800 MHz Rebanding:An Overview

David FurthAssociate Bureau Chief

Public Safety and Homeland Security BureauMarch 21, 2007

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Outline

How Did We Get Here? The Interference Problem The Rulemaking The Transition What’s Next?

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History of the 800 MHz Band

Established in the 1970s for land mobile use (reallocated from UHF-TV)

Intended to relieve crowding of lower band land mobile frequencies

Channels allocated for mixture of services Public Safety Business Radio Industrial/Land Transportation (e.g., utilities) Specialized Mobile Radio (commercial service)

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800 MHz -- Old Band Plan

Channels 1-120SMR/General

Category

SMR, B/ILT, Public Safety Interleaved

ESMR

806 809.75 821816 824

851 854.75 866861 869

NPSPAC(Public Safety)

NPSPAC - 6 MHz 225 Channels @ 12.5 kHz spacing5 Channels @ 25 kHz spacing5 Mutual Aid Channels

ESMR/Upper 200 – 10 MHz 200 ChannelsLicensed by EA A few non-EA incumbents remain; most were relocated or acquired in late 1990s.

SMR/General Category -7.5 MHz150 ChannelsLicensed by EA Blocks of 25 channels (SMR)Some Incumbent Operators Remain (includes Business, I/LT, and Public Safety)

Interleaved Spectrum -12.5 MHz250 Channels80 SMR Channels(Licensed by EA, Some Incumbent Operators Remain)70 Public Safety Channels50 Business Channels50 Industrial/Land Transportation Channels

Cellular (50 MHz)

700 MHz Public Safety

(24 MHz)

746

792776

762747

777

764

806 824

849 851

AT

G DC B A AB B

800 MHz

Band

= 700 MHz Guard Band

894

Upper 700 MHzCommercial

(30 MHz)

794 896

A

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Outline

How Did We Get Here? The Interference Problem The Rulemaking The Transition What’s Next?

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Interference Problem

Mid-1990s – Nextel starts to deploy cellular-architecture “ESMR” in the 800 MHz band Public safety also expands into 800 MHz as

lower bands grow congested Late 1990s -- 800 MHz public safety

systems encounter increasing interference and “dead zones”

Problem traced to Nextel as well as cellular carriers operating in adjacent spectrum

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Interference Problem

Caused by incompatible system architecture on adjacent channels Public safety systems use “high-site”

architecture -- small number of base stations with high antennas to maximize signal propagation

Commercial systems use “low-site” cellular architecture -- numerous cells with low antennas to allow frequency reuse

Interference occurs when a mobile user on a high-site system moves far from its own base station but near a low-site commercial base station

Interleaved band plan exacerbates problem

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Near/Far Problem

10 MILES

2500FEET

CMRSCellSite

Public Safety BaseStation

Strong signal from cell site

Result: Signal from cell site overloads public safety handset

Weak signal from public safety base

station

“Near/far” problem – First responder is near the CMRS cell site and far from its own base station

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Public Safety Dead Spots

+ PUBLICSAFETYSTATION

+

Dead spots near CMRS cell sites – first responders cannot hear public safety communications

+

+

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Outline

How Did We Get Here? The Interference Problem The Rulemaking The Transition What’s Next?

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Early Proposals

Best Practices Guide (2000) -- voluntary measures to reduce interference

Nextel White Paper (2001) – proposes rebanding as a solution

800 MHz NPRM (2002) – seeks comment on rebanding and non-rebanding alternatives

“Consensus Proposal” (2002) – Revised rebanding plan proposed by coalition of 800 MHz stakeholders, including Nextel and several public safety organizations

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800 MHz Report and Order

Adopted in July 2004 Commission adopts a two-pronged

solution to the interference problem New rules for protection of public safety

systems from interference by commercial systems

Rebanding to separate public safety and other high-site systems from cellular systems.

Commission’s rebanding plan incorporates some elements of the Consensus Proposal but also has new and additional elements

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800 MHz -- Old Band Plan

Channels 1-120SMR/General

Category

SMR, B/ILT, Public Safety Interleaved

ESMR

806 809.75 821816 824

851 854.75 866861 869

NPSPAC(Public Safety)

NPSPAC - 6 MHz 225 Channels @ 12.5 kHz spacing5 Channels @ 25 kHz spacing5 Mutual Aid Channels

ESMR/Upper 200 – 10 MHz 200 ChannelsLicensed by EA A few non-EA incumbents remain; most were relocated or acquired in late 1990s.

SMR/General Category -7.5 MHz150 ChannelsLicensed by EA Blocks of 25 channels (SMR)Some Incumbent Operators Remain (includes Business, I/LT, and Public Safety)

Interleaved Spectrum -12.5 MHz250 Channels80 SMR Channels(Licensed by EA, Some Incumbent Operators Remain)70 Public Safety Channels50 Business Channels50 Industrial/Land Transportation Channels

Cellular (50 MHz)

700 MHz Public Safety

(24 MHz)

746

792776

762747

777

764

806 824

849 851

AT

G DC B A AB B

800 MHz

Band

= 700 MHz Guard Band

894

Upper 700 MHzCommercial

(30 MHz)

794 896

A

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800 MHz – New Band Plan

862Public Safety

B/ILTNon-Cellular SMR

Expansion Band

Cellular 700 MHz

Public Safety

746

792776

762747

777

764806 824

849 851

AT

G DC B A AB B800 MHz

Band

= 700 MHz Guard Band

894

Upper 700 MHzCommercial

794 896

A

806 809 817 824

851

854 866 869

815 816

862854

866

861 869

NPSPAC(Public Safety)

ESMRGuard Band

860

Nextel and other ESMRs occupy upper band segment, adjacent to Cellular band

Public safety and other high-site systems occupy lower band segment, adjacent to 700 MHz public safety

Guard Band and Expansion Band serve as buffers

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Post-Rebanding – More Public Safety Spectrum

SMR, B/ILT, Public Safety Interleaved ESMR

NPSPAC(Public Safety)

Guard Band Expansion

Band

Interleaved spectrum vacated by Nextel is available exclusively to public safety for 3 years

After 3 years, vacated spectrum is also opened to Critical Infrastructure for an additional 2 years

Other interleaved spectrum available on pool channel basis

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800 MHz Report and Order

Awards 10 MHz of spectrum in the 1.9 GHz band to Nextel Spectrum is compensation for Nextel paying

relocation costs and relinquishing a portion of its 800 MHz spectrum to benefit public safety.

Nextel must clear Broadcast Auxiliary Service (BAS) licensees from the 1.9 GHz band

Requires Nextel to make a “windfall” payment to the U.S. Treasury if value of the 1.9 GHz spectrum (calculated at $4.8 billion) is greater than: Relocation costs paid by Nextel, plus Value of Nextel’s relinquished 800 MHz

spectrum

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800 MHz Report and Order

Requires Nextel to pay all relocation costs incurred by public safety and other 800 MHz incumbents Costs must be reasonable, but no ceiling on

total amount Relocating licensees must receive

“comparable facilities” Provides for a 36-month transition to the

new band plan Provides for creation of the 800 MHz

Transition Administrator (TA) to administer the transition and audit expenditures

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Subsequent Orders

800 MHz Supplemental Order (adopted December 2004) Modified the 18-month benchmark requiring

Nextel to relocate Channel 1-120 licensees Increased the credit to Nextel for

relinquishing 800 MHz spectrum 800 MHz Reconsideration Order

(adopted October 2005) Modified eligibility rules for relocating to the

ESMR band Affirmed Commission’s authority to award

the 1.9 GHz spectrum to Nextel

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Preparation for Transition

Sept-Oct 2004 -- Transition Administrator selected

January 2005 -- TA develops region-by-region rebanding schedule

February 2005 -- Nextel accepts 800 MHz R&O conditions (Sprint affirms post-merger)

March 2005 – WTB approves schedule

June 2005 – Transition begins

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Outline

How Did We Get Here? The Interference Problem The Rulemaking The Transition What’s Next?

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Transition Process

The 800 MHz R&O established a 36-month transition process

The 36-month clock started on June 27, 2005, and ends on June 26, 2008

Transition is divided into two stages Stage 1 – Relocation of Channels 1-120 Stage 2 – Relocation of NPSPAC

Transition is divided into four geographic waves

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Rebanding – Stage 1

Channels 1-120 -- SMR/General

CategorySMR, B/ILT, Public Safety

Interleaved ESMR

NPSPAC(Public Safety)

Guard Band Expansion

Band

Channel 1-120 Non-ESMR systems move to the Interleaved Band (Nextel vacates interleaved channels)

Channel 1-120 ESMR Systems (non-Nextel) move to the ESMR Band

Expansion and Guard Bands cleared

Nextel can remain in the Non-ESMR spectrum until Phase II

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Rebanding – Stage 2

Channels 1-120SMR/General

CategorySMR, B/ILT, Public Safety

Interleaved ESMR

NPSPAC(Public Safety)

Guard Band Expansion

Band

Nextel vacates Channels 1-120

NPSPAC licensees move down 15 megahertz to new NPSPAC Band

Nextel moves into old NPSPAC Band

Nextel vacates remaining channels in Interleaved Band

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Transition Waves 1-4

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Negotiations and Mediation

Nextel and each licensee must negotiate a Frequency Relocation Agreement (FRA)

Time period for negotiations 3-month voluntary negotiation period 3-month mandatory negotiation period

Mediation If negotiations fail, Nextel and the licensee enter into

a 30 working-day mediation period with a TA-designated mediator

Mediation can be extended under some circumstances

Referral to PSHSB If the parties fail to reach a mediated agreement, the

TA refers the case to PSHSB, which has delegated authority under the 800 MHz R&O to rule on disputed issues de novo

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Negotiation Periods

Waves (in chronological order)

No. of Licensees

Negotiation Period Begins

Mediation Begins

Wave 1 (1-120) 383 6/27/05 12/27/05

Wave 2 (1-120) 234 10/3/05 4/3/06

Wave 3 (1-120) 301 1/3/06 7/3/06

Wave 1 (NPSPAC) 401 2/1/06 11/1/06

Wave 4 (1-120) 160 7/3/06 4/3/07 (Postponed)

Wave 2 (NPSPAC) 289 8/1/06 2/1/07

Wave 3 (NPSPAC) 237 11/1/06 5/1/07

Wave 4 (NPSPAC) 196 2/1/07 8/1/07

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Stage 1 (Channels 1-120) Relocation Progress

Substantial progress has been made in Waves 1-3 negotiations and mediations

Physical relocation of Channel 1-120 incumbents is now under way

Small number of cases remain open

Some licensees with both Channel 1-120 and NPSPAC systems want to relocate all in Stage 2

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Stage 2 (NPSPAC) Relocation Progress

More complex and time-consuming than Stage 1

NPSPAC has more large, complex public safety systems, more interoperability relationships among licensees

Significant time needed for relocation planning by NPSPAC licensees

Large number of cases in extended mediation

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Wave 4 Border Issues

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Wave 4 Border Issues

Rebanding in Wave 4 border regions must conform to cross-border spectrum agreements with Canada and Mexico Existing bilateral agreements limit U.S. access

to the 800 MHz band in border areas Modifications to agreements are needed for

Wave 4 band plan to be consistent with rest of U.S.

Commission staff is discussing possible changes to existing agreements with Canadian and Mexican regulators Working in coordination with State Department Bureau has extended Wave 4 timeline to allow

time for international issues to be resolved

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PSHSB Role in Rebanding

Rebanding implementation is a major priority for PSHSB

Bureau has delegated authority to rule on disputed issues de novo Has issued five orders in individual cases to

date Has issued orders and PNs on issues affecting

multiple cases (e.g., ability of public safety licensees to exchange information regarding negotiations with Nextel)

Bureau works closely with all major stakeholders to track progress and resolve issues informally

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Outline

How Did We Get Here? The Interference Problem The Rulemaking The Transition What’s Next?

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What’s Next

Pending Reconsideration Petitions Stage 2 Scheduling Issues Additional Mediation Cases Negotiations with Canada and

Mexico Nextel Network Cost Issues Post-Rebanding Licensing Issues