THE Government yesterday issued a position paper on telecommunications policy laying out a plan for developing the market following the end of Hongkong Telecom's domestic monopoly after 1995. The paper, drawn up by the Economic Services Branch, says the Government recognises that telecommunications is also a social issue, and promises to ensure that the extra competition will not mean that those who use the phone infrequently or live outside urban areas will be charged extra. It says the Government will maintain that Hongkong Telecom keep its universal service provision while it remains the dominant carrier.