1 Fair and equitable access to telecommunications numbers is a key ingredient to the development of competition as numbers provide the means to route calls, to identify and to reach customers and services. It is also important that customers have the benefit of an understandable scheme that allows them to get a broad indication of service and charge before they make a call. As a result of the PhONEday changes in 1995 the UK overall is in a strong position, with a tendigit scheme (0 plus 10 dialled digits) and a potential stock of 9 billion numbers available for public telecommunications use. The challenge now is to develop a Numbering Scheme for the 21st century which makes best use of this resource for customers.
2 These developments need to be done in a way that safeguards supply to meet future demands. Because of the rapid pace of change in the communications industry, tomorrow's needs may not be apparent today. Future arrangements must support effective competition by ensuring that access to numbering resources is even handed for all service suppliers. Developments in global and European numbering policy also need to be accommodated. The Scheme should be cost effective and practicable for implementation by the industry.
3 The current National Numbering Scheme developed from a review of numbering capacity carried out by Oftel and the industry in the late 1980s. A plan was agreed to move towards a 10digit scheme which would expand numbering capacity in the UK tenfold from the previous 9digit scheme and meet future market demands. This plan has three implementation stages:
During this process, in 1994, Oftel took over full responsibility from BT for numbering administration which thereby became wholly independent of any individual operator.
4 In 1995 Oftel consulted on the use of numbers beginning with 02, with proposals which would have avoided further changes to numbers which had new 01 codes on PhONEday. Oftel had based its proposals on the assumption that customers did not want further changes to numbers. However most responses did not support the proposed "overlay" method of using 02, rating the maintenance of features such as local dialling more highly than the avoidance of change. They argued that number changes are an acceptable feature of the management of numbering schemes provided that there is sufficient notice of change and that migration is handled sensitively. Many also urged that Oftel should not look at geographic numbers in isolation but should also consider numbering for services such as mobile, freephone and premiumrate.
5 As a result Oftel began a review of the Numbering Scheme in October 1995 with the assistance of its Numbering Advisory Group, which comprises consumer representatives such as the Consumers' Association, telephone companies, equipment manufacturers and expert advisers (see Annex). In August 1996 Oftel published a consultative document The National Numbering Scheme setting out proposals for developments to the Scheme into the 21st century.
6 As a starting point for the review, Oftel modelled future demand for numbering capacity over the next fifteen years. This showed continuing rising demand for numbers from all services. For geographic numbers, the model estimated demand for new numbers at between 1.5 and 6 million numbers per year. This demand could lead to some areas needing more numbers over the next fifteen years, of which Belfast, Cardiff, London, Portsmouth and Southampton would need more capacity from the year 2000. For nongeographic services, demand for mobile numbers could rise by more than 300% over the next 15 years with significant increases in numbers required for paging, freephone, premiumrate and personal numbering services.
7 Apart from the need to meet this potential demand for numbers over the next 15 years, a primary aim of the review was to ensure that the Numbering Scheme is arranged in a way which provides sufficient flexibility for undefined future needs and, importantly, is meaningful to customers. Because the Scheme's evolution over the decade before PhONEday was determined largely by the shortage of available codes, numbers for nongeographic services have been spread across ranges 03 to 09 with no consistent pattern to help customers determine the type of service or tariff they are calling. This is illustrated by the chart below:
Free Local 'd'/f 'k' Premium
01426 0 01399 0456 0370 01426 2-3
01426 1 01426 8 0700 0 0374 01426 3
0321 01893 9 0701 0 0378 01426 6-7
0500 0345 0702 0 0385 01426 7
0800 0645 0956 0402 0331
0845 0958 0421 0336
0966 0441 0338
0973 0468 0660
0976 0585 0836 4
0802 0839
0831 0881
0836 2-7 0891
0850 0894
0860 0897
0898
0930
0991
Regional National
01426 4 0541
01426 5 0836 0-1
01426 9 0836 1
01459 0836 8
01893 0836 9
0941 1 0870
0990
'd' rate - up to 17p per minute(inc VAT)
'k' rate - up to 41p per minute (inc VAT)
'f' rate - up to 30p er minute (inc VAT) from 19 February 1997
8 Having reviewed the options, Oftel considered that some basic changes to the Scheme were necessary if the UK's numbering resources were to meet the future needs of the UK and support a fully competitive industry. The consultative document in August therefore put forward proposals for evolutionary changes to parts of the Numbering Scheme and for the introduction of procompetition measures, such as extending number portability to nongeographic services and enabling direct access to numbers by service providers and ultimately end users.
9 A total of 165 responses were received by 31 October. Since then Oftel has been analysing and discussing these comments with the Numbering Advisory Group and with individual respondents. A factor in Oftel's consideration of the way forward has been the proposals in the European Commission's Green Paper on Numbering which was published in November. As anticipated in Oftel's consultative document, the Green Paper's main proposals on numbering - the introduction of numbers for panEuropean services and of a prefix '3' for European Country Codes - although significant, do not impact directly on the UK Numbering Scheme or on Oftel's proposals. Where there is a possible impact on the UK Scheme, with the proposal for the greater integration of European Numbering Schemes using short access codes (ie 1XXX), Oftel has taken account of this in its conclusions.
10 This Statement summarises each of Oftel's proposals and the responses to them, and sets out the policy which Oftel now intends to adopt. This policy will be taken forward through changes to the Numbering Conventions, the rules by which Oftel manages the Numbering Scheme. Proposed revisions to the Conventions are now being published as part of the formal consultation which is required by operators' licences. Oftel intends that the revised Conventions should be formally published and implementation details agreed by July 1997.
11 In the consultative document, Oftel put forward a set of criteria that should be used in developing the National Numbering Scheme. The criteria were influenced by consumer representations and research which indicated that a move to a more meaningful and flexible Scheme was strongly desired. The criteria were:
12 These criteria were strongly supported in responses and will be incorporated into the Numbering Conventions. They will then be established as the primary basis for the future management of the Scheme.
13 The policy described below will entail some changes for some numbers. Responses to the document, particularly from users, recognised that some change was inevitable and in many cases desirable. However, it is important that change only takes place where it is essential to meet the objectives of the Scheme and that it is planned and managed in a way that minimises disruption. It is known from the changes carried out by telephone companies over the last ten years, and from market research, that people adapt relatively quickly to code and number changes. Nevertheless even though people get used to dialling the new numbers quickly, code and number changes can still impact on businesses who may have to change stationery, signs, and some equipment.
14 To minimise inconvenience and disruption, Oftel will adopt where possible the following migration principles, endorsed in responses to the consultation, for future changes:
15 In the consultative document Oftel proposed that geographic numbers - currently using the 01 range - should also use 02 and that use of 02 should be triggered by local number exhaust. Short codes - 02X or 02XX - were proposed in areas needing more numbers to replace the existing 01XXX code, with the local number generally extended by one or two digits. To allow customers to benefit from the significant increase in the amount of numbers which such a code change brings, Oftel also suggested the possibility of extending the local dialling area by including neighbouring 01 codes within the new short 02 code, where locally supported.
16 Responses showed overwhelming support for the use of 02 for code changes as and where necessary. Alternative solutions for providing additional capacity - splitting codes and the use of overlays - were rejected. The principle of extending local boundary areas was supported with a tendency to favour larger regional code areas in preference to expanded city codes. Respondents were concerned that existing 01 areas should still be identified easily in the substructure of an extended 02 code, to allow networks to route efficiently and for "charge groups" - which are currently used by most telephone companies to make up the charging structure for calls to geographic numbers - to be recognised by customers and equipment. This was still felt to be important for customers, so that they could continue to know whether a call was charged at "localrate" or not. It was also important for equipment such as least cost routing apparatus which determines which network a call should be delivered by, depending on the destination and tariff.
17 Many responses also argued for a standard approach to the use of 02 numbers, in particular that there should be a single number length and format. This would promote customer understanding and would help to maximise the efficient use of customer premises equipment.
18 Oftel intends to adopt a policy which uses short 02X codes with eightdigit local numbers as the standard approach when dealing with local number shortages in the future. When this occurs 02 codes will therefore be introduced in a consistent format across the UK. This will provide considerable extra capacity that can be used in a flexible way. Oftel will take into account the following factors in deciding how 02 numbers should be used in any particular situation:
19 This means that most places facing number exhaustion will be able to secure an increased supply of numbers by a code change from 01XXX or 01XX to 02X. The 02X code will potentially also be available to meet the needs of other communities in the surrounding region, if and when necessary. This is explained further in respect of Cardiff, Portsmouth and Southampton below. Both Northern Ireland and London are special cases and will immediately be given full "regional" codes.
20 The first two digits of local numbers - 02X YY where YY is the beginning of the local number - will generally identify the charge group. The use of 8digit local numbers will provide a fully flexible solution to meet number demand in the future, allowing capacity to be provided in blocks of 1 million numbers - ie another YY combination - to areas when and where it is needed. It will also provide customers with the convenience of local dialling over wider areas. Current charge groups and tariffing arrangements are not affected by these changes and charge groups will be readily identifiable in the 02 number substructure. The use of 02X codes is not intended to preempt any market moves to change the basis of charging.
21 A move to standard 8digit numbering for future changes to 02 codes will also increase the amount of numbers available for use in 01 areas. Currently 100 000 numbers in 01 areas with 6digit local numbers are put aside as the "migration route" for a change to 7digit local numbers. For example, the Reading local numbers are changing in 1998 by the addition of '9' to the front of the 6digit local number. To ensure that the new numbers can be identified and the old numbers trapped after the change to provide callers with an announcement, 100 000 6digit local numbers beginning 9 could not be used prior to the change. With changes to 8digit numbers, normally two digits are added to the front of existing local numbers (eg 94) so only 10 000 need to be retained as a migration route. This means that available capacity increases by over 10% in all 01 areas with 6digit numbers and extends the "life" of these areas in normal circumstances by at least three years. In particular this has a significant effect on the areas listed in the consultative document. Change in these areas will now be delayed and, with the impact of other factors, may possibly be avoided. This is discussed further in paragraph [36].
22 In 1995 Oftel identified five areas - London, Belfast, Cardiff, Portsmouth and Southampton - which would need additional numbering capacity early next century. The consultative document made specific proposals for renumbering these areas in the year 2000 changing 01 codes to shorter 02 codes. The responses and Oftel's conclusions are described below. Oftel will now finalise the implementation details with operators and representatives of users.
London
23 The consultative document proposed eightdigit local numbering for London in the year 2000 with an option for either a single code - 020 - reuniting Inner and Outer London, or two codes - 020 and 022 - maintaining the current division. The majority of responses favoured a single code, with wide area local dialling and an opportunity to eliminate misdialling between the two codes given as the main reasons for support. This response is line with an Oftel survey in 1995 when 61% of Londoners questioned favoured a single code.
24 Those favouring two codes did so mainly because they felt that the additional capacity created would ensure that London would never again run out of numbers. A single code provides an additional 64 million numbers; two codes 144 million. However, the demand modelling carried out suggests the capacity provided by a single code would far exceed even the largest possible foreseeable growth. Assuming demand for direct diallingin (DDI) for businesses, for multimedia services, paging, voicemail and new residential services were all to be met from the London area code, a maximum demand of 14 million more numbers is forecast in London over the next fifteen years. In practice, some of the demand from these new services is likely be met by numbers from other ranges, as discussed below. A supply of 64 million numbers should therefore be ample to meet London's future needs.
25 Oftel therefore intends to go ahead with a change in the year 2000 to a single code 020 for London - with 7 the prefix for existing Inner London numbers and 8 for existing Outer London for example
0171 634 8700 -> 020 7634 8700
0181 396 2000 -> 020 8396 2000
26 A single code means that calls between Inner and Outer London areas - around 40% of all "LondontoLondon" calls - will be dialled as 8digit local numbers instead of the current 11 digits. Oftel will work with operators to ensure that there are measures in place to ease in the transition to the new code for example by making 020 numbers available before 2000 and by operating 01 and 020 numbers in parallel for as long as practical around the code change.
Click here to view map of current codes for London
Click here to view map of new single code for London
Belfast
27 Responses to the consultation showed very strong support for a single Northern Ireland code from local residential and business users, local authorities, and the Northern Ireland Advisory Committee on Telecommunications (NIACT). A significant factor in Northern Ireland is that over 70% of the population would be facing number changes of some sort over the next five years under normal circumstances: either for the Belfast change (with 50% of all telephone numbers in the Province) or for changes of 5digit local numbers to 6 digits.
28 Oftel therefore intends to proceed with a single code 028 for Northern Ireland with eightdigit local numbers, to be introduced in the year 2000. Oftel has set up a working group with local telephone companies and users to look at the numbering arrangements and implementation issues. Customers will retain their current local number within the new structure with two or three digits added to the front, depending on the current local number length. Current charge groups will generally be identifiable from the first two digits of the new local number. Oftel is now in discussion on the detailed substructure with local representatives with the aim of finalising an agreed plan by June 1997. To help businesses and users make the change to the new arrangements at a time which suits them, the 028 code and new local numbers should be available from 1999 operating in parallel with existing 01 numbers.
Belfast 01232 926 222 -> 028 9092 6222
Ballygawley 016625 34567 -> 028 8503 4567
Click here to view map of current code for Belfast
Click here to view new single code for Northern Ireland
Cardiff
29 To meet the emerging shortage of capacity in Cardiff 01222, Oftel put forward two proposals:
30 Responses showed general support for the new Cardiff code. However, the Welsh Advisory Committee on Telecommunications (WACT) asked Oftel to carry out a further consultation on an All Wales short code, with 8-digit local dialling throughout Wales. In addition, the Committee asked that Oftel considers the use of the short code 029 for Wales because 29 coincides with CY (for Cymru) and AW (for All Wales) on some alphanumeric telephone keypads.
31 Oftel therefore wrote to all Local Authorities, Chambers of Commerce and Telecommunications Advisory Committees in Wales asking for their views on an All Wales code. To date 35% support and 15% oppose a single code for the Principality, with 50% not replying or undecided.
32 In deciding on the best way forward, Oftel has to take into account the fact that Cardiff is the only area in Wales that is likely to need any change in its numbering arrangements over the next fifteen years. 15% of the population could therefore be seen as "imposing" a change on the remaining 85% if an All Wales code were to be agreed now. This, combined with the lack of a clear mandate from the consultation, has led Oftel to the conclusion that an All Wales code should not be introduced at the time of the Cardiff change in the year 2000 but should remain an option for the future.
33 Oftel therefore proposes to proceed with the introduction of a short code for the Cardiff area in the year 2000: 029 with 8digit local numbers beginning 2 - initially 20. This will provide the maximum flexibility for the future: allowing additional capacity to be provided to Cardiff in a million number blocks (beginning 21, 22 and so on) if and when needed and making it possible for other areas to change to the 029 code if appropriate or for the introduction of a full All Wales code at some future point.
Cardiff 01222 926 222 -> 029 2092 6222
Click here to view map of current code for Cardiff
Click here to view map of new code for Cardiff
Click here to view map of possible All Wales code
Portsmouth and Southampton
34 In the consultative document, Oftel proposed separate 02XX codes for Southampton and Portsmouth with existing 01703 and 01705 numbers changing in the year 2000. The principle of giving the two areas 02 codes was accepted. However, there was not clear local support at this time for expanding the current area code boundaries.
35 Within the 02 standard 8digit local number framework, Oftel now proposes that the two areas should have distinct numbering behind the 023 code - Southampton numbers beginning 8, initially 80, and Portsmouth numbers beginning 9, initially 92. The use of the single code will provide the benefit of dialling without codes between the two areas and recognises that they sit within the same economic subregion. The use of different leading digit for local numbers however allows the two cities to retain their identities and does not prevent the charging indications from being maintained. Other areas in the surrounding region could change to 023 YY if and when additional local capacity was required or such a change was requested.
Portsmouth 01705 926 222 -> 023 9292 6222
Southampton 01703 926 222 -> 023 8092 6222
Click here to view map of current codes for Portsmouth and Southampton
Click here to view map of new codes for Portsmouth and Southampton
Other areas
36 In the consultative document, other code areas were listed which, on the basis of current trends, may require more numbers over the next fifteen years. The move to an 8digit standard for 02 should delay the need for change in any area by some 3 years (see paragraph 21). In addition, the likely introduction of a business range for large corporate users (see below) and the spread of number portability could also have a significant impact on future demand. Oftel will keep the need for future code changes under close review. If and when any further code changes are necessary, existing 01 codes would change to the new 02 code structure with 8 digit local dialling. It is important that flexibility is retained to allow number capacity shortages to be addressed within the new structure where necessary. However, to minimise disruption, Oftel will endeavour to ensure that any future local code changes are grouped together at reasonable intervals. At least 3 years' notice of any code change will be given wherever possible.
37 The changes made to the Numbering Scheme on PhONEday mean that the UK has an ample supply of numbers to meet demands from new and existing services in the 21st century. The second part of the consultative document sought to finalise the arrangements for the numbering of these "nongeographic" services in order to make best use of the numbers available and to keep flexibility for the future. As explained in paragraph 7, existing mobile, personal, specially tariffed and premium rate services are currently dispersed across several numbering ranges. The current Numbering Conventions require that new numbers are allocated behind specified ranges but allow numbers that were in use before PhONEday to continue in nonspecified ranges. Oftel needs to ensure that, as far as possible, numbers are organised in a way that is helpful and gives some meaning to customers; in a way that encourages effective competition in terms of broad service/tariff indication; and in a way that facilitates compatibility between operators' Numbering Plans. It is also important that numbering resources are properly husbanded and conserved, with some entire ranges kept free for future uses.
38 The consultative document reviewed the current rules for nongeographic numbers and made proposals for policy changes to ensure that the UK's Numbering Scheme is sufficiently flexible to meet the longterm needs of a competitive market and to provide clear, understandable numbering arrangements for customers. It also proposed that the Conventions be modified to require prePhONEday codes to move to the specified ranges by certain dates. In determining any "sunset dates" proposed for these codes, Oftel needs to balance the general need to move to a more understandable Numbering Scheme against the wish to minimise disruption to customers, for example by allowing long periods of parallel running.
39 Responses showed strong support, particularly from consumers and consumer bodies, for the full implementation of a new Scheme and for requiring codes in nonspecified ranges to change to the specified range. Operators and service providers generally accepted the rationale for change but emphasised the importance of allowing sufficient time for a properly managed and phased implementation.
40 In the consultative document Oftel proposed that the 1 billion numbers in the 05 range should be reserved for the use of businesses with corporate networks and that the commercial and technical rules for implementation of the range should be studied by the industry and users. The basic concept of 05 was that blocks of numbers would be allocated to companies who would then be responsible for allocating individual numbers to users and equipment within their private or virtual private networks. Use of the range would be a matter of choice for business users who could elect to relinquish their existing numbers in order to benefit from the single 05 code. The 05 numbers would thus replace the existing 01 (or 02) numbers used by these larger business customers. Each company allocated numbers would be responsible for negotiating routing, billing and handover arrangements with one or more operators.
41 The principle of an 05 business range was overwhelmingly endorsed in responses. Users in particular saw benefits in having increased "ownership" and flexibility in the use of their numbers. They welcomed the stability that 05 would provide as well as the opportunity to integrate internal numbering plans with their public numbering arrangements. Some responses indicated that numbers for mobile terminals which are integrated into private network numbering plans could also have 05 numbers. Some also felt that part of the 05 range should be used for small singlesite businesses requiring 100 numbers or less. Potential users of the range argued for its introduction prior to the changes to 01 codes in London, Belfast, Cardiff, Southampton and Portsmouth in order to avoid two sets of changes.
42 Oftel's proposal for a tariff ceiling on the 05 range was accepted by most respondents, with a ceiling of up to standard national rate generally favoured. There was no clear consensus however on whether a single, or possibly two, fixed tariff levels should be set, or whether businesses with 05 should have freedom to negotiate companyspecific tariff rates with their service providers within the ceiling.
43 There appears to be a clear user demand for an 05 business range. Oftel now intends as a priority to establish the details of the range in consultation with the industry and users with a view to introducing 05 numbers during 1998/99. As a first step Oftel will be working with operators to create a consensus on the technical and commercial parameters for such a number range. Subsequently a wider group including likely business users would be formed to determine those aspects of the use of the number range that require common agreement whilst leaving appropriate scope for competitively differentiated services.
44 Oftel will produce proposals for consultation on the implementation and administration of the range by June 1997. Key issues which the industry and user discussions, as well as the consultation, will need to address include:
45 In the consultative document Oftel proposed that premiumrate services with a content element use the 09 range, initially 090, with 091 held in reserve for future use. This would provide callers with a clear indication of the service and tariff type. It would also bring the UK into line with Numbering Schemes in Europe and internationally where 0900 and 090 are increasingly used for these services. Taking into account the results of market research which showed a need for a more effective means to provide the caller with a broad expectation of the likely overall cost of the call, Oftel put forward a possible substructure for 090 codes based on total call costs. Oftel proposed that existing services in nonspecified ranges should move to the new codes by 1999.
46 Responses to the document showed overwhelming support for a move to 09. Users favoured an early "sunset date" on nonspecified ranges, while service providers argued for a long period of migration. There was concern, particularly from operators and service providers, that the proposed substructure based on overall call cost did not fit with the traditional arrangements based on pence per minute charges. They argued that many services are openended and would therefore have to use the "unlimited call cost" code even though the vast majority of call costs to those services might be low, say under £5. Nevertheless many users supported the proposed structure for the reassurance it could give callers that a call would not exceed a certain level. Several also recognised that the growth of services with "singledrop" charges (ie not a timedependent charge) and with "forced release" which end within a specified time (such as TV voting lines) could be easily accommodated within the proposed structure. There was also a strong response favouring a separate code for adult services.
47 Oftel therefore intends to proceed with the move of premiumrate services to the 09 range with capacity for multimedia services held in reserve. New 09 codes will be available for use from July 1997. All new numbers used from this time must be in the 09 format. In view of the strong consumer interest in establishing a clear and consistent numbering system for premiumrate numbers, Oftel would expect all premiumrate services to use 09 numbers by 1999. From this time all promotional material containing premiumrate numbers should use 09 numbers. It is envisaged that ICSTIS would include this requirement as one of the conditions governing premium rate services in a revised version of its General Code.
48 Oftel has set up an industry working group - comprising users, service providers and operators - to establish the optimum code substructure for the 09 range. This group will consider separate codes for services which operate by total call cost, such as single drop charge and forced release, and for those which are based on pence per minute charging. The working group will also establish rules for migrating existing numbers to the new ranges, in particular where the service providers wish to retain the current sixdigit number within the new range. The group will complete its work by March and Oftel will determine the detailed 09 structure for the Scheme by July.
49 In the consultative document Oftel proposed that the 08 range should be used for speciallytariffed services with a tariff ceiling of up to standard national rate. Oftel also asked for views on which codes should be used. The document set out Oftel's aim for these numbers to be used on a fully portable basis with numbers allocated directly to end users.
50 Responses showed support for the use of 08 for special services up to a national rate ceiling. The general view was that the subranges currently designated for these services should continue ie:
080 freephone
084 local rate
087 national rate
51 Although it was felt that the codes currently in use - 0800, 0845 and 0870 - would be the primary resource initially for these services, the more general use of the 08X structure would allow greater flexibility for the future. The move to direct allocation of numbers to end users was also strongly supported.
52 Oftel intends to proceed with the above 08X structure. From July 1997 all new numbers used must be in the 08 format. Oftel believes that as these codes become established as standard there will be a marketled migration to the 08 codes from codes in nonspecified ranges (such as 0645 and 0990). Oftel will keep the need for a "sunset date" for migration to the new range under close review, and will consult with representatives of users, service providers and operators on this issue and on migration methods with a view to proposing firm rules by July 1997. These will ensure that:
53 The 08 range will have a standard tariff ceiling of national rate. Other services charged at a higher rate must therefore move from the 08 range. Oftel also intends to move to direct allocations of 08 numbers as soon as this is practical and the necessary regulatory and charging arrangements are in place.
54 The numbering consultative document proposed that:
55 Oftel also sought views on the division of the 07 range by tariff with, for example, high tariffed services at the upper end of the range, 078 and 079, and lower tariffs beginning 070 and 071.
56 The proposal for a single "find me anywhere" range was made to promote greater efficiency of the Numbering Scheme - using one billion numbers for these services instead of two - and because of the general similarity between the services to people making calls to these numbers, particularly in terms of charging. The argument for moving existing mobile and paging codes to a standard range was also based on the general need to rationalise and make the best use of the Numbering Scheme - using one billion numbers for these services instead of two billion. Currently mobile and paging codes are spread across most ranges - 01426, 0370, 0374, 0378, 0385, 0400, 0402, 0421, 0441, 0468, 0585, 0802, 0850, 0860, 0956, 0958, 0973, 0976. This is confusing to customers and prevents the clear introduction of new ranges - eg 03 for future geographic services, 05 for corporate numbering, 08 for special services and 09 for premiumrate services.
57 Responses showed strong user support for Oftel's proposals to use 07 for new allocations and for moving existing numbers to the 07 range. Views of operators and service providers were mixed. Some personal numbering service providers argued that the services should remain separate allowing them to market a distinct identity for personal numbering. However, most operators supported the joint use of 07. Mobile operators were concerned at the costs and disruption involved in moving existing numbers to a standard range. Other operators and users generally saw benefits in rationalising the Numbering Scheme. There was however little support for dividing the range by tariff. Most responses felt that this would be unduly restrictive in such a dynamic sector as the mobile market and potentially anticompetitive, entailing changes to numbers when operators wished to change tariffs.
58 Oftel intends to use 07 as a "find me anywhere" range for personal numbering, mobile and paging services. 07 has potentially one billion numbers; even the most optimistic growth forecasts suggest that 1 billion would be more than sufficient over the next 15-20 years for these services. If technological developments and market demand eventually justified another range, then that the decision could be made at that time. If both 04 and 07 ranges continued to be used now, only 06 would be free to meet unforeseen needs for all future services and as a migration path for any expansion of the Numbering Scheme (just as 01 was freed to allow PhONEday). Combining the three services into the 07 range would keep both 06 and 04 free. Oftel has also taken account of international trends. No other country has put aside a billion numbers for personal numbering services: 0700, 070 or 0878 are increasingly used for personal numbering worldwide.
59 A single range also reflects similarity between the services and most mobile and personal numbering services currently have similar charging arrangements. In addition, call diversion and voicemessaging services are increasingly being offered by mobile operators providing similar facilities to basic personal numbering. A single range would also facilitate any future move to interservice portability.
60 Oftel recognises the wish of the personal numbering providers to retain a separate identity, particularly in the initial stages of the growth of the market. 070 will therefore be restricted to personal numbering and 071 and 072 held in reserve for these services. Distinct 07 subranges will be used initially for mobile and paging services and some will be held in reserve for service expansion or for new services. This is only an initial division of the range. If the convergence of 07 services continues and the demand for interservice portability grows, it may be removed following consultation.
61 Oftel also believes that it is essential for existing numbers to migrate to their appropriate place in the 07 range. Without this migration, the new arrangements for 03, 05, 08 and 09 could not be fully implemented as these new ranges would continue to have a mix of services and the 04 range would not be clear to meet future needs, The Numbering Scheme would remain confusing to customers unless a date is set for existing numbers to move. The migration of numbers from other ranges must therefore take place by 2001. This migration should involve only limited disruption to existing customers. The new 07 numbers will be available from early 1997. Given that the average "life" of a mobile number is currently around 2.5 years and that new allocations from 1997 will be of 07 numbers, a minority of mobile customers should have to have "forced" moves; the usual method of migration will be by normal customer churn. The details of the migration will be agreed between operators and Oftel during 1997. This will include consideration of arrangements which may need to be put in place for analogue mobile numbers
62 Access codes are very short, generally memorable numbers beginning with "1", which allow customers to access services (for example 100 for operator services; 1471 for Call Return) and to select a carrier to route their calls (for example BT customers dial 1602 to send their calls via ACC's network). These codes are generally three or four digits long and are therefore in limited supply. In the consultative document Oftel proposed methods by which the resource could be expanded: extending codes to five or six digits or limiting the amount of services that can use access codes. The majority of responses favoured extending access codes for certain services to 5 or 6 digits.
63 The European Green Paper on Numbering published in November 1996 makes proposals for the greater integration of the European Numbering Scheme. A central feature of these is the harmonisation of access codes across Europe to provide common carrier selection codes and access to potential panEuropean services. This would entail significant changes to the policy for the provision o codes both in the UK and other Member States. The consultation ends in February and the Commission's conclusions will be announced later in 1997. In view of this, Oftel does not propose making significant changes at this time to access codes but will review the position at the end of the year when the Commission's intentions should be clearer. In the meantime Oftel will draw up with the industry measures, under the current Numbering Conventions, designed to conserve the access code resource. These conservation measures will aim to ensure that there are sufficient codes to meet demand during 1997, in particular from operators with new international facilities licences.
64 Under the current Numbering Conventions, only those operators with an individual Telecommunications Act licence containing the "Relevant Numbering Condition" may obtain numbers directly from Oftel. The Numbering Condition contained in those individual licences requires the licensee to adopt a Numbering Plan which allocates numbers in accordance with the UK Numbering Scheme, and to comply with Oftel's Numbering Conventions. Independent Service Providers (ISPs) provide services to end users over the networks of operators. Up to now, relatively few ISPs have obtained individual licences in order to acquire numbering capacity in their own right. Oftel is aware however that ISPs are increasingly interested in obtaining numbers in order to provide their services.
65 Under the proposals in the consultative document, end users, rather than operators, would eventually have rights to direct allocations of 08 and 09. In addition, Oftel proposed allowing more direct allocations of blocks of numbers in other ranges to ISPs when the primary purpose is to use those numbers in the provision of services to third parties. Responses showed general support for this move, although there was concern that this should not lead to inefficiency in the use of the numbering resource.
66 In order to help provide effective competition, Oftel intends to proceed with the allocation of numbers from parts of the Numbering Scheme directly to ISPs as soon as this is practical. At the same time, it will be necessary to impose relevant obligations on them to ensure efficient and appropriate use of the Numbering Scheme.
67 Oftel intends to move to a situation where it is not necessary to have an individual licence in order to obtain numbering capacity, but where numbers can be allocated under a class licence or by some other means. The Telecommunication Services Class Licence (TSL), under which most ISPs currently operate, does not contain an obligation to draw up a numbering plan for numbers from the National Numbering Scheme or other obligations such as the reciprocal provision of number portability. One option is to modify the TSL to include these and other obligations such that those operating under it would be given rights to direct allocations of numbers. It is possible that several changes to the TSL and other licences will flow from EC Directives which are coming into force on 1 January 1998. Oftel will therefore consider with the Department of Trade and Industry modifications to the Numbering Condition contained in the TSL as part of the move to a general review of the licensing framework to be conducted over the coming year. As an alternative option, Oftel is also looking at ways in which ISPs could have access to direct allocation in the absence of an appropriate licence condition, for example through a contractual arrangement between the service provider and Oftel.
68 In the meantime, ISPs who require direct allocations of numbers from Oftel for the provision of telecommunications services to third parties, may continue to apply for individual licences which would contain the necessary obligations to ensure efficient use of the Scheme.
69 In order to ensure that the efficiency of the Numbering Scheme is maintained, Oftel intends to allow access to numbers by ISPs only when the primary purpose is to use those numbers in the provision of service to third parties. The detailed rules for access to numbers by ISPs will vary depending on the type of service being provided.
70 Demand for geographic numbers (01/02) from ISPs is likely to be significantly smaller than the normal block size of 10 000 numbers and so allowing direct allocations to ISPs would be likely to lead to a serious reduction in numbering efficiency and the premature exhaustion of many 01 area codes. Direct allocations of 01 and 02 numbers will initially therefore continue to be available only to public operators. However, with technological developments it may become possible to make smaller allocations - say in blocks of 1000 and 100 numbers. Oftel will therefore review the policy on 01 and 02 allocations to ISPs in 1999. Allocations of mobile, personal and paging numbers (07) will be made to ISPs once the necessary licence arrangements are in place. To preserve the efficiency of the Scheme, the normal allocation to operators and ISPs will in future be in blocks of 100 000 numbers. As explained above, allocations of corporate (05), special service (08) and premiumrate (09) numbers will in future be directly to end users; special rules are not therefore needed for ISPs. Policy on the allocation of access codes to ISPs will be included in the general review at the end of 1997 (paragraph 63).
71 Number portability is a facility whereby customers are able to keep their telephone numbers when they change operators. Portability of geographic (01) numbers is now being offered in the UK. The consultative document sought views on issues related to the extension of portability to other types of services.
Extending portability
72 The Consultation Document noted that geographic number portability was being developed and proposed the extension of number portability to specially tariffed services, personal, mobile and paging numbers, premium rate services and corporate numbers. It sought views on these priorities and asked whether there were any numbers to which Oftel should not extend portability.
73 There was widespread support for the extension of number portability to all services. In terms of priorities, there was general support for the early introduction of portability of specially tariffed services and mobile services. Mobile portability, in particular, was highlighted as a top priority by businesses and user groups. There was also significant support for extending portability to premium rate services.
Porting of "inconsistent" numbers
74 The extension of number portability raises the question of whether portability should be available for those numbers which are inconsistent with the Numbering Scheme (numbers used for purposes other than those specified in the Numbering Scheme or those which have fewer digits than the standard number length).
75 In cases where operators have not standardised the number length, respondents supported the proposal that portability should be permitted, provided that the recipient operator agrees to replace the number with its longer equivalent when the donor operator standardises the number block from which it comes.
76 On the question of numbers which are used for purposes other than those specified in the Numbering Scheme, the consultative document suggested that in general portability should not be available for such numbers. An exception was proposed for existing freephone numbers, in view of the fact that there are already 6 and 7digit 0800 numbers as well as competitive freephone services in other number ranges. Preventing the porting of "inconsistent" freephone numbers would put some operators at a competitive disadvantage.
77 Responses to this question were mixed. A significant number of respondents called for portability to be allowed. Concern was expressed that the benefits of portability would, in the short to medium term, be limited if it was only available for numbers in the specified ranges. The launch of portability for specially tariffed services (due this summer) would be very limited in scope and would not benefit existing users (whose numbers lie outside the proposed 08 range). Against this, some respondents considered that portability should not be available for such numbers. Allowing "inconsistent" numbers to be portable would slow the migration to new ranges.
Porting between service categories
78 The consultative document explained that up to now Oftel has taken the view that portability should be confined to "like for like" purposes (eg portability cannot result in a geographic number in the 01 range being used for anything other than a "geographic number purpose"). The consultative document sought views on whether this continues to be appropriate for the short term and whether Oftel should consider - as an option for the medium term - portability between service categories (eg allowing the porting of a geographic number for a personal numbertype application). It was proposed that such interservice portability should be guided by the principle that the calling party should pay a tariff within a range expected for the number.
79 The responses revealed considerable concern about the possibility of portability between service categories. A majority of respondents considered that interservice portability should be ruled out, largely on the grounds that it would confuse calling customers. A significant minority, however, did support the idea of interservice portability.
80 With regard to "like for like" portability, some concern was expressed that allowing portability between all 07 services would blur the distinction between mobile, paging and personal numbering services.
Extending portability
81 Oftel will continue to treat as a high priority the extension of number portability to specially tariffed services. Considerable progress has already been made and operators are expected to begin offering portability of freephone, local rate and national rate numbers during the summer of 1997. In view of the support for portability of premium rate services, Oftel will encourage consideration of this as part of the work already underway on portability of specially tariffed services.
82 Given the strong support from businesses and user groups, Oftel also attaches a high priority to the introduction of mobile number portability. Oftel will be encouraging discussion of technical and commercial issues, with a view to agreeing methods of implementation. Oftel considers that modifications to mobile operators' licences will be required to facilitate the introduction of portability. Oftel intends to seek views on appropriate licence modifications later in the year.
83 Oftel is committed to the principle of portability for all types of numbers, including personal numbers and paging numbers. Portability of paging numbers should closely follow the work on mobile number portability but will need to be taken forward separately, since different operators and different systems are involved. Examination of technical approaches should await the conclusion of similar work on mobile portability. Portability of personal numbers will be examined further during the course of 1997. In the case of corporate numbers, 05 number blocks will be directly allocated to end users who will then be free to choose - and change - their carriers. Special provisions for portability between operators will not be needed because the number blocks will be "owned" by the end user.
Porting of "inconsistent" numbers
84 As proposed in the consultative document, where existing numbers are to be replaced with longer numbers, portability will be allowed - provided that the recipient operator agrees to replace the number with its longer equivalent when the donor operator makes the general change to the number block.
85 The question of numbers used for purposes other than those specified in the Numbering Scheme will affect numbers used for services which relate to the proposed 07, 08 and 09 ranges. As noted above, a mixed response was received on this point. In reaching a conclusion it was necessary to take account of the impact on the introduction of portability, on the one hand, and the effect on the migration to the proposed ranges, on the other.
86 Oftel considers that portability should be allowed for specially tariffed service numbers (such as 0345 and 0500) which, to begin with, lie outside the 08 range. An important factor in reaching this conclusion was the potential impact on the introduction of portability if it was not available for these "inconsistent" numbers. Portability of specially tariffed services is due to be introduced during the summer of 1997. In preparation for this, operators are due to begin trials in the spring. A large number of users of these services are eagerly awaiting the introduction of portability, and many are delaying a switch of operators until portability is introduced. Around half of the codes currently allocated for freephone, local and nationalrate services lie outside the proposed 08 range. Preventing the portability of these numbers would mean that many users would be unable to benefit from portability when it is introduced. If, following the consultation referred to in paragraph 52 above, a sunset date is introduced for migration to 08, this would also apply to ported numbers.
87 In the case of mobile and premiumrate services, Oftel considers that portability should not be available for numbers which lie outside the 07 and 09 ranges. At present there is no agreed date for the introduction of portability for premiumrate and mobile services. A restriction on porting of "inconsistent" numbers for these services should not significantly limit the introduction of portability or conflict with user expectations. In view of the strong consumer support for migrating these services to the new ranges, sunset dates have been proposed for "inconsistent" mobile and premium rate services numbers. Preventing portability of these "inconsistent" numbers should ensure a significant market migration to the appropriate ranges before the sunset date. In the case of mobile services, Oftel also considers that this rule should be applied when operators offer incentives for customers to move from analogue to digital networks. Such migration from an analogue to digital mobile network should be accompanied by migration to the 07 range.
Porting between service categories
88 Although a majority of respondents were opposed to portability between service categories, the degree of support for such portability suggests that, at the present time, this should not be ruled out for the future. Interservice portability may need to be examined again, once portability is available within each service category. For the time being, Oftel will continue to take the view that portability should be confined to "like for like" purposes and should not result in the calling party paying a tariff higher than that expected for the number. Where number ranges include a substructure (07, 08 and 09 ranges) based on different tariffs or service, portability should be restricted within each subrange. Thus, an 0800 number should not be ported to an 0870 type service. Similarly, portability should not be used to undermine the consumer information provided by the substructure of the new 09 range. In the case of 07 numbers, this policy will be reviewed in 1998, taking account of the development of portability, customer identification of the 07 ranges and the possible introduction of new services. Portability between, say, paging and mobile services should not be ruled out in the medium to long term.
89 This Statement sets out future policy for the UK's National Numbering Scheme. It puts in place a structure - set out below - which is more meaningful for customers and also provides greater flexibility to meet future demands for numbers.
90 Oftel will continue its discussions with users, service providers and operators to finalise details of the plans to implement this structure within the timescales specified. Draft Numbering Conventions are being published to revise the rules for the management of the Scheme in accordance with the policy outlined in this Statement.
Numbers beginning with To be used for
01 Geographic Area Codes
02 Geographic Area Codes
03 Reserved for Geographic Area Codes
04 Free
05 Reserved for Corporate Numbering
06 Free
07 Find Me Services: Personal Numbering, Paging and
Mobile
08 Special Services up to national rate tariff
09 Premium rate services and reserved for
multimedia
91 This group is an advisory body set up under section 54(3) of the Telecommunications Act 1984.
92 Its function since it was formed in March 1996 has been to advise on numbering policy and implementation issues and to assist the Director General in his review of the structure of the UK Numbering Scheme, specified in the Numbering Conventions.
92 The Group's members were appointed by the Director General from nominations put forward by the telecommunications industry and user groups. Membership is for an initial period of one year and the present members are:
SaraJane Amey, Energis
John Boag, FEI
Michael Bryan-Brown, COLT
Richard Cox, Mandarin Technology
Philip Cullum, Consumers' Association
Michael Dixon, TMA
Richard Furey, Business Advisory Committee for Telecommunications
Emma Gilthorpe, Mercury Communications Ltd
Alan Hadden, Mercury Personal Communications Ltd
Tony Holmes, BT
Claire Milne, Antelope Consulting
Alistair McLeod, Independent Consultant
Noel Scanlon, Consumer Expert
Martin Sadler, Hewlett Packard Laboratories
Malcolm Taylor, Telewest
Isobel Watt, Scottish Telecom
93 The Group has also been assisted by occasional ad hoc working groups, and by independent experts, notably Steve Carter of Coopers & Lybrand.
94 The Groups Terms of Reference are:
(a) consider the issues which arise in the Director General's review of the UK Specified Numbering Scheme;
(b) advise the Director General on the implications of numbering issues for consumers, operators and other interested parties;
(c) advise the Director General on appropriate means of
(d) suggesting means of ensuring the most beneficial development of the National Numbering Scheme over the next 5-10 years and beyond.
