Current ACMA initiatives and decisions
OCTOBER 2012
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acma | 1
Contents (Continued)
Executive summary
1.Introduction
1.1Legislative and policy framework
2.Background
2.1International spectrum arrangements for public safety broadband radiocommunications
2.2The 803–960 MHz band review
2.3Radiocommunications for public safety in Australia
3.New provisions for public safety radiocommunications
3.1A multi-band ecosystem for public safety radiocommunications
3.2Implementation of the 400 MHz review
3.3The decision process on spectrum for Public Safety Mobile Broadband (PSMB)
3.4Public safety use of the 4.9 GHz band
3.5Licensing options
3.6Key mobile broadband standards
acma | 1Executive summary
Australia’s public safety agencies (PSAs) are critical to the safety and security of the community, and the Australian Communications and Media Authority(the ACMA) places a high degree of importance on providing adequate spectrum to support dedicated networks that optimally support their operations.
PSAs have historically relied on narrowband (particularly voice) communications to support their operations, which have been delivered primarily through dedicated land mobile systems. In 2008, the ACMA commenced an extensive examination of PSA needs in this space through a wide-ranging review of the 400 MHz band. This resulted in an expansion of public safety spectrum resources and a framework for national interoperability, for what essentially remains (and will remain) the core communications capability for PSAs.
At the same time, agencies have identified a growing need for operational data capabilities to take advantage of digital technologies, which have the capacity to significantly enhance a wide range of operational functions. High speed, mobile data capabilities that can be relied upon in adverse situations and can provide for interoperability between different agencies and jurisdictions are becoming increasingly necessary in the public safety community. Consequently, in recent years, the ACMA has been exploring how best to meet these needs.
One strategy that the ACMA has undertaken has been to identify 50 MHz of spectrum from the 4.9 GHz band, which will provide very high speed, short range on-demand capacity to areas of high activity to support a wide range of uses. This band is internationally harmonised for public protection and disaster relief (PPDR) communications by the International Telecommunication Union (ITU), which will provide for international interoperability (when needed) and equipment economies of scale. The ACMA’s initiative on 4.9 GHz is the subject of a separate consultation process.
In addition to this, the ACMA has worked closely with Public Safety Mobile Broadband Steering Committee (PSMBSC)[1], which was established in May 2011 to identify options for how spectrum from the 800 MHz band could be used to implement a nationally interoperable mobile broadband capability for Australia's PSAs.
This importance of realising a broadband capability for PSAshas been reflected in the ACMA’s heavy engagement in the work of the PSMBSC. A significant body of work has been undertaken by the PSMBSC in gathering user requirements and determining the most efficient and cost-effective ways to deliver the capability. The ACMA has also undertaken a rigorous evaluation of this evidence—and dimensioned it against the capabilities and constraints inherent in the current 4G Long Term Evolution (LTE) standard—to determine an appropriate amount of spectrum from the 800 MHz band. This would enable a Public Safety Mobile Broadband (PSMB) capability that would meet the PSAs’ needs, with sufficient headroom to allow for future growth in data demand.
Broadband radiocommunications will be an important component of future public safety capabilities and will be supported by spectrum in the 800 MHz and 4.9 GHz bands.The decisions on spectrum that are detailed in this paper will enable PSAs to deploy high-speed, nationally-interoperable mobile broadband networks and overhaul existing mission-critical narrowband radio networks.
The ACMA is undertaking a number of initiatives to improve spectrum provisions for public safety. The most important are:
Making provision for 10 MHz of spectrum from the 800 MHz band for the specific purpose of realising a nationally interoperable PSMB cellular 4G data capability. This band supports 4G (LTE) systems and as such is considered to be ‘beach front’ spectrum by carriers and PSAs alike. The actual frequencies to be provided from within the 800 MHz band will be determined later in the context of the ACMA’s review of the 803–960 MHz band.
Enabling 50 MHz of spectrum from the 4.9 GHz band for PSAs. This spectrum is recognised internationally as a public protection and disaster relief band, capable of extremely high capacity, short range, deployable data and video communications (including supplementary capacity for the PSMB network in areas of very high demand).
Implementing critical reforms in the 400 MHz band—where spectrum has been identified for the exclusive use of government, primarily to support national security, law enforcement and emergency services—is continuing.
The diagram below is a conceptual representation of how these provisions and reforms will combine to form the basis of a holistic strategy to meet our PSAs’ voice, data and video communications needs well into the future. This will be enabled through the deployment of multi-layer, integrated networks that deliver the necessary flexibility, interoperability and capacity to operators where and when needed.The result will be an unprecedented level of situational awareness and interoperability and a competitive advantage for PSAs to carryout their duties.
Conceptual depiction of multi-band layeringThe ACMA will continue to work with PSAs on developing an appropriate licensing framework as part of the ongoing review of the 803–960 MHz band. The new measures in the 800 MHz band will be outlined in a discussion paper to be released towards the end of 2012. Draft arrangements for spectrum in the 4.9 GHz band are detailed in a separate discussion paper.
The ACMA’s decisions on spectrum to support these capabilities will enable future growth as public safety needs evolve. Radiofrequency spectrum, particularly below 1GHz, is extremely valuable and in short supply. However, the ACMA also places an extremely high value on services provided to the community by PSAs. Part of the object of the Radiocommunications Act 1992(the Radiocommunications Act) compels the ACMA to ‘ … make adequate provision of the spectrum for use by agencies involved in...law enforcement or the provision of emergency services.’
The ACMA’songoing challenge is to make adequate spectrum available for PSAs to carry out their duties effectively, while optimising the benefit of the spectrum as a whole to the community. This requires balancing a range of economic and public interest (including public safety) drivers to deliver solutions that best serve the community as a whole. This paper covers ACMA decisions and current initiatives that are intended to provide for current and future public safety radiocommunications needs in Australia.
1Introduction
1.1Legislative and policy framework
The issues discussed in this paper are consistent with the object of the Radiocommunications Act and informed by analysis against a total welfare standard and the ACMA’s Principles for spectrum management, highlighted below.
1.1.1The object of the Radiocommunications Act
Section 9 of the Australian Communications and Media Authority Act 2005 (the ACMA Act) sets out the spectrum management functions of the ACMA including:
to manage the radiofrequency spectrum in accordance with the Radiocommunications Act
to advise and assist the radiocommunications community.
Consistent with the spectrum management functions set out in the ACMA Act, the object of the Radiocommunications Actis to provide for management of the radiofrequency spectrum to achieve a number of goal[s][2], including to:
maximise, by ensuring the efficient allocation and use of the spectrum, the overall public benefit derived from using the radiofrequency spectrum
make adequate provision of the spectrum:
for use by agencies involved in the defence or national security of Australia, law enforcement or the provision of emergency services
for use by other public or community services
provide a responsive and flexible approach to meeting the needs of users of the spectrum
encourage the use of efficient radiocommunications technologies so that a wide range of services of an adequate quality can be provided.
The analysis in this paper considers the additional public benefit that could be derived from improvements to arrangements in the 803–960 MHz band, and—in light of the object identified above—considers the development of regulatory arrangements that encourage efficiency and flexibility of spectrum use.
The ACMA developed its Principles for spectrum management to guide its decision-making on spectrum management. The principles are intended to guide the ACMA’s management of spectrum within its existing legislative responsibilities and government policy settings.
The principles aim to:
promote consistency, predictability and transparency in the ACMA’s decision-making
provide guidance for major planning and allocation decisions to be made over the next few years
increase the ACMA’s ability to respond to challenges, including the impact of new technologies and increasing demand for spectrum for advanced services.
The principles recognise that a band’s highest value use is not determined solely by an economic assessment, but also by considering the broader public good or social benefit achieved by that use. Therefore, a key theme of the principles is to optimise the use of market mechanisms with minimal regulatory intervention to maximise the public benefit.
The principles are:
Principle 1—Allocate spectrum to the highest value use or uses.
Principle 2—Enable and encourage spectrum to move to its highest value use or uses.
Principle 3—Use the least cost and least restrictive approach to achieving policy objectives.
Principle 4—To the extent possible, promote both certainty and flexibility.
Principle 5—Balance the cost of interference and the benefits of greater spectrum utilisation.
The ACMA has considered a range of other factors in addition to the principles. These are identified in its spectrum management decision framework (see Figure 1.1). The international environment is a key factor in considering the arrangements in the 803–960 MHz band, particularly for wireless access services in the band, with a specific focus on spectrum harmonisation and developments in technology.
1.1.2Total welfare standard
In determining what actions maximise the public benefit, the ACMA uses a total welfare standard (TWS). The application of a TWS enables the ACMA to adhere to a consistent conceptual framework when assessing the public interest impact of any regulatory proposals it considers. A TWS requires consideration of the total benefit (economic surplus) of a regulatory decision. The approach that results in the greatest net benefits is regarded as the approach that best promotes the public interest. The impact of a decision on particular groups should be evaluated as part of the analysis, but issues associated with the distribution of benefits and costs between different parties should be addressed as a separate and distinct policy question.
Figure 1.1 Spectrum management decision framework2Background
2.1International spectrum arrangements for public safety broadband radiocommunications
The ACMA is heavily engaged in international forums that develop the technical guidance for the development and deployment of current and future public safety radiocommunications solutions. The main forums that it is engaged with are the International Telecommunication Union—Radiocommunications Sector (ITU-R) and the Asia-Pacific Telecommunity (APT). The latter works towards spectrum harmonisation in our region through the work of the APT Wireless Group (AWG), and represents our region’s common interests at the ITU through the work of the APT Preparatory Group (APG).
ITU-R Resolution 646 on public protection and disaster relief (PPDR), which was made at the ITU World Radio Conference 2003 (WRC–03), invited ITU-R members to carry out technical studies on the technical and operational implementation of advanced PPDR solutions and to study possible additional frequency ranges to be used for this purpose. Key recommendations developed under Resolution 646
(WRC–03) include:
Recommendation ITU-R M.2009 Radio interface standards for use by public protection and disaster relief operations in some parts of the UHF band in accordance with Resolution 646 (WRC–03). This recommendation lists the technologies recommended for narrowband and broadband PPDR use.
Recommendation ITU-R M.2015 Frequency arrangements for public protection and disaster relief radiocommunications systems in UHF bands in accordance with Resolution 646 (Rev.WRC–12). This recommendation provides guidance on harmonised frequency and channelling arrangements for radio interfaces described in ITU-R M.2009.
Resolution 646 (WRC–03) also encourages administrations to consider the use of certain frequency bands/ranges (or parts thereof) when undertaking planning for the purposes for PPDR radiocommunications. The identified bands/ranges are:
ITU Region 1 (Europe (incl. Russia and Middle East) and Africa): 380–470 MHz (380–385/390–395 MHz preferred as core harmonised band for permanent PPDR activities)
ITU Region 2 (Americas): 746–806 MHz, 806–869 MHz, 4 940–4 990 MHz
ITU Region 3 (Asia-Pacific): 406.1–430 MHz, 440–470 MHz, 806–824/851–869MHz, 4 940–4 990 MHz and 5 850–5 925 MHz.
The ITU World Radio Conference 2012 (WRC–12) established an agenda item for WRC–15 (Agenda Item 1.3) to review and revise Resolution 646 (Rev.WRC–12) for broadband public protection and disaster relief (PPDR), in accordance with Resolution 648 (WRC–12).
Currently in Region 1, Resolution 646 (WRC–03) listsPPDR frequency bands in the 380–470MHz range only, which is predominately used by narrowband land mobile communications in many countries and by Terrestrial Trunked Radio systems for PPDR. In Europe in particular,the European Conference of Postal and Telecommunications Administrations is working towards radio frequency harmonisation to serve the European PPDR community, with a focus on broadband communications. It is expected that outcomes from WRC–15 AI 1.3 will result in identifying additional spectrum for PPDR in Region 1.
In the United States (US), the Federal Communications Commission (FCC) hasidentified frequencies from their 700 MHz bandfor public safety broadband networks. The US 700 MHz band plan is not harmonised with Australia’s (which conforms to the Region 3 plan that is being adopted by a number of Region 3 and non-Region 3 countries alike), so there is no advantage to Australia using the same frequencies.
In 2002, the US undertook a process that resulted in 50MHz of the 4.9 GHz band being identified domestically for temporary fixed and mobile public safety use. Canada and Mexico have since made similar arrangements and a market has been established for equipment operating in this band (that is specified for public safety use). Sizable 4.9GHz equipment ecosystems now exist for each of the two main wireless standards using the band 802.11–2007 (Wi-Fi) and 802.16e–2005 (WiMAX).This equipment will be compatible with arrangements in the Australian 4.9 GHz band (Section 3.6 contains descriptions of the applicable radio interface standards).
Looking forward, new work carried out under ITU-R Resolution 648 (WRC–12) and WRC–15 AI 1.3 will be instrumental in establishing harmonised frequency bands for public safety mobile broadband applications and the interoperability and economies of scale that will result. The ACMA will continue to engage in this process and represent the radio spectrum needs of Australia’s PSAs on the international stage.
2.2The 803–960 MHz band review
In May 2011, the ACMA commenced a review of the 803–960 MHz band with the release of the900 MHz band—Exploring new opportunities discussion paper. This paper arose out of the view that substantial improvements could be made to arrangements in the 803–960 MHz band to better facilitate new and emerging technologies. This was considered together with the fact that this band has not undergone a formal review since the publication of the 900 MHz Band Plan in 1992.
In the Exploring new opportunities discussion paper, the potential use of the 800 MHz expansion band for public safety mobile broadband radiocommunications systems was discussed (referred to in the Exploring new opportunities discussion paper as broadband PPDR). Since the release of this paper, the ACMA has worked as part of the PSMBSC to identify an appropriate quantum of spectrum to support PSMB. This work has, in turn, informed the continued development of proposals for the review of the 803–960 MHz band as a whole.
The ACMA intends to release the second discussion paper in the review of the 803–960 MHz band towards the end of 2012. This paper will detail the further development of proposals in the review of the entirety of the band and outline further the proposal to make available 10 MHz of spectrum as a 2 x 5 MHz paired assignment for the provision of PSMB. In this second discussion paper, comment will be sought on all of the issues related to the potential changes in arrangements in the 803–960 MHz band including the provision of spectrum for PSMB.
2.2.1Submissions to the Exploring new opportunitiesdiscussion paper
In response to the Exploring new opportunities discussion paper, the ACMA sought comment on the potential use of the 800 MHz expansion band for PSMB.
The majority of respondents saw merit in introducing PSMB systems in the 800MHz expansion band. However, incumbent users of the 850–865MHz segment expressed concerns that their services would need to be relocated. Respondents from the land mobile service sector supported the introduction of narrowband services supporting PSAs as outlined in ITU-R Resolution 646 to ease congestion in the 400MHz band.