In brief
- The Australian Communications and Media Authority's discussion paper, "Review of the 2.5 GHz band and long-term arrangements for ENG" invites comments on ACMA's proposed re-arrangements of 2.5 GHz band which is currently used for Electronic News Gathering and brings the issue of spectrum management and the use of "digital dividend" into the media spotlight.
On 12 January 2010, the Australian Communications and Media Authority (ACMA) released a discussion paper "Review of the 2.5 GHz band and long-term arrangements for ENG" (Paper). The Paper invites comments on ACMA's proposed re-arrangements of 2.5 GHz band which is currently used for Electronic News Gathering (ENG). This has brought the issue of spectrum management and the use of "digital dividend" into further media spotlight.
Background
The Paper was released against the backdrop of possible restacking of radio spectrum as part of the switch from analogue to digital television which will free up the 700 MHz band. Currently, 2.5 GHz was used by television broadcasters for ENG operation, such as transmitting signals from a news helicopter back to studio. Recently, the International Telecommunication Union identified the 2.5 GHz as the band for future International Mobile Telecommunications (IMT) services. This has led to significant development of devices, including wireless access devices, which comply with the IMT 2.5 GHz standards. Naturally, this has resulted in the increasing demand for 2.5 GHz and pressure on the government to free up the band from ENG services.
ACMA's proposal
In the Paper, ACMA proposes a combined approach of converting part of the 2.5 GHz band for continued ENG operation and allocating the remainder for wireless access services, such as mobile broadband. Upon first look, this appears to be contrary to reports that government may consider restacking the radio frequency and accommodate digital television and associated services in one continuous block. However, the Paper notes that a complete re-allocation of ENG services may be difficult due to restriction from and interference with frequencies used by earth stations, aeronautical mobile telemetry, or radio astronomy.
The Paper indicates that the allocation of the part of 2.5 GHz band not reserved for ENG operation will most likely be done through price-based allocation, namely an auction. There is no mention of allocating any section of the band for possible unlicensed access, such as the deployment of "white-space" technologies. To some, this is a disappointing development, since the Federal Government has so far given no indication on whether any part from the re-allocated 700 MHz band will be earmarked for "white-space" technologies or similar open access usage.
White-space
White-space refers to radio frequencies which are not used locally. The most common form of white-space is the guard band frequencies which exist between two adjacent licensed radio frequencies to prevent interference. With the switch-off of analogue signals, a large amount of radio spectrum is freed up because digital television can be compressed and uses less spectrum to transmit. This also creates a significant amount of white-space frequencies.
Worldwide experience
Though the US is not the first country to complete analogue to digital switch over, it is the first country to field test white-space technologies. In October 2009, a trial white-space broadband was deployed in Claudville, Virginia. This signals the first concrete step in testing white-space technologies, which are very much in their infancy.
The UK has also indicated possible deployment of white-space spectrum. In a consultation paper, the UK regulator, Ofcom, proposed to allow licence exempt use of interleaved spectrum for cognitive devices. Under the proposal, cognitive radio devices may use unoccupied spectrum where a frequency used in one part of UK is unoccupied in another part because it is outside the range of the transmitter.
Nevertheless, the US and UK are still the vanguard in this respect. Most other countries simply allocated or propose to allocate the digital dividend spectrum for other telecommunications purposes, especially mobile broadband access. Sweden allocated its digital dividend of the 800 MHz band for wireless access services. Germany will conduct auction of its digital dividend spectrum in first half of 2010 and it is expected three of the four incumbent mobile operators will pick up the available spectrum. The situation is not assisted by the ambiguous language adopted by the European Commission. In an October 2009 communication, the European Commission merely asked its member states to cooperate in examining the possibility of opening up the white-space spectrum.
After thoughts
After government funded rescue packages for the banking sector, sizeable proceeds from any spectrum sale may prove to be irresistible for any government. However, it would be mistaken to think fiscal concern is the sole determining factor over the allocation of digital dividend spectrum. More likely than not, it will depend on the culture of the relevant regulator. For example, Ofcom noted that its approach towards digital dividends aims to "maximise the total value to society that using the spectrum [is] likely to generate over time". Words reminiscent of creative commons. This can be contrasted with the emphasis of ACMA regarding the arrangements 2.5 GHz band, namely "moving the band to its highest value use". Arguably ACMA has taken an economic utility-based approach to spectrum management. This may explain the lack of commitment for white-space technologies in Australia.
It is interesting to see whether the deployment and use of white-space spectrum will not end up being a short-lived dream. The technologies are relatively untested and there is significant opposition from industry players. The recent legal action by the National Association of Broadcasters to oppose the authorisation of white-space devices given by the Federal Communications Commission clearly indicates that this is only the first chapter in the debate of how best to use the digital dividend.
For more information about the Australian Government's green paper seeking public comment on the benefits and costs of maximising Australia's "digital dividend" - the radio-frequency spectrum that will be freed up as a result of the switchover from analogue to digital television broadcasting, see our article Managing the digital dividend - Government Green Paper in this edition.
