With the formation of the new government of the Rashtriya Swayamsevak Sangh (RSS) led by Balendra Shah, discussions have begun once again to add a telecommunications service provider. Minister for Information and Communications Bikram Timilsina has been saying that a new operator is needed in the telecommunications sector and that this issue is a priority for the ministry. 

‘Currently, we have two operators, and we understand that another operator or more operators are needed,’ he had said at a press conference held at the ministry some time ago, ‘The NEA has formed a committee to study the issue of introducing a third mobile service provider, a decision on it is yet to be recommended, and the process will move forward.’

The debate about a third or additional service provider has been revived again, saying that competition has decreased in the market since there are only two companies, Nepal Telecom and Ncell. With each change of government, this issue gets a lot of attention, a search for potential new service providers is conducted, the regulatory body proceeds with the study, prepares a report, and the report is not made public, but the issue gradually fades away.

In the 2060s, service providers such as United Telecom (UTL), STM Telecom, Nepal Satellite (Hello Nepal) and Smart Telecom, which were licensed to provide mobile services, were shut down after failing to meet various regulatory and licensing conditions. With only two service providers remaining, it has been said that it is necessary to bring in new 'players' every time a new government comes to power in the past few years. 

Even after the formation of the Balendra government, the Nepal Telecommunication Authority has started a feasibility study on issuing licenses for new telecom companies. The government has shown interest in additional service providers, saying that due to the duopoly of Nepal Telecom and Ncell, consumers are being forced to compromise on price and quality. Udaya Rana Magar, spokesperson for the Ministry of Communications, also told Kantipur that additional service providers are needed to ensure competition. 

In Asoj 2081, the Telecommunications Authority had formed a committee under the coordination of the then Director Amber Sthapit to study the feasibility of issuing licenses to new telecom companies. The authority has stated that homework is currently being done for the re-study. 

‘Although six companies were previously granted licenses, competition has been reduced with only two currently in operation,’ says Meen Prasad Aryal, director and spokesperson of the authority. ‘However, managing limited resources such as frequency, right of way, and numbering will be challenging when bringing in a new operator.’ He said that a decision on the new license will be taken only after assessing the country’s economy and market demand.

‘A study is being conducted on the subject of a third operator. Further discussions will be held and recommendations will be made based on the study after new leadership comes to the authority,’ he said. ‘Notifications for additional operators will be issued only if the authority feels it is necessary. In my personal understanding, more capable service providers are needed for healthy competition.’ He said that the number of service providers will be determined by the size of the market, demand and supply, as well as frequency and resource availability. 

Who are the aspirants? 

CG Telecom, Worldlink and UTL are seen in the forefront for basic telecommunications service licenses. Worldlink Communications has been saying that it aims to provide data facilities at affordable prices across the country after getting a mobile service license, especially since it is not easy to expand internet through fiber in rural areas. 

‘If the government asks for an application for a new operator, we will participate 100 percent,’ says Worldlink CEO Keshav Nepal, ‘Internet service providers like Worldlink are already capable of operating telecom in terms of infrastructure, investment and technical capacity. We have proven our financial soundness and technical efficiency by operating fiber and broadband internet for years.’ 

CG Communications, a subsidiary of the Chaudhary Group, which has been providing telephone services through VSAT since 2060, especially in rural areas of eastern Nepal, has been taking the initiative for a unified telecommunications service (unified) license for a decade. Chaudhary Group Managing Director Nirvan Chaudhary said that Nepal still needs a third telecommunications service provider and that it can have a positive impact on the economy by expanding access to affordable data. CG said that although they were previously prevented from entering the telecommunications sector, the government is now ready to participate if the licensing process is carried out on the basis of open and transparent competition. 

‘We have been studying the potential of this sector for a long time and are also making necessary preparations,’ said Managing Director Chaudhary, ‘Our clear objective is to contribute to Nepal’s digital transformation, introduce cutting-edge technology and provide international-level services to consumers.’ CG said that companies with old licenses that have made significant investments and shown commitment in the past, whose licenses or applications were suspended or unfairly canceled for years, should be given a fair opportunity. 

UTL, which received its first basic telephone service license on Bhadra 20, 2073, is also trying to protect its license. The company’s local investor company, ‘Nepal Ventures’, had sent a letter to the Telecommunications Authority in June last year for license renewal. According to the Telecommunications Act, 2053, although the license is valid for 25 years, there is a provision that it must be renewed in the first 10 years.

In accordance with the said provision, UTL's first 10-year license period is expiring on Bhadra 19, 2083. UTL has filed the application in accordance with the provision that an application along with the required fee should be submitted to the Authority three months before the expiration of the period for license renewal. 'The company submitted the application for renewal on Jestha 19, but the prescribed fee and old dues have not been paid yet,' says Authority spokesperson Aryal. 

Although the company sought concessions by mentioning the impact of Covid-19 and increased foreign investment in the application, he said that the Authority has already informed that renewal will be done only after paying the legal fee. Currently, there is uncertainty about how UTL's application and renewal will proceed as all positions in the Authority's board leadership are vacant. 

Former Communications Minister Rekha Sharma says that a service provider can be brought in by selling shares to the general public in the 'hydropower model', with the participation of the Nepali people and national capitalists rather than foreign companies, as a third operator. Informing that there were serious discussions on this issue when she was a minister, she said that many large business houses and companies in Nepal are interested in the third operator. 'There is a large network of people from all over who want to enter this sector,' she said. 'When bringing in a new operator, special attention should be paid not only to business but also to Nepal's geopolitical balance and data security. Since this sector is very sensitive, decisions should be made in the national interest rather than someone's personal interests.'

Policy and practical confusion

While the government and regulatory bodies argue that more operators are needed to increase competition in the market, experts say that it is not easy to bring in a new operator in the current situation. In principle, the arrival of a third operator in the market is positive as it will increase competition in price, quality and access and benefit consumers, and it is the responsibility of the state to ensure competition, says telecommunications expert Ananda Raj Khanal. However, considering Nepal's current legal, policy and regulatory structure, he says that bringing in a third operator will be a practical challenge. 

 "If a new operator is brought in through full competition under Section 22 of the Telecommunications Act, the financial responsibilities between the old and new companies will differ, disrupting the level playing field or the principle of equal treatment," he said. "If it is brought in under basic telephone service under Section 23, the company will also have to bear the brunt of the Rs 20 billion renewal fee and frequency auction. As a result, it will also suffer the same failure as Smart and UTL." 

Section 22 of the Act provides for the authority to issue a public notice specifying the number and type of telecommunications service licenses and awarding licenses through bidding (auction). In this, licenses are awarded to those who are deemed technically and financially superior and are willing to pay the highest royalty or license fee.

Section 23 states that companies already operating basic telephone or other services will be granted a basic telecommunications service (unified) license if they meet the specified conditions and infrastructure expansion criteria. Ncell (then Spice Nepal) received a GSM cellular mobile service license through open competition, while Smart Cell initially received a rural telecommunications service license through competition in 2065, but was able to upgrade to a unified license in 2070 after meeting the specified criteria. Those with a unified license can operate all services across the country, including mobile, fixed line, and internet. The authority has also arranged for various licenses including GSM cellular mobile and basic telephone services. 

Another telecommunications expert and former Chief Regulatory Officer of Ncell, Vishal Upadhyay, points out that new operators who want to enter the market need to present a business model based on new technologies such as cloud and AI, not just voice calls or data. "Nepal needs communication and information technology infrastructure companies that can provide data centers and cloud services more than the third operator," he said.

There is uncertainty about the future of both new entrants and existing companies in Nepal's current telecommunications market. It is not yet clear what will happen to Ncell's license after 2086. Section 33 of the Telecommunications Act stipulates that companies with more than 50 percent foreign investment should be transferred to the government after the expiration of the 25-year license period. Ncell is 80 percent owned by Singapore-based Nepali-origin entrepreneur Satish Lal Acharya's UK-based company 'Spectralight UK' and 20 percent by his wife Bhavana Singh Shrestha's 'Sunivera Venture Capital'. Ncell wants to operate the company itself rather than being nationalized. For this, it is trying to change the company's share structure and reduce foreign investment to below 50 percent.

In a letter written by Ncell to the then Prime Minister Sushila Karki-led government last December, it was stated, ‘…to establish a company with majority ownership by Nepali citizens by maintaining the capital investment of Nepali citizen organizations in Ncell Axiata Limited at more than 50 percent….’ Presenting an option for a suitable solution, Ncell further wrote, ‘As Ncell Axiata Limited is a public limited company as per Section 12 of the Companies Act, 2063, the company is positive to sell its shares to the general public and provide shares to the Nepali people as per the Securities Act.’ The government has not yet given any response or reaction to this option put forward by Ncell.

In the government-owned service provider, Nepal Telecom Company Limited (Nepal Telecom), the government has announced through the budget that it will reduce its shareholding to 66 percent. The government currently holds 91.49 percent of the shares, and aims to use the proceeds from the sale of about 26 percent of the shares to the public to build a ‘tech hub’.

Telecom Deputy Manager Rajendra Dulal had said at a program organized by the Technology Journalists Forum recently that the company has not received any official circular or directive even though he heard about it in the budget speech. Experts point out that the problem with Telecom is that the company has been in operating losses for the past five fiscal years. He is concerned that since the telecommunications market has reached saturation (highest point), it will be difficult for new ones to survive without a new business model.

While these two major service providers are struggling with their own internal, political, commercial and policy uncertainties, the condition of Smart Telecom, which the government took control of three years ago, is even more precarious. Smart, considered the third largest operator, was automatically suspended after it failed to pay the government about Rs 30 billion in license renewal fees and other dues.

The NEA took control of Smart as per the Asset Management Regulations of Telecommunications Service Providers with No License, 2079 BS. स्मार्ट बन्दको तीन वर्षपछि गत असोजमा यसका टावर र अन्य पूर्वाधार बैंकहरूले लिलाम प्रक्रियाबाट ४ अर्ब ६० करोड रुपैयाँमा एनसेललाई बेचे । सरकारमातहत आएको सम्पत्ति बैंकले बेचेको भन्दै विवाद भइरहेको छ । यो विषय अहिले नेपाल प्रहरीको अपराध अनुसन्धान ब्युरोले हेरिरहेको छ । 

सरकारलाई वार्षिक रूपमा सबैभन्दा धेरै कर तिर्ने र ठूलो विदेशी लगानीसमेत भित्र्याउन सक्ने नेपालको दूरसञ्चार क्षेत्र पहिलेको तुलनामा हाल आर्थिक रूपमा खुम्चिँदै गएको एकथरीको विश्लेषण छ भने ३०औं वर्षदेखि संशोधन नभएका नीतिगत व्यवस्था, अधिक करलगायतलाई पनि विद्यमान सेवा प्रदायकले चुनौतीका रूपमा व्याख्या गर्दै आएका छन् । एनसेलले हालै सार्वजनिक गरेको विवरणअनुसार कम्पनीले रोयल्टी, ग्रामीण दूरसञ्चार विकास कोष शुल्क, फ्रिक्वेन्सी शुल्क, दूरसञ्चार सेवा शुल्क, स्वामित्व कर, मूल्य अभिवृद्धि कर, टीडीएस, भन्सार महसुल गरी चालु आर्थिक वर्षको ९ महिनामा १४ अर्ब ५१ करोड रुपैयाँ कर तिरेको थियो । देशको कुल गार्हस्थ उत्पादनमा टेलिकम क्षेत्रको योगदान ५ प्रतिशतबाट घटेर १.२ प्रतिशतमा झरेको छ । 

‘अहिलेको अवस्थामा तेस्रो अपरेटरको कुरा गर्नु बेकार छ,’ विज्ञ खनाल भन्छन्, ‘सरकार र प्राधिकरणको वर्तमान कार्यशैली, गति र मति यही रहने हो भने तेस्रो अपरेटर आउने कुरा कल्पना पनि नगर्नुस् । अहिले बजारमा रहेका दुई वटा कम्पनी नै कतिन्जेल टिक्छन् भन्ने ग्यारेन्टी छैन । जसरी स्मार्ट टेलिकम कोल्याप्स भयो, सही नीतिगत हस्तक्षेप भएन भने आगामी तीन वर्षभित्र एनसेल र त्यसपछि नेपाल टेलिकम पनि संकटमा पर्न सक्छन् ।’ दूरसञ्चार क्षेत्रले ‘लुट्छ’ भन्ने दृष्टिकोण बदल्न सके र फ्रिक्वेन्सीको अक्सन एवं नवीकरण शुल्क व्यावहारिक बनाउन सके मात्रै नयाँ लगानीकर्तालाई बाटो सहज हुने उनको तर्क छ । 

पूर्वसञ्चारमन्त्री शर्मा भने उपभोक्ताको हितका लागि बजारमा तेस्रो प्रतिस्पर्धी चाहिन्छ भन्नेमा सहमत छिन् । ‘हालको अर्बौं रुपैयाँको स्थिर नवीकरण शुल्कभन्दा कम्पनीले गर्ने नाफाको निश्चित प्रतिशत राज्यलाई तिर्ने कानुनी व्यवस्था उपयुक्त हुन्छ,’ उनी भन्छिन्, ‘धेरै कमाउनेले धेरै र कम कमाउनेले कम तिर्ने व्यवस्था भए मात्र व्यवसाय सस्टेनेबल हुन्छ ।’ उल्लेखित व्यवस्था समावेश गर्ने गरी २०५३ को पुरानो दूरसञ्चार ऐन परिवर्तन गर्न आफूले निकै प्रयास गरे पनि सफल नभएको तीतो अनुभव उनले सुनाइन् । ‘दूरसञ्चारमा विभिन्न बिचौलिया र व्यापारी समूहहरूको स्वार्थका कारण ऐन संशोधन प्रक्रिया अघि बढाउन निकै कठिन भयो,’ उनले सुनाइन्, ‘नयाँ कानुनको ड्राफ्ट तयार गर्दा एनसेललाई पोस्न खोजियो भन्ने भ्रम फैलाइयो, यो एउटा असाध्यै तीतो अनुभव मैले बटुलेकी थिएँ ।’ 

लाइसेन्स र फ्रिक्वेन्सी वितरणको राजनीति

दूरसञ्चार क्षेत्रमा नयाँ लाइसेन्स जारी गर्ने र फ्रिक्वेन्सी वितरणको विषय जहिले पनि राजनीतिक चलखेलको केन्द्रमा रहने गरेको छ । फ्रिक्वेन्सीको मूल्य र कुन सेवालाई कति फ्रिक्वेन्सी बाँडफाँट गर्ने भन्ने मुख्य निर्णय सञ्चारमन्त्रीको अध्यक्षतामा रहेको ‘रेडियो फ्रिक्वेन्सी नीति निर्धारण समिति’ ले गर्छ । उक्त समितिले निर्धारण गरेको नीतिका आधारमा सेवा प्रदायकलाई फ्रिक्वेन्सी तोक्ने, वितरण गर्ने र त्यसको अनुगमन गर्ने काम प्राधिकरणले गर्छ । फ्रिक्वेन्सी वितरण मुख्यतया लिलाम बढाबढ (अक्सन) को माध्यमबाट गरिन्छ । अक्सनबाटै लाइसेन्स पनि वितरण गर्ने व्यवस्था छ ।

लाइसेन्स र फ्रिक्वेन्सी दुवैमा अक्सन गर्दा बजारमा ठूला कम्पनीको सिन्डिकेट हुने र नयाँ वा साना लगानीकर्ताले प्रतिस्पर्धा गर्न नसक्ने अवस्था रहेको कतिपयको गुनासो छ । स्मार्ट टेलिकम र यूटीएलजस्ता कम्पनी टिक्न नसक्नुमा कारण पनि महँगो दस्तुर र अक्सन नीति पनि एउटा कारण भएको दूरसञ्चार विज्ञ उपाध्यायको विश्लेषण छ । ‘दूरसञ्चार क्षेत्रमा ९९.९ प्रतिशत समय नै सेवा सुचारु राख्न निकै ठूलो लगानी आवश्यक पर्छ, जुन कुरा यसअघिका साना कम्पनीका लागि चुनौतीपूर्ण भयो,’ उनले भने, ‘लाइसेन्स र फ्रिक्वेन्सी दस्तुर महँगो हुनु अर्को कारण हो ।’ 

प्राधिकरणले पछिल्लो पटक २०६५ मा निश्चित ग्रामीण र दुर्गम क्षेत्रमा सेवा दिने गरी नयाँ अपरेटरका लागि आवेदन माग गरेको थियो । दूरसञ्चार सेवा सञ्चालन गर्न चाहनेले आर्थिक तथा प्राविधिक अध्ययन प्रतिवेदन र कार्य सञ्चालन योजनासहित अन्य योग्यता पेस गर्नुपर्ने भनिएको थियो । त्यसरी प्राप्त भएका निवेदनमध्ये प्राधिकरणले त्यो बेला स्मार्ट टेलिकमलाई अनुमतिपत्र प्रदान गरेको थियो । २०६९ मा राजपत्रमा प्रकाशित युनिफाइड लाइसेन्सको नीतिपछि प्राधिकरणले स्मार्ट र यूटीएललाई तोकिएको दस्तुर बुझाएर मोबाइल सेवामा अपग्रेड हुने बाटो खोलिदिएको थियो । 

हेलो नेपाल र स्मार्टजस्ता सेवा प्रदायक क्रमशः बन्द भए । स्मार्टसँग ९०० मेगाहर्ज ब्यान्डमा ५ मेगाहर्ज र १८०० मेगाहर्ज ब्यान्डमा १२ मेगाहर्ज फ्रिक्वेन्सी थियो । फ्रिक्वेन्सी वा स्पेक्ट्रम भनेको मूल्यवान प्राकृतिक स्रोत भएकाले यसको वितरण, मूल्य निर्धारण र नवीकरणका लागि ठूलो शुल्क तोकिएको हुन्छ । 

 २०६५ मा पुष्पकमल दाहाल प्रधानमन्त्री र कृष्णबहादुर महरा सञ्चारमन्त्री रहेका बेला माओवादी निकट मानिने व्यापारी अजेयराज सुमार्गीको ‘नेपाल स्याटेलाइट टेलिकम’ लाई ‘हेलो नेपाल’ सञ्चालन गर्ने लाइसेन्स दिइएको थियो । त्यो बेला कम्पनीले मागेको भन्दा पनि धेरै फ्रिक्वेन्सी निकै सस्तो मूल्यमा उपलब्ध गराइएको भन्दै तत्कालीन सरकारको आलोचना भएको थियो । हेलोले सस्तोमा फ्रिक्वेन्सी किनेर त्यसलाई केही समय ‘होल्ड’ गरेर राखेको र पछि स्विडेनको दूरसञ्चार सेवा प्रदायक ‘टेलियासोनेरा’लाई महँगोमा बेचेको विषयमा अझै पनि थुप्रै लेख भेटिन्छन् ।

तत्कालीन सञ्चारमन्त्री गोकुल बाँस्कोटा र चौधरी समूहबीच सीजी टेलिकमलाई युनिफाइड लाइसेन्स दिने विषयमा २०७६ मा सार्वजनिक रूपमै विवाद भएको थियो । तत्कालीन सञ्चारमन्त्री बाँस्कोटाले हाल पुराना कुरा धेरै स्मरण नरहेको र दूरसञ्चार प्राविधिक विषय भएकाले अहिले आफू खासै अपडेट नरहेको प्रतिक्रिया दिए । सीजीले भने त्यो बेला व्यावहारिकभन्दा बढी प्रक्रियागत अवरोध भएको जनाएको छ । 

‘तेस्रो’ सेवा प्रदायकका असफलता

विगतका तेस्रो प्रदायक भनिएका स्मार्ट टेलिकम र यूटीएलजस्ता कम्पनीहरू व्यावसायिक रूपमा असफल भए । स्मार्ट टेलिकमले झन्डै ३० अर्ब रुपैयाँ बक्यौता तिर्न नसकेपछि सरकारले यसको अनुमतिपत्र खारेज गरिदियो । यूटीएलले लाइसेन्स पाएको एक दशकसम्म पनि देशव्यापी रूपमा सेवा विस्तार गर्न सकेको छैन । मध्यपश्चिम र सुदूरपश्चिमका २५ वटाजति जिल्लामा सेवा पुर्‍याएको हेलो नेपाल २०७९ मा बन्द भयो, यसले पनि सरकारलाई साढे ३ अर्ब रुपैयाँजति बक्यौता बुझाउन बाँकी थियो ।

सीजी टेलिकमले लाइसेन्सका लागि निकै लबिइङ गरे पनि पूर्वसर्त पूरा नगरेको भन्दै सरकारले रोकिदिएको थियो । यी कम्पनीहरू चल्न नसक्नुमा कमजोर व्यवस्थापन, अस्वस्थ राजनीतिक प्रतिस्पर्धा, फ्रिक्वेन्सी होल्ड गर्ने रणनीति मुख्य कारण रहेको जानकारहरू बताउँछन् । कतिसम्म भने स्मार्ट टेलिकम बन्द भएपछि यसले सिर्जना गरेको दायित्वको भार अहिले सर्वसाधारणको थाप्लोमा आइपरेको छ । देशभरका ६ सयभन्दा बढी सर्वसाधारण र मुख्य कार्यालयका घरधनीले वर्षौंदेखि भाडालगायतको विवाद छ ।

नेपालको निजी क्षेत्रका टेलिकम कम्पनीमा थुप्रै स्वदेशी र विदेशी लगानीका व्यावसायिक समूहको प्रवेश र बहिर्गमन भएका छन् । एनसेलकै सेयर स्वामित्व हालसम्म १४ पटक किनबेच भइसकेको छ । यसमा नेपालको स्थापित व्यावसायिक घराना खेतान समूह र भारतको मोदी टेलेस्ट्रादेखि युरोपको टेलियासोनेरा, मलेसियाको आजियाटा र स्थानीय साझेदारले लगानी गरेका छन् । यूटीएलमा भारत सरकारको स्वामित्व रहेका तीन ठूला कम्पनीहरू महानगर टेलिफोन निगम लिमिटेड, टेलीकम्युनिकेसन्स कन्सल्टेन्ट्स इन्डिया लिमिटेड र टाटाको भीएसएनएलसँगै नेपाल भेन्चर्सले लगानी गरेका थिए । 

२०५७ मा प्राधिकरणले पहिलो पटक खुला प्रतिस्पर्धाबाट लाइसेन्स वितरणका लागि बोलपत्र आह्वान गरेको र त्यसमा खेतान समूह तथा मोदी समूहको संयुक्त कन्सोर्टियमले जितेको थियो । लाइसेन्स जितेपछि उनीहरूले स्पाइस नेपाल प्रालि स्थापना गरी दूरसञ्चार सेवा सुरु गर्नै लाग्दा नेपालमा तत्कालीन राजा ज्ञानेन्द्र शाहले शासनसत्ता हातमा लिएका थिए । राजाको प्रत्यक्ष शासन रहेका बेला उनका ज्वाइँ राजबहादुर सिंहले मोदी र खेतान समूहलाई पन्छाएर यस कम्पनीमा भित्रिएको अग्रज पत्रकार सम्झन्छन् । 

२०६१ मंसिर ३ मा राज ग्रुप नेपालले मोदीको ५५ प्रतिशत र खेतानको ४० प्रतिशत सेयर खरिद गरी स्पाइस नेपाल (पछि मेरो मोबाइल हुँदै एनसेल बनेको) मा ९५ प्रतिशत स्वामित्व कायम गरेको थियो । राज ग्रुपले सेयर खरिद गरेकै दिन ५७ प्रतिशत सेयर साइप्रसस्थित अफसोर कम्पनी ‘डाल्ट्रो ट्रेड’ लाई बिक्री गरेको थियो । २०६२ मा डाल्ट्रोले ४० प्रतिशत र राज ग्रुपले ३८ प्रतिशतमध्ये १८.६ प्रतिशत सेयर रेनोल्ड होल्डिङ्सलाई बेचेको देखिन्छ । २०६३ मा राज ग्रुपले बाँकी रहेको १९.४ प्रतिशत सेयर सिनर्जी नेपाललाई बेचेको थियो । 

राजतन्त्र ढलेर गणतन्त्र आएपछि पनि दूरसञ्चार क्षेत्रमा यस्ता चलखेल रोकिएनन् । माओवादी भर्खरै शान्ति प्रक्रियामा आएर अन्तरिम सरकारमा सहभागी भएका बेला सुमार्गीले २०६४ मा माओवादी सरकारकै संरक्षणमा हेलो नेपाल चलाएको आरोप लाग्ने गरेको छ । पछि स्विडेनको दूरसञ्चार कम्पनी, टेलियासोनेराले एयरवेल सर्भिस लिमिटेड नामक कम्पनीमार्फत हेलो नेपालमा २ सय मिलियन डलर लगानी गर्दै ७५ प्रतिशत सेयर अप्रत्यक्ष रूपमा किनेको थियो भने टेलियाले नै एनसेल पनि चलायो ।