The problem is in the physics of how radio transmission work. Radio signals are attenuated in the air. This attenuation is directly proportional to the square of the frequency. So, if you're standing about 1 km away from the tower, the FSPL (free space path loss) of the radio signal will be about 90 dB for 800 MHz, and 99 dB for 2300 MHz. So, your signal will be 8 times as strong for 800 MHz than for 2300 MHz.
Now, convert that to coverage: if 800 MHz has 8 times the reach of 2300 MHz, you need 8^2=64 times as many towers on 2300 MHz to covert the same area. That's probably Telkom's issue here. In the rural areas, an operator with access to 800 MHz can build coverage at a fraction of the cost of someone with only 1800 MHz or only 2300 MHz.
800 MHz has also much better building penetration than 2300 MHz. Finally, if they can put up a few 800 MHz base stations in the metro areas, it would enable them to cover dead spots much more easily.
Traditionally your lower frequencies is seen as coverage bands, whereas higher frequencies is seen as throughput layers (because 2300 MHz dies off so quickly, you can put down many more towers without them interfering with each other).
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