CELEX: 51991PC0215
Language: en
Date: 1991-06-12
Title: PROPOSAL FOR A COUNCIL DIRECTIVE ON THE FREQUENCY BANDS TO BE DESIGNATED FOR THE COORDINATED INTRODUCTION OF DIGITAL SHORT-RANGE RADIO ( DSRR ) IN THE COMMUNITY

COMMISSION OF THE EUROPEAN COMMUNITIES
                                        C0MC91) 215 final - SYN 345
                                        Brussels, 12 June 1991
                          Proposal for a
                        COUNCIL DIRECTIVE
         on the frequency bands to be designated for the
      coordinated introduction of digital short-range radio
                     (DSRR) in the Community
                  (presented by the Commission)
 ---pagebreak---                                     - 2 -
                           EXPLANATORY MEMORANDUM
                                  Contents
    1.  Introduction
       1.1   Background
       1.2   The current state of short-range mobile communications in the
             Community
       1.3   Market opportunities and requirements
       1.4   Limitations of existing short-range radio communications
    2. Potential benefits of digital short-range radio (DSRR)
    3. ETSI standard for DSRR
       3.1   Simplex, one-frequency operating mode
       3.2   Semi-duplex, two-frequency operating mode
    4. Time scale for the introduction of DSRR
       4.1   Time scale for the completion of a single standard
       4.2   Time scale for manufacturers to produce equipment
    5. Frequency requirements
    6. Objective of the proposed Directive
(2)
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 1.       Introduction
 1.1      Background
As foreseen in the Commission's 1987 Green Paper on the development of the
common   market      for    telecommunications        services    and    equipment,      future
 intra-Community      communications       will     depend    on   achieving       Europe-wide
compatibility      and     interoperability       of    current    and     future    services,
 including mobile communications, which should be provided universally at a
European     level.    These    requirements       must    be   based     in   particular    on
Decision 87/95/EEC of 22 December 1986 on standardization in the field of
 information          technology          and         telecommunications,1              Council
Directive 83/189/EEC of         28 March 1983 establishing           a   procedure     for  the
provision     of   information      in    the    field     of   technical     standards     and
               2
regulations,        as     amended     by     Directive       88/182/EEC,       and     Council
Recommendation     84/549/EEC     of   12 November 1984 on         the     implementation    of
                                                               3
harmonization in the field of telecommunications.
For   its part,     the    European   Parliament       has   requested     that   the   current
general   incompatibility of mobile communications systems be resolved, and
that work towards Community-wide mobile communications be undertaken.4
The Commission's       June 1987 Green Paper on telecommunications                  included a
proposal    to   set    up   a  European     Telecommunications        Standards      Institute
(ETSI).    This    has     resulted     in     a    major     reform    of     the     European
standards-setting process with the establishment of ETSI                    in March 1988 in
Sophia-Antipolis, near Nice in France.               ETSI has instructed        its Technical
Subcommittee RES 7 to produce a standard for digital short-range radio by
the end of 1990.
1   0J No L 36, 7.2.1987, p. 31.
2   0J No L 109, 26.4.1983, p. 8.
3   OJ No L 298, 16.11.1984, p. 49.
4   European Parliament report on telecommunications in the Community
    (Leonard! report), doc. 1.1477/3 of 3 March 1984.
 ---pagebreak---                                           - 4 -
 1
   -2      The   current   state   of  short-range   mobile   communications   in the
           Community
 in the early 1980s the United Kingdom allocated the 933-935 MHz frequency
band to CB (Citizen's Band Radio) in order to limit the spread of 27 MHz
equipment. However, the United Kingdom did not get the support of the other
European administrations and CEPT adopted a recommendation on a 27 MHz CB
service. Japan, however, had prepared analogue equipment equivalent to CB
equipment for the 933-935 MHz frequency band.            The Europeans subsequently
reached     agreement   within   CEPT   to use   the 933-935 MHz    band for digital
equipment.      The  basic    idea   was  to   have  low-power    (1  Watt)  portable
equipment. When ETSI was set up, the working party responsible for drafting
specifications for the equipment was transferred from CEPT to ETSI              (RES).
At    the same time, CEPT adopted Recommendation T/R           24-04 allocating    the
frequency      bands   933-935 MHz    and   888-890 MHz   for   short-range   digital
communications. It also recommended that this system should be capable of
using both the simplex and duplex mode. The 933-935 MHz frequency band is
used    in the simplex mode and, in the semi-duplex mode, communications can
take place in the associated 888-890 MHz band.
1-3       Market opportunities and requirements
 It is difficult to make accurate projections of the demand for DSRR in view
of the variety of services offered and the novelty of this concept: the
original concept was intended to cover only voice communication, but this
application has been extended to include data. A recent study funded by the
Commission indicates that by 1995 there are likely to be 330 000 mobile or
portable stations in the United Kingdom and the Netherlands.
This figure      is based on an extrapolation of the traditional          market   for
private mobile equipment but, given the cheapness of DSRR, it is difficult
to estimate at present        the inroads it will make      into the small business
markets (services, agriculture, transport, etc.), and some market studies
consider that the rate of penetration will be higher.
 ---pagebreak---                                         - 5 -
 Another market study has yielded comparable results: 1.2 million users in
 the Community    in 1995. However, the study specifies that a very          large
proportion    of   them   do   not  at  present  use  public   or private    radio
 communications systems. They will buy DSRR, however, because of the low
cost of the equipment, the absence of charges for use without a relay, and
the service rendered.
1.4      Limitations of existing short-range radio communications
Professionals will be able to use public services such as GSM or DECT
throughout the Community. These systems are connected up to the public
switched network but they are much more expensive than DSRR. Professionals
can also use private network equipment, but that presupposes obtaining a
frequency.    In  several    Member States   public  demand   can no   longer   be
satisfied because the private networks are saturated. DSRR will offer a new
opportunity for obtaining a frequency without having to get authorization
from   the national     administration to use     it in a given   service area.
Allocating frequencies by sharing the frequency spectrum resource will make
 it possible to use the equipment without        interference and with a large
measure of mobility.
2.       Potential benefits of digital short-range radio (DSRR)
There is unanimous agreement among European manufacturers and users that
the DSRR approach is the most appropriate for Europe in the medium and long
term for this category of mobile services. Users will be able to benefit to
the full from the advantages of the single market of 1992, using their
equipment    throughout     the   Community  without   the   need  for   specific
authorization from the national administration         if they use two sets of
mobile equipment or with the authorization of the national administration
if a relay is used. The DSRR approach offers the following benefits:
               DSRR will offer major benefits to private and business users
               and will stimulate the development and exploitation of major
               new market opportunities for European industry;
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                European   industry will be developing a system and products,
                and   will   thus    acquire    greater   experience    in   consumer
                electronics;
                DSRR   will   provide     European   industry    with   an   advanced
                technology with considerable potential         for world-wide sales
                and distribution opportunities;
                the successful     development   and  implementation of    DSRR will
                provide the necessary technical and operational framework to
                facilitate     the     introduction    of    a    universal    mobile
                telecommunications system as the successor to DSRR.
Another advantage of DSRR is that it uses the voice coders developed for
the GSM system. In the case of DSRR the rate is 16 k/bit per second. As a
result of DSRR using the GSM coder, European            industry will benefit from
 longer series for this comparatively expensive equipment.
Lastly, DSRR has the advantage of being technologically far more efficient
in the use of the frequency spectrum than conventional private systems.
3.        ETSI standard for DSRR
The ETSI Technical Subcommittee RES 3 was given the task of specifying the
technical    standard for DSRR. Following a reorganization within ETSI the
work was transferred from RES 3 to RES 7. The work            is being supported by
the    European     industry   via    ECTEL    (European   Telecommunications     and
Professional Electronics Association).
DSRR sets are low-power transmitters-receivers operating either in simplex
mode in the 933-935 MHz band or in semi-duplex or full-duplex mode in the
933-935 MHz band in association with 888-890 MHz.
Direct digital modulation of the carrier           is used to send the selective
signalling code and the voice or data.
 ---pagebreak---                                    - 7 -
DSRR sets are equipped with:
        automatic multi-channel access with no need for a central monitor;
        a selective signalling code;
        DSSRs may use the simplex, the semi-duplex     and the full-duplex
        mode.  Base, mobile and portable relay stations may be used.
3.1     Simplex, one-frequency operating mode
When the simplex operating mode    is used, two-way communications can be
established between portable stations and/or mobile stations.
In stand-by mode all the stations receive one or other of the monitoring
channels.
3.2     Semi-duplex, two-frequency operating mode
When the two-frequency mode is used, two-way communications are possible
between the base station and the portable set or between mobile sets on
vehicles.
When the two-frequency mode is used, two-way communications are possible
between the base stations and the portable set and/or the mobile set.
In order to enable base stations to monitor the use of the traffic channel,
all the base stations operating   in two-frequency mode, whether they are
regarded as relay stations or as base stations, operate in full-duplex mode
with continuous transmission and reception on the traffic channel.
In order to select the channel without traffic, all the base stations are
capable of receiving the frequencies transmitted by the base station and
those transmitted by the mobile station.
 ---pagebreak---                                        - 8-
4.      Tlwa scale for the Introduction of DSRR
4.1     Time scale for the completion of a single standard
Harmonization  implies the use of a single European standard. The DSRR
specifications will cover all aspects of the system and a timetable for
completing  the specifications has been agreed          by  ETSI. The date for
completion of the I ETS is the end of 1990 and the date of completion of
the standard following a public enquiry         is October 1991. Member States
should  ensure   that   progress   towards  the   introduction of   DSRR   can be
maintained and that DSRR can be introduced by the end of 1993.
4.2  Time scale for manufacturers to produce equipment
Manufacturers should continue to support the work of ETSI as at present.
They must also be prepared to manufacture their equipment to the ETSI
standard as soon as possible.
5.  Frequency requirements
A prerequisite for the successful introduction of a fully harmonized DSRR
service is the availability of common frequencies throughout the European
Community.  CEPT   has    adopted   recommendation   T/R 75-02  designating    the
888-890 MHz frequency band in association with 933-935 MHz for DSRRs using
the one or two frequency transmission mode.          It is absolutely essential
that the frequencies should be common throughout the Community to enable
European citizens to use their equipment in all twelve Member States.         This
equipment   does    not    require   frequencies    to  be   allocated    by   the
telecommunications    regulatory    authorities.   The  coordinated   and   timely
availability of the necessary common frequencies is imperative if a fully
harmonized system is to be introduced.
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6.  Objective of the proposed Directive
To maintain progress      in the areas described above,          it  is necessary   to
guarantee:
         the completion of the DSRR specifications (I ETS) by October 1991;
         the development of the ETS in 1992 and             its completion    in early
         1993;
         the   coordinated    introduction     of   DSRR   according    to  a   strict
         timetable;
        the    availability    of    common,   Europe-wide     frequencies    for  the
         introduction of the DSRR system;
        ease of market access for manufacturers through the single market.
In order    to   guarantee   the   availability     of   frequencies   for  DSRR   the
Commission   has prepared a draft Directive calling for common              frequency
bands for DSRR throughout the Community.           The Directive is based on the
work of the CEPT which has recommended the 888-890 MHz band in association
with 933-935 MHz for DSRR.
The provision of frequencies        in the Member States is laid down by law,
regulation or administrative action.          Given this situation and the fact
that the provision of radio frequencies is the most critical factor in the
implementation of DSRR, a Council Directive based on Article 100a of the
Treaty is necessary.
The proposed Council Directive on the frequency bands to be designated for
the coordinated introduction of digital short-range radio in the Community
has  the primary     objective   of   ensuring    the  availability    of  sufficient
frequency   resources   in order     to   implement   the system    at  the earliest
possible date.
 ---pagebreak---                                        - 10 -
The  following    additional  Community    measures  are proposed    in order   to
accelerate    the development   and   introduction of   the digital    short-range
radio communication service on the basis of the frequencies set out in the
Directive:
         the Commission will give high priority to the mutual recognition of
         telecommunications equipment type approval and the specification of
         the appropriate European      telecommunications standard.     This will
         facilitate international "roaming" and promote the market for DSRR;
         the Commission will apply strictly Council Directive 83/189/EEC on
         the provision of information in the field of technical standards
         and regulations, and Council Decision 87/95/EEC on standardization
         in the field of information technology and telecommunications.
Finally,    the  Commission    in   collaboration   and   in   consultation   with
interested parties will help develop a strategy for the development of GSM,
ERMES,  DECT, DSRR     and other    private mobile    systems   into a universal
personal communications system.
The proposals will make it possible to take an important step forward for
the introduction of DSRR throughout the Community and substantially improve
the development of advanced telecommunications services and networks as
requested by the Council on 17 December 1984.
The Council is therefore requested:
         to adopt the attached proposal for a Directive;
         to take note of     the additional     preparatory   measures which   the
         Commission will undertake      in close cooperation and collaboration
        with ETSI and CEPT.
 ---pagebreak---                                       - 11 -
                                  Proposal for a
                                COUNCIL DIRECTIVE
               on the frequency bands to be designated for the
            coordinated introduction of digital short-range radio
                             (DSRR) in the Community
THE COUNCIL OF THE EUROPEAN COMMUNITIES,
Having regard to the Treaty establishing the European Economic Community,
and in particular Article 100a thereof,
Having regard to the proposal from the Commission,1
 In cooperation with the European Parliament,2
Having regard to the opinion of the Economic and Social Committee,3
1.       Whereas    Council   Recommendation    84/549/EEC4  calls  for   the
         introduction   of  services   on  the basis  of  a common harmonized
         approach in the field of telecommunications;
2.       Whereas in its Resolution of 30 June 1988 on the development of the
         common market for telecommunications services and equipment,5 the
         Council calls for the promotion of Europe-wide services according
         to market requirements;
3.       Whereas the resources offered by modern telecommunications networks
         should be utilized to the full for the economic development of the
         Community;
1
2
3
4   OJ No L 298, 16.11.1984, p. 49.
5   0J No C 257, 4.10.1988, p. 1.
 ---pagebreak---                                         - 12 -
 4.      Whereas    Council     Directive    89/336/EEC    of   3 May 1989   on  the
         approximation     of   the   laws   of   the   Member States   relating  to
                                           6
         electromagnetic compatibility         is applicable, and particular care
         should be taken to avoid harmful electromagnetic interference;
5.       Whereas current short-range systems in use           in the Community, and
         the frequency bands in which they operate, vary widely and do not
         allow   the benefits of      Europe-wide services or      the economies of
         scale associated with a truly European market to be enjoyed;
6.       Whereas the work to be carried out          in this area should take full
         account, inter al la. of the framework constituted by the provisions
         of Council    Directive 83/189/EEC of        28 March 1983 establishing a
         procedure    for   the   provision    of   information   in  the  field  of
         technical standards and regulations,7 as last amended by Decision
         90/230/EEC,8 Council      Directive 86/361/EEC of 24 July 1986 on the
         initial   stage   of   the mutual     recognition   of  type  approval  for
                                                         9
         telecommunications       terminal    equipment     and   Council   Decision
         87/95/EEC on standardization in the field of information technology
         and telecommunications;10
7.       Whereas the European Telecommunications Standards Institute (ETSI)
         is currently     drafting    the  European    telecommunications   standard
         (ETS) for digital short-range radio (DSRR);
6   OJ No L 139, 23.5.1989, p. 19.
7   OJ No L 109, 26.4.1983, p. 8.
8   OJ No L 128, 18.5.1990, p. 15,
9   OJ No L 217, 5.8.1986, p. 21.
10 OJ No L 36, 7.2.1987, p. 31.
 ---pagebreak---                                       - 13 -
 8.      Whereas that standard must take account of the safety of users and
         the need for Europe-wide interoperability;
 9.     Whereas the implementation of DSRR in Europe will provide a unique
        opportunity    to establish    a truly European and very     inexpensive
        short-range digital     radio system and DSRR will not normally be
        connected to the public network;
 10.    Whereas   it must   be possible    for users of DSRR    terminals    in a
        Member State to use their equipment        in all the other    Community
        Member States;
11.     Whereas ETSI has estimated that DSRR will require 2 x 2 MHz in all
        the Member States;
12.     Whereas the European Conference of Postal and Telecommunications
        Administrations    (CEPT) has adopted    Recommendation   T/R 20-10 on
        DSRR;
13.     Whereas the CEPT has chosen the common European frequency bands
        888-890 MHz and 933-935 MHz for DSRR          in accordance   with   CEPT
        Recommendation T/R 24-04;
14.     Whereas   DSRR   should   be given   priority   and protected     in the
        888-890   MHz and 933-935      MHz bands;   whereas,   in view   of the
        particular   features of the system, protection of the monitoring
        channels (channels 1 and 79) is essential;
15.     Whereas low-power applications exist at these frequencies;
1,6.    Whereas Council Directive .../.../... of ... on the approximation
        of  the laws of the Member States concerning         telecommunications
        terminal   equipment,    including  the mutual   recognition   of   their
                    11
        conformity,      will   allow   the  rapid   establishment   of    common
        conformity specifications for DSRR;
11 0J No L
 ---pagebreak---                                     - 14 -
17.     Whereas the establishment of DSRR in the Community depends on the
        allocation   and  availability  of   a  frequency   band    in order  to
        transmit and receive between base stations and mobile stations;
18.     Whereas the availability of the full range of the abovementioned
        frequency band will be indispensable for the establishment of DSRR
        on a Europe-wide basis.
HAS ADOPTED THIS DIRECTIVE:
                                  Article 1
For the purposes of this Directive, "Digital       Short-Range Radio - DSRR"
means any equipment conforming to the European telecommunications standard
(ETS) for this type of equipment.
                                  Article 2
1.      Member States shall designate the frequency bands indicated in CEPT
        Recommendation T/R 75/02 (888-890 and 933-935 MHz) for DSRR systems
        by 1 January 1992.
2.      DSRR systems shall have priority and shall be protected           in the
        designated frequency bands.
                                  Article 3
1.      Member States shall   bring  into force the     laws, regulations    and
        administrative provisions necessary to comply with this Directive
        by  31 December 1991, and   shall   forthwith  inform    the  Commission
        thereof.
        The provisions adopted by Member States shall contain a reference
        to this Directive or be accompanied by such a reference on official
        publication.   Details of this reference shall      be decided by the
        Member States.
 ---pagebreak---                                    - 15 -
2.      Member States shall communicate to the Commission the text of the
        provisions of national law which they adopt in the field governed
        by this Directive.
                                 Article 4
The Commission shall report to the Council on the implementation of this
Directive by the end of 1995.
                                 Article 5
This Directive is addressed to the Member States.
Done at Brussels,                               For the Council
                                                  The President
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                                                              COM(91) 215 final
                                                      DOCUMENTS
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