COMMISSION OF THE EUROPEAN COMVttJNITIES 
C0M(94) 440 final 
Brussels, 25.10.1994 
COMMUNICATION FROM THF COMMISSION 
GREEN PAPER ON THE LIBERALISATION OF 
ft 
TELECOMMUNICATIONS INFRASTRUCTURE 
AND CABLE TELEVISION NETWORKS: 
PART ONE 
PRINCIPLE AND TIMETABLE 

TABLE OFTKJNTENTS 
PREFACE 
SUMMARY 10 
I INTRODUCTION 12 
II THE CURRENT REGULATORY SITUATION CONCEIVING THE PROVISION 
AND OPERATION OF INFRASTRUCTURE 17 
(1) ALTERNATIVE NETWORK INFRASTRUCTURES 17 
(2) CABLE TV INFRASTRUCTURES 19 
(3) MOBILE AND PERSONAL COMMUNICATIONS NETWORK 
INFRASTRUCTURES 20 
(4) SATELLITE COMMUNICATIONS NETWORKS 20 
III THE SPECIFIC CASE OF LEASED LINES IN EUROPE 21 
IV THE EXPECrED BENEFITS OF LIBERALISATION 22 
V. THE FREE CHOICE OF INFRASTRUCTURE FOR THE PROVISION OF 
LIBERALISED SERVICES AS A GENERAL PRINCIPLE 24 
VI ISSUES RAISED IN CONSIDERING A TWO STAGE PROCESS 26 
VII THE PROPOSED FRAMEWORK FOR ACTION 33 
VIII CONCLUSION 36 
PREFACE J 
INFRASTRUCTURE: THE BACKBONE OF THE INFORMATION SOCIETY 
The information society is on its way. Digital technology is transforming the 
telecommunications, computer, information and audio-visual industries. In fact, it is 
converging them all into one. It is also beginning to have a profound effect on 
society and the economy, changing the way we work, live and play, the way we do 
business, the way we organise ourselves, the way we interact. These changes are 
happening all over the world, everyone is busy preparing for and adapting to the 
challenges of the new information age. That includes Europe. It also includes the 
USA, Canada, and Japan - Europe's principal economic competitors. The nature of 
that economic competition itself is also changing. To compete effectively today, 
one must have the means to access, to process, manipulate, stock and produce 
information quickly and effectively. One must also have good access to markets and 
to customers all around the globe. It is therefore vital that Europe places itself at 
the forefront of this inevitable drive towards a global information society. 
Telecommunications infrastructures will form the fundamental platform upon which 
Europe's society and economy will depend in the decades to come. These 
infrastructures, which will enable vast quantities of information to flow freely and 
rapidly around Europe, when combined with the new services and applications 
which can be tailor-made to users* needs, will be the backbone to Europe's 
information society. 
NO STRENGTH IN WEAKNESS: KEEPING EUROPE COMPETITIVE 
In a world economy that is increasingly globalised, European firms must be able to 
compete effectively with their counterparts in other regional economic groupings. 
By reinforcing their competitiveness European companies will not only be able to 
retain their position in existing markets, but help ensure that they are well-placed to 
take advantage of new opportunities arid win new markets. 
To remain competitive, European industry must benefit from the widespread 
diffusion and integration into production processes of new technology. Information 
and communication technologies can make a significant contribution to helping 
improve productivity, which is essential to the creation of wealth and to 
competitiveness. By stimulating economic growth, competitiveness contributes to 
job creation. 
Information and communication technologies can help enterprises adapt to change 
by introducing new methods of organisation. As we move towards an economy 
based on immaterial production driven by information, it is necessary that Europe is 
in a strong position to implement the essential technological, economic and social 
transformations that will ensure its smooth passage to the information age. 
Providing open access to the network is absolutely fundamental to the successful 
development of the information society. All users, whether they be small or medium 
enterprises, entire industries, governments, public administrations, citizens or 
consumers, must have easy access to network-based services. It is essential that this 
basic principle is upheld, for Europe's continued competitiveness will depend on it. 
Just as the provision of infrastructure for service providers should be open, un­
restricted and at cost-related prices, all users, irrespective of their location, should 
have equal access to the network at affordable prices. Within the new environment 
of the information society therefore, the principle of a universal service must be 
reinforced and adapted if necessary to incorporate the new range of basic services 
now becoming available. 
INDUSTRIAL AND ECONOMIC EFFECTS OF INFRASTRUCTURE LIBERALISATION 
Three positive economic effects can generally been noted in countries which have 
proceeded with liberalisation of télécoms infrastructure (UK, Sweden, USA, 
Japan, Australia and New Zealand): a pressure to lower tariffs, greater choice of 
services and improved quality of offerings. 
Information technology and communications products and services have 
penetrated all major sectors and industries in the member states. Given that the 
cost of handling a unit of information has divided by ten in the last 10-15 years, 
the price of transmitting a unit of information can also, if the incentive provided 
by competition is introduced, be reduced in such proportions. 
Technological progress and innovation brings with it the opportunity to offer 
users an increasing choice of services and applications, of superior performance 
and better suited to their particular demands. For business the realisation of such 
an opportunity translates into substantial competitive advantage. For domestic 
users it means the possibility of direct access on demand of new services and 
entertainment. 
For providers of services and applications, the consolidation of their competitive 
position depends largely upon the improvement of the quality of their offerings. 
Other positive effects of infrastructure liberalisation are also recognised: the 
growth of the télécoms market, of new opportunities for job creation in new 
services and support for innovation in télécoms equipment industries. 
4 
One of the major preoccupations for public authorities concerning a liberalisation 
policy of this type, concerns the need to avoid a deterioration of the financial 
viability of their operators and to guarantee sufficient funding of universal 
service. The countries which have liberalised télécoms infrastructure are 
generally known to have higher rates of growth in their télécoms services 
markets. 
Free access to infrastructure has many effects on employment: apart from the 
direct effects of potential jobs concerned with establishing and running new 
networks, indirect employment effects are generally observed in the growth of 
jobs in the service industries which depend upon economic access to and use of 
infrastructure, in order to improve their competitivity. 
The pressure of competition between network operators forces them to be more 
receptive to the increasing demands of users and results in faster progress in IT in 
the manufacture of equipment and software. 
THE WHITEPAPERON GROWTH, CO^ffETTnVENESS, EMPLOYMENT 
These are some of the key arguments elaborated in the European Commission's 
White Paper on Growth. Competitiveness. Employment (COM Y93Ï 700 final), 
presented by President Delors to the European Council in Brussels in December 
1993. The White Paper highlights the importance of moving forward towards the 
information society as one of the essential elements to help Europe reach those three 
goals. It also points out that the majority of funds to finance the development of 
trans-European information networks should come from die private sector. 
THE BANGEMANN REPORT 
A High Level Group, under the chairmanship of Commissioner Bangemann, was 
instructed by the Member States to present a report to the European Council in 
Corfu in June 1994, which recommends a certain number of specific measures to be 
taken into consideration by the Community and the Member States in the sphere of 
information infrastructures. 
The underlying message behind the Bangemann Report is that the best environment 
for the development of new markets is an open and competitive one. Public 
administrations can no longer afford to maintain the high levels of investment 
necessary to ensure that their national telecommunications industry remains 
competitive on the work) stage, unless it is at the expense of social measures, A 
liberalised market for services and infrastructures will help unlock revenues vital to 
support the huge private investments necessary for the development of the 
information society. It Can thus free governments of enormous political and 
economic constraints, generating new revenues, which can be used to invest in 
health, education and culture. 
TOWARDS A COMPETITIVE ENVIRONMENT 
An operLmarket environment for the development of services - a principle already 
adopted by Member States - cannot be properly implemented without parallel action 
at theievel of infrastructures. New actors would find it difficult to offer their own 
new services if their access to the network continues to be restricted and with 
dominant players able to price them out of the market. Service providers must hé 
able to benefit from open access to other services and to other networks at cost-
related prices, as well as being able to build and operate their own networks. 
A liberalised market is also a flexible one. Telecommunications is a domain that is 
characterised by constant change and rapid technological progress. It is only in a 
free and open environment, driven by market forces, that enterprises can achieve the 
degree of flexibility necessary if they are to react quickly to new developments and 
adapt to them. This requires them to maintain high levels of investment in research 
and development and to be able to integrate new technologies into their 
organisational and production processes as rapidly as possible. 
At this stage, it is difficult to discern which technologies and which markets will 
ultimately prove to be the successful ones. The flexibility achieved in an open 
market environment is therefore all the more essential in the context of the 
information society because companies must be allowed the freedom to try out 
alternative routes towards new applications and markets, and test out a variety of 
different technologies. 
A CLEAR AND STABLE REGULATORY FRAMEWORK 
It has been made clear that the private sector is expected to make by far the greatest 
investment contributions for the implementation of the information society. 
However, this investment will not be forthcoming unless a clear and stable 
regulatory framework is promptly established, identifying the general principles and 
giving a clear timetable. This point was recently emphasised by the "Jumbo" 
Council on 28 September 1994: 
"The Council (...) stresses the importance and urgency with respect to rapidly evolving market 
conditions of setting up a clear and stable regulatory and legal framework allowing market 
operators to engage in business activities, to invest and to take initiatives to bring about the 
information society."1 
Conclusions of the 1787th Council meeting 9561/94 (Press 197), 28.DC.94 
Otherwise, investment will be slow and badly directed, whilst in other regions of the 
world, industry takes off. It is essential that Europe learns from its mistakes made 
back in the early days of the computer industry. 
Therefore, the Commission's Action Plan (COM (94) 347 final, 19.07.94) stressed 
the need for a clear and stable regulatory environment. It also set out a policy 
framework ibr the development of the information society covering various other 
areas: networks, basic services, applications, and content; and social, societal and 
cultural aspects. 
THE SOCIAL CHALLENGES 
The impact on employment 
The information society is rapidly developing; new investment opportunities are 
being created everywhere and the application of information and communication 
technologies are affecting all industries and services in our society. These 
technologies will have a strong impact on the whole economic system, growth, 
competitiveness and employment. 
The application of these technologies can help to strengthen cohesion in the society, 
to develop a more efficient organisation in a number of fields and also to contribute 
to the development of Europe's regions. A number of aspects of the society are 
changing because of these technologies. Work is changing. The education and 
training systems are changing to provide in particular young people with the 
necessary qualifications to become Citizens in the information society and we are 
only beginning to exploit the potential these technologies offer for Europe's citizens 
to benefit from their cultural and linguistic richness. 
However, people are concerned about the effects these technologies can have on 
employment. The concern arises from the belief that a rapid application of these 
technologies could lead to only few new jobs and to even higher levels of structural 
unemployment (now more than half of the unemployed in the Union are long-term, 
structurally unemployed and they account for about 6 % of the active population). 
Although there are a number of risks associated with the advantages of the 
information society, its creation is crucial to ensure sustainable growth and 
employment and to further develop the European model. Consequently, as set out 
below, it is imperative to evaluate the effects of applying the new technologies and 
define the accompanying measures to maximise the economic, social and cultural 
advantages and at the same time minimise the risks. 
Reaching Societal Goals 
Moreover, new distance monitoring services linked to a global network will help 
Europe, as well as the rest of the world, to meet global challenges such as the 
protection of our environment (for instance a sound management of natural 
resources, the reduction of pollution, the prevention of industrial disasters, etc.), and 
enable better quality healthcare provision for all (efficiency of information handling 
will reduce the cost of healthcare systems), and help reduce pollution and the social 
cost of traffic congestion through improved transport management systems. 
Avoiding a Two-Tier Information Society 
The information society also presents the Union with the major social challenge of 
preventing the creation of a two-tier society of haves and have-nots, in which only 
part of the population has access to the new technology, is comfortable using it and 
can fully enjoy its benefits. In thé chapter, on social, societal and cultural aspects, the 
above-mentioned Action Plan explores these issues as well as the information 
society's contribution to the promotion of Europe's cultural and linguistic diversity. 
Provided policies are appropriately directed and applied the information society can 
make a significant contribution to the attainment of a certain number of fundamental 
social goals: improving the quality of life of Europe's citizens, raising the efficiency 
of our social and economic organisation, and reinforcing cohesion. Europe's 
economic prowess not only depends on the success of its industry in the global 
arena, but also on the effectiveness and quality of its social organisation. 
INFRASTRUCTURE LIBERALISATION 
Opening up telecommunications infrastructure to competition is the key issue which 
now requires a political decision. The High Level Group acknowledged this in its 
first recommendation requesting the Member States to 
"accelerate the on-going process of liberalisation of the télécoms sector by: opening up 
to competition infrastructures and services still in the monopoly area; removing non­
commercial political burdens and budgetary constraints on telecommunications 
operators; and setting clear timetables and deadlines for the implementation of 
practical measures to achieve these goals" (emphasis added). 
In line with these conclusions, the Commission's Action Plan identifies 
infrastructure liberalisation as one of the main initiatives to be taken in order to open 
the way for the development of the network and applications On which the 
information society relies. 
The joint industry/telecom Council of 28 September 1994 welcomed the submission 
of the Commission's Action Plan and agreed on the urgent need to stabilise the basis 
for market operators' decisions as soon as possible by providing a clear and stable 
framework, and to provide a more secure basis for planning for all parties involved. 
The Council confirmed its readiness to examine and, if possible, to decide on the 
principles of liberalisation of infrastructure and to set a clear timetable. 
THE APPROACH CHOSEN 
In conclusion, in line with the Council discussions of 28 September 1994, the 
Commission therefore considers that the debate on the future approach to 
infrastructure can and should be structured in two parts : 
the basic Principle and Timetable. Developing the basis for agreement on the 
basic principle and on a timetable is the purpose of Part I of the Green Paper. 
Agreeing a basic principle and timetable now will enable the sector to plan 
investments and will provide investors with the necessary investment certainty in 
order to open the way for private funds to be forthcoming. That will also put the 
Union in a position to fully participate in the international debate which is opening 
in the context of the World Trade Organisation and the G7 Ministerial Meeting. 
The Union would also be able to undertake the measures required to lift the most 
immediate obstacles to the full use of existing network resources and of cable TV 
networks and provide a boost for the take-off of mobile and multimedia services, 
as well as the development of corporate communications. 
Part II of the Green Paper should prepare an in-depth discussion of the major 
issues involved in future network regulation once the full liberalisation of public 
voice telephony service allows provision of such services. 
The Commission recognises that, in order to address these issues, a wide debate 
on future regulation of network infrastructure is needed, and that a global, 
balanced and integrated approach must be developed. This should include the 
issue of the future financing of universal service and other public service tasks, as 
well as taking full account of the industrial, economic and social dimension and the 
international context. 
The broad public consultation will involve the Council of the European Union and 
the European Parliament; the Economic and Social Committee and the Committee 
of Regions; consumers and business users; present and potential network operators 
and service providers; equipment manufacturers and technology providers; together 
with the trade unions and other organisations representing the social interests in the 
sector. 
SUMMARY 
A clear timetable was set at a Community level by Council Resolution 93/C213/01 
of 22 July 1993 for the development of telecommunications in the European Union. 
This timetable confirmed the date of 1 January 1998 for the liberalisation of voice 
telephony services for the general public, subject to transitional arrangements for 
certain Member States. 
With a clear timetable set for services liberalisation, the primary regulatory task 
must now be to provide the sector with a clear picture of how and when 
liberalisation of infrastructure will proceed. The Green Paper proposes that a 
coherent approach, integrated into the framework provided by Council Resolution 
93/C213/01, is now required: infrastructure liberalisation should be linked to the 
timetable for the full liberalisation of telecommunications services, including both 
services which are currently open to competition and those to be opened to 
competition by 1 January 1998, i.e. voice telephony services for the general public. 
In order to define such a coherent approach, the Green paper would propose a 
general principle: provided that the necessary safeguards are in place, the providers 
of telecommunications services which are open to competition should have a free 
choice of the underlying infrastructure for the delivery of such services. 
This Paper therefore puts forward the position that, on the basis of this principle, 
action is necessary and desirable to remove immediately restrictions on the use of 
own or third party infrastructure in the following areas : 
1. for the delivery of satellite communications services, 
2. for the provision of all terrestrial telecommunications services already 
liberalised (including thé use of cable television infrastructure for this 
purpose), 
This concerns voice and data services for corporate networks and closed user 
groups, as well as all other telecommunications services, other than the 
provision of voice telephony services to the general public, 
3. to provide links, including microwave links, within the mobile network for the 
provision Of mobile communications services, and 
4. within the timetable for the full liberalisation of voice telephony and subject to 
the necessary safeguards, for the provision of voice telephony services for the 
general public. -
10 
Immediate action in the first three areas could remove substantial barriers which 
currently exist to the provision of services already open to competition, thereby 
making the liberalisation measures undertaken by the Union fully effective At the 
same time the studies carried out suggest that action in these areas will not 
undermine the provision of universal service in the Member States. 
This approach ties in with earlier calls by European Parliament to take full 
advantage, as soon as possible, of the existing infrastructure of cable networks and 
to obtain optimum utilisation of cross-border utilities networks. 
As regards point 4, the full liberalisation of infrastructure for voice telephony 
services for the general public after they are opened to competition on 1 January 
1998 (subject to additional transitional periods for à number of Member States), 
additional safeguards will be required. These can only be defined on the basis of 
broad public consultation initiated by the second part of this Green Paper on 
infrastructure which is to be published in accordance with Council Resolution 
93/C213/01. 
The continuation of current constraints would fail to meet the requirements in the 
Report on Europe ami the global information society for the creation of conditions 
in which public and private capital can be mobilised to invest in the new 
technologies, which are vital for growth, competitiveness and employment. 
With these considerations in mind, the Commission submits the first part of this 
Green Paper to the Council and European Parliament and the European public. 
11 
I INTRODUCTION 
On 22 July 1993 the Council adopted Resolution 93/C213/012 which endorsed the 
general conclusions of the Commission's Communication on the consultation on the • 
review of the situation in the telecommunications services sector3 {the so-called 
"1992 Review") Council Resolution 93/C213/01 set out a timetable for the 
development of telecommunications and confirmed the date of 1 January 1998 for 
the liberalisation of voice telephony services4 for the general public. It also called 
for the development of future Community policy in the field of mobile and personal 
communications and in the field of telecommunications infrastructure and cable TV 
networks. 
Whilst, in accordance with Directive 90/388, the focus of the 1992 Review was 
whether exclusive or special rights over the provision of basic voice telephony 
services for the general public5 should continue, the effectiveness of the measures 
liberalising the telecommunications sector (in particular, the liberalisation of data 
communications, valued added services and the provision of data and voice services 
to corporate users and closed user groups), was questioned by many service 
providers and users of such services. 
In particular, high tariffs for and lack of availability of the basic infrastructure over 
which such liberalised services are operated or provided to third parties have 
delayed the widespread development of high speed corporate networks in Europe, 
remote accessing of databases by both business and residential users and the 
deployment of innovative services (such as telebanking, distance learning, etc.). 
Additionally, the regulatory restrictions in many Member States prevent the use of 
alternative infrastructure operated by third parties (such as the cable TV networks 
and networks owned by energy companies, railways, or motorways to meet their 
internal communications needs). Many large companies, employers groups and user 
associations stressed that European business is less competitive, that innovative 
services are more slowly deployed and that the creation and development of pan-
European networks and services is being delayed as a result. 
5 Council Resolution 93/C213/01 of 22 July on the Review of the situation in the telecommunications sector and 
the need for further development in that market, OJC213/Ï, 06.08.93 
Communiait ion to the Council and the European Parliament on the consultation on the review of the situation in 
the telecommunications sector, COM(93)l 59,28 April 1993. 
Possible derogations of up to 5 years were provided for Greece, Ireland, Portugal and Spain. Spain has 
announced in the meantime that it also plans to move to full liberalisation by 1 January 1998. Furthermore the 
very.small Luxembourg network can, where justified, be granted a transition period of up to two years. 
Commission Directive 90/388/EEC of 28th June 1990 on competition in the markets for telecommunications 
services defines voice telephony as the commercial provision for the public of the direct transport and switching 
of speech in rcal-liinc between public switched network termination points'. 
12 
In this context, the importance of effective and affordable infrastructure is 
increasingly recognised in political debate within the Member States themselves6. 
Parliament also called on the Commission to adopt as soon as possible the necessary 
measures to take full advantage of the potential of existing infrastructure of cable 
networks for telecommunications services and to abolish without delay the existing 
restrictions in the Member States on the use of cable networks for non-reserved 
services, and to adopt measures to obtain optimum utilisation of the cross-border 
telecommunications networks of railway operators and electricity producers7. 
The continued bottleneck situation in the provision of infrastructure was also 
identified as a key obstacle to the development of the European Information 
Infrastructure in the Report on Europe and the global information society prepared 
by the group of prominent persons, under the chairmanship of Commissioner 
Bangemann. The report calls for urgent action to adjust tariffs, recognising that na 
reduction in international, long distance and leased line tariffs will trigger 
expansion in the usage of infrastructures, generating additional revenues, and 
simultaneously giving a major boost to generic services and innovative 
applications". 
The report sets an agenda, using the Council Resolution 93/C213/01 as a reference 
point, for moving towards a multi-media communications environment. In its cover 
statement, the report urges the European Union to put its faith in market 
mechanisms as the motive power to carry the Union into the Information Age. 
In consequence, the report's first recommendation is to request the Member States 
to waccelerate the on-going process of liberalisation of the télécoms sector by 
opening up to competition infrastructures and services still in the monopoly area; 
removing non-commercial political burdens and budgetary constraints on 
telecommunications operators; and setting clear timetables and deadlines for the 
implementation of practical measures to achieve these goalsw. (Emphasis added) 
In their conclusions on the report, the Heads of State and Government at the 
European Council in Corfu considered "that the current unprecedented 
Sec in particular : 
- Consultation Publique organisée par Bruno iMSserre à la demande de Gérard Longuet : Quelle 
réglementation pour les télécommunication françaises?, Direction Générale des Postes et Télécommunications, 
April 1994, < 
- Study of (he International Competitiveness of the UK Telecommunications Infrastructure, DTI, February 1994 
- Report by McKin.sey for the Ministerie van Verkeer en Waterstaat, Telecommunicatie in Nederland : op weg 
tutor wereldklasse, June 1993 
Resolution of European Parliament of 20 April 1993 (A3-0113/93) 
13 
technological revolution in the area of information opens up vast possibilities for 
economic progress, employment and the quality of life, whilst simultaneously 
representing a major challenge". M further called for the necessary regulatory 
framework to be established at a Community level as soon as possible*. 
Taking up the conclusions of the Corfu summit, the Commission in its Action Plan 
on Europe's Way to the Information Society9 seeks to obtain agreement on the 
principle of infrastructure liberalisation in the telecommunications sector, together 
with clear dates for its implementation. The Commission also considers that some 
immédiate steps must be taken to improve the supply of infrastructure in order to 
facilitate the introduction of advanced applications, which can be taken without 
jeopardising the operation of or financial position of current public network 
providers. This will be of particular importance in the context of the evolving 
information society. 
The political agreement in Council Resolution 93/C213/01 on the date of 1 January 
1998 for the full liberalisation of telecommunications services allows the Completion 
of the liberalising measures already introduced at a Union level, in line with the 
obligations in the EC treaty, to establish an internal market for telecommunications. 
In particular, these measures have concerned the removal of regulatory barriers or 
restrictions to the free movement of telecommunications equipment and services, 
and the creation of a fair competitive environment, as well as the development of a 
common regulatory framework based on the principle of open access. 
With a clear timetable set for services liberalisation, the primary regulatory task 
must now be to provide the sector with a clear picture of how the Treaty rules apply 
to the provision of infrastructure, and, in particular, how and when liberalisation of 
infrastructure will proceed. 
At the request of a number of Member States, the Commission has completed 
studies10 concerning the use of cable TV networks and alternative infrastructures11 
8 Conclusions of the European Council, Corfu, 24-25 June 1994 
9 Europe's Way to the Information Society: an Action Plan, Communication of the Commission of 19 July 1994, 
COM(94) 347 final. 
'" The studies carried out were the following: 
- "The Impact of Liberalisation of Alternative Terrestrial Infrastructure for Non-Reserved Services" by Coopers 
and Lybrand, 1994; 
- "The Effects of Liberalisation of Satellite Infrastructure on the Corporate and Closed User Group Market" by 
Analysys, 1993; and 
- "IMmpact de {'authorisation de la fourniture de services de télécommunications liberalises par les câblo-
opérateurs" by IDATE, 1994. 
14 
for the delivery of those telecommunications services which have already been 
opened to competition under Community law. This concerns both voice and data 
services for private corporate networks and for closed user groups, as well as the 
provision of all non-voice services to the general public. 
The baste findings of the studies undertaken emphasise the potential role for cable 
TV networks and alternative infrastructure networks in meeting the concerns raised 
about the slower pace of innovation and delayed roll-out of liberalised services in 
the European Union. Opening such networks would help to overcome the problems 
of high pricing levels and lack of suitable capacity, which result at least in part from 
current exclusive provision of infrastructure in most Member States. 
The studies confirm that prices for 2 Mbit tines in the European Union are on 
average ten times more expensive than in North America. Such high tariff levels in 
Europe are a barrier to the take off of innovative advanced services, such as the 
range of building block applications identified in the Report on Europe and the 
global information society. They also limit the ability of small and medium-sized 
enterprises to benefit from such services as they emerge. 
The studies indicate that the growth of liberalised services would be promoted by 
widening the supply of infrastructure. Furthermore, it would be possible to allow 
the use of both alternative infrastructure and cable TV networks for the delivery of 
liberalised services, without having a major impact on the TO's finances and the 
provision of universal service.12 
As regards mobile communications, in the Green Paper on Mobile and Personal 
Communications13 issued in response to Council Resolution 93/C213/01, the 
Commission has set out its conviction thai restrictions on mobile network operators 
using their own or third patty infrastructure for the provision of mobile 
communications services should be lifted, tit order to allow such networks to 
operate efficiently and to ensure the sound development of the sector. 
•'* Alternative infrastructure is network infrastructure owned by entitities other than the telecommunications 
organisations* and includes cable TV networks. Often such mftastructurc concents networks constructed 
origtna% to tnetfuW internal con^^ 
and water companies, the railways and the motorway concessionaires). 
12 The studies indicate that opening up alternative infrastructure for the provision of liberalised 
tetecntniittifticafiore 
1* Green Paper on a conanon approach to mobile and personal communie «tions ale European Union, CQM(94) 
Î4S f«at, 27 Apr»» 1994. The Commission will shortly submit its report on the outcome of the consultations. 
IS 
As regards satellite communications netwoitsTCkmncir^R^^ 
called for the application of the principles of telecommunications policy, in 
particular libéralisation and harmonisation, to the satellite sector. 
The Commission considers that the time has now come to establish a general and 
coherent approach to infrastructure. This is the objective of this Green Paper. In 
parallel, the Commission will continue its work in this area. 
M Council Resolution of 19 December 1991 on the oVweloptnent of the common market for satellite 
communications services and equipment (92/C 8/01; QJC81,14.01.92) 
16 
II THE CURRENT REGULATORY SITUATION CONCERNING THE PROVISION AND 
OPERATION OF INFRASTRUCTURE 
According to the studies carried out, all Member States currently allow to varying 
degrees the alternative provision of infrastructure capable of carrying 
telecommunications services, alongside the national networks operated by the 
Telecommunications Organisations (TO's). However, the use of this alternative 
infrastructure is usually limited to specific purposes. Four general categories of 
authorisations can be identified: alternative network licenses for specific 
telecommunicationsservices; networks licensed for cable TV distribution; networks 
licensed ibr the provision of mobile communication services; and satellite 
communications networks. 
(I) ALTERNATTVE NETWORK I^^FRAST«UC^URES 
An overview with regard to current alternative network infrastructure licensed in the 
Member States for defined telecorrarturtications purposes is given in Table L 
In six Member States (Belgium, Germany, Greece, Spain, Italy and Portugal) the 
possibility exists for the self-provision of infrastructure by utilities for their own 
'- irtternal communication needs, such as the railways, motorways, energy and water 
companies. 
In four Member States (Belgium, Spain, Ireland and the Netherlands) wider rights 
exist for licensing, on a discretionary basis, the self-provision of infrastructure by 
non-utility corporate or closed user groups. However, the use of that infrastructure 
is limited to the internal communications needs of the organisations concerned. In 
two Member States (Germany and France) tn addition to the discretionary licensing 
of corporate/closed user group networks for interna] communications15, such 
alternative infrastructure can be used by third parties, subject to specified 
conditions16. 
Finally, in Denmark there is a general possibility to self-provide infrastructure; in the 
United Kingdom full infrastructure competition is permitted, either on the basis of 
** This Includes those iietworks belonging to the utilities in the ease of France. France has established a system for 
authorising independent networks ("réseaux indepcudants") for such purposes. 
16 For example, in Germany, certain entities, (primarily public utilités) can set up Hieùr own ifdfastrttcturc ibr 
internal communications, whilst private networks can he set up only with» a 25 km area, or heyoad last only if 
conibrming with certain technical configurations. For further detail see Coopers & l^brand, 1994. 
i? 
specific individual licences, or through the grant of class licences for certain types of 
infrastructure provision. 
Table 1: Current regtdation of alternative telecommunications transmission infrastructure 
General 
Alternative 
Provision Class17 Discretionary Discretionary Commercial 
Exemption Licensing for Licensing for Third Party 
For Utilities Self-Provision CUGs18 , Provision 
Belgium 
Denmark 
Germany 
Greece 
Spain 
France 
Ireland 
Italy 
Luxembourg 
Netherlands 
Portugal 
UK No 
No 
No 
No 
No 
No 
No 
No 
No 
No 
No 
Yes Yes 
Yes 
Yes 
Yes 
Yes 
No22 
No 
Yes 
No 
No 
Yes 
No No19 
Yes 
Yes 
No 
No 
Yes 
Yes 
No23 
Yes 
Yes 
No 
Yes No 
Yes 
Yes 
No 
No 
Yes 
No 
No 
No 
No 
No 
Yes No 
No20 
Yes21 
No 
No 
Yes 
No 
No 
No 
No24 
No 
Yes 
Source : "The Impact of Liberalisation of Alternative Terrestrial Infrastructure for Non-reserved 
Services", Coopers & Lybrand, 1994 
'• tlie exact categories of exempt organisations and nature of exemptions from the general obligation to use TO 
infrastructure vary according to the Member State concerned. 
'." Corporate networks / Closed User Groups 
'^ Belgian regulation provides in principle for licensing of private transmission links, but only where Belgacom is 
not prepared to provide a technically equivalent link at a normal tariff and within a reasonable period. 
2" Shared use of internal networks is possible under certain circumstances. 
2 ' However limited to particular configurations and maximum distances. 
22 No specific exemption for utility companies - application must be made by them for an authorisation to operate 
an independent network ("réseau indépendant") 
2- 'fhe Italian Postal Code provides for the possible discretionary licensing of private telecommunications systems, 
but only if there is no or an inadequate public service between the points to be linked. 
24 Proposals are currently before the Dutch Parliament to introduce competitive infrastructure provision by the 
'-creation of a second national infrastructure provider. 
18 
(2) CABLE TV INFRASTRUCTURES 
Cable television networks currently exist in all Member States, except Greece and 
Italy, with very limited development of cable in Spain and Portugal. In the Member 
States, penetration rates for cable vary considerably from more than 90% in 
Belgium, The Netherlands and Luxembourg to around 5% in France and the United 
Kingdom. In terms of subscribers Germany represents the biggest national market 
with nearly 15 million subscribers and a penetration rate of arcaind 45%25. 
Current provisions concerning use of cable TV networks for the provision of 
telecommunications services are summarised in Table II. In many cases, the 
current legal situation is unclear (due to absence of express provisions in the 
national regulatory framework), resulting in uncertainty for potential service 
providers and a lack of commercial initiatives / investments in developing the use of 
cable TV networks for telecommunications purposes, (with the notable exception of 
the United Kingdom and a number of pilot experiments in The Netherlands) 
This situation threatens to impede the development and distribution of multi-media 
products and services in Europe, particularly when compared to the buoyant 
development in this area in the United States. 
Table 2. Use of CATV networks for the delivery of liberalised telecommunications services 
„,-,„,^: : £-i :„„^^„,r: ±L^ ,,r <?. r,,^,,,^,,^::;,,, *, * n . ,.* 
Belgium No . 
Denmark No 
France ' Non-voice services only -
Germany No 
Greece ^-,26 • ; 
Ireland No legal provision ' 
Italy ; •..'.."' ——27 / - x 
Luxembourg- No legal provision 
Netherlands Limited use , 
Portugal \ No . • - " . • . ; 
Spain . / : . ; : .No - , . 
L3C - .- ' ... . ' V , ; Yes • ' :- . . . '; 
Source: X'impact de l'authorisation de la fourniture de services de télécommunications liberalises par les câblo-
opcratcura", ID ATE, 1994, and additional analysis 
25 For tnrther details, sec ©ATE, 1994. 
26 No cable TV networks available 
*' No cable TV networks available 
f9 
(3) MOBILE AND PERSONALCOMMUNICATIONS NETWORK INFRASTRUCTURES 
In contrast to the position for fixed network telecommunications services, the use of 
own and/ln some case, third party infrastructure for the internal links within digital 
mobile cellular telephony networks have been permitted in a number of Member 
States28, as well as in Finland and Sweden. 
The Green Paper on Mobile and Personal Communications29 published in 
accordance with Council Resolution 93/213/01 calls for full freedom for mobile 
network operators to use own or third party infrastructure for internal links within 
their networks. 
(4) SATELLITE COMMUNICATIONS NETWORKS 
Liberalisation of the satellite sector has been called for by Council Resolution 
92/C8/0130. 
Studies carried out for the Commission31 indicate that the removal of current 
restrictions on infrastructure within satellite networks could stimulate use of satellite 
communications in the EU within corporate networks and closed user groups, 
without having a serious impact on the financial position of the TOs. 
The amendment of Directive 90/388/EEC32, in accordance with Council Resolution 
92/C8/01, requires the lifting of current barriers to the delivery of liberalised 
services via satellite communications networks. In the meantime, four Member 
States (France, Germany, The Netherlands and United Kingdom) have opened up 
access for users and service providers to satellite communication networks in 
advance of Community legislation. 
2° See Mobile Green Paper for details. Limited self-provision and, in some cases, third party provision of either 
fixed or microwave links within mobile networks is permitted in Germany, France and the United Kingdpm and 
is envisaged within the second GSM licence in The Netherlands and Spain. 
™ Green Paper on a common approach in the field of mobile and personal communications in the European Union, 
COM(94)I45,27.04.1994. The Commission will shortly submit its report on the outcome of the consultations. 
30 Council Resolution of 19 December 1991 on the development of the common market for satellite 
communications services and equipment (92/C 8/01; OJ C8/1,14.01.1994). 
' "77K?' effects of Libemlisatiqn of Satellite Infrastructure on the Corporate and Closed User Group Market", 
Analysys, 1994. 
• Commission Directive amending Directives 88/301/EEC (telecommunications terminal equipment) and 
90/388/UHC (telecommunications services) in particular with regard to -satellite communications -not yet 
published. 
20 
ill THE SPECIFIC CASE OF LEASED LINES IN EUROPE 
The availability and pricing of leased line capacity within Europe has been identified 
by the Report on Europe and the global information society as a major stumbling 
block to the establishment of a European Information Infrastructure. 
Current regulatory restrictions mean that in most cases liberalised 
telecommunications services can only be provided or operated over TO leased lines. 
These circuits typically form the backbone of networks used for a number of 
purposes: rapid transfer information within companies between Local Area 
Networks; for advanced production processes, notably computer aided marketing 
and computer aided design; high quality video conferencing; distance learning; 
medical imaging, "lean productionM techniques and video entertainment services. ' 
The studies carried out confirm that, even after the entry into force of the ONP 
Leased Lines Directive,33 tariffs for high capacity infrastructure (2Mbit connections) 
in the Union are on average 10 times higher than equivalent capacity over equivalent 
distances in North America. (See Table 3). 
At the same time innovation in European corporate networking and competitive 
service provision, as well as the implementation of applications proposed in the 
Report on Europe and the global information society to^ launch the information 
society, now depend critically on the availability of high-capacity digital leased 
circuits operating at 2 Mbit/sand above. 
• •"' • • • • ^ 
Leased line capacity is the main building block for supplying liberalised services. 
Currently, Directive 90/188 on competition in the markets for télécommunications 
services only addresses the lifting of constraints concerning access to and the 
manner in which leased line capacity is provided fem a single source of supply, 
namely, the TO's. 
In order to overcome rapidly the current bottlenecks in the delivery and 
development of liberalised telecommunications services, access to capacity from 
third party infrastructure and the provision of own infrastructure is indispensable to 
the achievement of the benefits set out in section IV below, in particular, in order to 
increase the overall number of high capacity lines in ^he European Union and to 
lower the prices currently paid for such connections. 
•- Council Directive 92/44/EEC of 5 June 1992 on the application of open network provision to leased lines (OJ 
LI65/27, 19.6.92). Hie directive mandates Member States to ensure the provision of a minimum set of two 
voice quality leased lines, together with 64 k/bit and structured and unstructured 2 M/bit capacity. It also 
requires tarifls for all leased lines tobecost-oriented 
21 
Table 3 : High Capacity Leaded Ciratit Prices in ECU (at 11.94)** 
EU half circuit •'; \ Rental to Nearest JBlf*: Rental to furthest EU 
^-V s -\> J. ,* ' \-><- - : :- \'r - <:, 
B 21,793 29,380 
DK 17,658 19,865 
D 27,889 , 33,422 
GR 26,115 33,174 
E 30,192 30,821 
F 24,185 31,815 
IRL 4,02735 30,312 
I 27,685 33,769 
L V 16,739 27,170 
NL 18,700 24,933 
P 21,117 31,777 
UK(BT) 10,04136 40,778 
UK (MCL) 8,817 23,958 
EU I 20.461 29.901 
EU total circuit price37 40.922 59J502 
US 4,6013* 6,236 
Source: Coopers & Lybrand, 1994 
IV THE EXPECTED BENEFITS OF LIBERALISATION 
Major benefits are expected to flow from action to open up the supply of 
infrastructure in the European Union: 
• Overcoming existing bottlenecks in the availability of high-capacity 
infrastructure and stimulatingpublic andprivate investment ; 
Infrastructure liberalisation will reduce the current bottlenecks which European 
business faces, as well as acting as a vital stimulus to applications proposed in the 
34 
35 
37 
38 Rental charges are in ecu for monthly rental of a 2 Mbit/s line on 1 -year contracts. Some TOs offer discounts 
for longer tenn contracts. High. volume discount schemes offered by some TOs have not been taken into 
consideration. 
Note : 'fhese tariffs are subject to change and tlierelbre for further details refer to national regulatory authorities. 
Irish circuits to the UK arc distance-dependent. The charge is made up of a fixed cross channel charge and a 
mainlink which is distance-dependent. A link from Dublin has been taken in tins instance. 
BT's charges to Ireland are distance-dependent and tlie cost is for a link from London to Nefyn, the UK charging 
point, with an approximate distance of 340 km. 
Sum of two .EU average circuithalves. 
Figures represent AT&T's charges for a 1.5 Mbit/s circuit (Tl) from New York to Washington (320 km) and 
from New York to Chicago (1,100 km) 
22 
Report cm Fmrope and the global information society, m areas suefe as distance 
fearrtfh^ tefeworicing, road traffic manageraerit and heaMcare 
Opening the provision of infrastructure for services afready liberalised would 
mobilise significant private sector funding, particularly fn deploying fibre-optic 
transmission capacity39, and at the same time would lead tot am acceleration; of 
investment by the TOs m response to the new market expansion and the; 
additional traffic likely to be generated for their networks40. 
Faster adjustment of pricing structures tm bring tariffs into Une with costs and 
A pricing structure, which under tie pressures of competition is increasingly 
cost-based will' have a significant effect in speeding penetration of innovative 
service applications, both within terrestrial and satellite-based networks For 
mobile communications, lower prices will be a central element in speeding the 
transition from today's premium-pricing of mobile services to mass market 
pricing required for full personal communications. 
Innovative provision of liberalised services, as well as transmission capacity; 
Increased liberalisation will encourage greater innovation and experimentation. 
It will also stimulate the provision of more advanced forms of infrastructure, such 
as rapid deployment of optical fibre, allowing users maximum flexibility, together 
with introduction of advanced network technologies41. 
Stimulating the immediate use of existing alternative telecommunications 
networks and cable distribution networks for the delivery of multi-media and 
inter-active services to both business and residential users, and the future 
deployment of radio-based technologies; 
The roll out of cable distribution networks is likely to be accelerated in those 
countries where penetration is low and restrictions on their use for the delivery of 
telecommunications services currently exist. Infrastructure liberalisation will also 
stimulate the deployment of radio-based technologies, where this is more cost 
effective. The expansion of distribution possibilities for new services will allow 
- •* In North America, there has been considerable investment by alternative access providers in fibre-ring 
metropolitan area networks, serving key business centres. 
40 According to estimates, projected short tenn investment figures for additional advanced infrastructure in the 
Union are anticipated at more than 3 billion ECU. 
41 One example is Energis in the UK which is constructing a network based on Synchronous Digital Hierarchy 
technology, providing maximum flexibility in the delivery of high bandwidth capacity. 
23 
their provision at lower cost and assist the overall goal of developing universal 
service within the Union. 
• Creating growth opportunities in the European telecommunications sector; 
The early liberalisation of infrastructure will accelerate the development of service 
providers and equipment manufacturers who may benefit from increased 
investment in infrastructure - thereby creating significant employment potential -
and help European industry to position itself in time for opportunities in third 
country markets. 
• Creating an environment for global partnerships and strategic alliances 
Finally, the lifting of restrictions on the use of own or-alternative infrastructure 
will facilitate the setting up of pan-European and global alliances whilst still 
maintaining competitive conditions in the respective home markets. It will also 
strengthen Europe's position in negotiating world-wide deregulation of 
telecommunications markets within current international trade negotiations. 
V. THE FREE CHOICE OF INFRASTRUCTURE FOR THE PROVISION OF LIBERALISED 
SERVICES AS A GENERAL PRINCIPLE 
Despite the global trend amongst TO's to co-operate in providing better quality, end 
to end, high capacity services for business users42, the significant commercial and 
regulatory obstacles which remain are discouraging investment in trans-European 
infrastructure and services and are keeping price levels high. 
As recognised in the White Paper on Growth, Competitiveness and Employment43, 
European telecommunications transmission infrastructure has evolved as a series of 
national, geographical monopolies. For customers with pan-European 
telecommunications requirements or for potential providers of pan-European 
services, this has led to a patchwork of interconnected, but not fully interopérable 
transmission networks. 
The current regulatory framework is therefore impeding the emergence of trans-
European networks and services, and is holding back the completion of the internal 
market for telecommunications. Additionally, the current situation fails to ensure 
4 2 See for example, recent TO led projects such as GEN and METRAN, and the advanced joint European ATM 
trial, as well as global alliances by major European TOs under development or discussion. 
4- Commission White Paper on Growth, Competitiveness and Employment, COM(93) 700 
24 
46 the use of advanced applications and services resulting from the Community's on­
going research activities. 
Earlier regulatory distinctions drawn between services and the underlying 
infrastructure for their delivery are becoming increasingly artificial in the preparation 
for a diverse and liberalised telecommunications environment. This is particularly 
true as more and more intelligence is located directly in the network44. 
Within the area of liberalised services, the obligations in the EC Treaty relating, in 
particular, to the free movement of services, and fair competition set limits on the 
extent to which the competitive provision of infrastructure can be restricted45. 
The exception to this concerns situations where the restrictions on the competitive 
provision of infrastructure were justified under one of the derogations under the 
Treaty. Such restrictions may be maintained, for example, if their absence would 
undermine universal service or some other task of general economic interest in the 
Union and no other more proportionate means of securing that objective existed46. 
In the absence of such justifications, restrictions on the free choice of the underlying 
infrastructure for the delivery of liberalised services should be lifted in parallel with 
the progressive lifting of current restrictions on the competitive provision of the 
services themselves. This process would clearly require immediate action for 
services which are already open to competition and would tie the lifting of 
restrictions on the use of own or third party infrastructure to the timetable for the 
full liberalisation of telecommunications services by 1 January 1998 (subject to 
44 In the case of mobile communications, the Green Paper on mobile communications highlights the increasing role 
of intelligent network (IN) functionalities in, for example, the GSM network and presents a picture after 1998 
of tlie full integration of network technologies (fixed and mobile) to offer end users the services they require, 
rather than discrete network elements. 
45 For example, the particular effects of such restrictions could raise concerns under the Treaty, e.g. where 
limitations imposed by Member States on the provision of infrastructure prevent or restrict, (for example, by 
making certain applications uneconomic), the provision of liberalised telecommunications services on a cross-
border basis, such as, the provision of voice and data services within a multi-national's corporate network. 
Equally, concerns would arise where the result of such restrictions is to limit production, markets or technical 
progress to the prejudice of service providers and users; where the restrictions have the effect of extending a 
dominant position in one market, in which an operator enjoys special or exclusive rights (in casu, voice 
telephony services for the general public), to a neighbouring but liberalised market (liberalised 
telecommunications services); or where it obliges a service provider or user without objective justification to use 
TO infrastructure for services which directly compete with the services of the monopoly holder and where 
therefore the TO is placed in a situation where it faces a conflict of interest between its role as network provider 
and as competitive service provider. L 
In the light of the evolution of regulatory experience at both a national and Union level and, in particular, in the 
light of Council Resolution 94/C48/01 of 7 February 1994 on universal service principles in the 
telecommunications sector, the emphasis in Directive 90/388/EEC of the tasks of particular interest assigned to 
the TOs as 'the provision of a universal. network" has shifted. The concern today is with the provision of 
universal service, independent of its means of delivery. As the domain of universal services has been defined' 
with increasingly clarity, a parallel narrowing of the area of reserved infrastructure monopoly can also take 
place. 
25 
transitional periods for some Member States with less developed networks as set 
_...-'•. out in Council Resolution 93/C213/01). 
The basic position set forth is therefore that it is now appropriate and necessary to 
seek political support for the principle of the free choice of underlying infrastructure 
and the integration of that principle into the overall framework of the 1998 date. 
This should therefore provide a firm schedule for action in two stages. In a first 
stage immediate action can be taken in relation to satellite communications services, 
liberalised terrestrial and mobile communications services. 
There would be substantial opportunities for the telecommunications sector flowing 
from early action, in line with the request by Parliament, to remove restrictions on 
the use of own or third party infrastructure without having an effect on the revenue 
base of the telecommunications organisations such as might undermine the provision 
of universal service in Member States. 
At the same time, a second stage involves the liberalisation of infrastructure for 
voice telephony services for the general public from 1998 onwards. This will 
require substantial additional safeguards to guarantee, in a competitive environment, 
the provision of universal service, and fulfilment of public service tasks, non­
discriminatory and cost-oriented access, the fair interconnection of networks, 
interoperability of services, and the attainment of the other essential public goals for 
the sector. This is set out in further detail below. 
VI ISSUES RAISED IN CONSIDERING A TWO STAGE PROCESS 
(1) FIRST STAGE 
The first stage would therefore involve the immediate lifting of remaining 
restrictions on the use of own and third party infrastructure already authorised in the 
Member States, albeit to varying degrees, as set out in Chapter II. 
The first stage would address the use of such infrastructure for the delivery of 
satellite and mobile communications and terrestrial telecommunications services 
already liberalised, including, in particular, the use of cable TV infrastructure for 
these purposes. Terrestrial communications services already liberalised include 
26 
carriage of all non-voice and data services for the general public, as well as voice 
and data services for corporate networks and closed user groups47. 
It should be understood that this process would be limited to opening access to own 
or third party infrastructure already authorised in Member States for particular 
purposes, such as own use of infrastructure - including micro-waves - and use of 
third party infrastructure such as cable TV networks and utility networks. 
Subject to the global safeguard during this first stage of excluding provision of 
public voice telephony via these networks, studies earned out indicate that any 
impact on the revenues of Telecommunications Organisations would be gradual and 
limited: It should be noted in this context that Directives already in force require the 
Telecommunications Organisations to orient provision of their infrastructures (in 
particular leased fines) towards costs and therefore re-inforce their position with 
regard to any priœ competition by alternative providers48. 
• Corporate networks are generally networks established by a single organisation encompassing distinct legal 
. entities, such as a company and its subsidiaries or its branches m other Member States incorporated under the 
relevant domestic company law. 
Closed User Groups (CUGs) refer to entities not necessarily bound by economic links, but which can be 
identified as being part of a group on the basis of a lasting professional rekttionshap among themselves, or with 
another entity of the group» and whose internal communications needs result from the common interest 
underlying this lasting relationship. In general, «hé fink between the members of the group is a common 
business activity. Examples of activities l&ely to fall into this category are fund transfers for the banking 
industry, reservation systems for airlines, information transfers between universities involved in a common 
research project, re-insurance for the insurance mdustry,mter-ubrary activities, common design projects, and 
different institutions or servicesof intergovernmental or international organisations. 
In the context of the Commission Directive 90/388/EEC of 28 June 1990 on competition in the markets for 
telecommunications services, «dividual cases and definitions used in Member States are subject to screening 
by the Commission. The Directive indeed refers to the public and not to CUG's. The Commission must 
therefore ascertain that the definitions of CUG by Member Slates does not exclude voice telephony between 
users who have existing common links between themselves, such that they could not reasonably be regarded as 
being members of the public (i.e. any random person, without distinction of belonging or membership). 
48 As regards satellite communications, the studies find very minor potential impact on the revenues of the 
Telecommunications Organisations. As the satellite market constitutes less than 0.3% of die total expenditure 
on corporate communications, this would indicate the limit of potential losses to the incumbent TOs. 
As regards the use of own or third party transmission, infrastructure for mobile communications (e.g. linkage of 
radio-base stations and switching centers) the effect on incumbent TOs' revenues is expected to be very 
limited, once cost-oriented agreements on provision of leased lines and interconnection are put in place 
between mobile network operators and the incumbent TOs, as required by the Mobile Green Paper and 
strongly supported in the broad consultation now being concluded. This is confirmed by the experience in all 
those Member States where the provision of own infrastructure has been authorised to date. 
As regards corporate and. closed user group networks, Directive 90/388/EEC on competition in the 
telecommunications markets and Directive 90/387/EEC on open network provision, already require that 
access to TO infrastructure should be cost-oriented. Directive 92/44/EEC requires in particularly that leased 
lines must be offered on a cost-oriented basis. Given this obligation, and, given that Member States must 
comply with it, the opening of alternative supply is not expected to alter the market position of TOs in this area 
substantially. 
V 
(2) SECONDSTAGE 
The second stage involves licensing providers of new infrastructure for liberalised 
services and the full use of such new, and existing, infrastructure for the provision of 
public voice telephony service, once liberalised. This requires an in-depth debate, 
taking full account of the global regulatory, political, financial and social 
implications. 
This concerns in particular : 
The general future regulatory regime governing establishment and operation of 
network infrastructure. 
While the Commission recognises the right of Member States to control and plan 
the development of network infrastructure, the positions set forth in the Mobile 
' Green Paper for the special case of radio infrastructure have shown that this right 
can be made compatible with the Union's objectives and with competition law4?. 
Universal service and other public service tasks in the sector must be upheld in 
this sector as a basic value of the Union. This not only involves maintenance of 
current levels of universal and public service, but also its further positive 
development. 
The vital principles of public service in this area are universality, i.e. access for 
all, at an affordable price; equality, i.e. access independent of geographical 
location; and continuity, i.e. continuous provision, at a defined quality. The 
essence of the principle of a universal service obligation is to make available a 
The potential direct revenue effect (i.e. on the revenues derived currently by TOs from leased line revenue) 
can be expected to be very limited given that the total share of leased line revenues as a percentage of total TO 
revenues in the Union is less than 6.5%. As regards indirect revenue effects on the TOs in the corporate 
communications and closed user group markets, while those markets are substantial, it is expected that only a 
small part of these markets would be exposed to competition, and therefore indirect revenue effects would be 
very limited, given that the TOs will maintain a very strong market position, as they adjust prices in these 
areas towards costs, in line with their existing legal obligations. 
The effect would therefore be limited and gradual, as also confirmed by experiences in those Member States 
'. where alternative infrastructure provision is already taking place, as well as experiences in other parts of the 
world, such as in the United States, Canada and Australia. In the London City area, where one would expect 
the effect of competitive entry in the corporate networks market to be at its highest, one of the major new 
infrastructure providers has managed to claim, up to now, only 1 % of the business services market. 
49 Tlie Green Paper on Mobile and Personal Communications has set forth criteria for licensing and licensing 
procedures to substantial detail, based on essential requirements such as network security and integrity, and 
public service requirements such as permanence, availability and quality of service, as well as conditions for 
limiting tlie number of licences. 
28 
defined minimum service of specified quality to all users at an affordable price. 
This principle is embodied in the'Council Resolution on universal service in the 
telecommunications field adopted on 7 February 1994 and the associated 
Commission Declaration. 
The balance and equilibrium of the financial system to support network 
development and universal service must be reviewed and safeguarded. While this 
task must be addressed in the context of liberalisation of public voice telephony 
which is the major source for financing network development, the Commission 
considers that full scale network liberalisation can only proceed after a satisfactory 
solution to thisproblem has been agreed upon! 
The consumer must be ensured the mil benefits of enhanced network offerings, 
interconnection and interoperability wifl be vital to avoid the consumer being faced 
with a maze of n^on-tinteroperable networks. 
Introducing competition into the telecommunications core market requires 
substantially more attention to he paid to the social aspects of the information 
society, including the impact of liberalisation of the sector on employment and the 
working environment, and to its cultural and linguistic aspects. 
An intensified dialogue with the social partners and an innovative approach to 
training in the general context of the Information Society will be key to further 
development. 
As restrictions on access to alternative networks are lifted, it will be vital that 
existing restrictions on incumbent operators are reviewed and the application of 
competition rules is clarified. This concerns, in particular, the application of 
competition rules to cooperative arrangements and joint ventures, as well as to 
issues of service provision, service distribution and interconnection. 
Opening the European Union's network market cannot proceed without paying full 
attention tothe international context. 
While a forward oriented position on fiiture network regulation will substantially 
upgrade the Union's position in the future international discussions on global 
information highways, achieving equivalent market access in third country markets 
wifl have to become a primary locus of attention. 
More particularly, this requires that the second part of the Green l^aper. should 
address, inter alia: 
29 
Licensing 
Licensing will play a crucial role in setting out the framework for the development 
of infrastructure competition and ensure appropriate regulatory control. A general 
discussion on the overall regulatory framework for infrastructure must take place, as 
well as on general criteria for the future licensing of infrastructure, including 
limitations linked to the public interest, such as future access to rights of way, the 
application of town and country planning rules, environmental protection, and 
access to radio frequencies, which must also be subject to competition rules. 
Universal service 
Maintenance of universal service is an essential part of the infrastructure 
liberalisation. This should not be viewed as problematic. Experience of countries 
with a liberalised telecommunications infrastructure has shown that universal service 
objectives are actually better attained and further developed in a more competitive 
environment50. 
A basic definition of the approach to universal service in telecommunications in the 
union has been given by the Council in its Resolution of 7 February 1994 and the 
associated Commission statement. This definition will have to be further developed 
in line with the mandate given by Council to the Commission51. 
Appropriate safeguards will have to be considered to ensure the funding of universal 
service obligations and other public service tasks (such as ensuring a balanced 
50 Recent OECD studies demonstrate that in those countries allowing competitive provision of infrastructure, 
universal, service has generally improved. 
51 Council Resolution 94/C48/01 requests the Commission "to study and consult, in particular with national 
regulatory authorities, on the issues raised by the definition of universal service and its means of financing, 
taking specific account of the need for adjustment in peripheral regions with less-developed networks". See 
Council Rcsohition of 7 February 1994 on universal service principles in the telecommunications sector 
(94/C48/0Î; OJ C 48/1, 16.02.1994) 
The Commission statement associated with the Council Resolution defines universal service, at this stage of 
analysis, to comprise a number of basic elements, additional elements (enhanced features), leased lines and 
recommended offerings. Basic cléments concern in particular: provision of the-basic public telecommunications 
network and voice telephony service; quality of service; pricing policy; publication of information about the 
service; dispute resolution procedures for users; subscriber directories; operator assistance and director) 
enquiry services; public pay-telephones; access to emergency services; and specific conditions for disabled 
users and people with special needs. Additional elements concern advanced features such as itemized billing 
and DTMF tone dialling ("touch tone"). Recommended offerings concerning provision of Integrated Services 
Digital Networks offerings and advanced data services. 
' • •- •••:'•• - s 
The Council Resolution calls for special attention to be paid in pursuing the objective of maintaining and 
developing universal service, to the specific circumstances of the peripheral regions with less developed 
networks and of very small networks and to develop the concept of universal service in pace with advances in 
technology, market development and changes in user demand. 
30 
geographical development throughout Member Stale territories) while respecting 
competition rules: such safeguards may be introduced in the Iramework of 
interconnection principles, in particular regarding the charges to be levied for the 
access to and use of the local loop network. Special attention will have to be paid 
to the requirements of the peripheral regions with less developed networks. 
Interconnection 
Work in this area should reflect the new interconnection framework as envisaged 
through the full application of competition rules and the reform of Open Network 
Provision. The new interconnection framework should ensure: interconnection of 
networks and interoperability of services on non-discriminatory terms, cost-
orientation of tariffs and the attainment of essential requirements, including the 
security of network operations and the maintenance of network integrity. 
As set forth in the Council Resolution of 22 July 1993 on the review of the situation 
in the telecommunications sector, the review of the interconnection framework 
should be part of the general proposals to be submitted by 1 January 1996 in 
preparation for full liberalisation of public voice telephony. 
Competitive safeguards 
Care has to be taken to ensure the emergence of a fair competitive environment for 
new services and networks while at the same time Ming existing constraints. In 
that context, full application of the competition rules will provide instruments to 
prevent unfair practices and abuse of dominant positions while giving more certainty 
m the field of co-operative ventures and provision and distribution of services. 
Appropriate safeguards will have to be developed to ensure transparency. 
International dimension 
The relationship between internal liberalisation and access, for Community 
operators, to third country markets must be taken into account, in line with the 
Community's overall commercial policy, in order to ensure effective and comparable 
market access. A major focus of the Community's efforts in this area will be the 
continuing negotiations on so-called basic telecommunications in the World Trade 
Organisation. 
Social and employment dimension 
It is vital to ensure that the opportunities offered by information and communication 
technologies to improve the quality of life of Europe's citizens, to develop new and 
better jobs, are exploited to the full and that negative effects are efficiently 
31 
addressed In the context of the follow-up to the White Paper on Growth, 
Competitiveness and Employment the Commission is paying particular attention to 
these aspects and the necessary conditions to be defined to ensure the optimal 
exploitation of the new opportunities for employment growth linked to 
technological change. This will include guidelines designed to facilitate the process 
of economic and social adaptation. 
Reference will also be made to a number of specific studies on the relationship 
between the information society and employment. A particular study will assess the 
impacts and benefits of the information society for regional, economic and social 
cohesion. The Commission also looks forward to the views of the High Level 
Group of Experts, which was announced in its Action Plan: Europe's Way to the 
Information Society, on the problems to be considered as a matter of priority and 
the appropriateness of the measures to be developed, as well as to the outcome of a 
major colloquium on the social and societal issues of the information society to be 
held in 1995. 
Neighbouring fields 
Furthermore, the regulatory principles to be developed must also take full account 
of Union policies in neighbouring fields, such as in the audio-visual field52 in relation 
to service content, in the field of data protection and privacy33 and of intellectual 
property34 as well as in relation to the protection of the economic interests of 
consumers. The principles must take into account the fact that regulatory issues 
such as content are already dealt with in a framework coherent with the overall 
approach. This should allow Union policy in relation to infrastructure liberalisation 
to provide the consistent response called for by the Commission's Action Plan on 
Europe's way to the information society. 
In line with existing Union policy within the framework of the internal market, 
reference must be made to the implications of the convergence of 
52 Green Paper on Strategy Options to Strengthen the European Programme Industry in the Context of the 
Audiovisual Policy of the European Union; Council Directive 89/522/EEC on the coordination of certain 
provisions laid down by law, regulation or administrative action in Member States concerning the pursuit of 
television broadcasting activities, OJ L298,17.10.89. 
53 Proposal for a Council Directive concerning the protection of individuals in relation to tlie processing of personal 
data, COM(92) 422, OJ C311, 27.11.92 and Amended proposal for a European Parliament and Council 
Directive concerning the protection of personal data and privacy in the context of digital telecommunications 
networks, in particular the integrated services digital network (ISDN) and digital mobile networks, COM(94) 
128 final, 13.6.94. 
54 Proposal for a Council Directive on the legal protection of databases, COM(93) 464 final, SYN 393. lite 
Commission Action plan on Europe's way to an Information Society has announced a Green Paper on IPRs in tlie 
information society for early in1995. 
32 
telecommunications and media to the extent that these are relevant for infrastructure 
liberalisation. In that light vital issues to be dealt with are listed in the Commission's 
Communicatiori on Europe's Way to the Information Society. These include, for 
example, the recently adopted Communication on pluralism and media 
concentration, the friture Green Paper on IPR and, in the contents area, the follow-
up to the Green Paper on audio-visual. 
In addressing the development of the future regulatory framework, there should be 
an overall requirement to take special account of the specific circumstances of the 
peripheral regions with less developed networks or very small networks. 
VII THE PROPOSED FRAMEWORK FOR ACTION 
The general principle proposed and the two stage process set out would translate 
into the following approach at the Union level. 
Under the Directive 90/388 on competition in the markets for telecommunications 
services, the provision of all telecommunications services was opened to 
competition55, subject to four significant exceptions with regard to services56: 
- Satellite services57 
- Mobile telephony and paging services58 
" Directive 90/388/EEC required Member States to withdraw all special and exclusive rights for the supply of 
telecommunications services other than voice telephony (and those services spedficallyexcluded from the scope 
of the directive) and to take ate measures necessary to ensure that airy operator is entitled to supply such 
services. The directive also defines which limitations, short of exclusive or sr^ecial rights, may be imposed by 
the Member States, for example, in the form of licensing conditions on providers of liberalised services. 
The Services Directive was part of a global agreement reached in December 1989 according to which the 
Commission carried out its obligation under the Treaty to define the application of the Treaty rules to tlie 
telecommunications sector via the Services Directive, in parallel with the adoption by die Council of Directive 
90/387/EEC (the Open Network Provision framework directive). 
The European Court of Justice has upheld the Directive 90/388/EEC and confirmed the use of Article 90 to spell 
out for the Member States the particular obligations flowing from the Treaty (Judgement of the Court of Justice 
of the European Communities of 17 November 1991, Joined Cases C-271,281,289/90). 
^" Also excepted was tlie telex service. However, in tlie meantime it is generally acknowledged that this service is 
being rapidly substituted by other services such as facsimile transmission. 
-*' As renards satellite communications networks. Council Resolution 92/C/8/01 called for the application of the 
principles of telecommunications policy, in particular liberalisation and harmonisation, to the satellite sector. 
This policy is now being implemented through the adoption by the Commission, subsequent to its presentation 
to the Council and European Parliament, of an Article 90 directive modifying the Services Directive to include 
satellite communications services. 
*° As regards mobile communications, tlie Commission lias raised the issue of exclusive provision of GSM services 
directly with the Member States concerned under the competition rules. The Green Paper on mobile and 
personal communications COM(94) 145 - final, 27.4,92 proposes amending the scope of the Services Directive 
33 
- Radio and television broadcasting services to the public59, and 
- Voice telephony services to the general public60 
Directive 90/388 in its current form does not address the use of alternative 
infrastructures and cable TV networks for the provision of liberalised services. 
Directive 90/388 currently only requires the removal of restrictions on the use of a 
single source of infrastructure, namely leased lines provided by the TOs, for the 
provision of liberalised services. 
As the exclusions from liberalisation regarding services are progressively lifted in the 
run up to 1 January 1998 (with additional transition periods for certain Member 
States in accordance with Council Resolution 93/C213/01), the current restrictions 
concerning provision of infrastructure by a single supplier (i.e. the TOs) will now 
have to be addressed, in line with the two-stage process set forth. f 
The general principle which should apply is that of a free choice of underlying 
infrastructure for the delivery of services as they are opened to competition. 
The application of this principle would link the process of infrastructure 
liberalisation to the timetable for the liberalisation of telecommunications services, 
including both those services which are currently open to competition (including 
satellite and mobile communications), as well as voice telephony services for the 
general public from 1 January 1998 onwards, subject, in the latter case, to the 
working out of necessary safeguards as set out in Chapter VI. 
The two-stage process envisaged therefore would lead to the immediate removal of 
restrictions on the use of own or third party infrastructure authorised in Member 
States in the following areas : 
1. for the deliveryof satellite communications services61; -
to include mobile commiuiications services. The Commission has organised a broad consultation on the 
posit ions proposed in the Green Paper and will shortly report on the outcome of these consultations. 
•>*' As regards radio and television broadcasting to the public, these remain outside the scope of Directive 90/388. 
W) As regards voice telephony services for the general public. Council Resolution 93/C2I3/01 calls for the opening 
up of this service by I January 1998 and requires the Commission to table the necessary legislative measures to 
achieve this by 1 January 1996. Necessary amendments of Directive 90/388/EEC would be tabled at that time. 
"' As now required by Commission Directive amending Directives 88/30 I/EEC (telecommunications terminal 
equipment) and 90/388/EEC (telecommunications services) in particular with regard to satellite 
communications, adopted on 13 October 1994. Member States are given 9 months to communicate 
implementation measures taken. Additionally, Member States with less developed networks may ask for a 
derogation up to I January 19%. 
34 
2. for the provision of all terrestrial telecommunications services already 
liberalised (including use of cable television infrastructure for this purpose). 
This concerns voice and data services for corporate networks and closed user 
groups, as well as all other telecommunications services, other than the 
provision of voice telephony services to the general public; 
3. to provide links, including microwave links, within aie mobile network for the 
provision of mobile communications services. 
As set forth, action in these areas would remove substantial barriers to the provision 
of services open to competition and significantly extend availability of infrastructure 
for these purposes, thereby making the liberalisation measures already undertaken 
by the Union more elective. 
There is no doubt that major economic benefits and efficiencies both for operators, 
service providers and users, and for the European economy as a whole, will flow 
from this action. Furthermore these benefits may be enjoyed without an impact on 
the financial base of the telecommunications operators such as to threaten 
undermining the provision of universal service or other public service tasks in the 
Member States. This action would accelerate the creation of a cost-oriented 
infrastructure environment for liberalised services, particularly in the field of leased 
lines essential for these purposes. 
A number of steps nave already been taken in each of these areas, allowing these 
actions to be consolidated within a global approach towards infrastructure 
liberalisation. 
Council Resolution 92/CS/Ol catted on the Commission to propose aie necessary 
measures for the development of a common market for satellite communications 
services and equipment. The recent Article 90 satellite directive extends tbe scope 
of the so-called Terminal Equipment and Services Directives (Directives 88/301 and 
90/388/EEC)tocover satellite terminal equipment and services. 
In the area of alternative infrastructure and cable television networks, tbe studies 
addressing liberalisation in these areas have now been completed. The studies 
suggest that liberalisation could be achieved without having a major financial impact 
on the provision of universal service. Again, we must take account of the fact that 
prices for the supplied infrastructure must anyway be brought in line with costs 
according to existing Union legislation, and telecommunications operators should 
therefore be fully competitive which would allow them to maintain a strong market 
position. 
35 
In relation to opening up the use of own or third party infrastructure within mobile 
communications networks, the Green Paper on Mobile and Personal 
Communications clearly indicates that this should be allowed in order to give mobile 
operators control over their cost structures, 
Based on this approach it is considered that, in order to implement objectives 1 to 3 
set out above, the necessary amendments to Directive 90/388 can be prepared now 
to lift existing restrictions. 
As regards the liberalisation of infrastructure for the voice telephony service for the 
general public after 1 January 1998, additional safeguards relating to the availability 
and use of infrastructure as identified in Chapter VI will be required. They will be 
addressed in the second part of the Green Paper. 
VIII CONCLUSION 
At the Corfu Summit the call for faster progress for the telecommunications 
market in the European Union was well received. This was seen as a key 
element in stimulating growth and the competitiveness of the European economy 
as a whole. In response, the European Council called for the definition of a clear 
and stable regulatory environment for the telecommunications sector. With a 
clear date already established for the liberalisation of thé basic voice service and 
a coherent policy put forward on the future of mobile and personal 
communications, a Union position on the future of infrastructure provision is 
needed in order to advance the process already agreed. This must be a principal 
response to the challenge of the global information society. 
According to the Bangemann Group report, the key constraint preventing broader 
commercial exploitation of advanced communications technologies and new 
innovative applications by commerce and industry is the lack of European high-
capacity telecommunications transmission infrastructure at prices necessary to 
foster exploitation and innovation by leading users. The Commission's Action 
plan on Europe's Way to the Information Society therefore gives priority to 
action on infrastructure liberalisation. 
It is considered that it is now appropriate and necessary to confirm the principle 
of linking infrastructure liberalisation to service liberalisation in order to give the 
sector the certainty it needs to plan investment and business strategies. 
This implies, in a first stage, immediate action, as supported by the goals set by 
the European Parliament, on the use of own or third party infrastructure, 
including cable TV infrastructure, in relation to satellite communications 
36 
services, corporate networks and closed user groups and mobile communications. 
It also implies, in a second stage, full liberalisation of infrastructure by 1 
January 1998, subject to the safeguards to be elaborated and the transition periods 
for certain Member States according to Council Resolution 93/C213/01. 
This would result in tiie Timetable for the two stages, set out in annex. 
All Member States already allow to varying extents the establishment and use of 
parallel communications infrastructures for specific purposes. Failing to seek the 
tilling of existing restrictions on the more general use of available infrastructures 
would not only ignore the legal obligations flowing from the Treaty, but would 
also lead to under-utilisation of existing infrastructures. 
At the same time, without the action proposed, one of the central requirements of 
the report on Europe arid the global information society will not be met, namely, 
the creation of conditions in which public and private capital can be mobilised to 
invest in the new technologies, which are vital for growth, competitiveness and 
The Commission therefore submits this first part of the Green paper on the 
liberalisation of telecommunications infrastructure and cable TV networks to the 
Council and European Parliament, concerning : 
the general principle that, where the provision of telecommunications 
services is open to competition, there should be a free-.choice of underlying 
infrastructure over which such services are provided, subject to the 
establishment of the safeguards mentioned below; 
establishment of a two-stage approach, with me lifting of restrictions on 
alternative infrastructures, including cable TV, at a European level in the fields 
of satellite communications, mobile communications and liberalised terrestrial 
services in a first stage, and the linkage of infrastructure liberalisation to the 
overall timetable for further development of the telecommunications sector, in 
particular the date of 1 January 1998 for the liberalisation of the provision of 
voice telephony services to the general public, subject to the additional 
transition periods set out in Council Resolution 93/C213/01 required by 
Member States with less developed networks to achieve the necessary structural 
adjustments; , 
The Commission intends to submit, by 1 January 1995, the second part of this 
Green Paper to address the additional safeguards required for the second stage, 
when the general principle of linking infrastructure liberalisation to the timetable 
37 
for the full liberalisation of the provision of voice telephony services to the 
general public should be applied. 
The second part of the Green Paper will in particular cover : 
- criteria for the future licensing of infrastructure, including grounds of 
public interest for limiting the number of such licences, subject to Community 
law and in particular the competition rules, as well as the future regulation of 
rights of way, and application of town and country planning rules, 
the maintenance and further development of universal service and other 
public service tasks as an essential value in the Union's télécoms sector, the 
financial impact of infrastructure liberalisation, and measures required to 
protect consumer interests, 
the interconnection regime applicable in a competitive environment and 
any safeguards required to ensure fair competition between networks, 
reviewing restrictions on incumbent operators and clarifying the 
application of the competition rules, 
the ensurance of comparable and effective access to third country 
markets, 
the social and employment dimension, which must be a central issue, 
- the issue of convergence, in particular, between telecommunications and 
broadcasting, which is essential to the emergence of multi-media services and 
the maintenance and development of competition in the telecommunications and 
media sectors. 
Special attention will have to be paid to taking into account more general public 
interest goals such as protection of the environment, as well as consideration of 
the specific circumstances of the peripheral regions with less developed or very 
small networks. 
The Commission is anticipating a broad debate on the Green Paper. At the 
same time, given the urgency of eliminating existing bottlenecks in the 
provision of alternative network infrastructure, it will undertake steps necessary 
to allow early implementation of the first stage. This concerns in particular 
satellite communications, liberalised terrestrial telecommunications services, 
including use of cable TV networks, and mobile communications. 
38 
Schedule for telecommunication services and infrastructure 
Services 
Services open to 
competition Proposed tee for 
lifting constraints 
on the use of 
infrastructure1 (incl. Full liberalisation of 
new 
infrastructure 
Data and other non- wm 
mmemw* m5 
$noe$99fP ijim 
1*36 1998 
W95 
voice 
Any infrastructure authorised m Member States and operated by others thati the incumbent 
Council resolution 93/C213/01 of 22 Inly 1993 allows for a derogation in favour of Member 
States with less developed networks (i.e. Spain, Ireland, Greece, Portugal) up to 1 January 2003, 
aiui in favour of Luxemburg until 1 January 2000. Spain, in the meantime, has indicated that it 
does not intend to prevail itself of this derogation. 
Commission directive 90/388/EEC liberalised all terrestrial telecommunication services other 
than public voice telephony. Simple resale of packet and switched data sendees authorised since 
1 January 1993. 
Commission directive 90/388/EEC liberalised all terrestrial telecommunication services other 
than public voice telephony. 
Commission directive 94/467EEC {adopted 13 October 1994) liberalised satellite 
communications. Member States must communicate implementation measures no later than 
8 August 1995. Derogations possible until 1 January 1996 for Member States with less 
developed networks. 
Member States have removed, or are removing, monopolies on mobile communications. The 
Commission is preparing a communication to the European Parliament and the Council on the 
consultations on the Green paper on mobile and personal communications (to be submitted 
shortly) which is intended to lead to full liberalisation of mobile communications. 
V\ 
> 
ISSN 0254-1475 
COM(94) 440 final 
DOCUMENTS 
EN 1015 
number : CB-CO-9+-501-EN-C 
ISBN 92-77-81587-6 
Office far Official Publications of the European Comrminiries 
Lr2985 ïjasmboazg 
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