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It's a different issue but from what I've gathered, a lot of people believe that the reason for the surcharge from customers in less important markets is to cover the "free 3G" costs for everyone (because whatever Amazon's arrangements with the local providers, someone is paying for the 3G, after all).
It's of course pure speculation as Amazon has to my knowledge always completely refused to explain the actual reason for the surcharge. (When I once e-mailed customer service about it - this was before I even had a Kindle and still used Kindle for PC - I got back a canned response with "Unfortunately Amazon does not offer any surcharges to international customers" tacked on to it, which made me scratch my head a bit and give up.)
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