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eg. What policies would have the greatest impact on the problem of stimulating local exchange service competition?
Questions can be implicit within a research question. For example, it is unnecessary to ask "What is the Telecom Act of 1996 and what policies would have the greatest impact on promoting competition in long distance and in local service?" In answering the question "What policies would have the greatest impact on promoting competition?" you would need to describe what the current situation is before solutions could be suggested.