Communication from the Commission to the Council, the European Parliament, the Economic and Social Committee and the Committee of the Regions - Results of the World Radiocommunications Conference 2000 (WRC-2000) in the context of radio spectrum policy in the European Community
Date: 2000-12-06
Institutions: European Commission
Subjects: communications systems, satellite communications, telecommunications, telephone, waveband

COMMISSION OF THE EUROPEAN COMMUNITIES

Brussels, 06.12.2000
COM(2000) 811 final

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL,
THE EUROPEAN PARLIAMENT, THE ECONOMIC AND SOCIAL
COMMITTEE AND THE COMMITTEE OF THE REGIONS

RESULTS OF THE WORLD RADIOCOMMUNICATIONS
CONFERENCE 2000 (WRC-2000)
IN THE CONTEXT OF RADIO SPECTRUM POLICY IN THE
EUROPEAN COMMUNITY

TABLE OF CONTENTS

1.

2.

3.

Introduction ............................................................................................................... 3

Assessment of WRC-2000.......................................................................................... 4

2.1 Community Interest at WRC-2000..................................................................... 4

2.2 Results of WRC-2000 for Issues of Community Interest .................................... 6

2.3. Results of WRC-2000 for Some Other Issues.................................................... 8

Significance of the WRC-2000 Decisions and considerations for future
Community Actions.................................................................................................. 9

3.1 IMT2000/UMTS .............................................................................................. 9

3.2. GALILEO ...................................................................................................... 11

3.3. Broadband satellite ......................................................................................... 12

3.4. Fixed wireless communications ...................................................................... 13

3.5. Satellite broadcasting...................................................................................... 13

3.6. Other issues .................................................................................................... 14

4.

Operational Aspects of WRC-2000 ......................................................................... 14

4.1. Conference Organisation ................................................................................ 14

4.2. CEPT Co-ordination ....................................................................................... 15

5.

Looking ahead to WRC-03...................................................................................... 17

5.1 The Evolving Role of ITU ................................................................................ 17

5.2 Proposal for a Community Decision on Radio Spectrum Policy ....................... 18

5.3. Areas for Improvement.................................................................................... 19

6.

Conclusions .............................................................................................................. 21

GLOSSARY

2

1.

INTRODUCTION

Radio spectrum is an increasingly scarce and therefore valuable resource1 which
requires adequate co-ordination between different users in order to make sure all
needs are taken into account. Spectrum-dependent industries (such as mobile telephony
or broadcasting) are experiencing rapid growth in Europe and already form a vital
component of the European economic environment2. The non-commercial aspects of
spectrum use are also increasing in importance, whether it is for safety-of-life services at
sea and in the skies, in research or in defence. Radio systems for all these applications
can only be developed as long as sufficient dedicated spectrum is planned and
harmonised well in advance of their actual deployment.

By its very nature, radio spectrum needs to be co-ordinated across borders. Decisions on
the frequencies which various radio services may use under specific conditions are made
at World Radiocommunications Conferences (WRC3). These conferences are held
the auspices of the International
every two or three years and organised under
Telecommunication Union (ITU), a specialised agency of the UN, and where some 190
countries, including the 15 EU Member States, are eligible to participate.

It is the job of WRC to review and, if necessary, to revise the Radio Regulations, the
international treaty obligations governing the global use of the radio spectrum and
of satellite orbits. The latest conference, WRC-2000, was held from 8 May to 2 June
2000 in Istanbul.

A significant number of Community policies in the areas of telecommunications,
transport, broadcasting and RTD are dependent on an adequate supply of radio
spectrum. For this reason, the European Commission participated in the WRC-2000
process, though it was only indirectly involved in the negotiations themselves4. Prior to
the conference, the Commission published a Communication on the European positions
for the WRC-20005 with the objectives to ensure that the European negotiating positions
developed
and Telecommunications
administrations (CEPT) for WRC-2000 were consistent with relevant Community policy
objectives and to raise political awareness about the Community issues at stake in WRC-
2000.

by the European Conference

of Postal

1

2

3
4

5

€

100 billion in revenue for national treasuries.

As epitomised by the recent licensing of new 3G mobile services in Europe, which have raised to
date over
58 billion and is growing by an
The mobile services market in the EU is estimated to be worth
average of 20% per year in terms of value (source: European Commission, Sixth Report on the
Implementation of the Telecommunications Regulatory Package, November 2000 draft).
A glossary explaining all the acronyms used in this communication can be found in Annex I.
The status of the Commission in ITU/WRC is that of a “regional and other international
organisation” which means that its formal role in WRC-2000 was that of a non-voting observer.
COM(2000) 86, 8 March 2000.

€

3

Broad political support for the Community policy objectives and for the European
negotiating positions was provided by the Council of ministers when it adopted Council
Conclusions6 which,
though not as comprehensive as the Commission would have
wished, helped to reinforce the previous Communication’s messages in a timely manner.

In line with Council’s invitation to the Commission to report rapidly to the European
Parliament and to Council on the results of WRC-2000, this Communication aims to:

•

•

•

2.

2.1

assess the extent to which the results of WRC-2000 satisfy Community policy
objectives with regard to radio spectrum in the areas of telecommunications,
transport, broadcasting and RTD (chapter 2);

assess the significance of the results and their implications for possible Community
actions in specific spectrum-using sectors (chapter 3);

evaluate the WRC-2000 negotiation process (chapter 4) and to identify possible
areas of improvement before the next World Radiocommunications Conference
(chapter 5).

ASSESSMENT OF WRC-2000

Community Interests at WRC-2000

The Commission’s primary objectives at WRC-2000 were to ensure that the European
negotiating proposals were in line with and supportive of Community policies, and that
Community interests were adequately safeguarded during the
conference
negotiations in the areas of communications, transport, broadcasting and research. The
Community’s interest for these sectors is as follows:

Communications

ICT (Information and Communication Technologies) policy is developing as an
increasingly important chapter for the Community, both to satisfy a specific user demand
and to develop the Information Society in general. The recent European Summits of
Lisbon and Feira have confirmed the political will to fully exploit the potential for the
Community of these new technologies. New Information Society applications will rely
heavily on wireless communications in the future (in particular on third-generation
mobile communications, IMT-2000) for which the availability of radio spectrum will be a
key factor for successful deployment.

6

Council Conclusions on the Commission Communication on WRC-2000, 2/5/00.

4

Transport

One of the main objectives of Community policy in transport is to deploy networks
across Europe, to interconnect them and to ensure their efficient operation. One of the
ways to deal with congestion on European roads and skies is via better traffic
management. The development of the GALILEO intelligent transport and navigation
system is part of Europe’s response to this challenge, and will enable European
companies to better tap into the rapidly-growing location-based service industry.

The recent Commission initiative on the creation of the single European sky7 has been
triggered by concerns for the escalating delays of air traffic management in Europe.
Securing sufficient access to interference-free radio frequency spectrum for air traffic
management is key to increase the safety and efficiency of air transport operations.

Broadcasting

At Community level, broadcasting has so far been addressed mainly with regard to
content8, aiming to ensure access to high-quality and culturally diverse programmes
across national borders. The co-ordination of access to spectrum for broadcasting systems
is so far not covered by a specific Community policy. However, the development of a
strong competitive satellite broadcasting market for which a clear demand exists will
facilitate the provision of pan-European broadcasting services. At a moment when
Europe discusses intensively the future of digital TV, a change affecting the conditions
governing the satellite broadcasting may change the balance with other modes of
In addition, frequency allocation is a key issue
transport (cable, terrestrial digital TV).
for the terrestrial broadcasting sector, as it evolves from analogue to digital services.

RTD

The European Union financially supports a full range of research and development
activities in the Community, on the basis of the 5th Framework Programme for Research,
Technological Development and Demonstration Activities (1998-2002), with the aim to
contribute to the international competitiveness of European industry and to valorise the
Union’s policies in fields such as environment, agriculture, fisheries, health, energy and
regional development. Such support is provided for instance by the funding of Earth
observation technologies, including satellite technologies for meteorology, ecosystem
management and environmental monitoring.

The European Commission and the European Space Agency are developing a joint policy
on space9 which, besides covering generic space research and space technology,
addresses applications of communications, radio positioning and observation by satellite.

7

8

9

See Commission Communication “The Creation of a Single European Sky”, COM(1999) 614.
e.g. the Television without Frontiers Directive (89/552/EEC, amended 97/36/CE).
See the Commission Communication “Europe and Space:
COM(2000) 597, based on a joint ESA/EC document.

turning to a new chapter",

5

2.2

Results of WRC-2000 for Issues of Community Interest

Given the long lead times needed for system implementation, the consequences for users
of radio services of the agreements reached at WRC-2000 will not be fully apparent for
some time. Nevertheless, on the basis of current knowledge, it is the Commission’s view
that the results of WRC-2000 largely comply with the five Community policy
objectives identified in the Communication on the European positions for WRC-
2000, namely for third generation mobile systems, satellite navigation, broadband
satellite, fixed wireless communications and satellite broadcasting.

2.2.1.

Third Generation Mobile (IMT-2000/UMTS):

The Community’s interest was to support the successful development of third-generation
mobile communications in Europe by securing at global level radio spectrum availability
additional to the already available radio frequency bands.

WRC-2000 did succeed in identifying three optional frequency bands10 to accommodate
additional spectrum for IMT-2000 applications in the quantity deemed necessary to
support the expansion of this industry in the future. ITU members have the flexibility to
determine whether, when and to what extent to allocate IMT-2000 applications in the
identified bands.

2.2.2.

Satellite Navigation Systems (GALILEO):

The Community’s interest was to ensure radio spectrum availability for satellite radio-
navigation systems which would allow for a prominent and independent role of the
Community in this area of major strategic and industrial importance.

Virtually all Community objectives with regard to spectrum availability for GALILEO
have been achieved,
thanks to the effective performance of the CEPT negotiators,
coupled to solid political support from the EU and strong interest from some non-EU
countries In addition, the WRC-2000 debate on spectrum for radio navigation systems
helped to increase the visibility of GALILEO, which - although a Community
programme - was not widely known in the ITU context prior to WRC-2000.

2.2.3.

Broadband satellites

The Community’s interest was to facilitate the competitive provision of satellite
broadband services while taking due account of the radio spectrum requirements of
existing terrestrial and space-based services.

The conference adopted technical spectrum sharing conditions in particular bands11
where a number of different satellite systems (GSO, NGSO, FSS, BSS) are operational or

10

11

The bands 806-960 MHz, 1710-1885 MHz and 2500-2690 MHz for the terrestrial component of
IMT-2000.
The so-called “Ku-band” (10-18 GHz) and “Ka-band” (18-30 GHz).

6

are planned. These sharing rules which had already been provisionally adopted at WRC-
97, subject to the successful conclusion of further technical studies, will allow for the co-
existence, and the shared use of spectrum by all the various satellite systems using these
bands. Provided these systems observe certain interference thresholds and other
parameters, they will be able in future to be licensed without further co-ordination efforts.

2.2.4.

Fixed Wireless Communication

The Community’s interest was to ensure sufficient spectrum for the timely deployment of
reasonably-priced and flexible fixed wireless systems, in order to provide an alternative
to wire-based infrastructures for the supply of multimedia applications to European
citizens.

The results of WRC-2000 for HDFS were mostly in line with European requirements,
with the identification of four new globally-harmonised bands for terrestrial fixed
services above 30 GHz. These bands can be used in Europe to provide broadband Internet
access at home or in public places (airports, train stations, etc.), but also to deploy base
station networks for IMT2000/UMTS services. However, in the band 39.5 –42 GHz, the
original European position needed to be modified in order to take into account other
regions’ insistence to allow fixed satellite services in this band. The result is that the two
services are required to co-exist in the majority of this whole band from now on (except
for sub-band 40-40.5 GHz, exclusively allocated to the fixed satellite service), which
given the high number of fixed terrestrial stations expected in Europe, will complicate
any co-ordination between these two services.

2.2.5.

Satellite Broadcasting

The Community’s interest was to ensure a fair but efficient distribution of resources
(orbital positions, channels) needed for existing and new satellite broadcasting systems
according to market demand in order to facilitate the provision of cross-border European
services and the development of a competitive satellite broadcasting market in Europe.

The issue of revising the global plan governing the sharing of spectrum and of orbital
slots for broadcasting satellites has been the subject of disagreement for several years
between Europe and notably the Arab countries. Europe was opposing any planned
increase of national BSS spectrum allocation without reviewing the principles and
modalities of usage. Resolving this issue was of paramount importance, as the lack of
agreement could have jeopardised the whole conference. Nevertheless, a compromise
which satisfied both sides was found just before WRC-2000 opened: by relaxing the
sharing criteria between BSS and FSS, it became possible to increase the BSS allocation
from 5 to 10 channels per country.

The revised Plan can in principle accommodate only national systems. However, the
agreed solution also provides for the means to protect existing systems, notably those
with multinational coverage relevant
to Europe. The Conference also tackled BSS
systems not yet compliant with the Plan. Systems under preparation or systems with a
footprint across several countries will be recorded in a “List of additional uses”.

7

2.3.

Results of WRC-2000 for Some Other Issues

2.3.1. High Altitude Platform Systems (HAPS)

These “balloons in the sky” have the potential of providing broadband services to
metropolitan areas at affordable prices. If successfully rolled out, such systems could also
introduce a welcome degree of flexibility and of additional competition in the broadband
sector. Despite the lack of existing operational systems, WRC-2000 decided to maintain
the present HAPS allocation around the 48 GHz band until review at the next conference,
in order to enable the concept to be validated commercially.

In addition, each HAPS station has the potential of replacing a considerable number of
cellular base stations and of repeaters in high-density urban environments. WRC-2000
therefore did not preclude the possibility of HAPS being used as platforms for IMT-2000
systems in the core bands (between 1.9 GHz and 2.2. GHz).

2.3.2.

Aeronautical Service

to ensure that

The Community has a keen interest
traffic
management capacity and safety are not constrained by insufficient spectrum or by
interference. WRC-2000 was positive in relation to the Community’s objectives for
aviation both in terms of sharing conditions with new services12 (set such as to ensure
interference-free operation of existing aviation infrastructure) as well as giving some
degree of assurance13 that frequencies would be available to the aeronautical service via
satellite communications.

improvements in air

2.3.3. Mobile Satellite Services (MSS)

A CEPT proposal to allocate the band 1518-1525 MHz to MSS (space-to-Earth) was not
accepted at the conference. However, the conference invited the ITU to study this issue
further up until WRC-2003 which will then consider additional allocations to MSS in the
1-3 GHz band. Also, so-called 'little LEOs' (MSS systems operating below 1 GHz) will
be examined again during the next conference. Up until then, the MSS industry will have
the opportunity to demonstrate that it is able to make effective use of the spectrum
allocated to it thus far.

The MSS community’s lack of substantial progress at WRC-2000 is possibly linked to
the highly-visible commercial failures the sector has suffered recently. More positively,

12

13

Allocation to the radio navigation satellite service in the range 1 to 6 GHz under the condition that
existing navigation and radar infrastructures are protected. Also the 2.7-2.9 GHz band is not a
candidate for IMT-2000 extension due to the absence of feasibility studies on sharing with 10 cm
radars.
Generic allocation of the band 1.5-1.6 Ghz : Resolution COM5/22 calls on administrations to
ensure that satellite operators reserve a part of their capacity for the aeronautical service through a
frequency co-ordination procedure or through a technical mechanism of prioritisation and real-
time pre-emption. ITU-R has to study the feasibility of this technical mechanism. Availability of
frequencies for aeronautical service will be reviewed at WRC 2006.

8

extension bands for the satellite component of IMT-2000 were identified at
the
conference, thus enhancing the opportunities of the satellite sector to provide viable
commercial 3G services.

2.3.4.

Satellite filing procedures

to tackle the difficulties caused by the ITU administrative
WRC-2000 was meant
procedures adopted for the filing of future satellite systems. It is generally acknowledged
that the “first come, first served” procedures presently used for satellite applications have
encouraged a “hoarding” attitude of frequencies and orbital slots for new satellites. The
filing with ITU of applications of a speculative nature (so-called “paper satellites”) has
meant that real plans for new satellite systems have great difficulty in fulfilling all
administrative due diligence requirements without being significantly delayed. With the
awareness that the ITU administration has at present a three-year backlog of satellite
applications (over 1350 filings to be processed), some corrective measures were proposed
at WRC-2000, namely to apply financial due diligence procedures and administrative
cost fee recovery to the applicants.

The main proposals on the table were not accepted – the only agreed modification to the
current procedure is a new requirement that all filings be submitted in an electronic
format, a result which will not reduce the backlog by itself, though it will help in better
disseminating information about the systems filed, and this way perhaps reduce the
number of multiple filings.

3.

SIGNIFICANCE OF THE WRC-2000 DECISIONS AND CONSIDERATIONS FOR
FUTURE COMMUNITY ACTIONS

3.1

IMT2000/UMTS

The WRC-2000 results give additional regulatory certainty for investing in and
licensing of third-generation mobile communications. While confirming the prior ITU
decisions on the IMT-2000 core bands, the WRC-2000 decision in effect paves the way
for the extension in the medium term of the spectrum used by these services beyond the
frequency bands available today. This in itself is arguably the most important
achievement of WRC-2000, since the perspective of further spectrum will strongly
support the industrial and commercial development of IMT-2000/UMTS services in
Europe, expected to start within the next 12-18 months.

Considering the diverging negotiation positions initially presented at WRC-2000, the
conference probably delivered as much consensual agreement as was realistically
possible14. The decisions taken are not allocations of spectrum per se, but rather

14

In fact, WRC-2000 was instrumental
in demonstrating to administrations lagging in the
development of IMT-2000 services the real momentum building behind this technology and the
critical need for sufficient 3G spectrum. Thus, since WRC-2000, the U.S. president has requested
the relevant federal agencies to develop a plan for the identification and analysis of possible

9

constitute a declaration of intent for additional spectrum for IMT-2000. It will now be
important for the Community to prepare for the effective allocation of this spectrum. The
Commission intends to support this process, also taking into account that many network
operators are now considering third-generation mobile communications services in a
clear pan-European (as well as increasingly global) business perspective.

A key issue remains from the conference, namely to what extent the WRC-2000
decisions are conducive to support a world-wide harmonisation of third generation
systems to allow for cost-effective global roaming, given that three distinct extension
bands have been identified, from which ITU members are free to choose the most
appropriate frequencies for operation. Strictly speaking, the objective of harmonising
IMT-2000 frequency bands at global level has not been achieved, since administrations
can choose from a wide choice of frequency bands for the allocation of IMT-2000
services or even of services using other technologies, based on national requirements.
This may hinder real and effective global harmonisation unless there is a pro-active effort
in this direction by regional and international
regulatory authorities. However,
technological progress in the area of multi-band/multi-mode terminals may help offset
the difficulties related to spectrum fragmentation, resulting in the availability of world-
wide roaming for IMT-2000 services.

At the beginning of WRC-2000, Europe had announced its preference for a specific band
(around 2.6 GHz). The uptake of Europe’s preferred spectral solution will now
depend on how credibly Europe proceeds in a co-ordinated manner towards an
effective allocation of this band throughout Europe. This might
influence and
encourage other regions of the world to follow suit with the same band.

The timing of the provision of additional spectrum to IMT-2000 services in Europe is of
course strongly dependent on the speed of roll-out and uptake of the new 3G networks15.
The Community will need to continue monitoring this issue, since in order for new
services not to be limited by a lack of spectrum, harmonisation activities will need to be
undertaken well in advance of actual requirements, following the procedures established
under the UMTS Decision.16

The administrations of the Member States are now faced with the challenge to prepare
decisions and licensing conditions on the allocation and assignment of the extension
bands (including, where necessary, to launch relocation procedures). The experience

spectrum bands for 3G services by October 20th, 2000 and to auction licenses on the retained
spectrum by September 30th, 2002 (Presidential Memorandum of October 13th, 2000). In addition,
Brasil and other South American countries are now openly leaning towards adopting the “core”
bands for IMT-2000 services.
The UMTS Forum specifies that “Extension Bands should need to be made available from year
2005 or later subject to market demand” (Report on Candidate Extension Bands for UMTS/IMT-
2000 Terrestrial Component, March 1999).
Decision No 128/1999/EC of the European Parliament and of the Council of 14 December 1998
on the co-ordinated introduction of a third-generation mobile and wireless communications
system (UMTS) in the Community (OJ L 17, 22.01.1999, p. 1).

15

16

10

gained when issuing the first set of third generation licenses will need to be taken into
account during this process. Though the decisions taken at WRC-2000 should result in
additional spectrum becoming available in the longer term, it is unclear whether the
opportunity to increase competition in Europe will be fully exploited by issuing
additional 3G licenses, thus allowing new players to enter this market. The Commission
intends to follow this issue closely.

Some of the bands identified at WRC-2000 for future ITM-2000 systems are heavily used
in Europe by second-generation systems. Other regions in the world might decide to use
these frequencies as extension bands for IMT-2000, while current and prospective mobile
operators in Europe may make the case for a direct evolution/migration from GSM1800
to IMT-2000. This will accelerate the discussion on how to manage the transition from
the second to the third generation of mobile communications, including the spectrum
currently used by GSM. However, the discussion will need to consider various possible
scenarios, as much will depend on how the third generation mobile communications
market is going to develop.

Besides spectrum considerations, the evolution of the IMT-2000 family itself needs to be
taken into account when deciding on the best options for using the identified extension
bands. Proposals to adapt the IMT-2000 air interfaces are already emerging in ITU. It is
therefore important to make sure that any planning for the use of the extension bands will
accommodate new technical solutions evolving from the current family of standards,
since this might impact on the spectrum allocation.

3.2.

GALILEO

Without succeeding in accessing the required spectrum, the Community would have seen
the viability of the GALILEO project compromised. Following the WRC decisions to
provide sufficient spectrum for satellite navigation systems, the way is now paved
for GALILEO to play an important function at global level. The focus will now move
on the means to validate the GALILEO proposal and ultimately to implement
it.
However, certain specifically spectrum related tasks still need to be followed up in the
context of GALILEO.

In the short-term, it is necessary to file a notification of GALILEO towards the ITU, that
is a request to use the newly allocated spectrum for this particular system. In accordance
with ITU procedures, this must be done through a national administration. In order to
demonstrate the Community dimension of this filing,
the
it
appropriate political support
to this notification is given by all Member States, as
happened recently with the filing of GALILEO frequencies to ITU by the French
administration.

is now important

that

The co-ordination process and the final assignment of the frequencies to the GALILEO
system are questions to be addressed both at Community and at CEPT level in the next
few years (notably before WRC-03), since some further studies on sharing bands with
aeronautical systems, for instance, will be required within the ITU framework.

11

Further co-ordination with the Russian Federation and the USA will still be necessary in
order to ensure compatibility with the American (GPS) and Russian (GLONASS)
systems of radionavigation by satellites. In these negotiations, the European position is
now reinforced, as GALILEO will be able to rely on newly available spectrum with
significant bandwidth. However, the question of sharing bands already allocated to RNSS
and assigned to GPS and GLONASS before WRC-2000 is still being discussed with the
USA and Russia.

3.3.

Broadband satellite

Broadband satellite systems can provide fast Internet and other data services to areas
where terrestrial network deployment is not physically nor economically feasible. The
result obtained at WRC-2000 is fully in line with the commercial interests of the EU
in this sector, and will support the development of different technologies in the same
frequency bands, without the need to give priority to one type of technology over the
other. It will arguably lead to greater efficiency of spectrum usage in the respective
frequency bands, and help to optimise the use of a scarce resource. The WRC-2000
results will allow for a more flexible framework for satellite radio allocation which will
enable operators to share the same spectrum where appropriate and increase the
penetration of services.

The resolution of this highly complex and technical issue marks a new trend in spectrum
management. By using software to dynamically control usage and transmitter power
levels, it is possible to develop a technical and regulatory framework within which
frequency ranges can be shared between different applications and operators, without
compromising on performance and reliability. This new approach re-uses otherwise
wasted spectrum capacity and moves the entire radio industry away from the concept of
rigidly assigning spectrum to specific uses. The concept of sharing and re-use has
therefore the potential to ensure that future systems will not be hampered by a lack of
spectrum, while the significant investment in existing services can be protected. It has to
be ensured, though, that the approach can lead to a fair burden-sharing between the
respective user communities. This balancing of interests does not necessarily take place
within the ITU framework but often at national or regional level.

As a number of satellite broadband systems are preparing for deployment within the next
three to five years, it will be necessary at Community level to monitor carefully the
market development in order to decide whether policy initiatives are necessary to support
the harmonised introduction of such satellite systems and in particular whether a
harmonisation of spectrum planning and a discussion on licensing conditions needs to be
initiated.

12

3.4.

Fixed wireless communications

One of the objectives of the eEurope initiative17 is to remove the bottlenecks to Internet
use in Europe by inter alia supporting the allocation of harmonised frequencies to
multimedia wireless systems. WRC-2000 allocated more spectrum to HDFS in the high
frequency bands above 30 GHz. This additional spectrum will enhance the
development of new rapidly-deployed and cost-effective local wireless systems in
Europe.

An issue requiring further consideration is whether the development of the wireless local
loop market would be enhanced by introducing spectrum harmonisation initiatives for
these systems at Community level. A political
issue merits
consideration within the Community and has already begun.

reflection on this

While taking into account that the sharing parameters allowing the co-allocation of
spectrum to HDFSS in the 40.5-42.5 GHz band are provisional for now and will be
studied and further reviewed at WRC-03, the European spectrum managers will also need
to address the results of WRC-2000 in the work on HDFS/HDFSS. This particular band
may also offer Europe the possibility of a consensual approach to spectrum
harmonisation measures for HDFS, with resulting economies of scale and benefits for a
Single Market for the provision of infrastructures for these services.

3.5.

Satellite broadcasting

Considering that spectrum availability is crucial to satellite broadcasting, the WRC-2000
decisions on the allocation of orbital positions and spectrum for BSS are likely to impact
on the development of broadcasting in Europe18.

In general, WRC-2000 attempted to introduce more flexibility in the BSS plan. The use
of spectrum allocated at national level is no longer blocked by complicated conditions as
in the past, since usage conditions are now simplified. Furthermore, the increased number
of digital channels provided in the Plan will improve the viability of the business model
for this sector. By introducing a “list” concept, alternative procedures are now foreseen
which also protect systems not complying strictly with the Plan. This introduces another
element of flexibility, besides giving enough legal security to existing systems to be able
to operate without new or more stringent spectrum usage conditions.

The WRC-2000 decisions have therefore the potential to increase the competition in
the satellite broadcasting sector and are in line with the policy objective pursued at

17

18

See http://europa.eu.int/comm/information_society/eeurope/index_en.htm
Note that terrestrial broadcasting was not a major subject at WRC-2000. The frequency aspects of
the transition from analogue to digital broadcasting in Europe are expected to be addressed over
the next five years in a regional ITU conference of the EBA (European Broadcasting Area), tasked
to revise the existing frequency assignment plan (the so-called “Stockholm ‘61” European
Broadcasting Agreement) in the bands 174-230 MHz and 470-862 MHz.
In addition, sharing
criteria of terrestrial broadcasting Earth stations with BSS are due to be addressed in WRC-03
(agenda item 1.27).

13

Community level. At the same time, the new rules are still complicated and the exact
modalities governing the protection of systems against other systems have not been
decided at WRC-2000, and will be subject to further studies.

It must be noted that the new Plan does not satisfy everybody, and resulting difficulties
need to be sorted out before all countries can accept the WRC-2000 result. Also, some
countries may have difficulties in endorsing certain regulatory clauses limiting their
rights to deny delivering authorisations for systems for which co-ordination is not fully
completed and where a risk of interference is only suspected rather than demonstrated. It
will therefore be important that a consensus in Europe is achieved on the remaining open
questions.

3.6.

Other issues

The Community has an interest in seeing the issue of satellite system filing solved, as it
can constitute a major hurdle to regional or global satellite systems which could provide
Community-wide services. A reflection process could be launched to find practical
modalities within the frame of the ITU procedures to reflect Community support for
future filings where a Community dimension is identified.

The Community has a general interest to ensure that basic and applied research and
development, including radio astronomy, are not unduly constrained by insufficient
spectrum or by interference. A joint, coherent Community approach towards obtaining
sufficient frequencies and orbital slots for applications of satellite Earth observation, for
research and for environmental monitoring may be necessary in the future, with the
Community working in concert with European and national space agencies and other
stakeholders. This could contribute to a common European research infrastructure within
a European Research Area.

Concerning the aeronautical service, the actions which are being developed as part of
the Single Sky initiative to improve ATM in Europe, may require a co-ordinated
Community approach to safeguard frequencies for the introduction of new technology in
ATM.

4.

OPERATIONAL ASPECTS OF WRC-2000

4.1.

Conference Organisation

Despite the fact that WRC-2000 was a well-organised event which delivered once again
global radio allocation results acceptable to most interested parties, the sheer size of the
is causing increasing logistical and negotiating problems19. While the
event

19

Some indication of the scale of this month-long conference: 2370 delegates took part, representing
836 organisations and 150 countries; 544 original documents were drafted during WRC-2000,

14

conference was ably managed by a hard-working steering committee, it is clear that under
such conditions there could be no simple overview of on-going proceedings. Though
solutions to all individual issues emerged in time to produce a positive overall result, the
risk for the conference managers of losing control on the outcome of the conference was
always present. Given the ever-increasing complexity of the WRC process together with
the changing environment for global spectrum management (see chapter 5.1), its structure
and organisation should be kept under review.

it was preceded by over two years of continuous
Before the conference started,
levels. The long preparations involving both
preparations at national and regional
spectrum users and regulators, especially spectrum managers and industry, were essential
in ensuring that the conference bore fruit. WRC-2000 also displayed a greater effort
between regions to approximate their positions before the start of the conference, thereby
these
following the request
undertakings were at times greeted with a degree of concern by regions not involved in
some of the regional dialogues20. Such attitude reflects the “zero-sum game” approach
which has been customary in international spectrum allocation negotiations, but which
needs to be overcome in order to provide for satisfactory global compromises.

formulated by ITU members at WRC-97. However,

Overall, WRC-2000 was characterised by a heavy and dispersed workload for the
attending delegates. The WRC process had also to contend with negotiating linkages
between various items. In particular, though it ultimately did not affect the outcome of
WRC-2000, the review of the satellite broadcasting plan had to take place in parallel with
the other negotiations. Since it was not originally foreseen as a negotiating topic at this
conference, this additional activity further complicated proceedings and added to the
workload.

Taking all these circumstances into account, the WRC-2000 negotiations proceeded
nevertheless well, and political disputes did not hinder the work to the same extent as
experienced in previous WRCs. The overall economic impact of spectrum allocation
was better understood and taken account of in this conference, though perhaps still not
to the extent wished for by commercial actors requiring access to radio-frequencies.

4.2.

CEPT Co-ordination

Negotiations on behalf of Europe were carried out by CEPT, the European Conference
for Posts and Telecommunications, in which the Member States participate21. From an

20

21

entailing the production and distribution of more than 20 million pages of documents for the
delegates; official negotiating sessions numbered in the hundreds.
Notably concerning the CEPT-Arab League agreement at the very start of the conference, which
was instrumental in averting a potentially serious conflict on the issue of BSS re-planning (see
chp. 2.2.5.), and which enabled common positions about other important issues to be established
between the two regional groups.
For the working arrangements for WRC, see the Council conclusions on WARC-92 (2/2/92);
Council conclusions on the Commission Communication on WRC-97 (7/9/97); Council
conclusions on the Commission Communication on WRC-2000 (2/5/00).

15

operational point of view, CEPT co-ordination worked adequately, coping with the
difficult framework of numerous detailed negotiations evolving in parallel, formally
separate but often linked to each other in practice. Positive aspects of the CEPT operation
were:

• Most of the European proposals on specific issues were adopted at WRC-2000.

• All Member States and most non-EU CEPT countries adhered in general to the
the CEPT22 which had been defined before the

co-ordination guidelines of
conference to improve the regional organisation’s effectiveness at WRC-2000.

• CEPT undertook a sustained effort to approximate regional proposals prior to and
during the conference with its counterparts, such as CITEL (Americas), APT (Asia-
Pacific) and the Arab countries. Such approximation helped to prepare for acceptable
compromises and led to the ultimately successful outcome of the conference. A
significant factor in the conference’s success was CEPT’s systematic approach in
opening up its preparations for WRC-2000 proceedings to all groups of interest and to
third-country observers, an attitude replicated to a lesser extent by other regional
organisations.

• European industry was involved in the negotiations to a greater degree than at
previous conferences, via its substantial participation in national delegations and its
effective, well-targeted lobbying activities. Its constructive role in the negotiations and
its support for overall CEPT positions were evident23.

Within the context of an overall positive result, CEPT co-ordination did encounter a
number of challenges during the negotiations, mainly because the disparate national
interests of European delegations on specific issues cannot always be completely
supported by the CEPT negotiating positions, which themselves are compromises
emanating from internal discussions. In addition, some European delegations were
numerically unable to cover all the negotiations in the conference, and had therefore to
rely to a certain extent on the larger CEPT delegations for feedback and input. Also, the
necessity to negotiate during the conference with other regional entities required CEPT to
put in place ad hoc steering groups. Because of this, some small delegations and observer
organisations had difficulty in understanding whether shifts of position expressed by
other CEPT delegates in formal WRC sessions actually reflected a new agreed position
within CEPT or simply that particular delegation’s point of view.

Overall, operational difficulties such as these were bound to arise in a group of 43
delegations over four weeks of negotiations, and the good results obtained by Europe at
WRC-2000 indicate that these difficulties were ultimately manageable through the
CEPT framework.

22

23

CPG 2000-7, (2000) 66, Annex VI.
Since the end of the conference, a number of industrial organisations and trade associations have
openly declared their satisfaction with the results of WRC-2000.

16

5.

LOOKING AHEAD TO WRC-03

the next World
One of the tasks of WRC-2000 was to define an agenda for
Radiocommunications Conference, due to take place in 2003. A long list of topics was
agreed upon for WRC-03 – some 35 specific items, together with 7 administrative
activities – and successfully submitted to the subsequent formal approval of the ITU
Council.

As was the case for previous WRCs, an analysis of the relevance to Community interests
or policy initiatives of negotiating items such as radio-navigation, IMT-2000 and beyond,
HIPERLAN, public protection systems, space services, and sharing between BSS and
terrestrial Earth stations, will help to focus the European effort before and during WRC-
03. The Commission intends therefore to prepare a Communication on the Community
issues at stake at WRC-03.

The satisfactory conclusion of WRC-2000 is a good starting basis for the Community to
focus on future international radio spectrum allocation. Preparations for WRC-03 have
already begun. The way the Community approaches WRC-03 will be influenced by
several factors. Three of them (developments in technology, evolution in global
spectrum management thinking and the proposal for a Community spectrum framework)
are presented in the following section, together with some options for enhancing the
chances of achieving Community objectives at the next conference.

5.1

The Evolving Role of ITU

Over the last ten years, the context of WRCs has changed considerably, from being a
decision-making process primarily on a technical level to one where economic and
political forces, driven by liberalisation, competition, globalisation and technological
the global spectrum allocation
innovation, have become apparent.
mechanisms of ITU are evolving. Two of the most important factors for change are:

In parallel,

• Convergence: the increasing similarity in the way wireless data is handled using
packet networks and the prospect of spectrum-efficient technologies (such as “smart
radios” and UWB) are raising questions concerning the actual differences between the
various wireless services defined by ITU and discussed at WRC. The wireless
networks of the future will be able to carry data emanating from voice, audio and
video without any distinction. Commercial wireless applications will also become
increasingly integrated, bi-directional,
interactive and fully functional. Allocating
spectrum between various services as presently defined will therefore become less
meaningful and less relevant to users’ real needs.

• Determination of the value of spectrum : no explicit attempt is made presently in
WRC to quantify the distribution of net costs and benefits of allocation decisions.
Valuable spectrum is often allocated on the basis of historical precedent or of
equitable resource sharing. However,
in recent years the quantification of the
spectrum’s commercial value by means of auctions, administrative pricing and
secondary trading has been increasingly taking place in many countries. In addition,

17

the determination of spectrum value for non-commercial systems, whether
for
scientific, safety of life or social applications, is fundamentally different from that for
commercial applications and is also an issue now being actively studied.

in particular bands,

it does not address the fundamental

this new emphasis on spectrum value may increase the efficiency of
Whilst
assignment
issue of
inefficient allocation on a global scale, since the value of spectrum for different
users, whether in economic, social or cultural terms, is not an explicit criterion of the
allocation process. This way, applications which are particularly commercially or
socially desirable, and therefore heavy users of spectrum, will sometimes suffer from
frequency “rationing” which will drive upwards the value of the frequencies allocated
for these applications, while adjacent spectrum may remain under-exploited.

The ITU is undergoing a broader process of reform, with the objective of updating its
procedures and working principles24. This process will need to address also the trends
outlined above, in order to ensure that spectrum is allocated as efficiently as possible at
WRC. The Community will endeavour to support those reforms aiming to improve the
use of spectrum.

5.2

Proposal for a Community Decision on Radio Spectrum Policy

Future improvements to spectrum policy co-ordination are being proposed in a
Community context. Following a public consultation on the 1998 Green Paper on Radio
Spectrum Policy
such as
telecommunications, broadcasting, transport, and R&D25, the Commission has adopted a
proposal for a European Parliament and Council Decision on a regulatory framework for
radio spectrum policy in the Community26.

context of European Community policies

in the

In its proposal for a Decision, the Commission proposes to complement, rather than to
replace the present spectrum management activities at Community level by establishing a
policy and legal framework through which Community policy input can be provided to
the CEPT and the ITU.

Different national policy objectives to be pursued often come to the fore at WRC. It is
therefore important to ensure that political discussions take place prior to WRC in the
Community so as to pave the way for establishing agreement on the technical details in
the CEPT and the ITU/WRC. The proposal for a Decision on radio spectrum policy in
the Community, should help enhancing the preparations for WRC. The proposed
policy framework should facilitate a reflection on the policy requirements which need to
be supported during the preparation of the negotiating positions (European Common
Proposals - ECPs) prepared before the conference. The policy and legal framework to be
established will be used to identify overall Community policy objectives before each

24

25

26

See http://www.itu.int./newsroom/reform/index.html
COM(98) 596.
COM(2000) 407.

18

conference, to assist in preparing ECPs to achieve such objectives, and to ensure that
Community-specific common concerns are taken into due account.

Taking the above-mentioned into account, it is therefore urgent to make progress with the
proposal for a Spectrum Decision. This approach is expected to facilitate the cohesion of
Member States’ delegations during the conference and the achievement of results in line
with Community needs.

5.3.

Areas for Improvement

It is already clear that WRC-03 will be even bigger and more complex than previous
conferences and of ever-greater relevance for users of radio spectrum. The importance for
the Community of the applications mentioned above for the European citizen suggests to
consider several actions before and during WRC-03, in order to improve the opportunity
for successful negotiation on these topics. These may include:

CEPT Preparations and Resources

Given the increasing importance of the WRC process and the rise in workload expected
for WRC-03, CEPT has started preparations at an early stage following WRC-2000 via
its CPG (Conference Preparatory Group), and will continue its constructive approach
towards transparency and open discussion, both internally and with other organisations
before the conference27 All Member States and CEPT will need to consider providing
their delegations with sufficient resources before and during WRC-03.

Industrial Involvement

As globalisation in the telecommunication,
IT and broadcasting markets gathers
momentum, it is essential to ensure continuity in the partnership between European
industry and European spectrum managers within the WRC process. As an example,
the European Union’s significant development in wireless markets is reflected by a strong
industrial sector, which needs access to spectrum on a global basis and which can be
effective in assisting the European regulators to obtain this spectrum.

While significant efforts have been carried out to include the point of view of industry,
certain sectors seem to be more present in the spectrum discussions than others. Besides
the communication sector, it is therefore important that all industries depending on access
to spectrum articulate their view.

The positions of Industry need also to be weighed against the input from other groups.
The end-users of spectrum-dependent services are generally not sufficiently represented

27

Concerning transparency, CEPT has shown the path which other delegations are following. See
for example the analysis of the US’ delegation’s strengths and shortcomings prepared by the US
Head of Delegation, Ambassador Schoettler
(Recommendations to Improve United States
Participation in World Radiocommunication Conferences, at
http://www.ntia.doc.gov/osmhome/wrc/wrcrecommendations.htm)

19

in WRC in order to reflect adequately socio-economic considerations. Also, public
interests must always be considered,
to be defended by national administrations
themselves, as they are often conflicting with the point of view of industry. A proper
balancing of all inputs is a goal which should be led by a political discussion of
spectrum issues at stake in the WRC context.

Strengthening European Cohesion and External Contacts

Additional efforts must be considered to clarify and support CEPT-agreed positions,
within CEPT, with other regions (Africa, Arab League, APT, CITEL…) and with
relevant international organisations (NATO, ICAO, IMO, IATA, ESA, etc.). Whilst, with
one or two exceptions, Community delegations displayed impressive solidarity and
communality of interests at WRC-2000, the same cannot be said for some members of
the Commonwealth of Independent States (CIS) and, to a lesser extent, EU accession
candidates, with some of these delegations displaying negotiating positions at WRC-2000
significantly at variance with agreed CEPT positions. Such attitude is not surprising in
itself, since many of these countries have long had an approach to spectrum use different
from Community Member States. The fact that some former USSR republics are in
CEPT, while some are not, complicates the co-ordination with the rest of CEPT.

is now clearly understood by all main players that co-ordination rather than
It
confrontation is the key to success at WRC. The expected greater efforts by third
countries to influence those elements of CEPT susceptible to such an approach will pose
a threat to the CEPT common front at future conferences. A corresponding loss of
common ground between CEPT and other delegations may also be possible, in particular
concerning developing countries, which are being courted assiduously by Europe’s
trading partners, via high-level contacts and various types of assistance, such as helping
setting up regulatory bodies, training telecom managers, etc.

The Community could help to align the various positions within CEPT by opening a
spectrum dimension in the accession negotiations of prospective candidates to the
European Union. It could also cement support at WRC for European positions by
considering which initiatives could be taken to assist developing countries overcome the
“digital divide” in the telecommunications domain. At the same time, the Community is
developing new relationships with many of
the above-mentioned international
organisations. Furthering collaboration in the spectrum field could be envisaged with
some of these organisations.

Broadening and Deepening the Spectrum Debate

The economic and trade dimensions of spectrum allocation could also be brought
further to the fore in the Community as well as the political overview of the process.
CEPT is fortunate to be served by a consistent group of individuals with acknowledged
mastery of the technical and procedural aspects of international spectrum management.
On the other hand, economic and trade input in the WRC process is not as important as it
could be. The Commission’s proposal for a Spectrum Decision will enable to highlight
this dimension more successfully in the Community context.

20

While technical and procedural expertise must be the bedrock of a successful WRC
negotiation, political leadership and visibility can also play an essential function.
Other delegations have recognised this by appointing political officials to head their
teams and to be present throughout the WRC conference. The direct involvement of the
European Commission on behalf of GALILEO helped to produce a satisfactory result for
this specific negotiation item and could be used as an example of the type of additional
political support which could complement CEPT’s technical and negotiation skills.

Addressing Community Objectives

For its part, the Commission will prepare a specific Communication on WRC-03 closer
to the time of this conference, in order once again to define the objectives for areas of
Community interests. Assistance in the specification of such objectives and in all the
previously-mentioned proposals for enhancing the process in Europe will be actively
sought by the Commission from the future Spectrum Policy Group, as well as from other
interested parties.

6.

CONCLUSIONS

The results of WRC-2000 comply in overall terms with Community policy objectives
in the areas of telecommunications, broadcasting, transport and RTD. The prospects for
Europe’s mobile multimedia communications and radionavigation markets have
accordingly been enhanced by this conference.

The Member States, united in the CEPT, the Commission and the Presidency co-
operated constructively at WRC-2000. However, due to the strategic and economic
issues at stake with regard to radio spectrum, further efforts are needed to ensure that
the Community is fully involved where decisions on the availability of radio spectrum are
taken.

for a Decision on radio spectrum policy in the
The forthcoming proposal
Community is meant to serve all Community policy areas affected by radio
spectrum and will seek to ensure that appropriate Community interests are taken
into account in radio spectrum policy matters, including in ITU.

The results of WRC-2000 will be taken into account in the implementation and further
development of Community policies in the areas of telecommunications, broadcasting,
transport and R&D.

The next World Radiocommunications Conference (WRC-03) will be as challenging and
important to European interests as the conference recently concluded. Building on the
important achievements for Europe at WRC-2000, an early start
to European
preparations for WRC-03 is needed.

21

3G
APT
ATM
BSS
CEPT

CITEL

CPG
CPM
ECP
ERC
ERO
ESA
EU
FS
FSS
GALILEO
GLONASS
GNSS
GPS
GSM
GSO
HAPS
HDFS
HDFSS
IATA
ICAO
IMO
IMT-2000
ITU
LEO
MSS
NGSO
RAS
RNSS
RR
RTD
S-PCS
S-UMTS
UWB
UMTS
WRC

GLOSSARY

ANNEX

Third Generation mobile, following 1G (analogue) and 2G (GSM)
Asia-Pacific Telecommunity
Air Traffic Management
Broadcast Satellite Service
European Conference of Postal and Telecommunications
Administrations
Commission of Inter-American Telecommunications
Administrations
Conference Preparatory Group of CEPT
Conference Preparatory Meeting
European Common Proposal, to be adopted by CEPT/CPG
European Radiocommunications Committee
European Radiocommunications Office of CEPT
European Space Agency
European Union
Terrestrial fixed systems
Fixed Satellite Service
European satellite-based navigation and positioning system
Global Orbiting Navigation Satellite System of the Russian Federation
Global Navigation Satellite System
Global Positioning System of the United States
Global System for Mobile Communications
Geostationary Orbit
High Altitude Platform System
High-Density Fixed Service
High-Density Fixed Satellite Service
International Air Travel Association
International Civil Aviation Organisation
International Maritime Organisation
International Mobile Telecommunications for the year 2000
International Telecommunications Union
Low Earth Orbit
Mobile Satellite Service
Non-Geostationary Orbit
Radio Astronomy service
Radio Navigation Satellite System
Radio Regulations of the ITU
Research & Technological Development
Satellite Personal Communications Services
Satellite UMTS
Ultra-Wide Band
Universal Mobile Telecommunications System
World Radiocommunications Conference

22