Select Committee on European Scrutiny Thirty-Third Report


3 World Radiocommunication Conference 2007

(28766)

11425/07 COM(07) 371

Commission Communication: The ITU World Radiocommunication Conference 2007

Legal base
Document originated2 July 2007
Deposited in Parliament6 July 2007
DepartmentBusiness, Enterprise and Regulatory Reform
Basis of considerationEM of 19 July 2007
Previous Committee ReportNone: but see (28369) 6280/07: HC 41-xxi (2006-07), para 9 (9 May 2007)
To be discussed in CouncilTo be determined
Committee's assessmentPolitically important
Committee's decisionCleared; but further information requested

Background

3.1 As the Commission notes, radio spectrum is a limited natural resource with major social and economic impacts; it is economically important for the provision of public and commercial services based on wireless technology, scientific research, and establishing international transport and communications networks. The value of economic activities and the total value of spectrum-dependent services in the EU is estimated at over €200 billion (£133.3 billion), i.e. between 2 % and 2.5 % of annual European gross product — "why Europe as an economic area must give importance to international negotiations affecting radio spectrum usage".

3.2 The coordination of spectrum at a global level is the responsibility of the International Telecommunications Union (ITU), a United Nations agency whose job is to maintain and extend international cooperation for the improvement and rational use of telecommunications of all kinds. Every three to four years, the ITU holds the World Radiocommunication Conference, with the aim of adapting the ITU Radio Regulations (RR), which is the international treaty coordinating spectrum usage globally. The next World Radiocommunication Conference (WRC-07) will be held in Geneva from 22 October to 16 November 2007.

The Commission Communication

3.3 The Commission is participating in WRC-07 as a non-voting sector member of ITU. In this capacity, the Commission intends to support Member States' common positions ("European Common Proposals") which are in line with and relevant to Community policies. The Communication seeks to inform the European Parliament and the Council about Community policies that could be affected by the outcome of WRC-07, and to obtain their endorsement of the policy objectives to be achieved and of the position to be taken by Member States at the WRC-07 conference.

3.4 In his helpful 19 July 2007 Explanatory Memorandum, the Minister of State for Competitiveness in the Department for Business, Enterprise and Regulatory Reform (Stephen Timms) explains that EU Member States negotiate in the ITU as independent members, but in practice work closely to develop their technical positions together within European Conference of Postal and Telecommunications Administrations (CEPT; an association of 47 national spectrum and telecom authorities) before negotiating with the rest of the world on the basis of consolidated European positions ("European Common Proposals"); administrations participating in the CEPT process agree to support, or at least not actively negotiate against, such common positions.

3.5 With this in mind, the Commission tasked its Radio Spectrum Policy Group (RSPG)[8] to develop an advisory Opinion on the Community objectives for WRC-07. This activity was supported by a public consultation and two public workshops. The Commission's overall objective in the WRC process is to ensure that decisions taken support Community policies and initiatives.

OVERVIEW OF WRC-07 DECISIONS

3.6 The Commission highlights a number of EU objectives that Member States negotiating at WRC-07 should achieve in its opinion, including:

—  accommodating the spectrum demands of future terrestrial mobile systems by upgrading the status of these services in the "UHF band" (470-862 MHz) and by identifying part of the "C band" (3.4 to 3.8 GHz) for these systems;

—  ensuring the effective protection of Earth Exploration and other scientific services from harmful interference;

—  satisfying the necessary spectrum requirements for digital radio broadcasting and for maritime services in the 4-10 MHz high frequency (HF) band;

—  providing enough spectrum for aviation applications; and

—  preparing actions to support Community policies for the next WRC Conference due in 2011, notably concerning spectrum flexibility, climate change and the Single European Sky.[9]

THE UHF BAND

3.7 Due to its low frequency, the Ultra-High Frequency (UHF) broadcasting band (470 to 862 MHz) is the best part of the spectrum in terms of coverage and indoor penetration. Network infrastructures in the UHF band could thus be significantly more cost-effective than some existing systems and could facilitate the deployment of mobile systems in sparsely-populated regions and highly-built urban areas. Currently, the ITU Radio Regulations grant broadcasting services a higher regulatory status (a "primary allocation") in the UHF band in Europe. Since additional spectrum for mobile services is being considered by WRC-07, a first step in the direction of more flexibility could be taken by upgrading the status of these services to the same status as broadcasting services at this conference.

HIGHER FREQUENCIES

3.8 Among the relevant candidate bands at higher frequencies than the spectrum currently available for mobile systems in Europe is the so-called C-band (part of the Radio Spectrum between 3.4 and 4.2 GHz). While this band is attractive for future mobile systems in Europe, it is being used as a backbone broadband network by satellite services, notably in developing countries. Technical sharing solutions accommodating mobile requirements, while adequately protecting satellite interests in the C-band at minimal cost for the satellite operators, is being sought as a matter of priority.

FUTURE MOBILE COMMUNICATIONS

3.9 An important focus of the World Radio Conference will be in the area of future mobile communication systems. A clear demand for additional spectrum to be identified globally for these systems has been demonstrated in the preparations for WRC-07. In order to satisfy this additional demand, spectrum bands in frequencies both below and above the frequencies currently used by mobile systems in Europe are being considered.

SATELLITE COMMUNICATIONS

3.10 WRC-07 is to review some of the ITU rules pertaining to satellite systems. Satellite communications are recognised as an integral part of the Information Society and as one of the main pillars of the EU's space policy. Satellites are an important alternative platform for electronic communication services, providing capabilities for pan-European coverage of new services, including broadband data, thus helping bridge any 'digital divide' developing in the rural and remote areas of Europe.

MORE FLEXIBILITY IN THE GLOBAL SPECTRUM REGULATORY FRAMEWORK

3.11 The Commission believes that Community interests would be best served by a global framework which supports the removal of undue regulatory restrictions to the use of the radio spectrum, thereby enhancing its flexible and efficient use and introducing more competition between different radio infrastructures.

UK INPUT

3.12 Ofcom is the regulator for the UK communications industries, with responsibilities across television, radio, telecommunications and wireless communications services. The Communications Act 2003 imposes a duty on Ofcom to secure the optimal use of the radio spectrum and to provide representation on behalf of Government at international meetings about communications, in accordance with such general or specific directions as may be given to them by the Secretary of State for Trade and Industry (now to be read as the Secretary of State, Department for Business, Enterprise & Regulatory Reform).

3.13 The Minister notes that a specific direction was made in December 2003 requiring Ofcom to represent the United Kingdom in, inter alia, the EU spectrum committees, i.e., the Radio Spectrum Committee and the Radio Spectrum Policy Group; that the Secretaries of State for Culture, Media and Sport, Defence, the Home Office, Transport and Environment, Food and Rural Affairs, and other departments and agencies, also have an interest in the management of the radio spectrum; and that their views are coordinated formally through the Cabinet Office UK Spectrum Strategy Committee, which Ofcom attends. Although there has been no specific consultation on this Communication, "there has been substantial dialogue in the UK on the majority of issues flagged in the Commission text, given that they are common to those on the WRC-07 agenda".

The Government's view

3.14 The Minister welcomes the Communication and the work that has been carried out by Member States and the Commission. He "broadly supports the Commission's emphasis on the need for a market-based approach to spectrum management, and the proposed future actions" and continues as follows:

"However, the UK notes the importance of ensuring that Community action provides benefit and does not stifle national innovation. The UK welcomes a less constrained approach to spectrum management, but would not want to be held back in its own pace of implementation.

"In particular the UK is very supportive of the Commission's view on the need to look carefully at the use of UHF band for non-broadcasting services; and we would thus endorse their view that at WRC-07 primary allocation is secured in this Band for mobile services. This would not affect any policy decisions the UK may wish to take with respect to the digital dividend but would send a strong signal to the market that the Community are in favour of a more flexible use of this important part of the spectrum. A common EU position on this issue will be important in securing the backing for a change in primary allocation of spectrum in the Band at WRC-07."

TIMETABLE

3.15 The Minister says that "it is anticipated that Council Conclusions will be adopted under the Portuguese Presidency soon after the summer break. The UK, as a member State participates in the WRC discussions in its own right. Conclusions of European Council do not legally bind positions that might be taken."

Conclusions

3.16 Our consideration of the Commission Communication 6280/07 "Rapid access to spectrum for wireless electronic communications services through more flexibility" illustrated the importance of continuing a flexible, market-based approach to radio spectrum management.[10]

3.17 We accordingly ask the Minister to let us have his assessment, in due course, of the extent to which the outcomes of the WRC-07 fulfil UK and EU objectives, particularly with regard to a flexible, innovation-encouraging approach to spectrum management.

3.18 We now clear the document.





8   The Radio Spectrum Policy Group (RSPG) was set up as part of the July 2003 regulatory framework for electronic communications, to enable Member States, the Commission and stakeholders to coordinate the use of radio spectrum. The members of the Group are representatives of the Member States and of the Commission. Ofcom represents the UK in the RSPG. See http://ec.europa.eu/information_society/doc/factsheets/022-radio-spectum-policy-en.pdf for full details.  Back

9   The Single European Sky initiative is aimed at restructuring European airspace as a function of air traffic flows, rather than according to national borders; creating additional capacity; and increasing the overall efficiency of the air traffic management system. See http://www.eurocontrol.int/ses/public/standard_page/sk_ses.html for full details. Back

10   See headnote. Back


 
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