Tense of て clauses


I answered a question a while back where I translated the following:

> ＪＲ東日本は、新幹線で無線のＬＡＮのサービスを始めて、無料でインターネットが利用できるようにすることにしました
>
> JR East-Japan is beginning wireless LAN service on the shinkansen and
> decided to make it so that passengers are able to use the internet for free.
> (This could obviously be worded better in English).

While reviewing, I started wondering if I had made an error in the tense of
始めて. **In the above sentence, absent of context, is the sequence of actions
clear?**

In other words, I am wondering which of the following is a more accurate
understanding (not translation):

  1. JR Higashi Nihon began offering wireless service and then decided to make it free.
  2. JR Higashi Nihon began offering wireless service and it was free from the beginning.
  3. JR Higashi Nihon started installing the necessary equipment for wireless service and then decided to make it free. (This is how I interpret my translation which is why I am so hesitant.)

Original if useful: [What do で and ように express
here?](https://japanese.stackexchange.com/questions/54580/what-
do-%e3%81%a7-and-%e3%82%88%e3%81%86%e3%81%ab-express-here/54581#54581)




Without taking any background knowledge into consideration, people usually
read this like ようにすることにしました is applied to
「新幹線で無線のＬＡＮのサービスを始めて、無料でインターネットが利用できる」 as a whole (i.e., "JR East decided to
start wireless LAN service and enable ...").

(In fact, this article is confusing because paid wireless LAN service has been
available for Tokaido Shinkansen users for a long time. [The original
news](https://response.jp/article/2017/11/07/302197.html) is about JR East's
other Shinkansen lines which have had no wireless LAN service whatsoever.)




Without taking any background knowledge into consideration, people usually
read this like ようにすることにしました is applied to
「新幹線で無線のＬＡＮのサービスを始めて、無料でインターネットが利用できる」 as a whole (i.e., "JR East decided to
start wireless LAN service and enable ...").

(In fact, this article is confusing because paid wireless LAN service has been
available for Tokaido Shinkansen users for a long time. [The original
news](https://response.jp/article/2017/11/07/302197.html) is about JR East's
other Shinkansen lines which have had no wireless LAN service whatsoever.)

