A Statement from the Radiocommunications Agency following the Review of Spectrum for TETRA Networks - August 2000

Review of Spectrum for TETRA Networks

1.0 Introduction

1.1 The RA has concluded a review of TETRA(1) spectrum that has addressed how much spectrum is currently available for TETRA systems the prospects for the release of further spectrum and the likely timeframe within which the spectrum would become available. The RA has made decisions on how the currently available spectrum will be assigned. In conducting the Review, the RA has consulted extensively with the mobile radiocommunications industry, DTI/CII, MoD, and OFTEL. The decisions are contained in § 3 of this document. The detail of the spectrum review is attached in the Annex.

2.0 Background

2.1 The Government concluded a consultation(2) exercise in December 1997 that resulted in the available spectrum (100 paired channels) being awarded to the sole national public TETRA operator, TETRALINK. The company subsequently changed its name to Dolphin Telecommunications Limited and has rolled out a national network since the last consultation.

2.2 The previous consultation contained a statement that there should be a review of the spectrum requirements for TETRA networks in December 1999. The review is required to address the following issues:

	What additional spectrum has become available for TETRA networks?
	What additional spectrum is needed for the future development of Dolphin’s network?
	Taking account of the first two bullet points, is there sufficient spectrum for an additional national public TETRA operator?
	What is the demand for spectrum from private TETRA networks and can this demand be satisfied given the spectrum requirements for public networks?

2.3 Since the last consultation, the RA has been working closely with the MoD, representatives of public and private TETRA operator interests, manufacturers and other Government departments. The RA established a specific committee (the Civil Tetra Experts Committee, CTEC) within which the technical, regulatory and spectrum issues have been addressed.

2.4 CTEC has investigated all options in their quest to identify spectrum for TETRA type services. The four bands identified TETRA in ERC Decision ERC DEC(96)04 ERC decision of 7^th March 1996 on the frequency bands for the introduction of the Trans European Trunked Radio Spectrum(TETRA) now Terrestrial Trunked Radio have been the primary focus of the CTEC activities but the RA has made clear that any mobile spectrum currently used for analogue services is a candidate for consideration. However it would appear that the option of using non ERC Decision spectrum is not attractive to manufacturers, a UK only solution would not benefit from the economies of scale that are potentially available for a pan-European TETRA market. The work within CTEC is ongoing.

3.0 TETRA Review Decisions

After extensive consultation with all the interested parties and taking account of the very limited amount of spectrum that has become available since the last consultation, the RA has reached the following decisions in response to the questions posed in the TETRA Review.

What additional spectrum has become available for TETRA networks?

380 – 400MHz Band
This band is currently used by the military and emergency services e.g. the police (PSRCS). A limited amount of spectrum (maybe 2 x 1MHz) may be available for private TETRA systems. RA are currently exploring this option with the MoD, however as the annex explains there are difficulties in making this available for civil use.

410 – 430MHz Band
Currently only approximately 30 paired channels are available, on a national or near national basis although some channels have certain geographical constraints imposed by some residual existing use.

A very limited number of channels is available for Private TETRA systems. These channels are heavily constrained by existing users of the spectrum and therefore of limited use to a national public TETRA operator. The channels (not expected to be more than five or six channels) and a list of the restricted locations in which these channels may be used will be made available by the RA shortly.

450-470MHz Band
This band is subject to the band-reversal exercise and, consequently, the band will not be available to new digital systems until after 2005. However, once this band becomes available, the main customer base is assumed to be private radio systems.

900MHz Band
40 paired channels of Spectrum are currently available and the RA is prepared to licence private TETRA networks on a first come first served basis. A further 120-160 channels may become available for TETRA systems in the next few years or earlier. RA will issue a consultation document on the future use of this spectrum later in the year. Public and Private TETRA use is planned.

Existing Analogue Mobile Bands
In principle, TETRA could be introduced into the VHF and UHF bands currently used for analogue mobile radiocommunications services users by replacing existing analogue equipment.

  What additional spectrum is needed for the future development of Dolphin’s network?

The RA has evaluated Dolphin’s business plan, which, in common with any business plan, contains assumptions about subscriber growth and traffic loading on the network. At this relatively early stage in the development of their business, RA is content that the spectrum requirement profile is reasonable but RA will continue to carefully monitor the situation to ensure that future subscriber growth correlates with the forecast. In the short-term, based on their business plan, RA accepts that Dolphin requires an additional 100 paired channels, 2 x 5MHz in total from within the 410-430MHz band by 2002.

As additional spectrum becomes available, RA will reserve such spectrum to Dolphin as indicated above. Dolphin’s access to this and any further spectrum will be on the basis of demonstrable need.

Consequently, the priority in this band is to identify sufficient spectrum for Dolphin’s future subscriber growth.

Taking account of the first two bullet points, is there sufficient spectrum for an additional national public TETRA operator?

The severely limited number of nationally available channels precludes consideration of a second national public TETRA operator. There is therefore no intention of licensing a second operator.

What is the demand for spectrum from private TETRA networks and can this demand be satisfied given the spectrum requirements for public networks?

There is demand for private TETRA systems one figure quoted is a requirement for 100 paired channels. Approaches to date for private TETRA have sought spectrum in the 410-430 MHz band. This is not surprising given that the TETRA market is almost exclusively concentrated in this band at present and the availability and relatively low cost equipment has been made possible by the volume orders placed by the public TETRA operator, Dolphin Telecommunications. However, when set against the demand for public TETRA spectrum in this band and the limited availability of TETRA spectrum, the two requirements cannot be met. There are a limited number of channels that may be available for private TETRA systems and there may be further scope for sharing between existing users and private TETRA systems. RA is considering proposals and remains willing to consider similar new proposals. The extent to which these sharing arrangements are possible will be shaped by the over-riding requirement to identify national or potentially national channels for the public TETRA operator.

There may be scope for sharing between Dolphin and Private TETRA networks in the remoter parts of the UK that are not planned to be covered by the Dolphin network. A co-ordination procedure and criteria would need to be developed. RA are in discussions with Dolphin on the feasibility of such an arrangement.

Future Developments

It is recommended that a future review be held in twelve months time. Such a review would be able to take account of a number of promising developments that are under consideration and may increase the amount of spectrum available for TETRA. Notwithstanding the commitment to hold a review, if there is a significant breakthrough in the next few months, RA would issue a future notice to reflect developments.

4.0 Licensing Implications

Public TETRA

4.1 Allocation of spectrum for public networks is normally through a competitive process, either a beauty contest or an auction. In this case, Dolphin is the selected operator from the competition held in 1996. The award of the public TETRA licence was made with the clear understanding that further spectrum would be made available on the basis of demonstrable need.

4.2 The limited amount of additional spectrum that is suitable for national or near national use will be allocated to Dolphin Telecommunications. The limited amount of spectrum available following the Review, and the legitimate expectation that additional spectrum would be made available to Dolphin to develop their network precludes consideration of any other form of allocation decision. This action is consistent with the requirements of the Licensing Directive.

Private TETRA

4.3 Allocation of spectrum for private mobile systems is on a first-come, first-served basis. The allocation of spectrum is usually to individual systems that are often site or locality specific. A competitive process is not appropriate as the options are either too bureaucratic or the transaction costs would exceed the potential licence fee.

4.4 The RA’s reasons for limiting, for the time being, the number of public TETRA operators is as outlined above. The RA considers that it has thereby met its statutory obligations under Article 10 of the Licensing Directive. At such time as it is determined that there is sufficient spectrum to issue further TETRA licences the RA would accord with other obligations under Article 10 of the Directive namely to:

	Invite applications for licences,
	Review the limitation in the number of licences at reasonable intervals,
	Grant any licences on the basis of selection criteria, published in advance, that are objective, non-discriminatory, transparent and proportionate or hold an auction.

5.0 Future Developments

The availability of spectrum for TETRA will be kept under constant review and whenever sufficient spectrum becomes available the RA will consult on access to the identified spectrum. RA will actively encourage and work for the development of the 900 MHz TETRA band. The 450-470 MHz band will become available in due course and will probably be used primarily for private TETRA networks. RA will be working with all interested parties to expedite the process of band realignment.

Annex

Spectrum Review

1.0

410 – 430 MHz Band

1.1 This band is included in the European Decision on civil TETRA ERC DEC(96)04, as one of the two preferred bands and is the band in which commercial TETRA services have been implemented within the UK. Part of this band is used by Dolphin Telecommunications to provide their national TETRA service. This band is also becoming widely available throughout Europe with the roll-out of national TETRA networks by Dolphin and other operators. The availability of spectrum across Europe for these networks has resulted in manufacturers targeting this band for their product development as a result of the economies of scale introduced by the implementation of the harmonised spectrum decision. However, this does not apply at present. In the other bands identified in the Decision. Equipment is therefore more widely available and at lower cost than any other band under consideration.

1.2 In the UK, in addition to Dolphin’s use, this band is used extensively by the MoD, some small but widespread usage by Short-Range Devices (SRDs) and additionally, some use of the top end of the band by civil Private Mobile Radio (analogue systems). The short-term strategy is to negotiate the sharing and migration of MoD analogue services from this band in as short a time scale and to the maximum extent possible. The medium to long term strategy is to migrate analogue PMR users and the SRD use from this band.

1.3 The process of migrating MoD use has been rather slow and not as much progress has been made over the past two years as the RA had envisioned. There is now evidence that the process is working more effectively and with a greater sense of urgency. However, notwithstanding these welcome developments, the current ‘pool’ of additional spectrum is very limited. Around 30 channels, have been identified with varying degrees on geographical constraint.

1.5 The RA has decided therefore that the currently available paired channels should be made available to the public TETRA operator. This amounts to approximately 30 paired channels, bringing them up to a total of approximately 2 times 3.25 MHz. Further spectrum will therefore be required to meet their future growth forecasts. These indicate a requirement of 2 times 5 MHz by 2002. RA will therefore award further spectrum to Dolphin. As it becomes available commensurate with their business plan and continuing demonstrable need. An objective of the RA is to provide 2 times 5 MHz of national or near national spectrum to Dolphin by the next review or 2002 at the latest.

1.6 A conclusion from the earlier Public Consultation, required RA to carry out a review of the spectrum for TETRA between 410-430 MHz by the end of 1999. Because of this requirement, a committee (TETRA 410-430 MHz Review Committee) was formed in November 1999 and has had three meetings to date.

	what further available spectrum has been obtained from the MoD to date,
	developments in the market of the merged TETRA operator and the longer term spectrum needs of that operator,
	whether there is sufficient commercial TETRA spectrum available (together with spectrum to meet reasonable business expansion plans) to support the licensing of a further national TETRA operator,
	the possible spectrum needs of private TETRA operators.

1.8 Latest estimates on the current availability of spectrum indicate that there are at present only around 30 duplex channels available with the prospect of a further limited release dependent upon the MoD timescales. The available channels are not national and having geographic limitations, will therefore require co-ordination with the MoD.

1.9 It is unlikely therefore that there will be sufficient spectrum in the short to mid term for a second national operator. In the longer term, when the military have completed their migration and the closure of the 418 MHz band has removed the operational difficulties associated with this part of the band, the situation can be again reviewed, this however is likely to be after 2007.

The RA has concluded therefore that at present the limited availability of national channels precludes consideration of a second national public TETRA operator. The RA has decided therefore that the currently available paired channels should be assigned to the public TETRA operator. This amounts to approximately 30 paired channels or the equivalent of approximately 2 times 0.75 MHz and brings Dolphins allocation up to a total of approximately 2 times 3.25 MHz. Further consideration may be given to allocating some of the more constrained channels (from the national operator perspective) to private TETRA use and set aside for small regional systems. Further spectrum will be required by Dolphin to facilitate their future growth forecasts a requirement of 2 times 5 MHz by 2002. RA will therefore award further spectrum to Dolphin as it becomes available commensurate with their business plan and continuing demonstrable need.

2.0

450 – 470 MHz Band

2.1 This band, although included within the ERC Decision on civil TETRA, is not one of the ‘preferred’ bands.

2.2 The band is currently used extensively by civil mobile radio and emergency services as well as paging.

2.3 The band and the systems operating within it need to be aligned with the CEPT band plan. The RA has instigated a major project to manage this process. Full consultation with affected parties has started and a route map to accomplish the band reversal is being developed. Consequently, this band is a long-term option for TETRA.

The RA therefore concludes that it is unlikely that digital networks will be able to be introduced to this band generally before 2006

3.0

870 – 876 / 915 – 921MHz (900MHz) Band

3.1 This band is included within the ERC Decision on civil TETRA as one of the two ‘preferred’ bands. However the band is not available in all European countries and there was a move to delete this band from the European Common Allocation Table in the DSI Phase III report. The UK proposal to oppose deletion in its response to the DSI Phase III exercise has been upheld following representations by CTEC. The future of the band is secure for TETRA and is seen as being used for civil / military sharing and public network operators in-fill use within main conurbations. The RA is keen to promote the use of this band for all TETRA applications at every opportunity. An allocation of 2 x 1MHz has recently been made for private TETRA.

3.2 Currently however, not all of these bands are available for use in the UK for TETRA. The analogue cellular mobile phone system (E-TACS) occupies 872-876/917-921 MHz but this is in the process of being closed. This closure is unlikely to be complete before the latter part of 2001. Additionally, there is an inherent requirement for a guard band at 915 MHz, the GSM base receive – TETRA base transmit junction. This is in order to avoid TETRA base station transmissions causing harmful interference to GSM base station receivers just below 915 MHz. The RA is thus implementing a 1 MHz guard band between 915-916 MHz for TETRA. The TETRA band will therefore be located at 916-921 MHz and as a result, the mobile leg will be located at 871-876 MHz. Some simplex assignments can then be accommodated between 871-872 MHz.

3.3 Manufacturers have not produced products for this band at present, instead concentrating on the 410 – 430 MHz band. However, some manufacturers are starting to develop equipment and the UK is keen to promote these initiatives.

The RA sees this band as a TETRA band, in the short to medium term and given the difficulties of identifying sufficient spectrum in the 410-430 MHz band, this band would offer a solution through the use of dual band terminals. The RA therefore envisages this band being used for civil / military TETRA sharing as well as public TETRA network operator use in main conurbations.

4.0

380 – 400 MHz Band

4.2 Within the UK, a TETRA network is being provided for the blue light emergency services by BT under the Public Safety Radiocommunications Project (PSRCP) or Public Safety Radiocommunications Service (PSRCS) as it is now called. The PSRCS TETRA system has potentially 2 times 5 MHz of spectrum (380-385 / 390-395 MHz) and is due to start rolling out a national network, following the pilot project in Lancashire in 2000 and completing with Northern Constabulary in 2005.

4.3 The development of PSRCS is largely a separate issue and does not overlap to any great extent with the deployment of public or private TETRA.

4.4 Only the lower 2 x 5 MHz of the band 380-400 MHz is referred to in ERC (96)01, this has been set aside for the Emergency Services within the UK. The upper 2 x 5 MHz is not available for civil TETRA systems within the UK.

4.5 RA is keen do all it can to encourage MoD to migrate its systems out of spectrums where possible 410– 430 MHz into the upper 2 x 5 MHz and so release 410 – 430 MHz for civil systems.

4.6 One interesting option, alluded to in the DSI Phase III report, concerning the 870-876/915-921 MHz band, is the potential for co-ordinated sharing of civil TETRA with the military. There are synergies between the requirement for services within main conurbations by private and public TETRA system operators and the requirement for military TETRA systems in sparsely populated rural areas. With this option then, it is recognised that public, private and military TETRA users would benefit from economies of scale. However any allocation would have to be closely co-ordinated with the MoD.

The RA considers that the option to facilitate sharing of military spectrum with co-ordinated civil TETRA networks in main conurbation’s in the 380-400 MHz band is not a viable option in the short term. Furthermore, the migration of military systems out of 410-430 MHz band into the 380-400 MHz band, should be actively encouraged . This is seen as an important step in enabling the provision of sufficient spectrum for the national operator as well as realising usable spectrum in the short term for private TETRA, well before the anticipated availability of competitively priced terminals for the 870-876 / 915-921 MHz band in two years.

5.0 Other Mobile Spectrum

The RA has offered to license digital systems in existing analogue mobile spectrum. Manufacturers, whilst welcoming this flexibility, have thus far not produced equipment for any of these bands. Technical problems and short production runs have precluded commercial development of TETRA type products in non-harmonised bands.

The RA is aware, from the activities within CTEC, of the demand for private TETRA spectrum and would be willing to consider any rational proposal from spectrum holders for private TETRA systems.