COMMISSION OF THE EUROPEAN COMMUNITIES 
C0MC91) 215 final - SYN 345 
Brussels, 12 June 1991 
Proposal for a 
COUNCIL DIRECTIVE 
on the frequency bands to be designated for the 
coordinated introduction of digital short-range radio 
(DSRR) in the Community 
(presented by the Commission) 
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EXPLANATORY MEMORANDUM 
Contents 
1. Introduction 
1.1 Background 
1.2 The current state of short-range mobile communications in the 
Community 
1.3 Market opportunities and requirements 
1.4 Limitations of existing short-range radio communications 
2. Potential benefits of digital short-range radio (DSRR) 
3. ETSI standard for DSRR 
3.1 Simplex, one-frequency operating mode 
3.2 Semi-duplex, two-frequency operating mode 
4. Time scale for the introduction of DSRR 
4.1 Time scale for the completion of a single standard 
4.2 Time scale for manufacturers to produce equipment 
5. Frequency requirements 
6. Objective of the proposed Directive 
(2) 

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1. Introduction 
1.1 Background 
As foreseen in the Commission's 1987 Green Paper on the development of the 
common market for telecommunications services and equipment, future 
intra-Community communications will depend on achieving Europe-wide 
compatibility and interoperability of current and future services, 
including mobile communications, which should be provided universally at a 
European level. These requirements must be based in particular on 
Decision 87/95/EEC of 22 December 1986 on standardization in the field of 
information technology and telecommunications,1 Council 
Directive 83/189/EEC of 28 March 1983 establishing a procedure for the 
provision of information in the field of technical standards and 
regulations,2 as amended by Directive 88/182/EEC, and Council 
Recommendation 84/549/EEC of 12 November 1984 on the implementation of 
harmonization in the field of telecommunications.3 
For its part, the European Parliament has requested that the current 
general incompatibility of mobile communications systems be resolved, and 
that work towards Community-wide mobile communications be undertaken.4 
The Commission's June 1987 Green Paper on telecommunications included a 
proposal to set up a European Telecommunications Standards Institute 
(ETSI). This has resulted in a major reform of the European 
standards-setting process with the establishment of ETSI in March 1988 in 
Sophia-Antipolis, near Nice in France. ETSI has instructed its Technical 
Subcommittee RES 7 to produce a standard for digital short-range radio by 
the end of 1990. 
1 0J No L 36, 7.2.1987, p. 31. 
2 0J No L 109, 26.4.1983, p. 8. 
3 OJ No L 298, 16.11.1984, p. 49. 
4 European Parliament report on telecommunications in the Community 
(Leonard! report), doc. 1.1477/3 of 3 March 1984. 
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1 -2 The current state of short-range mobile communications in the 
Community 
in the early 1980s the United Kingdom allocated the 933-935 MHz frequency 
band to CB (Citizen's Band Radio) in order to limit the spread of 27 MHz 
equipment. However, the United Kingdom did not get the support of the other 
European administrations and CEPT adopted a recommendation on a 27 MHz CB 
service. Japan, however, had prepared analogue equipment equivalent to CB 
equipment for the 933-935 MHz frequency band. The Europeans subsequently 
reached agreement within CEPT to use the 933-935 MHz band for digital 
equipment. The basic idea was to have low-power (1 Watt) portable 
equipment. When ETSI was set up, the working party responsible for drafting 
specifications for the equipment was transferred from CEPT to ETSI (RES). 
At the same time, CEPT adopted Recommendation T/R 24-04 allocating the 
frequency bands 933-935 MHz and 888-890 MHz for short-range digital 
communications. It also recommended that this system should be capable of 
using both the simplex and duplex mode. The 933-935 MHz frequency band is 
used in the simplex mode and, in the semi-duplex mode, communications can 
take place in the associated 888-890 MHz band. 
1-3 Market opportunities and requirements 
It is difficult to make accurate projections of the demand for DSRR in view 
of the variety of services offered and the novelty of this concept: the 
original concept was intended to cover only voice communication, but this 
application has been extended to include data. A recent study funded by the 
Commission indicates that by 1995 there are likely to be 330 000 mobile or 
portable stations in the United Kingdom and the Netherlands. 
This figure is based on an extrapolation of the traditional market for 
private mobile equipment but, given the cheapness of DSRR, it is difficult 
to estimate at present the inroads it will make into the small business 
markets (services, agriculture, transport, etc.), and some market studies 
consider that the rate of penetration will be higher. 
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Another market study has yielded comparable results: 1.2 million users in 
the Community in 1995. However, the study specifies that a very large 
proportion of them do not at present use public or private radio 
communications systems. They will buy DSRR, however, because of the low 
cost of the equipment, the absence of charges for use without a relay, and 
the service rendered. 
1.4 Limitations of existing short-range radio communications 
Professionals will be able to use public services such as GSM or DECT 
throughout the Community. These systems are connected up to the public 
switched network but they are much more expensive than DSRR. Professionals 
can also use private network equipment, but that presupposes obtaining a 
frequency. In several Member States public demand can no longer be 
satisfied because the private networks are saturated. DSRR will offer a new 
opportunity for obtaining a frequency without having to get authorization 
from the national administration to use it in a given service area. 
Allocating frequencies by sharing the frequency spectrum resource will make 
it possible to use the equipment without interference and with a large 
measure of mobility. 
2. Potential benefits of digital short-range radio (DSRR) 
There is unanimous agreement among European manufacturers and users that 
the DSRR approach is the most appropriate for Europe in the medium and long 
term for this category of mobile services. Users will be able to benefit to 
the full from the advantages of the single market of 1992, using their 
equipment throughout the Community without the need for specific 
authorization from the national administration if they use two sets of 
mobile equipment or with the authorization of the national administration 
if a relay is used. The DSRR approach offers the following benefits: 
DSRR will offer major benefits to private and business users 
and will stimulate the development and exploitation of major 
new market opportunities for European industry; 
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European industry will be developing a system and products, 
and will thus acquire greater experience in consumer 
electronics; 
DSRR will provide European industry with an advanced 
technology with considerable potential for world-wide sales 
and distribution opportunities; 
the successful development and implementation of DSRR will 
provide the necessary technical and operational framework to 
facilitate the introduction of a universal mobile 
telecommunications system as the successor to DSRR. 
Another advantage of DSRR is that it uses the voice coders developed for 
the GSM system. In the case of DSRR the rate is 16 k/bit per second. As a 
result of DSRR using the GSM coder, European industry will benefit from 
longer series for this comparatively expensive equipment. 
Lastly, DSRR has the advantage of being technologically far more efficient 
in the use of the frequency spectrum than conventional private systems. 
3. ETSI standard for DSRR 
The ETSI Technical Subcommittee RES 3 was given the task of specifying the 
technical standard for DSRR. Following a reorganization within ETSI the 
work was transferred from RES 3 to RES 7. The work is being supported by 
the European industry via ECTEL (European Telecommunications and 
Professional Electronics Association). 
DSRR sets are low-power transmitters-receivers operating either in simplex 
mode in the 933-935 MHz band or in semi-duplex or full-duplex mode in the 
933-935 MHz band in association with 888-890 MHz. 
Direct digital modulation of the carrier is used to send the selective 
signalling code and the voice or data. 
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DSRR sets are equipped with: 
automatic multi-channel access with no need for a central monitor; 
a selective signalling code; 
DSSRs may use the simplex, the semi-duplex and the full-duplex 
mode. Base, mobile and portable relay stations may be used. 
3.1 Simplex, one-frequency operating mode 
When the simplex operating mode is used, two-way communications can be 
established between portable stations and/or mobile stations. 
In stand-by mode all the stations receive one or other of the monitoring 
channels. 
3.2 Semi-duplex, two-frequency operating mode 
When the two-frequency mode is used, two-way communications are possible 
between the base station and the portable set or between mobile sets on 
vehicles. 
When the two-frequency mode is used, two-way communications are possible 
between the base stations and the portable set and/or the mobile set. 
In order to enable base stations to monitor the use of the traffic channel, 
all the base stations operating in two-frequency mode, whether they are 
regarded as relay stations or as base stations, operate in full-duplex mode 
with continuous transmission and reception on the traffic channel. 
In order to select the channel without traffic, all the base stations are 
capable of receiving the frequencies transmitted by the base station and 
those transmitted by the mobile station. 
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4. Tlwa scale for the Introduction of DSRR 
4.1 Time scale for the completion of a single standard 
Harmonization implies the use of a single European standard. The DSRR 
specifications will cover all aspects of the system and a timetable for 
completing the specifications has been agreed by ETSI. The date for 
completion of the I ETS is the end of 1990 and the date of completion of 
the standard following a public enquiry is October 1991. Member States 
should ensure that progress towards the introduction of DSRR can be 
maintained and that DSRR can be introduced by the end of 1993. 
4.2 Time scale for manufacturers to produce equipment 
Manufacturers should continue to support the work of ETSI as at present. 
They must also be prepared to manufacture their equipment to the ETSI 
standard as soon as possible. 
5. Frequency requirements 
A prerequisite for the successful introduction of a fully harmonized DSRR 
service is the availability of common frequencies throughout the European 
Community. CEPT has adopted recommendation T/R 75-02 designating the 
888-890 MHz frequency band in association with 933-935 MHz for DSRRs using 
the one or two frequency transmission mode. It is absolutely essential 
that the frequencies should be common throughout the Community to enable 
European citizens to use their equipment in all twelve Member States. This 
equipment does not require frequencies to be allocated by the 
telecommunications regulatory authorities. The coordinated and timely 
availability of the necessary common frequencies is imperative if a fully 
harmonized system is to be introduced. 
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6. Objective of the proposed Directive 
To maintain progress in the areas described above, it is necessary to 
guarantee: 
the completion of the DSRR specifications (I ETS) by October 1991; 
the development of the ETS in 1992 and its completion in early 
1993; 
the coordinated introduction of DSRR according to a strict 
timetable; 
the availability of common, Europe-wide frequencies for the 
introduction of the DSRR system; 
ease of market access for manufacturers through the single market. 
In order to guarantee the availability of frequencies for DSRR the 
Commission has prepared a draft Directive calling for common frequency 
bands for DSRR throughout the Community. The Directive is based on the 
work of the CEPT which has recommended the 888-890 MHz band in association 
with 933-935 MHz for DSRR. 
The provision of frequencies in the Member States is laid down by law, 
regulation or administrative action. Given this situation and the fact 
that the provision of radio frequencies is the most critical factor in the 
implementation of DSRR, a Council Directive based on Article 100a of the 
Treaty is necessary. 
The proposed Council Directive on the frequency bands to be designated for 
the coordinated introduction of digital short-range radio in the Community 
has the primary objective of ensuring the availability of sufficient 
frequency resources in order to implement the system at the earliest 
possible date. 
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The following additional Community measures are proposed in order to 
accelerate the development and introduction of the digital short-range 
radio communication service on the basis of the frequencies set out in the 
Directive: 
the Commission will give high priority to the mutual recognition of 
telecommunications equipment type approval and the specification of 
the appropriate European telecommunications standard. This will 
facilitate international "roaming" and promote the market for DSRR; 
the Commission will apply strictly Council Directive 83/189/EEC on 
the provision of information in the field of technical standards 
and regulations, and Council Decision 87/95/EEC on standardization 
in the field of information technology and telecommunications. 
Finally, the Commission in collaboration and in consultation with 
interested parties will help develop a strategy for the development of GSM, 
ERMES, DECT, DSRR and other private mobile systems into a universal 
personal communications system. 
The proposals will make it possible to take an important step forward for 
the introduction of DSRR throughout the Community and substantially improve 
the development of advanced telecommunications services and networks as 
requested by the Council on 17 December 1984. 
The Council is therefore requested: 
to adopt the attached proposal for a Directive; 
to take note of the additional preparatory measures which the 
Commission will undertake in close cooperation and collaboration 
with ETSI and CEPT. 
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Proposal for a 
COUNCIL DIRECTIVE 
on the frequency bands to be designated for the 
coordinated introduction of digital short-range radio 
(DSRR) in the Community 
THE COUNCIL OF THE EUROPEAN COMMUNITIES, 
Having regard to the Treaty establishing the European Economic Community, 
and in particular Article 100a thereof, 
Having regard to the proposal from the Commission,1 
In cooperation with the European Parliament,2 
Having regard to the opinion of the Economic and Social Committee,3 
1. Whereas Council Recommendation 84/549/EEC4 calls for the 
introduction of services on the basis of a common harmonized 
approach in the field of telecommunications; 
2. Whereas in its Resolution of 30 June 1988 on the development of the 
common market for telecommunications services and equipment,5 the 
Council calls for the promotion of Europe-wide services according 
to market requirements; 
3. Whereas the resources offered by modern telecommunications networks 
should be utilized to the full for the economic development of the 
Community; 
1 
2 
3 
4 OJ No L 298, 16.11.1984, p. 49. 
5 0J No C 257, 4.10.1988, p. 1. 
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4. Whereas Council Directive 89/336/EEC of 3 May 1989 on the 
approximation of the laws of the Member States relating to 
electromagnetic compatibility6 is applicable, and particular care 
should be taken to avoid harmful electromagnetic interference; 
5. Whereas current short-range systems in use in the Community, and 
the frequency bands in which they operate, vary widely and do not 
allow the benefits of Europe-wide services or the economies of 
scale associated with a truly European market to be enjoyed; 
6. Whereas the work to be carried out in this area should take full 
account, inter al la. of the framework constituted by the provisions 
of Council Directive 83/189/EEC of 28 March 1983 establishing a 
procedure for the provision of information in the field of 
technical standards and regulations,7 as last amended by Decision 
90/230/EEC,8 Council Directive 86/361/EEC of 24 July 1986 on the 
initial stage of the mutual recognition of type approval for 
telecommunications terminal equipment9 and Council Decision 
87/95/EEC on standardization in the field of information technology 
and telecommunications;10 
7. Whereas the European Telecommunications Standards Institute (ETSI) 
is currently drafting the European telecommunications standard 
(ETS) for digital short-range radio (DSRR); 
6 OJ No L 139, 23.5.1989, p. 19. 
7 OJ No L 109, 26.4.1983, p. 8. 
8 OJ No L 128, 18.5.1990, p. 15, 
9 OJ No L 217, 5.8.1986, p. 21. 
10 OJ No L 36, 7.2.1987, p. 31. 
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8. Whereas that standard must take account of the safety of users and 
the need for Europe-wide interoperability; 
9. Whereas the implementation of DSRR in Europe will provide a unique 
opportunity to establish a truly European and very inexpensive 
short-range digital radio system and DSRR will not normally be 
connected to the public network; 
10. Whereas it must be possible for users of DSRR terminals in a 
Member State to use their equipment in all the other Community 
Member States; 
11. Whereas ETSI has estimated that DSRR will require 2x2 MHz in all 
the Member States; 
12. Whereas the European Conference of Postal and Telecommunications 
Administrations (CEPT) has adopted Recommendation T/R 20-10 on 
DSRR; 
13. Whereas the CEPT has chosen the common European frequency bands 
888-890 MHz and 933-935 MHz for DSRR in accordance with CEPT 
Recommendation T/R 24-04; 
14. Whereas DSRR should be given priority and protected in the 
888-890 MHz and 933-935 MHz bands; whereas, in view of the 
particular features of the system, protection of the monitoring 
channels (channels 1 and 79) is essential; 
15. Whereas low-power applications exist at these frequencies; 
1,6. Whereas Council Directive .../.../... of ... on the approximation 
of the laws of the Member States concerning telecommunications 
terminal equipment, including the mutual recognition of their 
conformity,11 will allow the rapid establishment of common 
conformity specifications for DSRR; 
11 0J No L 
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17. Whereas the establishment of DSRR in the Community depends on the 
allocation and availability of a frequency band in order to 
transmit and receive between base stations and mobile stations; 
18. Whereas the availability of the full range of the abovementioned 
frequency band will be indispensable for the establishment of DSRR 
on a Europe-wide basis. 
HAS ADOPTED THIS DIRECTIVE: 
Article 1 
For the purposes of this Directive, "Digital Short-Range Radio - DSRR" 
means any equipment conforming to the European telecommunications standard 
(ETS) for this type of equipment. 
Article 2 
1. Member States shall designate the frequency bands indicated in CEPT 
Recommendation T/R 75/02 (888-890 and 933-935 MHz) for DSRR systems 
by 1 January 1992. 
2. DSRR systems shall have priority and shall be protected in the 
designated frequency bands. 
Article 3 
1. Member States shall bring into force the laws, regulations and 
administrative provisions necessary to comply with this Directive 
by 31 December 1991, and shall forthwith inform the Commission 
thereof. 
The provisions adopted by Member States shall contain a reference 
to this Directive or be accompanied by such a reference on official 
publication. Details of this reference shall be decided by the 
Member States. 
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2. Member States shall communicate to the Commission the text of the 
provisions of national law which they adopt in the field governed 
by this Directive. 
Article 4 
The Commission shall report to the Council on the implementation of this 
Directive by the end of 1995. 
Article 5 
This Directive is addressed to the Member States. 
Done at Brussels, For the Council 
The President 


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