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"The Development of Universal Telephone Service in Ireland 1880 - 1993"

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"The Development of Universal Telephone Service in Ireland 1880 - 1993" Submission for Doctor of Arts by Roddy Flynn B.A., M.A. Dublin City University School of Communications Supervisor: Dr. Paschal Preston January 1998 Declaration I hereby certify that this material, which I now submit for assessment on the programme of study leading to the award of Doctor of Arts is entirely my own work and has not been taken from the work of others save to the extent that such work has been cited and acknowledged within the text of my work. Signed: ID No: 92700811 Date: Abstract This research examines the development of universal service in Ireland over the period from 1880 to 1993. Universal service is a key element of telecommunications policy. Its precise meaning is the subject of dispute between differing political outlooks buts its objectives are essentially understood as socially-oriented, promoting the diffusion of telecommunications technologies beyond that achieved by the market, and facilitating access to those same technologies at affordable rates. Differences over the precise meaning of universal service are also the result of the long history of universal service. Although the term itself is a twentieth century one, it has been argued that its fundamental tenets are embodied in particular policy objectives and in particular the long established concept of public service. Thus this research has examined the history o f the concept in Ireland over t he period o f a century with a view to understanding how the current working definition o f universal service has been arrived at. The research looks in depth at the development and diffusion of the telephone across Ireland. It describes how the telephone network has expanded from the cities to reach the entire geographical extent o f Ireland. It also examines the factors which have driven and the factors which have constrained the development of the telephone network: the overall economic condition of the country, the respective influences o f industry, agriculture and society at large, the development o f new telecommunication technologies and the perception of the role of the telephone on the part o f those with the greatest influence on its expansion: the private companies, governments departments and state agencies which have been charged with the operation of the telephone service. In short this research seeks to identify the specific political, economic, social and technological factors that shaped the development o f the telephone system in Ireland. in the final chapters, the research describes universal service as it is in Ireland o f the 1990s, concluding that ultimately the scope of universal service policy in Ireland has been severely constrained both by economic factors (the cost of providing the service) and a political unwillingness to effectively recognise the social role o f the telephone. Thus whilst the research considers how new information and communication technologies will affect future conceptions of universal service, it argues that the philosophy underlying the provision of the “plain old telephone service” in Ireland falls far short of the ideal of universal service. ii Acknowledgements I should like to start by offering my deepest thanks to my supervisor Dr. Paschal Preston, whose guidance, counsel and considerable patience have contributed more than he will ever know to this thesis. I suspect I owe him at least a good dinner. Thomas Wall, the unsung hero of Telecom Eireann's archives, proved to be a key resource for some o f the material from the early history of the telephone. I'm extremely grateful for his apparently unending willingness to answer my queries. Aphra, with whom I shared an office for more than four years has seen this thesis grow from its humble foundations into the heavyweight doorstop it has now become. Her willingness to listen to my half-formed hypotheses, along with her coffee-making and just general niceness lightened the burden o f work and cannot go unacknowledged. I'm sure we'll share another office in the future. The proof-readers of this research have transformed it from a sprawling chaos into a relatively glitch-free zone: to Ciara, Aphra, Maeve Qumn, John McMahon (for always saying “yes” even when he thought I was wrong), Paul Healy (in particular for his unstinting work on the troublesome "footnote font question") and eternal gratitude. My parents, perhaps unwittingly, put me on the path to this research when they agreed to fund "just one more" year of university education in 1991. Without that year, the thesis would never have been a possibility, so my thanks to them. There are probably a thousand others who knowingly or otherwise have contributed their ideas, time or even just some good grammar to this work. To everyone who's not mentioned by name or I can't remember at this particular moment: thank youse. Any finally. .. To Ciara, for persisting with me through three and a half long years o f "thesising". She has put up the kind o f behaviour that would have driven lesser mortals to gibbering insanity and done so with a smile. Her love and encouragement has made the impossible possible. D edication For my mother, with all my love iv TABLE OF CONTENTS PAGE Abstract i Acknowledgements iii Dedication iv Table of contents v List of figures and tables viii Table of appendices ix Acronyms x CHAPTER ONE - INTRODUCTION 1.1 The concerns of this thesis. 2 1.2 The approach adopted. 5 1.3 The motivation for this work. 9 1.4 Structure and outline of thesis and chapters. 17 CHAPTER 2 - UNIVERSAL SERVICE 2.1 Introduction. 20 2.2 Mapping the territory. 21 2.3 Why Universal Service in the Case of Telecommunications? 24 2.3.1 The Unusual Qualities of Telecommunications Networks as Economic Goods. 24 2.3.2 Diffusion Theory and the Telephone. 27 2.4 The Social Role o f the Telephone. 35 2.5 Working Definitions. 42 2.5.1 The Growth and Development of Universal Service 1876 - 1970. 43 2.5.2 Universal Service in a competitive telecommunications market. 50 2.6 Conclusion. 61 C H A P T E R 3 - Ireland 1880-1993, A Political and Economic Overview 3.1 Introduction 66 3.2.1 Ireland 1880-1922 66 3.2.2 Agriculture in the 19th Century 70 3.2.3 Post-Independence Economic Policy 72 3.2.4 Ireland from the 1970s to the present 78 3.3 Irish political culture: The Pre-Independent Administration o f Ireland 82 3.4 Policy-Making in Ireland: Process and Influences 87 3.4.1 Clientahsm - consequences for national policy-making 91 3.4.2 The European Union - effect of membership on Irish telecommunication policy and policy-making 93 3.5 Summary 97 CHAPTER 4 - TELEPHONE DEVELOPMENT 1880 - 1922 Page 4.1 General Telephone Policy in the United Kingdom 1880 - 1922 101 4.2 Development in Ireland 1880 - 1922 107 4.3 Conception o f the telephone 120 4.4 Conception of the Telephone Service 123 4.5 Universal Service 1880 - 1921 126 C H A P T E R 5 - TE L E P H O N E DE V E L O P M E N T 1922 - 1939 5.1 General Development 1921 - 1932 135 5.2 General Development 1933 - 1939 144 5.3 Conception o f the Telephone 151 5.4 Conception o f the Telephone Service 155 5.5 Summary: Universal Service 1921 - 1939 165 C H A P T E R 6 - TE L E P H O N E DE V E L O P M E N T 1940 - 1959 6.1 General Development 1940 - 1944 172 6.2 General Development 1945 - 1949 177 6.3 General Development 1950 - 1954 181 6.4 General Development 1955-1959 186 6.5 Conception of the Telephone 191 6.6 Conception of the Telephone Service 196 6.7 Summary: Universal Service 1940 - 1959 200 C H A P T E R 7 - TE L E P H O N E DE V E L O P M E N T 1960 - 1979 7.1 General Development 1960 - 1964 210 7.2 General Development 1965 - 1969 214 7.3 General Development 1970 - 1974 218 7.4 General Development 1975 - 1979 223 7.5 Conception of the Telephone 228 7.6 Conception of the Telephone Service 233 7.7 Summary: Universal Service 1960 - 1979 240 C H A P T E R 8 - TE L E P H O N E DE V E L O P M E N T 1980 - 1993 8.1 Introduction 252 8.2 General Development 1980 - 1983 252 8.2.1 1983 Postal and Telecommunications Services Bill 255 8.3 General Development 1984 - 1989 258 8.4 General Development 1990 - 1993 260 8.5 Conception of the Telephone 267 8.6 Conception of the Telephone Service 1980 - 1983 272 8.6.1 Conception of the Telephone Service 1984 - 1993 278 8.7 Summary: Universal Service 1980-1993 284 vi CHAPTER 9-SUMMARY Page 9.1 Introduction 296 9.2 Diffusion of POTS in Ireland 1880-1993 296 9.3 Universal Service 299 9.4 Influences 302 9.4.1 Technology 302 9.4.2 Social Influences 307 9.4.3 Economic Factors 3 15 9.4.4 Political Influences 320 9.5 Summary 326 CHAPTER 10 - CONCLUSION 10.1 Introduction: The future of universal service 329 10.2 Daniel Bell’s Information Society Theory ' 330 10.2.1 European Union and NTIA views on the Information Society 33 1 Global Information Infrastructure 10.2.2 Ireland’s Information Society Strategy 338 10.2.3 New ICTs and universal service - From Universal Service to Universal Access? 338 10.2.4 The Irish Version of USO in an Information Society 340 10.2.5 The Weakness of Information Society Theory 341 10.2.5.1 Technological Determinism 341 10.2.5.2 The Validity of the Concept of Information Poveity 344 10.2.5.3 Back to the Future: The Case for Universal Service and POTS 345 10.3 The Future of USO with Regard to POTs in Ireland 347 10.4 The “Citizenship Thesis”: The Future of Universal Service 356 vii f' FIGURES AND TABLES Figure 2.1: Rodgers’ Diffusion Curve 28 Figure 2.2: Eli Noam’s Network Diffusion Curve 32 Figure 4.1:1926 Map of Trunk/Exchange Development 138 Table 4.1: Telegraph
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