Major changes planned for 400 MHz band

The identification of a harmonised government band to facilitate interoperability between government agencies, particularly the police, security and emergency services, was one of the major proposals contained in a consultation paper presented at the RadComms conference in Sydney in April.

The proposal came in a paper that discussed future arrangements in the 400 MHz band. The ACMA believes that reform of this band is not only urgently needed but is important to the country’s future.

After submissions to this paper have been received, there will be further public consultation and a third discussion paper will be developed covering migration and implementation strategies such as:

• The migration of users to smaller channel bandwidths;
• The migration of incumbent users to other parts of the band;
• The migration of government users into consolidated spectrum;
• Time frames associated with various migration strategies;
• Changes to licence fees;
• Regional and metropolitan variations regarding migration and time frames;
• Changes to the 400 MHz Band Plan and RALIs LM8, FX16 and FX17.

As far as the 400 MHz band goes, the ACMA is proposing to:

• Implement a 6.25 kHz compatible channel raster for all land mobile segments (both single and two frequency segments) in the band;
• Permit aggregation of channels to 12.5 kHz unconditionally;
• Permit aggregation of channels greater than 12.5 kHz. Justification would be required in HDAs and MDAs with the spectral efficiency of the proposed use (25 kHz analog systems would not be supported) and the availability of alternatives as key considerations;
• Prohibit 25 kHz systems in HDAs and MDAs within five years;
• Reduce the minimum channel size for all narrowband fixed segments (point to point and point to multipoint) to 12.5 kHz with aggregation of channels permitted where justified;
• Prohibit 25 kHz analog voice point-to-point systems in HDAs and MDAs within five years;
• No change for wideband systems.

The ACMA does not propose to adopt mandatory channel sharing or loading obligations on land mobile services but it does propose to identify additional segments within the band to be used exclusively for trunking.

The authority does not propose to vary the existing minimum data rates for narrowband fixed service data applications.

It also proposes to undertake a process to implement revised changes to assignment and coordination procedures based on the following core concepts, for:

Land mobile

• A review of re-use distances with a view to reduction;
• The option to use topographical information in the assignment process.

Point-to-point

• The option to use topographical information in the assignment process.

Point-to-multipoint

• The option to use topographical information in the assignment process.

Single frequency systems

• Restricting or quarantining high-power single frequency systems;
• Permitting high-power single frequency in exceptional cases only;
• Regional variations allowing the use of high-power SFS in some areas.

Area-wide high duty cycle data systems

• Identifying dedicated channels for area-wide, high duty cycle data systems.

        The authority proposes:

• Identifying spectrum for a 10 MHz duplex split in 450-470 MHz;
• No duplex split changes in 470-518 MHz.

The proposal is that the 403-430 MHz band (less Defence and EPIRB segments) be identified for the exclusive use of federal, state and territory governments and that this band be primarily used to enable interoperability between government agencies. Other federal, state and territory government users will be permitted to use the band contingent on the requirements of security, law enforcement and emergency services uses being adequately supported. This use of the spectrum would be determined and prioritised by the states/territories individually without ACMA’s prescription.

A segment of this band should be identified for federal agency use provided interoperability between government agencies providing security, law enforcement and emergency services can be demonstrated.

The entire block of spectrum should be made available on a state-wide basis as a single licence, with fees payable at an annual amount, independent of the number of devices operated under the licence.

Apparatus licensing should be continued to be used to authorise use of the band initially and that spectrum licensing be explored later. Existing non-government licensees in the 403-430 MHz band transition out of the band within five years in high- and medium-density areas and eight years in the rest of the country.

Existing government arrangements outside the 403-430 MHz band should be removed no sooner than in five years and relevant national committees, primarily the NCCGR and LESRSC, determine solutions for interoperability and identify mechanisms that can be used by the ACMA to further enhance interoperability objectives via spectrum management arrangements.

The ACMA proposes no change to existing licensing arrangements supporting point-to-multipoint applications. However, it does propose to undertake a process to implement revised arrangements for the UHF CBRS based on:

• Extension of the CBRS band by 6.25 kHz at the top edge of the band;
• Reduction to 12.5 kHz channels for CBRS simplex channels;
• Retention of 25 kHz channels for the eight existing repeater channel pairs, including the emergency channels and the two existing telemetry/telecommand channels;
• Review the coordination and assignment rules for repeater channels.

The authority looks to establish a minimum of 2x5 MHz, 10 MHz split segments to facilitate use of a greater range of technologies: 452.5-457.5 MHz paired with 462.5-467.5 MHz (supporting a range of future options) is proposed along with identifying 3 MHz paired of the 10 MHz split spectrum for trunking systems.

However, it will leave existing single frequency and fixed point-to-point and point-to-multipoint segments in this band untouched but maintain 9.5 MHz duplex splits in remaining segments.

Among other issues the ACMA seeks comment on:

• The possibility of maximising the spectrum available for 10 MHz split by identifying additional 10 MHz split spectrum beyond the proposed 2x5 MHz up to a maximum of 2x7.4875 MHz.
• Preferred licensing and allocation options for the proposed 10 MHz duplex frequency split spectrum in the 450-470 MHz band.
• The technical framework to apply to spectrum licences at the upper end of the 400 MHz band;
• The appropriate lot size for the continued operation of the 500 MHz spectrum licences; stakeholder’s views are sought on the timing of reallocating the 500 MHz spectrum licences;
• Whether it should recommend to the minister that a class of service should be declared under section 82(3), and what this class of service should be.
• Types of uses that might be commercially attractive under licensing if the total bandwidth available to licensing at the upper end of the 400 MHz band is increased;
• Whether the total bandwidth available for licensing at the upper end of the 400 MHz band should be increased;
• Whether it should recommend to the minister that the original s.36 Designation be revoked on the expiry of the licences and that the spectrum be re-allocated under apparatus licences;
• The proposal to allow 500 MHz spectrum licensees who are providing spectrum for significant active networks to apply for apparatus licences before accepting other applications, noting that ACMA may need to change the operational frequencies, or may choose to defer individual applications to a later allocation;
• The proposal to accept applications for apparatus licences in this band from non-government licensees in the 403-430 MHz band before accepting other applications. Applicants would be offered 12.5 kHz channels.
• The proposal to accept applications for apparatus licences in this band from current licensees in the 450-470 MHz band before accepting other applications. Applicants would be offered 12.5 kHz channels;
• Whether this should be a temporary transition or a permanent relocation;
• The option to perform an auction for remaining apparatus licences in Sydney and Melbourne;
• Comment from wireless microphone and biomedical telemetry users on whether or not they operate devices in the 520-526 MHz range under the LIPD class licence.

Opportunity pricing paper

The ACMA has been seeking public and industry comment on proposals to set prices for administratively allocated spectrum in the 400 MHz spectrum band based on opportunity cost pricing methods.

The consultation paper, Opportunity Cost Pricing of Spectrum: Public consultation on administrative pricing of spectrum based on opportunity cost, reflects ACMA’s intention to promote increased consultation, transparency and accountability in its planning and management of spectrum in Australia.

“Spectrum is vital to many services used by Australian businesses and consumers and we need to make sure it is used efficiently so new technologies and services can be made available to Australians, and that congestion in specific spectrum bands can be addressed,” said Chris Chapman, ACMA chairman.

“This discussion paper was the final in a series of announcements relating to spectrum management that led up to ACMA’s RadComms09 conference in April.

“One of these announcements concerned proposals for future arrangements and new measures in the 400 MHz band.”

Opportunity cost pricing is one of a suite of economic tools to achieve efficient allocation and use of spectrum. This pricing model is already used by regulators in the US, Britain and New Zealand.

“The opportunity cost of spectrum is based on the highest value of the alternative use that would be denied by granting access to one party rather than another,” Chapman said.

“Past use by ACMA of opportunity cost pricing has been limited to the use of market proxies in related markets. This discussion paper explained the utility of new opportunity cost direct calculation methods.”

Other allocation tools that are under review by ACMA include trading in spectrum and auction design and methodology.