INTERNATIONAL TELECOMMUNICATION UNION
CASE STUDY OF THE CHANGING INTERNATIONAL
TELECOMMUNICATIONS ENVIRONMENT
MAURITANIA
FINAL REPORT
ICEA, Paris
February 1998
MAURITANIA
TABLE OF CONTENTS
Page
1. OUTLINE OF THE SOCIO-ECONOMIC SITUATION IN MAURITANIA ........................................................... 5
1.1. GEOGRAPHICAL AND DEMOGRAPHIC SITUATION......................................................................................................... 5
1.2. MAURITANIA’S ECONOMY ........................................................................................................................................... 6
1.3. COMMUNICATIONS INFRASTRUCTURES....................................................................................................................... 7
2. THE TELECOMMUNICATION SECTOR ................................................................................................................. 8
2.1. INSTITUTIONAL FRAMEWORK...................................................................................................................................... 8
2.1.1. STATUS OF OPT ....................................................................................................................................................... 8
2.1.2. P OSTS AND TELECOMMUNICATION CODE ................................................................................................................. 8
2.1.3. STATE/OPT PROGRAMME CONTRACT ...................................................................................................................... 8
2.2. MAIN CHARACTERISTICS OF THE TELECOMMUNICATION SECTOR................................................................................ 8
2.2.1. K EY FIGURES ........................................................................................................................................................... 9
2.2.2 . H ISTORY OF THE NETWORK..................................................................................................................................... 10
2.2.3. T HE TELEPHONE NETWORK TODAY .......................................................................................................................... 11
2.2.4. P LANNED EXTENSIONS............................................................................................................................................. 13
2.3. OPT - KEY FIGURES .................................................................................................................................................... 13
3. INTERNATIONAL ENVIRONMENT ......................................................................................................................... 15
3.1. IMPORTANCE OF INTERNATIONAL TELECOMMUNICATIONS .......................................................................................... 15
3.2. ANALYSIS OF TRAFFIC................................................................................................................................................. 15
3.2.1. I NTERNATIONAL TRAFFIC......................................................................................................................................... 15
3.2.2. O UTGOING TRAFFIC.................................................................................................................................................. 15
3.2.3. I NCOMING TRAFFIC FROM TRANSIT COUNTRIES........................................................................................................ 17
3.2.4. ACCOUNTING BALANCE WITH THE THREE MAIN CARRIERS....................................................................................... 18
3.3. T ARIFF ANALYSIS........................................................................................................................................................ 18
3.3.1. FIXED CHARGES ....................................................................................................................................................... 18
3.3.2. CALL CHARGES ........................................................................................................................................................ 19
3.3.3. COMPARISON WITH THE TARIFFS OF CERTAIN OPERATORS ........................................................................................ 20
4. ESTIMATE OF COSTS FOR THE INTERNATIONAL TELEPHONE SERVICE................................................ 23
4.1. FCC METHODOLOGY AND RESULT.............................................................................................................................. 23
4.2. DETERMINATION OF COSTS FOR INCOMING INTERNATIONAL TELECOMMUNICATIONS IN AURITANIA........................ M 25
4.2.1. G ENERAL COMMENTS ON THE METHODOLOGY......................................................................................................... 25
4.2.2. E STIMATION OF COSTS ............................................................................................................................................. 25
4.2.3. D ATA USED .............................................................................................................................................................. 26
4.3. CROSS-SUBSIDIES BETWEEN THE INTERNATIONAL AND DOMESTIC SERVICES.............................................................. 27
5. FUTURE SCENARIOS FOR THE INTERNATIONAL ACCOUNTING RATE SYSTEM ................................... 28
5.1. METHODOLOGIES AND PRINCIPLES.............................................................................................................................. 28
5.2. SCENARIOS ................................................................................................................................................................. 31
5.2.1. SCENARIO A: FCC BENCHMARK.............................................................................................................................. 31
5.2.2. SCENARIO B1: 6% STAGED REDUCTION................................................................................................................... 33
5.2.3. SCENARIO B2: 10% STAGED REDUCTION................................................................................................................. 34
5.2.4. SCENARIO C: TERMINATION CHARGE ...................................................................................................................... 36
5.2.5. SCENARIO D1: VERY LOW SETTLEMENT RATES ....................................................................................................... 39
5.2.6. SCENARIO D2: SENDER KEEPS ALL .......................................................................................................................... 41
6. CONCLUSIONS.............................................................................................................................................................. 43
6.1. T HE TRADITIONAL MECHANISM FOR SETTING TARIFFS NO LONGER WORKS................................................................. 43
6.2. CASE OF MAURITANIA: LOW DEPENDENCE ON INTERNATIONAL SETTLEMENT BALANCES HIGH ROUTING COSTS........ , 43
6.3. SUMMARY OF THE SIMULATIONS................................................................................................................................. 44
6.4. P ROPOSAL................................................................................................................................................................... 45
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LIST OF ILLUSTRATIONS
Tables
Page
TABLE 1.1 POPULATION/MAIN LINES IN 1997 ....................................................................................................5
TABLE 1.2 EVOLUTION OF GDP ..............................................................................................................................6
TABLE 2.1 EVOLUTION OF TELECOMMUNICATION TURNOVER IN GDP .................................................9
TABLE 2.2 EVOLUTION OF THE NUMBER OF SUBSCRIBERS.......................................................................10
TABLE 2.3 TECHNICAL CHARACTERISTICS OF SWITCHING......................................................................12
TABLE 2.4 CHARACTERISTICS OF TRANSMISSION BY INTELSAT ............................................................13
TABLE 2.5 EVOLUTION OF TURNOVER (IN MILLIONS OF UM) ..................................................................13
TABLE 2.6 COMPONENTS OF TURNOVER..........................................................................................................14
TABLE 3.1 INTERNATIONAL INCOME AND EXPENDITURE 1994-1996 .......................................................15
TABLE 3.2 EVOLUTION OF TRAFFIC ...................................................................................................................15
TABLE 3.3 EVOLUTION OF OUTGOING TRAFFIC (TERMINAL + TRANSIT).............................................16
TABLE 3.4 EVOLUTION OF OUTGOING TERMINAL TRAFFIC (IN MINUTES)..........................................17
TABLE 3.5 EVOLUTION OF INCOMING TRAFFIC (IN MINUTES) .................................................................17
TABLE 3.6 BALANCE WITH TRANSIT COUNTRIES (IN MINUTES) ..............................................................18
TABLE 3.7 EVOLUTION OF FIXED CHARGES (1990-1996) ...............................................................................18
TABLE 3.8 EVOLUTION OF THE TARIFF GRID (1990-1997) ............................................................................19
TABLE 3.9 COMPARISON OF THE TARIFFS OF A NUMBER OF OPERATORS ..........................................21
TABLE 3.10 ACCOUNTING RATE/CONSUMER PRICE 1997 (IN $US) ..............................................................22
TABLE 4.1 FCC PRICE CAP......................................................................................................................................24
TABLE 4.2 BENCHMARK FOR LOW-INCOME COUNTRIES ...........................................................................24
TABLE 4.3 COST OF INTERNATIONAL SERVICES (PER MINUTE)...............................................................26
TABLE 4.4 COMPARISON BETWEEN TELEPHONE INCOME AND TRAFFIC FIGURES..........................27
TABLE 4.5 SUBSIDY FROM INTERNATIONAL SERVICE.................................................................................27
TABLE 5.1 INTERNATIONAL TARIFF HYPOTHESIS ........................................................................................29
TABLE 5.2 HYPOTHESES FOR REBALANCING INCOME................................................................................29
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Page
TABLE 5.3 FCC BENCHMARK SCENARIO ..........................................................................................................32
TABLE 5.4 SCENARIO B1: 6% STAGED REDUCTION .......................................................................................33
TABLE 5.5 SCENARIO B2: 10% STAGED REDUCTION .....................................................................................35
TABLE 5.6 TERMINATION CHARGE SCENARIO C1 .........................................................................................36
TABLE 5.7 TERMINATION CHARGE SCENARIO C2 .........................................................................................38
TABLE 5.8 AVERAGE SETTLEMENT RATES ......................................................................................................38
TABLE 5.9 VERY LOW RATES SCENARIO ..........................................................................................................40
TABLE 5.10 EFFECT OF CALL-BACK ON INCOME ($US MILLIONS) .............................................................41
TABLE 5.11 SENDER KEEPS ALL SCENARIO .......................................................................................................41
TABLE 6.1 SUMMARY OF RESULT........................................................................................................................44
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MAURITANIA
1 OUTLINE OF THE SOCIO-ECONOMIC SITUATION IN MAURITANIA
On account of Mauritania’s exceptional geographical characteristics, both in terms of climate and
demographic conditions, and its economic development characteristics (per capita income estimated at $US
470 in 1996), establishment of the necessary infrastructures for the country’s economic development is a
major problem.
The telecommunication sector, as an essential component in freeing the country from isolation, therefore
constitutes a major challenge.
1.1 Geographical and demographic situation
With just under 2.4 million inhabitants1, Mauritania has a population density of 2.3 inhabitants/km2. The
growth rate of the population stands at 2.9%, and the age pyramid illustrates the importance of the young
layers of the population (nearly 55% of the population aged 20 or below).
Table 1.1: Population/Main Lines (ML) in 1997
Main town Population2 Number of lines Lines/inh.
Nouakchott Nouakchott 608’228 9’237 1.5%
Dakhlet Nouadhibou Nouadhibou 97’639 1’494 1.5%
Hodh El Gharbi Néma 261’203 115 0.0%
Hodh El Chargui Aioun 194’103 140 0.1%
Assaba Kiffa 200’840 198 0.1%
Gorgol Kaédi 211’866 197 0.1%
Brakna Aleg 225’531 91 0.0%
Trarza Rosso 206’801 297 0.1%
Adrar Atar 69’425 232 0.3%
Tagant Tidjikja 73’629 150 0.2%
Guidimakha Sélibaby 141’350 119 0.1%
Inchiri Akjoujt 13’518 180 1.3%
Tiris Zemour Zouerat 42’617 145 0.3%
TOTAL 2’346’750 12’595 0.5%
Source: Commercial Directorate, OPT
Two economic centres, Nouakchott and Nouadhibou, together with the eleven regional capitals, have over
1.3 million inhabitants, i.e. nearly 56% of the population. More than 95% of the population is concentrated
in 40 towns.
Urban areas have developed extremely rapidly. Nouakchott, for instance, has grown in size from 500 to over
600 000 inhabitants in the space of 35 years. As a result of this spectacular development, inhabited areas
____________________
1
World Bank estimate, 1997
2
Estimate: private census 1997
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MAURITANIA
have sprung up all around towns which are difficult to equip with telecommunications and various
infrastructures.
1.2 Mauritania’s economy
At an estimated $US 470, Mauritania’s per capita GDP is one of the lowest in the world. The
telecommunication sector accounts for around 2.3% of GDP.
More than the country’s vast size and extremely concentrated population distribution, the main feature of
Mauritania’s economy is the lack of any strong driving force to stimulate growth. The breakdown of GDP in
1997 is as follows: primary sector (27%), secondary sector (24%), tertiary sector (49%) 3.
Table 1.2: Evolution of GDP
In Million UM (current)
1993 1994 1995
Primary sector 27’885 29’883 31’113
Secondary sector 26’027 26’819 33’981
Tertiary sector 34’375 39’160 46’461
Non-merchantable services 13’373 14’887 14’621
GDP at factor cost 101’660 110’749 126’175
Indirect taxes 12’237 13’029 14’961
GDP at market price 113’897 123’778 141’136
GDP in $US 944 1’027 1 068
Exchange rate $US/UM 120.8 123.6 129.8
Source: Mauritania Statistics Office, World Bank Atlas
As far as traditional natural resources are concerned, agriculture and animal rearing account for 20% of
GDP. This input is far too dependent on climatic conditions to provide a constant stimulus (country not self-
sufficient: only 40% of the population's needs are covered). Fishing, despite considerable external funding
and regular government support, represents less than 10%.
The mining sector (in particular iron ore), accounts for 12% of GDP, but exports fluctuate according to the
world market. Income from the mining sector is thus extremely variable.
The main component of GDP is the service economy (more than 48% of GDP). Hence the importance of
developing communication infrastructure, as a formidable catalyst to boost the service economy.
Finally, it should not be forgotten that Mauritania receives the equivalent of 35% of its GNP in the form of
development aid, which is thus by far the country's main resource. This quite exceptional state of affairs
makes Mauritania an extreme case among the developing countries.
____________________
3
World Bank Atlas, 1997
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1.3 Communications infrastructures
To understand the need for the development of the telecommunication sector, it is vital to have an idea of
the current status of communications infrastructures. These comprise the following main components:
Railway: One main line (Nouadhibou/Zerouate/Mhaoudat), which is used to carry iron ore to the port of
Nouadhibou.
Port: Commercial port (Nouakchott), fishing port (Nouadhibou), river ports on the Senegal river.
Air transport: Two airports (Nouakchott, Nouadhibou).
Road: 8 000 km of roads, of which 2 000 km are tarmacked. The main roads are Rosso - Nouakchott,
Nouakchott - Nema, Nouakchott - Akjoujt.
There is no tarmacked road between Nouakchott and Nouadhibou, the country’s administrative and
economic capitals. Similarly, five main towns (Akjoujt, Sélibaby, Kaédi, Atar and Fdérik) are only
accessible by tracks.
In this context, the telecommunication network becomes a major factor in opening up the country and
developing services. The country's large surface area and long distances to population centres entail
significant costs for development and maintenance of the telephone network.
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2 THE TELECOMMUNICATION SECTOR
2.1 Institutional framework
2.1.1 Status of OPT
Given the strategic role the Office of Posts and Telecommunications (OPT) plays in Mauritania’s economic
life, a vast rehabilitation programme has been under way since 1987. Under this programme, the status of
OPT was changed on 4 April 1997 from EPIC4 to National Company. This status gives the company greater
management autonomy, although the state remains the sole shareholder.
2.1.2 Posts and telecommunication code
Two main missions are entrusted to OPT: (1) provide as many users as possible with telecommunication,
financial and postal services under the best possible conditions of cost and quality, and (2) modernize the
telephone network.
OPT enjoys a monopoly on postal and telecommunication service in Mauritania (Law No. 93-39 of 20 July
1993).
Article 34 defines telecommunications and monopoly:
• Any transmission, emission or reception of signs, signals, writing, images and sounds or
intelligence of any nature by wire, radio, optical or other electromagnetic systems.
• No telecommunication installation may be set up or used for the transmission of correspondence
except by the public post and telecommunication operator or with its authorization.
Thus, OPT has a monopoly over fixed voice/data telephony and all mobile services under development.
OPT is the sole telecommunication operator in Mauritania.
2.1.3 State/OPT programme contract
Relations between the State and OPT are governed by a programme contract5. The main objectives under the
contract for 1994-1996 are:
• Investment programme (develop domestic network, rehabilitate earth stations).
• Human resources programme (improve staff productivity).
• Management programme (introduction of a more efficient information system).
• Structural division programme (organization of the post and telecommunication sectors).
2.2 Main characteristics of the telecommunication sector
The telecommunication sector has long been rationed by supply. Recent installations under the DOMSAT
project (linking centres by means of a domestic satellite telecommunication network) and digitization of the
network have made it possible to extend the potential coverage area. Despite some still significant holes, the
network is covering an increasing portion of the population and, probably, a very large majority of the
solvent population.
____________________
4
Public industrial and commercial establishment
5
The programme contract is based on the measures for restructuring public enterprises introduced in agreement
with IMF in 1991 under the consolidation and relaunch programme. It sets out the State’s and OPT’s respective
commitments.
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2.2.1 Key figures
• Telecommunications in GDP
Table 2.1: Evolution of telecommunication turnover in GDP
In Millions $US
1994 1995 1996
Telecom turnover 25 25.8 27.5
Total GDP 1’027 1’068 1’094
% of GDP 2.4% 2.4% 2.5%
Source: ITU World Telecommunication Indicator Database, World Bank Atlas 1997
The share of telecommunications in GDP in Mauritania is high compared with data for other countries with
the same level of development, which is a consequence of the geographical isolation described earlier.
• Main telephone lines
The latest figures for 1997 show a subscriber coverage of 12 600 main lines. This figure rose by only 10%
per year between 1993 and 1996, on account of the saturation of equipment and the difficulty of installing
additional equipment. Still today, the dimensions of the network are determined by how much additional
infrastructure capacity can be installed. People living on the fringes of towns are having to wait to be
connected to the telephone network.
The sharp improvement in 1997 is attributable to introduction of the DOMSAT national network, through
which outstanding demand in provincial capitals has been met.
The number of public phones has remained constant for three years (200 lines). There has been a regular
decline in the number of telex subscribers since 1985.
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MAURITANIA
Table 2.2: Evolution of the number of subscribers
Year Main Lines % growth Telex lines % growth
1985 3’957 231
1986 4’255 8% 242 4.8%
1987 4’413 4% 262 8.3%
1988 4’673 6% 261 -0.4%
1989 4’581 -2% 243 -6.9%
1990 5’353 17% 252 3.7%
1991 6’283 17% 219 -13.1%
1992 6’731 7% 190 -13.2%
1993 7’567 12% 191 0.5%
1994 8’430 11% 190 -0.5%
1995 9’281 10% 155 -18.4%
1996 10’200 10%
1997 12’600 24%
Source: OPT Directorate (estimate 1997)
2.2.2 History of the network
The development of Mauritania's telephone network can be divided into three phases: development of the
telegraph, development of the telephone (1960-1994) and the DOMSAT project (1994).
• Telegraph (1891-1960)
The first telecommunication equipment was set up in 1891 (telegraph lines). These lines were only
accessible from 11 offices in the country.
• Telephone (1974-1985: an embryonic network)
It was not until 1974 that the telephone network began to develop (post-colonial era).
Links:
– the towns of Nouakchott, Nouadhibou, Atar, Tidjikja, Boghé, Néma, Aïoune, Kiffa, Sélibaby and
Kaédi are connected by 12 long-distance telephone links;
– a 2-channel link between Nouadhibou and Zouérate, a single 12-channel coaxial cable link between
Nouakchott and Akjoujt, a 30-channel link between Nouakchott and Rosso;
– 4-channel HF radio links for France, two channels for Spain, one channel for Algeria, one channel
for Morocco. A radio-relay network connects Senegal and Mauritania (PANAFTEL network).
Exchanges:
– the switching network comprises 11 telephone exchanges: Nouakchott, Atar, Tidjikja, Akjoujt,
Néma, Rosso, Aïoune, Kiffa, Kaédi, Zérouate;
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MAURITANIA
– telex exchanges are installed at Nouakchott and Nouadhibou. A maritime radio transmission station
is installed at Nouadhibou.
The network stagnated for many years with less than 3 000 subscribers, for lack of sufficient investment to
finance growth.
• Telephone (1985-1999: digitization)
In order to cater for growing demand, investment programmes were carried out to develop the international
network, primarily through the INTELSAT and ARABSAT projects.
Links:
INTELSAT project (1985): One high-capacity earth station at Nouakchott for traffic with France and Spain.
ARABSAT project (1986): Earth station installed at Nouakchott used for traffic with the United Arab
Emirates, Saudi Arabia, Kuwait, Algeria and Tunisia.
Exchanges:
One 450-circuit ITC/NTC at Nouakchott relieving the old exchange.
Networks:
Digitization of the network in Nouakchott.
Digital telephone exchange for telephony (1989), digital telex exchange (ELTEX V at Nouakchott and
TG 20 and Nouadhibou).
Maritime radio station at Nouakchott (1994) and Nouadhibou (1994).
• DOMSAT project
Given the size of its territory and the need to improve service to the 11 provincial capitals (Wilayas),
satellite emerged as an ideal solution for Mauritania.
Under the funding agreement AFESD No. 227/89 (Arab Fund for Economic and Social Development), 16
million dollars were allocated for implementation of the project (50% for telecommunications, 50% for
radio and television). This project is one of the largest in Mauritanian history (along with mining projects).
Under this project, the provincial capitals (Aïoune, Akjoujt, Aleg, Atar, Kaédi, Kiffa, Néma, Rosso,
Sélibaby, Tidjikja, Zouétate) were equipped with satellite transmitting/receiving stations, supplemented with
domestic exchanges.
2.2.3 The telephone network today
Mauritania's telecommunication network has a relatively simple star configuration.
• Transmission
The transmission infrastructure comprises:
– one INTELSAT station at Nouakchott, which handles international links. The antenna is equipped
with two 2 Mb/s IDR/DCME carriers for France and Spain, one 512 kb/s IDR carrier for the United
States, one FDM carrier for Senegal and Côte d'Ivoire;
– an ARABSAT station at Nouakchott, which handles international links (to Arab countries) and
national links;
– a national station at Nouadhibou (ARABSAT)
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MAURITANIA
– 12 DOMSAT earth stations installed in the provincial capitals and at Nouadhibou.
• Switching
The switching infrastructures comprise:
– a national and international transit centre at Nouakchott (ALCATEL E10 MT 20)
– a national transit centre at Nouakchott (ALCATEL E10 MT 25)
– a national transit centre at Nouadhibou (ALCATEL E10 MT 25)
– 11 digital telephone exchanges in the provincial capitals (HARRIS EE900).
• Other services
The main installations for other services are a telex exchange (installed in Nouakchott), two maritime radio
stations with a mobile radio system and an Internet node set up at Nouakchott.
Table 2.3 : Technical characteristics of switching
Switching Model Make Installed Utilized Maximum Filling
capacity rate
ITC Nouakchott E10-MT20 Alcatel 2’048 2’000 20’000 97%
NTC Nouakchott E10-MT25 Alcatel 10’048 10’000 64’000 98%
NTC Nouadhibou E10-MT25 Alcatel 2’048 1’500 64’000 73%
NTC provincial capitals EE900 Harris 192-312 140-180 900 57-72%
Source: OPT Directorate
The switching equipment is completely saturated in Mauritania's two major cities, Nouakchott and
Nouadhibou.
For the exchange at Nouakchott, a 3 500 subscriber extension will be installed in early 1998. For
Nouadhibou (3 500 subscribers), funding is still being sought for a 3 500 subscriber extension.
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MAURITANIA
Table 2.4: Characteristics of transmission by INTELSAT
Destination Installed Utilized Maximum
capacity
France 120 60 360
Spain 120 45 240
United States 16 8 16
Source: Intelsat
2.2.4 Planned extensions
• Domestic services
Intelligent network services (voice server, ITC) have been installed.
Development of the GSM network in Nouakchott and Nouadhibou (7 000 subscribers) by the year 2000 is
OPT’s next major project. The economic feasibility study and technical specifications have been completed,
and financing is being sought.
Extension of the capacities of the Nouakchott and Nouadhibou exchanges, to 33 000 and 15 000 subscribes
respectively. This extension should enable demand to be met.
Serving rural areas is a key challenge. Wireless systems are under study.
• International outlets
OPT is involved in the Africa One submarine cable programme. Agreement of principle on the cable has
been reached by all the signatory countries. Financing problems are liable to delay implementation of the
project. Satellite links should also be expanded (INTELSAT, ARABSAT, etc....).
2.3 OPT - Key figures
OPT’s telecommunication turnover is increasing regularly.
Table 2.5: Evolution of turnover
(in millions of UM)
Telecommunication Income 1995 1996 Variation 95/96
Domestic income 53% 45% - 5%
Net international income 47% 55% + 30%
Net turnover 100% 100% + 12%
Source: OPT Directorate
The domestic segment declined between 1995 and 1996 from 53% to 45% of turnover, while the
international segment increased from 47% to 55%. The proportion of turnover represented by international
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income is increasing significantly, despite changes to the tariff grid (regular reduction in the price of
international calls).
Most of the turnover is attributable to traffic-related components.
Table 2.6: Components of turnover
1994 1995 1996
Domestic traffic 50% 49% 73%
Subscription/connection 9% 11% 13%
Other 41% 40% 14%
Domestic turnover 100% 100% 100%
Billed international traffic N/A 84.1% 90.9%
International settlement balance N/A 10.9% 5.6%
Other N/A 4% 4.5%
Net international turnover 100% 100% 100%
N/A = Not available
The sharp increase in domestic traffic in 1996 is due to the breakdown of income from public phones into
the different components (domestic traffic, international traffic, rental ...). The subscription and connection
charge is tending to increase gradually (by 2% per year). Income from connection and subscription charges
has increased with the extension of telephone service coverage since the introduction of the DOMSAT
network.
Turning to international traffic, the income generated by outgoing international traffic exceeds income from
the international settlement balance, which accounts for around 3.1% of total telecommunication turnover.
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MAURITANIA
3 INTERNATIONAL ENVIRONMENT
3.1 Importance of international telecommunications
Income and expenditure for the international segment is an important component of OPT’s profit and loss
account: gross international income (billed income + terminal settlement rates for incoming traffic)
represent over half of telecommunication turnover, while direct international expenditure (including
settlement outpayments to correspondents) represent around a third of total expenditure in the sector.
Table 3.1: International income and expenditure 1994-1996
Income (millions UM) 1994 1995 1996 Average
International income 1’667 1’835 2’321 57%
Total income 3’090 3’356 3’772
Expenditure 1994 1995 1996 Average
International operation 662 712 802 34%
Total expenditure 1’891 1’957 2’600
Source: OPT Financial Directorate
International settlement rates received account for 17% of total income on average, while settlement
outpayments account for 23.5% of expenditure on average.
3.2 Analysis of traffic
3.2.1 International traffic
Table 3.2: Evolution of traffic
Traffic (min) 1990 1991 1992 1993 1994 1995 1996
Outgoing 2'573’334 2’961’543 4’357’334 4’277’511 4’503’822 4’127’943 4’889’159
Incoming 1’782’288 1’967’814 2’448’587 2’554’938 3’021’502 3’032’341 3’861’047
Source: OPT Directorate
Traffic volumes have risen by 90% over the period studied, although unevenly: a sharp increase was
recorded in 1992, while the trend was momentarily reversed by two falls in 1993 and 1995. Data for
incoming traffic take into account only the three main carriers (France, Spain, United States).
3.2.2 Outgoing traffic
The four main destinations from Mauritania are France, Spain, Senegal and the Arab countries. The three
international transit countries are France, Spain and the United States.
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MAURITANIA
Table 3.3: Evolution of outgoing traffic (terminal + transit)
Outgoing (mins) 1990 % 1993 % 1996 %
France 1’276’404 49.6% 1’626’908 38.0% 2’120’212 43.4%
Spain 463’933 18.0% 822’798 19.2% 900’853 18.4%
United States 77’196 3.0% 224’641 5.3% 180’298 3.7%
Senegal 385’471 15.0% 466’705 10.9% 805’103 16.5%
Côte d'Ivoire 136’401 5.3% 139’098 3.3% 133’159 2.7%
Arab countries 233’929 9.1% 997’361 23.3% 749’534 15.3%
Total 2’573’334 100% 4’277’511 100% 4’889’159 100%
Source: OPT Directorate
Traffic grew in volume terms over the period studied for virtually all countries.
• France
France remains the leading country for outgoing calls. Transit accounts for 35% of traffic on average (this
proportion increased significantly in 1996).
• Spain
This is the second destination for outgoing calls, a large amount of traffic between the two countries (to
Spain’s advantage) being generated by the fishing industry. Transit traffic accounts for over 47% of the total
on average, with two particularly peak years, 1992 and 1994 (over 65% of traffic transit-related).
• United States
International traffic stagnated until 1991 and has been steadily increasing since then. A peak was recorded in
1993, with 224 641 outgoing minutes.
• Senegal
Senegal is a neighbouring country with which economic exchanges are significant. Consumption fell in
1991 (fall connected with the political events between the two countries), but has since resumed. Exchanges
with Senegal are growing significantly.
• Côte d'Ivoire
Traffic to Côte d'Ivoire has stagnated over the period studied, which explains the decline in that country's
share of the market from 5.3 to 2.7%.
• Arab countries
Traffic rose sharply in 1991 (on account of the political events associated with the Gulf War). Although the
trend is downward, the level of traffic is still very high (three peaks in consumption in 1992, 1993 and
1995).
The table below gives a breakdown of traffic for the main countries.
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Table 3.4: Evolution of outgoing terminal traffic (in minutes)
Country 1994 % 1995 %
France 1’085’320 29% 1’243’988 25%
Senegal 599’525 16% 622’899 13%
Morocco 354’813 9% 325’504 7%
Spain 329’386 9% 571’743 12%
Saudi Arabia 303’453 8% 312’426 6%
United Arab Emirates 236’391 6% 233’056 5%
Côte d'Ivoire 133’191 4% 135’375 3%
United States 120’089 3% 143’566 3%
Tunisia 95’872 3% 121’721 2%
Algeria 62’858 2% 23’911 0%
Germany 48’602 1% 80’313 2%
Italy 47’678 1% 71’245 1%
Mali 35’128 1% 85’329 2%
Belgium 35’075 1% 73’608 2%
Canada 25’782 1% 31’236 1%
Netherlands 19’065 1% 27’328 1%
Brazil 15’916 0% 21’576 0%
Source: Statistics Directorate
The first countries' rankings are more or less stable, a notable exception however being the top three, since
Spain moves up from fourth place (with 329 386 minutes) to third place (with 571 743 minutes).
3.2.3 Incoming traffic from transit countries
Table 3.5: Evolution of incoming traffic (in minutes)
Incoming 1990 % 1993 % 1996 %
France 1’433’416 80.4% 1’845’482 72% 2’620’475 67.9%
Spain 261’807 14.7% 484’815 19% 766’429 19.9%
United States 87’065 4.9% 224’641 9% 474’143 12.3%
Total 1’782’288 100% 2’554’938 100% 3’861’047 100%
Source: OPT Directorate
France is still the leading country for incoming traffic, even though its share has declined from 80% in 1990
to 68% today. Spain accounts for 20% of incoming traffic.
We have not yet received data on incoming traffic from other countries.
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3.2.4 Accounting balance with the three main carriers
Mauritania displays a structural surplus with France (incoming traffic greater than outgoing traffic), and this
generates significant resources. Similarly, traffic with the United States produces a positive balance.
With Spain, however, there is a deficit (except in 1995, when there was a marked reversal in the trend). The
overall evolution of the balance with the three countries is in Mauritania’s favour: the balance with France
has doubled in six years, the balance with the United States has grown by a factor of 30, and the negative
balance with Spain has tended to shrink little by little.
Overall, the trend in Mauritania’s situation in respect of its foreign partners is improving. The imbalance
with Spain and resulting expenditure are more than offset by the surplus with France and the United States.
Table 3.6: Balance with transit countries (in minutes)
Balance in minutes 1990 1993 1996
Incoming - outgoing
France 157’012 218’574 500’263
Spain -202’126 -337’983 -134’424
United States 9’869 0 293’845
Source: OPT Directorate
3.3 Tariff analysis
OPT introduced a new tariff grid in 1997 which, broadly speaking, charges for local calls by duration and
groups foreign countries into six tariff areas. The last major change had taken place in 1994. Meanwhile, the
fiscal administration had subjected telephone services to taxes (value added tax and tax on income and
services).
3.3.1 Fixed charges
Table 3.7: Evolution of fixed charges 1990-1996
In UM 1990 1992 1994 1995
Guarantee deposits:
– residential 26’000 26’000 28’000 28’000
– business 52’000 52’000 56’000 56’000
Connection fee:
– fixed 10’400 14’000 16’000 16’000
– variable6 13’000 14’000
Annual subscription:
– NTC (+2 000 lines) 5’850 5’850 8’832 9’024
– NTC (-2 000 lines) 3’900 3’900 6’528 6’720
Exchange rate UM/$US 80.6 87.0 123.6 129.8
Source : OPT Directorate
The guarantee deposit has changed little in six years. From 1990 to 1993, the connection fee comprised a
fixed portion and a variable portion: since the changes implemented in 1994, only the fixed portion remains.
____________________
6
Distance is calculated between the subscriber connection point and the concentration point (CP). In 1990, a
charge was made for distances greater than 500 m. In 1992, this minimum distance was increased to 2 000 m.
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The price of the annual subscription depends on the size of the connecting exchange. If the exchange has
over 2 000 lines, the connection is more expensive. From 1992 to 1994 the price rose by 51% for subscribers
connected to an NTC with more than 2 000 lines and 67% for subscribers connected to an NTC of less than
2 000 lines. The subscription has barely increased at all since.
3.3.2 Call charges
The table below shows how the price of calls has evolved.
Table 3.8: Evolution of the tariff grid 1990-1997
In UM 1990 1992 1994 1995 1997
Price basic charge unit (BCU) 13 14 16 16 16
Local call 1 BCU 1 BCU 1 BCU 1 BCU 1 BCU
Local call duration Unlimited Unlimited Unlimited Unlimited 7 mins
CU long-distance call 1 BCU 1 BCU 1 BCU 1 BCU 1 BCU
Duration up to 100 km 40 s 36 s 36 s 36 s 36 s
101-250 25 s 18 s 18 s 18 s 18 s
251-400 15 s 12 s 12 s 12 s 12 s
401-600 10 s 10 s 10 s 10 s 10 s
more than 600 km 9s 9s 9s 9s 9s
International call 1 BCU 1 BCU 1 BCU 1 BCU 1 BCU
Duration France 4.7 s 1.8 s 2.6 s 3s
Spain 4.7 s 2.6 s 2.6 s 3s
United Kingdom 3.3 s 2.8 s 2.8 s 3s
United States 2s 3.6 s 3.6 s 4s
Senegal 9s 3.7 s 3.7 s 4s
Côte d'Ivoire 4.7 s 3.4 s 3.4 s 4s
Saudi Arabia 2.6 s 3.9 s 3.9 s 4.5 s
Source: OPT Directorate
• Basic charge unit
The basic charge unit has increased little in six years (+ 23%), i.e. less than the effect of inflation and
currency draft. Increases in tariffs have thus been made by reducing the call duration covered by a basic
charge unit.
• Local calls
The main development was the changeover in 1997 from an unlimited call duration to a duration of seven
minutes for a basic charge unit.
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• Long-distance calls
The price of long-distance calls is determined according to distance and duration. The distance is divided
into a scale of five areas: five tiers around the point of origin of the call. Within these areas, the duration for
a basic charge unit varies between 9 and 36 seconds. The major development in 1994 was the changeover
from charging by indivisible segments of three minutes7, to staged charging (the basic charge unit serving as
a reference). In 1997, the introduction of time segments helped to optimize network utilization by
distributing calls more effectively between peak and off-peak periods.
• International calls
The previous international grid (more or less a different tariff for each country) has been replaced by a
clearer six-area scheme of international tariffs: OPT has placed countries in six tariff groups (group 1: Arab
countries, group 2: West Africa plus United States, Group 3: Northern Europe plus Red Sea...).
The same tariff is applied more or less for all European countries, a single tariff is adopted for neighbouring
African countries, and similarly for the Arab countries. The United States enjoys a more favourable tariff
than European correspondents.
3.3.3 Comparison with the tariffs of certain operators
The table below provides a simple and quick comparison of the tariff grids of certain operators, in particular
in Africa.
____________________
7
For the links Nouakchott/Akjoujt, Nouakchott/Nouadhibou and Nouakchott/Rosso, which are equipped with
automatic exchanges, charging is carried out on the basis of the basic charge unit (1 BCU every 12 to 20 seconds). For
the other links, which are equipped with mechanical exchanges, charging is carried out in indivisible 3-minute segments.
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Table 3.9: Comparison of the tariffs of number of operators
Country Madagascar Mauritius France Senegal Mauritania
Operator TELMA Telecom France Sonatel OPT
Mauritius Telecom
Currency FMG RS FRF FCFA MU
Exchange rate 5’251 21 6 590 165
VAT 25% 20.6% 20% 14%
FIXED CHARGES (in $US)
Installation
– residential or mixed 39.4 95.2 43.6 129.7 315.2
– business 142.9 176.3 484.8
Subscription/month
– residential or mixed 4.8 2.9 9.7 3.9 4.6
– business 4.8
VARIABLE CHARGES (IN $US)
Basic charge unit (BCU) 0.10 0.05 0.10 0.08 0.10
Average cost local call (3 min) 0.10 0.05 0.10 0.08 0.10
Long-distance calls
– less than 25 km 0.19 0.05 0.13 0.11 0.16
– 25-30 0.19 0.05 0.13 0.11 0.16
– 30-50 0.19 0.05 0.16 0.11 0.16
– 50-100 0.19 0.05 0.19 0.11 0.16
– 100-150 0.19 0.19 0.11 0.32
– 150-200 0.32 0.19 0.17 0.32
– 200-300 0.32 0.19 0.17 0.48
– 300-400 0.32 0.19 0.17 0.48
– greater than 400 km 0.32 0.19 0.17 0.58
Off-peak rate reduction none none 50% 50% none
International
Madagascar 1.9 1.0 0.6 2.9
Mauritius 1.9 1.1 2.3 1.9
France 2.4 1.4 1.4 1.9
Senegal 3.6 1.9 1.0 1.5
Mauritania 3.6 1.9 1.0 0.6
United Kingdom 3.6 1.4 0.3 1.9 1.9
United States 3.6 1.7 0.3 2.3 1.5
South Africa 2.4 1.4 1.0 2.3 3.9
Average 3.0 1.7 0.8 1.6 2.2
The network connection charge is extremely high in Mauritania, more than double the charge in the next
most expensive country (on account of the very high guarantee deposit).
The price of local calls is similar to the price in other countries.
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The price of long-distance calls is high, particularly for the longest distances. This is explained to a large
extent by the costs associated with national networks (ARABSAT and investment in DOMSAT). However,
the introduction of time segments (peak/off-peak rates) brings down the price of calls somewhat.
The price of international calls is in the high portion of the sample. Mauritania’s tariff grid is far higher than
the mean price for France Telecom. It is also more expensive, on average, than the tariff grids of the
operators in Senegal and Mauritius.
It is interesting to compare average price of OPT’s international minute with that of Telma, the operator in
Madagascar, which faces the same constraints in terms of national coverage and maintenance of the national
network. Like OPT, Telma utilizes a DOMSAT system to cover its territory. Despite a price reduction in
mid-1997, Telma’s average price is still far higher than OPT’s.
It is interesting to note that the tariff for calling the United States is the same as the tariff for calling Senegal.
The tariff to the United States is attractive.
A comparison of countries’ tariffs and accounting rates for the corresponding regions for the three main
correspondents gives the following results.
Table 3.10: Accounting rate/consumer price 1997
(in $US)
Region Country Consumer tariff Accounting rate Tariff/A.R.
America United States 1.5 1.70 90%
Europe France 1.9 1.10 173%
Africa Senegal 1.5 1.16 147%
It may be seen that the tariff for calls to the United States does not fully cover the accounting rate on that
relation. In the other direction, the consumer tariff changed in the United States for calls to Mauritania
($US 1.678) is very close to the accounting rate. However, this tariff is only $US 1.10 for some callback
operators.
The situation described above stems partly from changes in the Ouguiya/Dollar exchange rate
($US 1 = 140 UM in 1996, $US 1 = 165 UM in 1997).
____________________
8
Source ITU
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4 ESTIMATE OF COSTS FOR THE INTERNATIONAL TELEPHONE SERVICE
This section is closely related to the next section, the aim of which is to test scenarios for future
development of the international accounting system for international exchanges of traffic. A number of
scenarios take as the future target for international settlement rates the "price cap" system proposed by the
American regulator FCC in its Order No. 97-280 of 18 August 1997. It is thus worthwhile comparing the
settlement levels proposed by FCC with those which we shall calculate for Mauritania on the basis of
Sonatel’s accounts.
First, we shall briefly outline the methodology used by FCC and the results which it produces. We shall then
give our evaluation of costs for Mauritania and some considerations on the level of cross-subsidies between
the different telephone services.
4.1 FCC methodology and result
In August 1997, FCC published an order setting a price cap which American international telephone service
operators should not exceed in paying foreign operators for the termination of traffic from the United States.
To set this benchmark, FCC would have liked to use a calculation method based on long-range incremental
costs (TSLRIC), since economic theory holds that in a "totally" competitive market prices ultimately tend
towards incremental costs.
However, FCC was unable to use this method to set its benchmark, for lack of detailed data on foreign
operators required to calculate long-range incremental costs.
Therefore, FCC developed another method of estimating international settlement rates for a sample of
countries, called the tariffed components price methodology (TCP), based on ITU-T Recommendation
D.140. This Recommendation lays down guidelines concerning the cost elements to be taken into
consideration in determining settlement rates applicable to the international telephone service.
The TCP methodology endeavours to identify, for a given sample of countries, costs relating to the three
network components used to provide the international telephone service, namely:
1) international transmission;
2) international switching;
3) national extension.
The amounts calculated by FCC for components 1 and 3 are based on the foreign operators’ tariffs. The
portion of the tariff relating to the use of international transmission infrastructures is calculated on the basis
of the tariffs for leased links. The portion relating to the national extension is calculated on the basis of the
foreign operators’ tariffs for domestic calls. The portion relating to international switching is calculated on
the basis of the principles set forth in ITU-T Recommendation D.300 R, which is based upon the degree of
digitization of exchanges.
In order to take account of prevailing disparities in the level of economic development of the different
countries, FCC decided to set its benchmark for four categories of country:
1) low income: GDP/per capita $US 8 955.
Taking this approach, we end up, for each category of country, with an amount for the settlement rate which
American operators should pay foreign operators and the date on which the benchmark is to take effect.
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Table 4.1: FCC price cap
Category of country High income Upper middle Lower middle Low income
Price cap in $US/min 0.15 0.19 0.19 0.23
Date of introduction 1998 1999 2000 2001/2002
On the basis of a sample of countries classified according to their income category, FCC calculated the
mean of the three cost elements (international transmission, international switching and national extension)
for each category of country.
On the basis of the information available in FCC’s Order No. 97-280 of 18 August 1997, we have
reconstituted, for low-income countries, the costs of these three components required for the provision of
international telephony. The results are given in the table below.
Table 4.2: Benchmark for low-income countries
In US cents International International National Total
transmission switching extension
China 8.7 4.8 4.2 17.7
Egypt 10.4 4.8 2.0 17.2
Guyana 6.6 4.8 0.6 12.0
Haiti 8.6 4.8 17.0 30.4
Honduras 3.1 4.8 8.7 16.6
Kenya 25.5 4.8 12.3 42.6
India 8.1 4.8 18.3 31.2
Nicaragua 3.8 4.8 18.3 31.2
Pakistan 14.7 4.8 7.2 26.7
Viet Nam 9.3 4.8 10.6 24.7
Mean 10 5 8 2.3
Source: FCC Report and Order No. 97-280 dated 18 August 1997.
Mauritania is not referenced by FCC. Nevertheless, given the country’s development criteria, it should
undeniably be classified in the "low income" category 9.
In the section below, different approaches are used to attempt to determine for Mauritania the cost of the
three components of international traffic. These costs will then be compared with those proposed by FCC.
____________________
9
Refer to Appendix C: Classification of Economies, FCC Order No. 97-280 of 18 August 1997.
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4.2 Determination of costs for incoming international telecommunications in Mauritania
4.2.1 General comments on the methodology
When seeking to determine tariffs for telecommunication services (local, long-distance and international) set
up using infrastructure that may be shared by several services10 and entails fixed costs, the problem is to
identify economies of scale.
Research carried out on tariff principles for telecommunications offers different types of solutions.
• Tariffs may be set as a function of utility of the service. Since groups of users do not all display
the same service utility functions, prices can be increased on the least elastic segments in order to
cover fixed costs. This tariff method is called a Ramsey type method.
• Tariffs may be set using the fully distributed cost method. Under the FDC method, fixed costs
are distributed among the telephone services more or less arbitrarily.
• Tariffs may be set so as to charge for services according to the actual costs each entails (called
incremental costs) and cover fixed costs (network access) with a set fee independent of usage. This
is called a "cost-based" tariff method.
• Another system consists in basing tariffs on long-range incremental costs (TSLRIC) to which
is added a "reasonable share" of the costs common to several services. In a long-range calculation,
the company's costs can be assimilated to variable costs or disregarded. The cost to be calculated is
thus the additional cost which the company incurs in order to provide the service.
The Ramsey tariff method is difficult to apply without adequate data on user groups' utility functions, or at
least information on the price elasticity of their demand for services.
The long-range incremental cost method is apparently the most suitable for dynamic and competitive
markets. In its Order, FCC states that: "Most economists generally agree that competitive markets over the
long run tend to force prices towards incremental costs. In dynamic, competitive markets, firms take action
based not on embedded costs, but on relationship between market determined prices and forward-looking
costs. If market prices exceed forward-looking economist costs, new competitors will enter the market. As
new competitors enter the market, prices will be driven toward forward-looking incremental cost level."
This method requires a sound forecasting model. Without precise data on which to base traffic and cost
forecasts, however, it is extremely difficult to apply, and has therefore not been adopted in this study.
The following section shows the cost results obtained for the international telephone service in Mauritania,
using the fully distributed cost method and the method based on incremental costs.
4.2.2 Estimation of costs
The fully distributed cost method allocates all the direct costs of the services, plus a proportion of shared
fixed costs.
The incremental cost method prices a service solely on the basis of the direct costs of that service, and fixed
costs are covered by the subscription.
It may therefore be considered that the fully distributed cost method tends to subsidize network access costs,
which are borne by all the other services (local, long-distance, international).
We present two sets of results in which the level at which the other services subsidize network access varies
from 0% (incremental cost) to 100% (fully distributed cost).
4.2.3 Data used
On account of the lack of cost accounting and the fact that OPT continues to perform two functions
(telecommunication operator and post office), there is no simple way of determining the costs directly
____________________
10
In Mauritania, the international transit centres are used as national transit centre.
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MAURITANIA
attributable to international telephone services (international switching, international transmission and
national extension).
The problem is that the final accounts for the telecommunication function bears a significant share of the
costs of structures common to posts and telecommunications. Nevertheless, since the telecommunication
function is OPT’s main activity, this share is probably close to the costs that would be incurred by an
autonomous enterprise. The deficit on posts has therefore been disregarded for the purposes of the cost
study.
Costs associated with the telecommunication sector were allocated directly to the services concerned, when
such direct allocation was possible.
Costs common to both sectors were evaluated and then attributed according to a distribution determined by
the degree of utilization by the sector concerned (working unit). Similarly, appropriations for depreciation
and common provisions were recalculated and allocated to the services concerned. In the absence of more
precise analytical data (in particular for contributions to non-telecom depreciation), this distribution remains
somewhat theoretical. For remuneration of equity capital, we decided on a rate of return of 10% on fixed
assets, which can easily be allocated to the various telephone services.
From the information in our possession, we were able to determine the structure and volumes of incoming
and outgoing international traffic. Through an analysis of some national traffic observations and
comparisons with countries with similar consumption behaviours, we were able to evaluate:
• distribution of incoming international traffic throughout the country
• mean duration of local, long-distance and outgoing international calls.
These data were used to determine the cost of international services, which are set out in the table below.
Table 4.3: Cost of international services (per minute)
Components Incremental cost Distributed cost Benchmark
UM $US UM $US $US
International transmission 25 0.18 33 0.24 0.10
International switching 6 0.04 8 0.06 0.05
National extension 31 0.22 41 0.30 0.08
Cost per minute (in $US) 64 0.45 82 0.59 0.23
It should be noted that common post and telecommunication costs borne by the telecommunication sector
augment the cost per international minute by $US 0.03, which is incremental in comparison with other costs.
The costs of the network components used in the provision of international telephone services lie (according
to the network access cost subsidy rate used) between $US 0.45 and $US 0.59. This cost is far higher than
that determined under the benchmark advocated by FCC for countries in the low-income category.
The difference between the costs calculated above and the FCC benchmark stem from both the transmission
component (+80%) and the national extension (+175%). This difference is explained, for the first
component, by the lack of economies of scale (two international earth stations for 113 circuits in service),
while the high cost of the national extension is explained by the fact that subscribers are scattered far and
wide throughout the territory and by the magnitude of national transmission investment (DOMSAT).
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MAURITANIA
The cost of international transmission is similar to that of a country such as Kenya (cf. FCC benchmark); the
cost of the national extension is similar to that of a country like Madagascar (small number of subscribers,
extensive areas to be covered, DOMSAT national transmission system).
4.3 Cross-subsidies between the international and domestic services
A first approximation of the current level of cross-subsidies between services may be obtained by comparing
a breakdown of traffic with a breakdown of telephone income.
Table 4.4: Comparison between telephone income and traffic figures
% of total income % of total traffic
Connection 2.1%
Subscription 4.2%
Traffic 89.7%
– local 7.5% 63%
– long-distance 29% 14%
– outgoing international 53.2% 10%
International balance 3.8% 12%
Total 100% 100%
Local traffic, which accounts for nearly 63% of the traffic handled, generates barely 7.5% of income (on
account of the low price of local calls, recently set at 12 cents per 7 minute period). International traffic
accounts for over 57% of OPT's income, while representing around 22% of Mauritania's total traffic.
The table below shows, on the basis of the costs estimated above, that the international service generates a
surplus of the order of 46% of the income it generates. It is this surplus that constitutes the service's subsidy
for other OPT products (local and long-distance service, network access).
Table 4.5: Subsidy from international service
Net international income Transfer to other services
100% SURPLUS SUBSIDY
54% INTERNATIONAL COST
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MAURITANIA
5 FUTURE SCENARIOS FOR THE INTERNATIONAL ACCOUNTING RATE SYSTEM
5.1 Methodology and principles
The main purpose of all of the scenarios proposed here is to try to assess the impact that a significant decline
in accounting rates and/or a change in the way they are set would have on operators in terms of:
• loss of income;
• rebalancing their tariff grid;
• ability to sustain their development programme.
Modelling all the effects induced by a fall in accounting rate levels is a complex operation and requires
many items of data, some of which (cross-price elasticity, callback, refile...) are not available and have to be
estimated. The first measurements of callback have only just started.
In order to try to take into account the most important effects in developing scenarios with the data
available, the following hypotheses have been used.
Elasticity of demand in relation to the price of international calls:
One of the objectives sought by FCC in its proposal to reform the accounting rate system is to bring the
benefits of lower international tariffs to all consumers 11. In order to model the effects of lower accounting
rates, therefore, information is required on the elasticity of demand for international calls between the
different operators in relation to the prices they offer. This type of information is rare, and impossible to
obtain for all telephone operators. However, relatively recent studies offer some useful guidance.
Bewley and Fiebig (1988) demonstrated that, overall, a number of calls is rather inelastic in relation to price,
whereas call duration varies significantly as a function of price. In addition, this direct price elasticity may
vary according to subscriber anticipation of price. Acton and Vogelsang (1990) showed that there exists
(particularly in the United States) an interdependence between incoming calls, outgoing calls and call
externality. This elasticity is called cross-price elasticity.
In the simulation of the scenarios proposed below, only direct price elasticity has been simulated (call
duration varies as a function of price). It has been taken into account both for outgoing international traffic
from Mauritania and incoming international traffic to Mauritania, so as to simulate a general reduction in the
price of international communications everywhere.
Some studies have shown that demand elasticity in relation to the price of international calls in the United
States is between 0.9 and 0.8. In order to take account of the significant disparities in income between
inhabitants of the developing countries and those of other countries as well as different consumer habits, an
average figure (0.6) was taken, which constitutes a rather conservative hypotheses (0.5 for Mauritania; 0.7
for its correspondent countries).
Since this elasticity applies for variations in tariffs, we have assumed that Mauritania's correspondents
would reflect any reduction in accounting rates in their international tariffs. This hypothesis obviously has a
significant impact on projections of incoming traffic, in particular four years in which the accounting rate
declines sharply.
A reduction in international tariffs for outgoing traffic from Mauritania was determined according to the
constraints imposed by rebalancing of the tariff grid and maintaining and developing the national network
(including notably investments in GSM).
____________________
11
FCC Order §7: Accounting rate reform will allow consumers to receive higher quality service, more service
options and lower rates as accounting rates are reduced to a more cost-based value.
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Tariff rebalancing
OPT’s tariff grid is currently unbalanced. In the previous section of this study, the current level of cross-
subsidies between services is estimated. The subscription fee and the cost of a minute of local call are
subsidized to a large extent by the minute of national and international call.
To reflect this state of affairs, we have made tariffs progressively cost-oriented, while at the same time
allowing some cross-subsidies to remain. Given the very high cost of the national extension and the current
acute imbalance in the tariff grid, it will be necessary, for several years to come, for international calls to
finance part of the national network 12.
An international tariff grid was thus elaborated with this in mind. The following subsidies are maintained:
• Subscription charge subsidized by the other telephone services to the tune of 40%.
• Price of local calls subsidized by the price of international calls to the tune of 20%.
The target is, under these conditions, to balance the tariff grid by 2003.
Table 5.1: International tariff hypothesis
(in $US) Average tariff 1996 Average tariff 2003 Annual change
MU/$US 140 140
Tariff/minute 334 160 -7%
With these hypotheses, the following tariff rebalancing is achieved:
Table 5.2: Hypotheses for rebalancing income
1996 2003
Income from subscriptions 7% 19%
Income from calls 93% 81%
– National 37% 52%
– International 54% 29%
Total subscription + calls 100% 100%
(The above subscription income includes connection fees.)
Slower rebalancing of the tariff grid, for example by 2007, would result in international calls accounting for
a larger proportion of total income from calls (over 32%).
____________________
12
Such an obligation could apply to any future competitor as an obligation to contribute to universal service
development.
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Network development plan and investment financing policy
In 1997, there were just over 12 500 subscribers in Mauritania. The number of subscribers grew
considerably in 1997, with the opening of the domestic market and the final commercial and technical
implementation of the DOMSAT system, absorbing the waiting list. Smaller growth should however be
anticipated from now on.
Under the projection hypotheses taken, telephone density rises from 0.5% to 1% in 2003 (as a result of
lower costs and lower tariffs).
Account was taken of the programme for development of the GSM network and extension of the Nouakchott
and Nouadhibou exchanges.
Traffic development hypothesis
International traffic
In 1996, the volume of incoming international traffic was greater than that of outgoing traffic (only 70% of
incoming traffic is known in detail; traffic from correspondents other than the top three is estimated).
The small imbalance must not be allowed to obscure the fact that no international accounts are exchanged
among the majority of countries in the subregion. Thus, countries in the CFA area (including among others
Senegal13 and Côte d'Ivoire) and most of the Arab countries (except United Arab Emirates) do not exchange
international accounts (as if, in a way, the "sender keeps all" method is already applied). No provision was
made for any exchanges of accounts between these countries in the simulation. If accounts were exchanged,
this would increase the surplus balance in Mauritania's favour.
International traffic evolves according to natural growth, added to an elasticity effect of lower international
tariffs. Traffic with countries of the subregion should grow more than traffic with other countries of the
world.
No major imbalances are observed, except with the United States which carries 2.6 times more incoming
traffic than outgoing. France sends more traffic than it receives, unlike Spain, which has a positive balance
with Mauritania. In the traffic projection hypotheses, the directions of these imbalances are retained.
Outgoing and incoming international traffic was divided up into four areas (Europe, North America, Africa
and rest of the world), in order to take into account the unequal growth rates with the different countries.
Incoming international traffic is increasing on average by 10% a year for Europe, 12% for the United States
and the countries of the subregion. The evolution of incoming international traffic is identified in two
periods, 1997-2000 and 2001-2003, in order to take account of more significant growth (elasticity apart)
during the first period than in the second (when the growth rate falls by 2%).
Price elasticity effects have been added to natural traffic trends: elasticity effects are less marked in
Mauritania than for its correspondents (0.5 as against 0.7).
Domestic traffic
The increase in domestic traffic follows real growth in GDP. Long-distance traffic benefits from a price
elasticity effect, with the gradual rebalancing of the tariff grid.
It was assumed that traffic grows by 4-5% per year. At that rate, the telecommunication operating
income/GDP ratio is kept more or less constant (rising from 2.4 to 2.7% over six years).
Economic and demographic hypotheses
A medium growth hypothesis was adopted for GDP, assuming a real growth rate of 3.5% per year on
average over the period 1997-2003.
____________________
13
Some of the traffic with Senegal is however subject to exchanges of accounts.
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MAURITANIA
Controlling costs
Staffing and wage bill
The growth in OPT’s staffing levels has been calculated so that the lines/staff ratio is multiplied by a factor
of four over ten years (increase in productivity). The ratio currently stands at eighteen lines per staff
member. This hypothesis is necessary in order to keep the wage bill under control. It has been assumed that
the wage bill will grow on average by 1.5% more than inflation.
Purchases and supplies
Purchases and supplies represent 4% on average of total fixed costs.
Costs for use of the space segment
These costs are proportional to the rate of growth of the sum of outgoing and incoming international traffic,
less 2% to take account of improved circuit use stemming from increases in traffic and competition.
The operating cost of the DOMSAT system and possible additional investment to cope with the increase in
domestic traffic are proportional to national traffic growth.
Other charges
Other costs are considered to be under control, and their growth rate is set at the assumed level of inflation
(2.5% per year).
Shared costs with the postal network
It is necessary to highlight the magnitude of the share of general services common to both posts and
telecommunications. This share has been incorporated in the projection hypotheses, with the presumption
that possible separation of telecommunications and posts would improve the cost situation.
Subsidies for the postal sector
A possible subsidy to be paid by telecommunications to the new postal entity in the years following
separation has been included in the simulation in the form of a fixed outlay payable to the post office ($US 1
million per year). Such a subsidy is normal consideration when balance-sheets are separated, in order to
facilitate the gradual adjustment of postal operations during the first few financial years. Since the
separation process is currently being envisaged, this cost needs to be taken into account in the simulation.
5.2 Scenarios
5.2.1 Scenario A: FCC Benchmark
• Presentation of Scenario A
This scenario proposes an evolution of settlement rates such that the amount of accounting rates between
American operators and Mauritania meets the level set by the FCC benchmark (23 US cents per minute in
2003).
The 1996 level of settlement rates between the two countries stands at 85 cents per minute, which is low in
comparison with other countries of the same type. The difference in the two figures means that a 73%
reduction in settlement rates will be required over the projection period (17% per year).
The simulation of this scenario therefore proposes an across-the-board reduction of 17% per year for all
international destinations (no country should however go below $US 0.23). The settlement rates remain
symmetrical.
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Table 5.3: FCC benchmark scenario
Unit 1996 1997 1998 1999 2000 2001 2002 2003
TRAFFIC IN MINUTES
Outgoing international traffic 106 min 4.9 5.4 5.9 6.5 7.3 8.2 9.1 10.1
6
Incoming international traffic 10 min 6.1 6.8 7.6 8.5 9.6 11.0 12.3 13.7
Ratio incoming/outgoing 1.24 1.26 1.28 1.30 1.32 1.34 1.35 1.35
SETTLEMENT RATE
Settlement Rate Europe $US/min 1.03 0.85 0.71 0.59 0.49 0.40 0.34 0.28
Settlement Rate United States $US/min 0.85 0.71 0.59 0.49 0.40 0.33 0.28 0.23
Settlement Rate Africa $US/min 1.16 0.96 0.80 0.66 0.55 0.45 0.39 0.32
Settlement Rate rest of the world $US/min 1.49 1.24 1.03 0.85 0.71 0.59 0.49 0.40
FINANCIAL ACCOUNTS
Turnover 106 $US 23.1 25.1 26.7 28.8 31.5 34.4 37.7 41.9
6
Net profit 10 $US 6.5 7.5 8.2 7.3 8.2 5.4 7.1 10.2
International settlement balance 106 $US 0.7 0.77 0.77 0.75 0.74 0.71 0.67 0.63
% of net profit % 10.8 10.3 9.3% 10.3 9.0% 13.2 9.5% 6.1%
% % % %
Cash flow 106 $US 12.7 11.9 12.9 12.9 14.5 14.4 16.3 19.4
Long-term debt/permanent capital % 69% 57% 48% 45% 41% 47% 42% 36%
• Analysis of the results
Analysis of the evolution of settlement rates gives an idea of the impact of the reduction in the settlement
rate proposed by FCC. For the three main geographical areas accounting for nearly 80% of Mauritania’s
telephone relations, the reduction sought imposes a 73% reduction in settlement rates over five years. This
decline in all settlement rates results for some destinations in a situation close to the costs suggested by
FCC.
Outgoing international traffic, owing to the combined effect of natural traffic growth and lower international
tariffs (price elasticity), is multiplied by a factor of 2.1 between 1996 and 2003. In the period 1997-2003, the
decline in outgoing international tariffs from Mauritania resulting from the introduction of cost-oriented
tariffs serves to generate 8.1 million additional minutes. This evolution is identical for all the scenarios and
will not be repeated in the remainder of this study.
Incoming international traffic is multiplied by a factor of 2.3 between 1996 and 2003, attaining 13.7 million
minutes. The incoming/outgoing traffic ratio increases from 1.24 to 1.32.
Financial impact: In this scenario, the balance of international settlements falls progressively (cumulative
decline of 11%). However, price elasticity offsets considerably the decline in settlement rates (increased
difference between incoming and outgoing traffic).
One of the firm hypotheses adopted for the simulation is higher elasticity for incoming traffic (coefficient
0.7) than outgoing traffic (0.5). If incoming traffic evolved with lower elasticity (for example 0.6), the
international settlement balance would drop by 32%, representing a cumulative loss of 600 000 dollars
(equivalent to the surplus on the international settlement balance in 1996).
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Conversely, it may be anticipated that when foreign operators reflect the lower accounting rates in their
tariffs, this will increase the difference between their tariffs and OPT’s. More traffic should then be attracted
to callback, thereby redressing the international settlement balance to the detriment of locally collected
income.
Indebtedness rises by nearly 70% to 36% of permanent capital, which is an acceptable level given the
current situation.
• Conclusions
The faster growth of incoming international traffic as compared with outgoing international traffic almost
offsets the gradual reduction in settlement rates. The settlement rates nevertheless appear to be far removed
from real costs, as calculated above, leading to fears that OPT might end up subsidizing its incoming traffic.
The gap should however close gradually on account of gains in productivity.
In order to offset the loss of income on the settlement balance, one could think in terms of a lesser
rebalancing of the tariff grid. However, since this would increase the difference between OPT’s tariffs and
those of its correspondents, a considerable incentive to callback would result.
5.2.2 Scenario B1: 6% staged reduction
• Presentation of the scenario
This scenario proposes a straight-line annual 6% reduction in the amount of settlement rates.
Table 5.4: Scenario B1: 6% staged reduction
Unit 1996 1997 1998 1999 2000 2001 2002 2003
TRAFFIC IN MINUTES
Outgoing international traffic 106 min 4.9 5.4 5.9 6.5 7.3 8.2 9.1 10.1
6
Incoming international traffic 10 min 6.1 6.6 7.1 7.7 8.6 9.5 10.4 11.4
Radio incoming/outgoing 1.24 1.22 1.21 1.19 1.17 1.16 1.15 1.13
SETTLEMENT RATE
Settlement Rate Europe $US/min 1.03 0.97 0.91 0.85 0.80 0.76 0.71 0.67
Settlement Rate United States $US/min 0.85 0.80 0.75 0.71 0.66 0.62 0.59 0.55
Settlement Rate Africa $US/min 1.16 1.09 1.02 0.96 0.90 0.85 0.80 0.75
Settlement Rate rest of the world $US/min 1.49 1.40 1.31 1.23 1.16 1.09 1.03 0.96
FINANCIAL ACCOUNTS
Turnover 106 $US 23.1 25.1 26.7 28.8 31.5 34.5 37.8 42.1
6
Net profit 10 $US 6.5 7.5 8.2 7.3 8.2 9.3 7.7 10.2
International settlement balance 106 $US 0.7 0.71 0.67 0.61 0.56 0.50 0.43 0.34
% of net profit % 10.8 9.6% 8.1% 8.4% 6.9% 5.4% 5.6% 3.3%
%
Cash flow 106 $US 12.7 11.9 12.9 12.9 14.5 16.3 16.8 19.5
Long-term debt/permanent capital % 69% 57% 48% 45% 41% 38% 40% 35%
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• Analysis of results
Analysis of the evolution of settlement rates gives an idea of the impact of a staged reduction in settlement
rates. For the three main geographical areas which account for nearly 80% of Mauritania’s telephone
relations, this staged reduction imposes a 35% reduction in settlement rates over seven years.
With this gradual reduction, an settlement rate of $US 0.55 is obtained for the relation Mauritania - United
States and an average settlement rate of $US 0.67 for the relation Mauritania - Europe.
Incoming international traffic, owing to the combined effect of natural traffic growth and lower international
tariffs (price elasticity), is multiplied by a factor of 1.9 between 1996 and 2003. The incoming/outgoing
traffic ratio falls from 1.24 to 1.1. This situation, in which traffic tends to even out, necessarily results in a
fall in the surplus on the international settlement balance.
Financial impact: In this scenario, the balance of international settlements falls by 51%, from 0.7 to
0.34 million dollars.
With price elasticity, the incoming/outgoing traffic ratio cannot be maintained at a sufficiently high level to
keep income stable. The necessary rebalancing of Mauritania’s tariff grid results in a greater increase in
outgoing traffic than the increase generated by the much lower fall in settlement rates.
At the end of the simulation, the international settlement balance accounts for less than 1% of turnover. The
net loss on the settlement balance totals over 1 million dollars. Nevertheless, in comparison with the
previous scenario, the overall telecommunication accounts for Mauritania are slightly improved.
5.2.3 Scenario B2: 10% staged reduction
• Presentation of the scenario
This scenario proposes a straight-line annual 10% reduction in the amount of settlement rates. The 10%
reduction is applied to all the OPT’s international relations. In this scenario, operators remunerate each other
on the basis of the number of traffic units carried and settlement rates are symmetrical according to the
destinations.
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MAURITANIA
Table 5.5: Scenario B2: 10% staged reduction
Unit 1996 1997 1998 1999 2000 2001 2002 2003
TRAFFIC IN MINUTES
Outgoing international traffic 106 min 4.9 5.4 5.9 6.5 7.3 8.2 9.1 10.1
Incoming international traffic 106 min 6.1 6.6 7.3 8.0 9.0 10.0 11.1 12.2
Ratio incoming/outgoing 1.24 1.24 1.23 1.23 1.23 1.22 1.22 1.21
SETTLEMENT RATE
Settlement Rate Europe $US/min 1.03 0.93 0.83 0.75 0.68 0.61 0.55 0.49
Settlement Rate United States $US/min 0.85 0.77 0.69 0.62 0.56 0.50 0.45 0.41
Settlement Rate Africa $US/min 1.16 1.04 0.94 0.84 0.76 0.68 0.62 0.55
Settlement Rate rest of the world $US/min 1.49 1.34 1.20 1.08 0.98 0.88 0.79 0.71
FINANCIAL ACCOUNTS
Turnover 106 $US 23.1 25.1 26.7 28.8 31.5 34.5 37.8 42.1
6
Net profit 10 $US 6.5 7.5 8.2 7.3 8.2 9.3 7.7 10.3
International settlement balance 106 $US 0.7 0.74 0.72 0.69 0.67 0.65 0.61 0.56
% of net profit % 10.8 9.9% 8.7% 9.4% 8.1% 6.9% 7.9% 5.5%
%
Cash flow 106 $US 12.7 11.9 12.9 12.9 14.5 16.4 16.8 19.6
Long-term debt/permanent capital % 69% 57% 48% 45% 41% 38% 40% 35%
• Analysis of the results
Analysis of settlement rates: the settlement rate for relations with the European area ends up at $US 0.49,
and that for relations with the United States at $US 0.41.
Incoming international traffic is doubled between 1997 and 2003, attaining 12.2 million minutes.
In terms of financial impact, the fall in the international surplus is less acute than for the 6% scenario, since
incoming traffic benefits from the elasticity effect. The international settlement balance falls by 7%,
representing a cumulative loss of $US 300 000. The financial result is only slightly worse than in scenario
B1.
• Conclusion for scenarios B1 and B2
Given the quasi-equilibrium of incoming and outgoing traffic in 1996 (ratio of 1.3), the scenario involving a
staged reduction of settlement rates would result in a decline in the international settlement balance for the
Mauritanian operator. Nevertheless, total turnover and net profit are less severely affected than in scenario
A, on account of the smaller decline in settlement rates.
The very similar financial result in both scenarios clearly reflects the relatively small proportion that the
international settlement balance represents in OPT’s net turnover.
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5.2.4 Scenario C: Termination charge
• Presentation of the scenarios
The terminal share has been evaluated on the basis of the costs calculated in the previous section, using the
three components identified in ITU-T Recommendation D.140 (international switching, international
transmission, national extension). The scenarios which follow illustrate the application of an asymmetrical
accounting rate based on the costs of the different operators.
The amount of the terminal share, determined by the incremental cost method, is $US 0.49 per minute for
Mauritania. The scenarios which follow show two possible formulae for the termination charge scenario:
1) Application of the cost-based settlement rate from the first year, followed by a straight-line 2%
reduction to follow gains in productivity.
2) Regular reduction of terminal shares down to $US 0.49 in 2003 for Mauritania and the respective
benchmarks for its correspondents.
With respect to the rate applied by foreign operators on international traffic from Mauritania, it has been
assumed that countries in the high-income category should set the rate for incoming traffic at the FCC
benchmark ($US 0.15/minute). The rate for countries in the African area would be set on the same cost basis
as for Mauritania, and for countries in between the rate should be $US 0.19 (FCC benchmark for middle
income countries).
These settlement rates are introduced as from the first year in scenario C1 and then reduced by 2% per year
for the remainder of the projection; in scenario C2, they are applied at the end of the period, by staged
reduction.
• Scenario C1: Termination charge from year 1
Table 5.6: Termination charge scenario C1
Unit 1996 1997 1998 1999 2000 2001 2002 2003
TRAFFIC IN MINUTES
Outgoing international traffic 106 min 4.9 5.4 5.9 6.5 7.3 8.2 9.1 10.1
6
Incoming international traffic 10 min 6.1 7.5 8.0 8.6 9.5 10.4 11.3 12.2
Ratio incoming/outgoing 1.24 1.40 1.36 1.33 1.30 1.27 1.24 1.21
SETTLEMENT RATE
Settlement Rate Europe $US/min 1.03 0.49 0.48 0.46 0.45 0.43 0.42 0.41
Settlement Rate United States $US/min 0.85 0.49 0.48 0.46 0.45 0.43 0.42 0.41
Settlement Rate Africa $US/min 1.16 0.49 0.48 0.46 0.45 0.43 0.42 0.41
Settlement Rate rest of the world $US/min 1.49 0.49 0.48 0.46 0.45 0.43 0.42 0.41
FINANCIAL ACCOUNTS
Turnover 106 $US 23.1 25.9 27.6 29.8 32.7 35.8 39.3 43.7
6
Net profit 10 $US 6.5 8.3 9.1 8.2 9.3 10.6 9.1 11.8
International settlement balance 106 $US 0.7 1.55 1.58 1.61 1.69 1.77 1.82 1.88
% of net profit % 10.8 18.7 17.4 19.6 18.2 16.8 20.1 15.9
% % % % % % % %
Cash flow 106 $US 12.7 12.7 13.8 13.8 15.6 17.6 18.2 21.1
Long-term debt/permanent capital % 69% 56% 47% 43% 39% 36% 38% 33%
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• Analysis of the results
Analysis of settlement rates: the incoming terminal share for Mauritania falls from $US 0.49 to $US 0.41
over the period. For its correspondents, it falls from $US 0.15 to $US 0.12 in the developed countries,
$US 0.19 to $US 0.15 in the intermediate countries, and $US 0.49 to $US 0.41 in African countries.
Analysis of incoming traffic: incoming traffic is multiplied by a factor of 1.9 over the period, totalling 12.2
million minutes in 2003.
Financial impact: the introduction of an asymmetrical accounting rate automatically increases the operator’s
revenue (on account of the incoming/outgoing traffic balance).
The international settlement balance is multiplied by a factor of 2.7, representing a cumulative gain of
$US 7 million (the share of the international settlement balance in OPT’s turnover increases from 3.5% to
over 6% of turnover in the year 2000).
This evolution of settlement rates increases the surplus on the international settlement balance by creating a
sharply asymmetric situation from the first year of projection (with a 75/25 ratio in Mauritania’s favour).
This result needs to be tempered, however: if foreign operators were to offset the loss in income resulting
from the decline in their incoming termination charges by a smaller reduction in their tariffs, the
international settlement balance would be reduced. We note however that the gross margin (tariff minus
Mauritania’s settlement rate) which they currently receive far exceeds the cost estimated by FCC. There is
thus significant latitude for a reduction in their tariffs.
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MAURITANIA
• Scenario C2: Termination charge in year 7
Table 5.7: Termination charge scenario C2
Unit 1996 1997 1998 1999 2000 2001 2002 2003
TRAFFIC IN MINUTES
Outgoing international traffic 106 min 4.9 5.4 5.9 6.5 7.3 8.2 9.1 10.1
6
Incoming international traffic 10 min 6.1 6.6 7.2 7.9 8.8 10.0 11.1 12.4
Ratio incoming/outgoing 1.24 1.23 1.22 1.21 1.21 1.22 1.22 1.23
SETTLEMENT RATE
Settlement Rate Europe $US/min 1.03 0.95 0.88 0.80 0.72 0.64 0.57 0.49
Settlement Rate United States $US/min 0.85 0.80 0.75 0.70 0.64 0.59 0.54 0.49
Settlement Rate Africa $US/min 1.16 1.06 0.97 0.87 0.78 0.68 0.59 0.49
Settlement Rate rest of the world $US/min 1.49 1.34 1.20 1.06 0.92 0.77 0.63 0.49
FINANCIAL ACCOUNTS
Turnover 106 $US 23.1 25.3 27.2 29.5 32.5 35.9 39.5 44.3
Net profit 106 $US 6.5 7.7 8.6 8.0 9.1 10.6 9.3 12.3
6
International settlement balance 10 $US 0.7 0.86 0.99 1.15 1.37 1.64 1.94 2.31
% of net profit %
10.8% 11.3% 11.5% 14.4% 15.0% 15.5% 20.9% 18.7%
Cash flow 106 $US 12.7 12.1 13.3 13.5 15.5 17.6 18.4 21.6
Long-term debt/permanent capital %
69% 57% 48% 44% 40% 36% 38% 33%
• Analysis of the results
Analysis of the evolution of settlement rates: the cost-orientation of settlement rates is gradual and spread
over the whole simulation period. The amount of average settlement rates evolves as follows.
Table 5.8: Average Settlement Rates
Settlement rates paid Settlement rates paid
out by Mauritania out by
correspondents
Europe -82% -52%
United States -82% -32%
Africa -47% -47%
Other countries -87% -67%
The gradual cost-orientation of settlement rates results in a staged asymmetry, from a ratio of 52/48 to 75/25
in Mauritania’s favour with respect to its corespondents in the developed countries.
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MAURITANIA
Incoming international traffic
Incoming international traffic should double between 1997 and 2003.
Financial impact
Lower elasticity for incoming traffic is offset to a very large extent by the measured reduction in accounting
rates. Income from the international settlement balance is tripled. The international settlement balance
accounts for over 5% of turnover at the end of the period. In these circumstances, an additional cumulative
sum of over $US 5 million would be generated (which, after all, represents an extra year of net profit).
• Conclusion for scenarios C1 and C2
Moving accounting rates towards the Mauritanian operator’s real costs would generate a significant surplus
on the international settlement balance (if the accounting rate were set at $US 0.49 per minute). This
imbalance is an ideal situation for the operator, maximizing international settlement income. According to
the scenario, the cumulative gain would be between 5 and 7 million dollars.
Overall, OPT’s turnover and profit resulting from these scenarios are better than before, since incoming
traffic flows are increased thanks to a significant reduction in Mauritania’s settlement rate while
Mauritania’s outpayments are also reduced.
5.2.5 Scenario D1: Very low settlement rates
• Presentation of the scenario
This scenario simulates the impact of the introduction of very low settlement rates akin to interconnection
charges. The simulation assumes settlement rates between the United States and Mauritania to be
symmetrical and cut to $US 0.08.
It provides a simulation of the discontinuation of bilateral negotiations for determining the amounts of
settlement rates. To take account of the sudden nature of the discontinuation of negotiations, it is assumed
that the settlement rates between North America and Mauritania plummet to $US 0.08 in 1999.
The hypothesis of discontinuation of bilateral negotiations has been extended to all international relations.
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MAURITANIA
Table 5.9: Very low rates scenario
Unit 1996 1997 1998 1999 2000 2001 2002 2003
TRAFFIC IN MINUTES
Outgoing international traffic 106 min 4.9 5.4 6.0 6.6 7.4 8.4 9.3 10.1
Incoming international traffic 106 min 6.1 7.0 8.4 10.7 11.7 12.7 13.6 14.6
Ratio incoming/outgoing 1.24 1.31 1.41 1.63 1.57 1.52 1.46 1.41
SETTLEMENT RATE
Settlement Rate Europe $US/min 1.03 0.72 0.41 0.08 0.08 0.08 0.08 0.08
Settlement Rate United States $US/min 0.85 0.59 0.34 0.08 0.08 0.08 0.08 0.08
Settlement Rate Africa $US/min 1.16 0.81 0.46 0.08 0.08 0.08 0.08 0.08
Settlement Rate rest of the world $US/min 1.49 1.04 0.59 0.08 0.08 0.08 0.08 0.08
FINANCIAL ACCOUNTS
Turnover 106 $US 23.1 25.1 26.6 28.2 30.8 33.8 37.0 41.3
6
Net profit 10 $US 6.5 7.5 8.1 6.7 3.1 4.3 6.6 9.8
6
International settlement balance 10 $US 0.7 0.79 0.70 0.23 0.23 0.23 0.22 0.22
% of net profit 10.8 % 10.5 8.6% 3.3% 7.4% 5.4% 3.4% 2.2%
% %
Cash flow 106 $US 12.7 11.9 12.8 12.3 11.5 13.3 15.7 18.9
Long-term debt/permanent capital 69%% 57% 48% 45% 52% 50% 44% 38%
• Analysis of the results
Analysis of the evolution of accounting rates: all settlement rates fall by 91 - 95% in three years, down to
$US 0.08.
Incoming international traffic, owing to the combined effect of natural traffic growth and lower international
tariffs (price elasticity), is multiplied by a factor of 2.4 between 1996 and 2003, rising to 14.6 million
minutes.
In terms of traffic rebalancing, the incoming/outgoing international traffic ratio rises from 1.24 in 1996 to
1.42 in 2003.
Financial impact: in this scenario, the international settlement balance falls between 1996 and 2003 by 70%,
resulting in a cumulative net loss of $US 2.4 million (representing 3.5 times income on the 1996 balance).
The Mauritanian operator could withstand this level of loss. The long-term debt/permanent capital ratio
stands at around 40% at the end of the period, which is still a high level of indebtedness.
• Conclusion for scenario D1
The big risk in this scenario is probable proliferation of call-back. Since the Mauritanian operator cannot
reduce its tariffs significantly over such a short period, there would probably be a substantial increase in the
difference between the OPT’s tariff grid and that of its correspondents. In these circumstances, an increase in
call-back is inevitable (it is unlikely that OPT would be able to prevent all call-back, just as it is unlikely
40
MAURITANIA
that Mauritanian users will refrain from taking advantage of this practice if the difference in price is
sufficiently big).
The table below gives an estimate of losses on cumulative net profit in the case of diversion of traffic
through call-back.
Table 5.10: Effect of call-back on income ($US millions)
% of traffic 1996 1997 1998 1999 2000 2001 2002 2003 Cumulative
through call-back loss
0% 6.5 7.5 8.1 6.7 3.1 4.3 6.6 9.8
10% 6.5 7.2 7.7 6.0 2.4 3.6 5.9 9.1 4.1
20% 6.5 7.0 7.2 5.3 1.7 2.9 5.2 8.4 8.3
30% 6.5 6.7 6.8 4.6 0.9 2.2 4.5 7.8 12.6
5.2.6 Scenario D2: Sender keeps all
• Presentation of the scenario
This scenario proposes an extreme situation, in which there is no longer any exchange of international
accounts (as is currently the case for some traffic with Senegal, Côte d'Ivoire and a number of Arab
countries).
Table 5.11: Sender keeps all scenario
Unit 1996 1997 1998 1999 2000 2001 2002 2003
TRAFFIC IN MINUTES
Outgoing international traffic 106 min 4.9 5.4 6.0 6.6 7.4 8.4 9.3 10.1
Incoming international traffic 106 min 6.1 8.4 8.9 9.5 10.3 11.3 12.1 13.0
Ratio incoming/outgoing 1.24 1.56 1.50 1.44 1.39 1.35 1.30 1.25
SETTLEMENT RATE
Settlement Rate Europe $US/min 1.03 - - - - - - -
Settlement Rate United States $US/min 0.85 - - - - - - -
Settlement Rate Africa $US/min 1.16 - - - - - - -
Settlement Rate rest of the world $US/min 1.49 - - - - - - -
FINANCIAL ACCOUNTS
Turnover 106 $US 23.1 24.3 25.9 27.9 30.6 33.5 36.7 41.0
Net profit 106 $US 6.5 6.7 7.5 6.5 7.4 4.5 6.2 9.4
International settlement balance 106 $US 0.7
% of net profit % 10.8
%
Cash flow 106 $US 12.7 11.2 12.2 12.1 13.7 13.5 15.4 18.6
Long-term debt/permanent capital % 69% 58% 49% 46% 43% 49% 44% 38%
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MAURITANIA
• Analysis of the results
Incoming international traffic, owing to the combined effect of natural traffic growth and lower international
tariffs (price elasticity), is multiplied by a factor of 2.1 between 1996 and 2003.
In terms of traffic rebalancing, the incoming/outgoing international traffic ratio rises from 1.24 in 1996 to
1.25 in 2003, after a traffic peak in 1997 caused by the effect of price elasticity (over 50% increase in
traffic).
Financial impact: in this scenario, there is no longer any international settlement income.
The conclusions are the same as for the previous scenario. Given the relative importance of the international
settlement balance for OPT’s income, there is little effect on net profit. In such circumstances, the overriding
problem is how much traffic will be diverted through call-back.
• Conclusions for scenarios D1 and D2
Abolishing exchanges of international accounts or maintaining a practically zero settlement rate has in
practice little direct impact on the Mauritanian operator’s net profit (the settlement balance surplus currently
accounts for only around 3.2% of net turnover).
The indirect effects of the diversion of outgoing traffic through call-back are much more of a problem.
National development constraints are such that the national network has to be financed by the international
network, which therefore has to be subsidized. We have seen that the cost of a minute of international call is
extremely high in Mauritania. It is not possible for the Mauritanian operator to reduce the price of a minute
of international call in the same proportions as its correspondents.
The big difference in tariffs which results would lead to a net decline in the operator’s income on account of
the phenomenon of call-back.
The impact of this would be exacerbated by the fact that OPT would be obliged to make investments to
route this incoming traffic, without any compensation since it would be insufficiently remunerated or even
not at all. That would in a way be tantamount to OPT having to subsidize the routing of traffic from third
countries, including traffic "stolen" from it by call-back operators.
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6 CONCLUSIONS
6.1 The traditional mechanism for setting tariffs no longer works
The above study highlights two types of distortions:
• The actual costs of routing incoming traffic are much lower than settlement rates. It should be
noted that in the current symmetrical system, the difference is greater in the developed countries
than in the developing countries.
• Public tariffs practised by operators in the developed countries, in particular where competition is
at play, do not follow the classical rule:
Collection charge = K* (total settlement rates).
In fact, such tariffs are calculated more on the basis of:
Collection charge = cost of the outgoing section + accounting rate of other operators.
It is possible that these tariffs also implicitly include the surplus generated on settlement rates received for
incoming traffic to these operators (which are higher than routing costs).
The resulting asymmetry of tariffs contribute to exacerbating the imbalance in the amounts of international
settlements and encouraging callback. While it is logical for developed country operators to try and reduce
this imbalance, in order to cut down their outpayments, it would seem that the reduction in payments to
correspondence tends to be largely offset by the growth in traffic which results from lower tariffs.
6.2 Case of Mauritania: Low dependence on international settlement balances, high routing costs
In the case of Mauritania, we see that the result of the simulation is highly sensitive to elasticity levels. This
is due to the present small difference between incoming and outgoing traffic (ratio currently 1.2). This
means that Mauritania's OPT is not very dependent on international settlement balances, which generate
only 3.2 % of its net turnover (1996 data). Nevertheless, the difference between outgoing and incoming
traffic is tending to grow as the years go by.
According to the calculation method used, the cost of routing international calls stands at between 45 and 60
cents per minute, on account of the high cost of the national extension. Mauritania would thus be
particularly hard hit by the introduction of settlement rates calculated on the basis of the performances of
countries with much more dense networks.
Moreover, there are great imbalances in the tariffs applied in Mauritania: international income covers the
deficit on local and long-distance services. Accordingly, the introduction of new rules has to be done on the
basis of a gradual rebalancing of tariffs.
This gradual introduction is necessary on account of the prevailing local economic and social context.
Mauritania would not be in a position to reduce its tariffs as quickly as its correspondents in the event of a
reduction in settlement rates.
Finally, even if Mauritania only makes a small profit on international settlements, the balance is labelled in
hard currency, which is important in a country whose currency is not convertible.
Thus, the contribution from international income will remain valuable for OPT, which has to continue the
costly exercise of establishing its national network and repay a debt in hard currency (exchange rate
fluctuations can cause significant exchange rate loses).
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6.3 Summary of the simulations
Table 6.1: Summary of results, for 2003
1996 FCC Staged Staged Termination Very Sender
Benchmark reduction reduction charge low keeps all
6% 10% rates
TRAFFIC (millions of minutes
Outgoing traffic 4.9 10.1 10.1 10.1 10.1 10.1 10.1
Incoming traffic 6.1 13.7 11.4 12.2 12.2 14.2 13
Settlement Rate - United States ($US)
Received by Mauritania 0.85 0.23 0.55 0.41 0.49 0.08 0
Paid by Mauritania 0.85 0.23 0.55 0.41 0.15 0.08 0
Settlement Rate - Europe ($US)
Received by Mauritania 1.03 0.28 0.67 0.49 0.49 0.08 0
Paid by Mauritania 1.03 0.28 0.67 0.49 0.15 0.08 0
Settlement Rate - Africa ($US)
Received by Mauritania 1.16 0.32 0.75 0.55 0.49 0.08 0
Paid by Mauritania 1.16 0.32 0.75 0.55 0.49 0.08 0
CUMULATIVE BALANCE
Millions $US 5.6(*) 5.2 - 5.9(**) 5 5.7 11 3.4 0
CUMULATIVE TURNOVER
Millions $US 249 249 249 257 247 244
(*) projection as for 1996 profit
(**) according to elasticity for incoming traffic
The above simulations show that a fast decline in accounting rates (subject to the effect of elasticity) does
not necessarily result in a proportional reduction in the operator’s income. The perverse effect of this decline
in fact resides in the increased risk of call-back which, on the contrary, would result in a sharp loss of
income for Mauritania (the Mauritanian operator’s income depends very strongly on income from billed
international traffic). Given its rigid income structure, any adjustment of OPT’s international tariffs will
have to be gradual.
In these circumstances, there will be an increased danger of call-back if foreign correspondents’ tariffs fell
very rapidly. The radical sender keeps all and very low termination charge scenarios illustrate this situation.
A more gradual reduction in accounting great shares would help to maintain the Mauritanian’s operator’s
income at a high level and facilitate its transition towards to a rebalanced tariff grid.
Nevertheless, symmetrical settlement rates are not justified by the cost structure, as developed country and
developing country operators’ costs are asymmetrical.
For this reason, scenarios C1 and C2 seem to be more consistent with economic reality and more likely to
provide a lasting framework for future international exchanges.
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6.4 Proposal
Determining a termination charge for each country is a complex task requiring the elaboration of a
methodology acceptable to all the countries involved.
Beyond a simple cost evaluation, it is necessary to determine the proportion of national network
development costs that should be borne by incoming international traffic. To our mind, it is fully justifiable
that correspondent operators should contribute to network development, since this development constitutes
not only the priority mission but also the main financial liability of developing country operators.
It would be desirable for this task to be carried out under the auspices of ITU, in order to guarantee that all
the operators participate. The aim should be to develop an objective method that can be applied by all the
operators and which takes account of changes in the various factors through time, in order to avoid
establishing another rigid system.
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