COMMISSION OF THE EUROPEAN COMMUNITIES 
COM(94) 492 final 
Brussels, 23.11.1994 
COMMUNICATION TO THE 
EUROPEAN PARLIAMENT AND THE COUNCIL 
ON THE CONSULTATION 
ON THE GREEN PAPER ON 
MOBILE AND PERSONAL COMMUNICATIONS 
Proposal 
for a Council Resolution 
on the further development 
mobile and personal communications 
in the European Union 
(presented by the Commission) 

EXECUTIVE SUMMARY 
THE INFORMATION SOCIETY: A POLITICAL CONTEXT FOR MOBILE POLICY 
The mobile and personal communications sector has been brought to the forefront of the debate on 
the Information Society. The report on "Europe and the global information society"' identified 
mobile communications as a necessary building block of the Information Society and advised on 
the strengthening of its potential. 
That report has helped to catch the popular imagination, defining the debate on the changes which 
will revolutionise Europe's economy, business, industry and the lives of every citizen. This 
revolution is not limited to one continent, but is global in scope and presents common challenges 
which have attracted political attention at the highest level throughout the World. Access to 
information, markets and customers anywhere in the World as well as the ability to stay in touch, 
will be central to commercial success and will also offer many benefits to Europe's citizen's in their 
every dav lives. 
The Bangemann Group Report builds on the direction given by the Commission's White Paper on 
Growth. Competitiveness and Employment (COM(9-2>) 700 final). The White Paper highlighted 
the importance of moving forward towards the Information Society as one the essential elements to 
help Europe to enjoy continued growth, whilst remaining competitive on global markets and 
continue to expand employment. 
At the same time, progress in this area cannot be at the expense of the more vulnerable in society. 
The emerging policies must strengthen cohesion in the Union and take full account of the impact 
on society as a whole and, in particular, the impact on employment, training, education and health 
care. They must exploit the possibilities which mobile technologies now offer to develop universal 
and affordable access to new services throughout the Union. 
MOBILE AND PERSONAL COMMUNICATIONS IN THE INFORMATION SOCIETY 
Mobile communications is currently the fastest growing area within the telecommunications sector. 
Over the last few years it has experienced unprecedented growth in subscriber numbers, especially 
in cellular mobile telephony. Europe has now more than 11 million cellular mobile telephony 
users, 3 million more than at the time of compilation of the Mobile Green Paper. There are also 
more than 8 million users of other mobile communications services, in particular, paging and so-
called priyate mobile radio systems. It is forecast that by the year 2000, there could be nearly 40 
million users in the European Union, and with the growing expansion into personal 
communications services (PCS), up to 80 million users by the year 2010. 
The market is being driven by rapid advances in technology, by commercial opportunities and by 
falling prices. Subscriber growth rates during the last few years in Member States with high 
growth cellular telephony markets (car telephones and hand-held portables) have varied from 30 to 
40%. Recent analysis shows that this trend is withstanding the current economic recession. 
Hurope and the global inf.rnu: ioi: society, Rccommcnu-Johr U -.he European Council, 26 May 1994 
The mobility offered by these new technologies and new services will be central to the development 
of Information Society. It will make the benefits of that society more easily accessible to every 
citizen and every business throughout the Union. 
The need for communications 'on the move' is becoming a normal part of business life with users 
ranging from the multinational executive to the local plumber or builder. Over the next few years, 
as prices continue to fall, and as the latest technologies become well established, mobile 
communications are expected to make significant inroads into the mass consumer market. 
As recognised in the Mobile Green Paper, mobility has a particular significance in the broader 
context of the European Union. On the one hand, mobility is at the very heart of the objective of 
the Union for the free movement of goods, people, services, and capital. On the other hand, the 
prospect of European-wide advanced mobile communications networks and services will help to 
turn the Information Society from vision to reality. In parallel with the integration of voice, data» 
and pictures within new multi-media and on-line services, a personal communications environment 
is emerging in which traditional distinctions between fixed and mobile networks and services will 
disappear. Mobile technologies will help traditional operators to deliver communications services 
more cheaply into every home, whilst today's mobile operators will evolve alongside the traditional 
télécoms companies to provide nation-wide and Europe-wide networks and services. 
THE ECONOMIC POTENTIAL OF THE MOBILE AND PERSONAL COMMUNICATIONS SECTOR 
The creation now of the right framework for mobile communications will strengthen the 
contribution to growth and employment which mobile communications is already making in the 
Union. The Bangemann Group cited, for example, the case of Germany where 30,000 new jobs 
have been created in the mobile sector, and forecast the creation of 100,000 jobs within the Union 
if similar approaches are followed. 
The growth of mobile communications will have a significant impact on the whole of the 
telecommunications industry. Mobile services themselves will continue to experience rapid 
growth, both in terms of subscriber numbers and corresponding traffic. This growth will in turn 
stimulate traffic over the fixed networks, with mobile networks continuing to deliver much of their 
traffic volumes to the fixed network, thereby increasing the overall use of telecommunications. 
With the pan-European digital mobile system, GSM, the European Union has established a world-
leading technology in this key area of the future global communications market. The Union must 
now build on this success. 
Additionally, the market potential for personal communications services is huge. While the 
maximum density for fixed wireline telephones is not expected to exceed substantially an average 
penetration of some 50% of the population, (i.e. approximately one connection per household, plus 
business use), personal communications penetration has the ultimate potential to reach near 80% 
of the population (i.e. up to one connection per adult). 
Mobile communications also has an important role to play in stimulating massive private and 
public investment into telecommunications networks and. services, and in contributing to 
maintaining and developing service in the less developed or peripheral regions of the Union. 
THE GLOBAL AIMS OF THE GREEN PAPER 
The global aims the Green Paper were : 
-* to permit the development of a Union-wide market for mobile services, equipment, and 
terminals , 
-> to identify common principles where required, for achieving this objective, in relation to 
the provision of mobile infrastructure, the development of mobile networks and services, 
and the supply and operation of mobile terminals ; 
-* to promote the evolution of the mobile communications market into mass personal 
communications services, with particular emphasis on pan-European services ; 
-* to facilitate and promote the emergence of trans-European networks and services in the 
sector, and to ensure that the sector's development is achieved in a manner consistent with 
the public interest. 
The Green Paper represented a major step within the global phased approach to the 
telecommunications sector set by the Council Resolution of 22nd July 1993 for the future balanced 
relationship of fixed and mobile networks and services in the Union and for the maintenance and 
furthering of universal service in the sector for the European citizen. 
In relation to universal service* the Green Paper recognised that regulatory and market conditions 
currently mean that mobile communications services are today aimed a niche, premium-priced 
market and so do not yet play a significant role in the provision of universal service or act as a 
substitute for the fixed phone in every home. At the same time, the Green Paper recognised that 
"mobile communications also has an important role in stimulating massive private and public 
investment into telecommunications networks and services, and in contributing to maintaining and 
developing service in less developed or peripheral regions of the Union". 
THE MAIN ISSUES ADDRESSED IN THE GREEN PAPER 
The Green Paper raised questions fundamental to the future development of the sector concerning: 
• How competitive should mobile markets be and how should mobile networks and services be 
licensed (award procedures / licence conditions)? 
• What role will service providers play and what should be the rules for interconnection between 
different networks and between networks and service providers? 
• Should mobile networks be able to build their own or use third party fixed infrastructure 
within their networks?, and 
• What steps are needed help the transition from niche market mobile communications today to 
mass market personal communications tomorrow? 
At the same time, comments were invited in a range of areas linked to on-going policy actions 
which are important to the overall development of the sector. These included access to third 
county markets, data protection and privacy, health and safety issues, the environment, 
standardisation, and consumer protection. 
THE CONSULTATION ON THE G RE EN PAPER AND SUMMARY OF THE RESULTS 
The public consultation period was initiated with the adoption of the Green Paper on 27 April 
1994 and continued through to the middle of September. The Commission received more than 70 
written comments from European and national organisations, companies and individuals active in 
the communications field, both inside and outside the European Union. In addition a series of 
consultation meetings resulted in a substantial contribution being made to the work of the 
Commission. This included meetings involving fixed network and mobile operators; the service 
provider industry, users, equipment manufacturers, consumer groups and with representatives of 
the trade unions in the communications industry. More than 250 organisations participated either 
orally or in writing. 
The results of the consultation are summarised below to show the areas of consensus and those 
areas where, whilst divergent views were expressed, general trends could be identified. 
SUMMARY OF THE AREAS OF CONSENSUS 
• the need for the abolition of exclusive and special rights2; 
• the approach to national licensing procedures and licence conditions; 
• the importance of service providers as a new way of providing télécoms services. 
• the need for effective procedures to make frequencies and numbers available in time 
particularly in relation to new digital services, where lack of agreement could threaten their 
development; 
• the need for number aloocation on fair, transparent and non-discriminatory grounds; 
• the evolution strategy towards the personal communications environment 
SUMMARY OF KEY AREAS WHERE DIVERGENT VIEWS WERE EXPRESSED 
• The future regulation of service provision. 
In particular, (i) should there be an implied obligation on network operators to deal with all 
service providers in order to promote the emergence of pan-European services, and (ii) whether 
a Code of Conduct for service providers should be voluntary or mandator)'? 
The views expressed reflected national approaches to regulation and experience of independent 
service provision. 
• Infrastructure. 
Should mobile network operators have the right to use of own or third party infrastructure 
(including using microwave links)? Should they be able to directly connect to other mobile or 
fixed networks nationally or in other Member States? 
There was broad support for early action on liberalisation and direct interconnection, with the 
exception of a majority of existing fixed network operators. The approach should, however, 
be integrated into the global approach to be set out in Green Paper on infrastructure 
liberalisation3. 
• Interconnection. 
Different views were expressed about the future role of the Open Network Provision (ONP) as 
the basis for the regulatory framework in the sector, and, in particular, the extent to which 
regulatory intervention should take precedence over commercial negotitiations. 
2 
3 In practice, mobile services are increasingly provided on a competitive basis with, for example, users having a 
choice between at least two digital mobile telephony systems in almost every Member State, with firm plans 
underway for a second network in the few Member States where this is not yet the case. 
See, Green Paper on the liberalisation of telecommunications infrastructure and cable television networks: part 1 
Principle and Timetable, COM(94) 440, 25.10.94. 
Even where there was no consensus, the general trends suggest that positions are possible. 
In relation to service provision, the development of that layer of the market should be kept under 
review, in particular, to see whether legislative measures prove themselves necessary. 
As regards infrastructure and direct interconnection, the Commission agrees that the use of 
alternative infrastructure by mobile networks must be treated in the context of the Green Paper on 
Infrastructure (COM(94) 440) and this communication contributes to the general debate on that 
issue4, without prejudging its outcome. 
Finally, in relation to the future pattern for interconnection, the issues are closely linked to the 
proposed adaptation of the ONP framework to a competitive environment. Once again, this 
Communication makes a useful contribution to that debate. 
Despite the absence of a complete consensus on all issues, the Commission believes its is possible 
to put forward a comprehensive set of proposals for the sector. These are summarised below. 
ACTION REQUIRED FOR THE FUTURE REGULATORY ENVIRONMENT 
On the basis of the consultation, a comprehensive programme of action can now be proposed. 
Some proposals are specific to the mobile sector. Others such as those for infrastructure, 
interconnection and the future role of ONP are integrally linked to on-going work preparing the 
télécoms regulatory environment for the full liberalisation of voice telephony services. All of these 
actions must at the same time be viewed in the context of the Information Society and the 
Commission's Action Plan on Europe's Way to the Information Society. 
PRIORITY AREAS FOR SECTOR SPECIFIC ACTION 
• Introduction of competition. All remaining special and exclusive rights should be abolished 
by J January 1996 and the competition rules should be fully applicable to the sector. 
• Development of a Code of Conduct for Service Providers. 
• Ensuring service provider access to the market. 
• Promoting the availability of frequency needed for new digital services and for operators to 
combine different technologies within one network and one service package for users; as well 
as targeted programmes to support market entry of emerging mobile technologies. 
• Allowing after 1 January 1998, mobile network operators to provide public voice services via 
the fixed network and allowing fixed network operators to use radio-based technologies. 
• Establish European level licensing of satellite PCS services. 
The Green Paper proposes the "immediate removal of restrictions on the use of own or third party infrastructure 
authorised in Member States to provide links, including microwave links, within the mobile network for 
the provision of mobile communications set-vices". 
PRIORITY ACTION LINKED TO GENERAL REFORM OF TELECOMMUNICATIONS IN 1998 
• Removal of restrictions on the use of alternative infrastructure within mobile networks, in line 
with policy agreed within the context of the Green Paper on Infrastructure. 
• Regulation of interconnection through ONP and the Treaty competition rules, within the 
context of an Interconnection Directive and the proposals for the future adaptation of ONP to 
be tabled by 1 January 1998. 
• Establisliment/amendment of rules for the mutual recognition of equipment, licenses and data 
protection and privacy, within the framework of current proposals. 
ADDITIONAL ACTION REQUIRED IN DEVELOPING THE OVERALL REGULATORY AND 
TECHNOLOGICAL ENVIRONMENT 
• Establishing schedules for standardisation, numbering and frequencies, as well as timetables 
for binding decisions on implementation by the Member States. 
• Addressing the international agenda, in particular, in relation to access to third country 
markets and the development of new technologies within the overall context of the global 
debate on "information highways". 
• Developing a comprehensive approach towards health and safety; the environmental impact of 
mobile communications and towards employment trends and retraining. 
• Actively supporting through Community research programmes and other actions the 
development of advanced mobile communications systems, and in particular, the evolution 
towards universal mobile telecommunications system5 (UMTS). 
CONCLUSION 
The broad consultation on the Green Paper on Mobile and Personal Communications has provided 
an opportunity for all interested parties to assist in shaping the emerging regulatory framework. 
This Communication sets out the results of that consultation process in detail and proposes 
concrete action to implement the conclusions drawn. 
Confusion should be avoided between UMTS, which is a generic name of an emerging family of technologies 
and the political goal of universal service. 
EXECUTIVE SUMMARY ...;. 2 
I INTRODUCTION 13 
II THE CONSULTATION PROCESS 14 
III COMMENTS RECEIVED ON THE MAIN POSITIONS PROPOSED IN THE 
GREEN PAPER: 15 
III. 1 Licensing conditions for mobile network operators 15 
III. 1.1 Abolition of special and exclusive rights 15 
III. 1.2 Future licensing procedures and licence conditions 15 
III. 1.3 Duration of licences 16 
III. 1.4 Reduced license conditions for Private Mobile Radio Systems 17 
III. 1.5 The application of mutual recognition to equipment and licences 17 
III.2 Service Provision 17 
111.2.1 Independent service provision alongside direct service provision 17 
111.2.2 The need for a fair competitive environment 18 
111.2.3 The removal of restrictions on innovative service combinations 18 
111.2.4 Code of Conduct for service providers 18 
111.2.5 Obligation to meet reasonable requests to deal 19 
111.2.6 The role of Roaming in the future environment 19 
III. 3 Interconnection 20 
111.3.1 ONP as the basic framework for interconnection, with priority given 
to commercial agreement between the parties 20 
111.3.2 Ensuring fair competition within interconnection arrangements 20 
111.3.3 Transparency for interconnection terms 20 
111.3.4 Interconnection charges 20 
111.3.5 Standards for interconnection 21 
111.3.6 Interconnection for private mobile radio systems 21 
111.4 Infrastructure 21 
III 4.1 The right to self-provide or use third-party infrastructure and the 
right of direct interconnection 21 
III.4.2 Sharing infrastructure 21 
111.5 Radio-frequencies 22 
9 
111.5.1 The importance of frequencies in the new environment 22 
111.5.2 Support for the basic Union approach involving the ERC 22 
111.5.3 Balance of spectrum between telecommunications, broadcasting and 
defence use 22 
111.5.4 Priority areas for frequency policy 22 
II 1.6 Numbering 23 
111.6.1 The importance of numbering in the new environment 23 
111.6.2 Support for the basic Union approach to numbering 23 
111.6.3 Priority areas for numbering policy 23 
111.7 The Evolution towards personal communications services 24 
111.7.1 The concept of Personal Communications 24 
111.7.2 The role of service providers in the personal communications 
environment 24 
111.7.3 The combination of technologies in the personal communications 
environment 24 
111.7.4 Entry of mobile operators into the fixed network and the use of 
wireless technology by fixed network operators 25 
111.7.5 Licensing* in the personal communications environment 25 
IV POSITIONS TAKEN ON THE MEASURES REQUIRED FOR 
IMPLEMENTATION AND THE ACTION LINES FOR THE DEVELOPMENT 
OF A FAVOURABLE ENVIRONMENT 25 
IV. 1 Data protection and privacy 25 
IV.2 Health and Safety 26 
IV.3 Monitoring the impact on employment of the developing mobile market 26 
IV.4 Standards 26 
IV.5 Trans-European Networks and services, and satellite-based personal 
communications 27 
IV.6 Access to third country markets 27 
IV.7 The issue of fraudulent use of mobile networks 27 
IV.8 The issue of a single regulatory authority 27 
IV.9 procedures for Consultation 28 
V EVALUATION BY THE COMMISSION 28 
V. 1 Areas of general consensus 28 
10 
V.2 General positions on the future development of the sector 28 
V.3 Action required for the future regulatory environment 30 
VI PRIORITIES FOR ACTION 30 
VI. 1 Sector-specific action 30 
VI. 1.1 Introduction of competition 30 
VI. 1.2 Development of a Code of Conduct for Service Providers 30 
VI. 1.3 Ensuring service provider access to the market 31 
VI. 1.4 DCS 1800 licences and access to GSM extension bands 31 
VI. 1.5 Public access/Telepoint applications and DECT-based systems 31 
VI. 1.6 Allowing mobile network operators to provide public voice service 
via the fixed network 32 
VI. 1.7 Ending restrictions on fixed network operators 32 
VI. 1.8 Targeted programmes to support market entry of emerging mobile 
technologies: TFTS, ERMES, TETRA, DSRR 32 
VI.1.9 Monitoring issues of fraud 33 
VI. 1.10 European licensing of satellite PCS services 33 
VI. 1.11 Consultation procedures 34 
VI.2 Actions linked to general reform of telecommunications (required by 1 
January 1996) 34 
VI.2.1 Removal of restrictions on the use of alternative infrastructure 
within mobile networks 35 
VI.2.2 Regulation of interconnection arrangements within the framework of 
Open Network Provision and Treaty competition rules 35 
VI.2.3 Amendment of Directive 91/263/EEC on mutual recognition for 
terminal equipment 36 
VI.2.4 Adoption of proposals pending in the field of mutual recognition of 
licensing 36 
VI.3 schedules for standardisation, numbering and frequencies, and the schedule 
for adoption.of binding decisions on implementation 37 
VI.3.1 Standardisation 37 
VI.3.2 Frequencies.. 37 
VI 3.3 Numbering 38 
VI.4 The international agenda 39 
VI.4.1 Third country access 39 
11 
VI.4.2 International co-ordination on evolution towards UMTS 39 
VI.4.3 The role of personal communications in Information Highways 40 
VI.5 Safeguarding the public interest 40 
VI.5.1 Development of a global Action Programme for Health and Safety 
in the mobile sector 40 
VI.5.2 On-going assessment of the environmental impact of the 
development of mobile and personal communications 40 
VI.5.3 On-going monitoring of employment trends and training needs in the 
communications sector 41 
VI.5.4 Data protection and privacy 41 
VI.6 Universal Mobile Telecommunications Services 42 
VI.6.1 Continued support for Community research programmes into 
advanced mobile communications and telematics 42 
VI 6.2 Support for the work of the ETSI Special Mobile Group and 
promotion of a UMTS MoU 42 
VI.6.3 Investigation of potential of satellite-based UMTS 43 
VII CONCLUSIONS AND TIMETABLE FOR ACTION 44 
ANNEX 1 : BRIEF OUTLINE OF THE GREEN PAPER ON MOBILE 
AND PERSONAL COMMUNICATIONS 47 
ANNEX 2: LIST OF CONTRIBUTORS TO THE CONSULTATION ON THE 
1994 GREEN PAPER ON MOBILE AND PERSONAL 
COMMUNICATIONS 49 
ANNEX 3: LIST OF ACRONYMS.... 51 
PROPOSAL FOR A COUNCIL RESOLUTION ON THE FURTHER DEVELOMENT 
OF MOBILE AND PERSONAL COMMUNICATIONS IN THE EUROPEAN 
UNION 52 
12 
I INTRODUCTION 
Mobile communications has developed over recent years into a key area of growth in the 
Union. Europe has now more than 11 million cellular mobile telephony users, 3 million more 
than at the time of compilation of the Mobile Green Paper. There are also more than 8 
million users of other mobile communications services, in particular paging and private 
mobile radio systems. It is forecast that by the year 2000, there could be as many as 40 
million users in the European Union, and, with the growing expansion into personal 
communications services (PCS), up to 80 million users by the year 2010. 
In the light of the potential mass market for personal communications, a coherent policy 
framework for the sector, and for the development of trans-European networks, must be 
promoted in the context of the Union's global strategy on growth, competitiveness and 
employment. 
It is against this background that the Commission adopted on the 27 April 1994 its Green 
Paper on Mobile and Personal Communications6, referred to hereinafter as "the Green 
Paper". 
In the meantime, the mobile and personal communications sector has been also brought to the 
forefront of the debate on the information society. The report on "Europe and the global 
information society"7 identified mobile communications as a necessary building block of the 
information society and advised on the strengthening of its potential. Both the Commission's 
response to the Report, the so-called Action Plan, and the reaction of the European Council 
to it, emphasised the importance of mobile communications in the development of networks 
and services and announced that it would present a report on the results of the consultation 
phase on the Green Paper by the end of 1994. 
This Communication constitutes that report. It should be read against the background of the 
Green Paper which sets forth a coherent set of proposed positions and provides substantial 
detail on the technical, market and regulatory aspects of the sector8. 
A brief outline of the Green Paper is shown in Annex 1 for ease of reference. 
Towards the Personal Communications Environment : Green Paper on a common approach in the field of mobile 
and personal communications in the European Union (COM(94)145 final, 27.04.1994). 
Kurope and the global information society, Recommendations to the European Council, 26 May 1994 
The Green Paper also includes a detailed Glossary of terms used in the sector and referred to in this 
Communication. 
13 
10 
11 THE CONSULTATION PROCESS 
The aim of the consultation was to obtain the views of all interested players on the future 
regulatory framework in the area of mobile and personal communications. 
The public consultation period was initiated with the adoption of the Green Paper on 27 April 
1994 and continued through to the middle of September. The Commission received more 
than 70 written comments from European and national organisations, companies and 
individuals active in the communications field. These included contributions from many of 
the Telecommunications Organisations (TOs) and mobile operators in Europe, as well as 
from the European Telecommunications Network Operators association; from individual 
service providers and national representative associations; from large and medium-sized 
users of telecommunications services and from user associations; as well as from 
manufacturing associations and individual equipment suppliers. Written contributions were 
also received from the CEPT's European Radiocommunications Committee (ERC) and its 
European Committee for Telecommunications Regulatory Affairs (ECTRA) ; from the trade 
unions, and from the European Data Protection Commissioners. In addition comments were 
received from the GSM9 and ERMES10 Memoranda of Understanding. Further comments 
were received from organisations and companies based in other European countries, 
including the members of the European Economic Area, and from North America. 
Formal opinions on the Green Paper have also been adopted or are in the process of being 
adopted by the European Parliament, the Economic and Social Committee and the 
Committee of the Regions, as well as by the Joint Committee of Telecommunications which 
brings together management and unions in the Telecommunications Organisations (TOs) 
within the Union. 
In addition to these written comments, a series of consultation meetings resulted in a 
substantial contribution being made to the work of the Commission. These meetings started 
with a general gathering held in June for all participants in the sector (fixed and mobile 
network operators, service providers, equipment manufacturers, consumer organisations and 
European bodies active in the fields of numbering, licensing, frequencies and data protection) 
which was attended by more than 130 organisations, companies and associations. 
Subsequently separate meetings were held for the TOs and mobile operators; for the service 
provider industry and for representatives of the trade unions in the communications industry. 
In addition to these consultation meetings, the Commission received presentations from the 
GSM MoU and from consumer organisations. More than 250 organisations participated 
either orally or in writing. 
Consultations at a European level were complemented by those held at a national level within 
a number of Member States. 
The Commission also worked closely with the High Level Committee of National Regulatory 
Authorities, in accordance with Council Resolution 93/C 213/01". 
A list of the hearings and of the written comments received is set out in Annex 2. 
Global System for Mobile communications ; see Green Paper. 
European Radio Messaging System (paging) ; see Green Paper 
Council Resolution of 22nd July 1993 on the review of the situation in the telecommunications sector and the 
need for further development in mat market, '93/C 213/01 ; OJ C213/1, 6 August 1993. 
14 
IN COMMENTS RECEIVED ON THE MAIN POSITIONS PROPOSED IN THE 
GREEN PAPER 
In the following paragraphs of this section, the main comments received during the 
consultation process are summarised according to the positions set out in the Green Paper. 
For those wishing further details, reference should be made to the full comments which are 
available on request. 
111.1 LICENSING CONDITIONS FOR MOBILE NETWORK OPERATORS 
III. 1.1 Abolition of special and exclusive rights 
There was widespread support for the abolition of exclusive and special 
rights in the mobile communications sector. Remaining exclusive and 
special rights were seen by many contributors as holding back the 
development of the sector, in particular, by limiting competition, keeping 
prices higher and restricting the range of mobile service available. 
There was general acceptance that, subject to market demand, a minimum of 
two licences should be granted for each mobile technology. Additionally, 
strong support was expressed for the recommendation that at least one 
licence for DCS 180012 systems should be granted in each Member State and 
that access to DECT13 be made available. 
///. 1.2 Future licensing procedures and licence conditions 
In relation to the future licensing procedures and the framework for licensing 
conditions, there was strong support for open, nondiscriminatory and 
transparent licensing procedures. 
In order to ensure a fair competitive environment, it was seen as essential 
that both incumbent operators (particularly, where they were also operating 
a fixed network or were affiliated to the fixed network operator) and new 
entrants be subject to equivalent licensing conditions, though where 
appropriate, a new entrant's licence could be adapted to redress any specific 
advantages gained by the incumbent resulting from earlier entry into the 
market. This extended to the need for equality in the duration of licence 
terms granted. 
These comments on equality included calls for clear time limits to be set for 
the completion of the assessment of bids by national regulatory authorities; à 
requirement that, where possible, competing mobile systems should 
commence operation at the same time and that no operators should 
automatically qualify for a new licence. 
12 Standard for micro cellular communications systems developed by ETSI, building on the GSM standard : see 
Green Paper. 
13 Digital European Cordless Telecommunications ; new digital cordless standard developed by ETSI ; see Green 
Paper. 
15 
In relation to the method of awarding licenses, there was overwhelming 
support from all sections of the industry for the use of comparative bidding. 
The use of lotteries found virtually no support, whilst auctioning was 
criticised as providing little guarantee of eventual service quality as well as 
leading to higher prices for equipment and services for the user . 
Nevertheless, a number of Member States still put forward the view that, 
given the scarcity of the frequency resource, it was appropriate to place a 
commercial value on the use of that resource. 
Divergent views were expressed with regard to the grounds on which 
licences might be refused. Most mobile operators, service providers and 
users emphasised the need for competition and so favoured only a limited 
number of non-economic grounds on which licences might be restricted, 
although a number of comments stressed the statement in the Green Paper 
that these could include an assessment of viability of particular networks and 
the quality of service.I4 
III 1.3 Duration of licences 
A particular point of concern raised by many existing mobile and fixed 
network operators was the need for licence duration periods to be of 
sufficient length, not only to allow operators to recoup investment costs, but 
also to stimulate continuing network investment during the term of the 
licence, including the adaptation of existing networks to new technologies. 
Some comments even suggested that as a general principle licences should be 
of unlimited duration, subject to appropriate safeguards allowing termination 
in the case of misconduct. On the other hand, some mobile operators and 
service providers with experience of competitive markets urged the 
Commission to take stronger action, especially where current licences have 
been granted under monopoly or duopoly conditions, to assess whether 
effective competition was being established and, if this was not the case, to 
act appropriately. 
There was general agreement that the length of both operating licences and 
frequency licences should be the same. 
hi the Green Paper, these limited conditions were identified as essential requirements and public service 
specifications in the form of trade regulations. 
Essential requirements to be taken into account concern in particular the effective use of the radiofrequency 
spectrum and electromagnetic compatibility requirements, as well as security of network operation, maintenance 
of network integrity, interoperability of services in justified cases, data protection in justified cases, and user 
safety and safety of employees. 
Public service requirements concern conditions of permanence, availability and quality of the service. The 
safeguarding of permanence, availablity and quality of the service may imply fulfilling conditions relating to the 
technical competence and financial resources of the licensee. 
16 
///. 1.4 Reduced license conditions for Private Mobile Radio Systems 
Contributors emphasised the need for implementation of the Green Paper 
proposals to take full account of the future role of private mobile radio 
(PMR) services. In particular, contributors with experience of North 
American markets and equipment industry emphasised the importance of 
PMR15. The flexible regulatory and licensing approach proposed in the 
Green Paper was generally welcomed. 
///. 1.5 The application of mutual recognition to equipment and licences 
There was support for the further practical application of the principle of 
mutual recognition for mobile terminal equipment. A specific point raised 
was that in relation to equipment, the principle of mutual recognition should 
not be confined to radio equipment used for roaming (GSM, DECT), but 
should also extend to equipment which can be used in common collective 
frequencies (such as DSRR16 equipment). It was urged that procedures 
applying to the preparation of relevant TBRs and CTRs17 should be 
accelerated. 
There was also general agreement with the statement in the Green Paper that 
the principle of mutual recognition would be of only limited application in 
the field of mobile services, (Mobile satellite communications, PMR 
systems, local systems in border areas) because of the physical limitations 
imposed by frequency spectrum. 
III.2 SERVICE PROVISION 
III. 2.1 Independent service provision alongside direct service provision 
A large number of contributions recognised the value of both independent 
and integrated service provision as parallel means of developing the mobile 
market and extending customer choice as regards services and tariffs. 
1 ? Private radiocommunications systems usually operate on a local or regional basis from a single base station and 
using a single or small number of radio channels. Communication is generally limited to a single (closed user) 
group. 
One commentator compared the situation in Europe with the USA. In Europe in 1993, there were 5.5 million 
PMR users compared with 17 million in the USA. 
16 Digital Short Range Radio, new digital standard developed by ETSI in the Private Mobile Radio 
communications field ; see Green Paper. 
17 Common Technical Regulations for type approval of terminal equipment according to the procedures of 
Directive 91/263/EEC. TBRs provide the technical basis for CTRs, on the basis of ETSI standards (ETS). 
17 
A number of TOs and mobile operators stressed the importance of service 
provision directly integrated into their network activities. Concerns were 
raised that any approach to service provision should not favour one 
particular distribution channel over another. The role of direct retail sales of 
mobile services in achieving high penetration levels in Scandinavian 
countries was stressed. On the other hand, independent service providers 
suggested that they were placed at a serious competitive disadvantage vis-à-
vis integrated service provision by mobile operators, stressing the 
importance of achieving a fair competitive environment to overcome this 
disadvantage. 
///. 2.2 The need for a fair competitive environment 
To overcome the general concerns about fair competition, many mobile 
operators, service providers and users stressed the need for sufficient 
transparency in relation to operators having an integrated service provision 
arm, in particular, to avoid the risk of cross-subsidies. A number of 
independent service providers went further and suggested that a truly 
competitive environment could only result from full structural separation of 
network operation from service provision. A specific competition issue 
raised by a number of contributors was the current pattern of substantially 
subsidising customer acquisition through cheap equipment prices. 
It was also suggested that full equality should extend to the relationship 
between a TO and its service provision arm, alongside any requirements for 
mobile operators to ensure arm's length dealings with integrated service 
providers. 
///. 2.3 The removal of restrictions on innovative service combinations 
In relation to the Green Paper's proposal to remove restrictions on the 
combination of different services by a single service provider, this was 
generally supported and recognised as an important driver of innovative 
service provision. 
///. 2.4 Code of Conduct fan. service providers 
There was strong support for mobile service providers not to be subject to a 
licensing requirement. 
The development of a Code of Conduct at a European level, setting out the 
rights and duties of service providers with regard to both the operator and 
the end user was strongly supported. It was felt that such a Code should be 
drawn up by all interested parties in the sector. 
Comments focused on whether the Code of Conduct should be mandatory or 
voluntary. Many fixed and mobile network operators were concerned about 
the value of a voluntary Code of Conduct. At the same time, many other 
comments emphasised the need for a flexible approach to service provision 
tailored to differing national regulatory traditions. This would prevent a 
disproportionate regulatory burden being placed on the service provision 
industry. 
18 
A particular concern was raised by Europe's Data Protection Commissioner 
who suggested that any voluntary Code of Conduct should not undermine 
binding national legal provisions in the field of data protection. 
Furthermore, obligations in Community legislation relating to the essential 
requirement of data protection and privacy must cover both network 
operation and service provision, given the volume of data they process. 
///. 2.5 Obligation to meet reasonable requests to deal 
A. major focus of discussion was on the proposal in the Green Paper that in 
order to promote pan-European services and the innovative combination of 
different mobile (and eventually fixed) services, network operators should be 
required to meet reasonable requests to sell their services, with the 
reasonableness of any refusal being subject to appeal before the relevant 
national regulatory authority. 
Some contributors, including some service providers, TOs and mobile 
operators, expressed support for such an obligation. Nevertheless, many 
who commented on this issue placed priority on the commercial autonomy of 
network operators in choosing how their mobile services should be 
distributed. They emphasised the need for flexibility and saw any obligation 
as being placed firmly within the limits of competition law and normal 
commercial practice. Once again, the successful penetration of mobile 
services through retail outlets in Northern Europe was highlighted. 
/// 2.6 The role of Roaming in the future environment 
There was general agreement amongst operators, service providers and users 
for the need to support roaming as a means of ensuring pan-European 
service provision, and that roaming should be encouraged in a way which 
promotes user choice. 
A number of comments emphasised the need, in line with the call in the 
Green Paper for full recognition of roaming arrangements, to ensure the 
acknowledgement of the commercial implications of any agreement through 
which a mobile operator distributed its system's SIM cards through a service 
provider in one Member State, i.e. that the service provider would then be 
entitled to sell those cards anywhere in the Union, subject to the normal rules 
of competition law. 
19 
111.3 INTERCONNECTION 
///. 3.1 ONP as the basic framework for interconnection, with priority given to 
commercial agreement between the parties 
There was broad support for the use of the ONP framework as a regulatory 
mechanism, providing it was modified in line with Council Resolution 
93/C213/0118, to take account of an increasingly competitive environment. 
In any event the position in the Green Paper which gave priority to 
commercial agreement within the framework provided by those general 
principles was welcomed. The involvement of NRAs would be confined to 
situations where such agreements could not be reached. 
However, at least one operator, with experience of North American markets, 
suggested that giving priority to commercial agreements would be an 
insufficient mechanism to expand the mobile market, in view of the fixed 
network or dominant mobile operator's stronger bargaining position. 
///. 3.2 Ensuring fair competition within interconnection arrangements 
Many contributors stressed the importance of the principle of non­
discrimination and the need for sufficient transparency in the relationship 
between TOs and their mobile subsidiaries, and between mobile operators 
and their service provision arms. 
A pai cular concern raised by certain mobile operators and independent 
service providers was the need to obtain fair access to the TO's data 
processing capability and its IN functions. However, many TO's believed 
that interconnection obligations should not go beyond those already 
envisaged in current Community legislation. 
A number of fixed network operators indicated their view that 
interconnection for mobile services must ensure, where appropriate, that new 
market entrants make a fair contribution to the provision of universal 
service. 
///. 3.3 Transparency for interconnection terms 
In order to allow regulatory supervision, support was expiessed by a number 
of operators and service providers on the need for interconnection 
agreements to be available at kust to the NRA, and that greater transr arer cy 
might be desirable. 
///. J. 4 Interconnection charges 
In relatnn to interconnection ch^rger, it was argu;d tha these must lead to 
efficient allocation of resources, be sustainable, promote efficient entry and 
operation and allow efficient pricing decisions. 
Ix Council Resolution of 22 July 1993 on tlie review ot axe situation in the telecorrLnunications sector and tlie need 
for the further development in that market, OJ C213/01, 6.8.93. 
20 
III. 3.5 Standards for interconnection 
In relation to the standards for interconnection interfaces, there was general 
support for the positions in the Green Paper and, in particular, the emphasis 
on voluntary standards in the future environment. 
/// 3.6 Interconnection for private mobile radio systems 
There was substantial support for a less restrictive approach to the 
interconnection of PMR systems both with each other and with tlie public 
network. 
II 1.4 INFRASTRUCTURE 
Tlie issue of infrastructure was a central element in the discussions on the Green 
Paper. 
///. 4. J The right to self-provide or use third-party infrastructure and the right of 
direct interconnection 
There was considerable support drawn from throughout the sector for the 
twin principles of immediate liberalisation of mobile communications 
infrastructure and for the removal of restrictions on direct interconnection. 
This was seen as a key means in overcoming current bottlenecks in leased-
line supply and in allowing mobile operators control over their cost 
structures, promoting lower prices and more rapid innovation. It was 
perceived to be likely to lead to lower prices for users. 
It was emphasised by some that action in this area must go hand-in-hand 
with the development of an effective interconnection regime and that the 
proliferation of own infrastructure should not lead to inefficient operation, 
particularly with regard to the use of the radio spectrum. 
At the same time, a number of comments made by the existing fixed network 
operators indicated their opposition to the discussion of infrastructure issues 
in the mobile area, outside the context of general discussions on 
infrastructure regulation. The prime concern of these TOs was that such 
moves on infrastructure and interconnection may undermine TOs' ability to 
fund current investment in their networks and to maintain universal service. 
Other TOs, particularly those with experience of markets where 
infrastructure had been liberalised, did not share this concern. 
///. 4.2 Sharing infrastructure 
The issue was generally recognised as extremely important, for both 
technical and environmental reasons. Some TOs believed that infrastructure 
sharing should be a matter for commercial agreement alone, and must ensure 
no deterioration of the services concerned, whilst many others in the industry 
accepted the principle of mandatory site sharing based on the overriding 
grounds of environmental policy or public safety. 
21 
il 1.5 RADIO-FREQUENCIES 
///. 5.1 The importance of frequencies in the new environment 
Tlie availability of adequate frequency spectrum on a pan-European basis 
was seen as fundamental to the expansion of mobile and personal 
communications. A clear and predictable environment for frequencies was a 
necessary prerequisite against which investment strategies could be planned. 
Such an environment must take account of both existing technologies and 
new systems, balancing frequency allocation with market demand. 
III. 5.2 Support for the basic Union approach involving the ERC 
There was general support for the approach to frequencies set out in the 
Green Paper, placing reliance on the expertise of the ERC/ERO19. 
Nevertheless, concerns remained about the ability of the current procedures 
to keep pace with the market and to produce binding, implemented decisions 
within the Union. Some support was expressed for a single regulator}' 
authority to deal with common resource management on a Europe-wide 
basis. 
There was support for the application of ONP principles to the process of 
frequency allocation, including the requirement for charges for frequencies to 
be cost-oriented. The question of the financing of the removal of existing 
users was also raised. 
///. 5.3 Balance of spectrum between telecommunications, broadcasting and 
defence use 
A specific widely-expressed concern was the need for a fair balance in 
spectrum management policies between the competing interests of 
communications, broadcasting and defence. The GSM MoU called for gains 
achieved through greater spectrum efficiency from broadcasters (through 
emerging digital technologies) to be applied for mobile use:o. 
///. 5.4 Priority areas for frequency policy 
Whilst there was general agreement on the priorities identified for 
frequencies in the Green Paper, the main views put forward reflected the 
particular interests of the contributors concerned. 
A new approach to tlie coordination of radiofrequencies in the Community, Communication from tlie 
Commission conceniing a proposal for a Council Decision on the implementation by Member States of measures 
concerning radiofrequencies (COM(93)382, 10.9.1993). 
Attention was drawn to substantial frequency efficiency gains possible in e.g. the broadcasting field. 
The example was cited of current national broadcasting channels using traditional analogue techniques which 
require between 50-70 MHz in contrast to digital technologies which would require just 8 MHz to deliver 4 
channels 
22 
The GSM MoU, for example, called for tlie release of GSM extension bands 
by January 1996, and for the common designation of DCS 1800 bands after 
completion of current ERC work. Further, there was strong support for 
increasing PMR services current allocation which was seen as inadequate to 
meet the potential of such services21. Tlie basic requirement for PMR was 
seen to be 100 MHz in the band below 1 GHz. 
111.6 NUMBERING 
///. 6.1 The importance of numbering in the new environment 
In common with the comments on frequencies, there was general agreement 
on the central role of numbering in the creation of a competitive mobile 
market, and the need for co-ordination at a European level to provide a 
stable and predictable environment. A number of contributors raised the 
issue of the cost of numbering changes as a major factor in determining the 
degree of change to be implemented at a European level. 
///. 6.2 Support for the basic Union approach to numbering 
The basic approach to numbering proposed in the Green Paper, using the 
expertise of ETO/ENF via Community mandates, was generally supported. 
Given the impact of numbering on the competitive environment, there was 
veiy strong support from mobile operators, service providers and users for 
the application of the principles of non-discrimination, transparency and 
proportionality in numbering allocation through independent authorities. 
Numbering policy must also take full account of the data protection issues 
raised by mobile numbers in view of the fact that they may constitute a 
personal identifier. 
///. 6.3 Priority areas for numbering policy 
Whilst there was general support for harmonisation of directory and 
emergency service numbers, there was less certainty concerning the need to 
harmonise numbering for value added services, Intelligent Network services 
or for basic mobile network access codes. 
Support was expressed both by mobile operators and service providers for 
work to advance the development of number portability. This was seen, 
particularly by independent service providers, as central to rebalancing the 
market power enjoyed by mobile network operators. 
Comments from a number of mobile operators and service providers 
supported the call for a European Telephony Numbering Space in order to 
speed new service deployment, whilst other contributors stressed the cost 
involved in any re-organisation. 
:i 'Hie example was cited of an average 50 MHz allocation in Europe compared with 100 MHz in the USA, in 
addition to a wide variety of frequency bands and channel separations which prevented efficient operation in 
Europe or economies of scale. 
23 
m.7 THE EVOLUTION TOWARDS PERSONAL COMMUNICATIONS SERVICES 
///. 7.1 The concept of Personal Communications 
The vision of personal communications based on the full integration of fixed 
and mobile technologies and services put forth in the Green Paper was 
broadly supported. Contributors stressed that the current development of 
network intelligence and the increasing cost-effectiveness of mobile 
communications outside urban areas show that the market is already moving 
in this direction. 
With regard to UMTS22, several comments both from operators and the 
manufacturing industry stressed their vision of such services as the 
combination of mobile and fixed network communications, via different 
technologies, delivered through single terminals and heavily reliant on full 
interconnection and interoperability of the different delivery systems 
concerned. The regulatory focus must be on establishing the right conditions 
for such new technologies to emerge, rather than on attempting to pick a 
winning technology. Other comments saw UMTS as a more unified 
technology concept which required a long term vision and common 
development efforts. 
/// 7 2 The role of service providers in the personal communications environment 
The role of service providers in developing Personal Communications 
Services was widely accepted. Though many integrated and independent 
service providers continue to maintain a national focus, others saw this type 
of innovation as central to the development of pan-European services 
///. 7.3 The combination of technologies in the personal communications 
environment 
The promotion of cordless PBXs, CT2 and DECT technologies were seen as 
important elements in the new PCS environment. In particular, the 
restrictions on the combination of DECT and GSM and on the combination 
of DCS 1800 and GSM should be rapidly removed to stimulate personal 
communications services, and in particular, to allow full in-house and out­
house mobility. 
Universal Mobile Telecommunications System, a technology and standard for third generation mobile digital 
systems, currently under development with ETSI and by the RACE programme. UMTS should support full 
personal communications services, delivered over a combination of fixed and mobile networks. 
Work in the framework of tlie International Telecommunications Union (ITU) in this field is carried out under 
Future Public Land Mobile Telecommunications System (FPLMTS). 
24 
///. 7.4 Entry of mobile operators into the fixed network and the use of wireless 
technology by fixed network operators. 
Many mobile operators and some TOs expressed support for the proposal 
that after 1998 entry for mobile operators into the fixed market should be 
possible. At the same time, TOs were supportive of the possibility' of the use 
of radio-based technology in their networks, subject to frequency 
availability, notably as a means of extending universal service. Nevertheless 
certain mobile operators were reluctant to see fixed network use of mobile 
extensions at too early a stage if it resulted in an unfair distortion of 
competition. 
///. 7.5 Licensing in the personal communications environment 
In relation to the licensing of future systems, including third-generation 
technologies, support generally focused on co-ordinated national licensing 
for introduction on a pan-European basis of satellite-based services or third-
generation technologies. A specific concern was that any pan-European 
approach to licensing should not reduce the overall number of players in the 
market and so limit competition. Some contributors supported an 
experimental approach to licensing, particularly, in relation to satellite PCS 
systems which were regional by nature. It was also suggested that the 
specific needs of the aviation sector require a pan-European rather than 
national approach to licensing. 
IV POSITIONS TAKEN ON THE MEASURES REQUIRED FOR 
IMPLEMENTATION AND THE ACTION LINES FOR THE DEVELOPMENT OF 
A FAVOURABLE ENVIRONMENT 
The main action lines and flanking measures proposed in the Green Paper were generally 
endorsed in tlie consultation, subject to the various comments set out above. The emphasis in 
the Action Lines on health and safety and environmental issues were widely supported. 
However, a range of specific issues arose from the general discussions of both the Action 
Lines and the flanking measures, aimed at maintaining the public interest as a more 
competitive environment emerges. 
IV. 1 DATA PROTECTION AND PRIVACY 
A number of comments, notably those from the European Data Protection 
Commissioners, stressed that without effective data protection and safeguards 
guaranteeing privacy, public acceptance of Union-wide mobile and personal 
communications networks and services cannot be secured. Action in this area, and, in 
particular, the rapid adoption of pending Commission proposals in this area23 were 
seen as urgent priorities. 
Amended proposal for a Council Directive on the protection of individuals with regard to the processing of 
personal data and on the free movement of such data, COM(92)422, 15 December 1992 ("the general data 
protection directive"). 
Amended Proposal for a European Parliament and Council Directive concerning the protection of personal data 
and privacy in the context of digital telecommunications networks, in particular the Integrated Services Digital 
Networks (ISDN) and digital mobile networks, COM(94)128 final, OJ 288, 13.06.1994. 
25 
Two specific issues were also raised, namely, the strengthening of data protection's 
status as an essential requirement, and secondly, the need for adequate safeguards to 
be put in place to prevent unauthorised interception of satellite communications 
(particularly of uplinks) in the context of the new low earth orbiting systems. Finally, 
the European Data Protection Commissioners stressed their view that emerging 
standards for third-generations systems must allow the cost-free option of 
communicating without being obliged to identify oneself. 
IV.2 HEALTH AND SAFETY 
Comments addressed the fundamental need to ensure that mobile systems and 
equipment should be operated safely by both employees and users. The proposal by 
the Commission to establish a comprehensive action programme to accelerate 
necessary safety standards, and to monitor the issue of possible health hazards through 
electromagnetic exposure was welcomed. 
Support was also expressed for continuing work in relation to limiting the effects of 
electromagnetic exposure. 
I V.3 MONITORING THE IMPACT ON EMPLOYMENT OF THE DEVELOPING MOBILE 
MARKET 
The trade unions in the telecommunications sector stressed the need for the 
Commission to study the actual and potential effects of the emerging mobile market on 
employment, in particular, the effects on employment amongst the TOs. 
Consideration should be given on the basis of such study to promoting re-deployment 
and retraining within the sector. 
IV.4 STANDARDS 
The further development of standardisation for mobile and personal communications 
services and equipment was fully supported. Action was urgently needed to continue 
the development of CTRs and interim-CTRs in order to support the mutual 
recognition of terminal equipment type approvals. Additionally, the extension of 
mutual recognition through bilateral agreements was identified by both mobile 
operators and the equipment industry as an important trade goal for the Union. 
Drawing on the experience of GSM, many contributions stressed the importance of 
adequate funding for testing equipment and procedures for GSM Phase II and other 
emerging technologies. 
Two further concerns raised in the Consultation related to the need for a solution to 
the role of intellectual property rights in the context of the work of ETSI. Secondly, 
the GSM MoU stressed the problems encountered in selling GSM technology world­
wide on the basis of different encryption standards. Both issues were seen as requiring 
a political solution. 
Specific concerns relating to radio equipment were raised by the ERC and the GSM 
MoU in the context of Directive 91/263/EEC. These related in particular to the need 
for rapid change procedures for TBRs and procedures for type approval of 
accessories. Other issues raised concerned mutual recognition of type approval and 
certification procedures with third countries. 
The standardisation process should also focus on new PMR standards, with one 
organisation of business users suggesting the elevation of CT2 from an interim ETS to 
a full ETS. 
26 
I V.5 TRANS-EUROPEAN NETWORKS AND SERVICES, AND SATELLITE-BASED 
PERSONAL COMMUNICATIONS 
Several commentators stressed the potential role of mobile services in developing the 
Information Society and welcomed the acknowledgement in the Bangemann Group 
Report on Europe and the global information society of GSM as a successful 
implementation of the Trans-European Network concept. 
The future satellite-based personal communications systems, including the so-called 
Low Earth Orbit Satellites (LEOs) systems drew special attention, as well as the need 
to secure a strong European role in these systems. 
I V.6 ACCESS TO THIRD COUNTRY MARKETS 
There was general support for the need to ensure open and comparable access to third 
country markets. There was considerable concern about regulations in other regions 
which prevented market access, particularly in North America. Given the global 
character of GSM services, fair competition at a European level would not be 
sufficient for its world-wide success, and priority had to be given to the on-going 
GATTAVTO negotiations. 
Key tests of this policy would be the ability of the European industry to participate in 
the current US satellite-based PCS proposals and the possibility of European 
technology being used in the PCS services currently being licensed in the United 
States 
Whilst many contributors felt that allowing the possibility of ownership restrictions in 
Europe were important in achieving a more open market, a number of comments, 
particularly but not exclusively from European mobile operators with substantial 
foreign ownership, believed that these trade objectives could be best achieved by 
avoiding the possibility of nationally-imposed ownership restrictions. 
I V.7 THE ISSUE OF FRAUDULENT USE OF MOBILE NETWORKS 
Many service providers and some operators raised concerns over the issue of bad 
debts, credit and fraudulent use of mobile networks and equipment. Whilst these 
issues were seen as being primarily of national concern, and by some as a matter for 
commercial safeguards in agreements between operators and service providers, they 
were also identified as having clear European implications in relation to 
interconnection, obligations to deal, and the proposed Service Provider Code of 
Conduct, as well as new data protection rules. 
I V.8 THE ISSUE OF A SINGLE REGULATORY AUTHORITY 
A number of contributors, picking up on the recommendations of the Bangemann 
Group Report, argued strongly for a single regulatory agency at a Union level which 
could manage common resources (such as frequency and numbering) and which could 
ensure a consistent approach in national implementation of the Union regulatory 
framework. 
27 
I V.9 PROCEDURES FOR CONSULTATION 
Many comments stressed the need, in line with existing Union policy, for all actors in 
the sector to be involved in key future decisions, such as the drawing up of a Code of 
Conduct for service providers, and future frequency and numbering decisions. The 
equipment industry proposed the creation of a consultative forum, bringing together all 
those active in the sector to provide input into the regulatory process. 
EVALUATION BY THE COMMISSION 
On the basis of the comments and its analysis of the submissions, the Commission considers 
that the main principles and objectives set forth in the Green Paper have found broad 
support. On this basis the Commission considered it possible at this stage to : 
- identify areas of general consensus amongst all market participants; 
-. set out general positions on the future development of mobile and personal 
communications in the Community which are supported by a broad range of parties; 
- identify priority actions required for the development of the future environment. 
This is set out below. 
V. 1 AREAS OF GENERAL CONSENSUS 
The Commission has found from the consultations that: 
-» there is widespread support for the abolition of exclusive and special rights in the 
mobile communications sector; 
-» there is strong support for open, transparent, and non-discriminatory licensing 
procedures ; 
-• the vision of the personal communications environment based on the full 
integration of fixed and mobile technologies and services was broadly supported, 
allowing licence holders to adapt to emerging technologies as the market demands; 
-• the role of service providers in developing personal communications services, 
particularly on a pan-European basis, was widely accepted; 
-» the timely availability of adequate frequency spectrum on a pan-European basis 
was seen as fundamental to the expansion of mobile and personal communications 
sector, to provide for a stable and predictable environment; 
-» there was general agreement on the central role of numbering in the creation of a 
competitive mobile and personal communications market and there was wide 
support for number allocation through independent authorities on the basis of 
transparent, non-discriminatory and proportionality-based principles; 
-» general support was received for co-ordinated licensing for the introduction on a 
pan-European basis of satellite based services and third generation systems. 
V.2 GENERAL POSITIONS ON THE FUTURE DEVELOPMENT OF THE SECTOR 
Based on the consultations, the Commission considers: 
28 
-* There is strong recognition of the role of ONP in the regulation of the mobile 
communications sector and the need for the modification of the ONP framework, 
in line with Council Resolution 93/C213/01 to take account of the increasingly 
competitive environment, as the regulatory mechanism for interconnection tc 
ensure fair competition with priority given to commercial agreement between 
parties; 
-• There is strong emphasis placed on the importance of non-discrimination and 
sufficient transparency in tlie relationship between the mobile operators and the 
fixed network operators and between the mobile operators and their service 
provision arms, and the requirement to strictly apply competition rules. 
-• The important role of the regulatory authorities in dispute resolution and the 
definition of guidelines to ensure a common approach throughout the European 
Union is broadly recognised; 
-> On the issue of service provision, there are a number of issues where broad 
support was voiced, while there were others on which consensus is currently not 
possible: 
-> there was support for the definition of a harmonised set of the minimum 
requirements for a Code-of-Conduct for service providers, setting out the 
rights and duties of the service provider with regard to both the operator and 
the end user, by all interested parties in the sector; 
-> the need to encourage roaming as a means of ensuring pan-European service 
provision and as a means that allows a rich variety of user choices and 
innovative services was emphasised by a large number of parties; 
-» there was general importance placed on the removal of restrictions on the 
combination of different services by service providers as an important driver 
of innovative service provision, both national and Europe-wide; 
-» as regards an obligation on mobile network operators to meet reasonable 
requests to deal with service providers, service providers themselves 
supported the importance of such an obligation, particularly to create the 
right conditions for pan-European services provision and the innovative 
combination of different mobile (and eventually fixed) services. Mobile 
operators placed priority on commercial autonomy in choosing how their 
services should be distributed. They emphasised that any agreement had to 
be placed within the limits of competition law and normal commercial 
practice. 
- Finally, with regard to infrastructure: 
-> there is strong recognition of the need for the establishment of a clear regime 
on the right to self-provision of infrastructure or use of third-party 
infrastructure and the right of direct interconnection for mobile operators ; 
However, there was disagreement in how far such a decision could be taken 
outside the general context of the discussions on liberalising infrastructure. 
-> it is considered important to set out clear guidelines establishing the 
conditions and criteria under which infrastructure sharing is justified or 
should be mandatory from an environmental or technical point of view. 
29 
v.3 ACTION REQUIRED FOR THE FUTURE REGULATORY ENVERONMENT 
On the basis of the comments and the consensus achieved, the Commission finds that 
the priorities for the implementation of the Green Paper should be defined at a Union 
level along the following lines : 
- actions specific to the mobile sector; 
- actions in line with the general reform of the telecommunications sector; 
- schedules for standardisation, numbering and frequencies, and for the adoption of 
binding decisions on implementation; 
- the international agenda; 
- safeguarding the public interest; 
- Universal Mobile Telecommunications Services. 
These priorities are set out below. 
VI PRIORITIES FOR ACTION 
VI.1 SECTOR-SPECIFIC ACTION 
VI. 1.1 Introduction of competition 
The mobile and personal communications sector will be one of the most 
important areas of growth in the telecommunications scene over the next 
decade. For its prosperous development, the liberalisation of the sector is 
regarded as essential. 
All remaining exclusive and special rights in the sector should be abolished 
as soon as possible through full application of Community competition rules, 
and with amendment of Directive 90/388/EEC24 where required. 
These measures should be completed before 1st January 1996. 
VI. 1.2 Development of a Code of Conduct for Service Providers 
A set of minimum requirements, describing the rights and duties of service 
providers, needs to be defined, with participation of all interested parties in 
the sector. These minimum requirements should form the basis of a Code-of-
Conduct for service providers, in line with the positions proposed in the 
Green Paper. 
The Code of Conduct framework should be in place before 1st January 
1996. It should be subject to bi-annual review, including an examination as 
to whether the protection of consumer interests can be sufficiently 
safeguarded by voluntary application of this code. 
24 Commission Directive of 28th June 1990 on competition on tlie markets for telecommunication services 
(90/388/l-EC ; OJ L 192/10,24.7.1990). 
30 
VI. J. 3 Ensuring service provider access to the market 
The vast majority of comments stressed the role of service providers for the 
further development of the mobile and personal communications sector. 
In line with the positions of the Green Paper, service providers, whether 
independent or integrated into mobile network operations, should have full 
commercial freedom to offer a combination of services provided under 
different mobile licences as well as the ability to provide services in different 
Member States, subject only to the provisions of the Treaty competition 
rules. 
On the issue of whether there should be an obligation for mobile network 
operators to deal with reasonable requests from service providers, the 
Commission continues to consider this to be a important principle for 
supporting service innovation and pan-European service provision. 
Nevertheless, in the light of the comments received during the consultation 
process, priority should be given at this stage to commercial agreement. 
This position should be subject to the evolution of the market and be 
examined in the context of the periodic bi-annual reviews of the services 
market mentioned under -VI.1.2. 
VI. J. 4 DCS 1800 licences and access to GSM extension bands 
In order to allow the development of a Union-wide market for DCS 1800, 
Member States should allocate at least one licence for operating mobile 
systems according to the DCS 1800 standard as soon as possible, at the 
latest after adoption of an ERC decision on the allocation of DCS 1800 
frequencies and prior to 1st January 1998. 
To allow the exploitation of the full potential of the GSM/DCS 1800 system 
family25, existing restrictions on GSM licensees regarding access to DCS 
1800 frequencies, or on DCS 1800 licensees concerning access to GSM 
extension bands, should be abolished at the latest by 1st January 1998. 
Allocation should be subject to frequency availability and strict scrutiny 
under the Treaty competition rules. 
This is in line with the general Green Paper position proposing that mobile 
network operators should be allowed to combine different mobile services, 
provided under different licences and/or on the basis of different 
technologies/standards, that no restrictions should be introduced into new 
licences in this regard and that restrictions in existing licences should be 
lifted. 
VI. 1.5 Public access/Telepoint applications and DECT-based systems 
Prior to 1st January 1996, Member States should allocate licences for public 
access /Telepoint applications, in particular for systems operating according 
to the DECT standard. 
According to the GSM MoU Comments, GSM should be seen as a system family comprising GSM phase 1, 
GSM phase 2, GSM phase 2+, DCS 1800 and the DCS 1900 concept. 
31 
In order to promote the rapid take up of personal communications services 
on a broad services platform, existing restrictions on combinations of DECT 
and other mobile technologies/systems under existing licences should be 
abolished before 1st January 1996. 
In particular, GSM/DCS 1800 network operators should have the right to 
install and operate DECT systems and to connect them to their networks 
without additional operating or spectrum licences26, subject only to scrutiny 
under competition rules. 
VI. 1.6 Allowing mobile network operators to provide public voice service via the 
fixed network 
In line with the Green Paper positions, mobile network operators or 
independent service providers should be able to provide public voice services 
via the fixed network, once public voice provision via the fixed network is 
liberalised. 
At the latest, this should be in accordance with the schedule for full 
liberalisation of public voice services established in Council Resolution 
93/C213/01, namely 1st January 1998, with, where justified, additional 
transition periods of up to five years for Spain, Ireland, Greece, and 
Portugal, and two years for Luxembourg, subject to the conditions which 
may be agreed for such licences concerning universal service obligations or 
sharing in the financing of such obligations, and subject to the Treaty 
competition rules. 
VI 1. 7 Ending restrictions on fixed network operators 
In parallel and in accordance with the Green Paper, any restrictions on 
public fixed network operators from entering wireless and mobile fields, 
other than those justified according to the Treaty competition rules, should 
be lifted in order to allow full combination of fixed and mobile services, and 
thus give full opportunity for the development of personal communications 
services. 
This implies that such operators should not be prohibited ab initio from 
bidding directly or indirectly for licences for any mobile communications 
service. Existing prohibitions on such bids should be abolished at the latest 
by the deadline set for full liberalisation in Council Resolution 93/C213/01, 
namely, 1st January 1998, with additional transition periods for the Member 
States referred to above, subject to strict scrutiny of market impact under the 
Treaty competition rules. 
VI. 1.8 Targeted programmes to support market entry of emerging mobile 
technologies: TFTS, ERMES, TETRA, DSRR. 
Specific programmes should be initiated to support, where required, new 
mobile technologies currently being implemented in the marketplace. These 
programmes should include reviews examining the current state of market 
introduction and the level of support currently encountered, with a view to 
enhancing the world market potential of the systems and technologies in 
question, and proposing any measures required. 
According lo comments by the GSM MoU, tins will encouiage the implementation of services according to the 
DHCT/GSM interworking standard specified by ETSI SMG at present. 
32 
The Commission intends to award study contracts to investigate the status of 
TFTS, ERMES, TETRA, and DSRR27 mobile technologies. The studies 
will in particular report on the licenses awarded, the perceived market 
potential in Europe and the rest of the world, products developed or being 
developed, and the availability of frequency spectrum in the Member States 
of the Union. 
It is considered that these actions will facilitate the planning of future 
measures aimed at accelerating market introduction of these emerging mobile 
technologies. 
VI. 1.9 Monitoring issues of fraud 
The fraudulent use of mobile services and equipment has emerged as a major 
concern during the consultation. 
The Commission intends to monitor closely this phenomenon and propose 
where required measures including a requirement on network operators to 
implement the Equipment Identification Register (EIR) for digital terminals 
and adding Physical Serial Numbers (PSN) to analogue terminals. Any 
measures taken in this area must not restrict the further development of 
roaming. 
VI. 1.10 European licensing of satellite PCS services 
While the licensing of mobile systems was generally seen to best be carried 
out at a national level, and co-ordinated licensing was considered in many of 
the comments as a sufficient measure to ensure coherence for a future 
UMTS, there was wide recognition that satellite-based personal 
communications services should be seen as a special case, in view of their 
Eu rope-wide coverage. 
Given that licences for satellite based personal communications systems, 
including the so-called Low Earth Orbit Satellites (LEOs) systems, are due 
to be allocated in the United States by Spring 1995, there exists an urgent 
requirement to establish a co-ordinated position with regard to licensing of 
such systems in the Union. 
The Commission considers that in this case, there is a clear case for 
proceeding at the Union level, in order to avoid unco-ordinated action and to 
ensure a strong European role in these future global systems. 
Full account should be taken of the global aspects of these systems, with 
licensing applications to be open to existing and future global systems, on a 
reciprocal basis. 
Tl'TS : the new digital Terrestrial Flight Telephone System (in-flight telephone for passengers), developed by 
ins i 
ERMES :European Radio Messaging System, the new digital paging standard developed by ETSI 
TETRA Trans European Trunked Radio, the new digital standard developed by ETSI for applications for 
private use on a shared basis, such as by closed user groups and use e.g. by police forces (of particular 
importance also in the context of the implementation of the Schengen agreement). 
DSRR :l)igital Short Range Radio, new digital standard developed by ETSI in the private mobile radio field. 
For details see Green Paper. 
33 
Procedures should therefore be developed for licensing satellite-based 
personal communications systems on a common basis at the Union level, 
with the opening of the licensing process by 1st January 1996 at the latest. 
VI. 1.11 Consultation procedures 
Many comments emphasised the importance of strengthening consultation 
procedures in the sector. Included in some of the comments were proposals 
for the creation of a permanent consultative forum, bringing together all 
those active in the sector. 
Such proposals are entirely consistent with the call for strengthening 
partnership-building in the telecommunications sector contained in the 
Commission's Communication of 19 July 1994 in response to the report on 
Europe and the global information society.28. The Commission would 
therefore support the creation of such a European Mobile and Personal 
Communications Services Forum. 
VI.2 ACTIONS LINKED TO GENERAL REFORM OF TELECOMMUNICATIONS (REQUIRED 
BY l JANUARY 1996) 
A number of required actions are linked to the general reform of telecommunications 
regulations required by 1st January 1996 in accordance with Council Resolution 
93/C213/0129. These concern general issues, such as the future structure of regulatory 
coordination between Member States, and the issue of a future Single Regulatory 
Authority raised in a number of comments, as well as a number of specific measures. 
The measures concerned are considered below. 
28 "Europe's way to the information society. An action plan. Communication from the Commission, COM(94)347, 
19 July 1994. 
29 Council Resolution of 22nd July 1993 on the review of the situation in the telecommunications sector and the 
need for further development in that market (93/C 213/01 ; OJ 213/1, 6 August 1993). 
34 
VI. 2.1 Removal of restrictions on the use of alternative infrastructure within 
mobile networks 
The issue of free choice of infrastructure required for mobile network 
operators was one of the core issues raised during the consultation. 
Tlie Commission continues to consider the freedom for mobile network 
operators to operate and develop their network for the purpose of the 
activities allowed in their licence or authorisations, including a free choice of 
fac-ilities used to support such activities, as essential for ensuring an 
appropriate economic base for such operations. 
In response to the report on Europe and the global information society, and 
as announced in its Communication of 19th July 1994, the Commission 
produced the first part of the Green Paper on infrastructure30, proposing, 
inter alia, the full liberalisation of infrastructure used for mobile 
communications. 
VI. 2 2 Regulation of interconnection arrangements within the framework of Open 
Nerwork Provision and Treaty competition rules 
The Commission has put forward a Communication on the future adjustment 
of Open Network Provision to a fully competitive environment31. The 
Communication proposes a new Open Network Provision Interconnection 
Directive in parallel with the implementation of the competition rules, to set 
out in further detail the principles and the framework for promoting 
interconnection. 
Key orientations would be : 
- commercial negotiation to be the basis for interconnection agreements; 
- the National Regulator)' Authorities to play a role in laying down 
principles for negotiation; 
- common principles to be applied for interconnection charges. 
Two comprehensive studies are currently being carried out for the 
Commission on accounting and interconnection32. The studies will be 
submitted to a broad public consultation following their publication in 
October 1994, such consultation to be completed in December 1994. 
Proposals for an interconnection Directive will be tabled by the Commission 
before 1st January 1996. 
Green Paper on liberalisation of telecommunications infrastructure and cable TV networks (part I). 
Present status and future approach for open access to telecommunicatins networks and services (Open Network 
Provision), Communication from the Commission to the European Parliament and the Council (to be published). 
"Cost allocation and the general accounting principles to be used in the establishment of access charges in the 
context of telephone liberalisation in the EC" , Arthur Andersen & Co, Turin, Italy. 
"Interconnection in the context of Open Network Provision", Wissenschaftliches Institut fur 
Kommunikationsdien.sie GmbH, Bad Honnef, Germany 
35 
Also anticipated is the amendment of Directive 90/387/EEC33, in particular 
adjustment of its scope, in order to ensure the general application of the 
principles of equality of access, transparency, non-discrimination and 
proportionality, which are particularly relevant in relation to licence award 
procedures. 
In parallel, the Commission intends to intensify its scrutiny of interconnect­
ion agreements under the Treaty competition rules 
VI. 2.3 Amendment of Directive 91/263/EEC on mutual recognition for terminal 
equipment 
Directive 91/263/EEC34 should be amended before 1st January 1996 to 
cover mobile terminal equipment not capable of connection to the public 
network, which is currently outside its scope. Accelerated application must 
include more rapid adoption of Common Technical Regulations (CTRs) in 
particular for terminal equipment using new digital mobile technologies. 
Accelerated applications of Directives 91/263/EEC and 93/C97/EEC35 
should also allow for mutual recognition of terminal equipment on the basis 
of fulfilment of tlie essential requirements for those types of equipment for 
which CTRs have still not been adopted. 
Based on the comments received, particular issues to be addressed include 
rapid change procedures for TBRs and type approval for accessories. 
VI. 2.4 Adoption of proposals pending in the field of mutual recognition of 
licensing. 
The proposed Satellite Licensing Directive36 which also covers satellite-
based mobile communications, is currently under discussion in the Council. 
It is expected that the Council will adopt a common position before the end 
of 1994. 
The amended proposal for a general Directive on telecommunications 
licences37 excludes the field of mobile communications. The Commission 
notes the reservations in the consultation concerning the application of the 
full mutual recognition principle to certain mobile communications fields, 
owing in particular to issues of frequency allocation and coordination. 
Council Directive of 28th June 1990 on the establishment of the Internal Market for Telecommunications 
services through implementation of Open Network Provision (90/387/EEC ; OJ L 192/1, 24.7.1990). 
Council Directive of 29 April 1991 on the approximation of the laws of the Member States concerning 
telecoimiumications tenninal equipment, including tlie mutual recognition of their confomiity (91/263/EEC; OJ 
I. 128/1,23.05 1991) 
Council Directive of 29 October 1993 supplementing Directive 91/263/EEC in respect of satellite earth station 
equipment (93/C 97/EEC ; OJ L 290/1, 24.11.1993). 
Proposal for a European Parliament and Council Directive on a policy for tlie mutual recognition of licences and 
olher national authorisations for the provision of satellite network services and / or satellite communications 
services, COM(93)652 final - OJ 482, 4.01.1994. 
Amended proposal for a European Parliament and Council Directive on the mutual recognition of licences and 
other national authorisations for telecommunications services, COM(94)4! final - OJ 438, 22.03.1994. 
36 
VI.3 SCHEDULES FOR STANDARDISATION, NUMBERING AND FREQUENCIES, AND THE 
SCHEDULE FOR ADOPTION OF BINDING DECISIONS ON IMPLEMENTATION 
Standards development and the development of TBRs in the mobile communications 
field follows agreed procedures, established in particular according to Directive 
91/263/EEC. 
As regards frequency and numbering co-ordination, the frameworks proposed in the 
Green Paper have in the meantime been established with the ERC / ERO and 
ECTRA/ETO respectively.38 An MoU and Framework Contract have been signed 
between thèXommission and the ERC / ERO, as well as between the Commission and 
ECTRA / ETO, according to which the Commission entrusts work on frequency and 
numbering co-ordination to these organisations39. 
VI. 3.1 Standardisation 
For the mobile and personal communications sector, a number of standards 
have been adopted for GSM (TBR5 Phase 1 and TBR9 Phase 1), ERMES 
(TBR7) and DECT (TBR6, TBR10 and TBR11). A majority of these 
standards have been included in mandatory pan-European type-approval 
specifications, Common Technical Regulations (CTRs). 
Further standards have been requested by the Commission for GSM Phase 2, 
GSM Phase 2+, GSM half rate codec, DCS 1800, LEO earth stations, 
TFTS and TETRA. It is expected that these standards will be adopted 
during 1995 and 1996. 
VI. 3.2 Frequencies 
In order to secure the development of new mobile technologies binding ERC 
Decisions40 on the allocation of frequency spectrum by the European 
Radiocommunications Committee are required for : 
- before 1 st January 1996 : 
- TETRA, 
-DCS 1800 
ERC and ECTRA have been created as two of the three committees under the new CEPT, see Green Paper. 
ERC : European Radiocommunications Committee. The ERC has established the European Radio 
Communications Office (ERO), Copenhague. 
ECTRA : European Committee for Telecommunications Regulatory Affairs. ECTRA has set up the European 
Télécommunications Office (ETO), starting from 1st September 1994 onwards, at Copenhague. 
A substantial number of work requirements have been agreed or are under negotiation. Of special concern to 
mobile / personal communications are, inter alia, : 
- in the field of frequency planning/ co-ordination (ERC/ERO) : work requirements on DCS 1800, TETRA, 
wireless LANs, mobile broadband systems, satellite PCS, VSAT/SNG, mobile satellite applications (general), 
UMTS , 
- in the field of numbering planning / co-ordination (ECTRA/ETO) : work requirements on UPT, including 
European numbering space and PCS numbering and portability, non-discriminatory access to numbering, aspects 
of user friendliness of numbering systems ; 
- in the field of developing licensing conditions (ECTRA/ETO) : work requirements on satellite PCS, mobile 
satellite network and services (general), SNG. 
ERC Decisions, see Green Paper. 
SI 
- satellite-based personal communications systems (including Low Earth 
Orbiting satellite systems). 
- before 1st January 1998 : 
- UMTS, with a global objective of allowing for an early designation and 
schedule of allocation for the bands set aside at WARC92 for 
UMTS/FPLMTS. 
VI. 3.3 Numbering 
With regard to numbering of telecommunication services, firm decisions by 
ECTRA are required that will allow: 
- before 1st January 1996 : 
- the establishment of a European numbering space for freephone 
services; 
- before 1st January 1998 : 
- the establishment of a European numbering space for pan-European 
services provision; 
38 
- the creation of an open and integrated numbering scheme for Europe 
which allows (pan-European) intelligent network services, mobile and 
personal telecommunications services and other services to migrate into 
this new scheme. 
As an immediate priority, current activities aimed at the reform of national 
numbering plans should take account of the requirement for convergence. 
Also, national regulatory authorities should ensure the timely availability of 
new number blocks for new market entrants, with numbers of "equal quality" 
to those of other market players. 
VI .4 THE INTERNATIONAL AGENDA 
VI. 4.1 Third country access 
A major focus for the Community for achieving markel: access in third 
countries will be the GATT forum (shortly to become the WTO, World 
Trade Organisation). The telecommunications sector, and the mobile sector 
in particular are directly concerned with- GATT rules to be developed during 
negotiations on basic telecommunications over the next two years. 
\ 
These negotiations should not only result in an exchange of commitments on 
market access, but should also help set the ground-rules for the future. 
Among the issues covered would be clarification as to how the GATTAVTO 
principles apply in particular situations such as mobile communications 
where access to frequencies may be limited, and in global personal 
communications which have global regulatory implications. 
International aspects of frequency allocation in the ITU, and the issue of 
mutual recognition of type approval on a world-wide scale will also require 
urgent attention. 
On a bilateral level, common Community positions will be needed with 
regard to obtaining comparable and effective market access to specific third-
country markets. 
Common Community positions will also have to be developed on issues 
having a direct impact on trade and exports in this field. Comments have 
confirmed that this concerns issues related particularly to the effective 
enforcement of intellectual property rights, as well as to restrictions on 
exports of encryption techniques and other sensitive technologies. 
VI. 4.2 International co-ordination on evolution towards UMTS 
International co-ordination vill be a major aspect of the future evolution 
tu*vards UM i S (see below), ihe mam forum lor such co-ordination will be 
the ITU-work on standardisation of the Future Public Land Mobile 
Telecommunications System (FPLMTS) 
Ad-.-'tio " the evolution towards UMT S is .o-ordinated between the 
V. .lied States, Jap««. and Europe in a platihnu known as FAMOUS (Future 
Advanced Mobile/Wireless Universal System). Th? European delegation to 
FAMOUS h comprised of veprsser-tarives from the Commission, the 
Telecommunications Equipment Manufacturers Association (ECTEL) and 
ETSI. 
39 
The main objectives of FAMOUS are to continue to seek collaborative 
approaches to the exchange of ideas in order to address the emerging needs 
of third-generation wireless communications systems and services, on a 
world-wide basis; to establish a broad common understanding of the 
requirements with a view to introducing these into the standardisation 
process; to pursue discussions concerning possible international roaming 
options, and to maximise international co-operation for interoperability on a 
global basis of such systems. 
Information obtained through FAMOUS will be fed into the Union's research 
programmes in this area (see below). 
VI. 4.3 The role of personal communications in Information Highways 
The report on Europe and the Global Information Society and the subsequent 
Commission Action Plan of 19th July 1994 has emphasised the importance 
of mobile communications as a major element in building the information 
highway. 
The Commission will pay due attention to this aspect in further planning 
towards the information highway both at the European and global levels. 
VI.5 SAFEGUARDING THE PUBLIC INTEREST 
VI. 5.1 Development of a global Action Programme for Health and Safety in the 
mobile sector 
Increasing acceptance by the general public of the use of radio frequencies 
as a means of communicating is the basis for the whole: mobile industry. 
Therefore, concerns regarding hazards caused by the use of radio 
frequencies must be considered and taken into account. Comments on the 
Green Paper have confirmed that such concerns centre on two major areas; 
the potential hazards caused to human |iealth on the one hand, and the 
potential for electromagnetic interference with other electronic equipment 
such as pace-makers and hearing aids, on the other. 
There was broad support for the setting up of a comprehensive action 
programme to assess the impact of radio frequency radiation on human 
health and safety and to accelerate the development of the necessary safety 
standards. 
The Commission will make proposals for initiating such a programme before 
1st January 1996. 
VI. 5.2 On-going assessment of the environmental impact of the development of 
mnhila rind nerinnnl rnmrriiiyiimti/^tiv mobile and personal communications 
There was general agreement on tlie need for an ongoing assessment of the 
environmental impact of mobile and personal communications. In 
particular, the sharing of sites will reduce the impact on tlie environment by 
preventing, wherever possible, the unnecessary proliferation of radio masts 
and related facilities. 
40 
Guidelines for sharing agreements, in conformity with Treaty competition 
rules, should be worked out before 1st January 1998. 
VI. 5.3 On-going monitoring of employment trends and training needs in the 
communications sector 
In the context of the consultation, trade unions have stressed the need to 
examine the impact of u>e new technological developments on employment in 
the telecommunications sector. 
In order to satisfy the increasing demand for mobile services, operators are 
establishing more cell sites to improve coverage, they are opening more 
service centres to take customer orders, and they are creating more 
distribution channels to sell services and equipment. All such efforts 
translate into a continuing and growing industry requirement for skilled 
workers. It is expected that as a result of this activity, employment in the 
public cellular telephony business will grow at a rate of 10 to 20 percent per 
year. 
The on-going monitoring of employment trends, and the associated training 
needs in the mobile communications sector will be accorded high priority. 
VI. 5.4 Data protection and privacy 
The future development of mobile and personal communications raises 
important questions of the protection of privacy with regard to the 
processing of personal data. The concepts of person to person calling, 
unique numbers for individuals and personalised cards need to be carefully 
examined from this point of view in order to take into account concerns such 
as those which have already been raised on line identification. This is 
addressed in the amended proposal for a Directive on the protection of 
personal data and privacy in the digital telecommunications networks^ 1. In 
addition it is expected that the Council will adopt a common position on the 
framework directive on data protection before the end of the year^^. 
The Commission will prepare a report examining the need for further 
measures concerning the protection of personal data before the 1st January 
1996. 
41 Amended proposal for a European Parliament and Council Directive concerning the protection of personal data 
and privacy in the context of digital telecommunications networks, in particular the Integrated Services Digital 
Networks (ISDN) and digital mobile networks, COM(94) 128 final, OJ C288, 13.6.94 
42 Amended proposal for a Council Directive on the protection of individuals with regard to the processing of 
personal data and on the free movement of such data, COM(92) 422 final, 15.10.92 
41 
VI.6 UNIVERSAL MOBILE TELECOMMUNICATIONS SERVICES 
VI. 6. J Continued support for Community research programmes into advanced 
mobile communications and telematics 
The new programme for research and technological development in the field 
of advanced communications technologies and services was adopted by the 
Council Decision of 27 July 199443. 
The global objective of the programme is to develop advanced 
communications systems and services for economic development and social 
cohesion in Europe, taking account of the rapid evolution in technologies, the 
changing regulatory situation and opportunities for development of advanced 
trans-European networks and services. 
One of the main areas for technological development is that of mobile and 
personal communication networks. The objective is to accommodate the 
demand for personal communications beyond 2000 and to permit European 
industry to retain its leadership role in this area. Emphasis will be placed on 
miniaturisation, broadband radio technologies, advanced electrical/optical 
technologies, novel multiple access techniques, as well as the integration of 
satellite and terrestrial networks 
VI. 6.2 Support for the work of the ETSI Special Mobile Group and promotion of a 
UMTS MoU 
ETSI and in particular its SMG (Special Mobile Group) Technical 
Committee will continue to be a key player in the development of the GSM 
system family and third-generation technologies. 
ETSI SMG is at present concentrating its work on extending GSM with new 
features (Phase 2, Phase 2+, Half-rate codec). It is expected that the 
emphasis of the Group will gradually move towards UMTS. 
In order to secure such a smooth transition, the approach towards UMTS 
technology is expected to be built on an upgrade of the current GSM system 
family to include new functionality and extended broadband service 
capabilities. Such an approach seems to give the best guarantees that the 
present success of GSM can be carried over into the next generation UMTS, 
with consequential benefits for the sector employment and the European 
economy. 
The future development of UMTS will require a common vision of all sector 
players. The Commission will therefore, in accordance with the emphasis on 
partnerships with the sector given in its 19 July 1994 Action Plan for the 
information society, support the setting up, prior to 1st January 1998, of a 
Memorandum of Understanding for the development of UMTS drawing on 
the experience of the GSM MoU and building on national initiatives 
currently under way in this field. 
Council Decision ol" 27 July 1994, adopting a specific programme for research and technological development, 
including demonstration, in the field of advanced communication technologies and services (1994-1998), 
(94/572/EC). 
42 
VI. 6.3 Investigation of potential of satellite-based UMTS 
Future personal communication services will make use of a mix of terrestrial 
technologies such as the GSM system family and DECT, as well as satellite-
based systems. By integration of the various systems into a common 
environment, users will be offered seamless services that can be accessed on 
a global scale. 
Currently, Europe is the leading player in the area of digital mobile and 
personal communications technology. Systems such as GSM and DCS 
1800/1900 are, or are poised to become world standards for terrestrial-based 
systems. 
The complementary nature of terrestrial and satellite-based systems makes a 
combined system concept highly attractive where strong mutual benefits can 
be derived. Hence the importance of investigating the development of a 
satellite component for the future UMTS as a prerequisite for continuing the 
success of the current terrestrial digital systems into the next generation of 
mobile and personal communications networks. 
A major condition will be a strong European presence in satellite-based 
personal communications systems, based on the early allocation of European 
licences for such svstems. 
43 
VU CONCLUSIONS AND TIMETABLE FOR ACTION 
The mobile and personal communications sector is currently in a critical phase of its 
development. In order to secure further development and to reap the full benefits of its 
potential, a coherent and stable regulatory framework for the sector is required. This 
Communication sets the priorities for actions aimed at establishing such a framework, the 
main elements of which are shown in the Timetable for Action (TABLE 1) below. 
The report on Europe and the global Information Society, and the Commission's 
Communication of 19th July 1994, have emphasised the importance of mobile and personal 
communications as a major building block for the future information environment. As such 
the Green Paper on mobile and personal communications, and the subsequent consultation, 
represent a first key step in the process of preparing for the full liberalisation of 
telecommunications markets in the EU from 1st January 1998. 
The Commission has published tlie Green Paper as a consultative document with the 
intention to seek the views of all interested parties in the sector, as well as of the European 
Parliament and Council, the Economic and Social Committee, and the Committee of Regions. 
A broad consultation has taken place including public hearings whilst a substantial number 
of written contributions have been received. On the basis of this consultation, the 
Commission has drafted this Communication to the European Parliament and the Council 
and has prepared the attached Proposal for a Council Resolution. 
In the light of the above, the Commission asks the European Parliament and the Council to 
endorse this Communication and urges the Council to adopt the attached Resolution. 
44 
TABLE l : TIMETABLE FOR ACTIONS DESCRIBED IN SECTION VI ABOVE 
Prior to 1st January 1996 
Competition. Full application of the Treaty competition rules and, where 
required, amendment of Directive 90/388/EEC in order to achieve the 
objective of removal of all exclusive and special rights in the sector (VI. 1.1) 
Code of Conduct Development of a Code of Conduct for Service Providers 
(VU.2) 
DECT. Facilitating access to DECT and combined use of DECT with 
other technologies, in particular GSM/DCS 1800 (VI. 1.5) 
Support Programmes. Establishment of programmes for promoting 
TFTS, ERMES, TETRA, and DSRR market introduction (VI. 1.8) 
Satellite-PCS. Agreeing procedures for licensing of satellite-based personal 
communications at Union level and starting licensing procedures (VI. 1.10) 
Consultation. Promotion of the creation of a European Mobile and Personal 
Communications Services Forum (VI. 1.11) 
Alternative Infrastructure. Lifting constraints on alternative 
telecommunications and cable TV infrastructure for the provision of mobile 
communications, based on a general approach to infrastructure regulation 
(VI.2.1) 
ONP, Interconnection and the Competition Rules. Adjustment of the 
Open Network Provision framework i .id proposal for an ONP Interconnection 
Directive in the context of general telecommunications reform; scrutiny of 
interconnection agreements under the Trea'y competition mles (VI.2.2) 
Mutual Recognition. Amendment of Directive 91/263/EEC concerning 
muiual recognition of type approval of mobile equipment (VI. 2.3) 
Directives pending. Adoption of pending Directives (mutual recognition of 
satellite "licenses and data protection and privacy) (VI.2.4/5) 
Frequencies. Adoption of ERC Decision, on frequency bands for TETRA, 
DCS 1800 and satellite based personal co nmunications, including Low Earth 
Urbit satellite systems, (LEOs) (VI.3.2) 
Numbering. Opening up of a European Numbering Space foi freephone 
services (VI.3.3) 
Standardisation. Establishment of standardisation mandate- (VI 3.7) 
Fraud. Monitoring the fraudulent use of mobile services and equipment 
and examining action where required (V 1.9) 
third Country Markets. Ensuring international co-ordination and working 
towards furthering of equivalent accès* to third country markets (VI.4.1) 
Health & Safety. Development of a global action programme for health 
^ind safety in the mobile sector (VI.5.1) 
Employment & Training. Monitoring ot employment trends and re-training 
needs (VÏ.5.3) 
45 
Prior to 1st January 1998 
Service Provider Access. Review of the situation concerning access to the 
market by service providers (VI. 1.3) 
DCS 1800 Licences. Ensuring access to DCS 1800 and GSM extension 
bands in all Member States (VI. 1.4) 
Mobile Service Combinations. Allowing, in a first phase, full combination of 
different mobile technologies including the components of the GSM system 
family (GSM / DCS 1800) and ending any remaining restrictions (VI. 1.6) 
Fixed and Mobile Service Combinations. Allowing, in a second phase, full 
combination of fixed and mobile services in accordance with the schedule for 
full liberalisation of public voice services with additional transition periods for 
certain Member States, as established in Council Resolution 93/C213/01 
(VI. 1.7) 
UMTS Frequencies. Adoption of an ERC Decision on the frequency 
bands for UMTS (VI.3.2) 
Numbering Space. Creation of a European Numbering Space for pan-
European service provision, including Personal Communications requirements 
(VI. 3.3) 
Environment, h rastructure Sharing. Setting the general guidelines (VI.5.2) 
UMTS MoU. Conrinuing support for work towards the Universal Mobile 
Telecommunications System (UMTS) and promotion of the creation of a UMTS 
Memorandum of Understanding including all actors concerned (VI.6.2) 
ANNEX 1 
BRIEF OUTLINE OF THE 
GREEN PAPER ON MOBILE AND PERSONAL COMMUNICATIONS 
The Green Paper entitled "Towards the Personal Communications Environment : Green Paper on a 
common approach in the field of mobile and personal communications in the European Union 
(COM(94)145, 27th April 1994) provides an extensive analysis of the sector and sets forth a 
coherent set of positions for the future development of the sector. 
Five major changes are proposed to remove the barriers to further development, 
1. Abolishing remaining exclusive and special rights in the sector, subject where required to the 
establishment of appropriate licensing conditions ; 
2 Removal of all restrictions on the provision of mobile services both for independent Service 
Providers and direct service provision by mobile network operators. 
This should include the freedom to offer a combination of services provided under different 
licences, as well as the ability to provide services in different Member States, and the lifting of 
existing restrictions, thereby facilitating access of users to these services ; 
3 Full freedom for mobile network operators to operate and develop their networks for the 
purpose of the activities provided for in their licence or authorisation. 
This should include the right to self-provide infrastructure for use in carrying out these 
activities or to use third party infrastructure for that purpose, as well as the right to share 
mfrastructuie ; 
4. Unrestricted combined offering of services via the fixed and mobile networks, within the 
overall time schedule set by Council Resolution 93/C213/01 of 22nd July 1993 for the full 
liberalisation of public voice services via the fixed network. 
This would imply the right for mobile operators or independent Service Providers to bid for 
resale licenses on the fixed network, as well as for the lifting of all existing entry restrictions 
for fixed network operators in mobile markets, subject only to full application of the Treaty 
competition rules, in particular, Council Regulation 89/4064/EEC on the control of 
concentrations and the provisions of the Treaty competition rules concerning abuse of 
dominant positions ; 
5. Facilitating pan-European operation and service provision. 
This should include further development of mutual recognition of type approval of mobile 
terminal equipment, as well as coordination of licensing and award procedures, where 
appropriate to facilitate development of trans-European networks. 
Based on these major changes proposed, the Green Paper sets forth detailed positions on 
-• Licensing conditions for mobile network operators ; 
-» Service provision ; 
-* Interconnection ; 
47 
-• Infrastructure , 
-> Radio frequencies ; 
-» Numbering ; 
-> Launching the evolution towards personal communications services. 
The Green Paper proposes measures required for implementation concerning : 
-> Introduction of competition ; 
-» Adjustment of the Open Network Provision framework ; 
-> Mutual recognition of type approval of mobile equipment ; 
-» Mutual recognition of licences ; 
-> Establishment of a Europe-wide Code of Conduct for service providers : 
-> Framework for the co-ordination of radio frequencies ; 
-> Framework for the co-ordination in the field of numbering ; 
-* Protection of personal data and privacy in the context of digital mobile communications 
networks. 
The Green Paper further submits a set of accompanying lines of actions to comment : 
-+ Ensuring safety and safeguarding environmental concerns in the future mobile and personal 
communications environment ; 
-> Promoting standardisation to ensure interconnection and interoperability ; 
-> Setting priorities for frequency co-ordination related to mobile and personal communications 
-• Initiating co-ordination of numbenng and working towards a European numbering space for 
personal communications , 
-> Facilitating the development of trans-European networks based on mobile and personal 
communications technologies ; 
-> Elaborating common Community positions with regard to Third Countries and ensuring 
market access to those countries ; 
-* Continuing support for the evolution towards the Universal Mobile Telecommunications 
Svstem 
48 
ANNEX 2 
LIST OF CONTRIBUTORS TO THE CONSULTATION ON THE 
1994 GREEN PAPER ON MOBILE AND PERSONAL COMMUNICATIONS 
HEARINGS 
General Consultation Meeting. 16th & 17th June 1994, approximately 210 participants 
Round Table for the Chairman of Fixed and Mobile Network Operators. 28th June 1994, 67 
participants 
Meeting with Service Providers. 28th July 1994, 26 participants 
Meeting with GSM MoU. 29th July 1994 
Meeting with Consumer Organisations, 1st September 1994 
Meeting with Trade Unions. 21st September 1994 
WRITTEN CONTRIBUTIONS 
Associations 
Bedrijfstelecommunicatie Grootgebruikers 
Bureau Européen des Unions de Consommateurs 
CEPT/ERC 
CEPT/ECTRA/ERC 
Club Informatique des Grandes Entreprises Françaises 
Conseil National du Patronat Français 
EC Committee of the American Chamber of Commerce 
ECTEL . 
ERMES MoU 
ETNO 
Eurocontrol 
European Council of Telecommunications Users Association (ECTUA) 
European Data Protection Commissioners 
Federation of the Electronics Industry (FEI) 
German MoU on Personal communications 
GSM MoU 
International Chamber of Commerce 
Internationale du Personnel des Postes, Télégraphes et Telephones 
Joint Committee of Telecommunications 
LMT - Norwegian Suppliers Association 
Matkaviestintooimittajat 
Syndicat des industries de matériel professionel électronique et radioélectrique (SPER) 
UNICE 
49 
Individual Organisations 
Airtouch International 
Alcatel 
Allgon AB 
AT&T 
ATC Finland 
Austrian Postal Administration 
Belgacom 
British Telecom 
Bundesministerium fur Post- und Telekommunikation 
Cellcom 
Ccllnet 
CommEd Ltd 
Department of Trade and Industry 
Deutsche Bundespost Telekom 
E-Plus Mobilfunk 
Ericsson International 
France Telecom 
Gesellschaft fur Datenfunk mbH 
Hoskyns Group pic 
Instituto das Comunicaçôes de Portugal (ICP) 
Makitorppa 
Mannesmann Mobilfunk 
Media & Technology International 
Mercury Communications 
Mercury one2one 
Ministry of Transport and Communications Finland 
Mobile Systems International 
Mobile Tele Leverantorerna 
Motorola 
Nokia 
Omnitel Pronto Italia 
Orange Personal Communications 
OTE 
Portugal Telecom 
Post & Telestyrelsen 
PTT Telecom Netherlands 
Raad voor Verkeer en Waterstaat 
Société F-rançaise du Radiotéléphone (SFR) 
Shell International Petroleum Maatschappij B.V. 
Sistelcom 
STET 
Swissphone Telecommunications 
Talkland International (UK) Ltd 
Telecel 
Telecom Eireann 
Telecom Finland 
Telefonica 
Telia 
Uniqueair 
Vodafone Group pic 
Vodafone S.A. 
50 
ANNEX 3 
LIST OF ACRONYMS 
CEPT European Conference of Postal and Telecommunications Administrations 
CT2 Standard for Cellular Telephony 
CTR Common Technical Regulation 
DCS-1800 Digital Communication Standard for Cellular Communications 
DECT Digital European Cordless Telecommunications 
DSRR Digital Short Range Radio 
ECTEL Telecommunications Equipment Manufacturers Association 
ECTRA European Committee for Telecommunications Regulatory Affairs 
EIR Equipment Identification Register 
EN F European Numbering Forum 
ERC European Radiocommunications Committee 
ERMES European Radio Messagmg System 
ERO European Radiocommunications Office 
ETO European Telecommunications Office 
ETS European Telecommunications Standard 
ETSI European Telecommunications Standards Institute 
FAMOUS Future Advanced Mobile Wireless Universal System 
FPLMTS Future Public Land Mobile Telecommunications System 
GSM Global System for Mobile 
IN Intelligent Network 
ISDN Integrated Services Digital Networks 
ITU International Telecommunications Union 
LAN Local Area Network 
LEOs Low Earth Orbit Satellite 
NRA National Regulator}'Authority 
ONP Open Network Provision 
PBX Private Branch Exchange 
PCS Personal Communications Services 
PMR Private Mobile Radio 
PSN Physical Serial Numbers 
SIM Subscrioer Identification Module 
SMG Special Mobile Group 
SNG Satellite News Gathering 
TBR Technical Basis for Regulation 
TETRA Trans European Trunked Radio 
TFTS Terrestrial Flight Telephone System 
TO Telecommunications Organisation 
UMTS - Universal Mobile Telecommunications Systems 
VSAT Very Small Aperture Terminal 
WARC World Administrative Radio Conference 
51 
Proposal 
for a Council Resolution of [] 
on the further development of 
mobile and personal communications 
in the European Union 
THE COUNCIL OF THE EUROPEAN UNION, 
Having regard to the Treaty establishing the European Community, 
Whereas, as a result of the 1992 review of the telecommunications sector, the Council, in its 
Resolution of 22 July 1993, called on the Commission to publish a Green Paper on mobile and 
personal communications44: 
Whereas on 27 April 1994 the Commission adopted its Green Paper on a common approach in the 
field of mobile and personal communications45; 
Whereas, on the basis of the wide-ranging consultation, the Commission has submitted a 
Communication to the European Parliament and Council on the outcome of the consultation on the 
Green Paper on mobile and personal communications, 
WELCOMES the broad consultation carried out by the Commission on the main principles and 
objectives of the Green Paper on Mobile and Personal Communications and NOTES the consensus 
resulting from it, as well as those areas where a full consensus was not achieved. 
SUPPORTS the development of a framework for Mobile and Personal Communications both 
through sector specific action and through action in the context of the overall reform of the 
telecommunications sector. 
4S Council Resolution of 22nd July 1993 on the review of ihe situation in the telecommunications sector and the 
need for further development in that market (93/C 213/01, OJ C 213, 6.8.1993) 
Towards the Personal Communications Environment : Green Paper on a Common Approach in tlie field of 
mobile and personal communications in tlie European Union (COM(94)145 final, 27.04.1994) 
52 
CONSIDERS AS PRIORITIES FOR SECTOR SPECIFIC ACTION measures which at a Union 
level seek to ensure : 
1 the introduction of competition where this is still not the case, with the number of mobile 
licenses granted to be limited only on the grounds of essential requirements and public 
service requirements in the form of trade regulations; 
2. service provider access to the market and promote the development of a Code of Conduct for 
service providers, with special regard to the protection of consumer interests; 
3. the timely access to DECT and DCS 1800 frequencies and the rapid availability of adequate 
frequency spectrum on a pan-European basis to support the development of existing and new 
mobile technologies and systems, such as TETRA, ERMES, DCS 1800 and satellite-based 
personal communications services, as well as the removal of restrictions on the innovative 
combination of different mobile technologies ; 
4. that the full combination of fixed and mobile services be allowed in accordance with the 
schedule for the full liberalisation of public voice services with additional transition periods 
for certain Member States, as established in Council Resolution 93/C213/01, in order to 
allow full-scale development of personal communications services 
5 that a harmonised licensing approach for satellite-based personal communications is 
established and that procedures for licensing such systems at the Union level be iniatiated at 
an early stage; 
CONSIDERS AS AREAS FOR PRIORITY ACTION FOR MOBILE AND PERSONAL 
COMMUNICATIONS WITHIN THE FRAMEWORK OF THE GENERAL REFORM OF 
TELECOMMUNICATIONS: 
1 examining constraints on alternative telecommunications and cable-TV infrastructure for the 
provision of mobile communications, in the context of the general approach to infrastructure 
regulation, with the aim of lifting such constraints 
2 the development of the regulatory regime for interconnection based on the Treaty competition 
rules upon the ONP framework, modified in line with Council Resolution 93/C213/01, and 
the EU competition rules, giving priority to commercial agreement between parties under the 
supervision of regulatory authorities and strict scrutiny under Treaty competition rules; 
53 
3. the putting in place of an appropriate regulatory framework for the mobile sector, based on 
current legislative proposals and adopted directives, in relation to data protection and 
privacy, the mutual recognition of licensing and the mutual recognition of type approval for 
terminal equipment; 
NOTES THE NEED FOR ADDITIONAL ACTION in order to develop the overall regulatory and 
technological environment 
1. Establishing clear schedules for standardisation, numbering and frequencies, together with 
timetables for binding decisions on implementation by the Member States, as well as for 
agreement on the establishment of a European numbering space taking account of 
requirements for mobile and personal communications such as for portable numbers; 
2. In order to maintain public confidence in the development of mobile communications, an 
action programme should be set up to address a range of areas linked to the public interest, 
namely to: 
assess the impact of radie Frequency radiation on human health and safety and to 
accelerate the development of necessary safety standards; 
examine the impact on employment and re-training requirements in the sector; 
study issues relating to fraudulent use of mobile services and equipment, as well as 
other issues of consumer protection; to propose appropriate measures where required at 
the Union level; and to monitor developments on tariffs and tariff structures (versus 
cost-oriented pricing), including subscription fees and equipment prices, in order to 
protect the economic interests of consumers ; 
3. ensure that the necessary measures are taken to secure the success of future European 
systems and standards in emerging world markets for mobile and personal communications, 
with particular attention on the role of the future Universal Mobile Telecommunications 
System (UMTS) 
EMPHASISES the importance of comparable and effective access to third country markets and of 
full recourse to international standards where possible, to be achieved by bilateral and multilateral 
negotiations conducted at the European Union level, with regard to mobile and personal 
communications technologies, equipments and services. 
54 
SUPPORTS the creation of a European Mobile and Personal Communications Services Forum 
NOTES the proposals and timetable of the Commission in its Communication and 
ENCOURAGES the Commission to prepare the necessary measures and, where appropriate, to 
pursue agreements and firm implementation decisions, in co-operation with the relèvent European 
bodies in the areas of frequency, numbering, licensing and standardisation. 
REQUESTS THE COMMISSION TO REPORT TO THE COUNCIL AND THE 
PARLIAMENT 
on the progress made with regard to the implementation and effects of the above measures, by 1st 
Januar>' 1996. 
55 



ISSN 0254-1475 
COM(94) 492 final 
DOCUMENTS 
EN 15 
Catalogue number : CB-CO-94-564-EN-C 
ISBN 92-77-82890-0 
Office for Official Publications of the European Corjcaimiiities 
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