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-1" fr* COMMUNICATION FROM THE COMMISSION 
TO THË EUROPEAN PARLIAMENT AND THE COUNCIL 
Radio frequency requirements for Community policies in the context of 
THE WORLD RADIOCOMMUNICATIONS CONFERENCE 1999 
(WRC-99) 
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TABLE OF CONTENT 
SUMMARY 
1. INTRODUCTION 1 
2. WORLD RADIOCOMMUNICATIONS CONFERENCES AND EUROPE 2 
2.1 The changing context of WRC negotiations 2 
2.2 Results of WRC-97 5 
2.3 Assessment of the European position at WRC-97 6 
3. WRC-99 IN THE CONTEXT OF RELEVANT COMMUNITY POLICIES 7 
3.1 Terrestrial mobile communications/UMTS 8 
3.2 Satellite services, including broadcasting 9 
3.3 Aeronautical and satellite-radionavigation services/GNSS 10 
3.4 Earth observation 11 
4. PREPARATIONS FOR WRC-99 IN THE COMMUNITY CONTEXT 12 
4.1 Compliance of European positions for WRC-99 with 
relevant Community policies 12 
4.2 Appropriate balancing of radiocommunications interests 13 
4.3 Approximation of positions with third countries and regions 13 
4.4 Appropriate representation of Community interests at WRC-99 14 
5. CONCLUSION 15 
ANNEX Glossary 
\a. 
SUMMARY 
A vast array of radiocommunications techniques and services has become 
vital to the European economy, its consumers, and the safety of people. They 
provide essential links in public and private telecommunications networks; they 
assure the efficiency and safety of maritime, aeronautical, and land transportation; 
they provide the information and entertainment services of broadcasting; they enable 
weather forecast; they help to fight pollution and to perform many other functions 
needed by modern society. These radiocommunications services have in 
common that they compete for the use of the scarce radio spectrum resource. 
Decisions as to which types of services may make use of which frequencies, and 
under what conditions, are taken at World Radiocommunications Conferences 
(WRCs) which are organised under the auspices of the International 
Telecommunication Union (ITU), and where al! 15 Member States of the European 
Union participate. The last WRC was held in 1997 and made important decisions on 
mobile and satellite communications, broadcasting, and satellite radionavigation and 
aeronautical services. The next WRC will be held in 1999. 
The context for WRCs has changed considerably from being a primarily 
technical matter, to one where economic and political forces, driven by 
liberalisation, competition, globalisation, and technological innovation in the 
communications and information sectors, have become decisive for the 
frequency allocation decisions to be taken. Although WRCs allocate certain parts 
of the spectrum for the provision of specific services and do not decide which 
companies may use which frequencies, the strong lobby power of consortia and 
interest groups, backed by their administrations, has led to the impression that 
individual interests at WRCs partition the frequency spectrum along commercial 
interests. In addition to the increased impact of economic forces, the technical 
complexity of the subject matters as well as the potential implications of frequency 
allocation decisions on the global market structure have resulted in the situation 
where WRCs make provisional decisions, pending further clarification on the 
technical implications and subject to further national and regional consultations with 
all interested parties with the aim to arrive at a political endorsement of the objectives 
to be achieved and positions to be taken. 
At Community level, the implementation of a number of common policies 
depends on the availability of radio spectrum, such as in the case of mobile 
and satellite communications, broadcasting, aeronautical and satellite 
radionavigation services, and Earth observation. The political decision-making 
context for such policies differ, however, for instance when considering the 
completion of the Internal Market, international co-operation and market access 
issues, RTD policy objectives. As a consequence, frequency implications of the 
mentioned Community policies are addressed separately at the operational level and 
not as part of a coherent European long-term strategic spectrum plan agreed at the 
political level. In the absence of political priorities with respect to the availability 
of spectrum for the implementation of Community policies, technical experts 
themselves need to balance commercial and public interests in the allocation 
of radio frequencies. 
The development and negotiation of European positions for WRCs is done by the 
Member States at the national level and in the framework of the CEPT (European 
*\> 
Conference of Postal and Telecommunications administrations). CEPT comprises 43 
European countries and therefore potentially leads to harmonised frequency 
allocations beyond the Community borders, provided that the harmonisation 
measures are appropriately implemented. Furthermore, since each ITU/WRC 
member country has one vote, agreement at CEPT level would create strong 
bargaining and voting power for Europe vis-à-vis third regions and countries. 
Member States do not support a role of the Community in terms of developing 
common Community positions or negotiating at WRCs on their behalf. In view of the 
evolution of the WRC context, however, there is a growing need to support the 
WRC positions in the wider political context, taking into account that diverging 
views among WRC negotiating parties as regards frequency harmonisation are 
normally based on a diverging political appreciation for radiocommunications 
systems of commercial and general interest. This becomes evident, for instance, 
in case Europe requests further frequencies for the development of third generation 
mobile communications (UMTS) which other countries may oppose due to the 
national focus on satellite communications (e.g. US) or due to difficulties with the 
phasing out or relocation of existing systems (e.g. developing countries). Spectrum 
for aeronautical and radionavigation services may be needed to satisfy demand for 
both commercial and public interest applications, depending on national requirements 
and priorities, and taking into account claims for the same spectrum by commercial 
mobile satellite operators. The effectiveness of politically backing up the 
technical positions worked out is therefore essential to achieve good results at 
WRC and for an appropriate technical and political representation of 
Community interests in contacts with the main trading partners. The 
Community, as represented by the Commission, could be instrumental in this regard, 
provided the Member States themselves politically support the WRC positions 
worked out. 
The co-ordination of positions of the Member States in CEPT for the WRCs in 1995 
and 1997 generally led to results which allow for the further development of Europe's 
radiocommunications market. For WRC-97, the 43 CEPT countries signed about 300 
so-called European Common Proposals (ECPs) for the 50 agenda items to be dealt 
with, most of which were adopted by the conference. However, notwithstanding the 
overall satisfactory adherence of the European countries to the common European 
positions presented at WRC-97, very controversial issues could not be settled on 
the basis of technical positions only, as was the case for instance with respect 
to satellite broadband services and aeronautical and satellite-radionavigation 
services. Due to the complexity of these issues in economic and strategic terms, 
some Member States had either not signed the relevant ECP or were instructed by 
their capitals to withdrew their support during the negotiations themselves. In the 
absence of a priori instructions from political instances as to the objectives to 
be achieved at the technical level, Europe's negotiating position may be 
seriously undermined. 
The forthcoming WRC-99 will;once more deal with frequency requirements for the 
implementation of Community policies on satellite and mobile communications, 
broadcasting, aeronautical and satellite radionavigation services, and Earth 
observation. The Community policy framework for satellite and mobile 
communications, which includes close consultation of and co-ordination with industry 
and representative organisations, allows for a rather precise translation of respective 
Community policies into frequency requirements to be negotiated at WRCs. However, 
in case of the other mentioned Community policies, such consultation and co-
Ac 
ordination is not always apparent and may result in a situation where 
commercial telecommunications interests have a stronger competitive position 
in obtaining frequencies. 
In accordance with the Council Conclusions on 22 September 1997, which were 
adopted on the basis of the Commission Communication to the European Parliament 
and the Council on the WRC-97, the European Commission will be involved in 
the WRC-99 process in pursuance of the following objectives: 
1. Ensure compliance of the European positions for WRC with relevant 
Community policies prior to and at the conference 
2. Encourage European industry to propose radiocommunications initiatives and 
involve industry and other relevant actors and organisations in the 
development of European positions on, inter alia, mobile and satellite 
communications, broadcasting, aeronautical services, radio navigation, and 
Earth observation 
3. Maintain and establish contacts with third countries and regions in order to 
promote European objectives and to achieve a certain level of approximation 
of proposals before the start of the conference 
^ 4. Strengthen the negotiating position of Europe at WRC and achieve results 
which are to the benefit of the European economy and its citizens 
It is necessary, however, to address these objectives in a general review of spectrum 
policy in the Community where frequency requirements for Community policies 
are addressed as part of a coherent European long-term strategic spectrum 
plan which appropriately balances commercial and general interests, which is 
based on wide consultations with all interested parties, which is endorsed at 
political level and which allows for the production of European positions for 
WRCs. The Commission intends to carry out a wide consultation with all parties 
involved to address this matter and to report to the European Parliament and Council 
about the efficiency of the current arrangements for spectrum policy in Europe and 
the possible need for Community initiatives in this area, including as regards 
Community representation at WRC. 
This Communication has been prepared in order to: 
• initiate a political discussion in the European Parliament and Council on the 
Community interests at stake at WRCs, with particular regard to WRC-99 in 
the light of the results of WRC-97, and to ensure appropriate involvement of 
all interested parties in the preparatory process; 
• provide information on relevant Community policies which depend on 
frequency availability, with which WRC decisions should comply, and which 
therefore should be taken into account in the elaboration of positions for 
WRC-99; 
• explain the role of the Community and the European Commission in the WRC 
process; and 
• point to the need to address WRC issues at the political level in the context of 
a long-term strategic spectrum plan to be established 
A X 
1. INTRODUCTION 
A vast array of radiocommunications techniques and services has become vital to the 
European economy and safety of people and given the increasing dependence of 
society on the provision of information and communication by wireless means, 
spectrum matters are becoming critical from an economic, political, consumer, 
and public welfare point of view. 
The planning of the usage of radio spectrum by services (such as mobile and satellite 
telephony and broadcasting) at a national, Community and global level depends on 
the decisions taken at World Radiocommunications Conferences (WRCs).1 At WRCs, 
the 186 member countries of the International Telecommunication Union (ITU), 
including the 15 Member States of the European Union (EU), decide whether, how 
and under what conditions frequency requirements for existing and planned 
radiocommunications systems can be accommodated.2 
In view of the ever increasing trends towards globalisation, liberalisation, competition, 
and technological innovation in the communications and information sectors, 
negotiations on spectrum requirements in the context of WRCs gain in importance in 
commercial and political terms. The introduction of full liberalisation of 
telecommunications services and infrastructure from January 1998 is widening the 
choice of services. At the same time, however, demand for spectrum is increasing 
and political choices need to be made as to the fair and equal distribution of 
this scarce resource among competing interests. In addition, frequencies and 
orbital slots are limited resources whose allocation and use may, in some cases, 
need to be considered under competition rules. In the race towards the establishment 
of the Information Society, access to and use of globally harmonised frequency 
bands can therefore present a key competitive advantage. 
Decisions taken at previous WRCs enabled for instance the development of mobile 
telephony (GSM), satellite telephony (S-PCS), and direct-to-home television. Most 
recently, the WRC-97 opened up spectrum for the provision of satellite broadband 
multi-media services. The forthcoming WRC in 1999 will take further decisions 
on spectrum requirements for the mass-market communications systems of 
the 21st Century. Such systems, e.g. satellite broadband (as proposed by Teledesic 
and SkyBridge for example) and terrestrial mobile broadband (UMTS - Universal 
Mobile Telecommunications System), will be the building blocks of the emerging 
Information Society. In addition to the spectrum requirements of such global, mass-
market services, WRC-99 will also address the spectrum requirements of 
services which are not directly linked to commercial interests but are important 
for political, cultural, consumer protection, safety, socio-economic or strategic 
reasons, such as radionavigation-satellite, aeronautical mobile, and maritime 
mobile services, and Earth observation. 
See ANNEX 1 for a Glossary. 
Detailed background information on spectrum management and WRCs can be found in the Communication 
from the Commission to the European Parliament and the Council on the World Radiocommunications 
Conference 1997 (WRC-97), COM(97)304 final, 18.06.97. It should be underlined that WRCs decide upon the 
availability of spectrum for the provision of services and not on whom is allowed to use the spectrum made 
available; this remains a matter for national decision. 
1.£ 
As a common procedure, the previous radio conference in 1997 (WRC-97) adopted a 
Resolution on the agenda for the forthcoming conference in 1999 (WRC-99).3 It 
comprises over 40 separate issues and includes issues of particular relevance in a 
Community context, such as terrestrial mobile communications, radionavigation-
satellite, aeronautical mobile, and maritime mobile services, mobile satellite and fixed 
satellite services, broadcasting, and Earth observation. 
This Communication follows-up on the Council Conclusions which were adopted-on 
22 September 1997 on the basis of the Commission Communication on the World 
Radiocommunications Conference 1997 of 18 June 1997.4 These Council 
Conclusions invite the Commission to ensure that Community interests are taken into 
account in the production of European positions for WRCs, to carry out consultations 
with interested parties with the aim to identify frequency requirements for agreed 
Community policies and industrial needs, and to participate in bilateral contacts with 
third countries and regions with the aim to assess the respective positions prior to the 
conference. 
This Communication outlines the context for WRCs and assesses the results of 
WRC-97 from a Community point of view. Furthermore, it identifies issues at the 
agenda of WRC-99 which are of particular relevance in a Community context. Finally, 
the Communication elaborates on the preparatory process initiated in view of WRC-
99 with particular emphasis on the activities the European Commission intends to 
carry out in this context. 
The overall objective of the present Communication and Community action 
with regard to WRCs and WRC-99 particularly is to ensure that WRC decisions 
comply with relevant Community policies and that the positions to be worked 
out for WRCs appropriately balance commercial and general interests and are 
endorsed by political instances. 
2. WORLD RADIOCOMMUNICATIONS CONFERENCES AND EUROPE 
2.1 The changing context of WRC negotiations 
The preparations for and negotiations at WRCs have intensified over the years in 
terms of the number of negotiating issues, the period needed to reach agreement, 
and the level of resources that administrations and industry dedicate to satisfy 
frequency requirements in the international context. At the WRC-97, for example, 
about 1800 representatives of 131 ITU member countries and international 
organisations needed four weeks of around-the-clock and across-the board 
negotiations to reach agreement on a large number of issues. Although political 
instances still regard WRC negotiations as a mainly technical matter, experience 
demonstrates that the commercial and political influence on the negotiations can be 
decisive. 
The introduction of economic considerations in frequency allocation decisions 
becomes more apparent and is believed to contribute to a more efficient use of radio 
Resolution GTPLEN1-3 (WRC-97): Agenda for the 1999 World Radiocommunications Conference, ITU, Final 
Acts of the WRC-97. Geneva, 1997. 
Council Conclusions on the Commission Communication on the WRC-97, September 1997. 
2 
frequencies. In fact, certain trends can be observed in the context of WRC 
negotiations which alter the former technical nature of WRCs and have 
resulted in increased attention to commercial and political considerations in 
frequency allocation decisions: 
• Régionalisation of positions 
In order to gain support at WRCs for national positions, countries increasingly 
co-ordinate and negotiate positions for WRCs in the context of regional 
telecommunications organisations, such as CEPT (Europe), CITEL (Americas), 
APT (Asia-Pacific Telecommunity), Arab and African groupings.5 
• Involvement of commercial interests 
Industry is increasingly involved in the WRC process, both as regards 
international lobbying and marketing prior to, and at conferences, as well in 
terms of representation in, (and even financing of) national delegations to 
WRCs. 
• WRC decisions enable technological innovations 
Timely WRC decisions on the availability of frequencies are required in order to 
facilitate system development and the raising of capital investments. For 
example, even though satellite and mobile broadband systems are not expected 
to be implemented before 2002, decisions on the availability of spectrum are 
required now. Debates at WRCs on frequency requirements for new radio 
systems are increasingly based on technological assumptions and projected 
market forecasts and are at times used to consolidate technological leadership 
of specific players. 
• WRC decisions and impact on regulatory policy 
WRC decisions have implications for regulatory policy. For example, the amount 
of spectrum to be made available by a WRC for a certain type of service has 
direct consequences on the number of licenses to be issued for the provision of 
that type of service at national and international level and therefore impacts on 
general competition considerations. Preference should therefore be given to 
solutions enabling the highest possible number of licenses to be issued for the 
concerned services. 
• Involvement of political instances 
The extent with which national delegations are instructed by political authorities 
to achieve satisfactory results on particular issues is increasing and political 
instances occasionally use diplomatic means in parallel to WRC to achieve 
support for national positions at WRCs. 
Although WRCs aim to reach decisions based on consensus and avoid voting on issues, the knowledge that 
Europe has up to 43 votes is an encouragement for other regions to reach a compromise that will be satisfying 
for Europe. WRC-97 acknowledged the trend towards régionalisation of positions and adopted Resolution 
PLEN-2/WRC-97 on regional preparations for World Radio Conferences. ITU, Final Acts of the WRC-97, 
Geneva 1997. 
• Across-the-board negotiations 
Due to the large number of issues to be considered in the limited time available, 
the conclusion of compromises and package deals between the main 
negotiating parties and their industries is common practice nowadays, and this is 
not only done on the basis of technical considerations but also comprises 
political and commercial dimensions. 
• Reconciling interests of developed and developing nations 
The need for frequencies for innovative radiocommunications systems, primarily 
developed by industrialised countries, may seriously impact on frequency 
availability for existing systems, and this is particularly affecting developing 
countries. 
• Relation between national administrations and commercial interests 
The increased involvement of commercial interests in the WRC process may 
lead to conflicts of interests between national administrations, which aim to 
achieve across-the-board results, and individual companies and (international) 
organisations which pursue sector-specific objectives. Furthermore, commercial 
interests in the radiocommunications sector are pursuing global, rather than 
national solutions. 
• The WRC process is a continuing process 
Due to the importance and complexity of the issues to be considered, many 
decisions taken at WRCs are provisional or postponed to a forthcoming 
conference. This may hamper technical innovations by introducing significant 
regulatory delays, but allows, however, for a double-checking with political 
instances at home before firm positions and decisions can be taken. The WRC 
process requires a continuous involvement and considerable resources of 
administrations, industry, and political instances. 
Technological developments, the liberalisation of telecommunications markets, and 
the general globalisation of the world economy have changed the way in which WRC 
decisions on the allocation of radio frequencies are reached. Whereas decisions at 
WRCs were previously mainly negotiated by national experts acting on behalf of a 
limited number of national spectrum users, such as the military, national 
broadcasters, and a limited telecommunications community composed of public 
telecommunications operators, WRC negotiations are nowadays heavily influenced 
by commercial interests of a large range of economic actors operating on a world­
wide scale and continuously developing new types of services. 
The working out of European positions cannot be done in isolation but need to take 
into account the political, economic, and regulatory situation in other parts of the 
world. Whereas the terrestrial mobile communications market in Europe is developing 
at a rapid pace and therefore additional frequencies are needed, other parts of the 
world may have different requirements, e.g. in the area of satellite communications 
(as in the case of the US). Also, the existing mechanisms may be insufficient to 
phase-out or relocate existing systems to other parts of the radio spectrum in time (as 
in the case of developing countries). Such conflicting interests become apparent at 
WRC in terms of frequency requirements but can be detected, however, at an earlier 
stage through an appropriate examination of the requirements of the respective 
markets. 
The trends in WRC negotiations noted above have implications for the technical 
issues to be considered at WRCs but cannot be solved on the basis of technical 
considerations only. The increased need for co-ordination between commercial 
and public uses of spectrum, for co-ordination within and between regions with 
diverging interests, and the political and regulatory implications of the 
decisions to be taken, should lead to an increase of political attention to be 
given to the issues at stake at WRCs. In the current climate of WRC negotiations, 
only the combined strengths of frequency authorities and political instances will lead 
to satisfactory results on frequency allocations which will serve the public interest and 
the European economy. 
2.2 Results of WRC-97 
The results of WRC-97 are generally assessed as positive for the further 
development of the radiocommunications sector in Europe. From a Community 
point of view, the most relevant results of WRC-97 are the following: 
• Satellite broadband services 
WRC-97 decided to make spectrum available for the provision of satellite 
broadband services, such as proposed by SkyBridge, Teledesic, Celestri, 
WEST. Whereas the technical decisions taken on this issue by WRC-95 were 
not to the benefit of global competition, WRC-97 changed its approach. After 
difficult negotiations, agreement was firstly reached on the principle that global 
and equal competition in the provision of satellite broadband services is 
essential for economic and political reasons before appropriate technical 
solutions were worked out. The WRC discussions on satellite broadband 
services underline the need for political guidance to be given in order for 
acceptable technical compromises to be reached. 
The result complies with the new concept proposed by Europe to overcome the 
difficulties experienced in co-ordinating different satellite and terrestrial systems 
and comprises the setting of limits for the interference that can be accepted into 
one type of network from the other. The principal concept agreed upon would 
allow for equal access to spectrum by competing systems, facilitate competition 
in the provision of satellite broadband services at global level, and diminish the 
need for a segmentation of frequency bands. The issue will be re-visited at 
WRC-99. 
• Terrestrial mobile communications/UMTS 
One of the main of objectives of Europe for WRC-97 was to ensure that a 
forthcoming conference would deal with spectrum requirements for the 
development of Europe's future 3rd generation mobile communications systems, 
known as UMTS (Universal Mobile Telecommunications System). It was agreed 
that WRC-99 should deal with this issue. 
• Aeronautical and radionavigation services 
WRC-97 addressed the issue whether spectrum allocated for the provision of 
aeronautical and satellite-radionavigation services should be opened up for 
shared use with other services, such as mobile telephony by satellite. While the 
Conference could agree in principle as far as bands allocated to mobile 
aeronautical services were concerned, it could not for those dedicated to 
radionavigation. In both cases it decided to put again these questions on the 
agenda of WRC-99 on the basis of additional technical studies to be undertaken 
and consultations to be carried out with the actors of the sector (transport and 
aviation communities) and political instances. WRC-99 will furthermore consider 
additional frequency allocations to the satellite-radionavigation service. 
WRC-97 also made decisions as regards the planning of the broadcast satellite 
service (Appendices 30/30A of the ITU Radio Regulations), Earth observation, and 
other issues. 
2.3 Assessment of the European position at WRC-97 
43 European countries, including the 15 EU Member States, co-ordinate and 
negotiate positions for WRCs in the context of the Conference Preparatory Group 
(CPG) of CEPT. All 43 CPG member countries, including the EU Member States, had 
put their signature to some or all of the 300 European Common Proposals (ECPs) 
adopted. The CPG had appointed co-ordinators to closely follow the negotiations on 
specific agenda items and to advise the 43 CEPT administrations on the line to be 
taken. Also, a number of Europeans were positioned in the organisational structure of 
the conference as (vice-) chairmen. However, the co-ordination of positions 
among 43 countries remained difficult, particularly where the technical 
positions worked out could not be maintained for economic, political, or 
strategic reasons. 
For WRC-97, for example, an ECP was adopted which would allow shared use of 
frequencies by mobile-satellite and aeronautical services under certain conditions. 
However, as a result of insufficient agreement and political support at the national 
level, certain Member States did not sign the proposal or had to withdraw their 
support at the conference itself. The issue was finally postponed to WRC-99. 
The formal role of the European Commission at the WRC-97 was that of observer. 
Furthermore, and where appropriate from a Community point of view, the 
Commission provided political support to the CEPT in its role as counsellor. 
The fact that the Commission was involved in the negotiation process within the limits 
set by Council does not mean, however, that agreements made at WRC and 
consortia putting forward frequency allocation proposals are automatically in line with 
Community interests, for instance as regards the competition rules, which may 
require separate checks. 
In accordance with the Council Conclusions of 3 February 19926, the Luxembourg 
Presidency submitted on behalf of the Community a joint Declaration for inclusion in 
Council Conclusions on the procedures to be followed at the World Administrative Radio Conference (WARC 
1992), 3.2.1992. 
the Final Acts which stipulates that the delegations of the Member States of the EU 
declare that they will apply the revision of the Radio Regulations adopted at the 
conference in accordance with their obligations under the Treaty establishing the 
European Economic Community. This should allow for an appropriate assessment to 
be made at Community level as regards the compatibility of WRC decisions and their 
implementation at Community level as set against the Treaty and in particular its 
competition rules. However, in view of the complexity of the issues dealt with at 
WRC, a more forward looking approach may be required where possible 
consequences of WRC decisions on Community policies are assessed on ana 
priori basis. 
In particular with respect to the issues of satellite broadband services, UMTS, and 
aeronautical and satellite-radionavigation services there was a clear need for co­
operation between the Commission and the CPG at political and technical level in 
order to achieve results which would be acceptable from a Community point of view. 
The combination of strengths should be further consolidated in view of the trends in 
the negotiations described above, particularly as regards the need to ensure that 
European positions are negotiated which comply with Community interests 
and which are endorsed by relevant political instances and affected parties. 
WRC-97 adopted nearîy all ECPs presented by the CPG, although it should be noted 
that certain provisional decisions by WRC-97 need to be reviewed by WRC-99. The 
European regional co-ordination in CEPT is generally appreciated by other regions 
within the WRC structure and has already triggered reflections on their side as to how 
to better prepare themselves for WRC-99, notably by engaging an early preparatory 
dialogue with European instances in charge. 
Europe had a rather strong negotiating position at WRC-97 but it should be 
reviewed whether the current arrangements will hold in the context of the 
evolving nature of WRC negotiations noted above, in particular as regards the 
necessity of political support for the positions to be negotiated prior to and during 
WRC as well as the need to ensure that the co-ordination among European countries 
and the adherence to the positions is maintained. 
WRC-99 IN THE CONTEXT OF RELEVANT COMMUNITY POLICIES 
The agenda for WRC-99 comprises about 40 separate items, grouped under detailed 
technical headings familiar to frequency managers only. However, most of the 
apparent technical matters to be considered at WRC-99 in fact constitute important 
operational conditions for the implementation of Community policies. Other items are 
only indirectly linked to Community policies, but are nevertheless of importance to 
individual Member States, companies, or organisations.7 The WRC-99 agenda 
includes many issues for which no definitive agreement could be established at 
WRC-97. This is due to the fact that the issues dealt with at WRCs are technically so 
complex that, prior to taking definitive decisions, technical studies are needed and 
further consultation with political instances and affected market players is required. 
In addition, certain other Community policies, such as concerns RTD, competition, and trade, have a bearing on 
frequencies. For further details, see footnote 2. 
Under these conditions, all interested parties, including (potential) spectrum 
users, equipment manufacturers, consumers, regulatory authorities, and 
political instances should take note at an early stage of the WRC-99 agenda, 
assess to which extent their respective activities may be affected by the 
decisions to be taken, and take part in the process for the establishment of 
common European positions for WRC-99. 
3.1 Terrestrial mobile communications/ UMTS 
The amount of spectrum to be made available by WRC-99 for UMTS will directly 
affect growth prospects for multi-media mobile communications in Europe and 
elsewhere and therefore greatly affects the competitive position of Europe's mobile 
communications industry at global markets. However, potential conflicts exist with 
those countries which focus more on, e.g., satellite communications and which 
compete for access to the same frequencies as those identified for UMTS. 
Under the ITU terminology IMT-2000 (International Mobile Telecommunications), 
WRC-99 will deal with additional frequency allocations for this type of 
radiocommunications and study the technical characteristics which should facilitate 
world-wide roaming. Building on its success in mobile telephony (GSM, DCS-1800), 
Europe seeks to secure frequency availability for third generation mobile systems, 
which has become to be known in Europe as UMTS (Universal Mobile 
Telecommunications System). 
Estimates suggest that the annual market revenues in Europe for cellular mobile 
services could amount over 100 billion ECU and for mobile multimedia services 
approximately 34 billion ECU in 2005.8 The huge economic potential of the mobile 
market is reflected in Community funding under the RACE and ACTS projects on 
mobile communications (176 million ECU in the period 1996-1998). 
At Community level, the development of UMTS has received the necessary political 
support and the regulatory implications are currently being discussed on the basis of 
a proposal for a Council and European Parliament Decision on UMTS9. This proposal 
builds on the progress of work undertaken on standardisation in ETSI, on frequency 
harmonisation in the context of CEPT, and on market and regulatory issues 
addressed in the framework of the UMTS Forum. 
At WRC-99, Europe will underline the importance of the need for additional globally 
harmonised allocations to meet demand for third generation mobile applications. It 
should be noted, however, that the frequency range identified for such allocations 
(i.e. 2 GHz range) may be planned by other negotiating parties for the provision of 
other services, such as satellite services, or difficulties may exist with the relocation of 
existing services in this frequency range. 
8 UMTS Forum Report no 1 : A Regulatory Framework for UMTS, 25.06.1997. 
9 Proposal by the Commission for a Decision of the European Parliament and of the Council on the co-ordinated 
introduction of mobile and wireless communications (UMTS) in the Community, COM(1998)58 final, 11.02.1997. 
3.2 Satellite services, including broadcasting 
Developments in satellite technology facilitate the cross-border provision of 
telephony, television, radio, and multi-media services which are all increasingly 
targeted at international markets. Europe should further consolidate its position 
through the development of and participation in satellite projects and seek 
corresponding frequency allocations and usage conditions at WRC-99 and future 
conferences. 
Under several headings, WRC-99 will address frequency requirements for the 
provision of services, including voice telephony, and broadcasting, by means of 
satellites. 
The issue that dominated the negotiations at the WRCs of 1995 and 1997 concerned 
frequency availability for the provision of satellite-based broadband services which 
will allow for high-speed Internet access and video conferencing to take place 
anywhere in the world. The limited amount of frequencies available for the 
provision of satellite broadband services and the huge capital investments 
required to develop such wireless Internet infrastructures will have 
consequences for the level of global competition in this important area of the 
emerging Information Society. Although access to frequencies is an important 
condition for the further development of satellite broadband communications, it 
cannot be a determining factor in itself but should equally take into account the 
economic, trade, and political interests involved in the global provision of such 
strategically important services. 
The value of (planned) satellite personal and broadband systems is expected to 
reach 350 billion ECU.10 Taking the importance of satellite communications into 
account, the fifth Framework Programme for RDT foresees a funding of Information 
Society technologies of 3.3 billion ECU in the period 1998-2002. 
The satellite communications sector has been addressed in a number of Community 
measures, the most recent one of which aims at the rapid introduction of compatible 
satellite personal communications services (S-PCS) in the Community through the 
harmonisation of frequency bands and usage conditions attached to general 
authorisations11 as well as to remove remaining barriers to the free movement of 
terminal equipment. With regard to satellite broadband services, Europe is 
supportive of a positive review of the technical conditions agreed at WRC-97 
which will allow European companies to compete with their systems on the 
global market. 
Satellites are also leading the introduction of digital television and radio 
services in Europe and lead to an expansion of the demand for audio-visual 
products. Digital television offers innovative ways to deliver both traditional services 
as well as new multimedia services. This trend is explored in detail in the 
10 Communication on the EU Action Plan: Satellite Communications in the Information Society, COM(97)91. 
05.03.1997. 
11 Decision No 710/97/EC of the European Parliament and the Council on a co-ordinated authorisation approach in 
the field of satellite personal communications services in the Community, OJ L105, 23.4.97. 
Commission's recent Green Paper on convergence.12 The market for European 
audio-visual products is estimated to be worth 54 billion ECU in 2005 (as compared 
to 32 billion ECU in 1995).13 Community funding for the introduction of advanced 
television services amounted 228 million ECU in the period 1993-1997. In order for 
the European market for audio-visual products to further develop, sufficient 
availability of frequencies needs to be secured. 
Within the ITU/WRC context, countries agree to so-called plans for the use of 
spectrum resources (i.e. orbital slots, 'footprints', frequencies) for the provision of 
broadcast satellite services. Decisions taken in this respect at WRC-97 will now allow 
for the possible deployment of digital systems in the agreed frequency bands and 
generally provide for more competition in this area, which is particularly important for 
pan-European systems. WRC-99 will review to which extent the current assignment 
of spectrum resources among countries is still appropriate or whether modifications 
need to be made to the plans. 
3.3 Aeronautical and satellite-radionavigation services/GNSS 
The need for appropriate balancing between commercial, strategic, and general 
interests by political instances is particularly relevant with respect to aeronautical and 
radionavigation/GNSS services, the frequencies for which are subject to claims by 
commercial telecommunications interests but which are needed to ensure the safety 
and further expansion of such applications in both the commercial domain as well as 
in the context of public interest applications. 
The establishment of a single air transport sector on the basis of free market 
access is one of the Community's main features of its transport policies. Air 
traffic has increased significantly over the years with the result that the Community's 
airspace and airport infrastructures are in need of sufficient frequencies on a non­
interference basis. In conjunction with ICAO (International Civil Aviation Authority), 
the Community is developing new concepts for Air Traffic Management (ATM) but 
concerns exist as to which extent frequencies for aviation are subject to claims 
by, or interfered with other potential users from the commercial (satellite) 
communications industry. WRC-99 will discuss the availability and reliability of 
sufficient spectrum for aeronautical services. 
The Commission Communication on GNSS (Global Navigation Satellite 
Systems)14 estimates the annual world market for GNSS applications close to 50 
billion ECU by 2005. GNSS can promote sustainable mobility, transport efficiency, 
and safety in general. GNSS applications include aviation and vessel traffic 
management, railway control, tracking of dangerous goods, oil and gas recovery, 
identification of fishing grounds. On 17 March 1998, Council endorsed the 
Commission's outline of the European strategy for the development of a trans-
European positioning and navigation network, including the strategy on GNSS, and in 
particular stresses that the needs of GNSS in the area of frequencies and orbits must 
12 Green Paper on the convergence of the telecommunications, media and information technology sectors, and 
the implications for regulation COM (97)623, Brussels 3 December 1998 (see chapters 1 and 2 in particular). 
13 See study by Norcontel - Economic implications of New Communication technologies on the audio-visual 
markets, April 1997 
14 Communication from the Commission: Towards a Trans-European Positioning and Navigation Network, 
including a European strategy for Global Navigation Satellite Systems (GNSS), COM(98)29 final, 21.01.1998. 
10 
be recognised in the relevant international fora. Community funding for the first stage 
of the European component of GNSS is 50 million ECU for the period 1995-1999. 
WRC-99 will review to which extent spectrum reserved for satellite-
radionavigation services can be shared with other services and will address 
the question how much spectrum is needed for the further development of 
GNSS applications. 
Radiocommunications systems for the provision of aeronautical and GNSS 
applications are developed to serve global markets and have both a public interest 
(safety) and a substantial long-term commercial potential. This is however less 
developed than the mass consumer market for mobile and satellite communications 
services. This has resulted in the situation where the safety and strategic interests 
of aeronautical and GNSS communications compete for spectrum with 
commercial telecommunications interests which already fully acknowledge the 
importance of WRCs as evidenced by the strong lobby in this context. It is therefore 
essential to develop long-term European positions on aeronautical and satellite-
radionavigation which ensure the safe use of existing frequency allocations, 
take into account future requirements, and are balanced and proportionate with 
the needs of the commercial radiocommunications sector 
3.4 Earth observation 
The importance of Earth observation applications in Europe should be discussed in 
social, economic, and strategic terms in order to ensure that WRC-99 appropriately 
addresses Europe's frequency requirements in this area. 
The potential social, economic and strategic importance of Earth observation 
is considerable. Earth observation comprises applications in diverse areas such as, 
inter alia, global scale measurements, implementation of environmental and civil 
protection policies, and agricultural policies. The Community is making a substantial 
effort in stimulating Earth observation applications through its RTD programmes and 
spent under the Fourth Framework Programme on RTD around 275 million ECU on 
Earth observation applications and RTD projects. The Fifth Framework Programme 
will include activities on the development of generic Earth observation technologies, 
notably satellite technologies for environmental monitoring and resources. 
The Community and its main collaborators in this area (i.e. EUMETSAT, ESA, 
national weather and space agencies) are keen to ensure that the frequency 
requirements for this use of general interest are secured. Since WRC-99 will 
address frequency requirements for Earth observation applications, the need for, and 
operating conditions of, frequencies for such applications at Community level need to 
be addressed by the relevant players. 
H 
4. PREPARATIONS FOR WRC-99 IN THE COMMUNITY CONTEXT 
In response to the Council Conclusions on WRC-97 of 22 September 1997, which 
were adopted on the basis of the Commission Communication to the European 
Parliament and the Council on the WRC-9715, the Commission has reflected upon the 
results and experience gained at previous conferences and has initiated a number of 
actions to further consolidate Community interests in the WRC process. The overall 
objective of such actions with regard to WRCs is to ensure that WRC decisions 
comply with relevant Community policies and interests and to contribute to an 
appropriate balancing of commercial and general interests in the working out of 
European positions for WRCs which are endorsed by political instances at the 
highest possible level. 
4.1 Compliance of European positions for WRC-99 with relevant 
Community policies 
CEPT will prepare and adopt the common European positions for WRC-99 in 
consultation with the European Radiocommunications Committee (ERC) and the 
European Radiocommunications Office (ERO). Work has been organised in a 
number of project teams dealing with regulatory issues, broadcasting, satellite issues, 
and maritime/radionavigation services. 
In order to ensure that the positions worked out by the frequency and 
telecommunications experts in CEPT comply with Community interests, the 
Community, as represented by the Commission, will participate in the preparatory 
process initiated by CEPT/CPG, in particular as regards providing input on those 
Community policies which depend on the availability of frequencies (see Chapter 3) 
while taking due account of the acquis communautaire. Whereas the Community is 
traditionally represented in CEPT/CPG by Commission representatives responsible 
for telecommunications, and recalling that the WRC-99 agenda comprises issues 
which go beyond telecommunications policy, there may be a need for additional input 
to the CEPT process, in particular as concerns Community policies on broadcasting, 
aviation, satellite-radio navigation, and Earth observation. 
Although the need for appropriate Community input into the CEPT process is 
clear, a further balancing and prioritising of the political objectives to be 
achieved in the area of frequency allocations should be initiated at Community 
level. The Commission therefore regards the provision of input to CEPT as important 
element in achieving a wider objective which entails that frequency requirements for 
the implementation of frequency-dependent Community policies are addressed by 
the relevant market actors and political and technical authorities as part of a 
European long-term strategic spectrum plan with which European harmonisation 
measures in the area of radio frequencies as well as the elaboration of appropriate 
positions for WRCs should comply. This matter will be addressed during a public 
consultation phase the Commission intends to carry out during the course of 1998. 
15 COM(97)304 final, 18.06.1997. 
12 
4.2 Appropriate balancing of radiocommunications interests 
It is necessary that commercial interests, regulatory authorities, scientific and 
professional organisations, and representative consumer and user organisations 
publicly discuss the respective interests at stake at WRC-99 so that commercial and 
general interests can be appropriately balanced in the working out of positions. In this 
context, the Commission and the CEPT/CPG will organise consultation meetings on 
the WRC-99 agenda items, in particular dealing with UMTS, satellite-radionavigation, 
transport and high density fixed services (including high altitude platforms). 
Furthermore, the Commission envisages to address WRC-99 issues in its regular 
contacts with individual or representative organisations (including for small and 
medium-sized enterprises) such as ECTEL and EITIRT (telecommunications 
manufacturers), the UMTS Forum, ETP (European Telecommunications Platform), 
GSM MoU (operators), and with the satellite industry in the context of the Satellite 
Action Plan. The Commission encourages the Member States to use the relevant 
(high-level) advisory bodies set-up by the Commission, such as the Space Advisory 
Group and the High-Level Group on GNSS, to express their positions. In the context 
of the formal relationship of the Commission with the European 
Radiocommunications Office (ERO), ERO will be funded to carry out certain tasks 
with the aim to contribute to the development of European positions for the WRC-99 
through consultation and examination of European and global radiocommunications 
interests. 
In addition to these consultations in the telecommunications area, it is also 
necessary that political and technical instances, such as the responsible 
authorities for telecommunications, transport, defence, RTD, and culture -
whose policies may depend on frequency availability - co-ordinate positions, 
priorities, and objectives to be achieved with all interested parties. This is 
particularly relevant in those cases where varying interests compete for access to the 
same frequency bands, such as mobile satellite applications and satellite-
radionavigation, television broadcasting and satellite broadband applications, Earth 
observation and fixed (satellite) services. Such co-ordination is necessary to uphold 
the European positions to be negotiated and to avoid that bilateral contacts with third 
countries at sector level may undermine the across-the-board European position. 
4.3 Approximation of positions with third countries and regions 
In the changing context of WRCs described in chapter 2.1 above, it is desirable to 
achieve a certain level of approximation of proposals between negotiating parties 
before the start of the WRC in order to avoid that decisions at the conference are 
postponed due to a lack of time or unbridgeable differences in positions. The 
Commission will be involved in bilateral contacts organised with other regional 
telecommunications organisations, such as CITEL, APT, and the Arab and African 
representative organisations. It is particularly important that Europe co-ordinates 
positions with the Arab and African representative organisations since they negotiate 
positions as belonging to the same Region within the ITU/WRC. 
The Commission will also co-ordinate positions with third countries in the context of 
regular bilateral meetings with its main trading partners. In this context, it will be 
important to co-ordinate the objectives to be achieved at WRCs with the countries of 
Central and Eastern Europe, including those engaged in accession negotiations; it is 
noted in this respect that they are all member countries of CEPT/CPG which 
13 
contributes to the harmonisation of approaches taken. An early dialogue with the 
United States and Japan is also supported. WRC matters will also be raised in the 
context of the regular dialogue with third regions (Mediterranean, Asia (ASEM), Latin 
America). 
The approximation of positions should also comprise consultation with relevant 
international organisations affected by frequency allocation decisions, such as ICAO, 
EUROCONTROL, IMO, EUMETSAT, ESA, broadcasting organisations, Earth 
observatories. 
4.4 Appropriate representation of Community interests at WRC-99 
The results of the negotiations of WRCs are expressed in Radio Regulations and 
Appendices. These are attached to the Final Acts of the conference which are signed 
by all the delegates on behalf of and subject to the approval of their respective 
competent authorities. They are applied provisionally pending such approval. WRCs 
therefore result in legally binding international commitments. 
The 15 Member States of the EU negotiate at WRCs in their own right, within the 
framework of the CEPT/CPG. On the basis of its existing observership within the 
ITU/WRC, the Community, as represented by the Commission, has participated at 
the WRCs in 1992, 1993, 1995, and 1997. Furthermore, the Community participates 
in the negotiations in its role as counsellor to the CEPT/CPG. 
Since the Member States do not provide the Commission with a negotiating mandate 
to represent the Community at WRC, and taking into account that the legally binding 
results of WRCs directly affect Community policies, common Community positions 
may need to be established, where appropriate and in accordance with normal 
procedure. The Council Conclusions of 3 February 199216 have stressed in that 
respect that Member States and the Commission will meet on the spot if separate 
Community co-ordination proves necessary. As stipulated in the Commission 
Communication on WRC-97, this could for instance be the case (a) where Member 
States disagree amongst themselves on proposals submitted to the conference which 
affect the Community as a whole, (b) where Member States disagree with other 
CEPT countries on such proposals, (c) where CEPT proposals do not comply with 
Community interests, or (d) where a common Community position can contribute to 
strengthen the CEPT proposals in discussions with third countries. 
It is essential that political agreement is reached on the objectives to be 
achieved with the common European positions to be negotiated, and this may 
happen, where appropriate, both prior to as well as during WRC through the 
establishment of common Community positions. The need for separate 
Community co-ordination in addition to that in the framework of CEPT would be less 
apparent in case the CEPT positions are formally endorsed at the political level in the 
Community, which is currently not the case and which has led to last-minute political 
intervention at the conference itself. This, in turn, affected Europe's across-the-board 
negotiating power. Subject to political support by the Member States for the European 
positions for WRCs, the Commission will contribute to ensure that Community 
interests are duly taken into account. The political support of the Community will 
16 Council Conclusions on the procedures to be followed at the World Administrative Radio Conference (WARC 
1992), 3.2.1992. 
14 
substantially reinforce the negotiating power of Europe vis-à-vis third countries and 
regions. 
The establishment of common European positions and the results to be 
achieved at WRC should also take into account the market access 
commitments made under the GATS17 which was concluded in the context of 
the World Trade Organisation (WTO). As indicated in the Commission 
Communication on the WRC-97, it is should be avoided that certain countries use the 
ITU or a WRC to reformulate or re-interpret their GATS market access commitments. 
At WRC, the Community should take into account to which extent the impact WRC 
decisions may have on market access commitments made under the GATS. This 
should apply to both the GATS commitments taken by the Community and those 
taken by the main trading partners. Within the Community, the 113 Committee is an 
appropriate forum to discuss international trade aspects, and thus it should be used, 
where appropriate, to discuss and co-ordinate the Community position on such 
issues in the context of WRCs. 
5. CONCLUSION 
This Communication highlights the political importance of the international 
negotiations on the harmonised use of radio frequencies and underlines the necessity 
for full Community involvement in the WRC process. 
Within the Community, policies are pursued which depend upon the availability of 
radio spectrum, such as in case of the traditional telecommunications sectors of 
mobile and satellite communications, but also with regard to aeronautical and 
satellite-radionavigation services, broadcasting, and Earth observation, the frequency 
requirements for which have come under increased pressure from commercial 
telecommunications interests backed by national political instances. Taken together, 
however, these policies make a substantial contribution to the economy of Europe 
and are the building blocks for the emerging Information Society and they are of 
major importance from a public policy point of view. It is therefore essential to relate 
the technical decisions taken at WRCs to such broader policy aspects. 
WRC-99 will have to consider important technical issues of relevance in the broader 
Community context: 
• Will there be sufficient and suitable spectrum available to implement 
European policies for the development of mobile communications into mass-
market, mobile, multi-media communications? 
• How much spectrum will be available, and under which conditions, for the 
provision of global satellite broadband services and satellite broadcasting 
services and how will the technical conditions affect the level of competition at 
the global market? 
• To which extent and on what basis will frequencies be available for services 
which are essential for socio-economic, political, and strategic purposes, 
17 Notably in the context of the WTO/GATS Agreement on Basic Telecommunications Services, which entered into 
force on 5 February 1998. This agreement currently involves 72 countries, representing well above 90% of the 
global telecommunications market. 
15 
such as concerns satellite-radionavigation, aeronautical mobile, and maritime 
mobile services, and Earth observation? 
• To which extent will spectrum be available for the development of new 
radiocommunications systems? 
The legally binding commitments which WRCs result in are the backbone for the 
further development of radiocommunications markets and directly impact on a 
number of Community policies which are of major economic and strategic 
importance. On the basis of past experience and in accordance with the Council's 
views on WRCs, the European Commission seeks to ensure that the European 
positions for WRC comply with Community interests, that such positions appropriately 
balance commercial and general interests, and that an approximation of European 
positions with third countries and regions and relevant international organisations is 
part of the preparatory process. Appropriate representation of Community interests at 
WRCs will remain one of the priorities of the Commission. 
The proposed line of action will contribute to .the consolidation of the Community 
position at WRCs. However, further political discussions are needed to set priorities 
to be achieved in the context of a coherent European long-term strategic spectrum 
plan. This would allow to address the need for European harmonisation measures in 
the area of radio frequencies and the development of positions for WRCs in a 
comprehensive manner and on a longer term basis. 
16 
ANNEX 
GLOSSARY 
APT 
BSS 
CEPT 
CITEL 
CPG 
DTH 
ECP 
ECTEL 
EITIRT 
EO 
ERC 
ERO 
ESA 
ETC 
ETSI 
EU 
EUMETSAT 
EUROCONTROL 
FDD 
FPLMTS 
GLONASS 
GMPCS MoU 
GNSS 
GPS 
GSM 
GSO FSS Asia-Pacific Telecommunity 
Broadcast Satellite Service 
European Conference of Postal and Telecommunications 
Administrations 
Commission of Inter-American Telecommunications 
Administrations 
Conference Preparatory Group of CEPT 
Direct-to-Home 
European Common Proposal, to be adopted by CEPT/CPG 
Association of the European Telecommunications and 
Professional Electronics Industry 
European Information Technology and Telecommunications 
Industries Roundtable 
Earth observation 
European Radiocommunications Committee of CEPT 
European Radiocommunications Office of CEPT 
European Space Agency 
European Telecommunications Platform 
European Telecommunications Standardisation Institute 
European Union 
European Meteorological Satellite 
European Organisation for Air Traffic Control 
Frequency Division Duplex, transmission technique used in 
wide-band cellular environments (see W-CDMA) 
Future Public Land Mobile Telecommunications Systems, now 
called IMT-2000 
Global Orbiting Navigation Satellite System of the Russian 
Federation 
Global Mobile Personal Communications Services 
Memorandum of Understanding 
Global Navigation Satellite System 
Global Positioning System of the United States 
Global System for Mobile Communications 
Geostationary Orbit Fixed Satellite Service 
m 
IALA 
ICAO 
IMO 
IMT-2000 
ITU 
MoU 
MSS 
NON-GSO FSS 
RTD 
S-PCS 
TD-CDMA 
TDD 
TEN 
TG1 
VTMIS 
W-CDMA 
WRC 
UMTS 
UTRA International Association of Lighthouse Authorities 
International Civil Aviation Organisation 
International Maritime Organisation 
International Mobile Telecommunications with 2000 referring to 
the expected date of introduction of the service 
International Telecommunications Union 
Memorandum of Understanding 
Mobile Satellite Service 
Non-Geostationary Orbit Fixed Satellite Service 
Research & Technological Development 
Satellite Personal Communications Services 
Time Division/Code Division Multiple Access 
Time Division Duplex, transmission technique of applications 
using TDMA (Time Division Multiple Access) radio interface 
Trans-European Network 
Task Group 1 of the CEPT/ERC 
Vessel Traffic Management and Information Systems 
Wide-band Code Division Multiple Access 
World Radiocommunications Conference 
Universal Mobile Telecommunications System 
UMTS Terrestrial Radio Access 
AT 



ISSN 0254-1475 
COM(98) 298 final 
DOCUMENTS 
EN 15 16 10 11 
Catalogue number : CB-CO-98-337-EN-C 
ISBN 92-78-36451-7 
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