EN    EN  COMMISSION OF THE E UROPEAN COMMUNITIES 
Brussels, 2.7.2007 
COM(2007) 371 final 
  
COMMUNICATION FROM THE COMMISSI ON TO THE COUNCIL, THE 
EUROPEAN PARLIAMENT, THE EU ROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMI TTEE OF THE REGIONS 
The ITU World Radiocommunication Conference 2007 
(WRC-07) 
 
EN 2   EN Table of Content 
1. The European and Global Dimensions of Spectrum Policy......................................... 3 
2. European Preparations for WRC-07 ............................................................................ 4 3. Relevant Community policies for WRC-07................................................................. 5 4. Future Mobile Communications................................................................................... 6 5. Other Priority Issues..................................................................................................... 8 6. More Flexibility in the Global Spectrum Regulatory Framework ............................. 10 
7. Agenda for the Next Conference (WRC-11).............................................................. 10 
8. Conclusion.................................................................................................................. 11 
 
 
EN 3   EN COMMUNICATION FROM THE COMMISSI ON TO THE COUNCIL, THE 
EUROPEAN PARLIAMENT, THE EU ROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMI TTEE OF THE REGIONS 
The ITU World Radiocommunication Conference 2007 
(WRC-07) 
 
(Text with EEA relevance) 
1. THE EUROPEAN AND GLOBAL DIMENSIONS OF SPECTRUM POLICY  
The radio spectrum  is a scarce and valuable natural resource  that can have significant 
societal and economic impacts1 for all sectors using wireless technologies, such as media, 
mobile communications, defence and aviation. Sp ectrum is an economically important input 
for the provision of public and commercial services based on wireless technology, for 
scientific research and for establishing inte rnational transport and communications networks2.  
Spectrum harmonisation in Europe is a key enabler for the completion of the EU Single 
Market  in goods and services, and on a wider le vel can foster international commercial 
exchanges by removing technical barriers to tr ade. The challenges of managing the radio 
spectrum effectively are often better addres sed by cooperation between countries. Together 
with the value of economic activit ies - total value of spectrum-dependent services in the EU is 
in excess of EUR 200 € billion, i.e. between 2 % and 2.5 % of annual European gross product 
– this explains why Europe as an economic area must give importance to international 
negotiations affecting ra dio spectrum usage. 
In recent years, activities to de velop a coherent European radio spectrum policy have gathered 
pace, and have supported common policy areas, su ch as the Information Society, Environment 
and Transport. With the Radio Spectrum Decision3 (RSD), the Community has laid the basis 
for a regulatory and policy framework to ensure  that the radio spectrum requirements of 
relevant Community policies are satisfied.  
Within this framework, policy issues are addr essed in a Community context in the Radio 
Spectrum Policy Group, (RSPG), an adviso ry body to the Commission. The relevant 
regulatory measures to harmonise the use of  spectrum across the Community are undertaken 
in the Radio Spectrum Committee ( RSC ).  
The coordination of spectrum at a global level is the responsibility of the International 
Telecommunications Union ( ITU), a United Nations agency with the mission to maintain and 
extend international cooperation for the improve ment and rational use of telecommunications 
of all kinds. Every three to four years, the ITU holds the World Radiocommunication 
                                                 
1 A recent UK study estimates economic benefit of over € 1000 per capita in 2005 arising from the use of 
spectrum, based on consumer and producer surplus.  
2 As highlighted by priority action 2 of the EU's Lisbon process, endorsed by the 2006 Spring European 
Council, which mentions explicitly the role of spectrum management in promoting knowledge and 
innovation. 
3 Decision 676/2002/EC of the European Parliament and the Council of 7 March 2002.  
 
EN 4   EN Conference, a process aimed at adapting the ITU Radio Regulations (RR), the international 
treaty coordinating spectru m usage globally. The next World Radiocommunication 
Conference  (WRC-07), the culmination of several years of preparatory work, will be held in 
Geneva from 22 October to 16 November 2007.  
The Commission shall participate in WRC-07 as a non-voting sector  member of ITU. In this 
capacity, the Commission shall endeavour to  support those European common positions 
which are in line with and relevant to Community policies.  
This Communication aims to inform the Eu ropean Parliament and the Council about 
Community policies that could be  affected by the outcome of WR C-07. It seeks to obtain their 
endorsement of the policy objectives to be achieved and of the posit ion to be taken by 
Member States at the WRC-07 conference. 
2. EUROPEAN PREPARATIONS FOR WRC-07 
EU Member States negotiate in the ITU as inde pendent members. In pr actice, they choose to 
develop their technical positions together within CEPT, an association of 47 national spectrum and telecom authorities, before negotiatin g with the rest of th e world on the basis of 
consolidated European positions ("Europe an Common Proposals"). Administrations 
participating in the CEPT process agree to supp ort or at least not actively negotiate against 
such common positions. 
While the CEPT is effective in developing  the detailed European negotiating positions 
required for a technical-regulat ory conference like WRC, Me mber States are bound by the 
obligations they have subscribed  under the EC Treaty and by the acquis communautaire
4. 
Therefore, the development of technical positi ons in CEPT needs to be complemented by 
considerations on the overall Community interests in the negotiations.  
For this purpose, the RSD requires coor dination of Community positions and the 
establishment of common policy objectives  in WRC. Member States and the Community 
must develop common actions a nd closely cooperate during the whole negotiation process in 
order to safeguard the unity of the international represen tation of the Community.  
In line with this commitment, the Commission ensures the coordination of policy approaches 
based on the adoption of Commun ity policy objectives in a dvance of WRC and monitors 
Europe’s involvement in the process. For th is reason, it tasked the RSPG to develop an 
advisory Opinion on the Comm unity objectives for WRC-075. This activity was supported by 
a public consultation and two public workshops. 
                                                 
4 Member States of the EU submit a joint declaration for inclusion in the Final Acts of a WRC, stating 
that they will apply the revision of the ITU RR ad opted at the conference in accordance with their 
obligations under the EC Treaty. 
5 Revised RSPG Opinion on WRC-07 of 14 February 2007. 
 
EN 5   EN The overall objective  of the European Commission in the WRC process is to ensure that 
decisions are taken that support  Community policies  and initiatives.  
Together with the Council Presidency, the Commission will endeavour to assist Member 
States in maintaining common negotiating positions  during the conference. To this effect, 
Member States should support the positions identified by the Commission and endorsed by 
the Council and by the European Parliament, as well as those European Common Proposals 
which fulfil Community policy objectives. Any modifications of positions during the 
negotiations should take due account of  underlying Community interests.  
3. RELEVANT COMMUNITY POLICIES FOR WRC-07 
The WRC-07 agenda needs to be seen before  the background of existing Community policies 
and principles. General EU objectives to be supported in the WRC include: 
• the consolidation of the European Single Market ; 
• the removal of technical barriers to international trade ; 
• the promotion of competition  between alternative infrastructure platforms; 
• the development of innovation -friendly conditions for new technologies, 
including via open standards. 
The following sectorial policies are also relevant in this respect:  
i2010 – European Information Society 2010 , is a new strategic framework laying out broad 
policy orientations. It promotes an open a nd competitive digital economy and emphasises ICT 
as a driver of inclusion and qua lity of life. A key element of  the renewed Lisbon partnership 
for growth and jobs, i2010 will build towards an integrated approach to information society and audio-visual media policies in the EU. It includes the provision of a common EU 
regulatory framework for electronic communi cations, based on clea r principles and 
obligations.  
Audiovisual Policy
 underpins the transmission of social and cultural values, with 
fundamental public interests at stake, such as  freedom of expression and the promotion of 
cultural diversity. Broadcasting services and networks are regulated by the general EC 
electronic communications fram ework, while a new Directive on content (Audiovisual Media 
Services) has been agreed. 
Research and Development  in the EU seeks to enhance the gains in competitiveness to be 
achieved by technological innovation by c oordinating national and EU policies and 
encouraging the networking of research teams. The Community’s RTD Framework 
programmes fund significant amounts of pre-competitive research. 
Environment  protection is a political priority for th e EU in the context of climate change. 
European policy initiatives in this area incl ude GMES (Global Monitoring for Environment 
and Security), which aims to enable decision makers in Europe to acquire the capacity for 
independent monitoring.  
 
EN 6   EN Transport  policy aims to develop an integrated  transport system in the European 
Community, inclusive of all transport mode s. In order to further this policy, the 
implementation of a broad range of measures to  develop integrated transport systems (road, 
airborne, rail and maritime) is being pursued 
Space  is an important strategic resource for the EU to implement some of its broader policy 
goals. Applications which the Community enc ourages in this context include satellite 
broadband communications to tackle the “digita l divide”, Earth observation and positioning 
systems. 
In its Opinion on WRC-07, the RSPG confirme d the overall EU policy background and has 
advised the Commission on the posit ions Europe should take at th e conference with regard to 
specific negotiating items. The Commission broadly agrees with the views of the RSPG. The 
following sections clarify specific positions in this context.  
4. FUTURE MOBILE COMMUNICATIONS  
An important focus of the conference will be in the area of future mobile communication 
systems6. A clear demand for additional spectrum to  be identified globally for these systems 
has been demonstrated in the preparations for WRC-077.  
In order to satisfy this additional demand, spectrum bands in frequencies both below and 
above the frequencies currently used by mobile systems in Europe are being considered.  
The Commission believes the focus should be on identifying those frequency bands which can 
promote a convergent  telecommunications environment in the long term. 
4.1. HIGHER FREQUENCIES  
Among the relevant candidate bands at higher  frequencies than th e spectrum currently 
available for mobile systems in Europe is the C-band ( 3.4-4.2 GHz ). While this band is 
attractive for future mobile systems in Europe, it is being used as a backbone broadband 
network by satellite services, notably in developing countries . Technical sharing solutions 
accommodating mobile requirements, while adequate ly protecting satellite interests in the C-
band at minimal cost for the satellite operators, will need to be sought as a matter of priority. 
A prioritisation of sub-bands  for satellite and terrestrial services within the 3.4-4.2 GHz 
band would give them both ade quate long-term guarantees of ope rating within this frequency 
band without undue interference. Sa tellite operations should retain a lasting prior ity in the 3.8 
– 4.2 GHz sub-band.  
4.2. THE UHF  BAND  
Due to its low frequency, the UHF broadcastin g band (470 to 862 MHz)  provides optimal 
signal propagation characteristics  in terms of coverage and indoor penetration. Network 
                                                 
6 WRC-07 will consider spectrum requirements for so-called "IMT" technology, which includes "IMT-
2000", the family of mobile telephony standards recognised by ITU commonly known as "3G", as well as "IMT-Advanced", which includes radio inte rfaces supporting new capabilities of IMT-2000. 
7 One of the main inputs into the ITU analysis was a study for the European Commission on spectrum 
requirements for Future Mobile Services . 
 
EN 7   EN infrastructures in the UHF band co uld thus be significantly more cost-effective than existing 
systems and could facilitate the deployment of mobile systems in sparsely-populated regions 
and highly-built urban areas.  
The Commission has been consistently advoc ating that Europe should pursue the common 
goal of maximising the societal and economic poten tial of the "digital dividend", i.e. the 
spectrum bands potentially released  by switchover to digi tal broadcasting. This means that the 
use of the UHF band should not be "frozen" by the present spectrum allocation situation but 
should be assessed in the light of the opportunities provi ded by new, efficient uses, keeping in 
mind general interest objectives8. 
Several Member States are already implementi ng national strategies to switch off analogue 
TV and to exploit the digital dividend. It is th erefore urgent to explor e any potential European 
added value. High-level policy declarations to th is effect have been made recently both by the 
European Council9 and by the European Parliament10. The Radio Spectrum Policy Group has 
also advised the Commission11 to promote the advantages of introducing an appropriate 
degree of flexibility in the use of this band  in order to cope with future technology 
breakthroughs as well as evolving market demands.  
At the same time, equal regulatory treatm ent of all spectrum used for electronic 
communication services is essentia l to foster constructive indust ry cooperation, especially for 
converging mobile and multimedia services such  as mobile TV and "triple play" offerings, 
without precluding duly justified exceptions to  fulfil audiovisual policy requirements which 
are in the general interest.  
An optimal use of the digital dividend requi res actively removing undue regulatory barriers to 
the provision of innovative services in the UHF band. Currently, the ITU Radio Regulations 
grant broadcasting services a higher regulatory status (a "primary allocation")12 in the UHF 
band in Europe13. Since additional spectrum for mobile se rvices is being considered by WRC-
07, a first step in the direction of more flexib ility could be taken by upgrading the status of 
these services to the same status as br oadcasting services at this conference.14 
                                                 
8 See COM(2005) 461. 
9 The Council of 14-15 December 2006 called for "… a coordinated approach to the extent possible for 
the use of the spectrum capacity available as a result of digital switch-over… ". 
10 The EP adopted a Resolution on 14 February 2007 in which it declared that "… part of the dividend 
should be earmarked for technical harmonisation at European level " and that it "… encourages the 
Commission to take into account the reality of the spectrum dividend when defining the future direction 
of radio spectrum policy… ". It also called the Commission to ensure "… that sufficient account is taken 
of the significance of broadcasting with regard to the freedom of opinion of individuals, and of diversity 
of opinion when transmissi on capacities are alloca ted at European level".  
11 RSPG Opinion on the Digital Dividend of 14 February 2007. 
12 The ITU RR differentiate between "primary" and "s econdary". Services with a secondary allocation 
must not cause harmful interference to, and must  accept interference from, primary services. When 
there are multiple services within a frequency band with the same status, they all have equal rights, 
giving priority to earlier operation. 
13 Formally in the so-called "ITU Region 1". The IT U RR divide the world in three different "regions". 
Region 1 includes Europe and Africa. 
14 The GE06 Agreement signed in 2006 following the ITU RRC-06 conference provides a comprehensive 
regulatory framework for the protection of digital broadcasting from harmful interference. The 
Commission has also given CEPT a formal mandate on technical considerations regarding harmonisation options for the digital dividend. 
 
EN 8   EN 4.3. PROTECTION OF EXISTING MOBILE SPECTRUM  
Various satellite systems are being launched by countries outside Europe using parts of the 
band 2500 – 2690 MHz. In the light of the use of th is spectrum in Europe in the near future 
for third-generation mobile networks, Europe will need to ensure its interests are safeguarded by an adequate protection and compatibility with satellite systems. 
Community policy objectives
 
It is economically important for the Community that the mobile indust ry continues having 
access to sufficient radio spectrum resources. Therefore: 
– Part of the 3.4 to 4.2 GHz band should be ma de available for mobile services on a non-
exclusive basis in Europe. Adequate solutions  should be implemented for current satellite 
users in this band. 
– An upgrade in the mobile service's status in the UHF band in Europe would increase 
flexibility and remove a potential constraint to  the future optimal or ganisation of this band. 
– Every effort should be made to minimise th e risks of interference to IMT-2000 networks 
operating in the EU in the 2.5–2.69 GHz  band from satellite services. 
5. OTHER PRIORITY ISSUES  
5.1. SUPPORT FOR SCIENTIFIC USES OF SPECTRUM  
The scientific use of radio spectrum has a cons iderable societal and economic value and needs 
to be supported15. Scientific uses of the spectrum incl ude Earth Exploration satellites (EESS), 
meteorological satellites and space research sy stems, which support EU policies in the areas 
of environment, space, and RTD. The observation of natural or man-made physical phenomena can often only be undertaken in sp ecific frequencies. The challenge is to 
safeguard the effective operation of scientific  services without placing disproportionate 
constraints on other important sectors. 
Community policy objectives
 
EESS is an essential part of the GMES initiative, the European contribution to the Global 
Earth Observation System of Systems (GEOSS) , important for the Community's Environment 
policy. Its continued protection from interference , as well as duly justified additional spectrum 
allocations for scientific se rvices, are to be supported. 
5.2. REORGANISATION OF HF BANDS  
High-frequency (HF) or "short- wave" spectrum bands which ar e essential to transmit radio 
signals over long distances have come under pressu re from different users, in particular radio 
broadcasting, aeronautical, military and maritime mobile services. The in-depth consideration 
of this band taking place at WRC-07 may poten tially impact relevant EU audiovisual and 
transport policies.  
                                                 
15 See the RSPG Report and Opinion on Scientific Use of Spectrum of 25 October 2006. 
 
EN 9   EN Short-wave broadcast radio is poi sed to embrace the benefits of digital technology and 
should be supported by sufficient spectrum cap acity. New broadcasting services based on 
digital technologies such as DRM (Digital Radio Mondiale) t echnology offer the prospects of 
reviving long-distance radio and contribute to  the dissemination of European culture and 
perspectives on the global scene. Further HF  spectrum for broadcasting will assist the 
successful uptake of digital radio broadcasting technologies. 
Key HF maritime services are also gradually switching over to digita l transmission. WRC-07 
should address the spectrum needs of this sector in a timely manner while ensuring 
appropriate continuity with critical analogue services. 
Community policy objectives  
The switchover from analogue to digital technology of short-wave  radio broadcasting and of 
maritime services should be assisted by accommodating their spectrum requirements in the 
review of the HF band due at WRC-07.  
5.3. FUTURE SPECTRUM NEEDS FOR AVIATION  
The creation of a Single European Sky in the EU has the objective to optimise air traffic 
management and aviation safety, in order to satisfy all users of the airspace, this being a 
common asset to be managed co llectively regardless of na tional borders. The Community 
policy interests related to aviation include creat ing additional flight capacity and increasing 
the efficiency for air traffic ma nagement (ATM). To achieve these objectives, there is a need 
for co-ordinated introduction of new and more spectrum-efficient technologies. The 
unavoidable situation of parallel operation of old and new aeronautical systems is recognised, 
but it should be kept to the minimum. Spectru m already allocated for aviation should also be 
used as efficiently as possible, cons istent with safety considerations. 
Community policy objectives  
Sufficient spectrum for aeronautical teleme try and air-to-groun d voice and data 
communications would serve the ob jectives of the Single Europ ean Sky, keeping in mind the 
target of minimising the duration of parallel use of radio spectrum by old and new systems. 
5.4. SATELLITE COMMUNICATIONS  
WRC-07 is to review some of the ITU rules pertaining to satellite systems. Satellite 
communications are recognised as an integral pa rt of the Information Society and as one of 
the main pillars of the EU's space policy. Satell ites are an important alternative platform for 
electronic communication services , providing capabilities for pan- European coverage of new 
services, including broadband data, thus helping bridge any 'dig ital divide' developing in the 
rural and remote areas of Europe. 
Community policy objectives  
While the ITU principles of equitable access to spectrum and orbital resources are 
fundamental, it should be ensured that the glob al regulatory framew ork is supportive of 
concrete industrial initiatives to develop and operate viable satellite communication systems. 
Current satellite filing proce dures ought to be simplified wh ile existing satellite systems 
should be safeguarded within  the satellite planning pr ovisions in the ITU RR.  
 
EN 10   EN 6. MORE FLEXIBILITY IN THE GLOBAL SPECTRUM REGULATORY FRAMEWORK  
The Commission has recently expressed its position16 that spectrum ought to be regulated 
more flexibly, in line with an ear lier RSPG Opinion on this subject17. 
WRC-07 provides an important opportunity  to debate at the global level the strategic 
direction  for the future of spectrum management, by considering the results  of studies carried 
out by ITU on the effectiveness, appropriatene ss and impact of the RR with respect to 
technology evolution, with a view to id entify options for improvements. An agenda item at 
WRC-11  would be an appropriate focus fo r concrete progress on this issue. 
Community policy objectives  
Community interests would be best served by a global framework which supports the removal 
of undue regulatory restrictions to the use of the radi o spectrum, thereby enhancing its flexible 
and efficient use and introducing more competition between different radio infrastructures. 
7. AGENDA FOR THE NEXT CONFERENCE (WRC-11) 
Each World Radiocommunication Conference estab lishes the agenda for the next conference. 
It is in the interest of the Community to support initi atives leading to fu ture WRC conferences 
which relate directly to particular EU policy requirements .  
The Commission has already identified the need  for more flexibility in the global spectrum 
regulatory framework to be explicitly addresse d by the WRC-11 conference (see section 6). In 
this context, the possibility of upgrading the status of the fixed service in the 470-862 MHz 
band should be on the agenda of WRC-1118.  
Most WRC decisions have an impact and applicab ility over a long time frame (often 10 to 20 
years after the conference). It is therefore impor tant to ensure that agendas are sufficiently 
"future-proofed" to be able to address the spectrum require ments of important policies and 
trends. EU policies which are relevant in this  context and which are likely to increase in 
importance over this period include: 
• Sustainable development and climate change : particular attention should be given to 
efforts undertaken to identify the spectrum require ments for future applications in this area 
and to ensure that they are anchored in a timely manner in the ITU process. 
• Pan-European networks and services,  in transport and in el ectronic communications: for 
instance, additional spectrum requirements for the next-generation European Air Traffic Management system
19 may be required, and the WRC-11 ag enda ought to be able to cater 
for this eventuality, as well as for unmanned aerial vehicles and ae ronautical satellite 
communications. 
                                                 
16 See COM(2007) 50.  
17 RSPG Opinion on WAPECS of 23 November 2005. 
18 Without pre-empting a primary allocation to the mobile service in this band being granted by WRC-07 
in Region 1. 
19 See COM(2007) 103.  
 
EN 11   EN • Overcoming "digital divides",  in particular for rural areas , for the elderly, the disabled 
and for other disadvantaged communities. Additional consideration about spectrum for satellite communications and fo r devices supporting medical and assistive technologies 
would be required
 . 
In preparation of WRC-11, the Commission will work with all releva nt stakeholders to 
identify the specific spectrum needs of such policy areas to be supported at the conference. 
Community policy objectives  
The next WRC agenda in 2011 should be flex ible enough to address any spectrum needs 
arising from important Community policies, such  as the Single European  Sky and Sustainable 
Development. Further progress on general spectr um flexibility would also require a specific 
agenda item on this topic. 
8. CONCLUSION  
The European Parliament and the Council are called to endorse the Community objectives 
identified in this Communication working towards the successful implementation of relevant Community policies, and in particular actions  by Member States at the conference, by: 
• Accommodating the spectrum de mands of mobile systems 
– Identifying the 3.4 to 3.8 GHz freq uency band for this purpose on an 
non-exclusive basis; 
– Upgrading the regulatory status of th e mobile service in the UHF band; 
– Protecting the 2.6 GHz band for terrestri al third-generation mobile use; 
• Ensuring the effective protection of Earth E xploration and other scientific services 
from harmful interference; 
• Satisfying the necessary spectrum requirements for digital radio broadcasting and 
for maritime services in the HF band; 
• Enhancing the regulatory framework to  support genuine satellite systems; 
• Providing sufficient spectrum for aeronaut ical telemetry and air-to-ground voice 
and data communications; 
• Preparing actions supportive of Community  policies in view of the next WRC 
Conference due in 2011. 
Following WRC-07, the Commi ssion will report on the results of the conference  with 
regards to Community policies and on the prepara tion of the next conferen ce due to take place 
in 2011. It will also begin without delay preparations to translate relevant results of the 
WRC-07 conference in appropriate European Community measures .