Source: EURLEX
Language: en
Format: md

COMMISSION OF THE EUROPEAN COMMUNITIES

Brussels, 09.12.1998
COM(1998) 596 final

**GREEN** **PAPER** **ON RADIO SPECTRUM POLICY**

**in the context of European Community policies such as telecommunications,**

**broadcasting, transport, and R&D**

(presented by the Commission)

_**Green Paper on Radio**_ _**Spectrum**_ _**Policy**_ _**Executive**_ _**summary**_

**GREEN PAPER RADIO SPECTRUM POLICY**

**in the context of European Community policies such as telecommunications,**

**broadcasting, transport, and R&D**

**EXECUTIVE SUMMARY**

**T H E** **BACKGROUND: ECONOMIC AND POLITICAL IMPORTANCE OF RADIO SPECTRUM**

Radio spectrum is the backbone for a wide range of industrial activities in sectors including
telecommunications, broadcasting, transport, R&D and services of general interest. It is
therefore of considerable **economic importance** both in terms of market values and
employment. Since many of these areas are covered by Community policies, the European
Community has a substantial interest in the development of a consistent radio spectrum
policy.

Although the direct contribution of spectrum to the activities mentioned above may vary, **radio**
**spectrum is an essential and increasingly scarce resource.** In economic terms, the **value**
**of** radio **spectrum** is determined by the value of the services which can be provided over it.
However, the value of radio spectrum is not a predominant factor commonly taken into
account in spectrum management today.

The means by which decisions are made and priorities established in respect of usage and
users of radio spectrum is a key issue for the European Community for three main reasons:

   - The success of a number of important **sector specific policies** pursued by the
European Community (telecommunications, broadcasting, transport, R&D, etc.)
depends on radio spectrum being made available and adequately safeguarded.

    - Decisions on radio spectrum access must comply with a certain number **of**
**horizontal policies at Community level,** notably with respect to supporting the
development of the **Internal Market,** ensuring **competition,** and developing and
preserving **social standards** and **public interest** at Community level.

   - With radio spectrum being increasingly used for commercial activities, **the rules and**
**commitments governing trade at international level** of related goods and services
need to be taken into account. These obligations are of relevance to the international
commitments of the European Community and its Member States.

**OBJECTIVES AND KEY ISSUES: INTERESTS OF THE EUROPEAN COMMUNITY IN THE**

**CONTEXT OF RADIO SPECTRUM**

From a European Community perspective, **policy objectives associated with the**
**availability of and access to radio spectrum** include

   - to allow the _**development of new services**_ to meet consumer and governmental
demands for radio services;

   - to foster the development of the _**internal market**_ for and _**competition**_ in
radiocommunications equipment and services, in particular in the context of the
deployment and operation of _**pan-European**_ _**and global**_ _**systems**_ _**and**_ _**services;**_

  - to **meef** _**public policy objectives**_ with regard to considerations such as safety,
cultural and social aspects etc;

**•** to **safeguard** the _**Community's**_ _**interests in multilateral and bilateral**_ _**negotiations**_

where radio spectrum is discussed;

**1^**

_Green_ _Paper on Radio Spectrum Policy_ _Executive summary_

    - to stimulate _technological innovation_ and support _European competitiveness_

_•_ more broadly to develop _economic growth, create employment, and promote_
_general welfare._

Bearing these general objectives in mind, certain **key issues need to be considered in**
**relation to the way in which radio spectrum is made available:**

_s_ to _**secure radio**_ _**spectrum**_ _**availability**_ for pan-European radio systems, services and
equipment;

_s_ to _ensure the appropriate balancing of commercial and public interest_ in radio
spectrum policy;

_s_ to _reflect the economic value of radio spectrum_ as a scarce commodity;

_s_ to _**provide legal**_ _**certainty**_ as regards radio spectrum availability and use;

_s_ to _ensure open, transparent, objective, and non-discriminatory procedures_ in
support of the competitive provision of radio services and equipment;

_s_ to _ensure the efficient use of radio frequencies;_

_s_ to _ensure that radio spectrum_ _regulation_ _encourages_ _competition_ _and_
_technological innovation;_

_s_ to support the _**development of economies of**_ _scale_ for the introduction of new
equipment which matches the needs of users;

_s_ to ensure _coherence between radio spectrum and standardisation policies._

**THE** **FACTORS** **FOR** **CHANGE:**

**THE** **EVOLVING** **CONTEXT** **FOR** **RADIO** **SPECTRUM** **POLICY**

Technological developments, market trends and the evolution of policy / regulation - all
interrelated - have a substantial impact on the availability of radio spectrum and make both
the search for radio spectrum for new applications and the harmonisation of radio spectrum
usage increasingly complex. Many of these trends are still developing but already trigger the
following changes:

_s_ The **convergence of different services using radio spectrum** and the development of
new systems which aggregate ranges of different services call into question the traditional
classification of spectrum users and the resulting conditions for spectrum access.

_s_ The **globalisation of services** and of **market players** (through alliances or world-wide
business deployment) has introduced a new dimension to radio spectrum policy.

_s_ The **growing share of commercial applications using spectrum,** partly as a result of
liberalisation, means that **commercial applications now compete with** **non-**
**commercial ones** (including with those resulting from public interest considerations) for
radio spectrum access; **applications from different sectors compete with each other**
**for radio spectrum access.**

_s_ **Decisions on radio spectrum have a wide-ranging impact on the relative strength of**
**market players,** between players which use radio spectrum, but also between users of
radio-based and non-radio based infrastructures. In the latter case the impact of spectrum
decisions may go beyond spectrum access and cause major structural changes in
markets.

_•s_ Decisions on radio spectrum usage influence the performance of societies not only in
economic terms, but also increasingly with respect to industrial competitiveness and the
capacity for innovation.

_**ik**_

_**Green**_ _**Paper**_ _**on**_ _**Radio**_ _**Spectrum**_ _**Policy**_ _**Executive**_ _**summary**_

**THE** **CHALLENGE:** **ACHIEVING** **A** **CONSISTENT** **COMMUNITY** **RADIO** **SPECTRUM** **POLICY**

At Community level, several of the factors for change suggest that it is time to verify whether
the present environment governing radio spectrum issues is suitable to preserve the
European Community's interests and to reflect the need for a Community approach to radio
spectrum policy. They include:

_s_ **Coherence of radio spectrum access conditions for like services at Community**
**level:** In particular the globalisation of radio systems, i.e. the introduction of pan-European
or global systems relying on radio spectrum, require an efficient spectrum management
policy in order to avoid delay or unnecessary hurdles in the introduction and deployment
of such systems resulting from unharmonised radio spectrum allocation throughout the
Community.

_s_ **Preserving the coherence of the existing Community regulatory environment:** Some
of the main sectors using radio spectrum are subject to Community regulations, as in
telecommunications but also in some aspects of broadcasting. A fragmentation of
planning, access and usage of radio spectrum makes it difficult to preserve a coherent
regulatory framework at Community level. In the case of global systems using radio
spectrum a coherent approach at Community level would strengthen the position of the
European Community in international co-ordination and negotiation exercises.

_s_ **A coherent and balanced approach across all sectors:** Radio spectrum policy at
Community level has to date evolved out of separate sector-specific consideration and,
with the exception of telecommunications, as an issue not necessarily requiring specific
regulation. A coherent and balanced approach across all sectors concerned needs to be
considered so as to minimise conflict between radio spectrum aspirations of different
sector-specific activities, notably where Community policies apply.

_s_ **Radio spectrum in the context of the internal market:** Existing radio spectrum
management in CEPT has been traditionally pursued mainly on the basis of technical
considerations. Given the increasing importance of commercial applications, market
considerations need to be taken further into account. In the context of a growing market
integration, radio spectrum policy, for example, on access conditions inevitably has a
Community dimension, especially where spectrum users are global market players.
Besides internal market considerations, issues such as the competitiveness of
Community industry are at stake.

_s_ **Radio spectrum in the global trade context:** Increasingly, the European Community
within the context of its responsibility for external trade matters is being approached by its
main trading partners on the issue of radio spectrum. In order for it to be able to respond,
the Community position on radio spectrum must be clearly defined, so as to be able to
defend it, both in bilateral contacts and in the global organisations.

_**io**_

_**Green**_ _**Paper**_ _**on**_ _**Radio**_ _**Spectrum Policy**_ _**Executive summary**_

**ISSUES** **FOR** **COMMENTS:** **KEY** **QUESTIONS**

Issues [1] on which the present Green Paper requests comments are structured according to
the different layers which are identified as key ones in the context of spectrum policy:

1. **Strategic planning of the use of radio frequencies**

The European Commission would welcome views on the strategic planning of the use of
radio spectrum in the European Community, particularly as regards: the scope of and
information needed for planning exercises; whether a political and legal commitment to
plan radio spectrum for pan-European services is needed; and to what extent a
harmonised Community approach is needed to develop and implement re-farming and
substitution policies as part of the planning of frequency.

2. **Harmonisation of radio spectrum allocation**

The European Commission would welcome views on radio spectrum harmonisation in the
European Community and the wider context; whether a priori Community agreement is
required as regards the need for harmonisation measures and on the basis of what
criteria this can be determined; and the level of legal certainty required with respect to the
implementation of such measures by Member States.

3. **Radio spectrum assignment and licensing**

The European Commission would welcome views on radio spectrum assignment and
licensing, particularly as concerns which mechanism is most suitable to secure the
efficient use of radio spectrum and the harmonised introduction of pan-European services;
the extent to which a common Community approach is required on the valuation and
possible trading of radio spectrum as well as the possible costs of relocating existing radio
spectrum users; and the level of legal certainty needed in the Community context.

4. **Radio equipment and standards**

The European Commission would welcome views on the link between Community policy
on radio equipment, standards, and radio spectrum, with particular regard to the cooperation between standards and radio spectrum management bodies and measures at
the operational level of radio spectrum management.

5. **The institutional framework for radio spectrum co-ordination**

The European Commission would welcome views on whether the present institutional
arrangements for radio spectrum co-ordination are appropriate to meet the Community's
policy objectives on radio spectrum, i.e. to contribute to economic growth, employment,
and welfare, to stimulate technological innovation and the development of new services,
to foster competition in the internal market, and to strengthen European competitiveness
in the establishment of pan-European and global radio systems.

See detailed questions under these headings in chapter 4 of the Green Paper.

IV

###### **_id_**

_**Green**_ _**Paper**_ _**on**_ _**Radio**_ _**Spectrum**_ _**Policy**_ _**Executive summary**_

**THE** **GENERAL** **CONTEXT** **OF** **THE** **GREEN** **PAPER:** **RELATED** **DEBATES**

**The objective** **pursued** **with the proposed Green Paper is to identify how best to**
**approach and implement Spectrum Policy at Community level.** At the same time, the
results from the Green Paper will also feed into several specific debates which are currently
under way.

The Green Paper on Convergence between telecommunications, media and information
technologies already covered certain radio spectrum issues in respect of specific sectors.
These findings will need to be put in context with respect to the overall approach for radio
spectrum policy to be discussed in the present Green Paper. In return, the spectrum policy
debate will profit from the convergence debate, e.g. when discussing the evolving category of
uses and users or the definition of public interest in the areas subject to convergence. These
results will be important in order to be able to recommend suitable modalities of accessing
radio spectrum.

For the **telecommunications** **sector,** the review of the effectiveness of the
telecommunications regulatory framework ("99 Review") which is under preparation will use
the findings of the radio spectrum debate to identify where existing regulation needs to be
complemented or revised to help the implementation of a Community radio spectrum policy.

In the **transport sector,** the Community is currently considering re-enforcing the European
presence in the area of global navigation satellite systems (GNSS) which both enable the
provision of services of public interest (navigation, positioning, timing) and which have
considerable market potential. Potentially, these systems will also form the basis for a wide
range of industrial / commercial activities. The allocation and protection of radio spectrum will
need to be ensured in European and international negotiations in order to implement such an
initiative. In the medium term, the Green Paper on Radio Spectrum Policy will help to identify
how to accommodate in a practical way the specific needs of this sector in terms of coordination modalities and protection of radio spectrum within the overall framework of a
generic approach to radio spectrum policy, i.e. covering all sectors.

The reflection of the issues raised by the present Green Paper will also help preparing in an
optimal way for international negotiations on radio frequencies at the forthcoming **World**
**Radiocommunications Conference** **WRC-2000** The Commission has in an earlier
Communication presented the major agenda items of this conference and indicated in detail
how these relate to Community policies. The findings of the consultation on the present Green
Paper will be used to help define Community positions on the critical issues of the conference.

##### **_re_**

_**Green Paper on Radio Spectrum Policy**_ _**Table of**_ _**Content**_

TABLE OF CONTENT

**EXECUTIVE SUMMARY** pages l-V

**1.** **INTRODUCTION**

**THE ECONOMIC AND POLITICAL IMPORTANCE OF RADIO SPECTRUM** 4

2.1 The radio communications market 4

2.2 Community policies involving radio spectrum 8

2.3 Factors for change 10

**EU POLICY ON RADIO SPECTRUM: PRESENT SITUATION**

3.1 Defining EL) policy on radio spectrum

3.2 Present practice of Community involvement in radio spectrum policy

**EU POLICY ON RADIO SPECTRUM: ISSUES FOR COMMENTS**

_(1)_ _Strategic planning_ _of_ _the_ _use of radio spectrum_

_(2)_ _Harmonisation_ _of radio_ _spectrum allocation_

_(3)_ _Radio_ _spectrum assignment_ _and_ _licensing_

_(4)_ _Radio_ _equipment_ _and_ _standards_

_(5)_ _The institutional framework_ _for_ _radio spectrum_ _co-ordination_

**12**

**12**

**13**

**16**

**16**

**17**

**18**

**20**

**21**

**CONCLUSIONS** **23**

**ANNEX** **I** **European Community policies involving radio spectrum**

**ANNEX** **II** **EU** **policy on radio spectrum**

**ANNEX III** **List of Abbreviations**

pages l-VI

pages l-IX

pages l-ll

### **V**

_**Chapter!**_ _**Introduction**_

**1.** **INTRODUCTION**

**The essential backbone for activities in European Community policy areas such as**
**mobile and satellite communications, broadcasting, transport, R&D is the radio**
**spectrum.** These areas have developed over recent years into a key area of growth in the
European Community. In view of the requirement of the Information Society for instantaneous
access to and dissemination of information, irrespective of time or location, **radio spectrum is**
**becoming of increased importance for the development of the European economy.**

**Demand for radio spectrum is increasing steadily** due to technological, market, and
regulatory developments. This is not counter-balanced by additional radio spectrum becoming
available through the introduction of new and more efficient technologies (e.g. digital radio
systems in the areas of broadcasting and mobile/personal communications). The
consequence is that the scarcity of radio spectrum is increasing. Where the radio spectrum is
congested, **choices need to be made to balance** **the** **demand and supply for radio**
**spectrum.**

**The use of the radio spectrum is regulated.** Since radio waves do not stop at borders,
countries historically co-ordinate the use of the radio spectrum in the framework of the
**International Telecommunication Union** (ITU), a specialised body of the United Nations. In
**World Radiocommunications Conferences** (WRC) of ITU, 186 countries biannually adopt
measures in order to achieve the international harmonisation of the use of the radio spectrum.
This is necessary in order to achieve economies of scale for the production of radio
equipment, to facilitate the global availability of services, and to avoid that that the
transmissions by one user do not cause unacceptable interference to use by another. Further
detailed co-ordination takes place at the regional and national level.

In Europe, 43 countries, including the Member States, co-ordinate the use of the radio
spectrum in the framework of the **European** **Conference** **of** **Postal** **and**
**Telecommunications administrations** (CEPT). Also CEPT adopts harmonisation measures
which its member countries implement on a voluntary basis. Both ITU/WRC and CEPT cover
all uses of the radio spectrum, including for telecommunications, broadcasting, transport, and
R&D.

With the exception of radio spectrum availability for mobile and personal communications, in
which areas Community legislation exists, **the European Community mainly relies on the**
**work undertaken in ITU/WRC and CEPT to achieve the harmonisation of radio spectrum**
**necessary for the pan-European and global provision of services and equipment.** The
assignment of radio spectrum to individual users is done at the national level, subject to
certain conditions agreed in the World Trade Organisation (WTO) and in the European
Community.

**As demand for radio spectrum has increased, the co-ordination and management tasks**
**have grown more complex as compared to the past.** Previously, countries co-ordinated
the use of the radio spectrum on behalf of a relatively limited number of radio users and on the
basis of technical considerations, i.e. for the defence sector and for public telecommunications
and broadcasting organisations, which were mainly active at the national level.

**The environment for radio spectrum policy has changed significantly.** Radio services
and equipment are developed for **global rather than national markets.** The traditional users
of radio spectrum providing public services at the national level are now in **competition for**
**radio** **spectrum use** with increasing numbers of **global commercial players,** particularly in
the areas of telecommunications and broadcasting. Radio spectrum availability is emerging as
a key issue in **trade negotiations..** All these developments point to the **need for international**
**co-operation on radio spectrum policy issues in order to facilitate the international**
**introduction and provision of services and equipment.** It is therefore essential to ensure

                                              

_**Chapter**_ _**I**_ _**Introduction**_

that the interests of the European Community and all off Member States are fully taken into
account where radio spectrum availability is discussed.

As a result of the changing environment for radio spectrum policy, the **main challenges** the
European Community is facing include the following:

  - The _**strategic planning**_ of the use of the radio spectrum now needs to take into
account the varying interests and requirements of an **increased number of new**
**systems and commercial and non-commercial players acting at the global level.**

  - Due to globalisation, the _**allocation and harmonisation**_ of the use of the radio
spectrum increasingly requires international co-operation but **countries and radio**
**spectrum users** **attach** **different priorities as for which services harmonised**
**radio spectrum should be internationally available.** The balancing of the various
interests between commercial and non-commercial uses as well as between the
priorities of individual countries goes beyond the technical management of radio
spectrum. Recent experience at ITU/WRC negotiations has shown that where the
European Community is not united and where the proposals are not politically
supported, common objectives are difficult to be pursued.

_>_ The _assignment_ _**of radio spectrum**_ to individual users should be done under
reasonable conditions. However, demand for radio spectrum has increased to such
an extent that **administrations increasingly require users to pay a price for the**
**use of the radio spectrum** so as to reflect the market value and the actual need for
the service to be provided. This approach is criticised since it may hamper
technological innovation and competition and may possibly lead to increased
consumer prices. The introduction and **international provision of services might be**
**hindered since licenses need to be obtained in individual countries** which in
addition may deploy different radio spectrum award mechanisms and conditions.

  - The availability and use of _**radio equipment**_ across borders is subject to the extent to
which radio spectrum is harmonised and common standards are available so as to
ensure interoperability. **The importance of monitoring the use of radio equipment**
**and the surveillance of markets is increasing** and will require a considerable effort
from the part of administrations in co-operation with industry and radio spectrum

users.

   - The _institutional arrangements_ for the co-ordination, planning, and harmonisation of
the use of radio spectrum were set up to deal with the requirements of a limited
number of players. With the liberalisation and globalisation of the radio market, these
**institutional arrangements have come under pressure from commercial**
**interests** which pursue interests which not necessarily coincide with those of the
administrations representing them in the organisations concerned. Furthermore, **the**
**balancing of the various national interests renders the achievement of radio**
**spectrum harmonisation difficult** and may result in a legally uncertain situation
regarding radio spectrum availability and harmonisation.

This Green Paper is aimed to initiate a public debate on the question whether the present
practice of radio spectrum policy can deal with the described challenges or whether **change is**
**needed in order to** **meet** **the European Community's policy objectives:**

   - to facilitate _**technological innovation and competition**_ through flexible but firm
planning of the use of radio spectrum and through the appropriate assignment of radio
spectrum by administrations;

_Chapter!_ _Introduction_

_>_ to establish a _**predictable and legally certain regulatory framework**_ for the coordination of the use of radio spectrum which is transparent and which responds to
the needs of commercial and non-commercial interests across sectors, _inter alia_ as
concerns telecommunications, broadcasting, transport, and R&D;

_>_ to ensure an _**appropriate representation and balancing of interests**_ of the
individual Member States and of the European Community in the decisions to be
taken in the area of radio spectrum; and

  - to _**strengthen the**_ _**position**_ _**of the European Community in the global market**_ for
radio services and equipment by combining the necessary technical and political
strengths of the Member States and the European Community.

All concerned parties - radio spectrum users, services providers using radio spectrum,
equipment manufacturers, public authorities, sector-specific organisations, consumers - are
invited to contribute their comments and views. On the basis of the comments received, the
Commission intends to produce a Communication to report and to draw first conclusions.

All interested parties are invited to contribute to the debate by responding to the issues raised
in this Green Paper and by making any submission they wish on the subject 15 April 1999.

Submissions may be sent preferably via E-mail in HTML format to [2] :

European Commission, DGXIII/A

Attn. Mr. R. Niepold

200 rue de la Loi, BU31 2/52

B-1049 BRUSSELS

Belgium
[e-mail: spectrum.greenpaper@bxl.dg13.cec.be](mailto:spectrum.greenpaper@bxl.dg13.cec.be)

Fax: (+32 2) 29 68 395

Unless explicitly specified by their authors, all submissions will be considered public documents and will be
[made available through Spectrum Green Paper Web-page (http://](http://) ). While electronic submission in HTML
format are strongly encouraged, fax or ordinary mail contributions can alternatively be accepted (4 copies
please).

_**Chapter 2**_ _**The economic**_ _**and**_ _**political**_ _**importance of radio spectrum**_

**2.** **THE ECONOMIC AND POLITICAL IMPORTANCE OF RADIO SPECTRUM**

**The aim of chapter 2 is to highlight the economic and political importance of radio**
**spectrum** and to provide the basic elements governing the European Community approach to
radio spectrum policy.

This chapter gives an overview of the growing number of applications and sectors relying on
the availability of radio spectrum and highlights the economic importance of radio spectrum
activities (section 2.1). Technological, market, and regulatory developments are changing the
ways radio spectrum is used as well as the context for radio spectrum policy making (section
2.2). The implementation of a number of sector-specific Community policies depends on radio
spectrum availability but their radio spectrum requirements are addressed in different policy
frameworks; in addition, horizontal European Community legislation applies (section 2.3).

**2.1** **The radiocommunications market**

**Radio spectrum** **[3]** **is the wireless infrastructure for a large number of activities. Each**
**radio application,** for example garage door openers, baby monitors, cellular telephones,
global positioning systems, **has its own frequency band within the radio spectrum**
**although much of it is used on a shared basis. The location and amount of radio**
**spectrum allocated for each service may differ significantly between countries,**
depending on the national need for and importance given to the various radio-based services.
Only a relatively small amount of the actual use of the radio spectrum is harmonised among
countries. **The international availability of the same service depends on the extent to**
**which the use of the radio spectrum is harmonised.**

Certain frequency bands are better suited for particular radiocommunications services than
others and are relatively easy to exploit using existing technologies. Actual use and demand
for certain frequency bands has created or will soon create a situation of congestion: **demand**
**for frequencies is greater than what is available. Therefore, choices need to be made.**

Other frequency bands are currently less valuable because they are useful for fewer services,
or because they can only be exploited at increased cost or following technological innovation.
The issue of congestion might not present itself in these frequency bands.

Like for all scarce resources, **trade-offs have to be made when deciding which uses and**
**users should be awarded radio spectrum.** In radio spectrum policy, such trade-offs may
include the following:

_s_ New entrants are awarded frequencies on the condition that they share the
frequencies with existing users. However, sharing may require the deployment of
more costly techniques for both parties as compared to the case where radio
spectrum is made available to users on a primary/exclusive basis.

**A radio wave** is an electromagnetic wave propagating between a transmitting and **a** receiving antenna. Radio
waves are characterised by their **frequency,** and by tuning a **radio receiver** to **a** specific frequency one can
pick up a specific signal. Regulatory authcrities decide who is able to use what frequency band for what
purpose, and issue licenses for specific services. **Frequency bands** define the specific location of services in
the radio spectrum.

_Chapter 2_ _The economic and political importance_ _of radio_ _spectrum_

_s_ The incumbent radio spectrum user is moved to less congested parts of the radio
spectrum in order to make room for new users. This is known as **'re-farming'** **of**
**radio spectrum** and is associated with a **relocation** of the incumbent user.
Obviously, the incumbent user is forced in this situation to replace or adapt existing
equipment in order to comply with the different characteristics of the frequency bands
he is moved to. In some countries, the new entrant may be requested to pay a
financial contribution in this respect.

_s_ The incumbent radio spectrum user has to move out of the radio spectrum altogether.
In the latter case, an option could be to use alternative transmission media (i.e.
**'substitution'** of transmission technology). Also in this case, the incumbent user has
to invest in alternative transmission equipment.

_S_ Where sharing with, or re-farming/relocation and substitution of incumbent users is
technically not possible or politically not desirable, access to frequencies by new
entrants may not be granted.

Although not exhaustive in its scope of the use of radio frequencies, the following table
provides an overview of the various types of radio applications which, for the main part, are
subject to some kind of authorisation to use radio equipment or to provide radio-based
services.

**Table** **1 :** **Radio-based sectors and activities** **[4 ]**

**I** **I >** **Telephony** (GSM, DCS, DECT, S-PCS, IMT2000/UMTS, WLL, CB)

               - Paging (ERMES, Pocsag, FLEX)

_**Telecommunications**_ ^ Wireless multi-media/Internet (UMTS, satellite broadband, LMDS,
MMDS)

           - **Data transmission** (GSM, IMT2000 / UMTS, satellite broadband, FS)

           - **Private business radio** (PMR, TETRA)

           - **Terrestrial TV** (analogue/digital - free to air, pay TV)

           - **Satellite TV** (analogue/digital - free to air, pay TV, NVOD)

_**Broadcasting**_ **^** **Ancillary services** (Teletext and home banking, Teleshopping, for
.digital TV)

_>_ **Radio** (analogue/digital)

           - **Airtransport** (traffic control, navigation)

_**Transport**_ _**>**_ **Maritime transport** (GMDSS, VTMIS)

           - **Road transport** (RTT systems)

           - **Rail transport and inland waterways** (localisation)

_~>_ **Defence** (communication & control, radar)

           - **Emergency** (police, fire departments)

_**Government**_ **^** **Law** **enforcement** (TETRA; earth observation)

           - **Space** science (e.g. Earth observation, radio astronomy, radio
navigation)

               - Applications deriving from Commitments under international I
conventions (navigation aids, positioning and timing; environment) J

See Annex I for a detailed description of European Community policies in these areas.

_**Chapter 2**_ _**The economic and political**_ _**importance**_ _**of radio spectrum**_

_R&D_

_>_ **Earth observation**

- **Radio astronomy**

There is no comprehensive information available for the European Community as a whole on
which radio services are located in the various parts of the radio spectrum and which amounts
of frequencies these services have at their disposal. Insofar as it is available, such information
can only be found at the national level, as can be illustrated by the following example.

**Table 2: Allocation of radio spectrum by services (United** **Kingdom)** **[5 ]**

**1 GHz to 3**

**GHz**

**7%**

**26%**

**„**

**„_**

**12%**

**14%**

**2%**

**31%**

**3%**

**2%**

**3%**

**100%**

_**Telecommunications**_

_**>**_ **Mobile and cellular communications**

**>** **Fixed services** **(PTO and private fixed**
**services)**

**>** **Fixed links**

**>** **Satellite**

_**Broadcasting**_

**(incl.** **services ancillary to broadcasting)**

_**Transport**_

_**>**_ **Civil Aviation/aeronautical**

**>** **Maritime**

_**Government**_

_**>**_ **Defense**

**>** **Emergency** **services**

**>** **Space observation**

_**Other**_

**9 kHz to 1**

**GHz**

**23%**

—

**„**

**..**

**40%**

**3%**

**~**

**29%**

**2%**

**~**

**3%**

**100%**

**3 GHz to 30**

**GHz**

   

~

38%

5%

3%

4%

   

38%

~

~

12%

**100%**

The economic contribution of radio-based services and equipment to the EU economy is
difficult to determine in a comprehensive manner. For example, **the provision of mobile and**
**audio-visual services entirely depend on radio spectrum availability.** The economic
output of these sectors may. therefore be used as indicators for the economic relevance of
radio spectrum in European and global markets, while taking account of the non-economic
benefits to society resulting from the **strategic, public, and cultural use** that is made of radio

5 Source: Approaches to the allocation and assignment of the radio spectrum resource, Report for the European
Commission, NERA, Smith System Engineering, KPMG, November 1997.

_Chapter 2_ _The economic and_ _political_ _importance_ _of radio_ _spectrum_

spectrum for non-commercial purposes such as defence, emergency services, and for
universal services in the areas of telecommunications and broadcasting.

**Table 3: Estimated market and market forecasts (BECU): telecommunications, mobile**
**and satellite communications, broadcasting (and audio-visual), and radio navigation**

**I Estimated market** **Market forecast**

**Telecommunications** 150.7 162.2(1998)
(EEA, 1997) [6], of which

( [172.3] [ (1999) ]

~> Fixed service 98Tl 101.0(1998)

. 103.9(1999)
__ _ _ _ _ _ _ _ _ 29.7 (1998) ~~

33.6(1999)

_ _ _ _ _ _ _ _ _ _ _ 31.4(1998)

34.8 (1999)

**Satellite communications** 62
(world, 2005) [7] .

 - Mobile Satellite Service (MSS) (world) [8] 1 (2000)
7.2 (2005)
24.1 (2010)
**Audio-visual services** 41.5 46.8(2000)
(EU, 1995) [9], of which 59.0 (2005)
/ ; _[_ 71.4(2010)
_>_ Content provider revenues (EU, 1995) [10] 8.9 16.1 (2005)
 - Annual pay TV revenues (Europe, 1997) [11] 5 22 (2005)

 - Public broadcasting revenues (revenues from TV 14
licence fees, advertising and sponsoring) (EU, 1996) [12 ]

 - Radio sector (license fees and advertising revenue) (5
**Radionavigation services and equipment** **[13]** 4 (2000, Europe)

40 (2005, world)

European Information Technology Observatory 98, Yearbook for the Information and Communications
Technology (ICT) industry in Europe, 1998, page 350.

Via Satellite, September 1998. Global Satellite Telecommunications Review. Joe N. Pelton and the Global
Satellite Communications Review Panel, page, 19.

**10**

**u**

**12**

**13**

Global Mobile, Volume 5, Baskerville Communications Corporation, 9 July 1998, page 12.

Market developments of telecommunications and integrated communications services to the year 2010, IDATE,
December 1997, pages 14 and 175.

Norcontel, Economic Implications of New Communication Technologies on the Audio-Visual Markets. April
1997, page 6.

N. Bertolotti for JP Morgan Securities Ltd, The European Pay-TV Industry, January 1998. See Commission Staff
Working Paper on WRC-99, page 7.

Source: EUROSTAT

Communication by the Commission :* Towards a Trans-European Positioning and Navigation Network, including
a European Strategy for Global Navigation Satellite Systems (GNSS) COM(98)29,final, 21.1.1998, page 15.

_Chapter 2_ _The_ _economic and political importance of radio spectrum_

**2.2** **Community policies related to radio spectrum**

**A number of sector-specific Community policies rely on the availability of radio**
**spectrum, particularly in the areas of telecommunications, broadcasting, transport and**
**R&D** (see Annex I for an outline of the main policies). However, **the political context in**
**which radio spectrum availability for such policies are addressed differs significantly**
**from** **sector to sector.**

_s_ In the _**telecommunications**_ sector, especially where pan-European or global systems are
concerned (e.g. mobile and mobile-satellite services), political and legislative agreement
is established in, the European Community as concerns the harmonised availability of
radio spectrum. [14] Furthermore, the provision of services is governed by Community rules
on licensing which aim to promote technological innovation and competition. The number
of telecommunications applicants seeking radio spectrum has increased significantly due
to technological innovation and the global liberalisation of telecommunications markets.
This trend is reflected in the growing importance of international negotiations on frequency
harmonisation. [15 ]

_s_ In contrast, radio spectrum availability for _**broadcasting**_ has so far not been addressed in
the European Community as an issue requiring political or legislative action, partly
because sufficient radio spectrum was made available by Member States before
broadcasting began to take on an increasingly commercial orientation. However, the
interrelation between radio spectrum availability and the Community policy on the free
movement of radio and TV programmes has been manifest since the arrival of
transfrontier satellite TV, which prompted the Television without Frontiers Directive. Apart
from the general growth of broadcasting and audio-visual markets, the boundaries
between telecommunications and broadcasting are converging and challenge the
historical availability of radio spectrum for these activities. [16] Competition for scarce and
valuable radio spectrum between broadcasters and other potential users is likely to
intensify.

1 4 Communication to the Council and for information to the European Parliament, the Economic and Social
Committee and the Committee of the Regions on the implementation and functioning of the mobile
communications frequency Directives, COM(1998)559, 09.10.1998.

1 5 Communication from the Commission to the European Parliament and the Council on radio frequency
requirements for Community policies in the context of the World Radiocommunications Conference 1999 (WRC99), COM(1998)298, 13.05.1998. Commission Staff Working Paper on issues at the World
Radiocommunications Conference 1999 (WRC-99) in the context of Community policies, SEC(1998)839,
12.05.1998. It should be noted that, after the publication of these documents, it was decided to hold the next
WRC in the year 2000; this has, however, no effect upon the substance of the documents.

1 6 Green Paper on the convergence of the telecommunications, media and information technology sectors, and
the implications for regulation - towards an Information Society approach, COM(97)623, 03.12.1997. See in
particular: Summary of the results of the public consultation on the Green Paper on the convergence of the
telecommunications, media and information technology sectors: areas for further reflection, SEC(98)1284,
29.07.1998. The comments showed widespread concerns about the possible auctioning of radio spectrum,
accompanied by assertions that this would raise market entry barriers and lead to increased prices for
consumers. Others pointed out the risk of discrimination either by favouring incumbents or by treating sectors
differently. The issue of whether dates should be set or co-ordinated at a European level for the switching-off of
analogue broadcast services attracted considerable comment from broadcasters, equipment manufacturers,
consumer groups and Member States. Opinion was split between those who saw any transition from analogue
to digital broadcasting as market-led, and not requiring government or EU level intervention, and those who
considered that a deadline set at a' national level would be a useful stimulus to the development of digital
broadcasting in the EU. Further details will be dealt with in chapter 4 of this Green Paper.

_**Chapter**_ _**2**_ _**The economic and**_ _**political importance**_ _**of radio spectrum**_

_s_ The European Community has so far not adopted specific measures to secure radio
spectrum availability for the implementation of its _transport_ policies (i.e. air and maritime
transport, radio navigation and positioning). These policies benefit from radio spectrum
being available on an almost exclusive and international basis to ensure safety-of-life
communications of air and maritime transport. However, this situation has come under
pressure as a result of the increased demand for radio spectrum. For instance, providers
of commercial mobile satellite services have proposed to share radio spectrum reserved
for navigation and positioning applications. It was decided, however, that the need to
ensure the interference-free operation of such applications should prevail. The possibility
of developing a European component to the global navigation satellite system means that
full account need to be taken of the need to secure and protect radio spectrum, and this
has been endorsed by the Council.

_s_ In the area of R&D (e.g. Earth observation and radio-astronomy), radio spectrum
availability has not been addressed as a matter requiring legislative or political action.
However, radio spectrum which historically has been available for such applications has
come under pressure, either because new entrants wish to use the radio spectrum
available for R&D or because interference from other services has increased to such an
extent that the performance of R&D activities becomes technically difficult.

Considering that demand for certain frequency bands exceeds supply, **the implementation**
**of the** **EU** **policies mentioned above is faced with the situation where radio spectrum**
**availability can no longer be taken for granted.** Therefore, **radio spectrum availability**
**needs to be addressed as a key issue in the EU decision-making process.** Furthermore,
**where trade-offs need to be made as regards which services should receive priority in**
**accessing and using radio spectrum, the various interests involved need to be carefully**
**balanced in a coherent manner.**

**Irrespective of the specific use of radio spectrum, horizontal EU policies and legislation**
**are** relevant (e.g. competition, internal market, standardisation/certification of radio equipment,
consumer protection).

_s_ The aim of the Community's **competition rules** is to ensure that choices with regard to
the attribution of radio spectrum do not privilege technical solutions at the expense of
competing **technologies,** which could better match user needs, and do not limit
production, output or technical development in the sense of Article 86 of the Treaty.
Competition rules have to be considered also in relation to the use of radio spectrum,
notably when public interests are involved in the context of Article 90. In the areas of
broadcasting and transport, for instance, it is becoming increasingly difficult to define the
boundary between public and commercial services.

_s_ As regards **internal market** considerations, radio spectrum availability affects the scope
for the pan-European provision and free movement of services and equipment. The
harmonisation of the use of radio spectrum is particularly important in this context to
facilitate the introduction of pan-European and global systems and to realise the
economies of scale necessary to make European industry competitive in world markets.
With regard to the latter point, standardisation and type approval policies need to be taken
into account.

_s_ The Community's **consumer policy** should be seen as a flanking policy to the
establishment of the internal market and stresses the benefit to all consumers of greater
choice and diversity, including as regards the availability of radio services and products
which meet consumer demand and needs. Consumer  - **health protection against**
**electromagnetic radiation** is also becoming an important issue which is undergoing
extensive research and requires a transparent and harmonised approach in order to
secure safe use of radio services and to avoid conflicting national policies in this regard.

_**Chapter 2**_ _**The economic and political**_ _**importance**_ _**of radio spectrum**_

Action has been initiated in the European Community in the context of health and R&D
policies to examine the possible health effects related to the use of the radio spectrum so
as to ensure consumer confidence in radio services and products.

**Radio spectrum has been addressed as an important issue in international negotiations**
**on the liberalisation of trade in telecommunications.**

_s_ In accordance with the agreements established in the **World Trade Organisation** (WTO),
member countries have to manage radio spectrum in a manner which is objective,
transparent, non-discriminatory and no more burdensome than necessary. Furthermore,
they are committed to make publicly available the current state of allocated frequency
bands. It follows that **any regional or national radio spectrum management measure**
**which has the purpose or effect of blocking, or unreasonably limiting, market**
**access for operators from other WTO member countries in a discriminatory manner**
**would violate the agreement established in WTO** since discriminatory, anti-competitive
or arbitrary frequency management decisions are outlawed. These **international**
**commitments need to be taken into account where third-country operators seek**
**access to the European Community market and where Europe's industry seeks**
**access to the global market.**

**In** **conclusion, the establishment of agreement on the EU policies to be pursued on**
**telecommunications, broadcasting, transport, and R&D needs to carefully balance**
**economic, political, social, and cultural interests. It is therefore important to ensure**
**that the trade-offs to be made at a technical level take full account of this.** This is
particularly important considering that radio spectrum availability cannot be taken for granted
due to the increase of applications vying for the use of the radio spectrum.

**2.3** **Factors for change**

**Radio spectrum policy has become more complex** due to rapid technological
developments, the introduction of new services (e.g. broadband multimedia), the evolution of
markets, and policy and regulatory changes. These trends are often interrelated and their
relative weight is taken into account to varying degrees when trade-offs are made in deciding
to which uses and users radio spectrum should be put.

The major **factors which have transformed perceptions of radio spectrum policy** are
described below.

_Technological developments_

_s_ **Services** **using** **spectrum** **are** **in** **many** **cases** **converging** (fixed-mobile
telecommunications, broadcasting with telecommunications and IT-sector). This has
several consequences: (a) traditional radio systems offer new types of services (e.g.
broadcasters offering Internet-services, telecommunications operators offering video
services, military using civil radiocommunications applications); (b) the traditional
definitions on the basis of which radio spectrum is distributed are called into question as is
the current distribution of radio spectrum among service categories and users (e.g. the
mobile telephony service traditionally regulated as a telecommunications service is
evolving towards a mobile multi-media service with a greater focus on content).

_*_ Technological developments lead to the development of **new services** which require
certainty as regards the future availability of radio spectrum in order for investment
decisions to be made. Furthermore, substitution phenomena are encountered (e.g.
cable/satellite broadcasting offers a wider choice of service than terrestrial broadcasting)

**10**

_**Chapter 2**_ _**The**_ _**economic**_ _**and political importance of radio spectrum**_

which could result in a different use of radio spectrum by new or **more spectrally**
**efficient systems and services.**

_s_ **New systems are proposed which aggregate a range of services.** For example,
mobile and satellite broadband communications systems, as planned to be introduced in
the near future, combine traditional services such as telephony, data transmission,
internet distribution, and positioning.

_**Market**_ _**developments**_

_s_ The **increasing demand for radio spectrum is not counter-balanced** by additional
radio spectrum becoming available as new technology can stretch-up the availability of
usable radio spectrum. In order to distribute the limited radio spectrum available for
certain applications in a transparent manner on the basis of objective criteria, some
regulatory authorities deploy pricing mechanisms with the aim to reflect the market value
of radio spectrum. The **valuation of radio spectrum** therefore becomes relevant in
decisions on radio spectrum, although experience with such approaches is still rather
limited.

_s_ The trend is towards **global systems** which require the formation of **global alliances** of
players to cope with the significant investment and operational demands (e.g. obtaining
access to frequencies and national licences, provision of services). Radio spectrum policy
will need to take account of this trend and .regulatory action should support the
harmonised introduction of such systems and ensure appropriate involvement in their
development and deployment.

_**Policy and**_ _**regulatory developments**_

v The share of **commercial applications using radio spectrum is growing** following in
particular the liberalisation of telecommunications markets. This puts **pressure on the**
**availability of radio spectrum for other applications of importance to the public**
**interest** (emergency services, transport). Setting priorities as to who should be allowed
access to spectrum can no longer be taken solely on the basis of technical information but
requires careful balancing of interests taking economic and political factors into account.

_s_ Decisions on **radio spectrum availability and use may impact on the relative strength**
**of market players and on the level of competition** in markets. This is not only the case
with respect to radio services (similar services or services of a different nature) competing
for access to radio spectrum. Decisions on spectrum access may also significantly impact
on the relative market strength of players offering comparable services albeit through
competing radio and non-radio infrastructures (e.g. fibre vs. satellite communication; wired
local loop vs. wireless local loop).

_s_ Radio spectrum is relevant to trade since **market access for radio activities cannot be**
**realised without access to radio spectrum.** Trade aspects in the context of radio
spectrum are gaining momentum with the general trend towards thé liberalisation of
international trade in goods and services, which, for a large part, relies on the availability
of radio spectrum.

_s_ A significant number of spectrum users do not operate in a commercial environment, but
have to compete with commercial users when obtaining spectrum. A key regulatory task is
to find the **balance between certain well-defined public/non-commercial uses of**
**radio of radio spectrum and the need for radio spectrum as an essential resource**
**for doing** **business.**

_s_ Radio spectrum use represents a significant and growing economic activity. The impact of
radio spectrum availability on the performance of society in terms of employment,
industrial competitiveness and capacity for innovation has significantly increased as
compared to the past.

**11**

_**Chapter 3**_ _**EU**_ _**policy on radio spectrum: present situation**_

**3.** **EU POLICY ON RADIO SPECTRUM: PRESENT SITUATION**

**The aim of chapter 3 is to describe the European Community's policy objectives with**
**regard to radio spectrum** (section 3.1) **and to explain the present practice of Community**
**involvement in radio spectrum matters** with regard to the strategic planning of radio
spectrum availability, radio spectrum harmonisation, the assignment and use of radio
spectrum, radio equipment and standards, and the institutional framework for the coordination of radio spectrum (section 3.2).

A detailed description of the present practice of EU policy on radio spectrum, including as
regards its political and legal base, is given in Annex II.

**3.1** **Defining EU policy on radio spectrum**

**The economic, social, or political value of radio spectrum depends on the actual use**
**that is made of this bottleneck facility and on how it is managed.** EU policy on radio
spectrum is concerned with both dimensions.

Irrespective of whether radio spectrum is used for Community policies on telecommunications,
broadcasting, transport, or R&D, **the main objectives to be achieved with radio spectrum**
**are the following.**

   - to allow the _**development of new services**_ to meet consumer and governmental
demands for radio services;

    - to foster the development of the _**internal**_ _**market**_ for and _**competition**_ in
radiocommunications equipment and services, in particular in the context of the
deployment and operation of _**pan-European**_ _**and**_ _**global systems**_ _**and**_ _**services;**_

    - to _**meet public policy objectives**_ with regard to considerations such as safety,
cultural and social aspects etc;

    - to safeguard the _**Community's**_ _**interests in**_ _**multilateral**_ _**and bilateral negotiations**_
where radio spectrum is discussed;

    - to stimulate _**technological innovation**_ and support _**European**_ _**competitiveness,**_

    - more broadly to develop **economic** _**growth, create employment, and promote**_
_**general**_ _**welfare.**_

Wthin this context, **the European Community has specific responsibilities to ensure that**
**the management of radio spectrum is done in accordance with vested legal principles,**

such as openness, transparency, objectivity, and non-discrimination, as well as with the
Community's **competition rules.**

Bearing these general objectives in mind, certain **key issues need to be considered in**
**relation to the way in which spectrum is made available:**

_s_ to _**secure radio**_ _**spectrum availability**_ for pan-European radio systems, services and
equipment;

_**s**_ to _**ensure the appropriate balancing of**_ _**commercial**_ _**and public interest**_ in radio
spectrum policy;

**12**

_**Chapter**_ _**3**_ **'** _**EU policy on radio**_ _**spectrum:**_ _**present**_ _**situation**_

_**s**_ to _**reflect the**_ _**economic**_ _**value of**_ _**radio**_ _**spectrum,**_

_s_ to _**provide legal**_ _**certainty**_ as regards radio spectrum availability and use;

_s_ to _**ensure open, transparent, objective, and**_ _**non-discriminatory**_ _**procedures**_ in
support of the competitive provision of radio services and equipment;

_s_ to _**ensure the efficient use of**_ _**radio**_ _**frequencies;**_

_s_ to _**ensure that**_ _**radio**_ _**spectrum policy**_ _**encourages competition**_ _**and**_ _**technological**_
_**innovation,**_

_S_ to support the _**development of economies of scale**_ for the introduction of new
equipment which matches the needs of users;

_s_ to ensure _**coherence**_ _**between radio**_ _**spectrum**_ _**and**_ _**standardisation**_ _**policies.**_

**3.2** **Present practice of Community involvement in radio spectrum policy**

In 1987, the European Community for the first time acknowledged the need for the
harmonisation of radio spectrum for the provision of pan-European mobile services. Since
then, a number of initiatives have been taken to implement the aims of EU radio spectrum
policy in the following areas:

1. The strategic planning of the use of radio spectrum: when will radio spectrum be
available?

2. The availability and harmonisation of radio spectrum: how much radio spectrum
will be available and will its use be harmonised?

3. The assignment of radio spectrum: how is radio spectrum assigned, how can it be
obtained, and under what conditions?

4. Radio equipment and standards: what are the rules and conditions for the
marketing and use of radio equipment, including as regards standards?

5. Institutional framework: where are the decisions made and what is the role of the
European Community?

The political and legal base for the involvement of the European Community vary in these
areas, as shown in the following table. The present practice of Community involvement in
these areas is summarised below (see Annex II for a detailed description of EU policy on
radio spectrum).

**13**

_Chapter 3_ _EU policy_ _on radio_ _spectrum:_ _present situation_

**Table 4: Political and legal base for Community involvement in radio spectrum policy**

**Political base** **Legal base**

Planning of the use  - Councif Resolution 90/C 166/02 _>_ Directive 87/372/EEC (GSM)
of radio spectrum - Directive 90/544/EEC (ERMES)

                                   - Commission Directive 96/2/EC

Harmonisation of - Council Resolution 90/C 166/02 - Directive 87/372/EEC (GSM)
radio spectrum - Council Resolution 92/C 318/01 - Directive 90/544/EEC (ERMES)
allocation - Directive 91/287/EEC (DECT)

                                   - EP and Council Decision on SPCS

                                   - Proposal for an EP and Council
    - Decision on UMTS

Radio spectrum  - _>_ ONP Framework Directive
assignment 97/51/EC
J - Commission Directive 96/2/EC

^ - Licensing Directive 97/13/EC
Radio equipment and  - Council Resolution 90/C 166/02  - Proposal for an EP and Council
standards Directive on radio and
| telecommunications terminal
equipment (RTTE)
Framework for radio  - Council Resolution 90/C 166/02

spectrum co- - Council Resolution 92/C 318/01
ordination  - Council Conclusions of 3

February 1992

              - Council Conclusions of 7

December 1993

              - Council Conclusions of 22
September 1997

_The strategic planning_ _**of**_ _radio spectrum_ _availability_

_s_ The longer-term planning, development, and marketing of pan-European radio services
and products depends on the availability of radio spectrum. Under European **Community**
**Directives,** **Member States are obliged to plan and publish radio spectrum**
**availability,** **particularly for mobile and personal communications** **services.**
Furthermore, by means of **Council Resolutions,** the European Conference of
Telecommunications administrations **(CEPT) is requested to recommend** to regulatory
authorities or to the Community **long-term requirements for the radio spectrum** and to
achieve a better-balanced allocation of radio spectrum between its various uses.

The strategic planning of radio spectrum availability in the context of Community policies
is particularly needed in the areas of mobile and satellite communications (mobile and
satellite broadband systems), broadcasting (the switch from analogue to digital
transmission), and transport (the establishment of a global navigation satellite system,
GNSS).

_Securing_ _**the**_ _harmonised_ _availability_ _of radio_ _spectrum_

_s_ Radio spectrum harmonisation is achieved by means of _frequency allocation_ _measures,_
i.e. measures which identify frequencies for the provision of defined services as well as
the technical conditions to be taken into account. Frequency harmonisation has been
achieved in the European Community through the adoption of **Directives** on **GSM, DECT,**
and **ERMES.** The harmonised availability of radio spectrum for **S-PCS** and (in future)

**14**

_**Chapter 3**_ _**EU policy on radio**_ _**spectrum:**_ _**present situation**_

**UMTS** is achieved through the adoption of **Council and European Parliament**
**Decisions** which refer to the Member State co-ordination in the CEPT framework. In case
work in CEPT or the implementation by Member States is not satisfactory, further action
at Community level can be taken. **In other cases, and as requested in Council**
**Resolutions, radio spectrum harmonisation should be achieved at the initiative of**
**CEPT.** Where this happens, Member States are not obliged to implement the
harmonisation measures adopted in CEPT.

_**The establishment of**_ _**Community**_ _rules_ _**to**_ _assign_ _**and use radio**_ _spectrum_

_**s**_ _**Frequency assignment**_ is the process where administrations authorise individual users
to use radio stations or to provide radio services within identified frequency bands. In
certain cases, frequency assignment is linked to the licensing of users, including as
regards the collection of fees (i.e. administrative costs and charges) for the use of radio
spectrum. **Radio spectrum assignment** **is** **governed by European Community**
**Directives and is subject to competition law.** They aim to establish a level playing field
for all users of radio spectrum which is based on open, objective, non-discriminatory, and
transparent grounds.

_**The establishment of**_ _**Community rules**_ _**as regards radio**_ _**equipment**_ _**and**_ _**standards**_

_s_ Common frequency bands are required in order to permit the use of radio equipment in
different countries, to minimise co-ordination problems at frontiers and to facilitate the
large production runs for equipment necessary to make European industry competitive at
world markets. **The marketing and use of radio equipment is governed by a**
**(proposal for a) European Community Directive.** Community policy with respect to
**standards** is aimed at allowing non-discriminatory and technology-neutral access to radio
spectrum while ensuring **interoperability and pan-European provision of services.**

_**The**_ _**institutional**_ _**framework**_ _**for**_ _**the co-ordination**_ _**of radio**_ _**spectrum**_

_s_ Taking into account that radio spectrum does not stop at the Community borders, the
**Council of Telecommunications Ministers** found it appropriate in the early 1990s to
**achieve the Community's policy objectives on radio spectrum through international**
**agreements rather than via internal instruments.** For this reason, a number of **Council**
**Resolutions and Council Conclusions** were adopted which refer to the International
Telecommunication Union (ITU, 186 member countries) and its World
Radiocommunications Conferences (WRC) to achieve international frequency
harmonisation and to the European Conference of Postal and Telecommunications
organisations (CEPT, 43 member) to achieve radio spectrum harmonisation in Europe
and to develop corresponding European positions for ITU/WRC.

In accordance with these Council Resolutions and Council Conclusions, the European
Commission and CEPT entered into a formal relationship in the form of a Memorandum of
Understanding (1994). **In its role as observer in ITU/WRC and counsellor to CEPT,**
**the European Community seeks to ensure that its interests are appropriately**
**represented in these bodies.**

**15**

_**Chapter 4**_ _**EU policy on radio**_ _**spectrum:**_ _**issues for comments**_

**4.** **EU POLICY ON RADIO SPECTRUM: ISSUES FOR COMMENTS**

**The aim of chapter 4 is to invite comments from all interested parties so as to stimulate**
**debate on whether the present political and** **legal** **base as well as the practical**
**implementation of Community radio spectrum policy requires adaptation in the light of**
**technological, market, and regulatory developments.**

The issues presented are not exhaustive but are meant to focus discussion as to where
Community policies currently apply and where adaptation may be required. Comments on
additional issues which require further consideration in the Community context will be taken
into account in a further Communication reporting on the results of the public consultation on
the Green Paper.

_**(1)**_ _**Strategic planning of the use of radio spectrum**_

_**The European Commission would welcome views on the**_ _**strategic**_ _**planning of the use**_
_**of radio spectrum in the European**_ _**Community,**_ _**particularly as regards: the scope of**_
_**and information**_ _**needed**_ _**for planning exercises; whether a political and legal**_
_**commitment to plan radio spectrum for**_ _**pan-European**_ _**services is needed; and to what**_
_**extent a harmonised Community approach is needed to develop and implement re-**_
_**farming and substitution policies as part of the planning of**_ _**radio**_ _**spectrum, including**_
_**as regards the phasing-out of analogue services in the areas of broadcasting and**_
_**mobile**_ _**telephony.**_ **_ ^**

**1 (a)** **Does the strategic planning of the use of radio spectrum respond to the**
**needs of commercial and non-commercial uses, in particular in the areas**
**of mobile and personal communications, broadcasting, transport, and**
**R&D?** „

There are no specific Community requirements for the planning of the use of radio spectrum
for services other than telecommunications, although the obligation to publish national
frequency allocation tables should also comprise information on radio spectrum availability for
broadcasting, transport, and R&D applications. CEPT's detailed spectrum investigations
covers all uses of radio spectrum, but, due to its voluntary nature, divergences may persist
between the radio spectrum planning of Member States. The result may be that the
development and implementation of Community policies which depend on radio spectrum
availability, as weil as the general business planning of radiocommunications interests, is
hampered due to a lack of information.

**1(b)** **What** **information** **on** **radio spectrum allocation, radio** **spectrum**
**assignment, and licensing should be publicly available for industry and**
**policy makers? Where should this information be collected and how**
**should it be presented in the European Community?**

Radiocommunications players not only need regulatory certainty as regards the availability of
radio spectrum for the provision of services, they also need to know the procedures for, and
conditions for use of radio spectrum. Information of this kind is generally not included in
frequency allocation tables and this information is not available at the Community level.

**1 (c)** **Should re-farming and substitution policies form part of the strategic**
**planning of radio spectrum for pan-European services, what could be the**
**modalities for this (e.g. actors to be involved, timing), and to what extent is**
**a common Community approach required, for instance with regard to the**
**phasing-out of analogue broadcasting and analogue mobile telephony**
**services?**

**16**

_**Chapter**_ _**4**_ _**EU policy on radio spectrum: issues for comments**_

The strategic planning of the use of radio spectrum also requires regulatory certainty with
regard to any foreseen measures to move existing users to less congested frequency bands
(re-farming or re-location within the radio spectrum) or to encourage them to use alternative
transmission infrastructure (substitution), taking also into consideration existing competition
rules. Information of this kind is generally not available. A specific issue is whether regulatory
intervention is needed to support the introduction of spectrally efficient technologies, e.g. is a
common Community approach needed to support the transition from analogue transmission of
mobile telephony and broadcast signals to digital forms of transmission. [17 ]

_**(2)**_ _**Harmonisation of radio spectrum**_ _**allocation**_

_**ISSUE 2**_

_**The European**_ _**Commission**_ _**would welcome views on radio**_ _**spectrum harmonisation**_ _**in**_
_**the European Community and the wider context; whether a priori Community**_
_**agreement is required as regards the need for harmonisation measures and on the**_
_**basis of what criteria this can be determined; and the level of legal certainty required**_
_**with respect to the**_ _**implementation**_ _**of such measures by**_ _**Member**_ _**States.**_

**2(a)** **Are specific Community measures necessary to ensure radio spectrum**
**availability** **for** **pan-European** **applications** **in** **the** **areas** **of**
**telecommunications, broadcasting, transport, and R&D, or should criteria**
**be established which determine when radio spectrum harmonisation is**
**required?**

Currently, no pre-defined regulatory criteria exist which determine when radio spectrum
harmonisation is needed. Applicants for radio spectrum seek political support from the
European Commission in order to enforce decisions to be taken by CEPT. At the same time,
the technical proposals in CEPT and ITUA/VRC are increasingly influenced by commercial and
political lobbies. Pre-defined criteria appear to be lacking which would comprise both technical
and socio-economic elements, on the basis of which objective and transparent decisions on
the need for radio spectrum harmonisation can be taken.

**2 (b)** **Where and on the basis of what criteria should priorities be set and**
**arbitration take place where radio spectrum requirements for Community**
**policies on telecommunications, broadcasting, transport, and R&D are in**
**conflict? How can it be ensured that commercial and public interests are**
**defined and appropriately balanced in this process?**

Pre-defined criteria are also lacking when determining which services should receive priority
in accessing (harmonised) frequency bands. This fact causes problems where there are

**1 7** **The comments received following the publication of the Commission's Green Paper on convergence on the**
**issue of the switch-off of analogue services were not conclusive and showed a split between those who saw any**
**transition from analogue to digital broadcasting as being market-led, and not requiring governmental or** **EU** **level**
**intervention, and those** **who** **considered that a deadline set at a national level would be a useful stimulus to the**
**development of digital broadcasting in the EU. Many of the commentators saw the role of the EU as one of** **co-**
**ordination of switch-off dates rather than setting a single date for all Member States. A number of mobile**
**operators and equipment manufacturers saw some merit in dates being set for shutting down analogue mobile**
**communications systems, in order to free spectrum for further digital communications; Most commentators**
**considered that radio spectrum would continue to be a scarce resource** **for** **the foreseeable future,**
**notwithstanding the efficiency gains flowing from the use of digital communications and the analogue radio**
**spectrum made available.** **In** **particular broadcasters pointed out that, for a lengthy period of time, broadcasting**
**would be simultaneously** **transmitted** **via digital and analogue frequencies, thereby occupying additional**
**frequencies. For further details, see** **COM(98)1284,** **29.07.1998,** **p.29,30.**

**17**

_**Chapter 4**_ _**EU policy on radio spectrum:**_ _**Issues**_ _**for**_ _**comments**_

conflicting radio spectrum requirements, i.e. where radio sectors compete for access to (the
same) radio spectrum on different economic, political, or social, grounds, and where there are
differences in radio spectrum usage in neighbouring countries.

**2(c)** **Can the implementation of radio spectrum harmonisation measures,**
**necessary for the provision of pan-European services, be left to voluntary**
**decisions by Member States or is there a need for legal obligation in that**
**respect? Should the European Community collect and publish relevant**
**information in both cases?**

Where there is no Community requirement for the harmonisation of frequency bands, the
implementation of CEPT measures by Member States takes,place on a voluntary basis.
Currently, no comprehensive information is available as to which Member States have
implemented CEPT harmonisation measures according to which national transposition
measures. [18] The availability of such information is important for commercial decisions to be
taken.

_**(3)**_ _**Radio spectrum**_ _**assignment**_ _**and licensing**_

_**ISSUE**_ _**3**_

_**The European Commission would**_ _**welcome**_ _**views on radio spectrum assignment and**_
_**licensing, particularly as concerns which mechanism is most suitable to**_ _**secure**_ _**the**_
_**efficient use of radio spectrum and the harmonised Introduction of pan-European**_
_**services; the extent to which a common Community approach Is required on the**_
_**valuation and possible trading of radio spectrum as well as the possible costs of**_
_**relocating existing radio**_ _**spectrum**_ _**users; and the level of legal certainty needed in the**_
_**Community**_ _**context.**_

**3 (a)** **Where there are differences in Member States as regards radio spectrum**
**availability for pan-European services, what is the overall impact on**
**competition?**

The Commission Communication on the implementation and functioning of the frequency
Directives has found that in general there are large differences in the amount of spectrum
assigned to operators in different countries and even to operators within the same country for
reasons which are not always clear. Diverging licensing conditions, including duration of
licenses, can make Community-wide harmonisation of radio spectrum allocation and
assignment difficult. It may also have an effect on competition, particularly where it concerns
pan-European services.

1 8 In order to ensure clear regulatory arrangements in this respect, the Commission proposed to make the
implementation of CEPT measures obligatory by a specified deadline and to oblige Member States to inform the
Commission so as to publish national implementation measures. See: A new approach to the co-ordination of
radio frequencies in the Community, Communication from the Commission concerning a proposal for a Council
Decision on the implementation by the Member States of measures concerning radio frequencies, COM(93)382,
10.09.93. In this document, the Commission furthermore proposed that: Commission shall ensure Community
involvement in organisations dealing with radiocommunications; Council shall draw up guidelines on the
positions to be adopted by Member States in ERC and ERO; and a representative committee shall be created to
deliver opinions on the measures to be taken.

18

_**Chapter**_ _**4**_ _**EU**_ _**policy on radio spectrum: issues for**_ _**comments**_

**3(b)** **Is** **there a need to agree in the European Community on which radio**
**spectrum assignment mechanism leads to the most efficient use of radio**
**spectrum for the different types of services?**,

Where radio spectrum is scarce and the number of available licences therefore limited,
Member States have several mechanisms at their disposal to assign radio spectrum (e.g. first
come-first served procedure, comparative bidding, auctions) while taking into account the
requirement to ensure efficient use of radio spectrum. However, since different interpretations
exist as regards what constitutes efficient use of radio spectrum, no consensus exists as to
which mechanism is best in which cases. [19 ]

**3** (c) **What is the impact on pan-European services of diverging national**
**mechanisms to assign radio spectrum, which mechanism is most suitable**
**to support pan-European services, and to what extent is a Community**
**approach required in this regard?**

Since the availability of radio spectrum for pan-European services is expected to continue to
be limited, a number of Member States are considering and introducing the use of auctions to
award the licenses available, e.g. in case of UMTS. Also in this context, no consensus exists
as to which mechanism is best to support the provision of pan-European services or what the
impact will be of diverging national approaches in this regard.

3 **(d)** **What is the impact of charges and fees, including relocation costs,**
**associated with the use of radio spectrum on the development of services**
**and on the competitive situation?**

Member States may impose non-discriminatory charges in addition to administrative costs in
order to ensure that optimal use is made of radio spectrum and to foster the development of
innovative services and competition. Opinions diverge on the impact of radio spectrum
charges. Where licenses have already been granted, it has been argued that auctions tend to
strengthen the dominance of the incumbent players by increasing the costs for the new
entrants. [20] Some telecommunications operators argue that the costs involved with auctions
will reduce the readiness to invest in networks and lead to higher consumer prices. Others
argue that potential users are bidding, in effect, a part of their future profits, without any
significant impact on prices to the consumer.

Some operators have also expressed reservations with the requirement, where applicable, to
pay for the relocation costs of existing users, particularly where their competitors are not
bound by such obligations. Other issues concern the extent to which the revenue raised is

**1 9** **The comments received on the Green Paper on convergence show agreement on the overall need for greater**
**efficiency in radio spectrum use, although there are widespread concerns** **about** **the possible auctioning of radio**
**spectrum. Some commentators recognised that by placing a commercial value on frequencies, greater**
**efficiency might be promoted and that civil users of frequencies might be encouraged to release some of their**
**existing radio spectrum. Other pointed out the risk of discrimination where later market entrants were required to**
**pay a market value, whilst existing users had much lower fees. However, for a large majority of broadcasters,**
**telecommunications** **operators** **and equipment manufacturers, current mechanisms such as so-called** **"beauty**
**contests" or comparative bidding provided the most effective way of balancing the need to ensure efficient use**
**of frequencies and the need to avoid excessive charges for the players involved, as ultimately those charges**
**would be passed on to the consumer. Such high charges were felt to often be motivated by national budgetary**
**considerations rather than by the concern of radio spectrum efficiency. At the same time, a number of**
**broadcasters, including those representing community and local radio, made the point that where higher values**
**were attached to radio spectrum, provision should be made to ensure that certain public service broadcasters**
**could still obtain frequencies at an affordable price. For further details, see** **COM(98)1284,** **29.07.1998, p.29,30.**

**2 0** **The Commission is currently dealing with complaints regarding the effects of auctions.**

**19**

_**Chapter 4**_ _**EU policy on radio**_ _**spectrum:**_ _**issues for**_ _**comments**_

used for radio spectrum policy and frequency management, e.g. to make further radio
spectrum available (for pan-European services).

**3 (e)** **Should the awarding of radio spectrum be separated from the granting of**
**service authorisations or licences? What would be the impact of creating a**
**secondary market for radio spectrum for the provision of similar or**
**different services, and which safeguards are needed in this regard?**

It is argued that the efficient use of radio spectrum would be best served by separating service
authorisations and licenses from radio spectrum assignments. It is claimed that the
advantages of spectrum trading would be that single assignments could be transferred (for a
price) from one user to another with no change of use of the spectrum. Alternatively,
assignments may be subdivided or combined and, where appropriate, used to provide a
different radio service for which there is market demand. Since radio spectrum is a bottleneck
facility, consideration should be given to the potential impact of secondary trading on anticompetitive behaviour and on abuses of dominant positions. Also, the possible risk of a further
fragmentation of radio spectrum use should be taken into account. For the European
Community, a particular issue to be addressed in this regard is whether diverging national
approaches or the absence of a common Community approach to such matters will affect
pan-European service provision and the efficient use of radio spectrum.

_**(4)**_ _**Radio equipment and standards**_

_**The European Commission would welcome views on the link between Community**_
_**policy on radio**_ _**equipment,**_ _**standards,**_ _**and**_ _**radio**_ _**spectrum,**_ _**with**_ _**particular**_ _**regard**_ _**to the**_
_**co-operation between bodies responsible for standards and radio spectrum and the**_
_**measures**_ _**needed**_ _**at**_ _**the operational**_ _**level of radio spectrum management**_

**4 (a)** **Is** **there a need to improve** **the** **link between the elaboration of standards**
**and the harmonisation of radio spectrum allocation for pan-European**
**services in the areas of telecommunications, broadcasting, transport, and**
**R&D?**

The implementation of a number of Community policies, for instance in the areas of radio
navigation and road transport telematics, depends on standards developed in fora other than
ETSI, which is mainly concerned with the elaboration of telecommunications standards.

**4 (b)** **Which practical arrangements are needed to ensure that the full potential**
**of Community policy on radio equipment is supported by appropriate**
**action at the level of radio spectrum management?**

The RTTE Directive will remove many regulatory barriers for the placing on the market and
free movement and putting into service in the Community of novel and innovative radio and
telecommunications terminal equipment, rt- will ease the marketing of such equipment
throughout the Community, and will avoid the need for _ad hoc_ mutual recognition
arrangements between Member States (e.g. such as those developed by CEPT in recent
years). However, if consumers and industry are to benefit from this, the timely availability of
harmonised spectrum is a prerequisite and close consultation is required between policy
makers, manufacturers, and users to address the following issues: the establishment of a
database of national regulations- for the use of the radio spectrum, one-stop notification
procedures, and arrangements in support of market surveillance.

**20**

_**Chapter 4**_ _**EU policy on radio spectrum: issues for**_ _**comments**_

_**(5)**_ _**The institutional framework for radio spectrum**_ _**co-ordination**_

**/ S S ( y £ 5**

_**The European Commission would welcome views on whether the present institutional**_
_**arrangements for the co-ordination of radio spectrum are appropriate to meet the**_
_**Community's**_ _**policy**_ _**objectives,**_ _**i.e. to**_ _**contribute**_ _**to**_ _**economic**_ _**growth,**_ _**employment,**_ _**and**_
_**welfare, to stimulate**_ _**technological innovation**_ _**and the development of new**_ _**services,**_ _**to**_
_**foster**_ _**competition**_ _**in the internal**_ _**market,**_ _**and to strengthen European competitiveness**_
_**in the establishment of**_ _**pan-European**_ _**and**_ _**global radio**_ _**systems.**_

**5 (a)** **In** **view of the need to have a predictable environment in the European**
**Community for the use of radio spectrum, is the framework for the** **co-**
**ordination of radio spectrum sufficiently open, transparent, and legally**
**certain? Is it clear where and on the basis of which principles the need for**
**radio spectrum harmonisation or for Community positions is established?**

Both new and existing users of radio spectrum are likely to benefit from a high level of
openness in the regulatory framework and should therefore be more involved in the decisionmaking process. Certain parts of the radio spectrum are congested and, in order for new
telecommunications, broadcasting, transport, and R&D applications to be introduced, radio
spectrum might need to be shared or existing users might need to give up their occupancy of
frequency bands or limit their expansion. In this context, Community competition rules need to
be fully applied. Any change in the use of radio spectrum will affect new and existing users
alike and they therefore need to be consulted in order to assess the appropriateness of the
decisions to be taken.

Particularly where applicants for radio spectrum in various economic sectors compete on
different economic, political, or social grounds, priorities in radio spectrum use are difficult to
set where no objective principles (whether technical, economic, political, and social) exist on
the basis of which priorities to spectrum access can be set. The result of this situation is also
that (both European and third country) applicants for radio spectrum address their
requirements in parallel at the level of the Member States, CEPT, and the Community, which
is inefficient, and which in turn may trigger European operators to seek governmental support
in other parts of the world for the introduction of new systems, both in terms of radio spectrum
allocation and assignment.

**5 (b)** **Is** **the establishment of a priori Community agreement** **necessary** **to**
**achieve radio spectrum harmonisation or is it sufficient to co-ordinate the**
**positions of the Member States in CEPT on an ad hoc and technical basis?**

Common Community positions in CEPT can only be ensured where political and legal
agreement is reached in the Community context. In all other cases, experience has shown
that it is difficult to assess whether the economic and general interests of the Community are
safeguarded on the basis of technical information provided during the development of
harmonisation measures or of European positions in CEPT. This points to the need to
substantiate the technical information available with economic, political, and social elements
in order to establish whether and at which stage of the development of positions a common
Community approach in CEPT and ITUAA/RC is needed.

**5** (c) **In** **which fora should Community positions be developed where needed in**
**discussions on radio spectrum between the European Community and its**
**trading partners?**

Radio spectrum is increasingly being raised as a market access issue in discussions between
the European Community and its trading partners. Availability of and access to radio spectrum
is a key condition for organisations to provide radio services and products abroad and for

**21**

_**Chapter**_ _**4**_ _**EU**_ _**policy on radio spectrum: issues for**_ _**comments**_

internal and external communications. However, the European Community does not have the
information to discuss current or future availability of radio spectrum for the Community as a
whole. According to the current regulatory arrangements, CEPT should develop such
common European positions when needed. However, the process by which CEPT arrives at
such positions can be lengthy and does not always reflect the Community position.

**5(d)** **Should procedures be introduced to ensure that the Member States**
**support CEPT positions for** **ITU/WRC,** **particularly in view of the need to**
**uphold Community interests in the international arena?**

The Member States in CEPT are not obliged to comply with the European positions worked
out for ITUAA/RC. [21] In practice, the European Commission is not in a position to secure a
common Community approach in ITUAWRC nor is it able to arbitrate in case Member States in
CEPT disagree on the positions to be taken.

**2 1** **European Common Proposals (ECP) are proposals adopted by the Conference Preparatory Group (CPG) of**
**CEPT in preparation for ITU meetings which reflect the position of the CEPT members who have expressed**
**their intention to co-sign the ECP. ECP approval requires the support of at least 10 CEPT members, and not**
**more than 6 members opposing. Those who have opposed are expected to co-operate with all CEPT members**
**in WRC on a consensus basis and refrain from defending separate individual or multilateral proposals, but there**
**is no strict legal obligation for** **them** **to do so.**

**22**

_**Chapter**_ _**5**_ _**Conclusions**_

5. CONCLUSIONS

Major technological, market, and regulatory developments have an impact on the way radio
spectrum policy is made in the European Community and at the international level.
Furthermore, the availability of radio spectrum has become a key issue for the implementation
of Community policies on telecommunications, broadcasting, transport, and R&D. Considering
that radio spectrum is a bottleneck facility, it is appropriate to discuss radio spectrum policy
issues with all interested parties in the light of these changes so as to ensure that the best
possible use is made of the radio spectrum resource.

. Against the background of the Community policy objectives with regard to radio spectrum and
in the context of the political and legal base and practical reality for Community involvement
with regard to the European framework for the co-ordination of radio spectrum, the strategic
planning of the use of radio spectrum, the harmonisation of radio spectrum allocation, radio
spectrum assignment and licensing, and radio equipment and standards, this Green Paper
invites interested parties to give views on a number of issues pertinent in the Community
context.

The issues require a wide public debate so as to determine whether further Community action
is required.

The Commission will report on the findings of the consultation period and propose Community
measures to the European Parliament and the Council, where appropriate.

**23**

_**Annex**_ _**I**_ _**European**_ _**Community policies**_ _**involving radio spectrum**_

**ANNEX** **I**

**EUROPEAN COMMUNITY POLICIES INVOLVING RADIO SPECTRUM**

The implementation of a number of sector-specific Community policies depends critically on
the availability of radio spectrum. An overview of these policies is outlined in this Annex [22] ;
horizontal Community policies are referred to in the main body of the text of the Green Paper.

_**Telecommunications**_ _**policy**_

With the introduction of the digital generation of public mobile communications systems (GSM,
DECT, ERMES) at the end of the eighties through spectrum co-ordination as well as through
liberalisation measures from the regulatory point of view, the European Community helped to
create a pan European service range which has now been successfully implemented and is
recognised as responding to a user demand as well as being an important industrial activity in
itself. In view of the future demand for public mobile communication both in volume and
service enhancement and diversity, Community action is currently undertaken to support the
development and deployment of a European proposal for the 3 [rd] generation mobile system
(IMT2000), UMTS (Universal Mobile Telecommunications System), for which spectrum
availability is a crucial element to be discussed at the forthcoming World Radiocommunications Conference (WRC-2000). Wireless communication is also considered in the context
of the convergence between mobile and fixed services. In this context the usage of wireless
local loop (WLL) is potentially an important means to achieve the necessary competition in
telecommunications.

The development of mobile terrestrial communication has been subject to intensive R&D
.activities at European Community level through the RACE and the ACTS programmes.
Projects have been funded with approximately 176 MECU during the period 1986-98.

Satellite Communication has equally been recognised as a necessary component in view of
realising the Information Society. Besides the liberalisation of the satellite sector through
Community measures in the early nineties, action is undertaken to support the synergy of the
players involved through the Satellite Action Plan. Furthermore, the European Community
actively contributes to efforts to co-ordinate the introduction of global S-PCS systems. This
includes the harmonisation of radio spectrum bands.

European Community funding for satellite communications projects from RTD-programmes
has been 85 MECU in 1987-97. The 5th Framework Programme for RTD foresees a funding
of Information Society technologies of 3.3 billion ECU in the period 1998-2002. The share of
the satellite communications is expected to be around 15 million ECU per year. [23 ]

At the level of trans-European networks, initial projects to stimulate the usage of satellite
system-based infrastructure as a communication backbone are under preparation.

22 **A** detailed description on spectrum aspects related to these policies can be found in the in the Commission Staff
Working Paper: "Issues at the World Radiocommunications Conference 1999 (WRC-99)", SEC(1998)839,
12.5.98

23 The Space Co-ordination Group, The Fifth Framework Programme and Space Applications, SEC(1998)1055.

_**&**_

_Annex_ _I_ _European Community policies involving radio spectrum_

_**Broadcasting**_ _**policy**_

The Television Without Frontiers Directive establishes the free movement of TV broadcasts
within the European Community and is therefore essentially a single market measure to
ensure the free movement of services. The Directive has recently been amended by Directive
EC/97/36 to take account of changes of the market, in particular arising from technological
developments. The MEDIA programme (Community budget: 310 MECU 1996-2000) aims at
promoting and developing the European audio-visual industry.

Digitisation and the development of new services such as specialist channels and Video-onDemand will create increased demand for audio-visual content. Community policy is to
ensure, for cultural, industrial and employment reasons, that this demand is met by European
audio-visual production.

European Community policy on advanced television and digital broadcasting aims at
facilitating the market-led introduction of digital and wide-screen television [24] . It has both a
regulatory and a promotional strand. The Directive on the use of television transmission
standards [25] set up a light regulatory framework to support the launch of digital television
services, providing certainty for investors, and ensuring that public interest requirements are
met.

On the promotional front, the Commission has supported the activities of the Digital Video
Broadcasting (DVB) group [26] . The group has defined the European digital broadcasting
standards for cable, satellite and terrestrial television which are increasingly being used all
over the world. In addition, the Union launched a four-year Action Plan in 1993 [27] to overcome
the market failure that had prevented the introduction of wide-screen television in the 16 :9
format. Wide-screen is now an established part of the broadcast services and TV set markets,
ready for an increasing role in digital TV markets.

The Commission also follows the activity of the World Digital Audio Broadcasting (DAB)
Forum . The aim of this forum, which has more than 100 member organisations world-wide, is
to speed up the introduction of Digital Audio Broadcasting in Europe. DAB was created by a
consortium of European manufacturers, research institutes, network operators and
broadcasters under the umbrella of the Eureka technology programme and with Community
support. This system has received ITU recognition as a world standard.

Today, one Member State has launched digital terrestrial broadcasting and several other
Member States are looking to do the same. What the effect of a general cut-off date for
analogue terrestrial broadcasting would be on the market overall is a complicated matter in

24 See Council Decision on an Action Plan for the Introduction of Advanced Television Services in Europe,
93/424/EEC, OJ No L196/48 5.8.93. This Action Plan has facilitated the market introduction of the 16:9 widescreen format ready for digital TV.

25 European Parliament and Council Directive 95/47/EC of 24 October 1995 on the use of television transmission
standards OJ 95/L28/51, 23.11.1995.

26 The Digital Video Broadcasting group (DVB) is an association of broadcasters, transmission companies as well
as consumer and professional electronics manufacturers. The group comprises over 200 organisations in more
than 30 countries. The DVB group has developed a complete family of interrelated television systems for all
transmission media (including terrestrial, cable, satellite) and at all quality levels (standard definition through to
high definition) and with the possibility to offer new convergent services like Internet access. DVB systems have
been standardised by ETSI and are recognised by the ITU at the global level.

27 Council Decision 93/424/EEC of 93/424 of 22 July 1993 on an Action Plan for the Introduction of Advanced
Television Services in Europe, OJ L-281, 23.11.1995. The Council Decision made available up to 228 MECU
over 4 years, ending on June 30th 1997

_/_

_**à)**_

_**Annex**_ _**I**_ _**European Community policies involving radio spectrum**_

view of the widely differing characteristics of the television markets in each of the Member
States. This issue is currently subject to a political debate which touches upon several issues,
only one of which is spectrum policy.

The digitalisation of terrestrial broadcasting would potentially allow for reduced radio spectrum
occupancy for existing broadcast services, thereby freeing up radio spectrum. However, it is
very likely that in many countries, a lengthy transition period to digital will be needed.
Consumers will need time to replace their radio sets. They will also need to purchase one or
more decoders to upgrade their analogue TV sets or to buy one or more new integrated
digital TV sets. A period of "simulcasting" will therefore be necessary (of anything up to 15
years) and this will in fact put additional strains on the availability of radio spectrum. Moreover,
the range of broadcast services is already increasing rapidly, with more NVOD, thematic
channels and interactive TV becoming available. On the other hand, as TV broadcasting
develops from its origins (a few public terrestrial channels) towards pay TV and transactional,
retail style delivery of programmes "on demand", and as wireless communications evolves
towards multimedia, the terms for access to spectrum which terrestrial broadcasters currently
enjoy are increasingly being called into question by economic actors in other sectors. [ 28 ]

As far as the introduction of digital radio is concerned, it has to be outlined that DAB
operational services have already been launched in various Member States like Sweden
(covering 80% of the population), UK (a public and a commercial service have already been
licensed), France and Italy. Other Member States are planning to start soon regular DAB
services (i.e. Germany in Spring 1999).

_**Transport policy**_

The European Community has become active in several sectors related to transport such as
aeronautical service sector, satellite navigation and positioning, maritime navigation and
communication sector as well as the development of inter-modal transport telematics
applications.

As a result of the efforts undertaken to establish as single air transport market based on the
free market access, the air transport sector has been considerably stimulated leading to a
strong demand for the improvement and further development as well innovation of
aeronautical communication and navigation support [29], all typically based on
radiocommunications techniques and thereby requiring spectrum allocation. Having radio
spectrum available becomes thereby an essential pre-requisite for the successful
implementation of an air transport policy.

Maritime communications remains an important sector, especially given its specific
requirements for safety and security [30], and is defined as such in the trans-European
Transport Network Guidelines [31] . The European Community has therefore supported the

2 8 The Commission is currently dealing with complaints involving non-transparent and potentially discriminatory
attribution of radio spectrum in this sector.

29 Communication from the Commission on congestion and crisis in air traffic, COM(95)318 final, 5.7.1995.

30 Green Paper on Sea Ports and Maritime Infrastructure, COM(97)678,10.12.97

3 1 Decision 1692/96/EC of the European Parliament and of the Council of 23 July 1996, which specifies that the
trans-European shipping management and information network is composed of coastal and port shipping
management systems, vessel positioning systems, reporting systems for vessels transporting dangerous or
polluting goods, communication systems for distress and safety at sea.

##### **_U,_**

_**Annex**_ _**I**_ _**European**_ _**Community policies**_ _**involving radio spectrum**_

development of maritime systems through research actions under the TELEMATICS
programme of the Fourth Framework Programme.

Satellite positioning, navigation and timing systems such as GPS and GLONASS, originally
developed for military applications, are expected to allow for widely varying usagé including
aeronautical and maritime navigation, fleet management and tracking, provision of precise
time references, and positioning in the consumer sector, etc. The European Community is
currently assessing its role in the development of the next generation global satellite
positioning and navigation system and, particularly, the scope for cooperation with the US and
the Russian Federation. The availability, planning and protection of spectrum for GNSS is
seen as a priority and the Council has confirmed that adequate protection of radio spectrum
for GNSS needs to be recognised in the relevant international fora. [32 ]

Total investments in the European augmentation of GNSS are estimated to 570-4000 MECU
depending on which alternative is chosen. The European Community funding for GNSS in
1998 is 21 MECU which is expected to substantially increase beyond 2000. [33 ]

A growing number of additional transport telematics systems are emerging, many resulting
from related R&D projects in Community programmes such as the TELEMATICS programme
where approximately 220 MECUs have been spent during the period 1984-1998 on transport
R&D activities New proposals such as comprehensive transport information systems or a
European wide "GSM for Railways" service are being developed. For road transport,
Dedicated Short Range Communications (DSRC) systems are already used for Electronic
Fee Collection and will increasingly support driver information and various other systems that
depend on vehicle to vehicle/infrastructure communications. It is expected that these
applications will increase the overall demand for spectrum. [34 ]

_**Earth observation**_

Earth observation has considerable importance as a basic tool for a certain number of specific
policies such as global scale measurements [35], implementation of environmental and civil
protection policies [36], and agricultural policies [37] . Consequently Europe has developed a
technological basis in co-operation with the Member States represented in ESA (European
Space Agency) as well as through national programmes. Examples of application are the

32 Communication by the Commission: Towards a Trans-European Positioning and Navigation Network, including
a European Strategy for Global Navigation Satellite Systems (GNSS), COM(98)29 final, 21.1.1998 and Council
conclusions of 17 March **1998.**

33 Communication by the Commission: Towards a Trans-European Positioning and Navigation Network, including
a European Strategy for Global Navigation Satellite Systems (GNSS), COM(98)29 final, 21.1.1998.

34 Designation of further frequency bandwidth for road transport and traffic telematics within Dedicated Short
Range Communication Systems, study commissioned by the Commission, January 1998

35 Earth observation (EO) aiming at global scale measurements of parameters such as ocean colour, sea surface
temperature, weather forecasts, continental land cover and biomass burning, vital for initiating and validating
models of global change, heavily rely on satellite EO. Earth system science entails a global partnership in which
Europe has clear obligations.

36 EO can be a cost-effective tool for the implementation of environmental and civil protection policies. EO is
already used pre-operationally for monitoring changes in land cover for the Natura 2000 network as part of the
Habitats Directive, and for detecting oil spills in the context of the Bonn Convention. The information offered
from space can help in the management and even prediction of natural hazards such as floods, storms and
forest fires. Particularly if the frequency and magnitude of these events increase with a changing climate or
effects such as the "El Nino", the contribution of EO to their mitigation can have considerable economic impact.

37 EO is already used in the EU to check claims for agricultural subsidy, and for gathering statistics. EO will also
play a role in the context of an evolving Common Agricultural Policy, particularly with an increasing emphasis on
environmental impact.

IV

_**&**_

_Annex_ _I_ _European Community policies involving radio spectrum_

weather satellites for European meteorological services operated through EUMETSAT. More
recently, the demand for new environmental monitoring services has increased in the context
of binding international agreements such as the as the Montreal Protocol, The Kyoto Protocol,
the Biodiversity Convention and the Framework Convention on Climate Change.

The European Commission pursues efforts to stimulate the Earth observation technological
background through R&D programmes. Under the Fourth Framework Programme (1995-98)
around 275 MECU were dedicated on Earth observation related research. The Commission's
proposal for the Fifth Framework Programme of the European Communities for Research and
Development Activities (1998-2002) [38] includes research activities on the development of
generic Earth observation technologies, notably satellite technologies for environmental
monitoring and resources. RTD activities on Earth observation are also considered in the
Communication on space applications and their market perspective [39] .

_**Radio Astronomy**_

Radio-astronomy has been recognised as an activity in which the European Community has a
general interest in participating. However, substantial investment in suitable infrastructures is
required and large-scale installations are increasingly operated on a shared and global basis.
Currently, Community activities are implemented through Action 4 of the Framework
Programmes on RTD, in particular Research Networks and Access to Large-Scale
Facilities. [40] Both activities are foreseen to be continued under Framework Programme 5. [41 ]

The involvement of the Community on an international level is organised through the
participation at the OECD Megascience Forum (Working Group on Radio-astronomy). The
financial contributions for the period of 1994-98 are estimated at 7.3 MECU. Besides coordination of R&D activities, radio-astronomers have identified a need to take action at a
global level to tackle the rapidly increasing problem of radio interference which results from
the heavy utilisation of radio spectrum and related phenomena, such as out-of-band
emissions by satellites. Because of the extreme sensitivities required to carry out radioastronomical experiments, such radio interference could inhibit most ground based (on Earth)
observations in future.

38 COM(97)142 final, The Commission proposal for the Fifth Framework Programme of the European Community
for Research and Development Activities (1998-2002), 30.4.1997.

39 COM(96)617 final, Communication from the Commission the European Parliament and the Council on the
European Union and Space: Fostering Applications, Markets and Industrial Competitiveness, 4.12.1996.

4 0 Council Decision on the specific programme on "training and mobility of researchers" (TMR), OJ No. L361/90,
31.12.94.

4 1 Proposal for a Council Decision on the specific programme on "improving the human research potential and the
socio-economic knowledge base, COM(98)305.

_**J$**_

#### **I**

_Annex_ _**II**_ _**EU**_ _policy_ _on_ _radio_ _spectrum_

**ANNEX** **II**

**EU POLICY ON RADIO SPECTRUM**

The aim of this annex is to explain the political and legal base for, and present practice of
Community involvement in radio spectrum policy in the following areas: (1) the strategic
planning of the use of radio spectrum; (2) the making available of harmonised radio spectrum
for pan-European and global radio services; (3) the application of the rules for the distribution
and use of radio spectrum; (4) the marketing and use of radio equipment; (5) the institutional
framework for the co-ordination of radio spectrum.

**Strategic planning of the use of radio spectrum**

_**Main objective: creating a**_ _**predictable environment**_ _**for current and future use of radio**_
_**spectrum**_

In order to create an environment for radio spectrum which allows for the longer-term
planning and development of pan-European radio services and products, particularly in
the telecommunications area, the use of radio spectrum should be strategically planned.
Where necessary, action should be taken where technological, market, or regulatory
developments require an adjustment in the distribution of radio spectrum among its
various uses.

_**Political and legal base**_

**Strategic** **planning of the use of radio spectrum** **I**

**Directive 87/372/EEC** - Member States shall prepare plans for GSM to fully occupy the reserved
**(GSM)** frequency bands according to commercial demand
**Directive 90/544/EEC** - Member States shall prepare plans for ERMES to fully occupy the reserved
**(ERMES)** frequency bands according to commercial demand
**Council Resolution** - CEPT to recommend to regulatory authorities or to the Community long-term
**90/C 166/02** requirements for the radio spectrum J
**Council Resolution** - CEPT to achieve a better-balanced allocation of the frequency spectrum
**95/C 188702** **[42]** between its various uses

                  - In the context of ERC, to provide for frequencies for mobile and personal
communications complying with European standards
**Commission Directive** - Member States shall publish the frequency plans and the procedures for the
**96/2/EC** **[43]** designation of frequencies for specific services

                    - Member States shall publish every year, make available on request, and
communicate to the Commission the allocation scheme of frequencies
reserved for mobile and personal communications services, including the plan
for future extension of such frequencies

                    - Current frequency allocation shall be reviewed at regular intervals; detailed
knowledge of the actual state of allocation and use of radio spectrum is also
required

                    - Where the number of licenses is limited due to spectrum scarcity, Member
States will review whether advances in technology would allow spectrum to be
made available for additional licenses _ ^ ^ ^ _ _ _ _ _ _ _ _ _ _ _ _ _

4 ^ Council Resolution of 29 June 1995 on the further development of mobile and personal communications in the
European Union, 95/C 188/02, OJ C188/3, 22.07.95.

4 3 Commission Directive 96/2/EC of 1& January 1996 amending Directive 90/388/EEC with regard to mobile and
personal communications, L20/59, 26.01.96.

_**tà**_

_**Annex**_ _**II**_ _**EU policy on radio spectrum**_

_**Present practice**_

_**The**_ _**strategic planning of**_ _**the**_ _**use of**_ _**radio spectrum**_ is dealt with in the Community context
in the following ways:

- **Community requirements for the planning of the use of radio spectrum for mobile**
**and personal communications are monitored**

The Commission Communication on the implementation and functioning of the mobile
frequency Directives [44] has found that only a limited number of Member States have so far
notified the Commission about their plans as regards radio spectrum availability for mobile
and personal communications. However, in particular in the area of mobile and satellite
communications (GSM, UMTS, S-PCS), market players seek clarity as regards future
availability of radio spectrum for such applications. This is also true for activities other
than telecommunications. For example, common European frequency bands are needed
to in support of Community policies on transport, broadcasting, and R&D.

- **The European Community contributes to the establishment of an European table of**
**frequency allocation**

The Community partly funds the CEPT process of detailed spectrum investigations (DSI),
which should contribute to the establishment of a harmonised European table of
frequency allocation and utilisation (planned to be finalised by CEPT by the year 2008). In
addition, external studies carried out on behalf of the Commission on market
developments of radiocommunications services have been made available to CEPT.

Q **Member States are not obliged in their planning of radio spectrum to comply with**
**the provisional European table of frequency allocation of CEPT**

No information is publicly available as regards the extent to which Member States'
national planning of the use of radio spectrum complies with the preliminary version of
CEPT's European table of frequency allocation since its implementation occurs on a
voluntary basis. Member States increasingly make available national frequency allocation
tables. However, significant national divergences exist as regards the format and
presentation of such tables. Information as regards the situation of radio spectrum
allocation for the Community as a whole is not available.

- **No specific recommendations are made to the European Community as regards**
**long-term requirements for the radio spectrum**

The Commission has so far neither been informed about any national reviews of current
radio spectrum allocation, nor whether advances in technology would allow for additional
licenses to be made available. CEPT has so far not recommended to the Community
long-term requirements for the radio spectrum, nor has it taken concrete steps to achieve
a better-balanced allocation of the radio spectrum between its various uses.

**4 4** **See footnote 17.**

_**Jo**_

_Annex II_ _EU_ _policy on radio spectrum_

**2.** **Harmonisation** **of radio spectrum allocation**

_**Main objective: securing the harmonised availability of radio spectrum for pan-**_
_**European**_ _**services**_

The establishment of EU and international-wide frequency bands is critical to the free
movement of goods, persons and to the free provision of services. The co-ordination of
radio spectrum therefore falls within the core area of EC internal market competence.
Radio spectrum harmonisation is achieved by means of _**frequency allocation**_ _**measures,**_
i.e. measures which identify frequency bands for the provision of defined services as well
as the technical conditions to be taken into account.

_**Political and legal base**_

**Harmonisation of radio spectrum allocation**

**Directive 87/372/EEC** - Member States shall reserve specific frequency bands for GSM

**(GSM)** **[45 ]**

**Directive 90/544/EEC** - Member States shall reserve specific frequency bands for ERMES

**(ERMES)** **[46 ]**

**Directive 91/287/EEC** - Member States shall reserve specific frequency bands for DECT

**(DECT)** **[47 ]**

**Council Resolution 90/C** - CEPT to recommend to regulatory authorities or to the Community suitable
**166/02** frequencies for pan-European sen/ices

**Council** **Resolution-92/C** - Member States should participate in the development of ERC decisions
**318/01** - Member States should commit themselves to implementing the ERC
decisions on TFTS and RTT, according to ERC procedures

**EP and Council Decision** - CEPT is tasked to harmonise frequencies and authorisation conditions for
**on S-PCS** **[48]** S-PCS

                         - In case work by CEPT or the implementation by Member States is not
satisfactory, further action at Community level shall be taken
**Proposal for an EP and** - CEPT is tasked to harmonise frequencies and authorisation conditions for
**Council Decision on** UMTS
**UMTS** **[49]** - m c a s e w o r ' < D v CEPT or the implementation by Member States is not
satisfactory, further action at Community level shall be taken

45

46

47

48

**49**

Council Directive 87/372/EEC on the frequency bands to be reserved for the co-ordinated introduction of public
pan-European cellular digital land-based mobile communications in the European Community, OJ L196/85,
17.07.87. This Directive was adopted in parallel with: Council Recommendation 87/371/EEC of 25 June 1987 on
the co-ordinated introduction of public pan-European cellular digital land-based mobile communications in the
European Community, OJ L196/81,17.07.87.

Council Directive 90/544/EEC of 9 October 1993 on the frequency bands designated for the co-ordinated
introduction of pan-European land-based public radio paging in the Community, OJ L310/28, 09.11.90. This
Directive was adopted in parallel with: Council Recommendation 90/543/EEC of 9 October 1990 on the coordinated introduction of public pan-European land-based public radio paging in the Community, OJ L310/23,
09.11.90.

Council Directive 91/287/EEC of 7 June 1991 on the frequency bands to be designated for the co-ordinated
introduction of digital European cordless telecommunications (DECT) into the Community, OJ L 144/45,
08.06.91. This Directive was adopted in parallel with: Council Recommendation 91/288/EEC of 3 June 1991 on
the co-ordinated introduction of digital European cordless telecommunications into the Community, OJ
L144/476, 08.06.91.

Decision 710/97/EC of the European Parliament and of the Council on a co-ordinated authorisation approach in
the field of satellite personal communications services in the Community, OJ L105, 23.04.1997.

Proposal for a Decision of the European Parliament and the Council on the co-ordinated introduction of a thirdgeneration mobile and wireless communications system (UMTS) in the Community, COM(1998)58, OJ C131,
29.04.98.

Ill

_**21**_

_**Annex**_ _**II**_ _**EU policy on radio spectrum**_

_**Present practice**_

At operational level, the _**availability in the European Community of harmonised**_
_**frequency bands**_ is ensured in one of the following ways:

- **The European** Community **adopts specific legal measures which require harmonised**
**frequency bands to be made available by the Member States**

This approach has been used in the past in case of GSM, ERMES, and DECT. Where
Member States dp not implement these measures, appropriate action at Community level
can be taken.

- **The Community adopts legal measures for the harmonised introduction of systems**
**and refers to CEPT for the harmonisation of required frequency bands**

This new methodology is being used for S-PCS and UMTS and allows for Community
action to be taken where Member States do not comply with the measures taken.

- **The Community partly funds CEPT to carry out the technical work necessary for the**
**harmonisation** **of** **radio spectrum allocation**

By means of the MoU and framework agreement with CEPT ERC/ERO, the Commission
may entrust technical work to ERC/ERO with the aim of harmonising radio spectrum
allocation. However, under this approach, the members of CEPT, including the Member
States, decide whether to follow-up on the work carried out by ERC/ERO, i.e. by adopting
radio spectrum harmonisation measures. Furthermore, individual CEPT members decide
individually whether or not to implement the measures adopted by CEPT.

- **CEPT decides on its own initiative whether to develop, adopt, and implement**
**harmonisation measures**

For all other cases than described above, CEPT itself takes the initiative to achieve radio
spectrum harmonisation. CEPT recommendations are always proposed to its 43 member
countries, not to the Community specifically. Where CEPT develops measures not
formally requested by the Community, adoption and implementation by Member States
occurs on a voluntary basis. Even where Community funding is used to identify radio
spectrum availability and the scope for harmonisation for pan-European services, no
formal or legal mechanism exist to ensure adoption of appropriate measures by CEPT or
their implementation by the Member States.

**3.** **Radio spectrum assignment and licensing**

_**Main objective:**_ **application of the rules according to which users obtain and**
**regulatory authorities assign radio spectrum**

_**Frequency assignment**_ is the process where administrations authorise individual users
to use radio stations or to provide radio services within identified frequency bands. The
assignment of radio spectrum to individual users and the licensing of
radiocommunications operators are governed by European Community legal principles,
including competition law. They aim to establish a regulatory level playing field for all
users of radio spectrum which is based on open, objective, non-discriminatory, and
transparent grounds and which supports technological innovation and competition.

**IV**

_**3Z**_

_Annex II_ _EU_ _policy_ _on_ _radio_ _spectrum_

_**Legal base**_

**Radio spectrum assignment and licensing**

**ONP** Framework - Conditions regarding access to and usage of frequencies should be objective, I
Directive [50] non-discriminatory, transparent, and proportionate to the objective sought

                     - In order to ensure effective use of frequencies and to avoid harmful
interference. Member States may restrict access to frequencies

Commission Directive  - Limiting the number of licenses for mobile and personal communications
96/2/EC systems only allowed where radio frequencies are scarce and to ensure
fulfilment of essential requirements (i.e. security of network operation,
maintenance of network integrity, interoperability of services, data protection,
protection of the environment, town and country planning)

                     - As soon as frequencies become available, Member States shall award licenses
and available frequencies shall be assigned in an open, transparent, and nondiscriminatory manner

                     - Efficient use of radio spectrum and effective competition to be ensured

                     - Member States shall not restrict the combination of mobile technologies or
systems, in particular where multi-standard equipment is available, and adopt,
where required, measures to ensure effective competition among competitors
Licensing Directive [51]  - Access to frequencies to be secured pursuant to strictly defined procedures
and deadlines

» Frequency licenses can be separated from service authorisations

                     - The number of licenses may be limited only to ensure the efficient use of radio
frequencies and maximise user benefits, develop competition, publish and
review the limitation decision, invite license applications

                     - Individual license conditions shall be published and granted through open, non# I
discriminatory and transparent procedures within reasonable time limits

                     - Non-discriminatory charges may be imposed in the granting of individual
licenses but this may not negatively affect the development of services and
competition

_**Present**_ _**practice**_

_Radio spectrum_ _assignment_ _and licensing_ _in the European Community_ _takes place as_
_follows:_

a **The licensing of individual operators is done at Member** **State** **level but subject to**
**European Community legal principles, notably the competition rules and the**
**modalities established by the Licensing Directive**

Member States in principle have the choice to use individual licences or to accept general
authorisations, but normally impose an individual licence for radio communication
systems and related services. Licensing conditions and assignment methods may vary
from Member State to Member State. This applies to the assignment procedures as well
as to the licensing conditions imposed on applicants. Pan-European or global systems are
equally subject to such differences.

5 ^ Directive 97/51/EC of the European Parliament and of the Council of 6 October 1997 amending Council
Directives 90/387/EEC and 92/44/EEC for the purpose of adaptation to a competitive environment in
telecommunications, OJ L 295/23, 29.10.1997.

**51** Directive 97/13/EC of the European Parliament and of the Council of 10 April 1997 on a common framework for
general authorisations and individual licenses in the field of telecommunications services, OJ L117/15, 05.05.97.

_**73**_

_Annex II_ _EU policy_ _on_ _radio_ _spectrum_

  - **In** **most** **cases,** **a** licence **to provide a service is coupled to the authorisation to use**
**radio spectrum**

Although legally possible according to the Licensing Directive, the separation of service
licenses and spectrum usage authorisation is not a common practice.

  - **Where radio spectrum is available, it has to be assigned upon request**

This means that, where radio spectrum allocation measures have been adopted and
implemented, Member States should deal with requests for radio spectrum use in a
responsive and timely 'manner.

a **The assignment and use of radio spectrum should facilitate the development of**
**competition and maximise the benefits for users**

Within the specific national context and in view of market and societal needs, radio
spectrum assignment mechanisms should lead to the most efficient use of the radio
spectrum through the competitive provision of services so as to maximise the benefits for

users.

**4.** **Radio equipment and standards**

_**Main objective:**_ _application_ _**of the rules**_ _according_ _**to**_ _which radio_ _**equipment can be**_
_**marketed and used**_

Common frequency bands are required in order to permit the use of radio equipment in
different countries, to minimise co-ordination problems at frontiers and to facilitate the
large production runs for equipment necessary to make European industry competitive at
world markets. Community policy with respect to standards is aimed at allowing nondiscriminatory and technology-neutral access to radio spectrum while ensuring
interoperability and pan-European provision of services.

_**Political**_ _**and legal**_ _**base**_

**Radio equipment and standards**
Council Resolution 90/C  - Common frequency bands are required in order to permit the use of
166/02 equipment in different countries, to minimise co-ordination problems at
### I
frontiers and to facilitate the large production runs for equipment necessary
to make European industry competitive on the world market

                        - CEPT to interact closely with ETSI in order to ensure the vital link between
frequency planning and standards

Proposal for an EP and  - Radio equipment can move freely in the European Community
Council Directive on radio  - The introduction of a general framework for the authorisation of use of radio
and telecommunications equipment

## I

terminal equipment # T n e a D O [|jtj] o n [ of a] _[ prion]_ [ market access controls] [ (3] [rcJ] [ party certification); 4 ]

(RTTE) [52] week advance notification period before putting on the market of equipment

using non-harmonised frequencies
52 COM(97)257, OJ C248, 14.8.1997. A Common Position has been established: Common Position (EC) No. • Member States are required to plan the use of radio spectrum in a
39/980 of the Council of 08.06.98, OJ C227/37, 20.07.98. The proposed Directive will replace Directive transparent manner
98/13/EC of the European Parliament and of the Council of 12 February 1998 relating to telecommunications
terminal equipment and satellite earth station equipment, including the mutual recognition of their conformity, OJ
L074, 12.03.1998.

VI

**_74**

_Annex_ _II_ _EU_ _policy on radio spectrum_

_**Present practice**_

The _**relation between radio spectrum harmonisation and standards**_ is governed in the
following ways:

- **Common European standards for telecommunications are elaborated in the context**
**of** **ETSI**

The elaboration of common European telecommunications standards is achieved in ETSI
(European Telecommunications Standards Institute). Where required, e.g. when a
Community regulation requires **a** common technical basis, the European Community may
support ETSI to develop such standards and may request CEPT to identify and
harmonise the necessary radio spectrum.

a **CEPT and ETSI have established working arrangements**

As regards the relationship of radio spectrum with standards, a memorandum of
understanding governs the co-ordination between CEPT/ERC and ETSI. ETSI and CEPT
representatives are mutually involved in the respective work programmes.

The _**free movement and putting into service of radio equipment**_ is governed at
Community level in the following way:

- **Community legislation will govern the free movement and use of radio equipment**

Radio equipment is covered by the proposed RTTE Directive which will remove regulatory
barriers to the free movement and use of equipment, whilst providing safeguards for
Member States to protect the radio spectrum. The Directive will abolish a _priori_ market
access controls and rely on the responsibility and liability of manufacturers and suppliers,
whilst Member States will have an increased responsibility for surveillance. Under the new
regime, the rendering of mandatory standards or national specifications, common in the
regimes it replaces, will be abolished.

**5.** **The institutional framework for frequency co-ordination**

_**Main objective: ensuring that the framework for the**_ _**co-ordination**_ _**of radio spectrum**_
_**complies with**_ _**Community interests**_ _**and international**_ _**obligations**_

The main principle governing Community action in this area has been to pay particular
attention to the possibility in certain cases of achieving the objectives set out in the Treaty
through international agreements, rather than via internal instruments. In other words,
when appropriate and effective action is already taken at international level, the
Community may abstain from adopting specific Community measures. Following the
adoption in the early 1990s of a number of Council Resolutions and Council Conclusions,
the European Community seeks to ensure that the Member State co-ordination of the use
of radio spectrum in the European Conference of Postal and Telecommunications
administrations (CEPT) and in the World Radiocommunications Conferences (WRC) of
the International Telecommunication Union (ITU) comply with Community interests.

VII

_> (_

_Annex_ _II_ _EU_ _policy_ _on_ _radio_ _spectrum_

_**Political**_ _**base**_

_**Framework for frequency co-ordination in Europe**_

I **Council Resolution 90/C** - Commission and Member States should support the CEPT framework,
**166/02** **[53]** including the setting up of ERO (European Radiocommunications Office)

                        - CEPT should take account of the opinions of national frequency experts,
telecommunications organisations, and other service providers, industry,
and users

                        - CEPT to recommend to regulatory authorities or to the Community suitable
frequencies for pan-European services

                        - CEPT to recommend to regulatory authorities or to the Community longterm requirements for the frequency spectrum
Council Resolution 92/C  - Commission to give full consideration to the mechanism of ERC (European
**318/01** [54] Radiocommunications Committee) decisions as the primary method of
ensuring the provision of the necessary frequencies for new Europe-wide
radio services

**Council Conclusions of 7**  - Confirmation of Council Resolution 92/C 318/01

**December 1993**  - ERC decision mechanism should be implemented, and

                        - Commission shall sign a memorandum cf understanding and a framework
agreement with ERC/ERO to this end

_**European co-ordination towards**_ _**ITU/WRC**_

**Resolution 90/C 166/02** « CEPT to develop common European positions for ITU/WRC
**Council Conclusions** of 3  - Community co-ordination at WRC will take place only if CEPT co-ordination
##### I February 1992 does not arrive at the agreements necessary in order to uphold the interests

of the Community and the Member States

                        - The Community alone is able to enter into external commitments at WRC
as far as the frequency Directives (GSM, DECT, ERMES) are concerned
**Council Conclusions of 22**  - Confirmation of the Council Conclusions of 3 February 1992
**September 1997**  - Commission to participate closely in and with CEPT/CPG, including as
regards bilateral contacts with third countries and regional
telecommunications organisations

                        - Commission to set up industry consultation mechanism

_**Present**_ _**practice**_

**With regard to the European co-ordination framework,** the European Community seeks to
ensure compliance of the positions of the Member States in CEPT and ITU/WRC with legal
obligations and agreed policies in the following ways:

a **The positions of the Member States in CEPT and ITU/WRC are subject to specific**
**political and legal objectives to be achieved in the European Community**

This procedure is followed in the case of mobile and satellite communications (i.e. GSM,
DECT, ERMES, S-PCS and UMTS). Where the work of CEPT or the implementation of
harmonisation measures by Member States is not satisfactory, appropriate action at
Community level can be taken.

53

54

Council Resolution of 28 June 1990 on the strengthening of Europe-wide co-operation on radio frequencies, in
particular with regard to services with a pan-European dimension, OJ C166/4, 07.07.90.

Council Resolution of 19 November 1992 on the implementation in the Community of the European
Radiocommunications Committee decisions, OJ C318//1, 04.12.92.

VIII

**5fc**

_Annex_ _II_ _EU_ _policy on radio spectrum_

**•** **In the absence of specific Community objectives to be achieved, the European**
**Commission assesses on the basis of technical information available in CEPT and**
**ITU/WRC** **whether the political and economic interests of the Community are**
**safeguarded**

The Commission is counsellor to CEPT and represents the Community as observer in
ITU/WRC. These bodies address the need for the harmonisation of radio spectrum on the
basis of technical information. In this process, the Member States' positions are not
subject to any form of Community co-ordination and CEPT and Member States have the
final say over whether or not to support the adoption and implementation of radio
spectrum harmonisation measures. The Member States' positions are generally not
subject to any form of Community co-ordination in this process.

- **The Community contributes to the development by CEPT of radio spectrum**
**harmonisation measures or of European positions for ITU/WRC**

Through the memorandum of understanding and framework agreement with ERC/ERO,
the Community can financially contribute to the development of appropriate measures and
positions although it does not have the legal means to enforce decisions to be taken or to
be implemented. The Member States' positions are generally not subject to any form of
Community co-ordination in this process.

IX

_**J/-**_

_**Annex III**_ _**List of abbreviations**_

```
                                ANNEX III

```

**LIST OF ABBREVIATIONS**

```
ACTS

CEPT

CPG

DECT

DSI

DVB

EBU

ECP

ECTEL

ECTRA

EEA

EO

ERC

ERMES

ERO

ESA

ETNO

ETSI

EC

EU

EUMETSAT

GATS

GLONASS

GNSS

GMPCS MoU

```

**GPCS**

Advance Communications Technology Systems

European Conference of Postal and Telecommunications

Administrations

Conference Preparatory Group of the CEPT

Digital Enhanced Cordless Communications

Detailed Spectrum Investigation

Digital Video Broadcasting

European Broadcasting union

European Common Proposals

Association of the European Telecommunications and Professional

Electronics Industry

European Authorities for Telecommunications Regulation ?

European Economic Area

Earth Observation

European Radiocommunications Committee of CEPT

European Radio Messaging system

European Radiocommunications Office of CEPT

European Space Agency

European Telecommunication Network Operators Association

European Telecommunications Standardisation Institute

European Commission

European Union

European Meteorological Satellite

General Agreement of Trade in Services

Global Orbiting Navigation Satellite System of the Russian

Federation

Global Navigation for Satellite Systems

Global Mobile Personal Communications Services Memorandum of

understanding

Global System for Mobile communications

_**?Z**_

_**Annex III**_ _**List of abbreviations**_

**ICAO**

**IMT**

**IMO**

**IT**

**ITA**

**ITU**

**ITURR**

**MoU**

**MRA**

**MRC**

**MSS**

**NTFA**

**OECD**

**ONP**

**RACE**

**RR**

**RTD**

**RTTE**

**S-PCS**

**TENs**

**WLL**

**WRC**

**WTO**

**UMTS**

International Civil Aviation Organisation

International mobile Telecommunications

International Maritime Organisation

Information Technology

International Technology Agreement

International Telecommunications Union

International Telecommunications Union Radio Regulations

Memorandum of Understanding

Mutual Recognition Agreement

Milestone Review Committee

Mobile Satellite Services

National Tables of Frequency Allocation

Organisation of Economic Co-operation and Development

Open network Provision

Research and technology development in advanced communications

in Europe

Radio Regulations of the ITU

Research and Technological Development

Radio and Telecommunications Terminal Equipment (Directive)

Satellite Personal Communications Services

Trans European networks

Wireless Local Loop

World Radiocommunications Conference

World Trade Organisation

Universal Mobile Telecommunications System

_**^**_

ISSN 0254-1475

COM(98) 596 final

### DOCUMENTS

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