2016年-世界发展银行全球_The_Telecommunication_Sector_in_the_Palestinian_Territories___A_Missed_Opportunity_for_Economic_Development_62页_3mb

The Telecommunication Sector in the Palestinian Territories: A Missed Opportunity for Economic Development

Core Content

This document is a Sector Assessment Note by the World Bank, prepared in response to a request from the Palestinian Ministry of Telecommunications and Information Technology (MTIT). It evaluates the performance of the telecommunications sector in the West Bank and Gaza, identifies key challenges, and proposes recommendations for reform and development.

The report highlights the Oslo Agreement as a framework that was supposed to enable the Palestinian territories to develop an independent telecommunications sector. However, key provisions of the agreement have not been implemented, resulting in unilateral and bilateral constraints that hinder sector growth and competitiveness.

Main Findings

1. Bilateral Constraints

• The Joint Technical Committee (JTC), intended to resolve technical issues between Israeli and Palestinian operators, has been ineffective and dysfunctional.
• Spectrum allocation remains a critical bottleneck. Although a limited 3G spectrum release was agreed in late 2015, it is still insufficient to enable Palestinian operators to compete with Israeli ones who have 3G and 4G capabilities.
• Israeli restrictions on the import of telecom and ICT equipment, especially in Gaza, and on movement of goods and people in Area C have impeded infrastructure deployment and maintenance.
• Palestinian operators must use Israeli-registered companies to access international links, which creates a competitive disadvantage.

2. Domestic Regulatory Issues

• The regulatory framework is still underdeveloped, with no independent regulatory authority (PTRA) yet established.
• Paltel, the dominant operator, holds significant market power, and there is a lack of mobile number portability and insufficient interconnection offers.
• The telecom law (approved in 2009) has not been fully implemented, and regulatory tools such as market observatories, SMP identification, and RIO enforcement are still in development.

3. Sector Performance and Impact

• The absence of 3G services has led to a significant revenue loss for Palestinian mobile operators, estimated between US$339 to US$742 million over 2013–2015.
• Value Added Tax (VAT) losses for the Palestinian Authority due to unauthorized Israeli operators are estimated at US$70 to US$184 million.
• The overall impact of these issues is up to 3.0% of GDP over the last three years.

4. Achievements

• Wataniya, the second mobile operator, has been licensed and launched in the West Bank but cannot operate in Gaza.
• A liberal ISP licensing regime has been introduced, allowing local ISPs to build and operate broadband infrastructure.
• Alternative infrastructure (e.g., fiber optics from JDECO) is being used by some ISPs, which is a positive development.
• VoIP and WiFi markets have seen the introduction of new licenses, indicating progress in sector liberalization.

5. Regulatory and Institutional Uncertainty in Gaza

• Companies in the West Bank must go through a new licensing process in Gaza, leading to inefficiencies.
• Taxation of telecom companies in Gaza is a concern, as it should be managed directly by the PA or a dedicated fund.
• MTIT does not control PNINA, the National Internet Naming Authority, which manages the .ps domain. This lack of control is a regulatory concern.

Key Recommendations

1. Bilateral Issues

• Revive the JTC platform to address technical and regulatory issues.
• Negotiate a comprehensive and long-term spectrum agreement, including 4G and backhaul spectrum.
• Lift Israeli restrictions on the import of telecom equipment and the layout of microwave links, especially in Gaza.
• Mitigate unauthorized Israeli telecom activity by ensuring Palestinian operators have equal access to resources and limiting Israeli coverage in the West Bank.

2. Domestic Regulatory and Competition Issues

• Create an independent regulatory authority (PTRA) to ensure objective, transparent, and non-discriminatory regulation.
• Implement the telecom law or introduce amendments to align with international best practices.
• Introduce a minimum regulatory package, including:
  • An ICT observatory to monitor the market.
  • Regulatory tools such as market definition, SMP identification, remedies, and enforcement.
  • Enforce RIOs to promote a dynamic and cost-oriented wholesale market.
  • Establish an ex post competition authority to monitor and prevent anti-competitive behavior.

3. Capacity Building

• Enhance the capacity of MTIT and PTRA by recruiting skilled personnel, as the public sector offers lower salaries than the private sector.

Conclusion

Despite some progress in domestic regulatory reforms and market liberalization, the telecom sector in the Palestinian territories continues to face significant challenges due to unilateral and bilateral constraints. The Oslo Agreement has not fully delivered on its promises, and the lack of an independent regulator remains a critical domestic issue. The economic impact of these constraints is substantial, with revenue losses and high service costs affecting both consumers and economic growth.

The World Bank emphasizes the urgency of addressing these issues, particularly through regulatory reform and improved bilateral coordination, to unlock the sector’s potential and support economic development.