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
Date: 1991-06-12
Institutions: European Commission
Subjects: European standard, communications systems, harmonisation of standards, radio equipment, technical standard, transmission network

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) 

-  2 -

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) 

- 3 

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. 

- 4 -

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. 

-  5 -

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; 

- 6 -

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. 

-  7  -

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. 

- 8 -

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. 

-  9  -

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. 

-  10 -

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. 

-  11 -

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. 

-  12 -

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. 

- 13 -

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  2 x2  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 

-  14 -

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. 

-  15 -

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 

ISSN 0254-1475 

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