The Committee appreciates the Taiwan authorities’ hard work in driving the introduction and development of Taiwan’s domestic 5G ecosystem, as well as its efforts to create a reasonable regulatory environment for Taiwan’s increasingly diversified media services industry to flourish.
At the same time, business activities in the ever-changing global economy have been accelerated by digitalization and technological innovation. The speed of change has often created friction between digital industries, traditional industries, and the Taiwan authorities. The Committee expects the upcoming Ministry of Digital Development to help reconcile some of those differences by becoming a true champion of Taiwan’s digital transformation with supporting mechanisms or rewards systems as encouragement for digital innovation, by drawing on experiences of reputable businesses elsewhere to support its operations in Taiwan, and by committing to open communication with stakeholders (See the Digital Economy Committee section).
We offer the following suggestions as ways to enhance those efforts and ensure that industry can continue to innovate, foster Taiwan’s digital transformation, and provide the highest quality of service to customers.
Suggestion 1: Promote a healthy and robust environment for 5G development in Taiwan.
Countries across the world continue to improve their telecommunications environment, allowing industries to upgrade existing services and assist in bringing about digital transformation. Advanced countries are accelerating the development of 5G, an increasingly mainstream technology. For example, South Korea completed auctions for 5G spectrum in 2018, and the following year its government announced the “5G+ Strategy” aimed at creating new 5G-related industries and services. Most significantly, Korea’s government has adjusted regulations and increased investment incentives for telecom operators in order to promote 5G commercialization.
Taiwan’s government in 2016 introduced the Digital Nation & Innovative Economy Development Program (DIGI+), as well as other ICT-related policy initiatives. Its vision is to develop an environment that encourages Taiwan’s telecommunications and broadcasting industry to move toward digital transformation, of which a major facet is 5G adoption and expansion. However, telecom operators have suffered from exorbitantly high 5G spectrum costs and difficulties related to the deployment and construction of their respective 5G networks. As a result, 5G development in Taiwan has been slower than in other advanced countries.
Taking into account recent international trends and the practical needs of Taiwan’s telecommunications industry, we propose the following policy suggestions. We sincerely hope that the government will take them into consideration and enable the telecommunications industry to take a leading role in Taiwan’s digital transformation.
1.1 Accelerate the development of the digital economy: We suggest that the proposed Ministry of Digital Development (MODD) establish a system of rewards and incentives to encourage development of the telecom industry. To ensure that sufficient resources are available for that system to be successful, we recommend that it be given at least as large a budget as the Executive Yuan National Science and Technology Development Fund.
1.2 Create a level playing field: Taiwan’s telecom operators have long operated in a highly regulated environment. In the interest of fairness, market newcomers such as foreign service-providers of 5G or non-terrestrial networks (NTN) in Taiwan and local businesses deploying private networks (or Non-Public Networks) should be required to abide by the same regulations as Taiwan telecom operators with regard to license applications, national security, information security, lawful interception, consumer protection, etc.
1.3 Incentivize innovation: The life cycle of communications technologies is often 10 years or longer, yet innovation continues even after that life cycle ends. In order to encourage the development of innovative new services by telecommunications companies, including those related to 5G, we reiterate our request from last year’s White Paper that the government amend the Statute for Industrial Innovation and its related regulations to double the allowable period for applying for tax deductions on investments to 10 years and increasing the tax credit by 10 times to NT$10 billion to reflect current needs in the Taiwan market.
1.4 Improve the telecommunications environment: The government could help drive the development of 5G by reducing the investment costs shouldered by the telecommunications industry. In particular, it could decrease 4G frequency usage fees and waive such fees for 5G altogether. Furthermore, we recommend broadening the provisions of the Act for Promotion of Private Participation in Infrastructure Projects, the Statute for Encouragement of Private Participation in Transportation Infrastructure Projects, and other related regulations to extend the benefits of tax relief and concessional financing to telecom operators. In addition, we urge the government to amend the Electricity Act to enable telecom operators engaging in projects related to public infrastructure or aiding underprivileged groups to receive subsidies for electricity usage.
1.5 Reduce barriers to building infrastructure: Refer to the experience of countries such as Japan in formulating a set of common rules for how the central and local governments may make use of public buildings and other facilities, such as streetlights, traffic lights, electricity poles, and other equipment, for building out 5G networks. We also urge establishment of a government agency tasked with ensuring coordination on 5G policy across the central and local levels. This agency, together with a set of clear and consistent application procedures and fee-charging standards, would help ensure that obstacles to 5G network construction are quickly and effectively resolved.
1.6 Refrain from imposing regulatory restrictions on RAN equipment. As network operators worldwide invest in the deployment of 5G, there is a growing concern that a shortage of supplier options, particularly in the Radio Access Network (RAN) sphere, could leave global network operators with either limited options or sub-standard equipment to build their future network infrastructure. Potential security concerns are also at issue.
In this regard, it is vital to ensure a diverse, innovative and competitive O-RAN over the long term. To leverage industry leadership and competitive market conditions to drive innovation in the most efficient way possible, we encourage the government to engage in regular dialogue with industry to share best practices.
1.7 Refrain from mandating specific technological solutions. The concerns here are similar to those in 1.6 above. While we believe that governments should encourage O-RAN, the technology is still nascent, and different solutions may be appropriate depending upon the use case. Therefore, governments should avoid mandates or set-aside arrangements for O-RAN or any other network solution. Instead, it can incentivize the use of such technology to ensure its future adoption and long-term success.
Suggestion 2: Amend regulations on cable TV to allow it to remain competitive.
Today’s media marketplace encompasses multiple platforms, providing more ways to access and enjoy content than ever before. Broadcast television is increasingly shifting toward digital formats, and 138 countries now have over-the-top (OTT) video markets. The number of OTT users worldwide is projected to grow to over 650 million by 2021; global OTT video revenues are expected to reach US$129 billion by 2023. Given this trend, consumers are increasingly demanding services tailored to their individual preferences. New technologies, the increasing adoption of various devices, and heightened data usage have led consumers to expect quality, convenience, and mobility from content services.
These demand and supply-side developments increase competition in the media sector. In Taiwan, cable TV no longer dominates the market, since IPTV and OTT have provided an alternative for consumers to enjoy content on demand.
While the media services environment has evolved significantly, cable TV regulations remain heavy and unchanged. We encourage the NCC to consider the following suggestions:
- Relax regulatory requirements for cable TV. Legacy regulations imposed on cable TV are no longer suitable for the current market, and they disadvantage cable TV operators in competing with other content service providers. We welcome the NCC’s decision to regulate OTT services with a “light touch” approach and hope the Commission can extend the same treatment to cable TV services. We urge the NCC to refrain from imposing local content investment requirements on international audio-visual service providers in Taiwan, including cable TV service providers.
- Discontinue the NCC’s review of cable TV rates. Such reviews are inconsistent with standard global practices, especially in markets such as Taiwan where there is sufficient market competition to guide cable TV pricing. One area of particular concern is the NCC’s consideration of whether to regulate license fees charged by content providers according to a ratings system. Another is the recent proposal to implement a channel dispute arbitration mechanism, which could impact the subscription fees charged by cable TV operators (currently an average of NT$530 per month). Such proposals could distort market supply and demand, affect production quality and investment in local productions, and ultimately impact the diversity of content options available to Taiwanese consumers.
- Lighten procedural requirements related to permit renewals and channel evaluations. The process and requirements associated with channel evaluations are burdensome, and the legitimate public policy objectives of such evaluations are not always clear. We suggest that the NCC revise such requirements to increase transparency and the ease of doing business for cable TV service providers.
Finally, we encourage the NCC to maintain an open and regular dialogue with the cable TV industry in order to share experiences and exchange information. The media landscape is fast changing, and such communication would be helpful in ensuring mutual understanding, trust, and collaboration.
Suggestion 3: Commit to transparency and the involvement of multiple stakeholders in determining how to proceed with the draft OTT Act.
We commend the NCC for actively deliberating on how to develop an appropriate regulatory framework for the young and dynamic video on demand (VOD) industry. However, we emphasize that any new regulatory measures should be extensively and transparently discussed with industry and other relevant stakeholders before being implemented.
Last year, Committee members provided, on short notice, detailed comments on the draft Internet Audiovisual Service Management Act (OTT Act). The Committee is keen to continue its involvement in the legislative process for the OTT Act. We recommend that in moving forward with the Act, the government consider the diverse and evolving nature of the online video marketplace, acknowledging that no one-size-fits-all approach can work. In particular, regulations designed for broadcasters and cable providers are inappropriate for platforms that specialize in user-generated content because such platforms do not exercise the same degree of editorial control over content asserted by traditional media companies. As a result, regulations should specify that intermediary platforms hosting predominantly user-generated content are explicitly outside the scope of the OTT Act.
Echoing comments made in last year’s White Paper, we emphasize that industry self-regulation can be a highly effective means of governing the OTT environment. Established industry players have often already developed policies or set up organizations to protect customers, as well as protecting their brands and reputations. However, reputable businesses should not be forced to join such organizations, particularly those that have received government funding and work closely with the relevant authorities, as they may not be the most appropriate representatives of industry interests. In addition, government-mandated membership in an organization that is essentially a government proxy could create an additional regulatory burden on businesses, for example because of unnecessary formalities or unspoken rules. It might also set a bad example that could tarnish Taiwan’s reputation regarding digital governance.
The requirement in the draft OTT Act that businesses publicly disclose the quota or proportion of Taiwan-produced content they offer raises serious questions regarding the purpose and practicality of such a condition. First, such quotas are ineffective in the current online environment where users make viewing decisions based on the quality of content, not on sheer quantity. Second, requiring businesses to display such information on user interfaces does not serve a clear purpose. Finally, combining penalties with what is ostensibly a voluntary system to create more local content is counterintuitive and reduces the ease of doing business in Taiwan. Alternatively, the government could reward compliance – for example, by providing greater incentives or business facilitation services.
The light-touch regulatory approach adopted in Taiwan thus far has proven to be effective. The OTT Act should continue this approach, allowing businesses to invest, innovate, and compete in this emerging, competitive market. Anticipating the Taiwan government’s proposed structural reorganizations, including the establishment of the MODD and the additional responsibilities of the NCC, we recommend that the government reassess the content of the draft OTT Act and seek to develop an OTT regulatory framework that enhances industry self-regulation and dialogue between government and relevant stakeholders.
委員會肯定台灣主管機關為推動台灣5G生態系穩健發展,以及致力創造合理監管環境以促進日益多元之媒體服務蓬勃發展所做出的努力。
然而,隨著數位化與技術創新刻正加速全球經濟商業活動的改變,如此快速的變革往往會造成數位產業、傳統產業與主管機關之間的歧見。委員會期望,即將設立的數位發展部能夠藉由以下措施調和這些衝突,包括:捍衛台灣數位轉型,透過輔導與獎勵機制鼓勵數位創新;以其他地區的知名企業為借鏡並支持其在台灣的營運;承諾與利害關係人進行開放式交流(詳參數位經濟委員會章節)。
委員會提出以下建議,以強化並確保產業持續創新,促進台灣數位轉型,並提供消費者最優質的服務。
建議一:健全台灣 5G 發展環境
隨著科技日新月異,國際間均持續強化通訊事業環境,使各行各業得以透過數位匯流升級既有的服務,促使國家邁向「數位轉型」。進一步言之,電信產業的發展成熟關乎於國家是否具備妥適的政策與法規,而又於 5G 已逐漸成為全球主流技術,加速 5G 的推動成為美國、韓國或是新加坡等先進國家的目標。以韓國為例,韓國於 2018 年完成5G競標後,於 2019 年推動「韓國 5G+ 革新成長策略」,透過調和監理制度和增加業者投資誘因,加速韓國的5G商用化。
台灣從 2016 年起陸續推動「數位國家‧創新經濟發展方案」(DIGI+)政策,加速台灣的通訊傳播事業邁向「數位轉型」,以奠基我國的數位經濟環境。惟電信事業囿於我國的 5G超高標金與建設不易,墊高投入 5G 基礎建設的成本,造成 5G發展落後於美國、韓國與新加坡等國。為落實國家「數位轉型」之整體政策目標,以電信事業帶動國家數位轉型,進而帶動國家數位經濟提升之動能,必能將效益擴散至大眾。因此,台灣政府就制定適當的輔導獎勵措施以及調整既有的監理機制實有必要,且將對以 5G 建設所帶動之整體「數位轉型」有極大之助益。
綜上,參照國際的趨勢與評估台灣電信產業的實際需要,我們提出以下幾項政策建議,建請主管機關予以考量,俾利電信事業得以成為台灣「數位轉型」之先驅。
1.1 加速數位經濟發展
為了加速推動數位經濟,即將成立的「數位發展部」(MODD)應盡速建立輔導、獎勵機制,而其編列預算應至少等同於科技發展基金專案之預算數額。
1.2 創造公平的監理制度
台灣電信業者長期以來受高度管制。惟有相同服務、相同管制,方能塑造產業公平競爭之環境並促使業者提供更優質的服務。因此,當國外業者來台提供電信服務(如B5G、低軌衛星或 6G 等);或是非電信業者設置專頻專網,其監理機制均需比照台灣電信業者,例如申請執照程序和符合國安、資安、通訊監察、消保等要求,方能提供服務。
1.3 激勵電信事業進行產業創新
一項通訊技術從開始到結束,通常超過十年或甚至更久,期間之創新應用不會因時間而停滯,反而會隨著時間推陳出新。因此,為鼓勵電信業者發展創新應用服務,投入更多之資源於 5G 之相關創新應用,我們重申了去(2020)年的建議,即透過修訂《產業創新條例》及其相關法規,延長可申請投資抵減優惠時間至十年,並提高可申請投資抵減稅額至新台幣一百億元,以反映台灣市場當前的需求。
1.4 健全電信市場發展環境
為了降低業者投資成本以利 5G 的發展,除了應減收 4G 頻率使用費與免收 5G 頻率使用費;同時,應修訂《促進民間參與公共建設法》及《獎勵民間參與交通建設條例》等規定,納入電信業者得享稅賦減免與融資之優惠,以及修訂《電業法》及相關法規,納入投入與公共建設、具公益性質、及弱勢團體之電信業者得享電費半價優惠或電費補貼,擴散數位匯流之效益。
1.5 降低設置基礎建設障礙
由於 5G 網路需使用大量路桿、燈桿、電桿與公有建築物,建議政府應參考日本等先進國家制定中央與地方通用的「公共設施開放與使用標準」、設立跨中央與地方政府的協調機構作法,以單一協調窗口搭配全國明確且一致的申請程序與收費標準,才能快速且有效的解決5G網路建設的障礙。
1.6 鬆綁對無線接取網絡(RAN)設備的監管措施
隨著全球網路營運商紛紛投入 5G 建設,產業對於供應商選擇不足的擔憂也日益增加,尤其在無線接取網絡(RAN)領域,全球網路營運商於建設基礎設施時,恐面臨選擇有限甚至是不合規之網路設備,而資安隱憂亦是潛在問題。
在這方面,確保 O-RAN 設備多樣化、創新性和競爭力的長期發展更顯得至關重要,為了利用產業領導地位和充分競爭的市場環境以有效推動創新,我們鼓勵政府定期與產業展開對話,交流最佳實踐經驗。
1.7 避免強制使用特定技術解決方案
此點建言呼應 1.6 點,我們相信政府應該鼓勵 O-RAN 發展,惟該項技術仍處於萌芽階段,將視使用情境的差異,而採取不同的解決方案。據此,政府應該避免限制或擱置對 O-RAN 及其他網路解決方案的處置。反之,政府可以藉由激勵採用此類技術,以確保其長期發展。
建議二:修改衛星與有線電視法規以維持其競爭力
當今的媒體市場涵蓋了多個平台,提供比以往更多可以使用及享受內容的方式。廣播電視已日漸轉變成數位格式,目前有138 個國家擁有雲上(OTT)影音市場,預計到 2021 年,全球OTT 用戶數將增長至 6.5 億以上;而到 2023 年,全球 OTT 影音收入預計則將達到 1290 億美元。鑑於此一趨勢,消費者對於客製化服務的需求更是無所饜足。新技術、各種設備的日益普及以及大量的數據使用,讓消費者期待從內容服務中獲得高品質、便利性和移動性。
這些供需方的發展加劇了媒體行業的競爭。在台灣,有線電視不再是市場的主流,因為 IPTV 和 OTT 為消費者提供了一種按需求來決定內容的新選擇。
儘管媒體服務的環境已發生重大變化,但衛星與有線電視的規範仍然十分嚴格且毫無改變。我們鼓勵國家通訊傳播委員會(NCC)考慮以下建議:
- 放寬衛星與有線電視的規管要求
現行嚴格的有線廣播電視法及衛星廣播電視法已不適用於當前的市場,其使有線電視業者在與其他內容服務提供者競爭時處於不利地位。我們樂見 NCC 以「輕描淡寫」的方式監管 OTT 服務的決定,並希望 NCC 的委員們能將同樣的待遇延伸到衛星與有線電視業者。我們敦促 NCC 不要對台灣的國際視聽服務提供者以及衛星與有線電視服務業者,施加本地內容投資要求。
- 建請 NCC 停止對有線電視費率的審查
此類審查與全球標準做法不一致,特別是在台灣市場,已有充分的市場競爭來評斷有線電視定價。此外,令人擔憂的是,NCC 正考慮建立一個分潤機制,以收視率來規範內容提供者可以獲得的授權金。另一個則是最近提出的實施頻道爭議仲裁機制,這可能會影響有線電視運營商從訂戶收視費用中(目前平均每月 530 元新台幣),提出合理的價錢給內容提供者。這樣的想法可能會悖離市場供需,影響節目品質和對本地內容的投資,最終影響台灣消費者可供選擇的內容多樣性。
- 放寬衛星與有線電視頻道之營運許可的評鑑與換照審核。衛星與有線電視頻道評鑑及換照等相關的過程和要求十分繁瑣,且此類評鑑與換照之適法的公共政策目標並不明確。我們建議NCC修改這些要求,以提高透明度,和簡化衛星與有線電視業者從商的便利性。
最後,我們鼓勵NCC能和衛星與有線電視業者保持開放且定期的對話,以分享經驗和交流資訊。媒體格局瞬息萬變,此種交流將有助於確保相互理解、信任和合作。
建議三:就《網際網路視聽服務管理法》(OTT)草案的相關進行,致力於透明化程序與多方利害關係人的參與
委員會由衷欽佩國家通訊傳播委員會(NCC)積極規劃如何為新興且不斷演化的隨選視訊(VOD)產業研制適當的管制架構。但同時也須強調,在實施任何新的管制措施前,應先與產業界和其他相關利害關係人進行廣泛且透明的討論。
去年,委員會成員在短時間內即對《網際網路視聽服務管理法》草案提交書面意見。委員會誠摯希望持續參與該法的立法過程。我們建議,未來在推進該法的過程中,政府應將網路影音市場的多樣性且持續發展的性質納入考量,並認知沒有一體適用的因應之道。尤其,針對廣播及有線電視業者所設計的法規並不適用於提供使用者原創內容的平台,因為此類平台對於內容並未行使與傳統媒體相同的編輯行為。因此,法規應將分享使用者原創內容為主的中介平台明確排除於該法的範圍之外。
呼應去年在白皮書所發表的意見,委員會再次重申,產業自律可為管理影音串流平台(OTT)的實質有效做法。知名業者均已制定出相關政策或建立相關組織來保護使用者,以及業者自身的品牌和信譽。然而,信譽良好的業者不應是被迫加入這類組織,特別是那些獲得政府補助並與政府相關單位緊密合作的自律組織,因其可能不會是最合適維護產業權益的代表。此外,如政府強制要求加入本質上屬政府代理單位的組織中,亦可能因不必要的形式或潛規則等原因,而對業者造成額外的監管負擔。此做法可能會樹立不良示範,破壞台灣在數位治理方面的聲譽。
《網際網路視聽服務管理法》草案要求業者公開揭露其提供的本地內容配額或比例,該條款的目的和實用性引發嚴重質疑。首先,此類配額在現今的網路環境中並無效果,因使用者會根據內容品質而非純粹數量來決定觀看與否。其次,要求業者於使用者界面上顯示這類資訊的目的亦不明確。最後,將罰則與顯為自願性的登記制度相互結合,而欲藉此創造更多本地內容,實有悖常理,並將提高業者在台營運的難度。反之,台灣政府可以選擇正向鼓勵,例如:提供更全面的獎勵措施或商業便利化服務。
迄今為止,台灣所採用的輕度管制方式已被證明有效。《網際網路視聽服務管理法》應持續貫徹此做法,使企業能夠在新興的競爭市場中,繼續投資、創新和競爭。在預期台灣政府即將到來的組織重組之際,包括數位發展部的成立與國家通訊傳播委員會的其他職責規劃,委員會敦促政府重新審視該草案的內容,並研擬可提升產業自律和政府與相關利害關係人之間有效對話的影音串流平台管制框架。
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