The WRC-12 conference achieved several important outcomes related to allocating additional spectrum for mobile broadband services globally. It agreed to study using the 700MHz band for both broadcasting and mobile services on a co-primary basis. This sets the stage for a potential "second digital dividend" in Europe that would allow more spectrum to be reallocated from broadcasting to mobile. However, implementing such a reallocation will be technically challenging and raises concerns from European broadcasters. The conference also addressed issues around satellite spectrum and regulations to curb satellite signal jamming. Overall, WRC-12 moved processes forward to study critical spectrum needs for the continued growth of mobile networks, but left many implementation details to be resolved.

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March 2012 Volume 40 Issue 1
by Stephen McClelland
Working out WRC-12
W
Just what did the world's most
important treaty summit of
radiofrequency and satellites
achieve? W O R
I
The radiofrequency world has probably never seen more
excitement. At the same time that Europe1 and the US2
progressed important spectrum legislation and strate-
gies, policymakers were having to contend with further
spectrum headaches - probably earlier than many were
expecting - to cope with the continuing appetite of
mobile broadband at the Word Radiocommunications
Conference 2012 (WRC-12) organized by the ITU in I N G
Geneva. U
The mobile spectrum appetite is a global one, most
pressing in those markets that have seen an explosion
in traffic (see The Need for Allocation sidebar) due to
smartphone demand. Tricia Paoletta and Damon Ladson
from the Wiltshire & Grannis law firm in Washington He continued: "Broadcasters are concerned that as their
told Intermedia "Going into WRC-12, the number one spectrum is squeezed, there will be fewer “white spaces”,
priority for the US was securing a WRC-15 agenda item to U T
that is, unused spectrum between and among their W
allocate new spectrum for mobile broadband, including
IMT, as well as to identify additional existing bands for
assignments." This in turn could have implications for
their channel offering but also beyond for other commu-
C
mobile broadband, including IMT. Since the entire world nities such as the nascent white space communications
is seeking additional mobile broadband, including IMT industry that is seeking to develop innovative applica-
spectrum and additional identifications, the outcome was tions3 and data services particularly around upcoming
a given. The issue is how and where (within the ITU-R) to markets in smart city, M2M and similar markets. Mean-
conduct sharing/compatibility studies." while, in the foreseeable future, there could be a potential
impact on professional wireless users.4
A second dividend? C - 1
3 Policy makers, whilst steering in a direction of technological neutral-
African countries called for what amounts to a move ity for wireless services, have been keen to see these early stage in-
to release more spectrum from television broadcasting novations develop especially where collective uses provide for greater
bands [specifically, in Region 1 which covers both Europe efficiencies, and ideally replicate the hugely successful Wi-Fi industry.
and Africa]. Gerald Oberst of Hogan Lovells in Brussels See, for example, Article 4 of the ratified Radio Spectrum Policy
Programme which states "... Member States, in cooperation with the
told Intermedia: "Broadcasters are worried about the Commission, shall, where appropriate, foster the collective use of spec-
move towards a “second digital dividend” in the UHF trum as well as shared use of spectrum. Member States shall also foster
spectrum, a move that seemingly was initiated by the the development of current and new technologies, for example, in
African countries but which has been on the minds of cognitive radio, including those using "white spaces" at http://register.
policymakers in Europe as something coming down the consilium.europa.eu/pdf/en/11/st16/st16226.en11.pdf
4 The impact of the putative second dividend could be especially
line. Now it appears that allocation of mobile uses in the severe on this community. Program Making and Special Events (PMSE)
700 MHz band on a co-primary basis will become reality representatives seemed especially startled by WRC-12 outcomes, and
after the next radio conference in 2015." in a public response commented that PMSE wireless is now "at the
limit of its possibilities" but needs to retain this spectrum. It said that
1 See for example Roadmap for a Wireless Europe summarizing the PMSE services require 96MHz of white space spectrum for "daily use"
Radio Spectrum Policy Programme that commits the European Union on national basis, and around 270MHz to cover special events, with
to a roadmap in this area at http://ec.europa.eu/information_society/ probably more for Olympic Games-level activities, commenting: "The
policy/ecomm/radio_spectrum/eu_policy/rspp/index_en.htm. professional event and content production is based on the use of free
2 See, for example, the spectrum provisions of Temporary Payroll Tax broadcast spectrum. If free broadcast spectrum no longer exists, then
Cut Continuation Act of 2012, and the Obama Administration report, that would be a disaster." See http://www.apwpt.org/downloads/
The Economic Benefits of New Spectrum for Wireless Broadband. pressrelease30012012.pdf
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March 2012 Volume 40 Issue 1
O R K W O R K
K W O R K
N G O I N G O
O I N G O
T W R U T W R
Far reaching changes exactly how much spectrum will be involved and when
the new arrangements will take effect in practice."
R
European broadcasting communities T worried. The W
U are R
- comments. "While all other relevant WRC-12 agenda
European Broadcasting Union issued post-conference C David Wood told Intermedia: "The governments of ITU 2
1 2 Region 1, which
-includes Europe and Africa, have decided
1
items were concluded successfully for broadcasters, the that, after 2015, spectrum in the band below 800MHz
full implications of this digital dividend decision, which can be used for mobile services with equal priority to
was an unforeseen late addition to the agenda, will broadcasting - they are 'co-primary' users. What should
only become clear over the months and years ahead," be the lower limit in this co-primary band is still for
pointed out EBU officials in a statement. "It's difficult to discussion, but it is likely to be around 700 MHz. A part
predict now the consequences of this for either existing of the ITU has been asked to study issues such as limits
2 C -
digital broadcasting services, or future digital broadcast
services," David Wood, EBU Deputy Director Technology
1 2
on allowable interference to either service in this band
before 2015.
and Development, told Intermedia.
He adds: "There is a lot of technical work to be done. So,
"The WRC-12 decision may have far-reaching implications what has been agreed is what might be called a poten-
for free-to-air television in Europe," said Lieven Vermaele, tial second digital dividend for Region 1, though many
EBU Director of Technology & Development, in a state- believe the term 'digital dividend' does not take into
ment. Mr Vermaele continued: "A free-to-air platform account that there will be losers as well as winners here."
is essential for Public Service Media. We trust that the He continued: "But in some countries it may be necessary
ITU will look at all service demands before conclusions to re-arrange broadcast services out of the 700MHz band
are drawn. The reassignment of the 700MHz band was ('restacking') if they are there now. It may be necessary in
not on the agenda for WRC-12. We're confident that the some countries to change the DTT system from DVB-T to
authorities within the ITU will address the appropriate- DVB-T2. It is possible that there will be costs and incon-
ness of this move ahead of the next conference in 2015." venience involved for the TV viewing public. It is possible
NewsAnalysis
IPTV Analysis
that there will be more limited means of broadcasting
WRC-12
"WRC-12 set a course for a second digital dividend. ITU HDTV, 3DTV, or UHDTV terrestrial in the future, which
members have decided that further spectrum currently may influence the popularity of terrestrial broadcasting.
allocated for terrestrial broadcasting will be made avail- All these have yet to be quantified in the coming years
able for mobile broadband services. It remains unclear before 2015." Other commentators were also predicting
a political and economic minefield across Europe if a
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March 2012 Volume 40 Issue 1
agencies worldwide, including the Mr Oberst comments: "On the
Satellites US’ NASA, for the Space Research one hand, the difficult Iran versus
Service (SRS) and by Iridium for France satellite slot controversy was
critical Inter-Satellite Service Links taken off the agenda, to be solved
(ISL). Sharing between SRS and ISL amongst the parties. On the other
Under its mandate, WRC-12 also was just agreed to at WRC-12 after hand, the WRC-12 participants are
included a considerable focus on many years. Observers doubt that probably proud of themselves for
satellite issues from orbital resource SRS and ISL can additionally share reaching any kind of consensus
efficiencies to signalling crackdowns with MSS, but instead argue that any on the difficult issue of intentional
on satellite jamming. Gerald Oberst new MSS allocations must be outside jamming of satellite signals (also
of Hogan Lovells told Intermedia, of the SRS-ISL spectrum. related to Iran, by the way), but
"One surprising turnaround was the the result is fairly inconsequential.
shift in the satellite sector towards In satellite signal jamming, the EBU An ad hoc group to the plenary
a defined 90-day period in Article says that numerous complaints have reached a position on February 9,
11 of the Radio Regulations for been lodged with the ITU about that “any transmission which has
bringing into use satellites in order international satellite TV programmes the intent to cause interference to
to satisfy ITU requirements and in Persian and Arabic, carried mainly stations of other administrations is
remain in the Master Registry. The on Eutelsat and Arabsat satellites and an infringement of the Constitution,
US changed its position during the says the interference practice, which Convention or Radio Regulations.”
conference, throwing support to the has increased since September 2011, This would seem to have been fairly
longer defined period – as opposed prevented audiences from receiving obvious from the outset. The net
to the vague approach up to now. TV and radio programmes of the result was that Radio Regulation
The concern will be whether this BBC, Radio France Internationale, No. 15.21 was modified to say that
period accommodates all situations Deutsche Welle, and RFE/RL, Inc.'s if an administration knows about
in the future and whether it will be Radio Farda. Radio Netherlands international interference it should
enforced in a nondiscriminatory Worldwide (RNW), Voice of America “take the necessary actions”. How
manner." (VOA), and the EBU added their this advances anything is far from
voices to the demands for stricter obvious, especially if the interference
"An issue predicted to be the most anti-jamming measures. is state-sponsored."
controversial pre-WRC, AI 1.7 which
looked at long term aeronautical The regulatory change, adopted by Mr Oberst continues: "Another satel-
safety requirements in the L-band 165 member states of the WRC (out lite issue is the resolution to treat the
used by LightSquared and Inmarsat of 193 ITU members), was to Article frequency assignments and orbital
was essentially resolved at the two 15.21 of the regulations, which positions of the former Intelsat
week mark," says Wiltshire & Grannis' now reads, "If an administration has intergovernmental organization as
Tricia Paoletta. information of an infringement of a “common heritage” to provide
the Constitution, the Convention or international services in developing
The UAE promoted a WRC-15 the Radio Regulations (in particular countries. I predict this will be trou-
agenda item, AI 1.10, to allocate Article 45 of the Constitution and blesome and inefficient once anyone
additional MSS spectrum above 22 No. 15.1 of the Radio Regulations) figures out what it means. This item
GHz. At the WRC, the UAE compro- committed by a station under its is Resolution COM5/11 (WRC-12) for
mised to the range 22 GHz to 26 jurisdiction, the administration shall now, until it is renumbered."
GHz. However, the lower part of ascertain the facts and take the
that range is used by space science necessary actions."
second dividend policy meant curtailing free-to-air the agenda item for the next WRC to use the extended
broadcast options or forcing another round of retuning digital dividend at 700MHz for mobile in Africa and the
on the public. Middle East."
The prevailing atmosphere now surrounding the entire He continued: "This has the great advantage for the
issue seems one of uncertainty both in terms of what African countries of allowing them to access equipment
the picture will be, but also a possibly truncated timeline otherwise destined for Asia and America, reaping scale
to when it will happen. Other spectrum watchers took economies. However, this leads to a potential collision
a similar view that the pressure is on. Dr Dan Maldoom course with European broadcasters. It seems that the
of the Dotecon consultancy, which advises on spectrum great debate whether terrestrial broadcast of TV is an effi-
economics internationally, points out: "The surprise was cient use of spectrum is not going to die anytime soon."
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March 2012 Volume 40 Issue 1
William Webb, CTO of Neul, an innovative white
space communications technology developer told
Intermedia, "Many European countries will find it very
The need for allocation
difficult to open up the 700MHz band without at
best massive re-planning of TV transmission. Likely, How far are new spectrum allocations justified for the
not all adopt the plan, and many not do so until well future mobile communications sector? Forecasting actual
after 2015." traffic growth has been a precarious business for at least
a decade, but at the last WRC, the Apple iPhone had
EBU officials agree on the difficulties involved. "In only just appeared on the market. Today, no one in the
practice I believe it's unlikely that we will see any industry doubts the traffic explosion and implied spec-
actual reallocation of spectrum in Europe before trum demand that has recently taken place. "An averagely
2018," said the EBU's Lieven Vermaele, "but European used SmartPhone places a demand on spectrum that’s
regulators and governments have a considerable 24 times more than the feature phones that preceded it.
challenge on their hands in deciding how to imple- Tablets place a demand on spectrum that’s about 120
ment this decision. As with all ITU resolutions, the times more," commented FCC Chairman Julius Gena-
implementation falls upon individual member states. chowski at WRC-12.
This means that European governments will have
to decide on the most appropriate path to follow A white paper released immediately prior to WRC-12 by
according to their own national circumstances, the UMTS Forum, an industry group representing the
where in many cases terrestrial broadcasting plat- mobile cellular community, argued persuasively for more
forms are growing in importance." spectrum to keep pace with evaluations of what would be
needed, but did not specify a particular band as a primary
target, instead choosing to request that identification
Getting procedural and study should be performed for WRC-15.1 By common
consent, largely because of the smartphone revolution,
However, complex procedural arrangements now network traffic has beaten the most aggressive estimates
have to move into high gear to service the mobile that were undertaken in the early to mid-2000s - a time
broadband developments. "The first Conference when most existing 3G networks were in fact significantly
Preparatory Meeting (CPM) for the next WRC underutilized.
in 2015 follows on the heels of WRC-12. Mobile
broadband providers would have liked to have the The white paper points out "The mobile data traffic in
issue studied in their Working Party 5D, while other 2010 was more than 5 times greater than some of the
services (satellite, space science, etc.) argued that estimates for Report ITU-R M.2072. Moreover, the data
such studies would be appropriate for a Joint Task traffic being experienced by some operators in 2011
Group (JTG) composed of affected Working Parties" was even greater than some of the 2020 forecasts given
said Wiltshire & Grannis' Tricia Paoletta and Damon in Report ITU-R M.2072." Given the recent impetus to
Ladson. Mr Ladson is no stranger to this way of cloud computing and moves towards greater broadband
operating: he was formerly the Vice-Chair of the US participation around the world as well a likely aggrega-
delegation to WRC-2000 where IMT spectrum was tion of e-government and other services into cloud-
first made available and was the primary US spokes- like approaches, more demand still, rather than less, is
person for IMT deliberations. "The US and others increasingly likely.
advocated and prevailed at WRC-15 CPM that studies
for mobile broadband including IMT be done in a The UMTS Forum says it wants to see harmonization
Joint Task Group of a number of Study Groups. A JTG as well as the extra spectrum. "Harmonisation of IMT
comprised of Study Groups 4,5,6 and 7 will under- frequency bands is more important than ever," says the
take these sometime contentious studies over the UMTS Forum and continues: "Frequency band harmoni-
next several years." sation is by far the most critical enabler for a large and
diversified choice of terminal devices in the market.
They continued: "The reality is that to successfully
secure new mobile broadband spectrum at WRC-15,
compatibility studies must be completed in a manner 1 Spectrum for future development of IMT-2000 and IMT-Advanced, UMTS
NewsAnalysis
IPTV Analysis
Forum, January 2012, http://www.umts-forum.org. The paper comments
satisfactory to satellite, space services and others.
WRC-12
that "during WRC-07, countries and administrations recognised the need
Otherwise, there could be another WRC battle for additional IMT spectrum and identified new bands for IMT. Though
similar to the IMT versus C-band satellite battle that significant progress has been achieved since WRC-07, the spectrum cur-
dominated WRC-07. That would not serve the inter- rently identified for IMT networks is still far below the amount recom-
mended in ITU-R Report M.2078. The identified amount of IMT spec-
ests of proponents of additional mobile broadband trum varies between 664 MHz and 947 MHz depending on the Region,
spectrum, since disagreement at WRC-15 will lead to when the calculated minimum spectrum demand is 1280 MHz."
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March 2012 Volume 40 Issue 1
delay in allocating or identifying more spectrum for their But spectrum usage is a complex issue, and he argues
use. Through the JTG, WRC-15 CPM-1 provided a forum that there is even a possibility of a better outcome from
for all concerned parties to jointly conduct compat- the white space point of view. "If 700MHz is replanned
ibility and sharing studies." Nevertheless, point out Ms for cellular, it is likely to be on the basis of frequency
Paoletta and Mr Ladson, "For the first time the United division duplex (FDD) with an uplink and downlink and
States entered the WRC without taking certain bands off central guard band. It is quite likely that this guard band
the table in advance of studies. US Ambassador Anstrom would be available for white space usage and would
Decker’s preferred approach was to study any band in a form a set of national channels on which there was no
Joint Task Group and let the chips fall where they may. licensed use, making them “superior” white space. Not
While the WRC could not concur on a JTG, CPM-1 did only would this add back enough channels to bring the
adopt the Task Group approach which in the long run is available white space back to around 100MHz it would
likely to serve all parties." actually increase the quality of the spectrum available.
Also, restricting the bandwidth of white space will allow
White space scenarios more efficient antennas, increasing the efficiency of
usage slightly."
Given the policy signals appearing for a second digital
dividend, should the white space community5 be Getting cognitive
worried? In an interview with Intermedia, Neul's Prof
William Webb acknowledged that the existing commu- Indeed, such is the interest in clever future technolo-
nities have sizeable competing claims over the broad- gies now being developed, the Geneva events gave a
casting and mobile broadband arguments, ahead lot of attention to them in spite of the potential digital
perhaps of white space technologies that have yet to dividend threat. "The Radiocommunication Assembly
reach mass deployment. But he says there are various and the WRC-12 issued positions in favour of more study
rationales to be taken and the WRC decision is not likely on cognitive radio (in Resolution ITU-R 58 and Recom-
to have any impact for some time. "The amount of white mendation COM 6/1, respectively), which can translate
space is typically proportional to the total amount of TV among other matters into techniques for using those
spectrum – roughly halving the TV spectrum results in white spaces more efficiently," says Hogan Lovells' Gerald
half the amount of white space. So any reduction in TV Oberst. "We can expect a lot of debate on the intersec-
frequencies will reduce white space," he confirms6. tion of broadcasting spectrum and wireless data in the
coming years especially as cognitive radio and collective
He continues: "Most European countries have previously use is a big item on the recently-approved European
agreed that the band 790-862MHz would be made Radio Spectrum Policy Programme."
available for cellular usage making the default white
space band 470-790MHz (320MHz). WRC-12 decided It may be a complex road. Wiltshire & Grannis' Tricia
that the band 694-790MHz - the so-called “700MHz Paoletta comments, "For my own clients, the insistence
band” - should be harmonised for cellular usage by 2015 by the Russians on having some outcome at WRC on
and made available in European and African countries cognitive radio, despite being completely isolated,
on a voluntary basis." But, he says, that in the UK (as was frustrating. Given that the Radiocommunication
a common white space example), the remaining UK Assembly had adopted a Resolution on further studies
spectrum for TV transmissions is 256MHz if the so-called on cognitive radio just before the WRC began, and that
600MHz band is released to auction. "Calculations the leading commercial technology for sharing between
suggest an average of around 100MHz of this is available systems – Super Wi-Fi in TV white spaces – has been
as white space in any location," he says. "If, instead, the deployed, additional outcomes at the WRC level were not
UK decided to adopt the WRC plan then the TV transmis- warranted. Yet the Russians continued their press, week
sions would be 470-694MHz – 224MHz (perhaps less after week, finally agreeing to a WRC Recommendation
8 or 16MHz for channels reserved for radio astronomy that in effect merely ratifies the ITU-R Resolution." Ms
and wireless microphones). Scaling for the drop from Paoletta points out however that winners from WRC-12
256MHz to 224MHz, we might expect white space are likely to be the mobile broadband players, even if
availability to fall from 100MHz to 88MHz. Such a small the worldwide hunt for broadband spectrum remains a
decrease is unlikely to make any material difference to frustration that is not going to disappear in the foresee-
white space usage." able future.
5 The community remains very small compared to mobile and broad-
casting interests but already has provided some unique approaches to Stephen McClelland is Editor in Chief of Intermedia.
business models. See for example http://www.weightless.org He can be contacted on s.mcclelland@iicom.org
6 http://www.neul.com/blog/is-cellular-encroaching-on-white-
space/2012/02/
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Adapted from International Telecommunication Union data by Stephen McClelland
WRC-12 in brief fuel costs and reduced CO² emissions. ITU-R will
continue to study any compatibility issues between
the broadcasting service and aeronautical mobile
SPECTRUM FOR IMT Meteorological-satellite (route) service in the band 108–117.975 MHz.
In addition to the use of the 790-862 MHz in Non-geostationary satellites are an important Aviation safety
Regions 1 and 3, WRC-12 considered further part of the space-based Global Observing
spectrum allocations to the mobile service, in the System and WRC-12 allocated additional spec- The growth in the aviation industry calls for
frequency band 694 – 790 MHz. This issue has trum to the meteorological-satellite service. expanded capacity of over-the-horizon mobile
been placed on the WRC-15 Agenda together communication links. Notifying administra-
with the need to consider additional spectrum Satellite remote passive sensing tions of mobile-satellite service networks shall
allocations for the mobile service. accommodate the spectrum needed for distress,
WRC-12 updated spectrum use aimed at the urgency and safety communications of the
SPECTRUM/ORBIT RESOURCE future of Earth observation applications for global maritime distress and safety system
EFFICIENCY passive sensing on meteorological and environ- (GMDSS) and for the aeronautical mobile-satel-
mental satellites. lite (route) service communications.
In addition to the clarification of the notion of
bringing into use of satellite network frequency Oceanographic radar Aeronautical mobile (route) service
assignments (satellite deployed and maintained
at the notified orbital position for a continuous WRC-12 adopted the relevant protection levels Aeronautical mobile (route) service systems are
period of ninety days), WRC-12 also mandated for interference caused by oceanographic radars. critical for various air traffic and flight safety
the ITU Radiocommunication Bureau to initiate communications. Some of the communication
enquiries to administrations to provide informa- MARITIME SERVICES systems, such as traffic information, automatic
tion on the movement of satellites and improve dependent surveillance-broadcast, and flight
due diligence information. WRC-12 improved the Maritime communication information provide easily accessible air traffic
satellite coordination by reducing the coordina- requirements for safety information to multiple air traffic managers at
tion arc in parts of the most congested spectrum the same time, allowing for more efficient use
and agreed to look into the possibility of further WRC-12 addressed maritime communication of airspace. The allocation of the frequency
reductions. requirements to support safety systems for ships band 960−1164 MHz to the aeronautical mobile
and port operations. The conference included (route) service is intended to support the
DISASTER MITIGATION AND RELIEF provisions in the Radio Regulations to improve introduction of data-intensive applications in air
satellite detection of automatic information traffic management.
With reference to emergency telecommunica- systems using VHF channels.
tions, WRC-12 addressed the application of IMT Protecting other primary services in
and intelligent transport systems (ITS) to support VHF maritime mobile band 37−38 GHz band
or supplement advanced public protection and
disaster relief applications. WRC-12 instructed The conference also considered the use of new A number of countries are deploying space
ITU-R to continue studying relevant aspects of technologies in the maritime service needed research service earth station receivers in the
radiocommunications and ICT and encouraged to the “Table of transmitting frequencies in the band 37−38 GHz to support manned near-Earth
administrations to consider using identified VHF maritime mobile band”, which defines the missions and deep-space missions. WRC-12
frequency bands for the purposes of achieving channel numbering for maritime VHF communi- decided to exclude the aeronautical compo-
regionally harmonized frequency bands or cations based on 25 kHz channel spacing as well nent of this mobile service allocation to ensure
ranges for advanced public protection and as where digital technologies could be deployed. proper protection of existing and planned space
disaster relief solutions. research and mobile services.
AERONAUTICAL SERVICES
EARTH OBSERVATION Aerospace surveillance
WRC-12 decided that necessary spectrum would be
WRC-12 focused on “The importance of Earth available for the introduction of applications and WRC-12 addressed the lack of spectrum avail-
observation radiocommunication applications” concepts in air traffic management that can support able for aerospace surveillance and tracking
NewsAnalysis
IPTV Analysis
in collecting and exchanging Earth observa- data links carrying safety-critical aviation informa- the launch and manoeuvring of spacecraft
WRC-12
tion data to maintain and improve the accuracy tion. These systems will enhance aeronautical and provided an additional allocation in the
of weather forecasts. The Conference urged communications capability and – in conjunction frequency band 154−156 MHz to the radioloca-
administrations to protect the Earth observation with more precise navigational capabilities – allow tion service in some countries.
systems in the related frequency bands. flight routing to be more efficient, resulting in
fewer delays, shorter flight times on average, lower
17