2011–2015
The ACMA’s spectrum demand analysis and indicative work programs for the next five years
MARCH 2011
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Published by the Australian Communications and Media Authority
acma | 1
Foreword
Welcome to the 2011 edition of the Australian Communications and Media Authority’s Five-year spectrum outlook. The Outlook is our near to medium-term plan for the future spectrum management work that we intend doing for the benefit of all Australians.
This Outlook cycle includes some important new work including planning for smart infrastructure and mobile broadband, and detailed assessment of related spectrum requirements. The ACMA is acting now to plan for these new technologies because of their potential to significantly enhance the lives of Australians.
I am also pleased to present, through the Outlook, a summary of the key spectrum work that the ACMA completed in 2010. This comprised both forward planning for spectrum allocations for a range of communications services, as well as work to support critical government communications policy. The reviews of the 2.5 GHz, 3.6 GHz and 400 MHz bands deserve special mention. All three reviews entered implementation phases in late 2010. Our crucial work in 2010 also included activity to support the government with the digital switchover and to realise the digital dividend.
As the Outlook shows, the varied spectrum work undertaken in the past year is clear evidence of the ACMA’s ongoing commitment to creating and supporting efficient, effective and appropriate regulation for spectrum management.
The demand analysis provided in this Outlook is built on a range of information gathered by the ACMA throughout the year, including its consultation on proposed approaches to specific spectrum issues, our Spectrum Tune-ups and the annual RadComms conference.
I commend the Outlook to you as an important part of the ACMA’s ongoing engagement with industry and government users of spectrum about their needs and our assessment of technological developments in the fast-moving communications environment. Your comments are most welcome as they really do help to inform the ACMA’s important spectrum management work.
Chris Chapman
Chairman
Acknowledgements
In developing this edition of the Outlook, the ACMA gratefully acknowledges theinput provided by the following individuals, organisations, government agencies and their staff:
acma | 1Alan Hughes
AsiaSpace
Asciano Ltd (Pacific National)
AUSTAR Entertainment Pty Ltd
Australasian Railway Association
Australian Rail Track Corporation
Australian Broadcasting Corporation
Australian Crime Commission
Australian Maritime Safety Authority
Australian Mobile Telecommunications Association
Australian National University
Australian Radio Communications Industry Association
Australian Telecommunications Users Group Limited
Australian Wireless Audio Group
Bureau of Meteorology
Commercial Radio Australia
Commonwealth Scientific and Industrial Research Organisation
Community Broadcasting Association of Australia
Consultel IT&T Pty Ltd
Corruption and Crime Commission of Western Australia
Department of Defence
Department of Emergency Services (Queensland Government)
Energy Networks Australia
Ericsson Australia Pty Ltd
Free TV Australia
Foxtel Management Pty Ltd
Geoscience Australia
GHD Pty Ltd
Gibson Quai-AAS Pty Ltd
Global VSAT Forum
Google Australia
Grant and Jenny Spong
Horizon Broadband Communications
Department of Infrastructure, Transport, Regional Development and local governmentagencies (including Airservices Australia, Civil Aviation Safety Authority and Office of Transport Security)
Inmarsat
Intel
Intelsat Asia Carrier Service
Law Enforcement Security Radio Spectrum Committee
Motorola Australia Pty Ltd
National Coordinating Committee for Government Radiocommunications
NSW Government
NSW Independent Transport Safety and Reliability Regulator
NSW Police
Northern Territory Police, Fire and Emergency Services
Optus
Ovum Pty Ltd
Project Outcomes Pty Ltd
Queensland Rail Network
Qualcomm
RailCorp NSW
Reach Networks Australia Pty Ltd
RF Industries Pty Ltd
Security Services Spectrum Committee of Western Australia
Sky Station Australia
Stratos Global
Tait Radio Communications
Telstra Corporation Limited
Unwired Australia
Victoria Police
Victorian Government Radio Spectrum Task Force
Vodafone Hutchison Australia
WiMAX Forum
acma | 1Contents (Continued)
Foreword
1.Introduction
1.1Purpose
1.2Methodology
1.2.1Evidence-based approach
1.3Scope and structure
1.4Consultation
1.4.1Publication of submissions
1.4.2Release of information in submissions
1.4.3Information-sharing
1.4.4Effective consultation
2.Spectrum management decision-making framework
2.1The international spectrum planning framework
2.2Legislation for Australian spectrum management
2.3The Australian Radiofrequency Spectrum Plan
2.4Planning instruments made by the ACMA
2.4.1Band plans
2.4.2Radiocommunications Assignment and Licensing Instructions
2.4.3Spectrum embargoes
2.4.4Radiocommunications standards
2.5Principles for spectrum management
2.6Total welfare standard
2.7Decision-making process
3.Spectrum demand drivers
3.1Technological developments
3.2Changing use of mobile services
3.3International developments
3.4Technical and other characteristics of services
4.Significant spectrum projects
4.1Projects commenced or progressed during 2010
4.1.1Review of the 400 MHz band
4.1.2Support for government for digital switchover
4.1.3Digital restack
4.1.4Allocation of the digital divided
4.1.5Review outcomes for the 2.5 GHz band
4.1.6Expiring spectrum licences
4.2New projects
4.2.1Review of the 900 MHz band
4.2.2Service planning for smart infrastructure
4.2.3Earth station siting
4.2.4Service planning for mobile broadband
4.2.5Use of opportunity cost pricing
5.Future spectrum needs
5.1Aeronautical mobile
5.1.1Current spectrum use
5.1.22011–2015
5.1.3The ACMA’s proposed approaches
5.1.4Beyond 2015
5.2Broadcasting
5.2.1Current spectrum use
5.2.22011–2015
5.2.3The ACMA’s proposed approaches
5.2.4Beyond 2015
5.3Fixed
5.3.1Current spectrum use
5.3.22011–2015
5.3.3The ACMA’s proposed approaches
5.3.4Beyond 2015
5.4Land mobile
5.4.1Current spectrum use
5.4.22011–2015
5.4.3The ACMA’s proposed approaches
5.4.4Beyond 2015
5.5Maritime
5.5.1Current spectrum use
5.5.22011–2015
5.5.3The ACMA’s proposed approaches
5.5.4Beyond 2015
5.6Radiodetermination
5.6.1Current spectrum use
5.6.22011–2015
5.6.3The ACMA’s proposed approaches
5.6.4Beyond 2015
5.7Satellite
5.7.1Current spectrum use
5.7.22011–2015
5.7.3The ACMA’s proposed approaches
5.7.4Beyond 2015
5.8Science services
5.8.1Current spectrum use
5.8.22011–2015
5.8.3The ACMA’s proposed approaches
5.8.4Beyond 2015
5.9Wireless access services
5.9.1Current spectrum use
5.9.22011–2015
5.9.3The ACMA’s proposed approaches
5.9.4Beyond 2015
5.10Emerging technologies
5.10.1Dynamic spectrum access technologies
5.10.2Ultra wideband
5.10.3Smart infrastructure
5.10.4High altitude technologies
5.10.5Home network
5.10.6Future television broadcasting standards
6.Indicative work programs
6.1Developing the work programs
6.2How the work programs relate to each other
6.3Setting work programs in a dynamic policy environment
6.4Consultation for spectrum management changes
Appendix A: Table of frequency bands
Appendix B: Acronyms and abbreviations
acma | 11.Introduction
The Australian Communications and Media Authority (the ACMA) is an independent statutory authority within the Australian Government's communications portfolio thatreports to the Minister for Broadband, Communications and the Digital Economy. The ACMA manages the radiofrequency spectrum in accordance with theRadiocommunications Act 1992 (the Act).
The ACMA aimsto support the efficient, effective and appropriate operation of the Australian spectrum management regulatory regime.The Five-year spectrum outlook 2011–2015 (the Outlook) is an important tool that assiststhe ACMA to realise this goal. It was initially launched by the ACMA in 2009 to provide greater insight and transparency for industry and government spectrum users about the pressures on spectrum and the direction of the ACMA’s spectrum management work in the short, medium and long term. Since that time, the ACMA has been open to ongoing feedback and this third edition incorporates views provided by spectrum users about the ACMA’s Outlook for 2010–2014. The Outlook is part of the ACMA’s overall consultation framework for spectrum planning and decision-making, together with targeted consultation on specific spectrum issues through its annual RadComms conference, Spectrum Tune-ups and discussion papers. Through these mechanisms, the ACMA is working actively to discuss emerging pressures for change to spectrum access arrangements with stakeholders.This partnership approach is critical in managing the scarce radiofrequency resource.
The challenge in managing the radiofrequency spectrum stems from its scarcity, coupled with thecontinual evolution and increasing sophistication of wireless technologies and the rapidly growing and competing demand for spectrum from different users and services. Part of the ACMA’s task is to balance the needs of existing spectrum users with facilitation of spectrum access for new technologies.
The Outlook demonstrates that the ACMA’s spectrum management work is informed by a wide range of evidence, which is continually refreshed and includes information provided by spectrum users about their spectrum needs.
1.1Purpose
This Outlook provides demand analysis and work plans to illustrate the direction of the ACMA’s spectrum management work in the short, medium and long term. Its purpose is to provide an avenue for meaningful discussions with stakeholders about emerging pressures for radiofrequency spectrum. It is a ‘living’ document and is always open to comment and feedback from stakeholders.
The content of this Outlook, particularly the indicative work programs, will be updated annually in response to changing priorities and demands. This Outlook is not intended to be a substitute for separate and targeted industry consultation on specific spectrum management issues. For this reason, any observations on proposed approaches or solutions to emerging problems may only represent the ACMA’s preliminary thinking.
The indicative work programs provided in this Outlook do not reflect all the work the ACMA undertakes concerning radiocommunications issues. Items in the work programs predominantly relate to issues that may have a significant impact on spectrum demand or spectrum management over the next five years. The ACMA engages in a range of other work relating to radiocommunications, such aschanges to the licensing and allocation frameworks, to reflect incremental changes to the services available within the current bands.
Indicative work priorities are flexible and may change between editions of the Outlook. New issues can arise at any time, which may require urgent attention from the ACMA and may take precedence over work specified in the Outlook.
Comments on this Outlook will assist the ACMA in making decisions about the possible future planning, licensing, pricing and allocation arrangements for the radiofrequency spectrum. However, nothing in this Outlook should be taken to bind the ACMA or the government to any particular course of action in the future.
1.2Methodology
An important phase in the development of the first Outlook, and continued in this 2011 edition, was the estimation of spectrum requirements for radiocommunications services in Australia over the next five, 10 and 15 years. To assist in this work, the ACMA engaged several consultants in 2007 to research and gather information on current and future predicted spectrum requirements. The consultants researched Australian and overseas demand studies and undertook an analysis of Australian trends. Stakeholders also provided the consultants with valuable information about their estimated future spectrum requirements. The information from these consultancies, along with the ACMA’s own detailed examination of domestic and international trends in spectrum use, formed the basis for identification of the likely future pressure points on spectrum. The ACMA then formed its initial thoughts on how spectrum demands might be addressed.
While there is an inherent degree of uncertainty in predicting spectrum requirements over the next five years, consideration in advance of the likely pressure points on spectrum is valuable for two reasons. Firstly, it should ensure the ACMA’s work priorities are closely linked to actual emerging demand pressures. Secondly, it should provide a greater degree of industry certainty about the ACMA’s priorities and promote dialogue with spectrum users about these priorities. Annual updates keep the plan current and also reflect the reality that predictions are uncertain.
1.2.1Evidence-based approach
In considering whether issues should be included in the Outlook, the ACMA takes a comprehensive approach that is based on the best available evidence. As an evidence-informed communications regulator, the ACMA has an extensive research and reporting program aimed at understanding and identifying the current and potential uses of radiofrequency spectrum. The ACMA’s ongoing research program continuallyexamines the communications and media markets, exploring changes in technology, market development and community perceptions. Figure 1.1 depicts how the ACMA uses this evidence to inform its work plans for spectrum management.
Figure 1.1 How evidence informs the Five-year Spectrum Outlook1.3Scope and structure
This Outlook considers the range of the radiofrequency spectrum from about 500 kHz to 80 GHz, although the spectrum between 400 MHz and 6 GHz is generally where most of the competing demand exists.
Chapter 1 provides an introduction to the Outlook, outlining the purpose and scope of the document, the methodology by which it was created and updated, and details on the consultation process for parties interested in making submissions.
Chapter 2 contains an overview of the ACMA’s spectrum management decision-making framework. It outlines the legislative basis for spectrum management in Australia, the principles that articulate the ACMA’s approach to managing and planning the spectrum, and the information-gathering and work-planning processes that the ACMA uses to manage the spectrum.
Chapter 3 identifies the principal underlying drivers of spectrum demand, which include international developments, technological change and use of new services.
Chapter 4 outlines some of the key spectrum management projects that the ACMA will undertake over the next five years. This includes work that will be undertaken to review the tools used to manage the spectrum and wide-ranging projects that may affect a number of bands and a wide group of stakeholders, such as:
considering government spectrum use and the availability of spectrum to the broader community
the management of expiring spectrum licences
upcoming spectrum auctions in the 2.5 GHz and 700 MHz bands.
Chapter 5 contains an analysis and estimation of spectrum requirements of the following radiocommunications services over the next five years:
Aeronautical—includes the aeronautical mobile service, but excludes the aeronautical mobile-satellite service and the aeronautical radionavigation service.
Broadcasting—includes all terrestrial television and radio broadcasting services.
Fixed—includes all fixed point-to-point (P-P) systems, except for fixed wireless access systems that are included under the wireless access services sub-section (see below).
Land mobile—includes ‘traditional’ government and non-government land mobile services.
Maritime—includes the maritime mobile service, but excludes the maritime mobile-satellite service and the maritime radionavigation service.
Radiodetermination—includes the radiolocation, radionavigation and radionavigation-satellite services.
Satellite—includes the fixed-satellite, mobile-satellite and broadcasting-satellite services.
Space sciences—includes the radio astronomy service, earth exploration-satellite service, space research service, space operations service, meteorological aids service and meteorological-satellite service.
Wireless access—includes fixed wireless access (FWA), broadband wireless access (BWA), radio local area networks and mobile telephony services. Mobile television is also included, as the method of delivery of this emerging application is more closely linked to BWA than any other service.
Emerging technologies—includes analysis of dynamic spectrum access technologies, such as software-defined radio and cognitive radio systems. Ultra wideband (UWB), smart infrastructure and high-altitude technologies. Home networks and future television broadcast standards, including recent trials of 3D television broadcasts.
For each service, there is also a brief discussion about the spectrum requirements that may arise beyond 2015.
Chapter 6 contains the ACMA’s indicative spectrum management work programs for the next five years. The first work program contains the ACMA’s spectrum management projects and tasks categorised into relevant frequency bands or portions of the spectrum. It is based on the assessment of future spectrum requirements undertaken in Chapter 5 and includes current spectrum management projects. The second work program, the Outlook program, lists emerging spectrum issues that the ACMA is monitoring which may require active work in the next five years. A final table sets out planned work on a band-by-band basis.
Appendix Alists frequency bands and frequency ranges for easy reference.
Appendix B is a detailed list of the acronyms and abbreviations contained in this Outlook.
Appendix Cis the frequency audit table,which describes allocations and licensing of radiofrequency spectrum in Australia. It is provided in a separate document to the Outlook and can be located on the ACMA’s wesbite. It is current as at 1 December 2010 andis provided for information only. The table also includes a number of bands formerly associated with the Australian footnote AUS62, as found in the Australian Radiofrequency Spectrum Plan for the 43.5–47 GHz band, which identifies bands that may be used in the future for the purposes of defence. In the frequency audit table, these bands are now identified by the footnote F2.
1.4Consultation
The ACMA released the Five-year spectrum outlook 2010–2014 on 31 March 2010 and invited the radiocommunications community to consider and make submissions to the 2011–2015 edition. Submissions closed on 31 August 2010. The 17 submissions received by the ACMA have assisted in identifying stakeholders’ priorities and views on future projects outlined in this Outlook. Submissions received during the consultation period for this edition of the Outlook, which will conclude in the second half of 2011, will be incorporated into the 2012 edition. Written comments or queries about this edition of the Outlook may be forwarded at any time to:
Manager