The European Commission (EC) has opened a public consultation into roaming charges for phone services, text messages and data use.
The Roaming Regulation Consultation is open until 11 February, and is soliciting input from consumers, businesses, telecoms operators and public authorities.
Neelie Kroes, vice president for the Digital Agenda, said that different domestic and roaming charges had no place in a single European Union market.
"We need to address the source of current problems, namely a lack of competition, and to find a durable solution. But we are keeping an open mind on exactly what solution would work," she said.
The EC wants feedback on how to meet its goal of creating a single telecoms market by 2015 where there is no cost difference between national and roaming charges.
However, Ovum analyst Matt Howett believes that introducing a single flat-rate across Europe will be difficult, and that operators are more likely to take it upon themselves to work out the problem to the EC's satisfaction.
"Many operators are aware of the need to change the structures around roaming, and are working on solutions to solve the issue," he said.
"The trouble for the EC is that it is basing its view point in this consultation on data from about six weeks ago. This is a very fast moving industry, so it doesn't take into account all the work being done to help end users."
Howett also believes that any further caps on charges will hinder pricing innovation as most operators will merely set prices on or near the cap.
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