2‑13

2 Telecommunication Radio Broadcast

Personal Mobile Radio :Supporting Massive Sports Event
ISHIDA Eiji

KUNIMATSU Makoto KONISHI Hirohito
KATSUYAMA Sakae

At the past Olympic and Paralympic Games a personal mobile radio system was installed and operated as a means of
instantaneous voice communication for event staff Throughout the Olympic and Paralympic Games Tokyo 2020 three
personal mobile radio types including Type 1 the first‑ever business radio on a PS‑LTE system basis and Type 2 using
dedicated frequencies were deployed according to communication purpose and venue aspects This article describes thedevelopment and operation of the unprecedented personal mobile radio system the process of formulating a prerequisite
service policy and fleet map and the background of selecting the PS‑LTE system
Keywords：Olympic Games Paralympics Business radio/personal mobile radio

1．Construction of Business Radio Services
The Olympic and Paralympic Games are one of theof games
The development of the business radio service for the
Games began in 2015 with a survey of specific past cases

largest sporting events in the world The operation ofetc

the Games is carried out by staff members who

ments taking into account the radio propagation aspects

specialize in around 50 areas subdivided according tothat depend on each venueʼs geographical layout andtheir functions

building structure and the unique staffing and calland then defined the high‑level service require-

Business radio is a means of communication that plays

timing characteristics of the Olympic and Paralympic

a different role from the cell phone which provides aGames We then made progress on the selection of afunction to instantaneously transmit voice messages

radio system that could be realized at a lower costfrom the sender to the pre‑grouped staff members andsystem design implementation and construction test-

is a key tool for staff command and control A businessing selection of positions where radio equipment would

radio service that provides a smooth communication

be deployed planning of maintenance and operation

environment is indispensable for the smooth operations

during the Games conduction of test events and staff
training This chapter introduces the main points

ISHIDA Eiji
Technology Services Bureau The Tokyo Organising Committee of the Olympic
and Paralympic GamesKUNIMATSU Makoto
Technology Services Bureau The Tokyo Organising Committee of the Olympic
and Paralympic GamesKONISHI Hirohito
Technology Services Bureau The Tokyo Organising Committee of the Olympic
and Paralympic GamesKATSUYAMA Sakae
City Infrastructure Solution Division NEC Corporation
Email s‑katsuyama@nec com

The Journal of The Institute of Electronics Information and Communication Engineers Vol 105 No 8 Supplement pp 97‑103 August 2022
© 2022 The Institute of Electronics Information and Communication Engineers

Business radios are called Personal Mobile Radio(PMR) in the Olympic and Paralympic Games
11

Service Requirements and System Selection

Based on the past Olympic and Paralympic Games
operation records and the plans for the Olympic andParalympic Games Tokyo 2020 (hereinafter referred toas “Tokyo 2020 Games”) conditions such as communication area call capacity the acceptable range of voice

Special Issue : Technology and Innovation in the Olympic and Paralympic Games Tokyo 202097

delay and the confidentiality were identified and defined
as service requirements A plan was formulated toprovide a highly robust radio system designed andfacilities on loan from specialized service providers
PS‑LTE (Public Safety LTE) is an LTE‑based radio
network for public use

constructed to meet these requirements for the main
operations at the venue (operations management

12

refereeing and other Games operations medical opera-

This section introduces the PS‑LTE system (Type 1)

tions

broadcasting

securityetc )as well as for

System Development

including a selection process

the direct device‑to‑communication between leaders across the businessdevice communication system (Type 2) and the systemdomains

for cycling road races

The total number of PMR handsets provided wasapproximately 14 500 Three types (Type 1 to Type 3)

121

Type 1 (PS‑LTE System)

were deployed and classified according to their configu-

The basic service area was defined as a radius ofration methods The main reason for combining multiple

10 km (Figure 2) around the athletesʼ village which

Types was their suitability for each usage and costencompasses most of the venues in Tokyo and theminimization

triathlon and marathon competition area We selected

The three business radio types deployed for the main

the PS‑LTE system proposed by NEC Corporation

operations are shown below Figure 1 shows photos of(hereinafter referred to as “NEC”) that met thethe handsets

requirements and considered the best benefits in its
operational framework

Type 1 : PS‑LTE system Use a dedicated control

Advantages of using the PS‑LTE system included

server relay stations communication infrastruc-

capacity management without external factors by using

ture and frequencies (900 MHz band) Approx

infrastructure and frequencies dedicated to the Games

6 300 handsets

efficient spectrum use when events and calls are･･Type 2 : Direct communication between devices

concentrated simultaneously

and high flexibility in

Use a frequency (351 MHz band) dedicated to thecreating talk groups

Tokyo 2020 Games Approx 2 800 handsets

potential for legacy use of the equipment and operational･

Type 3 : IP radio Use the infrastructure of mobile
telcos and dedicated resource‑occupying servers

Another advantage was theknowledge after the Games
Since this was the first full‑scale introduction of PS‑
LTE radio system in the history of the summer Olympic

Approx 5 400 handsets

and Paralympic Games the adoption of this system was
An airborne radio relay system was deployed for thedecided after extensive feasibility verification and risk

cycling road race apart from the above In additionassessment For example the system was tested underbusiness radio services were provided within the airport

the loads expected during the Games While systemcomponents such as base stations and handsets were
evaluated for actual past operation in addition to
procurement risks

Furthermore

the Tokyo 2020

Organising Committee received a report from a radio
expert with whom the Tokyo 2020 Organising Committee signed a consulting contract on the PS‑LTE
technology that no risks that could affect the Games had
become evident in light of the unique requirements of theGames Moreover it was confirmed that the readinessfor legacy use was positive
We assumed the system went along with technicalrequirements including frequencies provided that the
Ministry of Internal Affairs and Communications (MIC)
consulted the Information and Communications Council（a）Type 1 PMR（b）Type 2 PMR
Figure 198

PMR Handsets（c）Type 3 PMR

on the technical requirements for upgrading 900 MHz
band independent mobile communication systems (Con-THE JOURNAL OF THE INSTITUTE OF ELECTRONICS INFORMATION AND COMMUNICATION ENGINEERS

Figure 2

Type 1 Service Area (10 km Radius Around the Athletesʼ Village)

sultation No 2041 dated September 27 2017) and set up
relevant regulations after a recommendation was issued

123Radio System for Cycling Road Race

The cycling road race course started at Musashinonomori Park (Tokyo) passed through Kanagawa and122

Type 2 (Direct Device‑to‑Device Communi-

Yamanashi and finished at Fuji Speedway (Shizuoka)

cation System)

Around 240 km race route (men) included areas along

We developed a system with enhanced call confiden-

mountain valleys and at the foot of Mt The main racetiality based on the digital simplex radio system

convoy where athletes and support vehicles ahead of

Dedicated frequencies were allocated for Tokyo 2020and behind them are includedGames

20 km moving from the starting point to the finish line at

We did communication tests at all venues clarifying

high speed

stretches for about

Radio communications essential to theavailable service areas considering test results thecompetition such as those for race status announce-

staffʼs roaming range and timing of use We createdments judging and rescuing must allow simultaneous

combination frequency reuse patterns to operate theconversations within the convoy and at the racesystem through efficient resource management

headquarters set up in a location separate from the race
courseSpecial Issue : Technology and Innovation in the Olympic and Paralympic Games Tokyo 2020

99

An IP communication system using the infrastructureof a cell phone operator was considered due to the wide

must be coordinated and agreed on･This does not apply to usage that requires a voice
delay of 200 ms or lessservice area required However a risk peculiar to the IPcommunication system became apparent : a significant
voice delay in some low‑field areas in mountainous(

areas Since the speed of athletes there could be as high①)Service Area

as 90 km/h the risk of voice delay was judged to besignificant and this system was applied only to usages･

Type 1 : All talkgroups (except when Type 3
allocation is applicable)

where the delay effect was minimal
For the conversation system where a delay is･Type 3 : Talkgroups that need to communicate
outside the Type 1 service area

unacceptable a radio relay system which was used inpast Olympic Games was loaded on an aircraft to②

Principle of Type Allocation outside Type 1
Service Area

provide wide‑area coverage An analog system wasused to ensure continuity of communication and theType Assignment
Principle of Type Allocation within Type 1･Type 2 : Talkgroups for operation management

aircraft circled at around 3 km altitude during the Games

competition management time and scoring rescu-

to ensure coverage Before the Games an aircraft with a

ing and OBS or talk groups that require a voiceradio relay system was operated and vehicles withdelay of less than 300 ms

actual radio equipment installed ran on the ground totest coverage･Type 3 : Talkgroups Type 2 is not allocated(including talkgroups that need to communicate
with places exceeding Type 2 propagation distance)

13

Selection of Positions for Deploying PMR
Handset132

Fleet Map

In addition to accurately defining the technicalIn the Olympic and Paralympic Games a document

specifications the key to smooth communication is todescribing the composition of talkgroups radio types

ensure that the overall quantity of handsets is appropri-

availability of accessories distribution and collection

ately controlled and deployed to staff positions that

dates etc for PMR is called a “fleet map” which will be

require radio communication The Technology Service

created to manage the system of conversation We

Bureau coordinated the deployment and quantity ofcreated over 100 fleet maps for each venue and event athandsets and provided technical support

the Tokyo 2020 Games Creating fleet maps is a criticaltask as it is an effort to determine which staff positions

131

Service Policy

We created a service policy that prescribes awill be equipped with handsets It also has the aspect ofdeciding on an operational framework

deployment principle for coordination of deployment

The first version of the fleet map was defined in

The service policy to sort out requests was defined to

January 2017 after interviews with the functional areas

limit usage narrow down staff positions and facilitate(FAs) involved At that time specific plans for venue

understanding of deployed handset types The main

operations and the number of operators at each FA wereitems of the service policy are as follows :not yet determined The optimization of operational
methods and the number of deployed PMR were not

(

)

･

Coordination of Usage and Deployment Targets
Deployment targets must be staff positions thatindispensably need group talks or those that need torequests for more than 30 000 handsets
Since then based on the proven talkgroup structure

continue conversations even when voice communi-

and budget constraints the talkgroups and their usages

cation with a cell phone is difficult due to congestion

were carefully examined and adjustments were madeor other reasons Furthermore it is limited to caseswith each FAs repeatedly By the end of June 2021

where there are no other alternatives such as cellwhen the final version for the Games was formulated

phone email IT tools or verbal communication

countless minor updates and eight major version･

All PMR provided must be defined in the fleet
map ＊

＊

examined so this version was a provisional list of

The process ofcoordination and agreement was very strenuous We

This means the fleet map described in section 1 3 2
100

upgrades had been implemented

were able to enhance mutual understanding and reach

THE JOURNAL OF THE INSTITUTE OF ELECTRONICS INFORMATION AND COMMUNICATION ENGINEERS

an agreement through repeated discussions on subjects

operation and user support during the test events andsuch as explanations of service policies

talkgroup

Games and maintenance and monitoring of systems

compositions used in the past Games and explanations ofSince then we have developed the service throughthe characteristics of radio communications

collaboration based on the above responsibilities

The most common gap in the coordination was due to

For the radio system for the cycling road race thethe demand to switch freely between many talkgroups

Tokyo 2020 Organising Committee established theand to join multiple talkgroups with the idea of using arequirements

system like a cell phone This demand came from users

aircraft operations was outsourced to a company with a

who were not accustomed to the differences between

proven track record

radios and cell phones and those who had experience
with radios and event management but were accus-

and the provision of equipment andThe operation framework specialized for the Games is
described below

tomed to a form in which one person had a specificauthority and could join all the talkgroups involved

2．Operation of PMR Service

From the standpoint of close examination of the numberof handsets we must avoid deploying excess handsets
and avoid a situation in which it was unclear who wascalling in which talkgroup

Furthermore

This section introduces the test events and operations
during the Gamesit wasnecessary to create an environment in which each21

person could always focus on the talkgroup for which

In the test events held sequentially from the summer

Test Events

they were responsible for communicating without delayof 2019 we provided the PMR service for a total of 18

across the segmented business functions unique to theeventsOlympic and Paralympic Games Hence such a demandathletics to evaluate fleet maps and gain operational

including cycling road races

sailing andwas unacceptable As a measure the roles of liaisonsexperience In all the events conducted handsets were(bridges) between talkgroups were carefully examined

deployed based on the fleet map for the actualand only those positions in charge of liaison were allowed

competition Conversation traffic was analyzed in detailto belong to each talkgroup with a limit of two in

to determine if the deployment was excessive or

principle thereby establishing a contact frameworkinsufficient if there were any system malfunctions orContinued communication with venue management

dead zones

staff regarding the fleet map helped prevent operational

appropriately

and if users were using the systemproblems during the Games On the other hand someExperience of the test events was very useful ininternational federations could not establish a clear line

improving their problem‑finding and solving skills inof communication with the competition management

addition to improving their management skills

departments in advance and some events had to request

addition operating the fleet map based on the assump-changes to the fleet map during the Games times

tion of the actual Games led to a common understanding

However these were few in total and did not causewith the users and discussions on fleet map coordination

significant problems

have become much richer since thenIn

The most challenging part of the test events was user
14

Business Structure

The Tokyo 2020 Organising Committee had four staff(Note 1)

education There were many more users than expected
who thought that radios could be used as cell phones orin the Technology Services Bureau in

who although they said they had experience in handlingcharge of developing requirements for the Games

radios at events actually had only experience with IP

designing the talkgroups conducting a thorough review

radios and had no experience of direct device‑to‑device

and user consulting to create fleet maps operational

communication methods As a result many users did notdesign quality evaluation and coordination with users

understand that a dead zone was generated in shadowsand related domestic organizationsetc

members

and used the system inappropriately leading to

In the fall of 2016 we signed a basic outsourcing

complaints that they could not speak The user manualcontract with NEC covering the provision of equipment

was revised and expanded to include tips and otherinformation on frequently occurring problems and(Note 1)

As of March 2021

measures and explanations were repeatedly provided toSpecial Issue : Technology and Innovation in the Olympic and Paralympic Games Tokyo 2020101

users until the Games

Games and 19 hours a day during the Paralympic
Games excluding late nights In venues support was

22

Technology Rehearsal

provided during the Games and for several hours around

In June 2021 a technology rehearsal (training to solve

the Games times

problems (scenarios) that may occur during the Games)
was conducted The Tokyo 2020 Organising Committee()

staff members who would be in charge of operations
during the Games also participated This opportunity

Distribution and Collection of Equipment toUsers

Equipment (including accessories) was delivered to

was used to gain knowledge of the processes necessaryusers by a representative of the FAs who distributedfor problem‑solving (including determining the neces-and collected all the equipment used by the FAs The

sity of escalation) the ability to respond in English andorganization providing the equipment was defined andthe procedures for changing the fleet map

agreed upon in advanceand users managed theequipment including recharging while they had the23(

During the Games Times)

equipment in possession

Staff Positions

Figure 3 shows the composition of staff members at()

Change Requests Incidents etc

the Technology Operations Centre (TOC) and the

The main request for change during the Games was tovenues during the Games TOC had a Radio Dutychange the fleet map due to staffing modifications thatManager in charge of overall radio operations PMR

occurred during the Games Fleet map changes were

Provider Expert PMR Operations Manager and PMR

handled promptly and with the utmost care during theAnalyst (onerespectively)

Games Minor requests such as a change of users within

under the Radio Duty Manager to provide support forthe same talkgroup were handled by on‑site mainte-

two

and two persons

the PMR services across all venues A Venue Radionance staff

Manager was assigned to each venue to oversee radio

creating a new talkgroup or changing the composition of

Howevercomplex requests

such asoperations at the venues and a PMR Engineer (onea talkgroup required a report to TOC and a decision by

person) was assigned under the Venue Radio Manager

the Radio Duty Manager These change flows wereto support the PMR services at the venues More thandefined in advance and announced to users and support

300 NEC staff took care of the staff positions except for

staff was trained to handle them on a case‑by‑casethe Radio Duty Manager In principle the TOC workedbasis

24 hours a day seven days a week during the Olympic

Major incidents included two base station equipment
failures during the Games However redundant equipment helped the service not to be interrupted and theequipment was quickly replaced and restored to normal
operation

3．Conclusion
The Tokyo 2020 Games operated the unprecedented
PMR service
propagation

In addition to knowledge of radio
knowledge of IP communications andabove all knowledge of the Games management andcompetition‑specific requirements

and open‑minded

communication with relevant people were extremely
important for completing the service
Finally we take this opportunity to thank the IOC
TEC members and express our appreciation to sports
federations event organizers and venue owners for theircooperation in observing the events from the planning
Figure 3

102

Positions Related to PMRphase of the Games We also would like to express our

THE JOURNAL OF THE INSTITUTE OF ELECTRONICS INFORMATION AND COMMUNICATION ENGINEERS

gratitude to NEC and all other operators the Ministry ofInternal Affairs and Communications and other relatedorganizations for their cooperation in the operation of thepersonal mobile radio(Received February 28 2022 ; Revised March 17 2022)

ISHIDA Eiji
He joined the Ministry of Posts and Telecommunications (now the Ministry of Internal
Affairs and Communications) in 2000 andprimarily focused on ICT development indeveloping countries He moved to Tokyo
Organising Committee for the Olympic andParalympic Games in 2018 working for Technology Service Bureau as Senior Project
Director for Frequency Coordination He
served as Radio Duty Manager at the TOC at
the Games times
KUNIMATSU Makoto
He graduated from the University of Electro‑
Communications in 1998 and completed themasterʼs course at the University of Electro‑
Communications in 2000 From 2015 to 2021 he
was in charge of Head of PMR services at theTechnology Service Bureau of the Tokyo 2020
Organising Committee and was in charge ofRadio Duty Manager at TOC at Games time

KONISHI Hirohito
He graduated from Hosei University in 2003
and has been a member of the Technology
Service Bureau of the Tokyo 2020 Organising
Committee since 2017 He is mainly in charge ofoverseeing the construction of the PMR systemand developing the fleet map During theGames he will be engaged in managing radio
and frequency operations at the TOC as Radio
Duty Manager
KATSUYAMA Sakae
He graduated from Nagoya University in1994 with a bachelorʼs degree in engineeringand information technology completed the firsthalf of a doctoral course at the same university
in 1996 and joined NEC in the same year He
has been engaged in the design development
and maintenance of defense communication
networks since then He has been engaged in
the maintenance of the business radio service
for the Tokyo 2020 Games Currently managerof the Urban Infrastructure Solutions Division 1of NEC Corporation㍇㍇㍇㍇㍇㍇㍇㍇㍇㍇㍇㍇㍇㍇㍇㍇㍇㍇㍇㍇㍇㍇㍇㍇㍇㍇㍇

Special Issue : Technology and Innovation in the Olympic and Paralympic Games Tokyo 2020103