First Interim Progress Report on the

Ten-Year Plan and Timetable

U.S. Department of Commerce

Gary Locke, Secretary

Lawrence E. Strickling, Assistant Secretary

for Communications and Information

April 2011
1

1. Introduction

The National Telecommunications and Information Administration (NTIA) submits this Progress Report

pursuant to the Presidential Memorandum issued on June 28, 2010, which directed the Department of 

Commerce, working with the Federal Communications Commission (FCC), to identify and make 

available 500 megahertz of spectrum over the next ten years for expanded wireless broadband use.1 Since 

the issuance of the Presidential Memorandum, NTIA has completed two initiatives in support of the 500 

megahertz goal, while the FCC has initiated several rulemakings. President Obama also has proposed the 

Wireless Innovation and Infrastructure Initiative that reiterates the Administration’s support for freeing up 

500 MHz of spectrum for commercial purposes through voluntary incentive auctions and more efficient 

use of government spectrum.2 

NTIA, with input from the Policy and Plans Steering Group (PPSG)3, produced a Ten-Year Plan and 

Timetable4(hereafter referred to as the Plan) to meet the President’s 500 megahertz goal. The Plan, dated

October 2010, identified steps to determine candidate bands, to assess their feasibility, and to identify the

actions necessary to make spectrum available for broadband wireless services. The Plan also described

the processes and timetable for executive branch actions in support of the Administration’s goal. Fully 

implemented, the Plan requires consideration of a number of factors, including technical and operational 

considerations of Federal systems and non-Federal broadband wireless systems, the costs to evaluate and 

implement sharing methods or relocate Federal systems, and the identification of comparable spectrum 

for relocating an incumbent system. The Plan also takes into account the Presidential Memorandum’s 

statement that “the plan and timetable must take into account the need to ensure no loss of critical existing 

and planned Federal, State, local, and tribal government capabilities, the international implications, and 

the need for enforcement mechanisms and authorities.” 5

 

1 Memorandum for the Heads of Executive Departments and Agencies, Unleashing the Wireless Broadband Revolution, 

(Presidential Memorandum), released June 28, 2010, 75 Fed. Reg. 38387 (July 1, 2010), available at 

http://www.whitehouse.gov/the-press-office/presidential-memorandum-unleashing-wireless-broadband-revolution.

2

“President Obama Details Plan to Win the Future through Expanded Wireless Access,” fact sheet (Feb. 10, 2010), 

http://www.whitehouse.gov/the-press-office/2011/02/10/president-obama-details-plan-win-future-through-expanded-wirelessaccess. The wireless initiative also seeks to provide at least 98% of Americans with access to 4G high-speed wireless service, 

spur innovation through investments in research and development, and develop a nationwide, interoperable wireless network for 

public safety. Id.

3 The Policy and Plans Steering Group, an advisory group of senior, political-level Federal officials advising the NTIA 

Administrator on spectrum policy and strategic plans, serves as a forum for issue resolution and harmonization as determined by 

the NTIA Administrator. The PPSG has advised the Assistant Secretary regarding the Fast Track bands as well as the Ten-Year 

Plan and Timetable. See Presidential Memorandum, Section 1(c).

4 National Telecommunications and Information Administration, Plan and Timetable to Make Available 500 MHz of Spectrum 

for Wireless Broadband (November 15, 2010), available at http://www.ntia.doc.gov/reports/2010/TenYearPlan_11152010.pdf.

5

See Presidential Memorandum at § 1(b), 75 Fed. Reg. at 38388.
2

Concomitant with the preparation of the Plan, NTIA and the Federal agencies performed a Fast Track 

Evaluation, to determine by October 1, 2010, if any of four selected spectrum bands could be made 

available for wireless broadband use within five years.

6

If NTIA determined that it was not possible to 

repurpose an evaluated band by that date, that spectrum band would remain under consideration for the 

Plan.

As a result of the Fast Track Evaluation, NTIA has already made substantial progress in identifying 

spectrum for repurposing. Specifically, the Fast Track Evaluation recommended:

making available 15 megahertz of spectrum from 1695-1710 MHz;

making available100 megahertz of spectrum between 3550-3650 MHz subject to certain 

exclusion zones; and

studying 40 megahertz (in two 20 megahertz bands) of spectrum within 4200 and 4400 MHz

for possible repurposing and recommending a proposed agenda item for the World 

Radiocommunication Conference (WRC) 2016 to consider this spectrum for wireless 

broadband. 

This report documents the actions and accomplishments in the execution and implementation of the Plan 

and summarizes the actions to date on the Fast Track Study. It covers the period from October 1, 2010 

through March 31, 2011.

 

6 National Telecommunications and Information Administration, An Assessment of the Near-Term Viability of Accommodating 

Wireless Broadband Systems in the 1675-1710 MHz, 1755-1780 MHz, 3500-3650 MHz, and 4200-4220 MHz,4380-4400 MHz 

Bands (November 15, 2010), available at http:// www.ntia.doc.gov/reports/2010/FastTrackEvaluation_11152010.pdf. NTIA 

selected the 1675-1710 MHz, 1755-1780 MHz, 3500-3650 MHz, and 4200-4400 MHz bands for study in the Fast-Track 

Evaluation. There was insufficient time to complete the analysis of the 1755-1780 MHz band within the timeframe of the Fast 

Track Evaluation. 
3

2. Activities

Since October 1, 2010, NTIA, the PPSG and the Federal agencies have endeavored to achieve the 

President’s goal of making 500 megahertz of spectrum available in ten years according to the Plan. 

NTIA chaired nine meetings with PPSG and Spectrum Working Group (SWG) members through March 

31, 2011.

7 These meetings culminated in the NTIA identifying 1500 megahertz of Federal exclusive and 

shared spectrum bands to study for repurposing to exclusive or predominately non-Federal use. These 

spectrum bands are shown in Table 2-1.

Table 2-1 Federal and shared Spectrum Bands Under Investigation

Frequency Band

(MHz)

Amount

(Megahertz)

Current Allocation/Usage

(Federal, non-Federal, Shared)

 406.1-420** 13.9 Federal 

 1300-1390** 90 Federal

1675-1710*35 Federal/non-Federal Shared

1755-1780*25 Federal

1780-1850 70 Federal 

2200-2290 90 Federal

 2700-2900** 200 Federal

2900-3100 200 Federal/non-Federal Shared

3100-3500 400 Federal/non-Federal Shared

3500-3650*150 Federal

 4200-4400** 200 Federal/non-Federal Shared

[4200-4220 & 4380-4400]*Federal/non-Federal Shared

Total 1473.9

 Bands selected for Fast Track Evaluation. For purposes of future analysis, 1755-1850 MHz – consisting of 1755-1780 and 

1780-1850 MHz - will be assessed as a single block.

 Band obligated by U.S.-Canada or U.S.-Mexico bilateral agreement(s)

NTIA, in coordination with the PPSG-SWG, developed the methodology for prioritizing the bands for 

repurposing, the band selection factors and their associated descriptors. NTIA, with assistance from the 

Federal agencies and the PPSG-SWG, conducted an evaluation of the bands identified in Table 2-1, to 

develop an overall ranking based on the band selection factors enumerated in Table 2-2.

 

7

Spectrum Working Group is a working group of the PPSG
4

Table 2-2 Band selection factors

Available bandwidth

Estimated revenue potential

Technology

Comparable spectrum

Relocation costs

Relocation achievable within ten years 

Level of difficulty of required 

international agreements 

 

From among the bands listed in Table 2-1, NTIA selected and ranked six blocks of spectrum for priority 

consideration for repurposing to non-Federal use for FCC-licensed wireless broadband systems:

1. 1755 – 1850 MHz

2. 1695 – 1710 MHz

3. 406.1 – 420 MHz

4. 1370 – 1390 MHz

5. 4200 – 4400 MHz

6. 3500 – 3650 MHz

On January 28, 2011, NTIA selected 1755-1850 MHz as the first block for detailed evaluation of the 

possibility of repurposing for wireless broadband. NTIA chose this spectrum for several reasons,

including the nature of current Federal agency use of the spectrum, the likelihood of successfully 

repurposing within ten years, the international harmonization with mobile operations, the existence of 

mature wireless equipment, and the spectrum’s advantageous propagation characteristics for mobile 

operations. To assist the Federal agencies in conducting their evaluation, NTIA developed a set of 

spectrum for potential comparable spectrum for relocation from 1755-1850 MHz, and provided the set to 

the Federal agencies for review and analysis. NTIA continues to conduct technical analyses on 1755-

1850 MHz and comparable spectrum bands and plans to complete the detailed evaluation of this band by 

September 30, 2011.

On January 19, 2011, in furtherance of the Fast Track recommendations, NTIA formally recommended to 

the FCC that it take regulatory action to repurpose the 1695-1710 MHz and 3550-3650 MHz bands for 

wireless broadband use on a shared basis.8 On March 8, 2011, the FCC released a Public Notice seeking 

comment on the steps the Commission could best promote wireless broadband deployment for these 

bands. NTIA is also pursuing repurposing the 4200-4400 MHz band and 1695-1710 MHz band as part of 

a proposal for a broad agenda item on broadband wireless access for the WRC-2016. In conjunction, the 

 

8

See Letter from Karl B. Nebbia, Associate Administrator Office of Spectrum Management, National Telecommunications and 

Information Administration, to Julius Knapp, Chief, Office of Engineering and Technology, Federal Communications 

Commission (January 19, 2011). 
5

Federal Aviation Administration (FAA) is conducting a technical analysis of the 4200-4400 MHz band 

with assistance from the affected Federal agencies. 

Of the planned actions described in the Ten Year Plan and Timetable, Table 2-3 shows the completed 

actions.

9

Table 2-3 Completed Actions to date

Developed and completed Ten Year Plan Oct 1, 2010

Identified initial candidate bands for repurposing Oct 1, 2010

Identified band evaluation factors for relocation Oct 1, 2010

Developed and completed Fast Track technical analysis and 

provided study recommendations

Oct 1, 2010

FCC released an NPRM on Innovation in the Broadcast Television 

Bands : Allocation, Channel Sharing and Improvements to VHF 10

Nov 30, 2010

Evaluated and prioritized bands for relocation Jan 14, 2011

Developed and provided comparable spectrum bands for relocation 

to PPSG and PPSG-SWG

Jan 14, 2011

Prepared initial draft for proposed agenda items for WRC-2016 to 

PPSG-SWG11 

Jan 14, 2011

Recommended to the FCC that it take regulatory action on 1695-

1710 MHz and 3550-3650 MHz to make it available for wireless 

broadband use on a shared basis

Jan 19, 2011

Made first selection for relocation analysis – 1755-1850 MHz band Jan 28, 2011

Identified band evaluation factors for sharing Feb 18, 2011

FCC released Spectrum Task Force Requests Information on Use 

of 1675-1710 MHz Band 12

Mar 8, 2011

Chaired nine meetings with PPSG & SWG Mar 31, 2011

NTIA, FCC, the PPSG and SWG, and the Federal agencies continue to work together to achieve the 

objectives and timetable set out by the President and to identify and analyze the bands for repurposing 

and specific exclusive use. Table 2-4 summarizes the status and plans of the remaining actions.13

 

9 Table 8-1, Ten Year Plan and Timetable.

10 See http://hraunfoss.fcc.gov/edocs_public/attachmatch/FCC-10-196A1.doc

11 NTIA consulted with the Federal agencies on draft proposed agenda items.

12 See http://hraunfoss.fcc.gov/edocs_public/attachmatch/DA-10-1035A1.doc

13 Table 8-1, Ten Year Plan and Timetable.
6

Table 2-4 Planned and Ongoing Actions

NTIA Status 

Execution/Implementation of Ten Year Plan and Timetable Ongoing

Assessed and identified international implications Ongoing

Selection(s) – additional band(s) for analysis as needed Ongoing

Conduct technical analysis of bands Ongoing

Evaluated and prioritized bands for sharing Ongoing

Publish First Interim Progress Report on the Ten Year Plan and Timetable Scheduled for Apr 2011

Decision #1 - High Priority Band(s) to be Repurposed Scheduled for Oct 1, 2011

Publish Second Interim Progress Report on the Ten Year Plan and Timetable Scheduled for Oct 1, 2011

Publish consolidated report Scheduled for Nov 2011

Decision #2 - Next Priority Band(s) to be Repurposed Scheduled for Sep 2012

Develop transition plan (regulatory) Ongoing

Publish First Annual Progress Report on the Ten Year Plan and Timetable Scheduled for Oct 1, 2012

Publish Second Annual Progress Report on the Ten Year Plan and Timetable Scheduled for Oct 1, 2013

Decision Point(s)- additional bands to be repurposed (as needed) Scheduled for Jan 2014

FCC Actions Status

Identify candidate bands and seek input from public (technical and 

operational) Information

Ongoing

Provide data on non-Federal Systems Ongoing

Initiate allocation rule-making in order of priority

Initiate service rule-making in order of priority

Issue authorizations for wireless broadband (via auction as appropriate)

Transition to non-Federal entities

PPSG/SWG Actions Status 

Planned meetings for remaining FY2011 PPSG: Jun 17, Aug 5, Sep 23

PPSG-SWG: Apr 8, May 6, Jun

10, Jul 15, Aug 12 and Sep 9

Federal Agencies Status 

Provide data on Federal systems Ongoing 

Conduct detailed analysis (Exit Evaluation) Scheduled for Sep 2011

Provide preliminary estimates of costs Scheduled for Sep 2011

FAA conducts technical analyses on the 4200-4400 MHz band with 

assistance from the affected Federal agencies.

Ongoing

Provide feedback on comparable band(s) Scheduled for Apr 1, 2011

Provide interim report on priority band Scheduled for Jun 1, 2011

Complete detailed analysis report for 1755-1850 MHz band Sept 30 2011

Develop transition plans Scheduled to start Oct 1, 2011

(as needed)

Submit detailed cost estimates; based upon decision for repurposing Scheduled for Aug 2012
7

3. Conclusion

NTIA, together with the Federal agencies and the PPSG, is working to implement the Plan in accordance 

with the Plan timelines. Pursuant to the Fast Track Evaluation, NTIA has recommended to the FCC that 

it act to make 1695-1710 MHz and 3550-3650 MHz bands available for wireless broadband use on a 

shared basis. In addition, the FAA has begun technical analyses of the entire 4200-4400 MHz band with 

technical assistance and input from other the affected Federal agencies and NTIA will continue to pursue 

a proposal for a broad agenda item at WRC-2016 on broadband wireless access to include the 4200-4400 

MHz band and the 1695-1710 MHz band. For the overall Plan, FCC is working closely with and 

updating PPSG members on regulatory actions and the FCC may seek public input as appropriate on nonFederal system requirements/characteristics and public comment on those candidate bands sufficiently 

early in the process to allow time to complete allocation and service rulemaking proceedings. Follow-on 

necessary FCC actions may include modifying the Allocation Table, service rulemakings, promulgating 

incumbent relocation policy and requirements and auction rules where appropriate. The Office of 

Management and Budget has inserted proposals in the FY 2012 Budget to provide more flexibility to the 

Spectrum Relocation Fund to create a more efficient relocation process. NTIA has developed a work plan 

and guidelines for the Federal agencies via the PPSG and PPSG-SWG for the 1755-1850 MHz band study

to aid completion of the detailed evaluation for the 1755-1850 MHz by September 30, 2011. Each of the 

above actions will contribute to making 500 MHz of spectrum available for mobile and fixed wireless 

broadband in ten years.