established UMTS Forum has as one of ils main task the elaboration of a mobile 
communications policy for Kurope. This includes inter alia the issue ol nuinbciing 
37 
ANNEX V : A REFERENCE SCENARIO FOR MOVING TO AN OPEN AN!) UNIFIED 
EUROPEAN NUMBERING ENVIRONMENT 
At the European lcsel At the national level 
STEP 1 
(implements ETNS under Option 2) 
By 1998, introduce pan-Europe services under 
virtual country code 388 (e.g. 3-888-) 
and under empty space behind national codes 
(e.g. 3-900-, 3-500- ) 
I STEP 1 
By early 1997, define and agree on common 
guidelines for mandator)' use by administrations 
svhen resvriting their national numbering schemes 
to ensure that these open up (for competition) 
in a balanced manner and converge (harmonisation) 
I 
STEP 2 
(implements Option 3) 
By late 1998, transition towards a 3-digit 
country code for European countries , 
I STEP 2 
By 1997, start rewrite national numbering 
schemes to ensure that they can fully accommodate 
the needs of the post-1998 liberalised market 
I 
STEP 3 
(implements Option 3+) 
By 1999, transfer the responsibility 
of managing the last tsvo digits of the 3-digit 
country codes to a European body. 
Europe is identified by "3", creates enormous space 
for competition, new services and market entrants STEP 3 
By 1998-1999, start opening up national numbering 
schemes in a harmonious and balanced manner 
for example for carrier selection 
I 
STEP 4 
(implements Option 4) 
By 2000, melt national numbering schemes and the ETNS together. 
Replace international dialling for intra-European calls by regional dialling 
e.g. replace "003XX" (access code) by "IXX" (prefix), leading digit "1+" represents European trunk call. 
Facilitates dialling and remos'es psychological barriers, 
opens range of common short codes for different applications e.g. carrier selection etc. 
geographic numbers 
local dialling: 2345678 
national dialling: 02-2345678 
intra-European dialling: 132-2-2345678 
international dialling: +3-32-2-2345678 
non-geographic numbers (pan-European service numbers) 
carrier selection : lOXYZor 10ABCDEF 
emergency number, road side assistance, director)' assistance: 1IX 
personal numbers: 1-500-
freephone service: 1 -888-
prcmium rate and shared cost services: 1-900-
A REFERENCE SCENARIO FOR MOVING TO AN OPEN AND UNIFIED EUROPEAN NUMBERING ENVIRONMENT 
country code STEP 1 - 1998 
now Option 2 STEP 2-1998 
Option 3 STEP 3 - 1999 
Option 3+ STEP 4- 2000 
Option 4 
"003 " -> " 1 " " 1 " is European prefix 
3 00 
3 09 10XYZ prefix e.g. carrier selection 
112 common emergency 
11X European short service codes 
118 directory services 
3 20 
3 29 12X empty space (national short codes) 
31 
32 
39 
49 
350 
352 3900 
3500 331 
332 
339 
349 
350 
352 331 
3 32 
3 39 
3 49 
3 50 
3 52 
3 XX 
3YY 131 area code Netherlands 
132 area code Belgium 
139 area code Italy 
149 area code Germany 
150 area code Gibraltar 
152 area code Luxembourg 
IXX further geographic area codes 
1YY further European service codes 
388 3500 
388 
3900 3 500 
3 888 
3 900 1500 personal communications sei*vices 
1888 European freephone 
1900 European premium rate services 
Rest of the world to Europe: +3 49 228 123456 
+3 500 <personal number> 
ANNEX VI: ETO/ECTRA STUDIES ON NUMBERING 
Titlt Work requirement 
To examine issues of number ownership and number tradability , equal access to competitive 
services such as directory services and DNIC/DCC allocation procedures 
To examine aspects of user-friendliness including the issue of alpha-numeric dialling and make 
proposals hosv to promote user-friendly dialling 
To prepare a submission to ITU requesting for a virtual country code for the implementation of a 
European Telephony Numbering Space for special services of pan-European nature 
To analyze developments of télécoms services and netsvorks related to UPT/PCS numbering issues 
and the effects on and requirements for personal numbering 
To investigate carrier selection mechanisms available or planned at the national les'el and 
alternatives for introducing carrier selection at the European level 
To establish a management plan for a European Telephony Numbering Space including proposals 
for number structure, allocation principles, rights/obligations and administration 
To investigate technical alternatives for introducing number portability in an ETNS between 
European service providers including IN netsvork implementations 
To define alternative strategies for handling and routing of pan-European service calls numbered 
from a European Telephony Numbering Space 
To review the current access mechanisms for VPNs», define the requirements of corporate netsvorks 
on the numbering of public networks and propose harmonisation measures 
To study svhich criteria arc important for opening up national numbering schemes, review current 
national numbering schemes and develop common guidelines for restructuring them 
To study current rules and principles of telephone number allocation and use in European 
countries and prepare proposals for detailed European Numbering Conventions 
To review the present and planned short codes/numbers in Europe, investigate the expected need 
for pan-European short codes and propose a harmonised scheme for Europe 
To identify potential future requirements for numbering and addressing and des'elop a long term 
transition strategy for moving towards an integrated numbering plan for Europe . Target/end date 
May Ï996 
September 1996 
September 1996 
December 1996 
August 1996 
June 1997 
June 1997 
June 1997 
June 1997 
February 1997 
February 1997 
December 1997 
December 1997 1 Non-discriminators' access to numbering resources 
2 Numbering related to the topic of user-friendliness 
> Preparation of request for virtual country code to ITU 
-' Numbering related to PCS in Europe 
5 Canicr selection* 
6 Management of a European Telephony Numbering 
Space (ETNS)* 
7 Number portability for pan-European services* 
X Routing aspects of pan-European service calls* 
9 Numbering requirements of corporate 
telecommunications netsvorks* 
10 Revicsv of national numbering schemes on their 
openness to competition 
11 European Numbering Conventions 
12 Harmonisation of short codes 
1 "> Long tcnn strategic plan for numbering and addressing 
of telecommunications services 
In conjunction svith ETSI 
( ) studies lead lo recommendations for ECTRA approved policy positions. 
ETSI will produce technical reports as input to the ETO svork. ETSI reports may also form the basis for European Telecommunications Standards (ETS) for reference in future European Union 
legislation but no agreement exist today about the need for ETSs. 
LIST OF ABBREVIATIONS 
ACTE Approvals Committee Terminal Equipment 
AMT Asian Mobile Telecommunications 
AT&T American Telephone & Telegraph 
BT British Telecom 
CEPT Conference Européenne de Post et Telecommunications 
CLI Customer Line Identification 
DDI Direct Dial-In 
DNS Internet Domain Name System 
DECT Digital European Cordless Telecommunications 
DNIC Data Network Identification Codes 
DTMF Dual Tone Multiple Frequency 
ECMA European Computer Manufacturers Association 
ECTEL European Telecommunications Manufacturers Association 
ECTRA European Committee of Telecommunications Regulatory Affairs 
EIG European Interest Group 
EIIA European Information Industry Association 
ENF European Numbering Forum 
ETNO European Public Telecommunications Network Operators' Association 
ETNS European Telephony Numbering Spac 
ETO European Telecommunications Office 
ETSI European Telecommunications Standards Institute 
FCC Federal Communications Commission of USA 
GSM Global System for Mobile communications 
GSM Association of GSM operators 
IN Intelligent Network 
ISDN Integrated Services Digital Network 
ITU-T International Telecommunications Union - Telecommunications sector 
LAN Local Area Network 
LECs local exchange carriers 
NAFTA North American Free Trade Association 
NANC North American Numbering Council 
NANP North American Numbering Plan 
NRA ' National Regulatory Authority 
OECD Organisation for Economic Construction and Development 
OFTEL UK Office of Telecommunications 
ONP Open Network Provision 
PCS Personal Communications Services 
POTS Plain Old Telephone System 
PSTN Public Swiched Telephony Network 
PTN Private Telecommmunication Network 
SME Small and Medium size Enterprise 
VPN Virtual Private Netsvork 
UIFS Universal International Freephone Service 
UMTS Universal Mobile Telecommunications System 
UPT Unts'crsal Personal Telecommunications 
GLOSSARY 41 
ACTE (Approvals Committee for Terminal 
Equipment) 
Alpha-numeric dialling/keypad 
Call centres 
Calling card services 
Carrier selection 
Carrier selection os'erride 
Dialling parity 
E.164/E.190 
Easy access 
ECTRA 
ENF - European Numbering Forum Created b\ Directive 91/263/KHC, and, inter alia 
responsible for the adoption of the Common Technical 
Regulations (C'l'Rs) on which EU hamioniscd type 
approval procedures are based 
Dialling a telephone number by using the 
alphanumeric tokens on the telephone's keypad that 
correspond to the name of the service or the called 
party e.g. 0-80C>-"FLOWERS', 
A place ss'here incoming and outgoing telephone traffic 
is handled in a structured manner. Call centres are 
used for activities such as telemarketing and sales, 
teleservice and complaints handling 
A telephone service svhere the customer calls an 
operator service (often free-of-charge), identifies 
himself svith a unique card number and identification 
code, and is then connected to any destination(s) 
svanted. The customer is often billed afterwards 
directly by the card service provider. 
The possibility for customers to choose their 
(preferred) long-distance or international operator 
through telephony dialling or other means such as pre­
selection. 
The possibility to override the pre-selection of a long­
distance or intemational carrier by adding a special 
carrier prefix to the dialled sequence. 
Exists svhen the same number of digits have to be 
dialled svhen accessing a service which is provided by 
different competing service providers 
ITU-T Recommendations gos'eming the procedures 
and criteria for the allocation of country codes. 
One option for the implementation of carrier selection 
sshere the default carrier is determined by the 
incumbent operator svith the possibility of os'erride 
through dialling by the user on a call by call basis 
The European Committee for Telecommunications 
Regulator}' Affairs (ECTRA), created as one of the 
three committees under the CEPT. It includes a 
number of project teams covering inter alia licensing, 
numbering, interconnection, mobile communications, 
testing and type-approval. 
Council Resolution 92/C318/EEC of 19 November 
1992 on the promotion of co-operation on Europe-svide 
numbering, identified several tasks for ECTRA in 
numbering co-ordination, including the creation of a 
European numbering space and the preparation of 
European positions for discussion svithin ITU. ECTRA 
has set up the European Telecommunications Office 
(ETO). 
An industry Forum to discuss numbering and 
numbering related issues. The ENF is open lo any 
organisation that has an interest in numbering or 
addressing and that is represented at the European 
level. The ENF was established in 1994 follosving the 
Council Resolution 92/C 3 18/EEC of 19 November 
1992 that called for industry cooperation inThe area of 
numbering. 
Equal access 
ETNO 
ETNS - European Telephony Numbering Space 
ETO - European Telecommunications Office 
ETS 
Europe-svide service/number 
European area/country code 
European Telecommunications Standards Institute 
(ETSI) 
Freephone service 
Golden numbers 42 
Generic term for equal (non-discriminators ) access to 
numbering resources by competing operators and 
service pros'idcrs e.g. equal quality, equal opportunity, 
equal length. 
In relation to carrier selection, equal access refers to 
the implementation where the long-distance carrier is 
pre-selected by the customer svith the possibility of 
override through dialling on a call by call basis. This 
option is generally a second step follosving the 
implementation of "easy access". 
Association of European Telecommunications 
Netsvork Operators, currently comprising the 
incumbent operators in Europe but discussions are 
ongoing to open up to independent mobile operators. 
A numbering space that sits parallel to the national 
numbering spaces. Numbers from the ETNS svill be 
available anywhere in the European Union (and later 
on Europe). When implemented, a services numbered 
from the ETNS can be accessed by a single pan-
European number from any place in the Union (and 
later on Europe). 
The European Telecommunications Office (ETO) is an 
office svhich has been established under the umbrella 
of ECTRA. With regard to numbering, ETO's 
functions are to undertake studies, including studies 
for the Commission and to ads'ice ECTRA on 
European numbering issues. 
European Telecommunications Standard. Standards 
established according to the procedures of the 
European Telecommunications Standards Institute 
(ETSI). 
A service that can be accessed by a single number 
from anywhere in Europe provided by a service 
provider that can be located anywhere else in Europe 
A specific single digit code assigned to Europe under 
the ITU global country code scheme; like " 1 " for North 
America 
The European standards organisation in the 
Telecommunications field, having the task of 
producing European Telecommunications Standards 
(ETS), having European-wide application and 
acceptance, in the area of telecommunications. 
A service that is (can be accessed) free of charge to the 
customer. The access code "800" is generally 
associated with freephone. There is an ongoing debate 
in the Member States svhether the customers svhen 
calling a freephone number need to get a free service 
or, alternatively, only the call to the service centre is 
free of charge. 
Golden numbers are telephone numbers that 
distinguish themselves from all other numbers in a 
given number range because they are attractive to has-e, 
are easy to leam or remember, subjcctisely pleasing or 
are in use and knosvn by the general public or client 
base. Golden numbers may hase a big commercial 
value. For instance, the digits that relate to 
"FLOWERS" on the standardised alphanumeric 
keyboard mav have special salue to a tlosver service 
43 
Green Paper(s) 
Information Society 
Internet 
ISDN 
ITU - Intemational Telecommunications Union 
MoU - Memorandum of Understanding 
Non-geographic services 
NRA - National Regulator}' Authority 
Number portability 
Numbering Conventions 
Numbering plan/scheme Green Papers, in the European Union context, arc 
Eurojx;an Commission consultative documents setting 
out basic policy goals for public debate. 
Kev Green Papers issued in the telecommunications 
sector, arc the 1987 Green Paper on the development of 
a common market for telecommunications services and 
equipment (COM (87) 290) and the 1994 Green Paper 
on the further development of mobile and personal 
communications in the European Union (COM (94) 
145). 
A society that becomes more dependent on information 
and communication. In the report entitled "Europe and 
the global information society" (the Bangemann Group 
report) it is presented as a revolutionary challenge 
svhich will change the svays of living and svorking 
together. 
Data communications netsvork based on the Internet 
protocol TCP/IP. TCP/IP was developed as a US 
military computer based communications standard 
svhich has o\'er recent years met great success in 
academic and later in commercial applications -
particularly for intemetsvorking among different LAN 
ens'ironments and servers. 
Integrated Services Digital Netsvork. Standard defined 
by the ITU for the modem telecommunications bearer • 
netsvork. Is end-to-end digital and integrates different 
type of services e.g. circuit and packet ssvitched 
services. 
International Telecommunications Union (ITU), the 
United Nations specialised agency for 
telecommunications. 
MoUs in the telecommunications field in Europe have 
been entered into betsveen operators and/or equipment 
manufacturers or other market participants for the roll 
out of new products and services. 
MoUs have been entered inter alia for GSM, ERMES 
and TETRA. 
Telecommunications services that are numbered from 
(national) number ranges that are not identified with 
one specific geographic region, city area or local 
community. A country svide freephone service or a 
service numbered from the ETNS are examples of non-
geographic services. 
National Regulatory Authority. Directise 88/301 and 
90/388 both require Member States to ensure the 
separation of regulatory activities from the operation 
and provision of services by Telecommunications 
Organisations. 
Can has'e ditTerent meanings (see Annex III). Is often 
referred to as the possibility to transfer a telephone 
number from one operator to the other. Number 
portability thus allows customers to retain their 
telephone number svhen they decide to change operator 
and rcmoscs an important barrier lo competition. 
Consentions laying dosvn rules about e.g. rights and 
obligations associated svith numbers, the modification 
of" numbering schemes, number pricing and number 
trading. 
1 Jndci the framework contract svith the Commission, 
ETO has been tasked to define European Numbering 
Conventions svhich should create a common 
framework lor European Administrations 
A plan/scheme that structures the number space 
available to a ctumtiv, operator or other organisation. 
Numbering space/environment 
ONP 
Open numbering environment 
PCS - Personal Communications Services 
Personal and portable numbers 
Pre-selection of carriers 
PSTN 
Service access code 
Service Providers 
Shared cost services 
Shared revenue of premium rate services 
Special pan-European services 
TEN - Trans-European Networks 
Trans-European carriers 
UIFS - Universal International Freephone Service 
Unified numbering environment 
UPT - Universal Personal Telecommunications 44 
Generic tcnn for the total set of numbers available 
behind a country code or service access code or the 
collection of them 
The Open Netsvork Provision concept defined in 
Council Directis'e 90/387/EEC. 
A numbering environment that is open to competition 
e.g. that provides equal quality and equal opportunity 
numbers to competing operators and service providers. 
Personal Communications Services (PCS) is a generic 
term for services svhich provide person-to-pcrson 
calling, independent of location, terminal used, the 
means of transmission (wired or wireless) and/or the 
choice of technology 
Unique number assigned to the individual independent 
of netsvork or location. 
Mechanism svhere the local operator/service provider 
will automatically route the long-distance and 
international calls of a customer to the long-distance 
carrier of hios choice (pre-selected by the customer). 
The customer does not have to dial special carrier 
selection codes with every call. 
Public Ssvitched Telephone Network. The basic 
telephone network as it exists today. 
The first part of a service number through svhich the 
service is accessed. Often, service access codes are 
uniquely identifiable codes e.g. "800" for freephone or 
"900" for premium rate services. 
Service providers offer services to end users involving 
the use of mobile and fixed networks and services. The 
role of service providers may very between that of 
airtime reseller to the provision of sophisticated value 
added services. Service providers may be independent 
or form part of a network operator. 
These services provide special tariff netsvork access in 
svhich the cost are shared betsveen the caller and the 
service provider. The caller pays the call at a tariff 
generally equivalent to a local call. The netsvork 
provider charges the service provider for any additional 
transport to the service provider termination point. 
Services provided on a shared revenue infrastructure 
permitting the charging of calls to certain prefixes at a 
premium rate. The calls are billed to the subscriber by 
the operator and a "share" of this revenue is paid to the 
service pros'ider, in general an independent company. 
Generic term for service platforms for e.g. freephone, 
shared cost and shared revenue (premium rate) 
services that are Europe-wide as'ailable. 
Generic term for interconnected networks and services 
available on a pan-European basis. 
Long-distance and international carriers that carry 
trunk (volume) traffic betssreen different European 
locations (or Points of Presence). 
ITU-T Recommendation establishing a global 
freephone sen ice behind the country code 800. The 
implementation is a matter of commercial negotiation 
between individual operators. 
A numbering environment created by melting together 
a set of national numbering schemes svith a singular 
structure and e.g. single service access codes for 
general public services 
ITU-T Recommendation for establishing a j->crsonal 
communications ens ironment svhere the individual can 
be reached through a single (personal) number 
independent ol network or location. 
ISSN 0254-1475 
COM(96) 590 final 
DOCUMENTS 
EN 15 
Catalogue number : CB-CO-96-607-EN-C 
ISBN 92-78-11826-5 
Office for Official Publications of the European Communities 
L-2985 Luxembourg