POLICIES :: eCommunications :: Public use of spectrum

Public use of spectrum

By the public use of spectrum (PUS) we generally understand the use of spectrum by various public sector bodies. Public sectors are substantial users of spectrum – with assignments representing 40-50% of the valuable frequencies below 15 GHz. They were often the first to deploy radio technologies (public safety and defence) and they continue to be high priorities for governments. The public sector bodies deliver services at national, regional and local/municipal levels. The most important public sector users of spectrum are defence, public broadcasting, scientific services, public transport (notably when it comes to transport safety communications) and public safety and emergency services (including police, fire brigades, ambulances, search and rescue, disaster relief, etc.). Typically, assignments of spectrum for public use are implemented through administrative decisions which are often taken by administrative bodies responsible for providing the public service. In this manner, public sector bodies fulfil the regulatory and the spectrum user function at the same time.

It should be noted that for a number of sectors, such as civil aviation, maritime, space and satellites as well as meteorology and scientific services, the allocation of spectrum is considered and negotiated at global level within the United Nations specialised organizations and agencies (under the umbrella of the ITU with sector specific organisations as influential negotiating parties, e.g. ICAO, IMO and WMO ). Decisions on allocating spectrum take the form of changes of the Radio Regulations which require a consensus at the ITU World Radiocommunications Conferences (WRC).

Spectrum policy in the European Union and the relation to public use of spectrum

The Commission plays a key role in achieving the Single Market. On this basis, the role and competencies of the European Commission in spectrum policy are laid down in the Radio Spectrum Decision 676/2002/EC. The purpose of this Decision was to establish a policy and legal framework in the European Union in order to coordinate and support the harmonisation of radio spectrum use where this is needed at EU level. Harmonisation measures are adopted via the comitology process involving the Radio Spectrum Committee. This includes supporting the objectives of EU policies and initiatives necessary for the functioning of the internal market in areas such as electronic communications, transport, research and development.

In addition, a number of principles governing spectrum management such as technology neutrality, obligation of technically efficient spectrum use, non-discrimination access to radio spectrum resources are laid down in the regulatory framework for Electronic Communications Services (ECS). Such principles apply to all spectrum users including public sector bodies.

The Commission set up the Radio Spectrum Policy Group (RSPG) in 2002 which is a high-level group of experts from Member States. RSPG assists and advises the Commission on strategic aspects of spectrum policy.

Public sectors using spectrum are often linked to general interest objectives and thereby falling primarily under nation competence. However, in many cases of public use of spectrum EU sectorial policies are relevant, especially when public services need to be organised in a coordinated manner across borders. Examples can be found in the sectors of communication (e.g. public broadcasting, information society), transport (Single European Sky, road safety, satellite navigation), space (European Space Policy), environment (Earth observation, civil protection), health (eInclusion, eHealth), security (border control) and scientific services.

More generally, the overall objective of spectrum policy is to maximise the social and economic value which Europe derives from spectrum. A balanced spectrum policy requires an adequate consideration of spectrum needs of the public sectors, even though a lot of public sector use falls outside of the legal and institutional competences of the European Union (especially defence and national security). Achieving greater operational performance and enhancing the economic/societal value per unit of spectrum could potentially improve public services delivery a have a positive impact on the overall European economy and contribute to the achievement of the Lisbon Strategy for growth and employment. As public sectors are significant users of spectrum, making their use of spectrum more socio-economically efficient is an important goal of spectrum policy.

To what extent the public use of spectrum is covered by the EU legislation governing spectrum management has to be decided on a case by case basis. Some harmonisation measures adopted in the past have been prepared in view of supporting the public use of spectrum (e.g. in the case of spectrum for road safety related applications of intelligent transport systems).

Furthermore, in 2009, the RSPG adopted its Opinion on Best practices regarding the use of spectrum by some public sectors. The Study Optimising the Public Sector's Use of the Radio Spectrum in the European Union was conducted on behalf of the Commission in 2008.

Issues for further consideration:

Increasing transparency of public sector use of spectrum by conducting periodic surveys of current spectrum use and evaluating future needs of public sectors. Development of long-term strategic plans for public sector spectrum allocations.
Evaluation of spectrum needs related to the delivery of public services and applications linked to specific EU policies: air transport (Single European Sky initiatives around air traffic management), rail transport (European Rail Traffic Management System - ERTMS), road transport (Intelligent Transport Systems - ITS), emergency and public safety communications (PPDR), etc.
Given that spectrum is a limited and scarce resource, it is important to make choices between spectrum allocations for public sector and non-public sector use (private or commercial) and to set mechanisms to find a realistic balance.
Reallocation/reassignment of spectrum to uses/users which generate a higher socio-economic value – between public sector users or between public and non-public sector users. Changes in spectrum use should be implemented in a timely and cost effective manner.
Procurement processes used by public sector bodies to purchase wireless equipment and services have an impact on spectrum needs, both in terms of efficient use of spectrum and interoperability. Procurement of equipment and technology choices should be conducted in line with good spectrum management practices.
Harmonisation of spectrum use for public sectors to achieve: (i) cross-border (pan-European) provision of services, (ii) economies of scale as regards the production of equipment and (iii) the minimum possible level of interference between national systems. Development of long term strategic plans for the harmonisation of public sector allocations at European and global (WRC) levels.
Sharing of frequency bands between public sector users and between public sector and non-public sector users in order to optimise the use of spectrum. Identification of promising opportunities for spectrum sharing.
Technological improvements as result of investment and innovation to achieve a more efficient use of spectrum, greater sharing of frequency bands, enhanced interoperability and economies of scale at European level. Identify frequency bands where an introduction of new, spectrally efficient (and a phase out of outdated) technologies for the use by public sectors could lead to further "digital dividends".