Communication from the Commission to the Council, the European Parliament, the European Economic and Social committee and the Committee of the Regions on accelerating the transition from analogue to digital broadcasting {SEC(2005)661}
Date: 2005-05-24
Institutions: European Commission
Subjects: EU Member State, broadcasting, digital technology, technological change

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 24.05.2005 
COM(2005) 204 final 

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

on accelerating the transition from analogue to digital broadcasting 

{SEC(2005)661} 

EN 

   EN 

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

on accelerating the transition from analogue to digital broadcasting  

(Text with EEA relevance) 

TABLE OF CONTENTS 

1. 

2. 

3. 

4. 

5. 

6. 

Executive Summary ..................................................................................................... 3 

Introduction.................................................................................................................. 4 

The switchover process in Member States................................................................... 4 

Achieving the benefits from the switchover process ................................................... 6 

The European Dimension ............................................................................................ 8 

CONCLUSION............................................................................................................ 9 

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1. 

EXECUTIVE SUMMARY 

This  Communication  builds  on  the  2003  Communication  on  the  transition  from  analogue  to 
digital  broadcasting  (from  digital  ‘switchover’  to  analogue  ‘switch-off’)1  and,  in  the  light  of 
Member  States'  switchover  plans2  published  within  the  framework  of  the  eEurope  action  plan, 
and a recent opinion of the Radio Spectrum Policy Group3 proposes a deadline for switch off of 
analogue terrestrial broadcasting throughout the EU.  

Switchover  will  stimulate  innovation  and  growth  of  the  consumer  equipment  market,  and 
contribute to the renewed Lisbon agenda. For the consumer, the benefits of digital broadcasting4 
include  improved  picture  quality,  better  sound,  better  portable  and  mobile  reception,  more  TV 
and  radio  channels  and  enhanced  information  services.5  A  significant  economic  benefit  is  the 
additional spectrum capacity released by terminating analogue terrestrial television ('switch-off') 
since  digital  TV  is  significantly  more  efficient  than  analogue  TV  in  its  use  of  spectrum.  This 
offers a unique opportunity for the re-use of a premium part of the radio frequency spectrum for 
the  provision  of  convergent  services,  combining  mobile  telephony  and  terrestrial  broadcasting 
and for other new cross border and pan-European electronic communications services. The earlier 
the transition from analogue to digital broadcasting (the 'switchover') is started at national level 
and the shorter the transitional period, the sooner these benefits are realised. 

There  is  currently  little  or  no  coordination  of  the  switchover  plans  of  Member  States.  Of  those 
Member States that have announced a switch-off date, there is a first group of countries that plan 
to switch off by 2010 the latest, and a second group that plan to switch off by 2012. Economic 
and social benefits for the EU as a whole will only be fully achieved once all Member States have 
completed switch off. The Commission therefore proposes that the beginning of 2012 be agreed 
for switch-off in all Member States. Those Member States who have not yet announced switch-
off dates are encouraged to publish, by the end of 2005, plans to show how they would achieve 
switch-off by the beginning of 2012. 

With  regard  to  the  spectrum  released  by  switch-off  of  analogue  terrestrial  television,  Member 
States’  spectrum  plans  should  be  flexible  enough  to  allow  the  introduction  of  other  electronic 
communications  services,  in  addition  to  digital  broadcasting  services.  Part  of  any  spectrum 
dividend should be made available for pan-European services; this should be kept under review in 
the light of technological, regulatory and market developments. Member States need to maintain 
sufficient flexibility in this respect in ongoing international negotiations on spectrum.  

The  Commission  services  working  paper  associated  to  the  Communication  addresses  best 
practice  with  regard  to  consumer  information  strategies,  financing  aspects,  capacity  aspects  in 
networks with 'must-carry obligations and the situation of digital radio. 

1 

2 

3 
4 

5 

COM(2003) 541, see 
http://europa.eu.int/information_society/topics/ecomm/doc/useful_information/library/communic_reports/s
witchover/acte_en_vf.pdf  
Member states’ switchover plans are published on the Europa website at 
http://europa.eu.int/information_society/topics/ecomm/highlights/current_spotlights/switchover/national_sw
o_plans/index_en.htm  
See http://rspg.groups.eu.int/doc/documents/meeting/rspg5/rspg04_55_opinion_digit_switchover.pdf  
Throughout  the  document  digital  broadcasting  means  digital  broadcasting  transmitted  over  all  possible 
networks (e.g. terrestrial, cable, satellite, DSL). 
Most – but not all – of these advantages are common to the digitisation of all networks. 

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2. 

INTRODUCTION 

In September 2003 the Commission published a Communication on the transition from analogue 
to  digital  broadcasting  (from  digital  ‘switchover’  to  analogue  ‘switch-off’)6,  which  set  out  the 
benefits of switching over to digital television, explored various policy orientations, and initiated 
the  debate  on  EU  policy  orientations  on  the  amount  and  future  uses  of  spectrum  potentially 
released  at  switch-off  of  analogue  terrestrial  television  transmission7.  In  November,  the  Radio 
Spectrum  Policy  Group  (RSPG)  published  an  Opinion  on  spectrum  implications  of  the 
switchover to digital terrestrial broadcasting8. 

This  Communication  develops  a  position  in  the  light  of  an  analysis  of  the  switchover  plans  of 
Member  States  that  were  published  within  the  framework  of  the  eEurope  action  plan9,  and  the 
RSPG  Opinion.  The  Communication  also  draws  upon  the  results  of  studies  carried  out  for  the 
Commission  Services  in  the  areas  of  spectrum  trading  and  liberalisation10,  and  on  spectrum 
management in the field of broadcasting11. 

This  Communication  is  accompanied  by  a  Commission  Staff  Working  Paper  SEC(2005)661 
which  provides  more  details  on  switchover  plans  in  Member  States  and  on  implications  for 
spectrum planning, financing and digital radio. 

Suppliers  of  broadcasting  transmission  services  either  have  already  moved  over  to  digital 
transmission or tend to implement such a move in the near future12. On the demand side, where 
users  have  the  choice  they  increasingly  adopt  digital  transmission  and  give  up  analogue 
transmission. As a result of these supply and demand side trends the UK has already achieved a 
market share of 57% for digital broadcasting transmission and it can be expected that Europe will 
by the beginning of 2010 predominantly rely on digital broadcasting transmission and that by that 
time analogue transmission will play only a minor and steadily decreasing role. 

3. 

THE SWITCHOVER PROCESS IN MEMBER STATES 

The  public  consultation  undertaken  by  the  RSPG  suggested  that  the  main  obstacles  to  a  rapid 
switchover were: 

–  in  the  political  arena:  absence  of  political  decisions  such  as  national  switch-off  or 
political decisions not to set up switch-off dates, and a lack of European approach and 
policy; 

6 
7 

8 
9 
10 

11 

12 

See footnote (fn) 1 
Throughout this Communication and if not stated differently the term 'switch-off' means the switch-off of 
terrestrial transmission of analogue television. However the term  'switchover' refers to the transition from 
analogue to digital broadcasting in all networks including in particular terrestrial, cable, satellite and DSL. 
See fn 3.  
See fn 2.  
See "Study on conditions and options in introducing secondary trading of radio spectrum in the European 
Community" at 
http://europa.eu.int/information_society/topics/radio_spectrum/useful_info/studies/secondtrad_study/index_
en.htm 
See "Study on Spectrum Management in the field of Broadcasting" at 
http://europa.eu.int/information_society/topics/ecomm/doc/useful_information/library/studies_ext_consult/s
pectrum_mgmt_bc_dswo/final_report_v3.pdf 
Since  the  1980ies  there  are  no  market  entries  of  broadcast  transmission  providers  who  rely  on  analogue 
technology in Europe. New entrants such as satellite or DSL providers exclusively use digital transmission. 

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–  in  the  economic/market  arena:  need  for  a  large  installed  base  of  receivers;  poor 
consumer  demand  based  on  lack  of  incentives  to  switch  (lack  of  perceived  added 
value, cost of receivers, etc.); a reluctance, based on financial risks, from operators to 
invest. 

From  its  analysis  of  the  switchover  plans  of  Member  States,  the  Commission  has  identified  a 
number of factors that contribute to a successful switchover policy:  

1) 

The switchover process should be market driven, but at the same time broadcaster 
co-ordination  is  needed  to  achieve  a  smooth  technical  and  commercial 
implementation  (e.g.  compatible  timetables).  Member  States  which  rely  not  only 
on  a  market-led  approach  but  also  on  clear  public  policy  action  to  co-ordinate 
broadcasters  tend  to  be  earlier  in  the  adoption  and  switchover  process.  An 
important feature of co-ordination is agreement on the timing for different stages. 
This  provides  greater  certainty  for  market  players  supplying  digital  products  and 
services  and  will  therefore  encourage  them  to  stimulate  demand.  National 
switchover  processes  therefore  benefit  from  well  focused  co-ordination  of  all 
relevant  players.  Rapid  switchover  brings  immediate  benefits  at  Member  State 
level. 

2)  Another crucial factor for the success of the national switchover process is having 
an  effective  strategy  to  inform  consumers  about  programme  availability  on 
digital  platforms  and  the  equipment  needed  to  receive  such  programmes. 
Switchover also has the potential to contribute to better serve the specific needs of 
people  with  disabilities  and  attention  should  be  given  to  the  inclusion  of 
accessibility  requirements  in  the  user  interface  e.g.  EPG  (electronic  program 
guides) and receivers. 

Best practice with regard to consumer information strategies which the Commission has derived 
from  the  national  switchover  plans  is  presented  in  chapter  B  1.  of  the  associated  Commission 
staff working paper; implications for spectrum planning are explained in chapter B 2., an analysis 
of some financing aspects of switchover is provided in chapter B 3., capacity aspects in networks 
with 'must-carry obligations and the situation of digital radio are described in chapters B 4. and 
B 5. 

Switchover plans currently focus largely on terrestrial platforms. The principle of technological 
neutrality enshrined in the EU regulatory framework means that regulation should neither impose 
nor discriminate in favour of the use of a particular type of technology, but it does not preclude a 
Member State from taking proportionate steps to promote specific technologies for transmission 
of  digital  television  as  a  means  for  increasing  spectrum  efficiency13.  The  Commission  recalls 
however that digital TV switchover is a process encompassing various networks, business models 
and services14, and any differentiated treatment of market players or platforms must be justified. 

13 
14 

See Recital 18 of the Framework Directive and fn 16 
See fn 1. 

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4. 

ACHIEVING THE BENEFITS FROM THE SWITCHOVER PROCESS  

Consumer benefits from digital TV compared with analogue TV are wider choice, thanks to more 
TV  and  radio  channels;  greater  impact  and  realism  for  the  viewer,  thanks  to  the  possibility  of 
improved picture quality and better sound; greater flexibility, thanks to better portable and mobile 
reception,  and  enhanced  information  services  leading  to  greater  participation  thanks  to 
interactivity. These benefits derive primarily from the possibility of processing and compressing 
digital data, making much more efficient use of network capacity than is the case with analogue 
signals.  

Switchover has also the potential to contribute to better serve the specific needs of older people 
and of people with disabilities by providing assistive services such as improved subtitling, audio 
commentary and signing. Attention should be given to the inclusion of accessibility requirements 
in the user interface e.g. EPGs (electronic programming guides) and receivers. 

In  addition,  switchover  implies  reduction  of  future  transmission  costs  for  operators  of 
broadcasting  networks.  It  also  creates  opportunity  for  increased  sales  of  digital  receiver 
equipment  and  makes  storage  and  processing  of  content  easier.  The  market  for  digital  TV 
receivers  (either  set  top  boxes  or  integrated  into  TV  sets)  in  Europe  is  estimated  at  up  to  20 
million units per annum. These effects could contribute considerably to growth and employment 
in ICT markets.  

The other significant benefit that switchover brings is the additional spectrum capacity released 
in  particular  by  switch-off  of  analogue  terrestrial  television.  Information  provided  by  Member 
States in their national switchover plans estimate that digital terrestrial TV is 3 to 6 times more 
efficient than analogue terrestrial TV15 in its use of spectrum. This offers significant opportunities 
for reuse of one of a premium part of the radio frequency spectrum.16 Possibilities include: 

– 

– 

15 

16 

new or improved broadcasting services such as additional programming, programme-
related enhancements, better picture quality including features such as wide screen and 
high  definition  TV,  better  audio  quality,  data  and  interactive  services,  personal  and 
mobile television; such services can contribute to the fulfilment of objectives of general 
interest  such  as  cultural  diversity  and  media  pluralism;  in  addition,  new  services  can 
improve accessibility for people with disabilities; 

convergent  services  combining  features  of  mobile  telephony  and  terrestrial 
broadcasting,  such  as  mobile  ‘datacasting’.  A  mobile  society  has  a  continuously 
growing demand for mobile information and for ubiquitous availability and access to all 
kind of media and services. It is questionable if this demand can be fulfilled by mobile 
communication  services  alone  and  a  combination  of  mobile  communications  and 

See also fn 3 for more details about how to calculate the spectrum dividend. The efficiency gain of digital in 
comparison to analogue is even higher for cable and satellite transmission. 
Due  to  the  propagation  characteristics  in  the  spectrum  currently  allocated  to  terrestrial  broadcasting  this 
spectrum  can  also  be  used  for  a  large  range  of  wireless  and  mobile  services  such  as  individual 
communications (voice, sound, moving pictures) since the signal passes through buildings, can be received 
when  on  the  move  and  there  is  no  line  of  sight  required  between  the  sender  and  the  receiver.  For  signal 
transmission  in  the  spectrum  currently  allocated  to  satellite  broadcasting  there  is  however  a  line  of  sight 
required  and  the  signal  will  not  pass  through  buildings.  This  limits  the  range  of  possible  alternative 
applications in that part of the spectrum considerably. 

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broadcasting is one possible approach.17 The development and testing of such services in 
the  spectrum  made  available  by  analogue  switch  off  creates  considerable  potential  for 
innovation.18 Besides, operators of conventional mobile communications are looking for 
radio resources in lower bands than those used today in order to ensure full geographic 
coverage at commensurate investment levels; 

– 

other new electronic communications services that differ from today’s fixed or mobile 
offerings, such as wireless local area networks and wireless metropolitan area networks. 
The success of wireless local area networks operating in unlicensed bands is expected to 
increase demand for further unlicensed spectrum to be released as a means of spurring 
innovation and encouraging disruptive technologies to challenge existing services. 

The potential arrival of new entrants in all these areas at different levels in the value-chain will 
contribute  to  increased  market  competition  and  innovation  thanks,  for  instance,  to  new 
broadcasters  or  developers  of  interactive  applications,  or  increased  competition  between 
alternative electronic communication network operators.  

However  these  benefits  are  largely  associated  with  the  final  stage  of  a  successful  switchover 
process,  i.e.  the  switch-off  of  analogue  broadcasting.  During  the  transition  period,  switchover 
may temporarily aggravate capacity (and in particular spectrum) scarcity insofar as analogue and 
digital broadcasts are ‘simulcast’ in parallel. This problem is especially crucial in areas where the 
spectrum  space  is  already  over-crowded.  In  contrast,  there  are  other  areas  where  the  spectrum 
planned for already today is underused. 

Both  timing  and  the  duration  of  the  switchover  period  are  critical  factors.  The  earlier  the 
switchover process is started and the shorter the transitional period, the sooner the benefits 
described  above  are  realised.  Public  acceptance  and  understanding  of  the  benefits  of  digital 
television  will  be  important  for  accelerating  the  switchover  process,  as  will  popular 
understanding  of  the  additional  benefits  that  can  be  obtained  following  the  termination  of 
analogue  terrestrial  television  and  full  conversion  of  cable  networks.19  Retail  prices  of  digital 
receivers set top boxes have fallen since the Commission’s first Switchover Communication. The 
price  of  integrated  television  receivers  has  also  fallen.  Affordability  of  digital  television 
equipment is therefore a receding concern for most citizens.  

Given the potential of the spectrum bands released by switch-off of analogue terrestrial television 
for  new  and  innovative  services,  it  will  also  be  important  to  not  constrain  unduly  the  re-use  of 
these  bands.  Member  States’  spectrum  plans  should  be  flexible  enough  to  allow  the  future 
introduction  of  other  electronic  communications  services,  in  addition  to  digital  broadcasting 
the  Regional 
services.  A  key  action 
Radiocommunication  Conference  in  2006  (RRC06)  and  the  World  Radio  Conference  in 
2007  (WRC07)  is  to  maintain  the  possibility  of  flexibility  of  use  for  the  ex  analogue  TV 
bands.  While  flexibility  of  allocation  is  needed,  it  is  not  necessary  to  decide  at  this  stage  how 
any  spectrum  dividend  might  be  assigned  to  individual  users.  More  detail  on  implications  of 

its  Member  States 

the  EU  and 

for 

in 

17 

18 

19 

Currently  some  players  emphasise  that  digital  broadcasting  can  be  more  efficient  than  mobile 
communications to deliver a certain content to a wide audience. 
The early stages of development provide an opportunity to design technologies and services in a way which 
would prevent accessibility barriers for people with disabilities. 
The  migration  of  satellite  television  from  analogue  to  digital  is  already  far  advanced  and  a  spectrum 
dividend has already been achieved. 

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switchover  for  spectrum  planning  is  provided  in  chapter  B  2  of  the  Commission  staff  working 
paper associated to this Communication.  

Furthermore,  the  success  of  digital  switchover  will  be  enhanced  by  effective  competition  in 
digital  broadcasting  transmission  services.  In  order  for  end  users  to  derive  maximum  benefits 
from  digital  switchover,  National  Regulatory  Authorities  must  ensure  that  undertakings  with 
significant  market  power  in  markets  for  digital  broadcasting  transmission20  are  subject  to 
appropriate obligations in accordance with Art. 16 of the Framework Directive 

5. 

THE EUROPEAN DIMENSION  

Beyond the advantages at national level, an acceleration of the switchover process could increase 
learning  effects  and  promote  positive  examples  across  Member  States.  Many  of  the  new 
technologies and services depend on achieving a critical mass of users at the European level 
and become more attractive with an increased installed base of technology in Europe. 

Market  players  are  concerned  that  the  development  of  new  services  could  be  hampered  by 
different  implementations  from  country  to  country  in  Europe.  In  particular,  they  call  for  legal 
certainty regarding terrestrial spectrum that may be made available, and for obstacles caused by 
national borders to be minimized.  

Acceleration  of  the  switchover  process  at  Member  State  level  and  a  common  approach  to  the 
transition  period  and  switch-off  date  would  facilitate  a  rapid  switchover  in  Europe.  RSPG 
suggests  creating  a  limited  number  of  timetables  that  Member  States  could  consider  and  to 
investigate a common end to the transition process.21 

Spectrum for pan European services and many cross-border services such as traffic information 
and  fleet  management,  mobile  communications  and  datacasting  will  only  be  available  on  a 
European  scale  after  the  switch-off  has  taken  place  in  all  Member  States.  Cross-border 
applications could however already be launched earlier, in those Member States where switch-off 
has  already  taken  place.  There  are  grounds  therefore  to  promote  the  acceleration  of  national 
switchover processes and for seeking to agree a date by which analogue broadcasting would be 
switched  off  in  all  Member  States.  Such  acceleration  and  an  EU  deadline  for  the  switchover 
process  will  contribute  to  overcome  the  current  fragmentation  of  European  digital  TV  markets. 
This will enable European players to compete with other world-wide stakeholders in all parts of 
the  digital  television  value  chain.  This  would  have  positive  economic  consequences22  (exports, 
royalty revenues, improved position regarding IPRs and DRMs, content competitivity, etc.). 

The  pace  at  which  Europe  as  a  whole  can  move  will  be  affected  by  the  speed  of  the  national 
switchover processes on the one hand and by the pace of the slowest Member States on the other 
hand.  The  high  power  emitted  by  analogue  TV  transmitters  and  the  sensitivity  of  domestic 
analogue receivers to interference mean that even the limited continuation of analogue services in 

20 

21 
22 

See market 18 in the Annex to the Commission Recommendation of 11 February 2003 on relevant product 
and service markets  
http://europa.eu.int/information_society/topics/ecomm/doc/useful_information/library/recomm_guidelines/r
elevant_markets/i_11420030508en00450049.pdf 
See fn 3 
and thus contribute to the Lisbon goals of competitiveness and growth. See 
http://ue.eu.int/ueDocs/cms_Data/docs/pressData/en/ec/00100-r1.en0.htm 

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a few Member States will constrain the introduction of new services. Any spectrum dividend at 
the national level will therefore crucially depend on the number of neighbouring countries 
which have already achieved switch off and it will only be fully realisable at the European 
level upon the complete cessation of analogue broadcasts within the EU and neighbouring 
countries.23 

In  the  US,  the  FCC  currently  plans  to  terminate  terrestrial  analogue  TV  broadcasting  and  re-
allocate the cleared spectrum by 1 January 2009. A binding decision on the deadline to complete 
the DTV transition will be made during 2005, according to a recent announcement.24 Korea has 
announced to turn off analogue terrestrial broadcasting by end 2010, Japan by 2011.  

Based  on  the  information  made  available  to  the  Commission  Services,  the  following  ‘league 
table’ for switch-off of analogue terrestrial TV in Member States has been drawn up. 

Group 

Member States 

A (switch-off date end 2010 or earlier) 

AU, DE, ES, FI, IT, MT, SE 

B (switch-off date: end 2012 or earlier) 

BE25, EL, SI, SK, UK, HU 

Member  States  not  listed  in  this  table  have  either  yet  to  indicate  their  plans  or  have  not  yet 
indicated a switch-off date.  

In  view  of  the  diversity  of  Member  States'  approaches  and  advancements  the  Commission 
recognises that a binding EU-wide switch-off date common to all Member States is not realistic. 
However in the light of the advantages of a co-ordinated European approach to switchover, the 
Commission proposes that a common timescale should be agreed for the transition to digital 
terrestrial TV and for the switch off of analogue terrestrial TV. Most of those Member States 
who have already decided about a switch off date have set a date of 2010 or earlier. Six others 
have set at least 2012. On this basis, the Commission expects that by the beginning of 2010 the 
switchover  process  should  be  well  advanced  in  the  EU  as  a  whole,  and  proposes  that  a 
deadline  of  the  beginning  of  2012  be  set  for  completing  analogue  switch-off  in  all  EU 
Member States.  

6. 

CONCLUSION 

Switchover can provide consumers with improved broadcasting services and many new services 
beyond traditional broadcasting; it may also contribute to serve better the specific needs of people 
with disabilities. Switchover brings immediate benefits at Member State level. There is scope for 
an  acceleration  of  national  switchover  processes  in  order  to  achieve  benefits  for  the  EU  as  a 
whole.  

In  some  geographic  areas,  the  terrestrial  switchover  process  has  already  been  completed  and 
analogue terrestrial broadcasting has been discontinued.  Some Member  States plan to complete 
the national terrestrial switchover process during the next few years. As a result, the Commission 
expects that by the beginning of 2010 the switchover process should be well advanced in the 

23 
24 
25 

For reference see fn 3.  
Speech by the FCC Chairman, Michael Powell, at the Las Vegas Consumer Electronics Show, 6.1.2005 .  
In Flanders 

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EU  as  a  whole and proposes  that a deadline of the beginning of 2012 be set for completing 
analogue switch-off in all EU Member States. Flexibility is needed to ensure that the spectrum 
currently  used  for  analogue  terrestrial  broadcasting  is  reused  in  a  way  that  provides  the  most 
value to society and to the economy. All potential applications for the use of these  frequencies 
should be considered, and any allocation and assignment procedures must ensure fair access for 
all potential users. The availability of a part of the spectrum dividend at EU level would facilitate 
the uptake of new pan-European services and applications and the Commission will examine the 
feasibility of a co-ordinated approach.  

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