Response to submissions
APRIL 2012
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acma | 1
Contents (Continued)
Executive summary
Introduction
Background
Review of the 2.5 GHz band—January 2010
Spectrum arrangements in the alternative bands
Proposals supporting introduction of TOB services
Summary of submissions
Frequency band plans
The 1900–1920 MHz frequency band plan
Television outside broadcast services frequency band plan
Mobile-satellite services
Airborne TOB transmitters in the 2200–2300 MHz band
Fixed point-to-point links
Space science sector (earth stations)
Coordination
Earth stations
Earth station studies
Earth station restrictions on spectrum availability
Earth station restrictions and TOB channel arrangements
Fixed point-to-point links
Spectrum allocation
Use of 7.2 GHz for television outside broadcast services
Spectrum for subscription television
STV spectrum requirements
Supporting shared use of the alternative bands
Proposed alternative band spectrum arrangements
Implementation and next steps
Invitation to comment
Making a submission
Enquiries
Effective consultation
Publication of submissions
Release of submissions where authorised or required by law
Status of this paper
Attachment A—Earth stations
Overview
2025–2110 MHz band
2200–2300 MHz band
Attachment B—TOB 7.2 GHz range considerations
Introduction
Range analysis
Conclusion
Attachment C—Electromagnetic energy considerations
Introduction
EME analysis
Conclusion
acma | 1Executive summary
In October 2011, the Australian Communications and Media Authority (the ACMA) sought comment on proposals to support the introduction of television outside broadcast (TOB) services into the 1980–2110 MHz and 2170–2300 MHzbands (known as the alternative bands).
The proposals were intended to support free-to-air(FTA) commercial broadcasters and the Australian Broadcasting Corporation (ABC), which currently are licensed to use the 2.5GHz band (2500–2690 MHz) under television outside broadcast network (TOBN) licences. The proposals were also intended to provide spectrum opportunities for a range of organisations that utilise the 2.5 GHz band under what are understood to be third-party agreements with 2.5 GHz TOBN licensees.
The key proposal was the making of two new frequency band plans under sections 32 and 34 of the Radiocommunications Act 1992 intended to:
support clearance of existing fixed point-to-point links in bands and areas to be used frequently by TOB services
remove conflicting provisions in existing frequency band plans that would otherwise limit the operation of TOB services in the 1980–2010 MHz, 2010–2025 MHz, 2076–2111 MHz and 2170–2200 MHz bands.
To aid development of TOB coordination and licensing arrangements, comment was also sought on proposals to:
identify spectrum for use by 2.5 GHz TOBN licensees in the alternative bands as well as spectrum for use by third-party users of the 2.5 GHz band
coordinate requirements between TOB services and earth stations
providefor future restrictions on fixed point-to-point link deployments.
The ACMA received twelve submissions on the October 2011 proposals.After considering submissions the ACMA has madethe frequency band plans, with minor revisions.
This paper summarises submissions received by the ACMA and provides its response to those submissions and the rationale for the decisions it has made. In addition, the ACMA is seeking industry views on a revised proposal to accommodate both 2.5 GHz TOBN licensees and third-party users of the 2.5 GHz band in the alternative bands.
Introduction
In October 2011, the ACMA released a paper to support the work of implementing outcomes of the review of the 2.5 GHz band. The paper soughtcomment on proposals forthe introduction of TOB services in the 1980–2110MHz and 2170–2300MHzbands—known as the alternative bands.
The proposals were designed to support 2.5 GHz TOBN licensees anda range of organisationswhich access the 2.5 GHz band under third-party arrangements with the licensees.
The ACMA received twelve submissions on the October 2011 proposals. After considering submissionsthe ACMA has decided to:
make the 1900–1920 MHz frequency band plan
make the frequency band plan for television outside broadcast services (1980–2110MHz and 2170–2300 MHz) with minor revisions.This providescertainty to fixed point-to-point licensees who are required to cease operations under the frequency band plan
proceed with proposed arrangements for coordination of TOB services with earth stations and fixed point-to-point links.
This paper:
summarises submissions
provides the ACMA response to submissions and rationale for decisions it has made
outlines changes made from the consultation drafts of the frequency band plans
seeks industry views on a revised proposal to support 2.5 GHz TOBN licensees and third-party users of the 2.5 GHz band in the alternative bands.
The ACMA is considering arrangements to support 2.5 GHz TOBN licensees and third-party users of the 2.5 GHz band in the alternative bands and seeks submissions from industry to assist in its considerations. Information about making a submission can be found in the Invitation to comment section.
Background
Review of the 2.5 GHz band—January 2010
In January 2010, the ACMA released the discussion paper, Review of the 2.5 GHz band and long-term arrangements for ENG, which outlined a range of options to achieve two key objectives:[1]
planning and allocation of the 2.5 GHz band to maximise the overall benefit derived from that spectrum
provision of long-term certainty for the current incumbents of the 2.5 GHz band—the TOBN licensees, the free-to-air (FTA) commercial broadcasters and the ABC.
The paper also indicated that the ACMA had come to a preliminary view on its preferred approach to achieve these objectives. Broadly this approach involved:
reallocation of the 2500–2570 MHz and 2620–2690 MHz bands (the upper and lower 2.5GHz bands) for spectrum licences, with technical frameworks that are technology flexible but optimised for wireless access services
conversion of TOBN apparatus licences to spectrum licences on an Australia-wide basis in the 2570–2620 MHz band —the mid-band gap
facilitation of TOB access to identified alternative bands:
shared use of the 2025–2110 MHz and 2200–2300 MHz bands
exclusive use of the 2010–2025 MHz band, at least in capital city areas
facilitation of TOB access to the 1980–2010 MHz and 2170–2200 MHz bands, with the caveat that mobile-satellite services may be introduced into these bands in the future, and that the ACMA is investigating the viability of long-term sharing between TOB and mobile-satellite services.
The ACMA received 42 submissions in response to the discussion paper.
In October 2010, the ACMA announced outcomes of the review of the 2.5 GHz band and outlined an implementation approach to achieve the key objectives of the review in the paper Review of the 2.5 GHz band and long-term arrangements for ENG—Response to submissions paper.[2],[3]
The response paper explained that, while the majority of submissions broadly accepted the 2.5 GHz band review, a number raised concerns with elements of the ACMA’s preferred approach. In the paper, the ACMA expressed the view that its preferred broad approach articulated in the January 2010 paper was appropriate. It further emphasised its commitment to ongoing consultation with affected stakeholders to address the important issues raised in the submissions.
Spectrum arrangements in the alternative bands
A range of existing services operate in and adjacent to the 1980–2110 MHz and 2170–2300 MHz bands including fixed point-to-point links, earth stations, defence aeronautical mobile telemetry systems, radioastronomy and spectrum licensing services.
Sharing and coordination issues between TOB services and existing services operating in the 1980–2110 MHz and 2170–2300 MHz bands were discussed in the 2.5 GHz review paper in January 2010. The paper identified a range of administrative policy documents and legislative instruments to be developed (or revised) in the process of developing sharing and coordination arrangements. Key tasks in that work are:
developing a legislative frequency band plan to support clearance of fixed point-to-point links and introduction of TOB services
varying existing legislative frequency band plans remove conflicting provisions that would otherwise limit the operation of TOB services
development of coordination and licensing requirements for TOB services to be recorded in a radiocommunications assignment and licensing instruction (RALI)—an administrative policy document
revisions to spectrum embargoes to reflect arrangements developed for TOB services.
The ACMA is committed to developing sharing and coordination arrangements in consultation with affected stakeholders.
Proposals supporting introduction of TOB services
In October 2011, the ACMA sought comment on proposals to support the introduction of TOB services into the 1980–2110MHz and 2170–2300 MHz bands.
The proposals were intended to provide long-term certainty for FTA broadcasters, who currently are almost exclusively licensed to use the 2.5GHz band under TOBN licences. The proposals were also intended to provide spectrum opportunities for a range of TOB organisations that utilise the 2.5GHz band, either directly or indirectly, through contracts with other TOB organisations, under what are understood to be third-party agreementswith 2.5 GHz TOBN licensees. Third-party users of the 2.5GHz band includesubscription television (STV) operators, TOB production companies and equipment suppliers.
The focus of the October 2011 consultation was on two draft frequency bands plans—the band plan for television outside broadcast services (1980–2110MHz and 2170–2300 MHz) and the draft 1900–1920 MHz band plan.
To help develop frequency coordination and licensing arrangements, comment was also sought on proposals to:
identify spectrum for use by TOBN licensees in the 2.5 GHz band as well as spectrum for use bythird-party users of the 2.5 GHz band
coordinate requirements between TOB services and earth stations
providefor future restrictions on fixed point-to-point links.
Detailed coordination plans to implement proposed arrangements were still being considered, as were those with other services that operate in and adjacent to the 1980–2110 MHz and 2170–2300MHz bands.
Frequency band plan for television outside broadcast services
The proposed frequency band plan for television outside broadcast services (1980–2110MHz and 2170–2300 MHz) is intended to:
identifythe 1980–2110 MHz and 2170–2300 MHz frequency bands as bands available for use by TOB services
support the clearance of existing fixed point-to-point links in bands and areas to be frequently used by TOB services by no later than 1 November 2013
support the cessation of earth station operations in the 2025–2110 MHz and 2200–2300MHz bands in Perth (Landsdale/Gnangara) byno later than 31 December 2015
revoke the Mobile-Satellite Service (2 GHz) Frequency Band Plan 2002to remove conflicting provisions that would otherwise limit the operation of TOB services in the 1980–2010 MHz and 2170–2200 MHz bands
revoke the 2.1 GHz Band Frequency Band Plan 2000 to remove conflicting provisions that would otherwise limit the operation of TOB services in the 2076–2111 MHz band.
The 1900–1920 frequency band plan
The proposed 1900–1920 MHz frequency band plan is intended to:
revoke the 1900–1920 MHz and 2010–2025 MHz Bands Frequency Band Plan 2004 to remove conflicting provisions that would otherwise limit the operation of TOB services in the 2010–2025 MHz band
retain existing provisions for the 1900–1920 MHz band.
Earth station coordination proposals
Proposals for TOB and earth station coordination outlined broad arrangements for coordination between TOB services and earth stations operating in the 2025–2110MHz and 2200–2300 MHz bands. The focus was on four major earth station locations:
Landsdale (17 km north of Perth central business district)
New Norcia (100 km north of Perth)
Mingenew (320 km north of Perth)
Tidbinbilla (17 km south-west of Canberra).
Coordination arrangements included specified geographic and frequency exclusion zones, areas of restricted operation and coordination zones around earth stations. It was proposed that any TOB operation in the Tidbinbilla coordination area needed to be on a pre-planned and coordinated basis in accordance with the requirements of Appendix 7 of the Radio Regulations of the International Telecommunication Union (ITU).
The proposals reiterated aban on the operation of airborne transmitters (for example,helicopters) in the 2200–2300MHz band, first proposed in the January 2010 2.5GHz review paper.
The proposals reflected agreements reached with the European Space Agency (ESA) and the Commonwealth, Scientific and Industrial Research Organisation (CSIRO) on coordination of TOB services with earth stations. They were developed in consideration of Australia’s obligations under treaties with the ESA and the US.[4],[5]
Fixed point-to-point link coordination proposals
Proposals for TOB coordination with fixed point-to-point links outlined areas and bands where proposed restrictionswould apply to future fixed point-to-point link assignments. The restrictions, when combined with provisions of the proposed TOB band plan, determine the areas and bandswhere fixed links will be able to operate in the future.
The proposed fixed point-to-point links arrangements relax current Australia- wide restrictions on fixed links and would be implemented by revisions to existing spectrum embargoes, once the band plans are made and coordination arrangements developed.
Spectrum arrangements
Proposed spectrum arrangements were intended to support both 2.5 GHz TOBN licensees and third-party users of the 2.5GHz band by:
Identifying the 1980–2010 MHz and 2170–2200MHz bands for use on a shared non-exclusive basis, with licensees required to self-coordinate usage with other TOB licensees. These arrangements are intended to support the activities of STV operators, TOB production houses and equipment suppliers.
Supporting 2.5 GHz TOBN licences in the 2010–2110 MHz and 2200–2300MHz bands, as well as having access to the 1980–2010MHz and 2170–2200MHz bands on a shared basis.
Summary of submissions
Submissions were received from organisations representing incumbent fixed point-to-point link licensees, FTA broadcasters, the mobile-satellite sector, the space science sector and the STV sector.
Issues raised on bands plans included:
the impact of the introduction of TOB services on possible future mobile-satellite services in 1980–2010 MHz and 2170–2200 MHz bands
the ability of fixed point-to-point licensees to meet clearance timelines and concerns about the operation of fixed point-to-point links on a secondary basis.
Issues raised on coordination and spectrum arrangements included:
concerns from the STV sector that spectrum identified in the alternative bands for use by third-party users of the 2.5 GHz band did not provide long-term certainty
concerns about the use of the 7.2 GHz band (7100–7425 MHz) due to equipment costs, technical feasibility and occupational health and safety electromagnetic energy issues
coordination of fixed point-to-point links with TOB services
TOB coordination with defence aeronautical mobile telemetry services
restrictions on TOB services due to coordination requirements with earth stations.
Coordination arrangements with services other than fixed point-to-point links and earth stations such as defence aeronautical mobile telemetry services, radioastronomy services and adjacent band spectrum licences are still under consideration. The ACMA will discuss coordination arrangements with stakeholders as they are developed.
The ACMA response to other issues raised in submissions is presented in the sections entitled Frequency band plans, Coordination and Spectrum allocation.
Frequency band plans
This section discusses submissions received on the new draft1900–1920 MHz frequency band plan and the television outside broadcast services frequency band plan (1980–2110 MHz and 2170–2300 MHz).It presents the ACMA’s response to submissions and outlines changes made to these band plans.
The 1900–1920 MHz frequency band plan
Submissions from TOB organisations supported the draft 1900–1920 MHz frequency band plan so no changes have been made to plan.
Television outside broadcast services frequency band plan
Submissions on the proposed new television outside broadcast services frequency band plan were received from organisations representing incumbent fixed point-to-point link licensees, FTA broadcasters, and the mobile-satellite, the space science and STV sectors.
After considering the comments on the plan, two changes have been made to:
ensure that the plan meets the policy objective of supporting the operation of TOB services in the 1980–2010 MHz and 2170–2200 MHz bands without any changes to existing provisions supporting mobile-satellite services
include the policy requirement that no airborne TOB transmitters operate in the 2200–2300 MHz band in the plan.
Mobile-satellite services
A number of satellite operators objected to the introduction of TOB services into the 1980–2010 MHz and 2170–2200 MHz bands. Respondents were also concerned that the proposed frequency band plan for TOB services did not fulfil the policy objective of supporting the operation of TOB services in the 1980–2010MHz and 2170–2200 MHz bands without changing existing provisions supporting mobile-satellite services in those bands.
Consistency with existing provisions for mobile-satellite services
The ACMA has reviewed the consultation draft of the frequency band plan for TOB services and agrees that the provisions in the consultation draft do not reflect existing provisions supporting mobile-satellite services. This has been addressed by changes to sections 6 and 7 of the Television Outside Broadcast Service (1980–2110 MHz and 2170–2300MHz) Frequency Band Plan 2012.