Connectivity to balance Gram Panchayats and all the villages of the country

Sarvesh Singh, Chairman & Managing Director, Bharat Broadband Networks Ltd. (BBNL) spoke to Gajendra Upadhyay, Editor, Voice & Data about the past, present, and future of the BharatNet project.

BBNL has already created a huge infrastructure on the ground with close to 5.7 lakh kilometers of fiber reaching Gram Panchayats and beyond. Bharat net has seen some great initial successes and a few hiccups, which are expected to be overcome with the new Public-Private Partnership model in phase III. It is one of the most critical building blocks of Digital India and the future of our Economy.

Sarvesh Singh took over as CMD of BBNL in February of 2019. He belongs to the Indian Railways Service of Signal Engineers (IRSSE) cadre and is an engineering graduate (Electronics & Telecommunications) with more than 30 years of experience in Indian Railways’ Signalling and Telecommunications.

He has worked at various levels and in different positions at Zonal Railways throughout India. His work experience has given him a rich understanding of telecommunications networks and technologies.

What is the core difference between the first and second phases of the Bharat Net project?

BharatNet Phase-I has been implemented by tapping existing Fibre of Bharat Sanchar Nigam Limited (BSNL) and by laying underground incremental 24 F optical fiber cable in linear topology with Gigabit Passive Optical Network (GPON) technology. Phase-I has been implemented through three central Public Sector Undertakings (CPSUs) – Bharat Sanchar Nigam Limited (BSNL), RailTel Corporation of India Limited (RailTel), and Power Grid Corporation of India

Limited (PGCIL).

The target of completing 1,00,000 GPs under Phase-I of BharatNet was achieved in Dec 2017. Subsequently, the work front of Phase-I was revised and about 1.19 GPs have already been made Service Ready.

The Cabinet approved a modified strategy for BharatNet on 19th July 2017, which integrates the implementation experience of Phase-I of the project and aligns it with the vision of Digital India.

The maintenance of BharatNet Phase I network has now been entrusted to BSNL, who has come out with tenders for end to end maintenance of the network.

The modified strategy of BharatNet Phase-II permits an optimal mix of media – OFC (aerial/underground) / Radio / Satellite unlike the underground OFC alone in Phase I. It allowed for a minimum 1 Gbps bandwidth (on wired media) while in Phase I it was a minimum of 100 Mbps; laying fresh (48 F & above Underground or 24 F & above Aerial) fiber right from the Block till GP unlike Phase I where BSNL existing fiber was used in part of the network till FPOI (Fibre Point of Interconnect), laying incremental fiber beyond till the GP; it allowed for multiple implementing models – like, State-led Model, Private Sector — against the CPSU led model in Phase I; implementation in Phase II had been largely in EPC mode with O&M work entrusted to the implementing agency.

BharatNet is now to be extended beyond the Gram Panchayats to cover all the 6.4 lakh Villages (including GPs) of the country. The target is to be achieved by 2025.

The second phase also had a provision for introducing the Ring Architecture. Can you briefly elaborate on its value vis a vis the linear format of Phase - 1?

The funding for BharatNet Phase-II was approved for GPON technology with linear topology, however, States implementing under a State-led model were given the flexibility to undertake the implementation of an enhanced network architecture (including ring topology) and technology using their own additional funds.

Five States viz. Andhra Pradesh, Tamilnadu, Telangana, Maharashtra, and Chattisgarh are implementing BharatNet Phase II on ring topology using IP-MPLS technology.

In-Ring topology network elements/devices are connected in a circular path whereas in linear topology network elements/devices are connected in a linear path. Normally, in-ring topology IP-MPLS routers are used whereas in linear topology GPON (OLT/ONT) equipment is used. The ring topology gives the protection from a single OFC cut; as such network availability figures are high. The cost of implementation of ring topology is however higher than the linear topology.

What is the main objective of Phase III and is this likely to be the final phase to cover all Gram Panchayats (GPs) and villages.

As per Cabinet approval of 19th July 2019, BharatNet Phase III would be in the nature of up-gradation of the network to meet future requirements, however, the detailed methodology for the same was to be worked out subsequently.

Now, BharatNet under Public-Private Partnership (PPP) model, would extend connectivity to Villages and the remaining gaps. It would also include up-gradation of the network from Linear to Ring based on population criteria, along with long-term maintenance and Utilisation.

There have been several models used by BharatNet, including partnerships with BSNL / Railtel, EPC, and now PPP. Which of these in your view is probably the Optimum framework.

So far, implementation of BharatNet has been tried through various models such as CPSU-led model, State-led model, Private-led models, etc. The target of completing 1,00,000 GPs under Phase-I of BharatNet was achieved in Dec 2017. Overall, more than 1.76 lakh GPs have been connected, and work for another 40000 GPs is in progress. All the models have made their share of contributions to the present achievement on the implementation front.

For the PPP model, almost all the prospective Bidders were concerned that the VGF offered is low, possibly due to conservative estimation of Project Cost coupled with unrealistic Revenue Projections.

The ultimate objective of BharatNet will however be achieved when the rural lives are changed by the delivery of broadband services using BharatNet. The Utilsation of BharatNet is an issue of concern that we are collectively trying to address.

The PPP model aims to co-opt the private sector as partners with a stake in the success of the project. Would that be the correct way to look at it?

BharatNet is now to be extended beyond the Gram Panchayats to cover all the 6.4 lakh Villages (including GPs) of the country. The target is to be achieved by 2025. Besides pace of implementation, maintenance of the network to industry-level standards and its Utilisation are other challenges.

Five States viz. Andhra Pradesh, Tamilnadu, Telangana, Maharashtra and Chattisgarh are implementing BharatNet Phase II on ring topology using IP-MPLS technology.

Co-opting of the Private sector would expedite implementation, improve network uptime and drive the much-needed Utilsation, in the most efficient and effective manner.

Maintenance of such a massive infrastructure that is mostly underground is a key activity and also a continuous one – spread over decades. What are the main requirements to ensure this does not fall short of expectations?

BharatNet OFC has encountered wide-scale damages due to road widening, water pipeline laying, and other ongoing developmental works in rural areas. At the Gram Panchayats where the GPON equipment is kept, many times the GP officials do not exercise sufficient ownership of the equipment; at many places, the condition of GP buildings is not good and some GPs have no or inadequate power supply. This leads to theft and damage of equipment at GP level. Putting enough resources to protect and maintain the network in the rural remote areas is a costly affair.

Maintenance of BharatNet Phase I is with multiple agencies viz. BSNL, CSC, and GPON vendors, and coordinating for the same is a challenge due to divided responsibility.

To overcome this challenge, the maintenance of the BharatNet Phase I network has now been entrusted to BSNL, who has come out with tenders for end-to-end maintenance of the network.

Additionally, BBNL has procured additional spares of GPON equipment to reduce downtime. The GIS mapping of BharatNet assets is being expedited to aid maintenance.

In the long run, it is planned to select a Private Service Partner, through PPP mode, who would do long-term Operation and Maintenance of the network for 10/ 20 years along with construction and up-gradation of the network.

For the PPP tender, prospective concessionaires had raised hundreds of queries and doubts. What are your observations on their key concerns?

The Request for Proposal (RFP) was floated in July 2021 for the implementation of BharatNet through the Public-Private Partnership (PPP) model in 16 States of the country covering about 3.61 lakh villages (including 1.37 lakh GPs) for an estimated maximum Viability Gap Funding (VGF) of Rs. 19,041 crore. Thousands of queries were raised by the prospective bidders which we attempted to clarify within the ambit of Cabinet approval. However, almost all the prospective Bidders were concerned that the VGF offered is low, possibly due to conservative estimation of Project Cost coupled with unrealistic Revenue Projections.

The Bidders also had concerns about the quality of BharatNet assets being transferred to them. Lack of flexibility in the use of technology and network design, including leveraging of Bidder’s own assets were other concerns that kept the Bidders away from participation. The Bids were finally discharged in Februray’2022.

BharatNet's PPP strategy is being reworked now to address these concerns. Fresh tenders will be floated once the Cabinet approval is obtained.

BSNL - BBNL is in the process of being merged. Will this deliver a better execution for the network?

BharatNet is a middle-mile infrastructure between Block and the Gram Panchayats. The GPON equipment (OLTE) at the Block level is kept in the BSNL Exchange and also fed from its power supply system. In BharatNet Phase I, the BSNL fiber is used till the Fibre Point of Interconnect (FPOI), beyond which incremental fiber has been laid up to the Gram Panchayats. BharatNet Phase I uses more than 1.9 lakh Km of BSNL fiber which is almost 40% of the Phase I network. BharatNet Phase II does not use BSNL fiber but GPON equipment at most of the places (except States adopting ring architecture) is still kept in BSNL exchanges.

In order to provide the services at the GP level, the Internet bandwidth is to be fed into the OLTE at BSNL Exchange. BSNL with its own ILL (internet leased line) at the Block level and its network of franchises in the last mile, is better placed to utilise the network.

BSNL has the largest OFC network in the country. This experience can be used for end-to-end maintenance of the BharatNet network.

Considering all this, to bring synergy in operations, maintenance, and utilisation of BharatNet, the O&M, and Utilisation of BharatNet have been entrusted to BSNL since April 1st of this year (2022). It is also a thought that handing over of BharatNet assets to BSNL for O&M and Utilisation will provide the much-needed financial support to BSNL in the times to come.

What is your own vision of BharatNet over the next 3-5 years. It is a critical component of our economic infrastructure.

Presently, BharatNet has 5.7 lakh Km of OFC laid to connect 1.75 lakh Gram Panchayats. The majority of the balance of 40,000 GPs for which the work is in progress will be completed in the current financial year and the remaining GPs, mainly of Tamilnadu and Andhra Pradesh will be connected sometime in 2023-24 – taking the BharatNet OFC assets to 7 lakh kilometers.

Connectivity to balance Gram Panchayats and all the villages of the country, including up-gradation of the network from Linear to Ring would be undertaken through PPP mode. Once implemented fully, BharatNet will be one of the largest OFC networks in the country with 23 to 24 lakh Km of OFC assets.

The biggest challenge we are facing, for the time being, is Utilisation. We are trying to push Utilisation by roping in the private ISPs under a Revenue Sharing Agreement. More than 100 such agreements have already been signed between BBNL and the ISPs. Meanwhile, BSNL is also making efforts to push the Utilisation of BharatNet through their own franchisee arrangement. With the use of online platforms for commerce, delivery of groceries, government services, development of telehealth, tele-education, and remote work, not to speak of streaming music, videos, and movies on over-the-top (OTT) applications, we expect demand for high-speed broadband in remote and rural areas will multiply and BharatNet will play a role here.

As maintenance of the network to industry level standards is key to Utilisation, BSNL has also undertaken SLA (service level agreement) based maintenance (end to end) of BharatNet network.

Providing services in rural and remote areas at an affordable price in the face of uncertain demand and poor network uptime has raised viability concerns. The government may provide subsidies to address the concerns on the viability front.

By Sarvesh Singh

Chairman & Managing Director, Bharat Broadband Networks Ltd.

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