2008年-世界发展银行全球_Output-Based_Aid_in_Mongolia___Expanding_Telecommunications_Services_to_Rural_Areas_4页_455kb

Summary of OBA Approaches 43103: Output-Based Aid in Mongolia - Expanding Telecommunications Services to Rural Areas

Core Content

This document outlines the implementation of Output-Based Aid (OBA) in Mongolia to expand telecommunications services to remote rural areas. The initiative, launched in 2004, aims to improve access to basic communication services in a country with one of the lowest population densities in the world. The program is structured around competitive bidding for one-time subsidies, with operators required to meet specific service targets before receiving payments.

Main Objectives

• Universal Access: Provide telecommunications services to remote herder communities and rural villages.
• Public Access: Ensure at least one mobile or wireless operator in each of Mongolia's 330 soum centers.
• Broadband Access: Offer the possibility of broadband Internet in some soum centers.
• School Connectivity: Provide subsidized Internet access to schools for three years.

Key Information

Geography and Demographics

• Mongolia has a population of 2.7 million, with over 1 million rural residents.
• The rural population is largely nomadic, moving between summer and winter grazing areas.
• The country has 330 soum centers, with about 200 of them expected to have at least one mobile service and 150 to have two by the end of 2007.

Economic Context

• Per capita GDP is around $950, but has doubled in four years due to growth in mining and tourism.
• Urban-rural inequality is significant, with many rural areas experiencing population declines.

Telecommunications Market

• The market was liberalized in the 1990s, leading to the entry of two private mobile operators.
• These operators account for over 80% of customer connections and 2/3 of sector revenue.
• The incumbent operator, Mongolia Telecom, is struggling to compete in both voice and Internet sectors.

Pilot Projects

Herder Network Pilot

• Location: 27 baghs across 6 soums in Arkhangai and Bayankhongor provinces.
• Subsidy: Estimated at $5,100–$6,200 per herder community, or $5.28–$14.45 per capita.
• Operator: One of the leading VSAT operators, requiring a subsidy of $180,480.
• Technical Innovation: VSAT terminals were made portable by installing multiple pedestals per community.
• Results: Service was implemented before the 2006/07 winter season. Initial revenue was low due to technical issues and migration patterns, but improved over time. Herders now travel shorter distances to access phones and use them more frequently.

Soum Center Wireless Pilot (Tariat Soum)

• Location: Tariat soum in Arkhangai province.
• Subsidy: Total estimated between $63,000–$73,400, or $47.90–$55.82 per person.
• Operator: Leading GSM mobile operator, with a winning bid of $16,455.
• Services: Includes GSM base station and Wi-Fi network, connected via VSAT to Ulaanbaatar.
• Results: Over two-thirds of households became customers. Monthly spending on calls exceeded the national average. Internet usage was lower than expected, but the operator is gaining insights into demand.

Subsidy Design and Bidding Process

• Subsidies were structured as one-time payments, with 20% upon contract signing, 60% on meeting targets, and 20% after nine months of operation.
• Operators were required to provide a performance guarantee for 36 months.
• The winning bidders were selected based on the lowest required subsidy.
• The program demonstrated the effectiveness of OBA in rural markets, with similar subsidies seen in countries like Chile, Peru, and Uganda.

Lessons Learned

• Competition: Strong competition among operators led to cost-effective bids and efficient service delivery.
• Technical Adaptation: The nomadic lifestyle required innovative solutions, such as portable VSAT terminals.
• Market Seeding: Investments in rural telecommunications serve as a "market seeding" strategy, with long-term economic benefits emerging in other countries.
• Training Needs: There is a need for teacher and student training to maximize the benefits of Internet access.

Next Steps

• A major competition was launched in late 2007 to expand mobile base stations to the remaining uncovered soums.
• A similar competition for VSAT projects in remote areas is planned for early 2008.
• Internet service development will proceed more slowly, focusing on soums with strong voice markets, "Internet ready" schools, and sustainable potential.

Key Success Factors

• Strong commitment from the Communications Regulatory Commission.
• Effective skills transfer and national ownership of the program.
• Tenders prepared in consultation with stakeholders and operators.
• Competitive market dynamics and strategic bidding by operators to gain brand advantage and demonstrate collaboration.

Conclusion

The OBA approach in Mongolia has successfully expanded telecommunications access to rural areas, with pilots demonstrating the viability of this model in challenging environments. The program has provided valuable insights into rural demand and has helped operators adapt their services to local conditions, while also promoting sustainable market development.