NET NEUTRALITY, TURKEY, AND BEYOND A Road Map for Net Neutrality Regulation in Turkey 0 NET NEUTRALITY, TURKEY AND BEYOND A Road Map for Net Neutrality Regulation in Turkey1 Authors: Leyla KESER BERBER Ayça ATABEY Elif SERT IT Law Institute Istanbul Bilgi University November 2019 1 The drafting of this Report was supported by a grant from Facebook. The content in this report represents Bilgi University Information Technology Law Institute’s own views and independent research. 1 Table of Contents Executive Summary............................................................................................................................... 4 1. Introduction and the Workings of the Report .......................................................................... 8 2. Methodology of the Report ...................................................................................................... 11 3. Connectivity and Access .......................................................................................................... 11 4. Open Internet Access and Net Neutrality................................................................................ 13 4.1. Principles ........................................................................................................................... 15 4.1.1. Technology Neutrality .............................................................................................. 16 4.1.2. Transparency ............................................................................................................ 17 4.1.3. Non-Discrimination .................................................................................................. 20 4.1.4. Non-Blocking........................................................................................................... 22 4.1.5. Non-Throttling ......................................................................................................... 24 4.1.6. Non-Prioritization .................................................................................................... 26 4.2. Exemptions ........................................................................................................................ 28 4.3. Specialized Services ........................................................................................................... 30 4.4. An Overview of Zero-Rating and NN Principles ................................................................. 32 5. Regulatory Approach of Different Countries to Net Neutrality ............................................. 34 5.1. The EU .............................................................................................................................. 35 5.1.1. Brief History of NN in the EU .................................................................................. 35 5.1.2. Digital Single Market Strategy ................................................................................. 37 5.1.2.1. Better online access for consumers and business across Europe ............................ 38 5.1.2.2. Creating the right conditions and a level playing field for advanced digital networks and innovative services .......................................................................................................... 38 5.1.2.3. Maximizing the growth potential of the digital economy ...................................... 39 5.1.3. Electronic Communication Code (ECC) ................................................................... 39 5.1.4. Regulation (EU) 2015/2120 - Open Internet Regulation ............................................ 40 5.1.4.1. Purpose of the Regulation .................................................................................... 41 5.1.4.2. Safeguarding of open internet access .................................................................... 41 5.1.4.3. Exemptions of the safeguarding of open internet access ........................................ 42 5.1.4.4. Transparency measures for ensuring open internet access ..................................... 43 5.1.4.5. Critiques of the regulation .................................................................................... 44 5.1.5. BEREC Guidelines on the Implementation by National Regulators of European Net Neutrality Rules ......................................................................................................................... 44 5.1.6. Annual Country Reports on Open Internet from National Regulators ........................ 46 2 5.2. The US ............................................................................................................................... 47 5.2.1. Brief History of NN in the US .................................................................................. 48 5.2.2. FCC Open Internet Order (2015) .............................................................................. 50 5.2.3. FCC Restoring Internet Freedom Order (2018) ......................................................... 51 5.2.4. Save the Internet Act (2019) ..................................................................................... 52 5.2.5. NN Regulations at the State Level (From 2017 to October 1st, 2019) ........................ 52 5.2.6. Federal Appeal Court’s Decision on the FCC’s Repeal (October 1st, 2019 - Present) 54 5.3. Turkey ............................................................................................................................... 55 5.3.1. Legal Background - The Missing Piece in the Puzzle ................................................ 55 5.3.2. Signals of Net Neutrality - So Close yet So Far......................................................... 56 5.3.2.1. ICTA Fines Major ISP for Blocking Access to Websites ...................................... 56 5.3.2.2. ICTA Bans the Fair Usage Practice ...................................................................... 56 5.3.3. Demand and Necessity – Looking Ahead ................................................................. 58 6. Reflections of International Organizations ............................................................................. 62 6.1. ISOC .................................................................................................................................. 62 6.2. ICANN .............................................................................................................................. 64 6.3. IGF .................................................................................................................................... 64 6.4. ITU .................................................................................................................................... 64 7. The Impact of NN and Network Bias Have on Internet Actors .............................................. 65 7.1. Perspective of End-Users .................................................................................................... 66 7.2. Human Rights Perspective .................................................................................................. 68 7.3. Business and Economic Perspective ................................................................................... 73 8. Conclusion ................................................................................................................................ 78 BIBLIOGRAPHY .......................................................................................................................... 82 APPENDIX A: European Union Electronic Communications Code (ECC) “Articles and Recitals Regarding NN and Open Internet Principles” .............................................................................. 98 APPENDIX B: BEREC Guidelines on the Implementation by National Regulators of European Net Neutrality Rules “Article 3 and Relevant Recommendations for NRAs” ............................ 106 APPENDIX C: BEREC Guidelines on the Implementation by National Regulators of European Net Neutrality Rules “Article 4 and Relevant Recommendations for NRAs” ............................ 112 APPENDIX D: “List of the Relevant Legislation in Turkey Regarding Net Neutrality”........... 118 Keywords: Net Neutrality, Open Internet, The EU, The US, Turkey 3 Executive Summary Net Neutrality (NN) remains as one of the most debated internet governance topics. This is because laws and regulations governing the NN principle have a tremendous impact on the end-users, fundamental rights, as well as fair competition, therefore, calling for a careful consideration of what challenges the internet actors face and how their rights should be preserved. Due to carrying pivotal importance for both enhancing the rights of end-users and fostering fair digital economy, NN debates require urgent attention from relevant Turkish Authorities. Currently, Turkey does not have a clear stance on NN, which created a legal gap and lead to applications that are far from being best practices. Therefore, the “Net Neutrality, Turkey and Beyond: A Road Map for Net Neutrality Regulation in Turkey” Report (Report) is intended as a roadmap for Turkish Regulators, analyzing the existing NN ecosystem particularly within the EU and US, comparing and contrasting NN best practices and applications that may pose some risks to various internet actors. It is also intended as a resource for those interested in the NN research in general, outlining why they should be concerned about the lack of NN regulations in Turkey. What follows translates between different