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Estudio De Caso Para Uruguay

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Estudio De Caso Para Uruguay Regulación e Inversión en Telecomunicaciones: Estudio de Caso para Uruguay Gustavo Gómez Germano Ana Laura Rivoir Marzo 2008 Montevideo - Uruguay Comments invited, please post them to the autors <[email protected] & [email protected]> or online at [email protected] Índice RESUMEN EJECUTIVO ................................................................................................ 4 Introducción...................................................................................................................... 6 Las telecomunicaciones en Uruguay................................................................................ 9 El sector de las telecomunicaciones en la economía uruguaya .................................... 9 Estructura del mercado ............................................................................................... 11 Situación y contexto histórico .................................................................................... 12 Etapas y proceso de apertura del mercado.................................................................. 13 Marco regulatorio ....................................................................................................... 15 Telefonía Fija.................................................................................................................. 17 Entrada al Mercado..................................................................................................... 20 Acceso a Recursos Escasos ........................................................................................ 21 Interconexión.............................................................................................................. 22 Regulación Tarifaria................................................................................................... 23 Regulación de Prácticas Anticompetitivas ................................................................. 24 Servicio Universal Obligatorio................................................................................... 25 Telefonía Móvil .............................................................................................................. 25 Entrada al Mercado..................................................................................................... 29 Acceso a Recursos Escasos ........................................................................................ 30 Interconexión.............................................................................................................. 31 Regulación Tarifaria................................................................................................... 32 Regulación de Prácticas Anticompetitivas ................................................................. 33 Servicio Universal Obligatorio................................................................................... 34 Metodología.................................................................................................................... 34 Resultados TRE en Uruguay .......................................................................................... 36 Conclusiones y recomendaciones................................................................................... 40 Conclusiones............................................................................................................... 40 Recomendaciones ....................................................................................................... 43 Anexo 1. Cuestionario de la encuesta............................................................................. 45 Anexo 2. Metodología de cálculo y ponderación........................................................... 48 Anexo 3. Uruguay URSEC – Eventos Clave (2001-2007) ............................................ 50 Referencias ..................................................................................................................... 56 Reconocimientos Para el desarrollo de este informe, los autores contaron con el apoyo de Alejandra Davidziuk, Walter Sena, Montserrat Zunini Martínez, Amy Mahan y COMUNICA. Lista de siglas ANTEL Administración Nacional de Telecomunicaciones BCU Banco Central del Uruguay DNT Dirección Nacional de Telecomunicaciones DVB-H Digital Video Broadcasting Handheld GATS Acuerdo General sobre Comercio de Servicios GSM Sistema Móvil Global HSDPA High Speed Downlink Packet Access IPC Indice de Precios al Consumo LDI Larga Distancia Internacional LDN Larga Distancia Nacional LIRNE.NET Learning Initiatives on Reforms for Network Economies MEF Ministerio de Economía y Finanzas MIEM Ministerio de Industria, Energía y Minería PBI Producto Bruto Interno PNN Plan Nacional de Numeración REGULATEL Foro Latinoamericano de Entes Reguladores de Telecomunicaciones TRE Entorno Regulatorio de las Telecomunicaciones TUN Tarifa Unica Nacional UMTS Universal Mobile Telecommunications System URSEC Unidad Reguladora de Servicios de Comunicaciones USO Servicio Universal Obligatorio UTE Usinas Eléctricas y Teléfonos del Estado / Administración Nacional de Usinas y Trasmisiones Eléctricas WCDMA Wideband Code Division Multiple Access WTO Organización del Comercio Mundial RESUMEN EJECUTIVO Este reporte, encomendado a Gustavo Gómez y Ana Laura Rivoir por LIRNE.NET (Learning Initiatives on Reforms for Network Economies), evalúa la percepión sobre el entorno regulatorio en telefonía fija y móvil en Uruguay. Los resultados son producto de la aplicación de una metodología desarrollada por LIRNEasia. Complementariamente, se incluye información y análisis de la situación del sector en cada una de las seis dimensiones que propone la metodología de forma de dar contexto a los resultados encontrados. 1. Entrada al Mercado 2. Acceso a Recursos Escasos 3. Interconexión 4. Regulación Tarifaria 5. Regulación de Prácticas Anticompetitivas 6. Servicio Universal Obligatorio La evaluación contó con la contribución de 43 personas integrantes de las tres categorías tomadas en cuenta por el estudio: actores directamente afectados por la regulación del sector de telecomunicaciones, actores que analizan el sector con un interés más amplio y actores con interés en mejorar el sector para ayudar al público. Las respuestas fueron solicitadas en función de una escala de 1 a 5, donde “1” representaba una percepción “muy ineficaz” y “5” una percepción de que el entorno regulatorio es “muy eficaz”. Los resultados obtenidos luego de procesar las respuestas muestran una percepción diferenciada entre los dos sectores de telecomunicaciones estudiados. Mientras en telefonía fija la mayoría de las dimensiones evalúan la regulación nacional como “ineficaz” o “regular”, en el caso de la telefonía móvil el juicio es ampliamente favorable, y se considera que el entorno regulatorio supera el valor medio, con dimensiones que llegan a valores cercanos a “muy eficaz”. En el primer caso, es notorio el bajo valor que obtuvo la “Regulación de Prácticas Anticompetitivas”, incluso inferior a la dimensión de “Entrada al Mercado” y “Acceso a Recursos Escasos”. Estos valores, sin lugar a dudas tienen relación con las características monopólicas de la mayor parte del sector de telefonía fija (en las llamadas locales y nacionales) y las inercias de una aún fuerte empresa estatal frente a un organismo regulador todavía con debilidades institucionales y la ausencia de políticas claras y coherentes del conjunto del gobierno uruguayo en materia de telecomunicaciones. En “Interconexión” y “Servicio Universal Obligatorio” se introducen en la banda de la valoración positiva de la regulación, lo que seguramente está en estrecha relación con la amplia extensión del acceso en telefonía fija en el país desde hace varios años. A su vez, ésta responde a una expandida infraestructura y a la accesibilidad de los servicios. El entorno de la telefonía móvil es mejor evaluado que la telefonía fíja en cinco de los seis ítems. La diferencia más alta es entrada al mercado donde alcanza el punto y medio de diferencia. La regulación respecto a la “Entrada al Mercado” e “Interconexión”, aspectos claves en un mercado en competencia, es especialmente evaluada con valores cercanos a “muy eficaz”. Introducción La evaluación TRE fue originalmente diseñada para determinar los efectos regulatorios sobre la inversión (Samarajiva y Dokeniya, 2005). Basándose en su aplicación sucesiva en varios países asiáticos como India, Indonesia, Paquistán, Filipinas y Sri Lanka, se le hicieron algunos cambios adicionales, y se llegó al formato actual. Fue aplicado durante 2007 y 2008 en Ecuador, Chile, Perú y Uruguay, entre otros. El estudio se basó en la metodología que se describe al final del informe, que parte de una encuesta diseñada a tales efectos, con un total de 12 preguntas respecto a seis dimensiones del entorno regulatorio de la telefonía fija y móvil. Las dimensiones son: Entrada al Mercado, Acceso a Recursos Escasos, Interconexión, Regulación Tarifaria, Regulación de Prácticas Anticompetitivas y Servicio Universal Obligatorio. Completaron el cuestionario personas de tres categorías: actores directamente afectados por la regulación del sector de telecomunicaciones, actores que analizan el sector con un interés más amplio y actores con interés en mejorar el sector para ayudar al público. Los participantes calificaron las dimensiones a través de una escala de Likert de cinco puntos donde 1 (uno) era la respuesta más baja (muy ineficaz) y 5 (cinco) era la más alta (muy eficaz). Una carta de presentación explicaba el objetivo del estudio
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