Radio Spectrum Management Strategy Statement 2019 to 2021
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Radio Spectrum
Management
Strategy Statement
2019 to 2021
ComReg Document Number: 18/118Contents
Foreword2
Introduction4
2.1 Background and Purpose 5
2.2 Structure of this document 7
The Framework for Spectrum Management in Ireland 8
3.1 Spectrum Policy and Management in Ireland 9
3.2 Spectrum Management 10
Factors informing ComReg’s work plan for 2019 – 2021 22
4.1 International harmonisation of radio spectrum 23
4.2 European Commission harmonisation decisions 25
4.3 End user demand for mobile data 32
4.4 Technology changes and advancements 34
4.5 Licences expiring in the near future 39
Radio Spectrum work plan for the period 2019 – 2021 42
5.1 Appropriate prioritisation of spectrum work activities 43
5.2 ComReg’s spectrum work plan 2019 to 2021 44
Annex 1: Summary of legal framework and statutory objectives
relevant to the management of the radio spectrum 48
A2.1 Primary Objectives and Regulatory Principles under
the 2002 Act and Common Regulatory Framework 49
A2.2 Other Relevant Obligations under the
Framework and Authorisation Regulations 53
A2.3 Other Relevant Provisions 56
Annex 2: Spectrum Designators 58
Mobile Phone Repeaters FAQs 591 Foreword This strategy statement sets out ComReg’s work plan and priorities for the next two years in relation to its role as Ireland’s spectrum manager and complements ComReg’s Electronic Communications Strategy Statement. 2 Radio Spectrum Management Strategy Statement 2019 – 2021
I am pleased to present the Commission for enhanced mobile broadband services, they 1 See ComReg
Document 18/60,
Communications Regulation’s Radio Spectrum will also enable applications that connect which proposed
Management Strategy Statement for Ireland massive numbers of devices for machine-to- an award of
spectrum rights
for the period 2019 to 2021. machine communications, and applications in the 700 MHz
Duplex, Paired
that require ultra-reliable service levels 2.1 GHz, 2.3 GHz
Radio frequencies are used to provide a that cannot be guaranteed with today’s and 2.6 GHz
frequency bands.
wide range of electronic communications technology. Examples of applications that
2 ComReg’s
services and applications for the benefit have been suggested include connected Electronic
Communications
of society. Citizens use radio frequencies self-driving vehicles, smart agriculture, smart Strategy
when they make a mobile phone call or use manufacturing and telemedicine. Statement 2017–
2019 – https://
mobile data, when they listen to the radio www.comreg.
or watch broadcast TV, and when they Over the past several years, ComReg has ie/publication/
electronic-
use a contactless card to make a payment licensed a considerable amount of spectrum. communications
-strategy-
or enter a building. Radio frequencies are This has enabled explosive growth in the use statement
used to keep planes flying safely, to ensure of mobile broadband services. We were also -2017-2019/
smooth operations by our defence forces and among the first in the EU to license the 5G
public safety services, and to support many pioneer band at 3.6 GHz. In the forthcoming
private businesses. period, ComReg will further develop and
finalise its multi-band award proposals for the
The wireless telecommunications sector release of spectrum rights for the provision
plays an important role in the Irish economy of wireless broadband (both mobile and fixed
and accounts for around 17,000 full time broadband) services.1
equivalent jobs, €4 billion Gross Value
Added and an estimated total contribution This spectrum management strategy
of spectrum-dependant activities of €6.2 statement is an important tool for ensuring
billion – amounting to 3.5% of Irish Gross the efficient use of spectrum. The
National Income. consultation process was an opportunity
for stakeholders to help shape our priorities,
Communications services need clear channels particularly about the timing of future
in order to carry out their operations. For assignment processes for different bands. We
uses connected to public safety, this can be received many responses – for which we are
critical to protecting property, health and grateful – and have carefully considered them
human life. ComReg acts within our legislative in finalising our strategy.
framework and within the resources available
to us in order to make spectrum available, This strategy statement sets out ComReg’s
free of interference and in a properly work plan and priorities for the next two
managed manner. years in relation to its role as Ireland’s
spectrum manager and complements
There is a fast pace of technological ComReg’s Electronic Communications
change affecting the way radio spectrum is Strategy Statement.2
used. Hand-held devices and tablets have
become the main way that people access I look forward to the challenges we will face
communications services and on-line over the next two years as ComReg strives
applications. The connectivity that supports to deliver on the objectives outlined in
them includes both WiFi access to fixed this statement.
networks as well as mobile broadband. There
are increased expectations for connectivity – Commissioner Jeremy Godfrey
and the need for more capacity, faster speeds
and wider availability of connectivity looks set
to continue.
We can also foresee new uses that require
new forms of connectivity. 5G and other
wireless technologies will not only enable
Radio Spectrum Management Strategy Statement 2019 – 2021 3Introduction 4 Radio Spectrum Management Strategy Statement 2019 – 2021
Radio spectrum is a medium by which
information may be transmitted wirelessly
over distances ranging from a few metres to
thousands of kilometres. It is a valuable national
resource underpinning important economic,
social and communications activities.
2.1 Background and Purpose the Earth’s environment. However, 3 In accordance
with ComReg’s
it is a finite natural resource with obligations under
2.1 The Commission for Communications competing uses and users and so section 31 of the
Communications
Regulation (“ComReg”) is the it must be managed effectively and Regulation
Act 2002 (as
statutory body responsible efficiently used. amended)
for the regulation of the (“2002 Act”).
electronic communications 2.3 To assist ComReg’s management of 4 https://www.
comreg.ie/
(telecommunications, the radio spectrum, ComReg regularly publication/
electronic-
radiocommunication and sets out and updates its strategy communications-
broadcasting networks), postal and for same3 and is also reflective strategy-
statement-2017-
premium rate sectors in Ireland in of ComReg’s strategic intents as 2019-design-
accordance with European Union set out in its 5 year Electronic version/
(“EU”) and Irish law. ComReg also Communications Strategy Statement.4 5 ComReg
Document
manages Ireland’s radio frequency ComReg’s draft radio spectrum 18/74 – https://
www.comreg.
spectrum (“radio spectrum” management plan for 2019 to 2021 is ie/publication/
or “spectrum”) and national set out in ComReg Document 18/745 proposed-
strategy-for-
numbering resource. (“Consultation 18/74”) and ComReg’s managing-the-
radio-spectrum-
consideration of the responses 2019-2021/
2.2 Radio spectrum is a medium by which received from interested parties
6 ComReg
information may be transmitted to that consultation is set out in Document 18/117
– available at
wirelessly over distances ranging ComReg Document 18/117.6 ComReg.ie
from a few metres to thousands of
kilometres. It is a valuable national 2.4 Published alongside this document
resource underpinning important is a report from Frontier Economics
economic, social and communications (“Frontier”) that estimates the
activities. These include widely contribution that radio spectrum
used services, such as mobile/ makes to the Irish economy. The
fixed wireless communications report is entitled “The Economic
and broadband, radio and TV Contribution of Radio Spectrum
broadcasting, and the safe operation to Ireland” (Document 18/118a)
of air and maritime transport. Radio (“Frontier Report”).
spectrum is also fundamental in
the day-to-day operation of the 2.5 This document sets out ComReg’s
emergency services and defence final radio spectrum management
forces and is a vital input to many strategy statement and work plan for
other services including important the period 2019 to 2021.
scientific applications, such as
weather forecasting and monitoring
Radio Spectrum Management Strategy Statement 2019 – 2021 5Radio Spectrum Strategy Statement
Factors informing ComReg’s draft radio spectrum
management strategy statement
ComReg’s Strategic Goals ComReg’s Legal Mandate Wireless Technological
& Resourcing Capability Advancements &
Stakeholder Demand
The spectrum management work plan for •• the harmonisation status and 7 The extent
to which
2019 to 2021 appropriate timing for release any of these
of spectrum bands that are considerations
may affect
2.6 ComReg manages its workload currently unassigned; ComReg’s
prioritisation
in a manner that attempts to is considered
appropriately and pragmatically •• the potential to remove certain on a case-by-
case basis.
address the needs of a diverse restrictions (or “liberalise”) currently
range of actual and potential placed on licences which may enable
spectrum users. In that regard, more efficient use of spectrum,
ComReg balances the numerous facilitate innovation and potentially
considerations to establish a free up capacity which could be made
prioritised work plan commensurate available for other uses;
with its resources, including:
•• the potential for including multiple
•• the capacity within the existing radio spectrum bands in a single award
spectrum bands to meet spectrum process where appropriate to achieve
needs. Where capacity exists, it may ComReg’s statutory objectives
be possible to meet this demand via and duties;
the existing spectrum assignments
or to award new assignments using •• the adoption of legislation (national
existing authorisation processes; or European) which requires ComReg
to take defined actions within a
•• the timing of the expiry of existing set timeframe;
rights of use and the requirement
for an appropriate re-assignment •• the potential for market mechanisms
process in light of factors such as end to address spectrum management
user demand, harmonisation status, issues;7 and
equipment availability and availability
of related spectrum bands; •• other relevant considerations that
may arise.
•• the international harmonisation
status of a spectrum band including
any future harmonisation plans;
6 Radio Spectrum Management Strategy Statement 2019 – 2021ComReg’s spectrum work plan also reflects
its statutory functions, objectives and duties,
including to promote competition, to contribute
to the development of the internal market, to
promote the interests of users and to ensure
the efficient management and use of the radio
frequency spectrum in Ireland.
2.7 The spectrum work plan for 2019 to 2021 2.2 Structure of this document
outlines the spectrum activities that ComReg
intends to carry out within this timeframe 2.9 The remainder of this document is structured
and includes: as follows:
•• advancement of its proposed multi-band •• Chapter 3: provides an introduction to Ireland’s
award of spectrum rights for the provision of radio spectrum and the importance of managing
wireless broadband (both mobile and fixed the radio spectrum in Ireland;
broadband) services;
•• Chapter 4: considers the factors informing
•• assisting the Department of Communications, ComReg’s strategy for the period 2019 – 2021;
Climate Action and Environment (“DCCAE”), RTÉ
and 2rn as appropriate in facilitating the migration •• Chapter 5: sets out ComReg’s Radio Spectrum
of digital terrestrial television (“DTT”) services work plan for the period 2019 – 2021; and
from the 700 MHz band by 4 March 2020;
•• Annexes:
•• assisting the DCCAE in the transposition of
the European Electronic Communications •• Annex 1: Summary of ComReg’s statutory
Code (“EECC”), and implementing same as framework relevant to the management of
appropriate; and the radio frequency spectrum in Ireland;
•• promoting Test and Trial Ireland and the •• Annex 2: Spectrum designators.
benefits of using Ireland as a location to test
or trial wireless products and services in a real
world environment.
2.8 ComReg’s spectrum work plan also reflects
its statutory functions, objectives and duties,
including to promote competition, to contribute
to the development of the internal market, to
promote the interests of users and to ensure
the efficient management and use of the radio
frequency spectrum in Ireland.
Radio Spectrum Management Strategy Statement 2019 – 2021 7The Framework for Spectrum Management in Ireland 8 Radio Spectrum Management Strategy Statement 2019 – 2021
3.1 Spectrum Policy and Management 3.4 In the context of radio spectrum used for ECN/
in Ireland ECS, one of ComReg’s primary objectives is to
promote and create the conditions for effective
3.1.1 Spectrum Policy competition in the provision of ECN and ECS.
In that regard, section 12(2)(a) of the 2002
3.1 A key role of the DCCAE is the development Act requires ComReg to take all reasonable
of policies for the regulation and optimal use measures which are aimed at the promotion of
of Ireland’s radio spectrum. Spectrum policy competition, including:
is part of the national policy governing the
telecommunications sector in Ireland, which •• ensuring that there is no distortion or
also covers next generation broadband, restriction of competition in the electronic
electronic communications services (“ECS”) communications sector;
and international connectivity. The DCCAE
also has the responsibility for developing •• encouraging efficient use and ensuring the
national broadcasting policy and associated effective management of radio frequencies and
spectrum use. numbering resources; and
3.1.2 Spectrum Management: ComReg’s •• ensuring that users, including disabled users,
mandate and role derive maximum benefit in terms of choice,
price and quality.
3.2 The Communications Regulation Act 2002
(as amended) (the “2002 Act”), the European 3.5 Readers are referred to Annex 1 for an overview
Common Regulatory Framework for electronic of the legal framework and statutory objectives
communications networks (“ECN”) and ECS relevant to ComReg’s management of the radio
(including the Framework and Authorisation spectrum. ComReg, in preparing the strategy
Directives9 as transposed into Irish law by the set out herein, has also had regard to the
corresponding Framework and Authorisation European Electronic Communications Code, a
Regulations10), and the Wireless Telegraphy new EU Directive published in the EU Official
Act 1926 (as amended)11 (the “1926 Act”) set Journal on 17 December 2018 and entering into
out, among other things, functions, objectives, force on 20 December 2018, from which date
powers and duties that are relevant to ComReg’s each Member State has two years to complete
management of the radio spectrum. its transposition into national law.
3.3 In exercising its function of the management 3.6 ComReg recognises that the current European
of Ireland’s radio spectrum (and in accordance Common Regulatory Framework for ECN and
with relevant ministerial Policy Directions given ECS will be superseded by the EECC during
under section 13 of the 2002 Act), ComReg’s the course of this forthcoming strategy
primary spectrum management objective is to period. Among other things, the ECCC will
ensure the efficient management and use of the consolidate, update and replace the various
radio spectrum. ComReg is obliged to effectively directives under the existing framework (i.e.
carry out this function, including having regard the Framework, Authorisation, Access and
to relevant government policy statements and Universal Service directives).
international developments.
9 Directive No. 2002/21/EC 10 European Communities 11 The Wireless Telegraphy
(as amended by Regulation (Electronic Communications Acts, 1926 and 1956, the
(EC) No. 717/2007, Regulation Networks and Services) Broadcasting Authority
(EC) No. 544/2009 and (Framework) Regulations Acts, 1960 to 1971, in so far
Directive 2009/140/ 2011 (S.I. No. 333 of 2011) as they amend those Acts,
EC) (the “Framework (“Framework Regulations”) the Wireless Telegraphy Act
Directive”) and Directive No. and the European 1972, Sections 2, 9, 10, 11, 12,
2002/20/EC (as amended Communities (Electronic 14, 15, 16, 17 and 19 of the
by Directive 2009/140/ Communications Networks Broadcasting and Wireless
EC) (the “Authorisation and Services) (Authorisation) Telegraphy Act 1988 and
Directive”). Noting that Regulations 2011 (S.I. No. Sections 181 (1) to (7) and
these directives are being 335 of 2011) (“Authorisation (9) and Section 182 of the
replaced by the EECC. Regulations”). Noting Broadcasting Act 2009.
that these regulations
will be replaced by the
Irish legislation that will
transpose the EECC.
Radio Spectrum Management Strategy Statement 2019 – 2021 9It is estimated that the economic
contribution of the radio spectrum to
Ireland is a Gross Value Added of €4 billion
and around €6.2 billion contribution
to Irish Gross National Income
3.7 In fulfilling its spectrum management demand for the radio spectrum 12 The radio
spectrum needs
function, ComReg carries out a requires that it be used efficiently and be managed
range of programmatic activities, that effective spectrum management because two
or more radio
including the: processes be employed to maximise signals occurring
simultaneously
the benefits to society. and in the same
•• licensing of spectrum rights of use in location can
interfere with
Ireland for a wide variety of uses; 3.10 The ability to take full advantage of each other
reducing the
the spectrum resource depends on ability of the
•• monitoring of radio spectrum usage the spectrum management activities radio spectrum
to operate
in Ireland, including the enforcement that facilitates the implementation effectively. It
is not possible
of licence conditions and equipment of radio systems with minimum radio for users to
standards; and interference.12 However, as spectrum share spectrum
indiscriminately
is a finite resource with many because one
user may cause
•• promotion of Ireland as an ideal different actual and potential services interference for
location for spectrum development and users, spectrum management another user.
using Test and Trial Ireland. involves the careful consideration
of a broad range of factors (e.g.
3.8 Further details of these activities are administrative, regulatory, social,
set out in Chapter 4. economic and technical) with a view
to ensuring that radio spectrum is
3.2 Spectrum Management efficiently used. This may also involve
balancing a range of competing
3.9 The radio spectrum is a limited factors, including:
and valuable national resource
that permeates all areas of •• appropriately meeting the reasonable
communications, including radio, requirements of all radio services,
television, mobile voice and data, including commercial and public
aeronautical/marine navigation, and uses, the latter including public safety,
satellite communications. Increased national security and health care; and
10 Radio Spectrum Management Strategy Statement 2019 – 2021Figure 1:
Contribution of Radio Spectrum
to GNI: 2013 – 2016
€6,500 €6,218 4.00%
€5,576
€5,500
€3.54%
3.50%
€3.46%
€4,500 €4,329
(millions)
€3,500 €3,441 €2.91% 3.00%
€2,500
€2.51% 2.50%
€1,500
€500 2.00%
% of modified GNI
Total contribution
•• for spectrum used for ECS and ECN, of radio spectrum to Ireland. This 13 A significant part
of the income
promoting competition including analysis, which is based on company arising from
ensuring that users derive maximum financial records and data from the the production
of goods and
benefit in terms of price, choice national accounts, conservatively services in
Ireland accrues
and quality, contributing to the estimates Gross Value Added (“GVA”) to the foreign
development of the internal market, of €4 billion and around €6.2 billion owners of
capital assets
and promoting the interests of users contribution to Irish Gross National based in Ireland.
Hence, the
within the Community. Income (“GNI”)13 or approximately GDP aggregate
3.5% of GNI*. overstates the
living standards
3.11 A system of spectrum management of Irish residents
Modified GNI
is required to ensure the efficient 3.13 Figure 1 illustrates the relationship is an indicator
assignment and subsequent use of between Ireland’s GNI in years 2013 that was
recommended
scarce frequencies among competing to 2016 with the aggregate estimated by the Economic
Statistics
uses and users. This should promote economic contribution from the use of Review Group
competition within the relevant radio spectrum over the same period. and is designed
to exclude
downstream markets, particularly It highlights that the contribution of globalisation
effects that are
given that spectrum is an essential radio spectrum increased from €3.4bn disproportionally
input in the provision of many ECS and in 2013 to €6.2bn in 2016, accounting impacting the
measurement of
an inefficient assignment of spectrum for around 3.5% of GNI, when the size of the
Irish economy.
has the potential to distort/restrict modest multiplier effects are taken
competition and create inefficient into account.14 14 In 2016, €4 billion
is the direct
outcomes for society. contribution,
€1.3 billion is
3.14 Radio spectrum is also an important indirect with the
3.2.1 The importance of the radio contributor to employment. A remaining €0.98
million accruing
spectrum conservative estimate of the number from taxes and
subsidies.
of employees in Ireland whose jobs are
3.12 Frontier Economics (‘Frontier’) directly dependent on the use of radio
was commissioned by ComReg to spectrum was around 17,000 (FTE)
estimate the economic contribution for 2016.
Radio Spectrum Management Strategy Statement 2019 – 2021 11Figure 2:
The wireless day: how we use spectrum
throughout the day
Wake up, use the home Wi-Fi Drive to work: use a car
Network on mobile and wireless “key” to unlock and
laptop devices. deactivate the car alarm, or
use the remote control to
open the garage
07:00 09:00
Lunchtime shopping: pay The drive home: navigation
by tapping cash card or on a mobile handset
mobile handset with Near enabled by GPS
Field Communication (NFC)
12:00 17:00
Evening at home: remote At night: baby alarms and
control for TV Bluetooth other household sensors
speakers and other
accessories around
the home
19:00 00:00Social and secondary benefits of spectrum •• logistics – which uses wireless 15 Frontier define
productivity
usage technologies to enable more efficient (Total Factor
supply chains and enhanced Productivity)
as the output
3.15 There are also considerable social customer value. produced in
an economy
benefits arising from the use of radio for a given set
spectrum. For example, the efficient Productivity enhancements of inputs used
in production
functioning of the Gardaí, fire and (capital and
labour).
ambulance services depends on 3.18 The use of radio spectrum, through
reliable mobile communications, its ability to facilitate the deployment
while radio spectrum plays a of new technologies and innovation,
major role in enabling the Defence also positively contributes to
Forces to carry out their duties improvements in productivity.15
both at home and overseas. Radio Investment in ICT capital used in the
spectrum is also fundamental to Irish economy as a result of spectrum
the safe operation of air, sea and is likely to contribute to productivity
land transport and Ireland plays growth across a range of sectors and
a particularly important role in lead to additional growth across the
managing international radio traffic economy. Frontier conservatively
in the aeronautical sector, dealing estimate that spectrum-related
with all civilian flights between ICT investments have enhanced
Europe and North America. productivity by around €0.5 billion in
2016 (see Chapter 3 of Frontier Report
3.16 Access to sufficient spectrum is – Document 18/118a).
necessary in facilitating free-to-air
television and radio broadcasting by 3.2.2 Spectrum management
the public service and independent processes
broadcasters. Effective free-to-air
delivery of national and regional International aspects to spectrum
broadcast schedules helps ensures management
media plurality, a greater expression
of national and community cultural 3.19 As radio frequencies naturally extend
identity and the development of beyond national borders, spectrum
home-grown audio-visual content, management requires knowledge
including drama and documentaries. of, and involvement in, European
Radio spectrum also enables the and global spectrum management
use of a wide variety of consumer developments. Much of the radio
applications improving the daily lives spectrum requires international
of citizens. planning and in some cases this may
constrain how specific frequencies or
3.17 Business applications are also likely frequency bands may be used. This
to be enabled through the use of the is particularly so in the aeronautical
radio spectrum across a variety of and maritime sectors where, because
sectors, including: of the global nature of these
services, ships and aircraft must use
•• utilities – which uses wireless specific frequencies for navigation
technologies to properly monitor and and communication purposes. The
measure activity, and provide security frequency bands used by TV and
in a widely distributed set of network radio broadcasting services have also
assets. In the future, Smart Grids been harmonised for many decades
will connect many more devices and to facilitate coordination between
equipment to electricity networks; neighbouring countries and to
assist the development of consumer
•• agriculture – which uses wireless markets. More recently, an increasing
applications to measure various number of radio frequency bands have
aspects of animal husbandry and been internationally harmonised for
arable farming to improve yield and commercial radio systems, such as
reduce costs; and wireless mobile communications.
Radio Spectrum Management Strategy Statement 2019 – 2021 13The “allocation” of radio spectrum means
“the designation of a given frequency
band for use by one or more types of
radiocommunications services, where
appropriate, under specified conditions”
3.20 While the “allocation” and/or “assignment” of 3.21 As the radio spectrum manager for Ireland,
spectrum is a national function, the global ComReg is charged with the implementation of
regulation of spectrum is primarily within the remit international treaties and obligations relating
of the International Telecommunication Union to the use of radio spectrum in the State.16
(“ITU”), while European regulatory functions lie The implementation of these measures often
with the EU and the European Conference of requires actions in relation to the allocation
Postal and Telecommunications Administrations and/or assignment of radio spectrum as
(“CEPT”). These bodies define the broad discussed below.
framework within which all spectrum users must
operate and, in some cases, these bodies develop 3.22 Along with the DCCAE, ComReg plays an
harmonised decisions, recommendations, and active role in international fora to ensure
approaches for the use of spectrum. Harmonised that, as far as possible, decisions relating to
radio frequency bands provide considerable the international radio spectrum regulatory
benefits in facilitating the development of framework accommodate Ireland’s specific
international services, promoting economies of requirements. ComReg additionally participates
scale with respect to the manufacture of radio in technical compatibility studies and in
equipment (thereby lowering both the cost of the development of technical standards to
deploying wireless networks and the cost of support more efficient and flexible use of the
wireless devices for consumers), and minimising radio spectrum.
the risk of interference between users.
16 The interference-free consequent convergence of The radio spectrum
operation of radio- services and technologies, decisions of the EU (the EU/
communication systems the Radio Regulations are EC Decisions) are binding
across international borders revised every three to four decisions on EU Member
is achieved through the years at a World Radio- States. These decisions
implementation of the communication Conference. are normally based on
Radio Regulations (RRs) The last WRC was held in the relevant technical
and Regional Agreements, November 2015 in Geneva harmonisation measures as
and the efficient and timely outlined in the CEPT reports
update of these instruments The radio spectrum decisions to the EC and are generally
through the processes of the and recommendations of adopted subsequent to the
World and Regional Radio- the CEPT (ECC Decisions prior adoption of a CEPT
communication Conferences. and ECC Recommendations) ECC Decision. A list of EU
The Radio Regulations are non-binding on national Decisions/Recommendations
(RRs), which have the status administrations. The is maintained at https://
of an international inter- list of ECC Decisions/ ec.europa.eu/digital-agenda/
governmental treaty, provide Recommendations and their en/radio-spectrum-policy-
a framework for the use of the implementation status for document-archive
radio frequency spectrum and all CEPT countries, including
satellite orbits. To keep pace Ireland, is maintained at
with the fast development http://www.erodocdb.dk
of technologies and the
14 Radio Spectrum Management Strategy Statement 2019 – 2021The “assignment” of radio spectrum refers
to the spectrum management activities that
issues, and authorises the use of, rights of
use of radio frequencies.
The allocation of radio spectrum in Ireland developments, such as the adoption 17 European
Communities
of European harmonisation decisions (Electronic
3.23 The “allocation” of radio spectrum and recommendations for a particular Communications
Networks
means “the designation of a given radio frequency band or service. The and Services)
(Framework)
frequency band for use by one or current version was published in May Regulations 2011
more types of radiocommunications 201718 and a comprehensive update is (S.I. 333 of 2011).
services, where appropriate, anticipated following the ITU WRC in 18 ComReg
Document 17/34 -
under specified conditions”.17 An 2019 (see Chapter 4 for further details Radio Frequency
Plan for Ireland
allocation identifies the services on WRC-19). — published
that could potentially use a 3 May 2017.
radio frequency band and is an The assignment of radio spectrum in Ireland 19 A spectrum
assignment refers
important activity in facilitating to the rights of
the international coordination of 3.26 The “assignment” of radio use for specific
radio frequencies
radio spectrum between regional spectrum refers to the spectrum within a
frequency band
areas and neighbouring countries management activities that issues, issued to an
(thereby reducing the potential for and authorises the use of, rights of individual or
for a station
interference) and enabling economies use of radio frequencies.19 In Ireland, and usually
under specified
of scale. the possession and use of radio conditions (e.g.
equipment requires authorisation in the context of
radio frequencies
3.24 Under the 2002 Act, ComReg is from ComReg and this authorisation for ECS, one
or more of the
obliged to publish a Radio Frequency may take the form of a licence or a conditions
Plan (“Plan”). The Plan is comprised licence-exemption under the 1926 Act. identified in
Part B of the
of a set of tables which sets out Schedule to the
Authorisation
Ireland’s radio spectrum allocations 3.27 Ideally, spectrum should be Regulations).
for 8.3 kilohertz to 3000 Gigahertz, distributed efficiently, which means
indicating the services to which giving access to the combination
each frequency band is allocated of uses and users that maximises
(“frequency allocations”) in the economic activity, subject to taking
radio spectrum and is an essential account of social welfare, public and
tool for current and future users of other legitimate policy concerns.
radio frequencies. Granting spectrum rights of use to
one user rather than another can
3.25 The Plan is updated regularly in line greatly impact the extent to which the
with the outcomes of the ITU World radio spectrum is efficiently used to
Radiocommunication Conferences deliver overall benefits for society.
(“WRCs”) and other relevant
Radio Spectrum Management Strategy Statement 2019 – 2021 153.2.3 Promotion of effective competition in 3.31 Goal 5 in turn reflects one of ComReg’s primary
management of spectrum for ECS and objectives in respect of ECN and ECS being
spectrum management tools the promotion of competition. The promotion
of competition is a primary goal of ComReg’s
3.28 As noted above, spectrum is an essential spectrum management function because
input in the provision of ECS and inefficient effective competition between wireless
assignments of spectrum rights has the service providers brings long term benefits to
potential to distort competition and create consumers in terms of price, choice, quality
inefficient outcomes for society. of services and innovation. The efficient
assignment and use of the radio spectrum
3.29 These issues are reflected in ComReg’s is therefore an important consideration in
Electronic Communications Strategy promoting effective competition.22
Statement20 where the following three principle
methods are identified by which to promote 3.32 In that regard, ComReg takes a proactive
competition and consumer choice: approach to ensuring the efficient assignment
and use of the radio spectrum while promoting
1. market access; effective competition and producing an
2. access to essential inputs; and optimal outcome for society. ComReg has a
3. demand-side factors. number of spectrum management tools that
are designed to serve the interests of all users
3.30 In relation to the second principle (i.e. access of the radio frequency spectrum and strike
to essential inputs), ComReg outlined its the right balance between those users while
strategy to ensure that the management of the ensuring that spectrum is used efficiently and
national spectrum (and numbering) resources competition is not distorted. ComReg uses
take account of the promotion of competition, these tools as required, depending on the
and the potential impact that the assignment circumstances of each particular assignment, in
and allocation of these inputs may have on order to derive the maximum benefit for society
downstream markets.21 This principle also informs and contribute to the development of the
Goal 5 of the Electronic Communications Strategy internal market, while promoting the interests
Statement, which requires ComReg to take all of users within the Community. These tools are
reasonable measures which are aimed at the illustrated in Figure 3.
promotion of competition.
3.33 The use of these tools involves the careful
GOAL 5 consideration of a broad range of factors (e.g.
administrative, regulatory, social, economic
Spectrum management for and technical) with a view to ensuring that
radio spectrum is efficiently assigned and
electronic communications used. Any measures must also be objectively
markets takes account, inter alia, justified, transparent, non-discriminatory
and proportionate in relation to their
of the promotion of competition. intended purpose. The use of such spectrum
management tools often requires detailed
Source: Electronic Communications Strategy Statement consideration with relevant stakeholders.23
2017–2019
20 ComReg Electronic 22 Article 8 of the Framework 23 See Goal 24 Electronic
Communications Strategy Directive identifies Communications Strategy
Statement 2017-2019: “encouraging efficient Statement below. “We are
https://www.comreg.ie/ use and ensuring the proactive on engagement with
publication/electronic- effective management of a range of stakeholders.”
communications-strategy- radio frequencies (and
statement-2017-2019- numbering resources)” as
design-version/ a sub-objective of the
broader objective of the
21 ComReg’s Electronic promotion of competition.
Communications Strategy
Statement 2017-2019 – p10.
16 Radio Spectrum Management Strategy Statement 2019 – 2021Figure 3: Spectrum Management Tools Transition Caps Licensing License Duration License Conditions Spectrum Pricing Transfers Spectrum Auctions Compliance Coverage & Rollout
Spectrum management can facilitate
24 See Strategic
Intention 3
Electronic
investment by fostering regulatory
Communications
Strategy
Statement
“Efficient
certainty and ensuring the availability of the
investment
has enabled
affordable, high
necessary inputs by effectively managing
quality and
widespread
access to
the radio spectrum.
communications
services and
applications”
25 For example:
the 700 MHz,
800 MHz or 900
MHz bands.
3.34 In its Electronic Communications GOAL 15
Strategy Statement, ComReg also
noted, among other things that: The management of
•• Creating the conditions for spectrum and numbers
investment is as much about
regulatory certainty as it is about
facilitates efficient
shaping operator incentives; investment.
•• It will continue to publish its forward- Source: Electronic Communications Strategy
looking strategy for managing the Statement 2017–2019
radio spectrum; and
3.36 In relation to bullets 2 and 3, the Radio
•• It publishes information on existing Spectrum Management Strategy
licensees’ spectrum assignments Statement is an important spectrum
and related information and usage management tool of itself as it provides
because, among other things, this interested parties with visibility of
can increase the efficient use of future planned releases of spectrum,
spectrum by better informing which allows them in turn to plan for
consumers and other interested their spectrum needs. It also allows
parties (such as actual and potential ComReg to take due account of the
spectrum users). timing of each spectrum award. The
assignment of harmonised bands,
3.35 In relation to the first bullet, such as those suitable for widespread
spectrum management can coverage,25 provides opportunities for
facilitate investment by fostering promoting new entry and competition.
regulatory certainty and ensuring Given that rights of use for important
the availability of the necessary bands are typically assigned for long
inputs by effectively managing periods (e.g. 15 years, or potentially 20
the radio spectrum. In that regard, years as identified in the EECC), the
effective competition is the principal timing of spectrum awards should be
driver of efficient investment and as such that opportunities for promoting
such ComReg seeks to create the new entry and effective competition
conditions for investment primarily are maximised (e.g. ensuring that a mix
by promoting competition. This is in of complementary and/or substitutable
line with Goal 15 and ComReg’s ‘Third spectrum across different bands are
Strategic Intention’.24 available at different intervals).
18 Radio Spectrum Management Strategy Statement 2019 – 2021Modern environmentally friendly building materials reduces in‑door mobile coverage Modern insulation means that heat is kept in and houses are insulated from the cold… However, these materials also prevent radio waves from penetrating.
3.37 ComReg is also conscious of the need •• 2017 Ireland Communicates Survey 26 ComReg
Document 18/35
to respond to changing circumstances of ICT usage by SMEs (Document – Mobile Data
which could undermine efficiency and 18/23b); and Traffic Forecast
in Ireland
innovation and, in that regard, continues
27 ComReg
to monitor the market in order to learn •• Mobile data usage forecasts Document
17/100a - Ireland
from users’ ongoing experience and (Document 18/35 and 18/35a). Communicates
adapt to changes in, among other Survey 2017
– Consumer -
things, technologies, and demand for 3.40 For example, the following factors slides 43 & 46.
services from spectrum users and have particularly important spectrum 28 ComReg
end-users, market developments and management implications: Document
18/32a - Ireland
relevant public policy. Communicates
Survey 2017
•• Total annual mobile data traffic is – Consumer -
Consumer information and market forecast to increase by over 3.5 times slide 51.
monitoring between 2017–202226; 29 ComReg
Document
18/32a - Ireland
3.38 As part of its spectrum management •• The Mobile Consumer Experience Communicates
Survey 2017
function, ComReg also monitors Survey highlighted a number of key – Consumer -
slides 54 & 56.
the changes to the market since its issues and concerns with regard to
30 ComReg
previous radio spectrum management mobile connectivity including: Document
strategy statements and spectrum 18/32a - Ireland
Communicates
awards. ComReg is conscious that •• inside the home is where Survey 2017
– Consumer -
the circumstances previously present consumers mostly use their mobile slide 32.
may have changed or the market has phone for voice and data services27;
31 ComReg
developed such that the spectrum Document
18/60 – Proposed
management tools referred to above •• incidence of experiencing service multi band
may need to be deployed differently issues in the house for calls/text spectrum award
- preliminary
to promote competition and protect and data (c. 30%) is higher than consultation
on which bands
consumers. This approach is in the same service issues that occur to award.
line with Goal 8 of the Electronic outside the home28; 32 ComReg
Communications Strategy Statement. Document
18/103c - https://
•• rural consumers have higher rates www.comreg.
GOAL 8 of experiencing service issues ie/publication/
future-mobile-
regardless of location with higher connectivity-
ComReg understands levels of service issues arising in in-ireland/
the home (i.e. indoor)29;
evolving consumer needs,
preferences, behaviours •• The ICT survey highlighted
that making and receiving calls
and perceptions. domestically remains the most
important use of mobile telephony.
Source: Electronic Communications Strategy
Statement 2017 – 2019 3.41 In response to the information received,
ComReg initiated the following work
3.39 In that regard, ComReg continually streams with a view to informing future
tracks end-user usage trends (see spectrum award proposals, providing
ComReg Quarterly Reports) and has additional consumer information and
completed various market research improving the connectivity experience
and forecasting in order to inform for consumers:
future spectrum management
activities. For example: •• Progressing its proposals for the
release of spectrum rights for the
•• B&A Mobile Consumer Experience provision of wireless broadband (both
Survey (See Documents 17/100 and mobile and fixed broadband) services;31
17/100a);
•• a Future Mobile Connectivity in Ireland
•• 2017 Ireland Communicates Survey of (“FMC”) study to obtain advice on
ICT usage by consumers (Document mobile connectivity services and the
18/23a); potential costs of providing same;32
20 Radio Spectrum Management Strategy Statement 2019 – 2021•• “Meeting Consumer’s Connectivity GOAL 17 33 ComReg
Document
Needs” – a report for ComReg that
Mobile coverage
18/103b - https://
provides an overview of the challenges www.comreg.
ie/publication/
in providing connectivity in Ireland
and the actions that all stakeholders obligations are used to meeting-
consumers-
connectivity-
can take to optimise their levels of
connectivity which are available on
promote investment needs/
34 ComReg
different networks across Ireland;33 where proportionate. Document
18/103d - https://
www.comreg.
ie/publication/
•• “Coverage obligations and Spectrum Source: Electronic Communications Strategy coverage-
obligations-
Awards” – a report for ComReg that Statement 2017–2019 and-spectrum-
considers how and the extent to which awards/
coverage and rollout obligations can be 3.43 In providing for same, ComReg 35 ComReg
Document 18/73
included in future spectrum awards;34 recognises the need to communicate – The effect of
building material
with different stakeholder groups and on indoor mobile
•• Effect of Building Materials on Indoor interested parties. This engagement performance.
Mobile Performance: determining and takes a number of forms, including 36 ComReg
Document 18/26
reporting upon the extent to which formal consultation39 and publication – Assessment of
some representative modern building of proposals on the ComReg mobile network
operators’
materials impact on in-building website, and is in line with Goal 24 compliance
with licence
coverage by measuring overall of the Electronic Communications obligations
attenuation through each building Strategy Statement. (coverage)
winter 2017.
material tested;35
37 ComReg
GOAL 24 Documents
•• Bi-Annual Drive Testing - 18/05 and 18/78
Assessment of Mobile Network We are proactive on - Mobile Handset
Performance
(Voice) & The
Operators’ Compliance with Licence
Obligations (Coverage);36 engagement with a range Effect of Building
Materials on
Indoor Mobile
•• Mobile Handset Performance:
of stakeholders. Performance.
38 ComReg
Document 18/82
measuring and reporting on the - Mobile Handset
antenna performance of mobile Source: Electronic Communications Strategy Performance
(Data)
handsets available on the Irish market Statement 2017–2019
39 ComReg
in order to quantify the performance of Document 11/34
each handset when making or receiving 3.44 ComReg will publish the output - Consultation
Procedures.
a mobile call and to stream data. See: from each work stream and the
information contained therein will be
•• Voice (Document 18/05 and 18/78)37 used to inform ComReg’s spectrum
management activities across a range
•• Data (Document 18/82)38; and of projects in order to promote the
best outcomes for society.
•• Mobile Coverage Prediction Map - a
solution to provide consumers with a
visual (geographic-based) means of
presenting predicted mobile coverage
throughout Ireland, through the use of
an interactive website.
3.42 This approach is also in line with Goal
17 of the Electronic Communications
Strategy Statement. In particular,
the FMC study and the Coverage
Obligations and Spectrum Awards
Report will be used by ComReg to
inform its considerations regarding
the appropriate coverage obligations
that should be attached to, among
other things, 700 MHz rights of use.
Radio Spectrum Management Strategy Statement 2019 – 2021 21Factors informing ComReg’s work plan for 2019 – 2021 22 Radio Spectrum Management Strategy Statement 2019 – 2021
4.1 A wide range of factors influence the 4.1 International harmonisation of 40 In Ireland,
harmonised
demand for and the supply of radio radio spectrum spectrum bands
spectrum including: end-user demand, support a wide
range of services,
technology changes or advancements, 4.4 The international harmonisation include those
provided by
the international harmonisation of process plays a key role in determining mobile operators.
radio spectrum, and relevant national the demand for and the supply of 41 For example, the
or international policies. radio spectrum, given its benefits ECC CEPT work
plan for 2018 to
in terms of facilitating economies 2020 identifies
the following
4.2 These general factors also influence of scale in the manufacture of radio major topics:
each other. For example, increasing equipment (which lowers both the
• Assess the
end-user demand for a service cost of deploying wireless networks feasibility of
M2M/IoT through
incentivises advancements in and the cost of wireless devices for satellite from
technologies used to provide these consumers), and the minimisation of a technical
and regulatory
services and the development of interference between users. point of view;
• Spectrum
international harmonisation measures for wireless
or national/international policies, and 4.5 International harmonisation, and the broadband
(including
vice versa. benefits from same, is particularly 5G); and
• The use of
important for countries with a MFCN for UAS.
4.3 In this chapter, ComReg discusses small population, such as Ireland, 42 The draft RSPG
various factors which have informed and, therefore, limited ability to work programme
for 2018 and
its radio spectrum work plan for 2019 affect the technology roadmaps beyond includes
to 2021, including: adopted by often global suppliers of the following
work items:
radio equipment.
• EECC;
•• International harmonisation of • RSPG structure
and working
radio spectrum; 4.6 In ComReg’s experience, the methods;
appropriate release of harmonised • Peer review and
Member State
•• World Radiocommunication spectrum bands has proven to be cooperation on
authorisation
Conference of 2019; generally very successful in facilitating and awards;
the delivery of services to end-users.40 • 5G
Implementation
•• European Commission Challenges;
• Common Policy
harmonisation decisions; 4.7 Harmonised radio spectrum measures objectives
are implemented by a number of for WRC-19;
• “Good offices” to
•• End-user demand (and, in particular, bodies including the ITU (and/or the assist in bilateral
for mobile broadband); constituent regional groups), the negotiations
between EU
CEPT and relevant EU bodies. These countries; and
• European
•• Technology changes and bodies generally set a forward-looking Spectrum
advancements (service specific); and work programme and this provides Strategy.
an indication of future harmonisation
•• The expiry of existing licences in the measures. For example, see the work
near future (e.g. within the next 5 years). plans of CEPT41 and RSPG.42 In some
Radio Spectrum Management Strategy Statement 2019 – 2021 23In addition to the harmonisation of
radio spectrum bands, the setting of
harmonised radio equipment standards
play a major facilitating role in spectrum
management, particularly in terms
of minimising the risk of interference
between users.
instances, harmonisation decisions 4.10 The major agenda items of interest 43 In Europe, EU/
EC decisions
are obligatory on Member States to Ireland at WRC-19 are expected are obligatory
thereby directly increasing the supply to be: on Member
States, while
of spectrum at a national level with a CEPT decisions
are non-binding
defined timeframe.43 •• Broadband applications in the Mobile and voluntarily
Services - I. The following bands, adopted by its
members.
4.8 In addition to the harmonisation of which are already allocated to Mobile
radio spectrum bands, the setting of Services are being studied with a view
harmonised radio equipment standards to an IMT-2020 identification:
play a major facilitating role in spectrum
management, particularly in terms a) 24.25 - 27.5 GHz;
of minimising the risk of interference b) 37 - 40.5 GHz;
between users. Within Europe, the main c) 42.5 - 43.5 GHz;
stakeholders responsible for setting d) 45.5 - 47 GHz;
these standards are the European e) 47.2 - 50.2 GHz;
Committee for Standardisation f) 50.4 - 52.6 GHz;
(“CEN”), the European Committee g) 66 - 76 GHz; and
for Electrotechnical Standardisation h) 81 - 86 GHz;
(“CENELEC”) and the European
Telecommunications Standards •• Broadband applications in the
Institute (“ETSI”). These bodies also Mobile Services – II. The following
work alongside national technical bands will also be studied, although
committees and various industry they do not currently have global
bodies. For example, the Institute of mobile allocations:
Electrical and Electronics Engineers
(“IEEE”) and the WiMAX Forum. a) 31.8 - 33.4 GHz;
b) 40.5 - 42.5 GHz; and
4.1.1 The World c) 47 - 47.2 GHz;
Radiocommunication
Conference of 2019 •• To take appropriate regulatory
actions (which include additional
4.9 Led by the DCCAE, Irish preparations Mobile Service allocations) for
for World Radiocommunications Wireless Access Services / Radio
Conference 2019 (“WRC-19”) are LANs in the bands between 5 150 - 5
underway. ComReg is involved in 925 MHz;
this work and will assist the DCCAE
to meet objectives and goals that •• Studies to consider possible global
will be established in the national or regional harmonised bands, to
preparatory process. the maximum extent possible,
24 Radio Spectrum Management Strategy Statement 2019 – 2021M2M Cellular IoT Technologies
for implementation of evolving •• Studies on development of a regulatory 44 ECC Report 266
on the Suitability
Intelligent Transport Systems framework for non-GSO FSS systems of the current
(“ITS”) within existing Mobile that may operate in the bands 37.5-39.5 ECC Framework
for the usage of
Service allocations; GHz (s-E), 39.5-42.5 GHz (s-E), 47.2- Wideband and
Narrowband M2M
50.2 GHz (E-s) and 50.4-51.4 GHz (E-s). in the frequency
•• To consider possible regulatory bands 700
MHz, 800 MHz,
actions to support Global Maritime 4.11 The outcome of WRC-19 will influence 900 MHz, 1800
MHz, 2.1 GHz
Distress and Safety Systems the future work plans of the relevant and 2.6 GHz.
(“GMDSS”) modernisation and the bodies of the EC and CEPT and
introduction of additional satellite consequently ComReg.
systems into GMDSS;
4.2 European Commission
•• Studies to consider regulatory harmonisation decisions
actions within the band 156 - 162.05
MHz for autonomous maritime 4.2.1 Existing EC harmonisation
radio devices to protect GMDSS decisions
and Automatic Identification
System (“AIS”); M2M Cellular IoT Technologies
•• To consider new Maritime-Mobile 4.12 Machine to Machine (“M2M”)
Satellite Service (MMSS E-s and communication and the Internet of
s-E) allocations, preferably within Things (“IoT”) are widely considered
156.0125 - 157.4375 MHz and 160.6125- to be applications with significant
162.0375 MHz to enable a new VHF growth potential. Among M2M/IoT
data exchange system (“VDES”) technologies, some are designed
satellite component; to operate in the spectrum bands
assigned to MFCN.
•• Studies to consider the spectrum
needs and regulatory provisions 4.13 In this regard, ComReg would highlight
for the introduction and use of the the following:
Global Aeronautical Distress and
Safety System (“GADSS”); •• in June 2017, CEPT published ECC
Report 26644 which concluded
•• To consider the use of the bands that certain M2M technologies (i.e.
17.7-19.7 GHz (s-E) and 27.5 29.5 LTE-MTC, LTE-eMTC, EC-GSM-IoT
GHz (E-s) by earth stations in and NB-IoT) can co-exist with the
motion communicating with GSO technologies currently deployed in
space stations in the FSS and take certain frequency bands currently
appropriate action; and harmonised for MFCN;
Radio Spectrum Management Strategy Statement 2019 – 2021 25You can also read
