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I think you are close with that.
Personally, I think it is a consequence of the separation of Openreach, and the way in which "equivalence" operates in practice.
First, as you say, everything (whether it is a successful change, a failure, a question, or a report) has to roundtrip back via the CP, or the CP's CP. Making fast decisions - whether to pay more, investigate further, give up, or revert - is impossible. Often made more impossible when every actor is trying to prune costs.
Second is the fact that each roundtrip drops you to the back of the task queue - more waiting. There are ways to expedite, but it either takes time, or money to trigger this ... unlikely to happen in big, cost-focussed ISPs. The common support model - where you get to talk to different support staff members each time you call - makes it hard for ISPs to easily figure the people who need this.
Third, the system used to place orders for broadband - enforcing the equivalence rules - only allows one order at a time. It is impossible to be subtle, say, ordering a line fix to be investigated with a temporary ADSL provision if all else fails. Right now, getting a temporary ADSL connection provision requires the FTTC order to be cancelled first, and reordered after an ADSL order succeeds.
Without a vertical monopoly, I can't see how we can fix this on a single, open access infrastructure.
Should Openreach staff be split into silo's for each CP? All able to work on the same infrastructure, but only for their own CP customers? With Ofcom measuring the support statistics?
I don't see that separating Openreach from BT would make this better or worse.
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