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영국에서의 망중립성 규제: 투명성 및 가입자의 망사업자 전환 용이성의 강화

Net Neutrality Regulation in the UK: More Transparency and Switching

윤혜선|Chris Marsden
법학연구소 (The Institute of Legal Studies Konkuk University)|2014.05|경제규제와 법|제7권 제1호|pp. 69-96

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참고문헌

키워드

투명성(transparency)Ofcom트래픽 관리(traffic management)전환(switching)특수서비스(specialized services)
주제분류법학

초록

영국의 망중립성 정책은 규제기구인 Ofcom과 영국 특유의 망시장구조와 관련이 있다. 이 글의 제1장에서는 먼저 영국의 망시장구조와 보편적 서비스제도를 설명하고, 이어서 방송통신규제기구를 소개한 후, 규제기구가 콘텐츠 throttling와 차단에 대한 이용자들의 불만이 상당함에도 불구하고 망중립성문제를 해결하기 위해 아무런 조치를 취하지 않은 이유를 설명한다. 영국의 광대역망 시장은 전국을 상대로 하는 도매 망사업자가 단일사업자이기 때문에 상대적으로 경쟁이 적은 편이고, 미국, 한국 또는 네덜란드에 비해 광대역 서비스가 늦게출시되었고 그 속도도 낮은 편이다. 이러한 이유로 정부와 규제기구의 관심은 독점사업자인 British Telecom(BT)사의 초고속 서비스 투자를 장려하는데 기울어 있었다. 2013년부터2015년 사이에 정부가 구 독점사업자에 지급한 직접보조금은약 15억파운드에 달한다. 망혼잡의 문제는 이미 2005년부터제기되어왔으며 2006년에는 Ofcom이 문제를 직접 인지하게되었는데, ISP인 TalkTalk의 CEO가 개인적으로 소비자들이자사의 P2P 콘텐츠 throttling행위에 대해 분노하고 있다는 사실을 고백하였을 뿐만 아니라 영국의 공영방송사업자인 BBC도 자사의 P2P 동영상 스트리밍서비스가 BT에 의해 throttling되었다고 밝혔기 때문이다. Ofcom과 영국 정부는 자율규제방식을 통해 최종이용자들에게 더욱 투명한 정보를 제공할 수 있을 것이며, 규제는 만약차단과 throttling이 발생한다면 이론적으로는 합리적인 가입자의 사업자 전환가능성에 한정되어야 한다는 태도를 고수해왔다. 지금까지 Ofcom은 망중립성에 대하여 다음과 같이 복합적인 반응을 보여왔다. 2006년까지 망중립성의 문제는 없다고 부인했으며, 망중립성 문제로 인정된 문제를 수용하고다루겠다는 의지를 피력하고, ISP들 간의 고객전환문제를 규제하고, 공영방송사업자인 BBC가 광대역을 통해 제공하는 동영상 서비스를 규제하고, ISP들에게 이용자에 대한 투명성을제고하도록 설득하기 위한 솜방망이 시도 등을 해왔다. 제2장제1항에서는 이들을 차례로 검토한다. 제2장 제2항에서는 민관협력체인 광대역이해관계자집단(Broadband Stakeholder Group, (BSG))의 후원 하에 투명성 강화를 위한 사업자 행동강령(Code of Practice)이 만들어지기까지의 전개과정을 설명한다. 2008년 Ofcom은 ISP들을 설득하여 광대역망의 속도와 혼잡 홍보에 관한 행동강령에 서명하도록 하였다. 이후 동 행동강령은 내용의 불충분성으로 인해 2011~2013년 BSG 코드에 의해 대체되었다. 정부와 Ofcom의 이러한 자율규제에 대한 솜방망이식 심사에 대하여 많은 비판이 제기되었는데 인터넷 발명가인 Tim Berners-Lee경도 그러한 비판가 중에 한 사람이다. 최근에는 한국에서도 문제되고 있는 서비스의 품질(Qualityof Service (QoS))과 특수서비스에 관련된 기준이 문제가 되고 있다. 제3장과 제4장에서는 QoS와 대역폭 제한의 정의가함의하는 바를 설명한다. 영국은 ‘투명성 및 가입자의 사업자 전환’ 정책을 거의 10년간 유지하고 있다. 이는 2008년까지 “지켜보자”는 유럽집행위원회의 태도에 의해 지지되었다. 유럽집행위원회는 2010년에서 2012년 사이에 지켜보자는 태도를 다시 취하였다. 현재 이러한 태도는 새롭게 구성된 유럽집행위원회와 의회의 망중립성 규제를 실시하여야 한다는 전통적인 주장에 의해 대체되었다. 2013년 9월 11일 발의된 Connected Continent 안이통과된다면 영국에 엄격한 규제 의무가 부과될 것이고 동시에 2013년 7월에 영국정부가 발간한 ‘의견수렴보고서’를 순식간에 무용지물로 만들 것이다. 영국은 2014년 회원국각료회의등을 시작으로 유럽집행위원회의 계획에 대해 격렬히 반대할것으로 예상된다.

Abstract

UK network neutrality policy is influenced both byits regulator, Ofcom, and its particular and uniquenetwork topology. In Section Ⅰ, I first explain thenetwork topology, universal service, then introducethe regulator and explain why it has not taken onany disputes over net neutrality despite substantialuser disquiet about throttling and blocking ofcontent. The UK broadband market has relativelylow competitive intensity with only one wholesalenetwork for the majority of the population, and hasexperienced slower rollout to lower speeds than theUnited States, Korea or Netherlands. As a result,governmentand regulator concern has been toencourageinvestmentin faster services by theformer monopoly British Telecom (BT). Direct stateaid for the former monopoly will amount to almost£1.5billion in 2013-2015. Problems of congestionhaveplagued the network since at least 2005,brought to the direct attention of Ofcom in personin 2006 by both ISP TalkTalk which admitted toconsumerangerat its throttling of peer to peercontent, and the state broadcaster British BroadcastingCorporation, whose peer to peer videostreaming was throttled by BT. The regulator and government response hasbeen to insist that self-regulation could producegreater transparency to end-users, and regulationshouldbe limited to the theoretical possibility toswitch should blocking and throttling occur. Ofcomhas so far responded with a combination of denialthat there was a problem until 2006, an acceptanceand willingness to deal with those problems thatwere shown to have emerged, regulation of customerswitching problems between ISPs since 2006, and alight touch attempt to persuade ISPs to offer greatertransparency to users. I examine these in turn inSection Ⅱ.1. In Section Ⅱ.2, I explain the slow progress towardsa Code of Practice for greater transparencyunder the auspices of the government-industrypartnership, Broadband Stakeholder Group (BSG). ISPs had been persuaded by Ofcom to sign a codeof conduct on advertising broadband speed andcongestion in 2008, though this was inadequateand then replaced by the BSG Code from 2011-13. Continued government and Ofcom light-touchreview of this self-regulation was critiqued byamongst others Sir Tim Berners Lee. More recent concerns over standards relate to Quality of Service(QoS) and specialized services, which may alsobe shared in Korea. I explain the implications ofdefinitionsforQoS and bandwidth caps in SectionsⅢ-Ⅳ. UK ‘transparency and switching’ policy has beenmaintained for almost a decade, supported by theEuropean Commission’s wait-and-see approachup until 2008, and then again in 2010-12. It is nowsupplanted by the European Commission newlyfound and Parliament’s traditional insistence thatnet neutrality regulation be implemented. TheConnected Continentproposal of 11 September20131) would impose strict regulatory requirementson the UK, and makes the July 2013 UK government‘consultation paper’ instantly obsolete. The UK canbe expected to fiercely resist the Commission’splans from within the Council of Ministers in 2014.

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