While the mobile quality reports released yesterday by SA's telecoms regulator, the Independent Communications Authority of SA (ICASA), represents an effort to resolve the country's lingering connectivity problems, the lack of capacity and clarity on methodology renders the reports largely ineffective - and the authority toothless.
Under a cloud of consumer complaints about the quality of SA's mobile networks at large, quality of service (QoS) reports have finally been released by ICASA, after a two-year lull.
ICASA spokesperson Paseka Maleka says, while the authority is still compelled to ensure operators meet certain standards, ICASA does not have the capacity to institute punitive measures, and an agreed measurement methodology has yet to be finalised.
"Right now we don't have the capacity and so we are conducting drive tests. We will continue to release QoS reports because we still have the obligation [to do so]."
Operator objections
In 2009, ICASA's End-User and Subscriber Service Charter was released, prescribing the minimum standard for network quality among SA's telecoms operators, with a view to improvement. At the time, the authority indicated it would publish quality of service reports every three months, but this did not happen.
In 2011, when ICASA published the last report SA would see for the next two years, SA's three largest operators - Vodacom, MTN and Cell C - were found lacking. All three, according to ICASA, failed to meet the minimum requirements for call set-up success rate (CSSR) and dropped call rate (DCR).
The operators subsequently raised queries about the methodology adopted in ICASA's quality of service tests, and the regulator agreed to hold off publishing any further results until a methodology report was finalised.
Toothless watchdog?
According to the 2009 charter, mobile operators (as well as other ECNS licensees) would face heavy fines for poor network standards.
ICASA's latest QoS reports show that, when it comes to CSSR, Vodacom failed to meet the prescribed target in the Eastern Cape region, while both MTN and Cell C failed to meet the targets in the Western Cape. DCR results show Vodacom and Cell C fall short of targets in the KwaZulu-Natal (KZN) region.
But - at least for now - the reports remain ink on paper until such time that ICASA has the mandate and ability to hold operators accountable for what it deems shortcomings within their networks.
ICASA says the purpose of publishing QoS reports is to identify defects in the services offered by the three major mobile operators, and thereby promote redress in the public interest. "It is hoped that, in future, when the authority has a more substantial budget and requisite monitoring equipment, it will be able to provide a full view of consumer experience of the services offered by mobile operators and thereafter refer matters of non-compliance to the Complaints and Compliance Committee (CCC)."
Role models
Meanwhile, other African countries have seen harsh measures instituted by their respective regulators turn out positive results in terms of network improvement.
A case in point is MTN Ghana, which was recently ordered not to acquire any more subscribers, due to the sudden deterioration of its network quality. In December, the state communications regulator issued an official directive to the subsidiary (one of MTN's largest after Nigeria, Iran and SA) "to cease selling and/or adding new SIM cards" on its network.
By the end of January, the operator had improved its services enough to convince the regulator, and the ban was lifted.
IDC analyst Spiwe Chireka says SA would do well to take a page out of other African countries' books.
"There have been instances with operators in countries like Ghana, Kenya and Nigeria, where the regulators have done QoS reports and sanctioned operators not to add any subscribers or offer any more promotions until their problems had been sorted out.
"MTN Nigeria, for example, was sanctioned twice. This hit the operator hard, and they were forced to act quickly. And you know what, within three months they had sorted out their issues."
Chireka says, while she understands what ICASA is trying to do in terms of its obligations to the consumer, "for crying out loud, they must just do it right". She says finalising the methodology in agreement with the operators is a vital step if the reports are to yield any tangible and positive results.
She says it would be understandable if operators contest findings, considering the methodology of the reports is not finalised.
Maleka says ICASA is aware of what other countries are doing, and the body does consider how they are dealing with their issues, but cannot as yet follow their lead, due to capacity and legal constraints.
Chireka points out that one of the issues on communications minister Dina Pule's plate, is the review and amendment of the ICASA Act of 2000. "It will be interesting to see if ICASA will be given the power to take harsher measures against operators who fail to live up to [the requisite standards]."
Consumer benefit
Chireka acknowledges that the reports can, however, act as a guide for consumers when deciding on which service provider will best serve their needs.
Dominic Cull, owner of Ellipsis Regulatory Solutions, says ICASA needs to be recognised at the very least for doing something. "Monitoring of QoS has to start somewhere and they explicitly recognise that due to their own limitations and the rather argumentative or litigious nature of the mobile networks, this is not by any means a comprehensive report."
Cull says the value of the QoS reports as a standalone is limited, "although it will no doubt elicit some strong reactions", but it may have greater import as the start of a process.
He says consumer complaints will inevitably linger, amid infrastructure issues, burgeoning demand and a lack of spectrum. "With the rapid increase in data load on the mobile networks there will be QoS challenges for some time, and difficulties around infrastructure (both in terms of legal impediments and consumer opposition) are a major cause.
"It must also be borne in mind that networks of this size will and do experience difficulties as a matter of course."
Maleka says the authority's reports do bear the end-user in mind. "The reports also assist the operators as we show them where the shortfalls in their networks are so that they can address the specific problems. At the end of the day, consumers must have the power to choose which network they want based on the performance of each network. The reports are there to benefit the consumer."
Operator reaction
While MTN had not responded by the time of publication, its rival Vodacom says it is approaching ICASA "to better understand their methodology and to ask for details of the routes used so that we can investigate further".
The operator, SA's biggest, says it does extensive drive testing and network monitoring across the country. "Our own results over the past 12 months show a call setup success rate in the Eastern Cape of over 99% and a dropped call rate in KZN of well below 1%, both of which are considerably ahead of the targets set by ICASA.
"Since we're monitoring on an ongoing basis, any issues that do come up are tackled straight away."
Cell C says it will investigate the reports "and take any steps that may be necessary to improve our QoS in the areas indicated".
Telkom Mobile has not historically been included in the monitoring of quality of service levels by ICASA, but is set to be included in future test samples once it has increased its mobile coverage.
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