WIK-Consult • Report
Study for the European Commission
Final Report:
Optimising the Public Sector’s Use
of the Radio Spectrum
in the European Union
– ANNEX –
Authors: J. Scott Marcus, John Burns, Frédéric Pujol, and Phillipa Marks
Senior Expert: Prof. Martin Cave
WIK-Consult GmbH
Rhöndorfer Str. 68
53604 Bad Honnef
Germany
The opinions expressed in this study are those of the authors and
do not necessarily reflect the views of the European Commission.
Bad Honnef, 27 October 2008
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
I
Contents
Figures
III
Tables
IV
1 Introduction
1
2 Organisations involved in spectrum management for the public sector in
selected countries
2
2.1 The Netherlands
3
2.2 United Kingdom
7
2.3 France
11
2.4 Germany
14
2.5 Spain
17
2.6 The United States
19
2.7 Different countries, different approaches
21
2.7.1 Sharing
22
2.7.2 Spectrum refarming
24
2.7.3 Administrative Incentive Pricing (AIP)
25
3 The developing situation: national initiatives
28
3.1 Netherlands
28
3.2 Sweden
29
3.3 UK
30
3.3.1 Review of Public Sector Spectrum Holdings
30
3.3.2 Subsequent actions
32
3.4 United States
33
3.5 Australia
35
3.5.1 Current situation
35
3.5.2 Review
36
4 A sectoral view of spectrum management for the public sector
40
4.1 International and European regulatory bodies
40
4.2 Defence
42
4.2.1 The interplay between regional and national spectrum management
43
4.2.2 NATO
43
4.2.3 European Defence Agency (EDA)
44
II
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
4.2.4 Combined Communications Electronic Board (CCEB)
45
4.2.5 Dealing with legacy systems (Warsaw Pact)
45
4.3 Aeronautical
46
4.3.1 International and global level
46
4.3.2 European level
49
4.4 Maritime
4.4.1 International and European level
4.5 Railways
53
54
55
4.5.1 ERTMS
56
4.5.2 GSM-R
57
4.5.3 Advanced GSM-R (A-GSMR), Frequency management
58
4.5.4 ETCS
59
4.6 Emergency services
60
4.6.1 The emerging needs of emergency services organisations
61
4.6.2 Role of the stakeholders
61
4.7 Challenges and evolution in each sector
5 Public Sector spectrum use by frequency band
65
67
5.1 Introduction
67
5.2 108 MHz to 470 MHz
67
5.3 500 – 960 MHz
68
5.4 960 – 1525 MHz
70
5.5 1525 – 2025 MHz
71
5.6 2025 – 2500 MHz
72
5.7 2.5 – 3.6 GHz
73
5.8 3.6 – 4.4 GHz
74
5.9 4.4 – 5.15 GHz
75
5.10 5150 – 6000 MHz
76
5.11 6 – 10.7 GHz
77
5.12 10.7 – 15.7 GHz
78
5.13 15.7 – 40.5 GHz
79
5.14 40.5 – 100 GHz
80
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
III
Figures
Figure 1:
Public spectrum management in the Netherlands
4
Figure 2:
Public spectrum management in the United Kingdom
8
Figure 3:
French public spectrum management
11
Figure 4:
Spectrum stakeholders in France
12
Figure 5:
German public spectrum management
15
Figure 6:
Spanish public spectrum management
17
Figure 7:
Relationship between national stakeholders and international bodies
41
Figure 8:
Main stakeholders in the defence sector
43
Figure 9:
Main stakeholders in the aeronautical sector
48
Figure 10:
Interaction between Eurocontrol and CEPT/ITU
50
Figure 11:
The SAFIRE database
51
Figure 12:
Collaboration between Eurocontrol and ICAO
53
Figure 13:
Main stakeholders in the maritime sector
54
Figure 14:
Main stakeholders in the railways sector
56
Figure 15:
Building blocks of ERTMS
57
Figure 16:
GSM-R and ETCS systems
59
Figure 17:
Main stakeholders in the emergency services sector
62
Figure 18:
Implementation status of GSM-R at end of 2007 (source: UIC)
69
IV
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Tables
Table 1:
Summary of public sector management in the Netherlands
5
Table 2:
Summary of public sector management in the United Kingdom
9
Table 3:
Summary of public sector management in France
13
Table 4:
Summary of public sector management in Germany
16
Table 5:
Summary of public sector management in Spain
18
Table 6:
Summary of public sector management in the USA
19
Table 7:
Sharing in Western Europe
23
Table 8:
Spectrum sharing
24
Table 9:
Funding for relocation
25
Table 10:
France - Potential fees by user type if the Decree were in effect
27
Table 11:
International public sector stakeholders
42
Table 12:
Role of the main stakeholders in the defence sector
45
Table 13:
Role of the main stakeholders in the aeronautical sector
48
Table 14:
Comparison SAFIRE/EFIS
52
Table 15:
Role of the main stakeholders in the maritime sector
54
Table 16:
Role of the main stakeholders in the railways sector
56
Table 17:
Railways-Europe-applications and associated frequency bands
58
Table 18:
Role of the stakeholder organisations in the emergency services sector
62
Table 19:
Role of the stakeholders in the emergency services sector
63
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
1
1
Introduction
This is the Annex to the Final Report of a study that has been conducted on behalf of
the European Commission: Optimising the Public Sector’s Use of the Radio Spectrum
in the European Union. The objective of the proposed study was to develop a better
understanding of the use of spectrum by public agencies and to explore ideas for
improving the efficiency of spectrum allocation, assignment and use to and by public
sector organisations.
The report itself seeks to address the following challenges:
•
How to find the appropriate balance between commercial activities (both
licensed and licence-exempt) and the public sector;
•
The degree to which it might be beneficial for EU Member States to develop a
more market-oriented approach to the use of spectrum;
•
Possible improvements in the procurement processes that public agencies use
for devices and services, both in terms of efficient allocation and in terms of
interoperability; and
•
The relevance of technological improvements to more efficient use of spectrum,
greater sharing, enhanced interoperability and economies of scale.
Public sector spectrum holdings are used for a range of vital applications including
defence and emergency service radio communications, aeronautical and maritime
radar, meteorology and radio astronomy. Large amounts of spectrum are used by the
public sector, accounting for nearly half of all radio spectrum use. In light of the
importance of these functions, and the degree to which public use consumes a large
fraction of a scarce public resource, it is appropriate to invest attention in ensuring that
the resource is used effectively and efficiently.
The study places particular emphasis on spectrum usage by (1) defence, (2) emergency services, and (3) transport, with primary emphasis on aeronautical and maritime
transport.
This Annex provides supporting detail, notably including a description of the current
status of spectrum management by the public sector.
This Introduction represents Chapter 1 of the Annex to the Final Report. Chapter 2
reviews the organisations involved in spectrum management for the public sector on a
country-by-country basis. Chapter 3 provides an expanded review of national initiatives
currently under way, and thus expands on the brief description in the report proper.
Chapter 4 provides background on needs, practices, and sector participants on a
sector-by-sector basis. Chapter 5 provides a band-by-band review of current spectrum
usage.
2
2
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Organisations involved in spectrum management for the public
sector in selected countries
This section of the report reviews the role of various spectrum management authorities
and the related institutional arrangements that exist within Europe and (for comparison)
in the United States.
Historically, radio spectrum use in the European Union (for both private and public
sectors) has generally been decided by administrative bodies. This “administrative”
method (also referred to as the “command-and-control” model) is a legacy of the early
days of radio, when governments had a de facto monopoly on access to radio
spectrum. The approach is to issue individual rights to frequency use by segmenting the
available spectrum into specific bands with some degree of exclusive access to
spectrum with protection from interference arising from other spectrum users.
Today, however, there is a shift towards the market-oriented model, with the auctioning
of spectrum to commercial sectors users only for the time being. Secondary trading also
allows market-based trading of the spectrum.
There is no single, homogeneous organisational approach to spectrum management
within the European Union, but in general each Member State has an agency (or a
group of agencies collectively) that serve as a Spectrum Management Authority, or
SMA. The SMA determines how different parts of the spectrum should be used (i.e. its
allocation) and by whom it could be used (i.e. its assignment). In some countries such
as Finland and Sweden, the National Regulatory Authority (NRA) serves as the SMA
and manages all spectrum-related issues. The organisation responsible for spectrum
matters can also be a Government Department (usually the Ministry of Communications/Telecommunications) as in Cyprus or Spain. In other countries, spectrum
management is shared between different organisations including the NRA, government
department(s) and in some cases other administrative bodies.
The following sections review the organisational approach to spectrum management in
a number of specific EU countries and for comparison in the United States. Specifically,
we review arrangements in the Netherlands (section 2.1), the UK (Section 2.2), France
(Section 2.3), Germany (Section 2.4), Spain (Section 2.5), and the United States
(Section 2.6). Section 2.7 then compares approaches, country by country, in regard to a
number of specific aspects of spectrum management policy (sharing, refarming, the
Digital Dividend, and Administrative Incentive Pricing).
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
2.1
3
The Netherlands
The main public stakeholders are the following:
•
Ministry of Defence
•
Ministry of Internal Affairs
•
Ministry of Justice
•
Ministry of Transport
The Ministry of Economic Affairs is responsible for overall policy, for all frequency use
(civil and military), and for the Allocation Table. The Ministry of Economic Affairs
“licences” the bands: formal licences for commercial users, letters for public users (not
really licences). The Ministry of Economic Affairs serves as head of delegation for the
Netherlands at CEPT and ITU.
The Radiocommunications Agency is under the responsibility of the Ministry of
Economic Affairs. The Radiocommunications Agency chairs the National Frequency
Commission, and is responsible for technical aspects of authorisations for public users
of the spectrum. It also makes direct assignment of spectrum in accordance with the
justification plan.
All public users are represented in the National Frequency Commission. This
commission is an independent, permanent body which meets three or four times a year
and deals with routine management rather than with policymaking.
In case of conflicts over frequency allocation, the Ministry of Economic Affairs organizes
a Public Consultation. If the conflict remains, the Prime Minister has the authority to
take the final decision.
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Figure 1:
Public spectrum management in the Netherlands
National spectrum manager
Defence:
MoD
Ministry of Economical Affairs /
Radiocommunications Agency
National
Frequency
Commission
Emergency services:
Ministry of Internal Affairs
Transport:
Aeronautical: Radiocommunications Agency
Maritime: Radiocommunications Agency
Railways: Radiocommunications Agency
OPTA
National Regulatory Authority
Ministries/Sector specific stakeholders
Overall responsibility of public spectrum management : Ministry of Economical Affairs
Public spectrum strategy definition : Ministry of Economical Affairs
There is a National Frequency Commission in which all public users are represented.1
This commission is independent, and is chaired by the ministry of economic affairs. It is
a permanent body which meets 3 or 4 times a year and which can have working groups
such as a scientific working group.
1 aeronautical, maritime, terrestrial scientific use: meteorology & radio astronomy, defence, emergency,
public use of broadcasting radio & TV (SW, MW, FM)
5
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Table 1:
Summary of public sector management in the Netherlands
The Netherlands
Overall responsibility
Ministry of Economic Affairs
Management regime
Command and control
Exclusive/Sharing
regime
Exclusive versus shared allocations
Link to procurement
No procurement
Licensing
Ministry of Economic Affairs issues “letters” for public users. RA
(Radiocommunications Agency) for technical aspects.
Approach to ensuring Justification process every 3 years by public spectrum users
efficient use
Information on use
n/a
Spectrum fees
Ministry of Defence: € 1.158.368; Police forces € 119.324; Ministry for
internal affairs: € 37.542.
Public sector
Allocation
Assignment
Monitoring
Ministry of Defence
Ministry of Defence
RA
Firemen
Ministry of Internal Affairs
RA
RA
Police
Ministry of Internal Affairs
RA
RA
Public Protection
Ministry of Internal Affairs
RA
RA
Aeronautical
RA
RA
RA
Maritime
RA
RA
RA
Railways
RA
RA
RA
Defence
Emergency services
Transport
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
The “justification” process for public users of spectrum in the Netherlands
In 2005, the objective of more flexible frequency use with the aim of supporting
economic growth was established by the Ministry of Economic affairs. Spectrum access
should therefore be as easy as possible with few rules.
- Three spectrum management systems are in place; licence-exempt, licensed
(including trading), and command and control for public interest use.
- Public use has to be efficient and the needs-justified. Third party use of their
spectrum can be imposed by government.
- Each ministry has to justify use from a legal standpoint (i.e. their legal duties). For
example, the MoD cannot use their own radio channels in relation to driving lessons;
instead, commercial frequencies should be used. Future growth or reduction in need
has to be identified as do new requirements and sharing possibilities.
- Actual usage has to be measured as part of the justification plan sent to the
Radiocommunications Agency.
- The plan is reviewed every 3 years, but can be updated in between.
- The first activity was a high level audit/overview of current usage (except for the
MoD, which was very detailed). The benefit of this overview exercise is that
Ministries are now aware that they use spectrum, and that spectrum is a scarce
resource. The Ministries also see benefit in developing plans for their future use, so
that they can secure future spectrum access. The spectrum manager also benefits to
the extent that it obtains information that it can use in international discussions about
future spectrum requirements.
- Some frequencies were given back by the Ministry of Defence, and some sharing
opportunities have been identified.
- For the next round of justification (starting 2008), more detail on actual and foreseen
usage as well as more possibilities for sharing with the Ministry of Defence are
anticipated.
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
2.2
7
United Kingdom
UK public spectrum management
Prior to 2003, the Radiocommunications Agency was responsible for spectrum
management and was established as an Executive Agency of the Department of Trade
and Industry (DTI).
Then in 2003 Ofcom (United Kingdom National Regulator Authority) was set up by the
merging of bodies including the Radiocommunications Agency, the Independent
Television Commission, the Radio Authority, the Office of Telecommunications (Oftel)
and the Broadcasting Standards Commission (BSC).
Spectrum management policy is steered through the Public Safety Spectrum Policy
Group (PSSGG), which has an independent chairman that is funded by Ofcom and
reports directly to the Cabinet Office. The relevant government departments (Home
Office / Scottish Executive) are represented in the Group, as is the National Police
Improvement Agency which takes the lead on implementing emergency services use of
spectrum in the UK.
Spectrum allocations are set out in the UKFAT, which is drawn up and periodically
revised by the UK Spectrum Strategy Committee (UKSSC), a Cabinet level official
committee that discusses matters relating to the use of the radio spectrum, including by
government departments and other public sector bodies. The UKSSC is jointly chaired
by the Department for Business, Enterprise & Regulatory Reform (DBERR – formerly
the Department of Trade and Industry) and MoD. Other organizations comprise the
Cabinet Office, HM Treasury, the Department for Culture, Media and Sport, the
Department of Communities and Local Government (DCLG), the Department of Health
(DoH), the Department for Transport (DfT), the Ministry of Justice, the Scottish
Executive, the Department of Trade, Industry and Investment Northern Ireland, the
Meteorological Office, the Maritime and Coastguard Agency (MCA), Ofcom, the Civil
Aviation Authority (CAA) and the National Policing Improvement Agency (NPIA).
A subcommittee of UKSSC, the Public Safety Spectrum Policy Group (PSSPG)
coordinates policy for public safety and emergency spectrum use. The PSSPG is
chaired independently, and its technical subgroup manages day-to-day assignments of
spectrum for Emergency and public Safety services.
However, Ofcom is the only body that has power to grant spectrum licences in the UK
and the only body that can make exemption and trading regulations. The other various
public sector bodies also have spectrum management roles to the extent that they
make decisions about how public sector spectrum holdings are shared or use spectrum
themselves as described below for the principal public sector uses.
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Also, Ofcom responsibilities are to negotiate and adhere to international agreements, to
ensure the spectrum is used in the interests of citizens and consumers and to employ
market mechanisms where appropriate to secure optimal use of spectrum resources.
Ofcom is responsible for most non-military radio spectrum matters. The Ministry of
Defence which uses spectrum extensively for military and security purposes is not
licensed by Ofcom, because of its Crown body status.2
The UK spectrum management approach considers market mechanisms, such as
spectrum trading, liberalisation, Administered Incentive Pricing (AIP) and auctions,
better at achieving efficient spectrum use than a ‘command and control’ approach
based on regulation and administrative decisions.
Figure 2:
Public spectrum management in the United Kingdom
National spectrum manager
Defence:
MoD
Emergency services:
Public Safety Spectrum Policy Group (PSSPG)
UK Spectrum Strategy Committee (UKSSC )/
OFCOM
Transport:
Aeronautical: CAA & MoD/OFCOM
Maritime: OFCOM
Railways: OFCOM
National Regulatory Authority
Ministries/Sector specific stakeholders
Overall responsibility of public spectrum management : UK Spectrum Strategy Committee (UKSSC)
Public spectrum strategy definition : UK Spectrum Strategy Committee (UKSSC)
2 Crown bodies largely comprise Government Departments. They have special status under some laws
(e.g. exemption from radio spectrum licensing by Ofcom and immunity from prosecution under health
and safety law). Not all public bodies are Crown bodies. A list of Crown bodies is given at:
http://www.opsi.gov.uk/advice/crown-copyright/uk-crown-bodies.htm
9
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Table 2:
Summary of public sector management in the United Kingdom
United Kingdom
Overall responsibility
OFCOM and MoD under UKSSC umbrella
Management regime
Command & control; market mechanisms considered
Exclusive/Sharing
regime
Mixed
Link to procurement
MoD pays NATS (the privatised operator of air traffic services in the UK)
for some services
Sharing: 99% of military bands are claimed to be shared already (note –
bands, not bandwidth).
Airwave operates the national TETRA network for emergency services
Licensing
OFCOM. CAA currently issues licences on behalf of Ofcom for the
aeronautical sector
Approach to
ensuring efficient
use
Spectrum pricing, AIP: the Defence and public safety sectors are subject
to Administrative Incentive Pricing (AIP) for some of their spectrum.
Proposals for applying AIP to aeronautical and maritime
Information on use
n/a
Spectrum fees
Spectrum fees apply to all public users of spectrum.
Public sector
Allocation
Assignment
Monitoring
MoD
MoD
MoD
Firemen
OFCOM
OFCOM
OFCOM
Police
OFCOM
OFCOM
OFCOM
Public Protection
OFCOM
OFCOM
OFCOM
Aeronautical
OFCOM
CAA on behalf of OFCOM
CAA
Maritime
OFCOM
MCA
OFCOM
Railways
OFCOM
OFCOM
OFCOM
Defence
Emergency services
Transport
CAA: Civil Aviation Authority
Aeronautical sector
In UK, the Civil Aviation Authority (CAA) is an independent regulator with responsibility
for the aviation sector. The CAA regulates aviation in the UK and UK airspace, including
economic and safety aspects, represents the UK internationally on aviation matters,
plans assignments and issues aeronautical spectrum licences to ground-based users,
such as airport operators, and UK-registered aircraft under a contract with Ofcom. Its
responsibilities include developing, monitoring and enforcing national policy for the use
and assignment of civil aeronautical radio frequencies.
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
In the UK, aeronautical infrastructure is operated under joint civil / military control as
part of national security arrangements. There is close co-operation between military and
civil ATC operations for on-route traffic. Search and Rescue (SAR) and distress facilities
are run by the military but available to civil users. This “joint and integrated
infrastructure” is considered to be unique in Europe – other countries tend to have more
demarcation between civil and military use. A steering committee involving CAA and
MoD representatives meets regularly to co-ordinate operations and policy.
Maritime sector
In the UK, the Maritime and Coastguard Agency (MCA), an executive agency of the
Department of Transport, is responsible for coordinating sea and some inland search
and rescue, and also for enforcing safety rules and representing the UK internationally
on maritime matters.
The MCA operates a small number of vessels, coastal radar stations and aircraft. The
MCA operates some radio installations itself but does not require a licence; as an
executive agency of the Department of Transport, it is a Crown body. It does not plan
assignments or issue spectrum licences.
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
2.3
11
France
In France, the organisation of spectrum management is one of the more complex in
Europe, with a spectrum agency (Agence Nationale des Fréquences, ANFR) dealing
with frequency allocation, and a certain number of bodies called "affectataires"
(allocation bodies) managing the spectrum allocation and assignments depending on
the services concerned.
Figure 3:
French public spectrum management
National spectrum manager
Defence:
MoD
ANFr
Monit
oring
Emergency services:
Ministry of Interior
Monit
oring
Aeronautical : AC/DGAC
Maritime : PNM/CETMEF
Railways: SNCF/RFF
Transport:
CSA
ARCEP
National Regulatory Authorities
Ministries/Sector specific stakeholders
Overall responsibility of public spectrum management : all public sector entities are on the board of ANFr
Public spectrum strategy definition : ANFr under the Prime Minister
AC= Civil Aviation
DGAC= Direction Générale de l’Aéronautique Civile (Civil Aviation administration)
PNM= Ports & Navigation Maritime
CETMEF= Centre d’Etudes Techniques Maritimes et Fluviales
SNCF=Société Nationale des Chemins de Fer RFF= Réseau Ferré de France
The ANFR manages the national allocation table indicating which assignment body is
responsible for each frequency band and for which services (with the possibility of
sharing by several types of users).
Among the assignment bodies, ARCEP manages the spectrum use for civil electronic
communications, CSA (a media regulatory body) is in charge of the radio and television
spectrum, the Ministry of Industry (DGE) is in charge of strategic issues such as
spectrum trading and pricing and eight other entities are responsible of activities of
general interest within the public sector.
12
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
These entities comprise the Defence (DEF) and Interior (INT) Ministries as well as
administrations bodies in charge of Civil Aviation (AC), Meteorology (MTO), Space
activities (ESP), Radio astronomy (RST), Ports and maritime navigation (PMN) and
French overseas territory (HCR,TTOM).
The decision process is done by consensus between assignment bodies in accordance
with the board of the ANFR, with final arbitration at the Prime Minister level.
Figure 4:
Spectrum stakeholders in France
International coordination
ARCEP
ANFR
Prime
Minister
CSA
AC
DEF
ESP
INT
MTO
PNM
RST
HCR
TTOM
Ministry of
Industry
French Government
Legend
AC : Civil Aviation
DEF : Ministry of Defence
ESP : Space activities
INT : Ministry of Interior
MTO : Meteorology
PNM : Ports and maritime navigation
RST : Radioastronomy
HCR,TTOM : French
overseas territory
Coordination takes place between “affectataires” (e.g. between the Ministry of Defence
and the Ministry of Interior for the use of specific frequencies for Drones).
13
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Table 3:
Summary of public sector management in France
FRANCE
Overall responsibility
ANFr
Management regime
Command & control, collective use, secondary trading for some
services (fixed links, PMR, satellite)
Exclusive/Sharing
regime
Mixed
Link to procurement
No procurement
Licensing
No formal licensing except ARCEP for PMR use by public users
Approach to ensuring
efficient use
Sharing for most users and many frequency bands
Information on use
Limited information on assignments from the ARCEP database
Spectrum fees
Yes. Ministry of Defence does not pay fees
Sharing extensively used in all bands. Much of the sharing in France
is internal, i.e. within the MoD; there is also some sharing with
external users. 5 GHz DFS doesn’t allow sharing, and mitigation
techniques need to be tested to the satisfaction of all authorities
before sharing is allowed.
Public sector
Allocation
Assignment
Monitoring
Defence
ANFr/DEF
DEF
DEF
Firemen
ANFr/INT
INT
ANFr
Police
ANFr/INT
INT
ANFr
Public Protection
ANFr/INT
INT
ANFr
Aeronautical
ANFr
DGAC
ANFr
Maritime
ANFr
PNM/CETMEF
ANFr
Railways
ANFr/ARCEP
SNCF/RFF
ANFr
Emergency services
Transport
Maritime sector
In France, the Ports and Maritime Navigation administration (PNM) acquires the
exclusivity of spectrum exploitation currently used by the beacon and lighthouse
services for ESM (maritime signalisation) remote control. The French maritime
spectrum organization is structured around international harmonized framework with
national specificity related to geographic restriction. The PNM has acquired within the
VHF mobile service band the exclusive use up to 40 km on lands from sea costs and 10
km on lands from river shores.
14
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
2.4
Germany
In Germany, most spectrum matters are managed by the regulatory authority, the
Federal Network Agency for Electricity, Gas, Telecommunications, Post and Railway
(the Bundesnetzagentur, or BNetzA, the successor to the former RegTP).
German frequency regulation is based on the national table of frequency allocations,
frequency usage plans, and frequency assignment procedures.
The Federal Network Agency is responsible for drawing up the frequency usage plan on
the basis of the frequency bands in accordance with the National Frequency Allocation
Table, as well as issues concerning legal aspects of regulation, licences, principles of
frequency regulation, and compatibility between radiocommunication services. The
frequency assignment is required for frequency usage plan, taking into account the risk
of harmful interference.
There are sections with overall responsibilities for all radiocommunication services. The
following areas are each covered by one section:
•
analogue broadcasting frequency and assignment matters
•
digital broadcasting
•
frequency regulation for mobile services
•
frequency regulation and frequency assignments for radio-relay systems
•
frequency assignment for PMR and satellite services
•
frequencies for mobile maritime and aeronautical services, amateur services,
CB radio, radio for authorities and organisations concerned with public safety
and for railways
•
frequencies for the satellite
For military purposes, the Federal Ministry of Defence acts as something of a second
frequency authority. Thus, the frequency usage plan to be established by the Federal
Network Agency is also discussed with the military side (notably regarding frequencies
used for national defence). The Ministry of Defence provides information to the Federal
Network Agency on a need-to-know basis, which seems to work well in practice.
There are additional government stakeholders. The Ministry of the Interior (BMI)
represents the 16 Bundesländern (states), including their respective government
bureaus and their security services. The Ministry for Traffic, Construction and
Development (BMVBS) deals with air and maritime transport.
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
15
Civil-military coordination takes place (nominally at the ministerial level but in practice at
the working level) between the Federal Ministry of Defence and the Federal Ministry of
Economics (BMWi). To discuss the numerous civil-military issues, the Federal Network
Agency maintains – in cooperation with the military frequency administration – a
permanent working group for civil/military frequency matters (AGF). These concepts are
intended to enable the introduction of new civil frequency uses in accordance with
international decisions, and at the same time to secure the non-combat-related and
training operations of the armed forces.
There have been a number of concrete instances of reallocation from the public sector,
primarily defence, to the civilian sector. Interviewees consider the transfer to have been
effective, largely thanks to good cooperation, openness and transparency among the
respective agencies. There is no explicit funding mechanism for refarming.
Radio monitoring activities and regular frequency assignment tasks are primarily carried
out by the BNetzA. Monitoring is not routinely performed, but can be undertaken when
needed or requested.
There are at present no charges for the use of spectrum by the public sector.
Figure 5:
German public spectrum management
National spectrum manager
Defence:
MoD
BNetzA
Emergency services:
BNetzA
Transport:
Aeronautical: BNetzA
Maritime: BNetzA
Railways: BNetzA
National Regulatory Authority
Overall responsibility of public spectrum management : BNetzA
Public spectrum strategy definition : BNetzA
Ministries/Sector specific stakeholders
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Table 4:
Summary of public sector management in Germany
Germany
Overall responsibility
BNetzA
Management regime
Command & control
Exclusive/Sharing
regime
Sharing is now extensive. This will continue on the basis of proven
compatibility. The majority of public sector spectrum in Germany is
shared between civil and military.
Link to procurement
n/a
Licensing
BNetzA
Approach to
ensuring efficient
use
n/a
Information on use
n/a
Spectrum fees
n/a
Public sector
Allocation
Assignment
Monitoring
Federal Network Agency/
Ministry of Defence
Ministry of Defence
Ministry of Defence
Firemen
BNetzA
BNetzA
BNetzA
Police
BNetzA
BNetzA
BNetzA
Public Protection
BNetzA
BNetzA
BNetzA
Aeronautical
BNetzA
BNetzA
BNetzA
Maritime
BNetzA
BNetzA
BNetzA
Railways
BNetzA
BNetzA
BNetzA
Defence
Emergency services
Transport
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
2.5
17
Spain
In Spain, the Ministerio de Industria, Turismo y Commercio is responsible for spectrum
management and manages the public users of spectrum.
Figure 6:
Spanish public spectrum management
National spectrum manager
Defence:
MoD
Emergency services:
MITYC
MITYC
(Ministerio de Industria
Turismo y Commercio )
Transport:
Aeronautical: MITYC
Maritime: MITYC
Railways: MITYC
DGT (Direccion General de
Telecommunicaciones )
National Regulatory Authority
Ministries/Sector specific stakeholders
Overall responsibility of public spectrum management : MITYC (Ministerio de Industria Turismo y Commercio)
Public spectrum strategy definition : MITYC (Ministerio de Industria Turismo y Commercio )
The DGT (Direccion General de Telecommunicaciones) is the regulatory body and is a
department of the Ministry of industry. It manages the WRC conferences. The Ministry
of Defence is responsible of allocation and assignment of its spectrum.
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Table 5:
Summary of public sector management in Spain
Spain
Overall responsibility
Ministerio de Industria, Turismo y Commercio
Management regime
Command & control
Exclusive/Sharing
regime
Mixed
Link to procurement
Licensing
MITYC (Ministerio de Industria Turismo y Commercio)
Approach to ensuring
efficient use
n/a
Information on use
n/a
Spectrum fees
n/a
Public sector
Allocation
Assignment
Monitoring
Ministry of Defence
Ministry of Defence
Ministry of Defence
Firemen
MITYC
MITYC
MITYC
Police
MITYC
MITYC
MITYC
Public Protection
MITYC
MITYC
MITYC
Aeronautical
MITYC
MITYC
MITYC
Maritime
MITYC
MITYC
MITYC
Railways
MITYC
MITYC
MITYC
Defence
Emergency services
Transport
MITYC: Ministerio de Industria Turismo y Commercio
Emergency services: TETRA & TETRAPOL networks are used in Spain. There is one
national network operated by the Ministry of Defence and local networks for emergency
services & fire. For fire networks, the “ayuntamientos” (city/town) can be responsible for
the spectrum.
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
2.6
The United States
In the United States, spectrum management authority derives from the Communications
Act of 1934 as amended. Spectrum associated with devices and services operated by
the U.S. Government are nominally managed by the President, who formally delegates
this authority to a unit of the Department of Commerce, the National Telecommuniations
and Information Administration (NTIA). All other spectrum is managed by the regulatory
authority, the FCC. Many experts have noted over the years that the split authority does
not contribute to efficiency, and interferes in particular with the establishment of a
comprehensive planning process; nonetheless, interviewees in both agencies were
emphatic in claiming that cooperation between the agencies is effective, and that the
process works.
Table 6:
Summary of public sector management in the USA
United States
Overall responsibility
NTIA for Federal use of the spectrum and FCC for all other use
Management regime
Mainly Command & Control. Auctions for part of the 700 MHz
spectrum (block D) but block not awarded
Exclusive/Sharing
regime
Sharing: highly used in all bands.
Link to procurement
n/a
Licensing
NTIA
Approach to ensuring
efficient use
n/a
Information on use
n/a
Spectrum fees
n/a
Public sector
(93.8% of spectrum shared in all bands (0-300 GHz)
Allocation
Assignment
Monitoring
NTIA
NTIA?
NTIA?
For the most part, spectrum allocations and assignments to the Federal government
continue to be based on traditional “command and control” arrangements, even though
the U.S. has been a global leader in implementing commercial assignments for the
private sector. There are, however, exceptions, as with the flexible arrangements that
were developed jointly with the FCC for the 70-80-90 GHz bands (discussed later in this
section).
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
The split authority has some tendency to reduce pressure on the Federal Government
to release spectrum where the need is no longer great; however, again there have been
exceptions, as for example with the spectrum that was transferred for use for Advanced
Wireless Services (AWS)3.
The U.S. does not implement Administrative Incentive Pricing.
One interesting example of spectrum sharing with the military was implemented in 2003
and 2005. The so-called “millimeter wave” bands at 71-76 MHz, 81-86 MHz, and 92-95
MHz were opened to commercial exploitation. These bands are suitable to highly
directional “pencil beam” transmission. They were historically used only by the
government, and are difficult to exploit, but might possibly be suitable for high speed
point-to-point wireless networks.
Risk of interference in these bands is quite low due to the limited range and narrow
beam in these frequencies. The FCC and NTIA jointly agreed on a self-provisioning
arrangement. Commercial users with an interest in establishing a link must register the
proposed link with the NTIA. They would promptly receive either a green (OK to
proceed) or a yellow light (formal application required) from the NTIA.
There are numerous concrete examples of bands transitioning from military use to
commercial use. Time to clear these bands is often substantial.
There is no general mechanism to fund spectrum refarming; however, in one instance
(the 1710 MHz band), pursuant to an act of Congress, about a billion US dollars were
made available from spectrum auction proceeds to cover the costs of vacating the
spectrum band. This funding arrangement appears to have been effective in
accelerating the clearing of the band.
In the aftermath of September 11, 2001, there were strong calls for the FCC to provide
additional spectrum for emergency services, especially those who would be involved in
response to terrorist attacks. Equipment problems and incompatibility may have played
a role in the loss of life on the part of fire fighters in the World Trade Center. The FCC
attempted to address this problem by allocating new spectrum from the Digital Dividend,
the spectrum that is being vacated by analogue broadcasters. The FCC designated a
block of spectrum to “facilitate effective communications among first responders not just
in emergencies, but as part of cooperative communications plans that will enable first
responders from different disciplines, such as police and fire departments, and
jurisdictions to work together in emergency preparedness and response.” In other
3 The AWS bands are 1915-1920 MHz, 1995-2000 MHz, 2020-2025 MHz, and 2175-2180 MHz.
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
21
words, this block was envisioned to be the keystone of the FCC’s response to postSeptember 11 requirements for interoperable emergency services.
The FCC did not simply allocate the block to emergency servces; instead, they
attempted to establish a public/private partnership between government and some
private firm. As the FCC put it, the FCC intended to “… award a nationwide 10
megahertz commercial licence in the Upper 700 MHz … Block to the winning bidder
once it has entered into a Commission-approved Network Sharing Agreement … with
the [corporate entity established by the FCC to manage emergency services rights of
access to the spectrum]. … Under the Partnership, [emergency services] will have
priority access to the commercial spectrum in times of emergency, and the commercial
licensee will have preemptible, secondary access to the public safety broadband
spectrum. Providing for shared infrastructure will help achieve significant cost
efficiencies while maximizing public safety’s access to interoperable broadband
spectrum.”4
This is a logical and promising approach; unfortunately, it failed. Private bidders did not
have sufficient interest in the preemptible spectrum. Bids failed to reach the FCC’s
reserve price.
For the moment, it is not clear how the U.S. will respond to calls for a block of spectrum
to support interoperability at the national level among emergency services.
The FCC’s flexible policies in regard to spectrum use have many advantages, but they
can occasionally engender problems for public sector users. One notable example
occurred in the 800 MHz band, where spectrum that would typically be used for
“Specialized Mobile Radio” (for example, taxi dispatch) was licensed to Nextel to build a
unique mobile telephony business. Nextel was far more successful than anticipated, to
the point where public safety users in adjacent bands experienced harmful interference.
Initially, the FCC attempted to deal with the interference as it usually does, by urging the
involved parties to make voluntary technical changes to reduce interference at particular
sites; however, the problems proved to be intractable. Eventually, the FCC found it
necessary to refarm the bands.
2.7
Different countries, different approaches
Different countries have different approaches to management of spectrum in the public
sector. Some aspects that are noteworthy, and that we address at greater length in the
following sections of the report, are:
4 FCC, at http://www.fcc.gov/pshs/public-safety-spectrum/700-MHz/safetyband.html.
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
•
The approach to sharing.
•
The approach to spectrum refarming.
•
The approach to fees paid by public sector users, including fees that are
intended to approximate the licence fees that commercial users would pay
(Administrative Incentive Pricing, or AIP).
2.7.1 Sharing
Geographic, temporal or technological reuse of bands can help to maximise the use of
spectrum, particularly where the primary use is not continuous or nationwide.
A significant amount of band sharing already takes place in public sector spectrum. The
introduction of WLAN systems in parts of the 5 GHz band is a good example of sharing
between collective use and radars operated by the military and other public sector
users.
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Table 7:
23
Sharing in Western Europe
Band (MHz)
Harmonised use
152- 153.5
154- 155
Mobile Communications (PMR, Maritime, Public Safety, including some
military use)
155- 156
790-870
872-876
880-915
Military radars (shared with PAMR and broadcasting)
917-921
925-960
3400-3410
3410- 3435
3435-3442
Wireless access systems and PMSE co-exist with military use in some
countries
3475-3480
3500-3580
5250-5255
Military radars (shared with civil systems)
5650-5660
4990-5000
Military Band (shared with radioastronomy)
Since nearly all of the usable radio spectrum in most countries has been allocated
already, accommodating more services and users often involves having more than one
user sharing spectrum, or reallocations of spectrum from one use to another (often
referred to as “refarming”, as discussed in Section 0).
Spectrum sharing is one method of accommodating more services and users. It enables
more than one user to transmit or receive radio signals on or near the same frequency
band. Various methods are in place such as time-sharing, frequency sharing,
geographical sharing, code or power sharing.
Different regions of the world have very different approaches to spectrum sharing.
24
Table 8:
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Spectrum sharing
Country
Spectrum sharing
France
Highly used in all bands. Much of the sharing in France is internal, i.e. within the
MoD; there is also some sharing with external users. 5 GHz DFS doesn’t allow
sharing, and mitigation techniques need to be tested to the satisfaction of all
authorities before sharing is allowed
Germany
Sharing is now extensive and that this will continue on the basis of proven
compatibility. The majority of spectrum in Germany is shared between civil and
military.
UK
99% of military bands are claimed to be shared already (note – bands, not
bandwidth). 5 GHz sharing fine in theory, but in practice devices coming to the
market did not meet the theory. Got away with it because of geographic
separation.
Japan
Used, but only sparingly. Japan is not an advocate of shared spectrum.
USA
Highly used in all bands.
(93.8% of spectrum shared in all bands (0-300 GHz)
2.7.2 Spectrum refarming
Another method of accommodating new users and technologies is band clearing or
reclassifying a band of spectrum from one set of radio services and users to another,
which requires moving previously authorized users out of the band.
Band-clearing decisions require coordination between users to ensure that moving
existing users out of a band is technically feasible and meets the users’ needs. Such
moves often involve costs, because existing users of the band may need to modify or
replace existing equipment.
In countries with advanced approaches towards spectrum management (such as
France, Japan, and the USA), spectrum users that have been forced to move to
different bands are sometimes provided with government funding.
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Table 9:
Funding for relocation
Country
Provision of
government
funding for
relocation
France
3
25
Other details
Government users are completely reimbursed for relocation costs
Commercial users can be funded to upgrade technology to
accelerate relocation timelines. ANFr estimates the refarming costs,
sets up an achievement schedule, controls its implementation and
manages the Fund for Refarming Spectrum.
Funding is done by contributions coming from public bodies
(Treasury annual Law or affectation of fees by Treasury) and private
bodies.
In Japan, the necessity of compensation for incumbent licensees in
the case of spectrum reallocations is highly recognized.
Japan
3
In 2005, after several studies on radio spectrum usages, the MIC
decided to implement a “compensation system” in order to
compensate operators obliged to release their frequency. Spectrum
fees will finance this government fund.
Basically, half of the amount used for compensation will be
recovered from new frequency band users.
USA
UK
3
The spectrum incumbent has to prove it is costly to remove
activities from one band to another to receive relocation funding.
A bill (H.R. 1320, Commercial Spectrum Enhancement Act), 2004
created the Spectrum Relocation Fund funded by auction proceeds.
A group set up in the UK to identify generic sharing criteria had
considered the implications of refarming, and for a particular case
had concluded that the cost of refarming was potentially greater
than the cost of the spectrum.
2.7.3 Administrative Incentive Pricing (AIP)
In most cases, no licence fees are applied for public spectrum use; in the UK, however,
the Defence and public safety sectors are subject to Administrative Incentive Pricing
(AIP) for some of their spectrum.5
5 Canada also uses a form of AIP.
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
The United Kingdom (UK)
Introduced in United Kingdom in 1998, Administrative Incentive Pricing (AIP) aims to
encourage more efficient use of spectrum by requiring spectrum users to compete for
spectrum. AIP is applied to both the public and the private sectors.
Currently, public sector users such as the Ministry of Defence (MoD) and emergency
services pay charges for spectrum that are comparable to fees charged to commercial
users; however, not all public sector use is subject to AIP. Aviation and maritime
spectrum licence fees are not based on AIP but there are proposals to charge AIP in
spectrum used for aeronautical and maritime communications and aeronautical radar
and radionavigation aids6.
The UK, like every country that has implemented AIP, has faced significant challenges
in determining how to set prices. Since there is no auction, there is no direct, externally
corroborated measure of the value of the spectrum.
For those frequency bands that are tradable, spectrum freed up by licensees (for
example by investing in more spectrally efficient equipment) can be leased or traded by
the organisation, thus raising revenue. This seeks to ensure efficient use by confronting
spectrum users with the opportunity cost of holding their spectrum, rather than selling it.
This mechanism probably works well in the private sector; however, public sector
spectrum holdings are not currently tradable.
France
Some users of telecoms services (PMR and PAMR, fixed links, WLL) and some satellite
users have to pay spectrum-related charges.
All users, be they public sector or private, would have been subject to charges based on
the amount of spectrum used under a May 1997 Decree (which, however, has never
been signed).
The French regulatory bodies are working to simplify existing fees and charges and to
base them on sound technical and economic principles. Particularly, the implementation
of a general base fee for all spectrum users, public or private, is being considered in
order to promote efficient spectrum use. In fact, ANFr is trying to implement the 1997
Decree even though it is not currently in effect. Non-commercial activities are supposed
to be charged with a spectrum-related fee based on the bandwidth and the frequency.
6 http://www.ofcom.org.uk/consult/condocs/aip/
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
27
•
When the band is between 29.7 MHz and 960 MHz, the fee is calculated as
follows:
Fee = a x ∆F with a being fixed by the Budget Ministry below 50 million EUR and
∆F the bandwidth
•
When the band is between 0.96 GHz and 65 GHz, the fee is calculated as
follows:
Fee = a x ∆F x 0.96/F
Broadcasting and radio astronomy activities are still totally exempted.
Table 10: France - Potential fees by user type if the Decree were in effect
Sector
Million EUR
Defence
13.95
Civil aviation
2.75
Space
2.92
Meteorology
0.60
Interior
0.50
Ports and maritime
0.50
Total
21.22
The CSA (if not exempted) and ARCEP participations (licensees are paying) could be
respectively approx. 4.08 million EUR and 11.43 million EUR.
28
3
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
The developing situation: national initiatives
A number of countries have undertaken comprehensive reviews of spectrum
management in the public sector in recent years. This section of the Annex discusses
recent developments in the Netherlands, Sweden, the UK, and the United States, and
Australia, in that order. Consistent with Chapter 2, we discuss EU Member States first.
3.1
Netherlands
Current policy in respect of public sector spectrum use is given in the Radio Spectrum
Policy Memorandum in 2005 (published by the Ministry of Economic Affairs). The
overall objective of the policy is to permit more flexible frequency use with the aim of
supporting economic growth. Spectrum access should therefore be as easy as possible
with few rules.
Under the policy, spectrum is reserved for public interest tasks but the following
principles are applied to determine the amount of spectrum reserved
•
The frequencies should not be more than is needed for the exercise of the tasks
•
The assignments to public interest tasks should be based on a needs
justification plan (as public interest use often denies use to others)
•
Where spectrum reserved for public interest tasks is not in use all the time third
party access should be permitted where practically possible.
The needs justification plan for each public interest user is to be submitted every three
years to the Ministry of Economic Affairs for review7, and will be assessed in terms of
the effectiveness and efficiency of frequency use. This assessment could involve actual
measurement of claims concerning the extent of spectrum.
Each Ministry has to justify use from a legal standpoint (i.e. their legal duties). For
example, the MoD cannot use their assignments to conduct driving lessons; instead,
commercial frequencies should be used. Future growth or reductions in frequency
requirements and sharing possibilities must be identified.
Spectrum pricing is not applied because the Ministry of Economic Affairs found it
difficult to determine a robust set of prices, especially for defence and for emergency
services. This issue may be revisited in future.
7 Plans may be updated in between the three year reviews.
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
29
The first review has been conducted. It involved a high level audit/overview of current
usage in the case of all Ministries except the MoD, which had a more detailed
understanding of its current spectrum use. As a result of this initial review Ministries are
now aware that they use spectrum, and that spectrum is a scarce resource. The
Ministries also see benefit in developing plans for their future use, so that they can
secure future spectrum access. The national Radiocommunications Agency also
benefits to the extent that it obtains information about future national requirements that
it can use in international discussions. A further outcome of the first review is that some
frequencies have been given back by the MoD (in PMR bands), and some sharing
opportunities have been identified.
For the next round of justification (starting 2008), more detail on actual and foreseen
usage as well as more possibilities for sharing with the MoD are anticipated.
3.2
Sweden
Most of the spectrum in Sweden for public and civilian use is managed in the same
way, the only exemption is spectrum used by the armed forces. Regarding spectrum for
defence use there is a frequency plan that gets updated after discussions between the
regulator and the armed forces. This plan shows all the frequencies that the military are
able to use in Sweden on a shared or exclusive basis. The regulator may loan
frequencies from this frequency plan on a long or short term basis for civilian purposes,
such as FWA and mobile video links, after discussion with the armed forces.
All other users, including government users, are licensed and pay annual utilization
fees based on the number of transmitters in use with the exception of the armed forces
and the police who pay a fixed amount for their spectrum usage each year regardless of
how many transmitters they use.
Sweden is currently investigating the possibilities for changing annual spectrum fees for
all licence holders including governmental organisations to provide more incentives for
efficient spectrum usage.
In October 2007 the National Post and Telecom Agency (PTS) reported to the Swedish
Government regarding the efficiency of frequency use by the armed forces compared
with that of other users.8 The main findings from the review were as follows:
8 http://www.pts.se/en-gb/Documents/Reports/Radio/2007/PTS-ER-200724/
30
3.3
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
•
The frequencies held by the Swedish Armed Forces represent considerable
economic importance in light of the interest and sums generated by both
Swedish and foreign spectrum auctions.
•
Neither the Swedish Armed Forces nor telecom stakeholders paying charges for
their licences fully utilise the part of the radio spectrum which they have been
allocated; for instance, the radio spectrum is not utilised 24 hours a day nor
throughout Sweden.
•
Some of the Swedish Armed Forces' frequencies are mainly used during certain
times and at particular locations, e.g. during training and exercises.
•
In those situations where the frequencies are available to the armed forces year
round and throughout Sweden, this does not represent efficient utilisation of
resources.
•
The Swedish Armed Forces' overall use of frequencies can become more
efficient through replanning and a higher level of sharing between civilian and
military users. Purchasing new digital military radio equipment to replace old
analogue equipment would have the same effect since digital technology
requires less spectrum and is more resistant to interference.
•
PTS intends to continue an in-depth dialogue with the Swedish Armed Forces in
order to better understand the military's need for frequencies. The aim is to free
up valuable radio spectrum in frequency bands attractive for civilian use.
•
In order to increase the Swedish Armed Forces' frequency efficiency, there may
be reason to investigate whether financial incentives can be used in the same
way as when licence holders pay their charges.
UK
3.3.1 Review of Public Sector Spectrum Holdings
In 2005 Professor Martin Cave undertook an independent audit of spectrum holdings for
the UK Government.9 The audit reviewed selected major holdings (twenty key bands up
to 15 GHz) and identified areas where there was the prospect of releasing spectrum in
the short and medium term. The audit also identified ways of increasing economic
incentives on public sector users to use spectrum more efficiently including incentives to
9 http://www.spectrumaudit.org.uk/
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
31
sell or release spectrum, and to develop and use of methods of spectrum sharing. The
main recommendations in each of these areas are as follows.
The findings for the twenty bands considered for potential future spectrum release were
as follows:
•
In four bands there is scope for short term release or alternative use of the band,
namely 410-430 MHz (particularly below 420 MHz), 590-598 MHz (a specific UK
allocation), 4400-5000 MHz(joint use by civil and military fixed links) and 79008400 MHz (geographic sharing).
•
In thirteen bands future release might be possible but either further work is
required or existing use must be changed in some way (e.g. consolidated or new
equipment adopted).
•
Three bands were identified where spectrum release was not possible, namely
bands allocated (between 1-2 GHz) to aeronautical radio navigation and
radiolocation.
It was also recommended that the spectrum 2.7-3.4 GHz radar bands should be made
available for sharing trials with communications applications on a spatial or time basis.
In terms of the application of market mechanisms, the following actions were
recommended:
•
There should be a presumption that new public sector spectrum needs should
be met through the market (i.e. auctions or trading) in all but exceptional
circumstances.
•
Public sector spectrum should be made tradable, as is the case with commercial
spectrum, and that spectrum access by public sector bodies that is not licensed
be authorised through the issue of recognised spectrum access (RSA).
•
There should be a two yearly Forward Look for public sector spectrum (including
Defence) covering changes to spectrum management and quantifying future
public sector spectrum requirements and their justification.
•
Spectrum pricing should be extended to more frequency bands allocated to
government use, such as radar, communications and radio navigation bands
used for aeronautical and maritime purposes, more of the Ministry of Defence
bands and bands used for Science Services.
•
There should be a joint aeronautical/Defence/Ofcom review of aeronautical
navigation aids and landing systems to explore the possibilities for rationalisation of multiple systems. Joint co-ordination of civil and military aeronautical
bands should be formalised, possibly through use of a joint planning tool.
32
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
•
The Spectrum Acquisition Authority that is planned by the Ministry of Defence
should at an early stage in the procurement process consider the spectrum
requirements of new equipment and take a holistic view of Defence spectrum
requirements and availability.
•
Information on public sector use should be incorporated into Ofcom
databases/registers.
3.3.2 Subsequent actions
In March 2006, the UK Government responded positively to the Audit’s recommendations with a detailed three year plan for their implementation. The main milestones so
far are as follows:
10
11
12
13
14
15
•
December 2006 – progress against the implementation plan was reviewed.10
•
February 2007 – RSA and spectrum pricing are applied to radio spectrum used
for Radio Astronomy.11
•
March 2007 – the first “Forward Look” containing a strategy for management of
major public sector holdings was published.12
•
April 2007 - Study on the application of spectrum pricing to aeronautical and
maritime bands is published.13 Consultation on the policy in this area has not yet
been decided.
•
October 2007 – The Government published the 2007 Pre-Budget Report and the
Comprehensive Spending Review “Meeting the Aspirations of the British
People”.14 The Government said the MoD will publish its plans for the release of
spectrum to the market and begin the release of bands identified in 2008 and will
release a significant proportion of its holdings in 2009 and 2010. Spectrum
pricing is extended to more MoD bands.
•
December 2007 – Ofcom decides to auction the band 590-598 MHz together
with other cleared spectrum as part of the UHF digital dividend15. The
frequencies will be available for use from April 2009 when the current
aeronautical radar use ceases.
http://www.spectrumaudit.org.uk/pdf/cave_progress_rpt.pdf
http://www.ofcom.org.uk/consult/condocs/rsa/statement/statement.pdf
http://www.spectrumaudit.org.uk/pdf/Forward_Look_2007.pdf
http://www.ofcom.org.uk/research/radiocomms/reports/spectrumaip/
http://www.hm-treasury.gov.uk/pbr_csr/pbr_csr07_index.cfm
http://www.ofcom.org.uk/consult/condocs/ddr/
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
33
•
January 2008 – Ofcom publishes its statement on the Spectrum Framework
Review for the Public Sector16 which sets out the framework for RSA and
spectrum trading for public sector holdings.
•
April 2008 – progress on key spectrum initiatives is reviewed by Ofcom.17 It is
noted that band sharing trials have been completed and it is now the
responsibility of the Government departments that may benefit from spectrum
trading to take this work forward. This includes considering use of a private
sector band manager for some or all public sector spectrum and/or delegating
management of public sector spectrum to user representatives e.g. Ministries
through the issue of spectrum usage rights. This would remove Ofcom from
mico-management of public sector spectrum holdings.
•
May 2008 – a more detailed Forward Look is expected from the Ministry of
Defence following an internal audit of their major spectrum holdings (23 bands).
It is expected that this document will provide a high level view of the potential for
spectrum release from MoD bands. It is expected that decisions to audit the
remaining 153 MoD bands and the 100 civilian managed bands in which the
MoD operates will be made in 2008/9.
In addition modelling and practical tests for sharing in radar bands have been
undertaken funded by Ofcom and others.18 The results so far indicate some sharing is
feasible but much more work is required to assure the aeronautical authorities that
safety would not be compromised. A more promising approach to increasing spectrum
efficiency may involve the use of better radar technology so that less bandwidth is
required. The Civil Aviation Authority is planning to start a review of navigation aids
aimed at reducing unnecessary duplication of systems.
3.4
United States
The United States has been a hotbed of innovation in spectrum policy, but to date it has
not tended to be a leader in regard to spectrum management in the public sector. As
previously noted, this may in part reflect institutional arrangements in the U.S., where
spectrum management for the U.S. government is entirely distinct from spectrum
management for the rest of the economy (see Section 2.6).
16 http://www.ofcom.org.uk/consult/condocs/sfrps/statement/
17 http://www.ofcom.org.uk/radiocomms/sfr/sfrprogress/sfrprogress.pdf
18 http://www.spectrumaudit.org.uk/pdf/PSSTG-INTROV1.2.pdf
34
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Efforts are very much under way to modernize public sector spectrum management in
the U.S. In 2003, a Presidential Initiative, followed in 2004 by an Executive
Memorandum from the White House, directed Federal agencies to establish strategic
spectrum plans. Agencies were to identify future spectrum requirements and planned
uses of new technology, and to indicate how they would use spectrum-efficient
techniques to meet their identified requirements. The Executive Memorandum also
directed the Department of Homeland Security (DHS), through consultation with other
Federal, state and local agencies, to develop a plan for spectrum needs and for
continuity of government operations.
These initiatives have just generated an important, tangible result: a Federal Strategic
Spectrum Plan, issued by the NTIA (a unit of the Department of Commerce) in March
2008. This massive report represents an important first step, to the extent that it
provides a comprehensive survey of spectrum usage and spectrum needs on the part of
fifteen Federal agencies, in conjunction with emergency services and continuity of
government requirements. The information is extensive, but is primarily qualitative
rather than quantitative in nature.
The report contains relatively little in terms of concrete new initiatives; that must
presumably come as a second step. As has been the case in other countries that have
sought to improve efficiency in the public sector, the first step must be a comprehensive
audit of current usage and future needs.
The Strategic Plan generally seeks to improve the quality of the planning process,
through the use of automated tools, standardised generation of spectrum requirements,
and better forecasting techniques. A recurrent theme is the need for overall strategic
planning and the creation of an integrated spectrum plan by the NTIA and the FCC.
Specific elements that the NTIA intends to prioritise in the near term include:
•
The use of commercial services where feasible
•
The use of “smart technologies”, primarily Software Defined Radio and Cognitive
Radio
•
The use of economic and non-economic incentives to promote the use of
spectrum-efficient technologies and of sharing
•
Interoperability and other public safety issues
•
Requirements for continuity of government
•
Improved IT techniques, possibly including dynamic assignment as is being
done in the 70-80-90 GHz bands
•
Continuous improvement: better coordination, enhanced forecasting, improved
technology
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
3.5
35
Australia
3.5.1 Current situation19
The key features of government spectrum management and use in Australia are as
follows:
•
Government spectrum use is managed by the communications regulator ACMA.
ACMA’s activities are governed by the Australian Radiocommunications Act.
The Act (Section 3b) requires adequate provision of spectrum “for use by
agencies involved in the defence or national security of Australia, law
enforcement or the provision of emergency services”. However, the Act does not
give ACMA any guidance on how it should make trade-offs between the
requirements of commercial and public sector users. There is however a
National Co-ordinating Committee for Government Radiocommunications which
has a particular focus on issues relating to national security (e.g. need for
interoperability between police and emergency services during a crisis).
•
Most government access to spectrum is licensed, and government users pay
fees and are subject to technical controls (under their licences) in the same way
as occurs with commercial licensees. The main types of licences issued are
apparatus licences (terms of up to 5 years) and class licences. A small number
of spectrum licences (terms up to 15 years) issued to the Department of
Defence. Apparatus and spectrum licences are tradable, though government
users have not engaged in trading to date and little use has been made of
flexible spectrum licences in the government sector.
•
Apparatus licences issued to Defence are not that specific in terms of the
equipment that may be used. There is a particular issue with lack of
transparency in Defence spectrum use (as opposed to allocations) which makes
planning of any sharing with others users difficult.
•
As in most other countries, allocations and assignments to government users
are significant relative to the overall available spectrum. [they give fractions of
these by frequency range] Bands are reserved for government use and users
also have access to other non-reserved bands on the same basis as other
licensees i.e. they may be issued apparatus licences under the same technical
conditions as other licensees and pay associated fees for use of frequencies in
non-reserved bands. In Australia much use is made of this facility.
19 http://www.spectrumwise.net/Discussionpaper.pdf [November 2006]
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
•
Refarming of spectrum used by government users to commercial applications
has occurred using administrative processes i.e. government users are given
notice to move and no compensation is paid (e.g. as occurred in the 1.8 GHz
and 2 GHz bands).
•
Two examples of public sector users going to the market to obtain a spectrum
allocation are as follows.
o Rail authorities in various Australian states were seeking to build a rail
communications network for safety and security reasons. (There had been
criticism of rail communications networks by commissions of inquiry following
two significant rail accidents in the Sydney region.) A lack of suitable
spectrum hampered the attempt to build new networks. The rail authorities
considered that a GSM-R network would best meet their needs. They would
have preferred 900 MHz spectrum as the preferred GSM-R band in Europe,
but as it had all been allocated this band was not available in Australia. The
Rail Corporation of NSW approached the receiver for the telecoms company
One.Tel who had 1800 MHz spectrum for sale. Rail Corp negotiated the
purchase of spectrum on behalf of itself and other rail authorities in Victoria,
Queensland, Western Australia and South Australia. The rail authorities are
building a 2x15 MHz GSM-R network in the Sydney, Melbourne, Brisbane,
Perth and Adelaide areas. It will be used for rail information, security,
engineering performance data and transmission based signalling.
o An example where use has been made of both liberalisation and trading is
the establishment of a Police network in the Perth region of WA. Following a
failed attempt to establish a TETRA based network in the 420-430 MHz band
(the failure was due to both technical reasons and the fact that the prime
contractor went out of business), the WA police entered into an agreement
with Motorola to build a new trunked land mobile network in the 500 MHz
spectrum licensed band. The network used spectrum acquired by Motorola in
the secondary market from Simoco. The availability of the 500 MHz spectrum
in the Perth region enabled the new network to proceed (land mobile
spectrum is in short supply in the larger Australian cities). The spectrum
licence conditions allow the spectrum to be used for any purpose within the
spectrum space of the licence. Subsequently the licences involved in the
network have been transferred to the Western Australia Police Service.
3.5.2 Review
In 2006 ACMA initiated an independent review of government spectrum holdings to
advise it on ways to manage these holdings in order to maximise the benefit derived
from their use. The review was motivated by the view that in order to accommodate
growing spectrum demand from all types of users and to maximise the overall benefit
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
37
from spectrum use unnecessary regulatory distinctions between private and public
sector spectrum use should be removed.
The main findings and recommendations from the Review were published in April 2008
together with ACMA’s response. The Review identified four main sets of issues that
future policy needed to address, namely
•
Increased transparency in the use of spectrum by government bodies
•
Increased sharing of government spectrum
•
Increased use of market approaches to improve the management of government
spectrum
•
Changes to licensing government use to ensure a more appropriate balance
between government and commercial spectrum use
The main findings and recommendations in each of these areas are given below.
ACMA’s response in most areas was to do further work, often with other government
bodies and government users, in order to progress the recommendations. One
exception is Recommendation 7.9 where ACMA continues to believe compensation of
government users for forced relocation may create a number of problems though it will
investigate the issues further on a case by case basis.
3.5.2.1 Increased transparency in the use of spectrum by government
Finding: it is difficult to assess how efficiently spectrum is used by government because
there is insufficient information available to the regulator/government or other users on
how intensively spectrum is used (as opposed to spectrum allocations), whether more
spectrum is being occupied than necessary and what is the opportunity cost of the
spectrum. This is a particular issue in respect of Defence spectrum holdings. It means
the tools are not there to determine the appropriate balance of spectrum
assignments/allocations between government users or between government and
commercial users.
Key Recommendations
•
ACMA to regularly update the stock take of government holdings in consultation
with major government users [7.13].
•
ACMA to analyse the net benefits from refarming spectrum [7.15] and more
generally to identify the opportunity cost of spectrum in any major decisions
affecting spectrum use [7.16].
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
•
ACMA to review every three years all Defence footnotes and band allocations
with a view to opening up allocations to other users. The Defence Strategic Plan
should explain any protections retained [4.1].
•
ACMA should undertake particular activities/studies in respect of radio
navigation aids, Defence radar band sharing and MLS spectrum allocations [5.5,
5.6, 5.7].
•
Establish a committee with comprehensive government representation to
provide advice to ACMA on government priorities for spectrum allocation [7.12].
•
ACMA to ensure (working with Defence and other agencies] spectrum
implications of major government projects are identified as soon as possible
[7.4].
3.5.2.2 Increased sharing of spectrum reserved for government use
Finding: There has been insufficient sharing of spectrum. This in part because of lack of
incentives to share and in some cases insufficient technical expertise in user
organisations to undertake the work (e.g. interference studies) required to achieve
effective sharing (i.e. sharing that allows operational requirements to be met while
avoiding harmful interference).
Recommendations
•
ACMA to take an aggressive stance to promote spectrum sharing where this can
be achieved without significantly increasing the risk of interference [6.2].
•
Agencies that agree to share are afforded licence fee relief [6.3].
3.5.2.3 Increased use of “market approaches”
Finding: Government users need stronger incentives to use spectrum efficiently through
they way they plan, purchase equipment and operate.
Recommendations
•
ACMA to support WRC 07 agenda item to simplify regulation in a way that would
promote spectrum flexibility and pave the way for market allocations [6.1].
•
ACMA to continue the use of market mechanisms in spectrum management,
including in relation to government holdings where practicable [ 7.1].
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
39
•
ACMA to regularly review licence fees with the aim of improving the efficiency of
spectrum use [7.2/7.5].
•
ACMA should publish data on the price and volume of spectrum trades [7.10].
•
Consider on a case by case basis paying compensation to government agencies
forced to relocate facilities or equipment to meet the requirements of other
spectrum users. This compensation could be paid for from the proceeds from
spectrum freed up for other users [7.9].
•
Agencies that make financial gains from improved spectrum use should not be
penalised [7.3].
•
Where the capabilities and safeguards are in pace and the guidelines clear,
ACMA should cede greater responsibility for managing particular bands to
government users [7.11].
3.5.2.4 Changes to licensing government use
Finding: Government and commercial licensing should be placed on a similar basis.
This should include review of whether licence renewal is appropriate for public sector
use at the end of the licence term.
Recommendations
o
ACMA should continue to convert wide area apparatus licences to spectrum
licences and should explore the possibility of including a requirement to share
the spectrum with third parties where this can be shown not to create an
unmanageable risk of interference [7.6].
o
ACMA establish a set of criteria to apply to applications for renewal in the public
interest and to develop clear criteria for re-issuing or renewing licences in the
public interest [5.4/7.8].
40
4
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
A sectoral view of spectrum management for the public sector
This Chapter of the Annex describes current spectrum usage practices and allocations,
on a sector by sector basis.
Throughout, we use the terms allocation, allotment and assignment of spectrum
according to the following ITU definitions:
•
Allocation: “Entry in the Table of Frequency Allocations of a given frequency
band for the purpose of its use by one or more terrestrial or space
radiocommunication services or the radio astronomy service under specified
conditions. This term shall also be applied to the frequency band concerned.”
•
Allotment: “Entry of a designated frequency channel in an agreed plan, adopted
by a competent conference, for use by one or more administrations for a
terrestrial or space radiocommunication service in one or more identified
countries or geographical areas and under specified conditions.”
•
Assignment: “Authorization given by an administration for a radio station to use
a radio frequency or radio frequency channel under specified conditions.”
Section 4.2 reviews spectrum management practices and institutions for defence;
Section 4.3 does the same for the aeronautical sector; Section 4.4 for maritime; Section
4.5 for rail; and Section 4.6 for emergency services. Section 4.7 notes challenges that
we have identified in each of these sectors.
4.1
International and European regulatory bodies
At the international level, the International Telecommunications Union (ITU), a United
Nations body, is in charge of allocating broad category frequency bands for activities
such as mobile systems, satellite communications, broadcasting and radio navigation.
That has also to be considered in national policies respecting Article 5 of the ITU Radio
Regulations, notably if the service concerned should be protected from interference
from other services in neighbouring countries.
The Conference of European Postal and Telecommunications Administrations, or CEPT
(whose members include 48 European countries), develops spectrum management
recommendations for Europe and coordinates European proposals to the ITU. It also
advises the European Commission on technical aspects for the preparation of spectrum
decisions.
The European Union (EU) interacts with the spectrum management process in many
ways. The Radio Spectrum Committee (RSC) assists the Commission in the
development and adoption of technical implementing measures aimed at ensuring
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
41
harmonised conditions for the availability and efficient use of radio spectrum, as well as
the availability of information related to the use of radio spectrum. The RSC establishes
a work programme to tentatively schedule its activities. The was established under the
Radio Spectrum Decision 676/2002/EC as part of the new regulatory framework for
electronic communications.
The Radio Spectrum Policy Group (RSPG) is a high-level group of experts from
Member States that assists and advises the Commission on strategic aspects of
spectrum policy such as availability, harmonisation and allocation, information on
allocation, availability and use of radio spectrum, methods for granting rights of use,
refarming, relocation, valuation and efficient use and protection of human health.
Figure 7:
Relationship between national stakeholders and international bodies
Besides national radio spectrum management, allocations must comply with
International and European regulations. Public sector spectrum usage must take into
account the international spectrum management because of the specificity of public
sector services. For some international services, like those governing aeronautical and
maritime sectors, spectrum may be internationally harmonised for international
interoperability.
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
International public sector stakeholders include those shown in Table 11.
Table 11: International public sector stakeholders
Sector
International
European
Defence
North Atlantic Treaty Organisation (NATO)
European Defence Agency
(EDA)
Aeronautical
International Civil Aviation Organization (ICAO)
Eurocontrol
International Air Transport Association (IATA)
European Aviation Safety
Agency (EASA)
Maritime
Transport
International Maritime Organization (IMO)
European Maritime Safety
Agency (EMSA)
Railways
International Union of Railways (UIC - Union
Internationale des Chemins de Fer)
European Railways Agency
(ERA)
Emergency
services
-
(PSC Forum)
4.2
Defence
Defence poses many challenges to improvements in the economic efficiency of
spectrum allocation and usage. Since many of the spectrum allocations are harmonised
regionally by NATO, there is limited scope for other initiatives; on the other hand, NATO
itself exerts some pressure to ensure efficient use. Much of this section of the report
deals with the interplay between regional and national spectrum management in the
defence sector.
Much equipment has a long life cycle, which implies that improvements will tend to be
slow to deploy.
Many radio systems in this sector are designed to operate in hostile electromagnetic
environments. Systems designed for hostile environments should be inherently suitable
for sharing spectrum with other users; however, certain applications, particularly those
relating to airborne systems or those providing vital communications between field
forces and central command, require a high degree of protection, which may imply a
need for exclusive spectrum assignments. There may be scope for greater sharing of
defence spectrum with other public and private sector users, but careful study would be
required.20
20 In France, for example, roughly two-thirds of all defence spectrum is shared, much of it with other
public sector spectrum users.
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
43
4.2.1 The interplay between regional and national spectrum management
In defence, as in a number of sectors, spectrum management is partly managed at the
national level and in part coordinated internationally. NATO and the European Defence
Agency play particularly prominent roles in international coordination. International
interoperability in terms of defence is vital for European Member States. NATO imposes
harmonization at international level (membership includes most but not all EU Member
Strates as well as several non-European countries), while EDA operates at European
Union level.
The scope at national level to release unneeded spectrum is constrained in some
bands, particularly those which are NATO-managed or harmonised.
Historically, a number of (newer) Member States were parties to the Warsaw Pact, and
thus historically adhered to a different and incompatible set of defence spectrum
allocations. These historical allocations are rapidly being phased out as these Member
States integrate with the rest of the European Union. We discuss this evolution in
Section 4.2.5.
Figure 8:
Main stakeholders in the defence sector
National stakeholders
EDA
CEPT?
ITU
NATO
Worldwide
European
National
4.2.2 NATO
The spectrum requirements of NATO are set out in the NATO Joint Civil and Military
Frequency Agreement (NJFA). The NJFA constitutes the joint agreement between the
civil and military authorities of the NATO nations on the use of the radio spectrum for
military purposes required by NATO forces.
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
In order to improve harmonisation in spectrum utilisation for military operations
throughout Europe, the service allocations and the harmonised NATO bands stipulated
in the NJFA are incorporated into the European Table of Frequency Allocations and
Utilisation of the European Radiocommunications Committee (ERC) of the CEPT. In
this context, the value of the CEPT’s decision making process is that it takes into
account the national governmental opinions and national allocation tables and aims at
harmonisation on a European wide basis
The NJFA sets out military spectrum requirements, which NATO nations agree to
accept by reflecting such needs in national allocation tables, to the maximum extent
possible. It includes both NATO requirements and national military requirements in
support of NATO for mobility and interoperability of forces, and to improve commonality
in spectrum utilisation for military operations and efficiency in boarder areas.
When specific military requirements cannot be complied with by using provisions of the
NJFA, military requirements may be satisfied nationally in civil bands or allocations.
Military usage, in bands where there is civil usage, is in accordance with the ITU Radio
Regulations.
4.2.3 European Defence Agency (EDA)
The EDA is an Agency of the European Union that has been established to support the
Member States. EDA seeks to improve European defence capabilities in the field of
crisis management and to sustain the European Security and Defence Policy as it now
stands and as it develops in the future. The decision-making body is composed of the
Defence Ministers of the 26 participating Member States (all EU Member States, except
Denmark) and the European Commission.
In the field of radio spectrum, the agency's work is led by its project team for Radio
Spectrum. The precise tasks of the project team include: co-ordination and input on
spectrum to EDA projects; information exchange on EU military spectrum issues; input
to Commission spectrum activities. Another possible task under consideration is liaison
with NATO, but the respective roles of EDA and NATO would have to be clarified.
Finally, around 50% of the spectrum below 6 GHz has historically been harmonised in
Defence sector; however, some of these allocations are only rarely used by defence,
and are increasingly made available for civilian use21.
21 For example, the 790-960 MHz and 3400-3600 MHz bands.
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
45
Table 12: Role of the main stakeholders in the defence sector
Stakeholder
Scope
Role
NATO
USA+Europe
North Atlantic Treaty Organization
The NJFA (NATO Joint Civil and Military Frequency Agreement)
defines spectrum requirements
EDA
Europe
The European Defence Agency is an Agency of the European
Union. The project team for Radio Spectrum tasks are:
-
co-ordination and input on spectrum to EDA projects;
information exchange on EU military spectrum issues;
input to Commission spectrum activities.
under consideration: liaison with NATO
4.2.4 Combined Communications Electronic Board (CCEB)
The Combined Communications Electronic Board (CCEB) is a five-nation joint military
communications electronics organization whose mission is the coordination of any
military communications electronics matter that is referred to it by a member nation. The
member nations of the CCEB are Australia, Canada, New Zealand, the United Kingdom
and the USA. CCEB task forces (TFs) are normally established to address a specific
short-term issue. One of the TFs is the Spectrum Task Force (STF). NATO draws on
the spectrum management material published by this body.
4.2.5 Dealing with legacy systems (Warsaw Pact)
Old Russian devices are still in use in the Czech Republic: for instance, radars in the
2.9-3.4 GHz band. They interfere with BWA equipment in the 3.5 GHz band due to
geographical separation requirements which are not met.
The military spectrum situation is similar in all of the Member States that were formerly
Warsaw Pact participants. There are only small differences in the services (no navy in
some countries).
All the frequency bands of the NJFA (NATO Joint Frequency Agreement) are
implemented in the Czech Republic, and it is likely that the same is true in most Eastern
European countries.
Stakeholders consistently expressed the view that much Warsaw Pact legacy
equipment has already been phased out, and that this problem is well on its way to
being solved.
46
4.3
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Aeronautical
The aeronautical sector is by its very nature global; consequently, sectoral
arrangements often play a more significant role than national arrangements. Much of
our discussion of this sector focuses on international arrangements in consequence.
Adoption of new radio technology in the aeronautical sector has primarily been driven
by the need to increase capacity in response to the massive growth in commercial air
traffic, and secondarily by the desire to reduce cost (e.g. by reducing the size and
weight of equipment carried on board aircraft and hence reducing fuel consumption).
The need to increase capacity in some bands (e.g. the aeronautical VHF
communications band) has led to significant improvements in spectrum efficiency;
however, in other cases where there have been no capacity constraints (e.g. primary
radar bands) there has been little or no improvement over time.
There are long term plans to introduce digital technology for aeronautical
communications, but this requires re-planning of the current international Air Traffic
Control arrangements and the cooperation of all the airlines. Efforts to date have
therefore concentrated on improving the efficiency of existing analogue communication
systems by progressively reducing the required channel bandwidth. The latest reduction
from 25 kHz to 8.33 kHz applies to the higher flight altitudes used by commercial
airliners and should enable future traffic growth to be accommodated for the next
decade or so, but a more radical solution is required for the longer term. This is being
addressed in a joint study by the US FAA and Eurocontrol that seeks to develop the
next generation of airborne communications.
Section 4.3.1 discusses spectrum management arrangements at the global
international level; Section 4.3.2 discusses arrangements specifically at the European
level, including in particular Eurocontrol’s SAFIRE system.
4.3.1 International and global level
Due to the international nature of air traffic and the long distances traversed by radio
signals in an airborne environment, most aeronautical spectrum is by necessity
internationally harmonised. Thus international constraints are significant in this sector
and these are generally applied by one or more of the sectoral regulatory bodies,
notably coming from the ICAO, IATA to a certain extent and Eurocontrol for regional
level.
The International Civil Aviation Organization (ICAO) is a specialized agency of the
United Nations. The standards developed by ICAO relate to aeronautical radio
communication, radio navigation and surveillance (radar) systems and equipment,
installed on aircraft or on the ground. Aviation safety demands the availability and
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
47
security of adequate and well-protected radio-frequency spectrum. ICAO has been
actively working with ITU to ensure that decisions related to spectrum management will
secure the long-term availability of radio-frequency spectrum for aviation use.
The frequency spectrum management related activities within ICAO exist on 2 levels22;
•
At the worldwide level through the work of the ICAO Air Navigation Commission
(ANC) with the assistance of the ICAO Aeronautical Communications Panel
(ACP) and Navigation Systems Panel (NSP) to prepare the coordinated ICAO
policies, spectrum estimates and technical inputs for ITU conferences and study
groups.
•
At the regional level through coordination of frequency management aspects
and assignment plans with States using agreed ICAO planning criteria by the
regional offices.
In the European Region, civil aviation frequency matters are handled by the Frequency
Management Group (FMG) of the ICAO European Air Navigation Planning Group
(EANPG).
International Air Transport Association (IATA) also participates in the ITU activity,
establishes consensus amongst its Members on radio spectrum issues and coordinates
the air transport industry input to the World Radio Conference. Regional Offices
represent the aviation industry in matters dealing with aeronautical radio spectrum
allocation and radio interference.
22 from ICAO source - doc RSPG-PUS 12. See details in annex
48
Figure 9:
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Main stakeholders in the aeronautical sector
National stakeholders
Eurocontrol
ICAO
CEPT
ITU
EASA
EC
Worldwide
European
National
Table 13: Role of the main stakeholders in the aeronautical sector
Stakeholder
Scope
Role
ICAO
Worldwide
Develops standards for aeronautical radio
communication, radio navigation and surveillance
(radar) systems
FMG (Frequency Management Group) deals with
spectrum issues
ICAO Europe regroups 54 States
Military Aviation Community
Worldwide
EUROCONTROL
Europe
SMG (Spectrum Management Group) deals with
spectrum issues
The European Community
Airlines and their
organisations
Europe
Users of the spectrum
ASFCG
Europe
ASFCG (Aeronautical Spectrum Frequency
Consultation Group): coordination group between
ICAO and Eurocontrol
ECAC
Europe
European Civil Aviation Conference: has 42
member states and describes itself as a forum for
discussion and decision to European Ministers of
Transport
European Standardisation
Institutes
Europe
e.g. EUROCAE, ETSI : develops standards at
European level
European Aviation Safety
Agency (EASA)
Europe
Mainly focussed on air safety / airworthiness but
wants to expand its remit to Air Traffic Control
States and Air Navigation
Services Providers
National
National aviation authorities
National
JAA (Japan), FAA (USA), CAA (UK)
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
49
4.3.2 European level
Eurocontrol is the European Organisation for the Safety of Air Navigation. It is a civil
and military organisation which currently numbers 34 Member States23.
Eurocontrol develops, coordinates and plans for implementation of short-, medium- and
long-term pan-European air traffic management strategies and their associated action
plans in a collective effort involving national authorities, air navigation service providers,
civil and military airspace users, airports, industry, professional organisations and
relevant European institutions.
Eurocontrol works with the national civil or military air navigation organisations which
closely work with the NRAs. Generally, dedicated and independent bodies are
responsible of plan assignments of spectrum for all aeronautical use and issues
licences.
23 Albania, Austria, Belgium, Bosnia and Herzegovina, Bulgaria, Croatia, Cyprus, the Czech Republic,
Denmark, Finland, France, Germany, Greece, Hungary, Ireland, Italy, Luxembourg, the former
Yugoslav Republic of Macedonia, Malta, Moldova, Monaco, the Netherlands, Norway, Poland,
Portugal, Romania, Slovakia, Slovenia, Spain, Sweden, Switzerland, Turkey, Ukraine and the United
Kingdom.
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Figure 10: Interaction between Eurocontrol and CEPT/ITU
AVIATION
MULTI - SECTOR POLICY
KEY
PARAMETERS
•CNS STRATEGY
•CNS IMPLEMETATION PLAN
•THREATS
•OPPORTUNITIES
HIGH LEVEL SPECTRUM
FUNCTION GROUP
EUROPEAN COMMISSION
MEMBER STATES
SPECTRUM
STRATEGY
CEPT
AERONAUTICAL
EUROPEAN
COMMON
POSITION
WRC POSITION
ITU
CEPT (TECHNICAL)
STUDIES
GOVT AGENCIES
STANDARDS
ORGANISATIONS
FREQUENCY
MANAGEMENT
AVIATION TECHNICAL
MULTI - SECTOR TECHNICAL
Eurocontrol has developed a centralised database and coordination tool named
SAFIRE with specific information about the national policy relative to the use of
spectrum or to the position of aeronautical radars24. SAFIRE is fed by national Air traffic
Services Providers and Aviation authorities. The information is available to interested
parties such as Radio Regulators and the European Commission. The SAFIRE
database is used not only as an information repository, but also as a sector-specific
assignment tool that is specifically tailored to the demanding environment of the
aeronautical sector. This innovative use of information technology to automate
frequency assignments can be viewed as a sector-specific best practice.
24 see annex for more details on SAFIRE
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
51
Figure 11: The SAFIRE database
Eurocontrol
SAFIRE
Spectrum and Frequency Information Resource
Central Database tables
• Frequency assignments
• User configuration
• Spectrum information
USERS
Internet
Connection
Frequency planner
• User access level
• E mail accounts
• Frequency Planning
software
Internet server
SAFIRE
Source: Eurocontrol
Like the ERO’s EFIS, SAFIRE is a database management system that records
frequency allocations and assignments; however, its mission and its mission are
somewhat different. Table 14 compares EFIS to SAFIRE.
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Table 14: Comparison SAFIRE/EFIS
SAFIRE25
EFIS
Launch date
Purpose
January 2002
- ERO Frequency Information
System (EFIS) and National
Frequency Tables
- Database of allocations and
applications in the CEPT
countries
Management
of the
database
Access to
the
information
Inputs sent by each country to
ERO which manages the
database
Public: via the ERO web site
(www.efis.dk)
Allocation
information
Assignment
information
European Common Allocations
+ national allocations (NFAT)
No
Application
information
Accuracy of
the information
Yes
Other
functions
Geographical
coverage
Inconsistency in the information
provided by different countries27
- Search entries & Comparison
tool: spectrum utilisation across
Europe (Allocation, application)
- Access to documents (ECC
reports, interface specification)
December 2007 (VHF band)
- On-line web-based system used for aeronautical
frequency and spectrum management activities
- Stores information relating to frequency assignments
and spectrum allocations in aeronautical frequency
bands.
- Provides an automated co-ordination tool that enables
efficient pan-European implementation of frequency
assignments
Eurocontrol + each European country manages its
section (State authorised frequency manager account)
Mainly restricted to Eurocontrol members26. separate
access levels for the frequency and spectrum areas
Public access to public information (need to fill in an
form): http://www.safire.aero/Safire/index.do
ICAO frequency table
Frequency Coordination tool: The SAFIRE coordination
message functionality has been based on the ICAO
frequency table planning and coordination requirements
used in the EUR region. There is only one frequency
manager account for each State.
Yes (VHF band)
?
- Query capability: Search facility for frequency
assignment information by site location name, state,
frequency range
- Access to documents
- File exchange-export (Excel & XML formats)
- Audit & monitoring28
CEPT countries - non
exhaustive: Latvia is missing
among EU countries
25 information coming from document RSPG08 – PUS 10
26 The majority of the information in the system is restricted to registered users with appropriate
privileges, for which users must be logged in to access. Some spectrum information is not restricted
and can be accessed without the need to be logged in
27 960-1215 MHz band some provide detailed information on the applications (DME etc) whilst others
simply refer to the ITU allocation to aeronautical radionavigation. Emergency Services Spectrum
some countries show all the bands that are in use (harmonised and non-harmonised), some only
show the harmonised TETRA band and others (including France and the UK) show nothing at all
under this category. Defence use: for example according to EFIS there is no defence use in the
Netherlands!
28 The system enables analysis reports to be compiled through an administration function. These can be
published in the appropriate document sections. In addition SAFIRE records a user track of activity
within each profile in order to provide traceability and documented reference for user reference
purposes
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
53
This comparison of EFIS to SAFIRE shows that EFIS is mainly an allocation information
database, whereas SAFIRE plays the additional role of a coordination tool with the aim
of allowing secure assignments in the VHF band. Management of EFIS is centralised,
whereas SAFIRE is managed by a national coordinator for each European country.
Figure 12: Collaboration between Eurocontrol and ICAO
EUROCONTROL
ICAO
SFCG
Spectrum Frequency
Consultation Group
SMG
Spectrum Management Group
FMG
Frequency Management Group
Note: ASFCG (Aeronautical Spectrum Frequency Consultation Group) is the new name of the SFCG group
which coordinates the work of ICAO and Eurocontrol.
4.4
Maritime
Communications are essential for mariners, both for routine operations and for safety
purposes. They serve professional seafarers and leisure craft.
The bulk of maritime spectrum is harmonised (2900 - 3100 MHz and 5470 - 5650 MHz).
Also, some bands used for maritime applications are shared with other applications
concluded between representatives of the maritime and of the defence sectors;
agreement defines the geographical sharing of spectrum.
Sharing inland is already in place for maritime radars in the 2900 – 3100 GHz band
shared between maritime and military radars applications. However, only the bands
used for ship-based operations are concerned by international rules. Assignments for
shore based services are carried out on a national basis.
The maritime sector, like the aeronautical sector, is by its nature to a significant degree
global; again, sectoral arrangements play a significant role, although there is also
substantial scope for national arrangements.
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
4.4.1 International and European level
It was believed that such maritime matters as maritime safety would be more effectively
addressed at the international level rather than by individual countries acting
unilaterally. Also, maritime spectrum is internationally harmonised and is determined at
international level enabling worldwide interoperability, especially for distress and safety
matters.
Figure 13: Main stakeholders in the maritime sector
National stakeholders
EC
CEPT
European Maritime Safety Agency
IALA
ITU
IMO
International Maritime Organisation:
Specialised UN agency
Worldwide
European
National
Table 15:
Role of the main stakeholders in the maritime sector
Stakeholder
Scope
Role
IMO
Worldwide
IALA
EMSA
Worldwide
Europe
ETSI
Europe
PNM/CETMEF (France)
Maritime and Coastguard
Agency (UK)
National
International Maritime Organization: defines in SOLAS
most of the spectrum used by the maritime sector
International Association of Lighthouse Authorities
European Maritime Safety Agency: has a very limited
role in terms of spectrum management. It is a new body
“currently trying to find a role for itself”. The UK is
promoting spectrum liberalisation within this body
Responsible for producing a range of technical
standards and reports concerning radio equipment and
systems for maritime and inland waterways use
Assign and use spectrum at national level
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
55
The International Telecommunications Union (ITU) Radio Regulations fixed frequencies
for maritime communications and for distress and safety and works closely with the
International Maritime Organization (IMO).
Communication is increasingly reliant on satellite systems, and in many countries
maritime mobile services for public correspondence have been closed down. There is
however a continuing requirement for terrestrial safety of life communication, most of
which is now consolidated under the Safety of Life at Sea (SOLAS) Convention,
maintained by the IMO.
The IMO is the specialised agency of the United Nations devoted to maritime affairs. Its
role is to coordinate international maritime safety and related practices. The
organization promotes cooperation among governments and the shipping industry to
improve maritime safety and to prevent marine pollution. IMO is governed by an
Assembly of members and is financially administered by a Council of members elected
from the Assembly.
The GMDSS (Global Maritime Distress and Safety System) is used for maritime
emergency assistance.
4.5
Railways
The International Union of Railways (UIC, Union Internationale des Chemins de fer) is a
worldwide organization of railway cooperation that has opted for a new system of
railway communication.
ERA (European Railways Agency) main task is to develop common technical standards
and approaches to safety and interoperability. ERA also acts as the system authority for
the ERTMS system (European Rail Traffic Management System – see annex for
details), which has been set up to create unique signalling standards throughout
Europe.
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Figure 14: Main stakeholders in the railways sector
National stakeholders
ERA
CEPT
ITU
Worldwide
European
National
Table 16:
Role of the main stakeholders in the railways sector
Stakeholder
Scope
Role
UIC
Worldwide
Union Internationale des Chemins de Fer : analogue and digital
spectrum coordination at international level
ERA
Europe
European Railways Agency: GSM-R spectrum coordination and
use
4.5.1 ERTMS
ERTMS is the European Railway Traffic Management System and has been designed
by the European railways and the supply industry supported by the European
Commission to meet the future needs of the European Railways.
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
57
Figure 15: Building blocks of ERTMS
ERTMS
European Rail Traffic Management System
Common
train
communication via
GSM-R
ETCS
European
Train
Control
System
European
traffic
management
Further
applications
GSM-R: Mobile Communications Platform – Railways
for speech and date
A significant component of the European Rail Traffic Management System (ERMTS),
GSM-R reliably transports voice, data, and advanced European Train Control System-2
(ETCS-2) signaling data even at high speeds
ERTMS has two basic components:
•
ETCS (European Train Control System), makes it possible not only to transmit
permitted speed information to the train driver, but also to monitor constantly the
driver’s compliance with these instructions;
•
GSM-R, based on standard GSM but using various frequencies specific to rail
as well as certain advanced functions. It is the radio system used for exchanging
voice and data information between the track and the train
Main radio spectrum usage is for the GSM-R system and to a more limited extent for
radio connections used for traffic management communications.
4.5.2 GSM-R
GSM-R is the technology used for railway communications and applications. It is mainly
used to permit communication between train and railway regulation control centres and
is based on GSM.
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
A common frequency range is used in all GSM-R networks to achieve international
interoperability and spectrum efficiency. In Europe, GSM-R uses the bands 876 MHz 880 MHz (uplink) and 921 MHz - 925 MHz (downlink). Close cooperation is maintained
with ETSI – through ETSI Project Rail – and with the GSM-R supply industry. To protect
the specific railway features of GSM and to improve the development of the GSM
standard, UIC has created, together with ETSI, an interface group that has the status of
a technical committee in ETSI. Based on liaison-statements with the different
committees in ETSI this group is in a position to improve the standards and to protect
them against commercial encroachment from public suppliers.
Table 17: Railways-Europe-applications and associated frequency bands
SERVICE TYPE
FREQUENCY BANDS
COMMENTS
POINT TO POINT
VARIOUS
TERRESTRIAL MOBILE
450 MHZ
PMR
TERRESTRIAL MOBILE
900 MHZ
GSM-R
In Europe, from total railway network taken into account, which means 221.025 km,
149,673 is foreseen to be covered with GSM-R. That means 67, 7 %.
4.5.3 Advanced GSM-R (A-GSMR), Frequency management
Start date: 01/01/08 - End date: 31/12/09
The European Train Control System (ETCS) at Level 2 should replace lineside
signalling, and should provide a full automatic train protection including train
supervision. A-GSMR will also gather and manage the frequency needs for railways,
related to all frequencies and the common needs. The A-GSMR will act as an interface
between railways and European frequency authorities and as the centre of competence
in the field of telecommunication for railways.
Source: UIC
The Radio Frequency Group supports the campaign for frequency band extension,
defends GSM-R spectrum against any interferences and disturbances (e.g. UMTS).
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
59
4.5.4 ETCS
ETCS is the control-command system.
The EIRENE and MORANE projects were set up to specify, develop, test and validate
prototypes of the new radio system. The applications identified by the EIRENE/
MORANE projects include:
•
Controller-Driver Operational Communications
•
Automatic Train Control
•
Shunting
•
Remote Control
•
Emergency Area Broadcast
•
Train Support Communications
•
Local Communications at Stations and Depots
•
Passenger services
Figure 16: GSM-R and ETCS systems
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
4.6
Emergency services
Emergency services do not use large volumes of spectrum, but their usage is of vital
importance to society.
Emergency services networks can be national or regional, and address the needs of the
many different users, including:
•
Police
•
Firemen
•
Ambulances
•
Public safety
•
Prisons
The emergency services sector tends to be highly fragmented. Many small
organisations operate at the local level, often with limited funding. This has implications
for the speed with which enhancements could be introduced, inasmuch as there may at
present be no good funding vehicle for equipment upgrades.
This fragmentation also potentially complicates a coordinated response when a natural
disaster or terrorist incident crosses national borders. There is an increasing recognition
in the sector of the need for highly interoperable solutions. Thus, the desire for higher
speed data transfer, and for video, in conjunction with these growing needs for crossborder interoperability is driving an increasing demand for broadband capabilities for
emergency services that are interoperable at the European level.
To be sure, the emergency services sector has already made good progress towards
adoption of digital standards for voice and for narrowband data services. Most EU
countries have at least partly migrated their emergency service communications to
digital trunked mobile networks (either TETRA or Tetrapol) operating in the harmonised
380 – 400 MHz band.
Emergency services make some use of standard commercial systems; however, the
need for emergency services to operate even in the midst of a disaster limits the use of
commercial systems, which in most cases are not designed for that level of reliability
and robustness.
Opportunities to share spectrum with the private sector are being explored, notably in
the United States (see Section 3.4). Commercial users would need to vacate the band
immediately in the event of an emergency. Technical means of enforcing the necessary
pre-emption are a real possibility with current technology.
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
61
An alternative that has not been fully explored to date is the possibility of sharing
spectrum with the military. Emergency services and defence have similar needs for
reliability and robustness, and they might need to work together in any case in certain
kinds of emergencies.
4.6.1 The emerging needs of emergency services organisations
Video transmission applications are expected to drive the need for new spectrum:
•
Images from fixed cameras
•
Transmission from UAVs (still experimental)
•
“Video protection”: video feeds from highways, local authorities with radio or
fibre backhauling
•
Cameras used for specific surveillance needs (fixed or in-vehicles).
Short term:
•
Police (policemen equipment) bandwidth 16 kbps (TETRA does not allow that)
•
Database project, mobile office, automatic synchronisation
•
“Phototext”: database query, photo, arms…
The addition of all these requirements Î broadband needs
4.6.2 Role of the stakeholders
The only worldwide organisation of which we are aware that addresses spectrum
management in the emergency services sector apart is the TETRA Association;
however, this organisation generally confines itself to issues related to the TETRA
standard. There are, however, public safety organisations at the European level.
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Figure 17: Main stakeholders in the emergency services sector
National stakeholders
ETSI (EMTEL)
EC
CEPT
TETRA
ITU
association
Worldwide
European
National
The Forum for Public Safety Communication Europe (PSC Europe) has been
established in order to facilitate consensus building in the area of public safety
communication and information management systems. It produced a spectrum harmonisation initiative that addresses the need for additional spectrum in the area of Public
Protection and Disaster Relief (PPDR).
Table 18: Role of the stakeholder organisations in the emergency services sector
Stakeholder
Scope
Role
TETRA
Association
Worldwide
Is active in promoting the TETRA standard, its evolution (TEDS)
and the associated spectrum needs
TIG
Europe
TETRA Industry Group: works on health issues and issues
proposals for limiting exposure to electromagnetic fields
ETSI
Europe
EMTEL (Emergency Communications): PSS users
CEPT
Europe+
ECC: WG FM PT38, WG SE’s
PSC Europe
Europe
The forum for public safety communications is a 3 years project
supported by the EU (IST project). It issued a spectrum
harmonisation initiative addressing spectrum needs of the sector
and cooperates with ECC.
PSRG
Europe
Public Safety Radiocommunications Group: an informal Group
gathering representatives of countries which have
EENA
Europe
European Emergency Number Association
BAPCO (UK)
National
British Association of Public Safety Officials
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63
Table 19: Role of the stakeholders in the emergency services sector
Stakeholder
Scope
Role
TETRA
Association
Worldwide
TIG
Europe
ETSI
Europe
CEPT
Europe+
PSRG
Europe
PSC Europe
Europe
EENA
TIEMS /
ISCRAM
BAPCO (UK)
MMF
Europe
Worldwide
Is active in promoting the TETRA standard, its evolution (TEDS) and
the associated spectrum needs
Board
OUA (Operator & User association)
Prioritisation list for IoP
Service Functionality Overview
Operator Information Exchange Characteristics
Main customer is Technical forum
Open to all Users / Operators (being TA members)
TF (Technical forum)
SFPG (Security & Fraud Prevention Group)
Rail Forum
SME
8 x Regional Forums
TETRA Industry Group: works on health issues and issues
proposals for limiting exposure to electromagnetic fields
EMTEL (PSS Users)
MESA (Broadband)
SAGE (Security)
ERM-RM (Spectrum)
IMPACT (Marketing)
SDR ( S/W Defined Radio)
DMR
ECC
WG FM: WG FM PT38
WG SE’s
Public Safety Radiocommunications Group: an informal Group
gathering representatives of countries which have TETRA networks
or projects
PSS Information Exchange
Common Views AGA, DMO Other
Real PSS Operational Experiences
New/Existing TETRA Projects
Characteristics
Technology Independent
Closed Group
The forum for public safety communications is a 3 years project
supported by the EU (IST project). It issued a spectrum
harmonisation initiative addressing spectrum needs of the sector
and cooperates with ECC.
European Emergency Number Association
Disaster Relief
National
British Association of Public Safety Officials
Mobile Manufacturers Forum – Health Issues Cellular)
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
The spectrum harmonisation initiative of the PSC Forum addresses the following issues
(source: PSC Forum):
•
Does the fact that PSS today use dedicated spectrum also mean that dedicated
spectrum are required in the future?
•
Could PSS in the future use existing commercial networks? What determines if
that is possible?
•
Narrow band and wide band needs can to some extend be served by spectrum
in 380 -430 MHz area, but what about future broadband needs? What spectrum
would be required and for what services?
•
How will the so-called “digital dividend” discussion impact the spectrum
management for Public Safety services?
EMTEL related standardization work takes place across ETSI’s technical committees,
projects and partnership projects. Emergency telecommunications have always been
part of overall telecommunication services. Over the past years, EMTEL activities in
ETSI have been covered by:
•
TC TETRA: Mobile narrowband and wideband communications for public safety
applications.
•
Project MESA: Mobile broadband communications for public safety applications.
•
3GPP: Priority services and Location services for GSM and W-CDMA systems.
•
TC SPAN (closed): International emergency preference schemes, multimedia
services and EMTEL specific protocols.
•
EP TIPHON (closed): Emergency telecommunications services in IP based
networks.
•
TC TISPAN: EMTEL specific architecture and protocol description for VoIP and
multimedia networks.
•
TC SES: Satellite communications; equipment for terrestrial and maritime
coverage.
•
JTC Broadcast: Digital Audio Broadcasting (DAB) and Digital Video
Broadcasting (DVB) standards define features associated with emergency
announcements.
•
TC ERM: Radio equipment, spectrum and compatibility.
•
TC AT: Requirements for the implementation of EMTEL features in terminals for
the 'smart' home.
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
•
TC DECT: Call procedure for DECT devices.
•
EP SCP: 'Smart cards' for mobile telecommunications.
65
With the creation of OCG EMTEL, the Operational Co-ordination Group's ad-hoc group
on Emergency Telecommunications, more areas have been addressed across the ETSI
Technical Bodies. In February 2005 the ETSI Board approved the change of status from
OCG EMTEL to Special Committee (SC) EMTEL.
4.7
Challenges and evolution in each sector
Each of these sectors faces numerous challenges in regard to spectrum management
going forward. In some cases, solutions or mitigation measures are being implemented.
Challenges that we have identified include:
Defence
•
Coordination between EDA and NATO
•
Legacy systems in Eastern Europe causing interferences to commercial
equipment
Aeronautical
•
Congestion of the aeronautical VHF band (2500 assignments needed in Europe)
•
Interferences caused to the VHF band due to bad planning of radio diffusion
stations (88-108 MHz) and the power limits of the FM transmitters are not
respected
•
Interferences caused to aeronautical radars
Maritime
•
Weak position of the maritime sector at WRC’07 due to the lack of common
positions on spectrum
•
There are no aeronautical frequencies for rescue at sea, they have to use
maritime ones
•
The maritime sector is looking to migrate from 25 kHz to 6.25 kHz for
communication channels to address congestion hot spots
•
Broadband needs (Ships increasingly using data)
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Rail
•
GSM-R networks in some EU Member States face congestion at local or
regional level, and new frequencies may be necessary in the future, unless
appropriate workaround solutions can be identified.
•
Interferences with commercial GSM base stations in the E-GSM band (lower
900 MHz)
Emergency Services
•
The needs expressed by the users interviewed for the study are the wideband or
broadband data transmission. The data rates are expressed as “real” data rates
for the end user with some guarantee. The new frequency band should be as
low as possible, ideally close to the existing band (380-400 MHz).
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
5
67
Public Sector spectrum use by frequency band
This section of the Annex to the Draft Final Report provides a breakdown of spectrum
usage by frequency band and by Member State within each band, thus highlighting
differences among the Member States.
5.1
Introduction
In the following sections we review the main spectrum allocations to public sector use in
each of the 27 EU Member States and also highlight existing internationally harmonised
spectrum use. The information is based on public domain sources, notably EFIS and
national frequency allocation tables, further augmented from other sources where
necessary.
Key:
Exclusive Share
Defence
Aeronautical (civil)
Maritime (civil)
Public Safety
Other
5.2
108 MHz to 470 MHz
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
This frequency range includes the harmonised NATO military band in the range 230 –
400 MHz, harmonised aeronautical spectrum in the ranges 108 – 138 MHz and 328.6 –
335.4 MHz and the harmonised public safety communications band between 380 and
400 MHz. There are a number of narrow band maritime communications channels
around 160 MHz which are also harmonised, including some international distress
frequencies. The band 400 – 406 MHz is used globally for meteorological applications,
shared with ultra low power medical implants. In the band 406 – 470 MHz there is a
wide variety of non-harmonised, national allocations used by military and public safety
agencies. Many of the latter are likely to migrate over time to the harmonised 380 – 400
MHz band.
The NATO band is used for command and control systems including tactical and mobile
communications for ships, land forces, air defence, air traffic control, search and rescue
and mobile satellite links.
5.3
500 – 960 MHz
This band includes the TV broadcast band (470 – 862 MHz) which was recently replanned by the ITU for digital broadcasting. A number of legacy non-broadcast
allocations exist within this band, mostly in the former Warsaw Pact countries where the
band was used extensively for aeronautical radionavigation. Most of these legacy
applications are due to be phased out when the transition to digital broadcasting takes
place, the exceptions being France, which according to the plans submitted to he ITU
intends to continue operating military systems in the range 830 – 862 MHz, and
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
69
Belgium which intends to continue operating fixed links at one specific location in the
range 846.9 – 849 MHz. The UK currently operates aeronautical radars in the range
590 – 598 (channel 36), however there are plans to discontinue this and for the
spectrum to be made available for commercial use.
In some countries military communication systems co-exist with GSM cellular networks,
including the dedicated GSM for railways (GSM-R) bands 876 – 880 and 921 – 925
MHz. The latter bands are harmonised across the EU but the extent of deployment
varies (see map below).
Figure 18: Implementation status of GSM-R at end of 2007 (source: UIC)
70
5.4
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
960 – 1525 MHz
Much of this spectrum is harmonised at a global level for aeronautical use and for
satellite navigation systems. A variety of civil and military communication systems
(mainly point to point links or tactical radio relay) operate in the 1350 – 1525 MHz
frequency range. The paired frequency bands 1427 – 1452 and 1492-1525 are
important military bands that are widely used in NATO countries, primarily for tactical
radio relay. In some cases civil fixed links share these bands. Satellite navigation
systems also make extensive use of spectrum around 1200 MHz.
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Harmonised Use
1500
Freq MHz
UK
Sweden
Spain
Slovenia
Slovak R
Romania
Portugal
Poland
Netherlands
Malta
Luxembg
Lithuania
Latvia
Italy
Ireland
Hungary
Greece
Germany
France
Finland
Estonia
Denmark
Cyprus
Czech R
Bulgaria
Belgium
1525 – 2025 MHz
Austria
Freq MHz
5.5
1500
Mobile Satellite Downlink
GPS / Galileo
1600
Glonass
1600
Mobile Satellite Uplink
Meteorology
1700
1700
G S M
1 8 0 0
1800
1800
G S M
1 8 0 0
DECT
1900
1900
IMT-2000
Mobile Satellite Uplink
2000
IMT-2000
Military / Space Ops
Most of this frequency range is allocated to commercial or publicly available systems,
including satellite navigation and communications, GSM and IMT-2000. There is some
military use of the spectrum between the GSM 1800 uplink and downlink bands (1785 –
1805 MHz) and a globally harmonised allocation to meteorological applications in the
1668.5 – 1710 MHz range. EC Decision 2007/98/EC harmonises mobile satellite
uplinks in the band 1980 – 2010 MHz.
2000
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
2011
Harmonised Use
IMT-2000
Freq MHz
UK
Sweden
Spain
Slovenia
Slovak R
Romania
Portugal
Poland
Netherlands
Malta
Luxembg
Lithuania
Latvia
Italy
Ireland
Hungary
Greece
Germany
France
Finland
Estonia
Denmark
Cyprus
Czech R
Bulgaria
Belgium
2025 – 2500 MHz
Austria
Freq MHz
5.6
2011
Military / Space Ops
2100
2100
IMT-2000
Mobile Satellite Downlink
2200
2200
Military / Space Ops
2300
2300
Future IMT (also identified for
airborne telemetry in ECC
REC 62-02)
2400
2400
ISM / WiFi
Mobile Satellite Uplink
2500
2500
FDD/TDD Electronic Services
Although much of this spectrum has either already been made available for commercial
use or is identified for such use in the future, there continues to be substantial military
use. In particular, the 2025 – 2110 and 2200 – 2290 MHz bands are extensively used
for tactical radio relay systems in some countries, although in others such as the UK
these bands are exclusively used for space operations such as satellite control links.
Although identified by the ITU as a band for future IMT systems, the 2300 – 2400 MHz
band is also an important military band in some countries, such as the UK, and has also
been identified by CEPT as a harmonised band for civil and military airborne telemetry
systems. Spectrum immediately below this band (2290 – 2300 MHz) was however
recently released by the UK military authorities and is now scheduled to be auctioned
for commercial use. In some countries military systems continue to co-exist [on a nonprotected basis] with licence exempt civil use in the 2.4 GHz ISM band.
EC Decision 2007/98/EC harmonises mobile satellite downlinks in the band 2170 –
2200 MHz.
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Harmonised Use
2500
Freq MHz
UK
Sweden
Spain
Slovenia
Slovak R
Romania
Portugal
Poland
Netherlands
Malta
Luxembg
Lithuania
Latvia
Italy
Ireland
Hungary
Greece
Germany
France
Finland
Estonia
Denmark
Cyprus
Czech R
Bulgaria
Belgium
2.5 – 3.6 GHz
Austria
Freq MHz
5.7
2500
FDD/TDD Electronic Services
2600
2600
2700
2700
2800
Aeronautical Navigation and
Radiolocation
2800
2900
2900
3000
Mariime Radionavigation and
Radiolocation
3000
3100
3100
3200
Civil and Military
Radionavigation and
Radiolocation
3200
3300
3300
3400
3400
3500
Broadband Wireless Access
3500
This spectrum includes large allocations to aeronautical, maritime and military use,
though there are also two sizeable allocations to commercial systems. The 2700 – 2900
MHz band is a key global allocation for aeronautical navigation systems, principally
surveillance radars and the 2900 – 3100 MHz band fulfils a similar role for the maritime
sector. The 3100 – 3400 MHz band is widely used by military radar systems and in
some countries (e.g. the UK) these also extend into the 3400 – 3600 MHz band, which
is harmonised for Broadband Wireless Access by EC Decision 2008/411/EC. Likewise,
the band 2500 – 2690 MHz is harmonised for terrestrial electronic communication
services through an FDD/TDD band plan in EC Decision 2008/477/EC.
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Harmonised Use
Freq MHz
UK
Sweden
Spain
Slovenia
Slovak R
Romania
Portugal
Poland
Netherlands
Malta
Luxembg
Lithuania
Latvia
Italy
Ireland
Hungary
Greece
Germany
France
Finland
Estonia
Denmark
Cyprus
Czech R
Bulgaria
Belgium
3.6 – 4.4 GHz
Austria
Freq MHz
5.8
3600
3600
3700
3700
3800
3800
Broadband Wireless Access
in the band 3600 - 3800 MHz
from 1/1/2012 & Civil Fixed
3900
Links and Fixed Satellite
Downlinks
3900
4000
4000
4100
4100
4200
4200
4300
4400
Radio Altimeters
4300
4400
With the exception of some shared military use of the 3600 – 4200 MHz fixed link band
in Finland and Sweden, the only public sector allocation in this range is the 200 MHz
block for radio altimeters. The band 3600 – 3800 MHz is also harmonised for
Broadband Wireless Access by EC Decision 2008/411/EC but will not be available on
this basis until 1st January 2012.
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
5.9
75
4.4 – 5.15 GHz
By contrast, this band is almost exclusively used by military and aeronautical systems,
including a variety of radar and communication systems in the 4400 – 5000 MHz range
and the Microwave Landing System in the 5000 – 5150 MHz range. The original
intention that MLS would replace ILS has not been realised so far. A significant amount
of spectrum at 5 GHz that was made available for MLS is therefore sitting idle. There is
a renewed interest in MLS as it increases airport capacity, particularly in bad weather.
MLS has been implemented at Heathrow and a few other busy airports in Europe, but it
remains to be seen whether this translates into widespread MLS implementation.
Part of the band (4.2 – 4.8 GHz) has been harmonised for Ultra-Wide Band (UWB) use
by EC Decision 2007/131/EC, but this has been time limited to 2010 after which time
UWB is expected to operate above 6 GHz.
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Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
Harmonised Use
5100
5100
5200
5300
5400
WLANs (indoor, no DFS)
WLANs (indoor, DFS req'd)
Aircraft Weather Radar
WLANs (outdoor, DFS req'd)
5900
6000
5300
5400
5600
5700
5700
5800
5200
5500
5500
5600
Freq MHz
UK
Sweden
Spain
Slovenia
Slovak R
Romania
Portugal
Poland
Netherlands
Malta
Luxembg
Lithuania
Latvia
Italy
Ireland
Hungary
Greece
Germany
France
Finland
Estonia
Denmark
Cyprus
Czech R
Bulgaria
5150 – 6000 MHz
Belgium
Austria
Freq MHz
5.10
ISM / Wireless Access
ITS safety applications in the
band 5875 - 5905 MHz &
Fixed Links / Satellite Earth
Stations
5800
5900
6000
This band has historically been used by a variety of aeronautical, maritime and military
radar systems. However, much of the band is also now shared with licence-exempt
wireless communication systems which make use of interference mitigation techniques
(dynamic frequency selection, power constraints and/or restrictions to indoor use) – EC
Decision 2005/513/EC as amended by 2007/90/EC. There is also an allocation (57955815 MHz) to road transport and traffic Telematics which is intended to support
development of intelligent transport systems (ITS) such as datalinks between vehicles
and the roadside or vehicle to vehicle. A harmonised allocation at 5875 - 5905 MHz
has also been made for safety related applications associated with ITS through EC
Decision 2008/671/EC.
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
5.11
77
6 – 10.7 GHz
This frequency range is heavily used by military, aeronautical and maritime systems,
although much of the spectrum is shared either between the various public sector
agencies or with commercial fixed link and satellite networks. The NATO satellite band
around 8 GHz is used to provide communication between NATO Member States and
their forces overseas. Doppler radar systems in the 8750 – 8850 MHz band are used for
specialised applications such as ground speed and flight track control. The 9000 – 9200
MHz band is used by ground based aeronautical surveillance radars and shore based
maritime radars, which can be co-ordinated with one another (and with military radar
systems) to facilitate coexistence. The 9200 – 9500 MHz band is used by X-band ship
borne radars, which are an IMO mandatory carriage requirement for all vessels over
100,000 tonnes. There are an estimated 100,000 such radars in use globally. A variety
of mobile military radars operate in across the 8500 – 10500 MHz band, alongside other
military systems such as aeronautical data transmission.
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5.12
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
10.7 – 15.7 GHz
The lower part of this band (10.7 – 12.5 GHz) is widely used throughout Europe for
direct to home satellite TV transmission, however there remain some legacy military
allocations in some eastern European countries. The 13.25 – 13.4 GHz band is
reserved globally for airborne Doppler radars.
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
5.13
79
15.7 – 40.5 GHz
Principal military uses of this frequency range are radars and satellite links. Radar
applications include both military application, such as missile guidance and civil
applications such as police speed radars in the 24 GHz band and collision avoidance
radars using Ultrawideband technology in the 22 – 24 GHz range The latter is a good
example of an “underlay” application where the very low power spectral density allows
the radars to co-exist with primary users of the spectrum (high power microwave links)..
The satellite allocations are intended to cater for the next generation of wideband
military communication satellites, which will provide data transmission rates of up to 2.4
Gbit/s29. These systems will complement the existing defence satellite networks
operating at 7 / 8 GHz, but it is unclear at this stage whether they will eventually replace
them.
29 see http://www.aero.org/publications/crosslink/winter2002/08.html
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5.14
Final Report: Optimising the Public Sector’s Use of Spectrum in the EU
40.5 – 100 GHz
Much of this spectrum remains unused, largely due to the cost and performance
limitations of electronic components and the relatively short distances that signals
propagate at these frequencies. However, certain parts of this spectrum have unique
characteristics that are attractive for certain applications. For example, frequencies
around 60 GHz experience very severe attenuation due to absorption by atmospheric
oxygen and consequently have found favour with the military for secure short range
communications. Mire recently, as technology costs have fallen, nearby frequencies
have been used for short range communication links, such as wireless closed circuit TV
systems.
Above 70 GHz, the very short wavelengths enable high resolution radar systems to be
realised in much smaller housings than would be possible in more conventional bands.
This has attracted considerable interest from the military for compact, lightweight
applications such as missile guidance. As costs have fallen, similar devices have been
developed for the commercial market, notably in the field of collision avoidance radars
for motor vehicles. This has led to spectrum around 76.5 GHz being identified
specifically by CEPT for road traffic telemetry and Telematics (RTTT) systems.