800 MHz Rebanding: An Overview

1
800 MHz RebandingAn Overview
David Furth Associate Bureau Chief Public Safety
and Homeland Security Bureau March 21, 2007
2
Outline

• How Did We Get Here?
• The Interference Problem
• The Rulemaking
• The Transition
• Whats Next?

3
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)

4
800 MHz -- Old Band Plan
806
824
762
764
849
851
746
747
B
A
D
C
B
A
B
A
700 MHz Public Safety (24 MHz)
Cellular (50 MHz)
800 MHz Band
Upper 700 MHz Commercial (30 MHz)
ATG
776
777
894
896
792
794
700 MHz Guard Band
806
809.75
821
816
824
Channels 1-120 SMR/General Category
NPSPAC (Public Safety)
SMR, B/ILT, Public Safety Interleaved
ESMR
854.75
866
861
869
851
Interleaved Spectrum -12.5 MHz 250 Channels 80
SMR Channels (Licensed by EA, Some Incumbent
Operators Remain) 70 Public Safety Channels 50
Business Channels 50 Industrial/Land
Transportation Channels
SMR/General Category -7.5 MHz 150
Channels Licensed by EA Blocks of 25 channels
(SMR) Some Incumbent Operators Remain (includes
Business, I/LT, and Public Safety)
NPSPAC - 6 MHz 225 Channels _at_ 12.5 kHz spacing 5
Channels _at_ 25 kHz spacing 5 Mutual Aid Channels
ESMR/Upper 200 10 MHz 200 Channels Licensed by
EA A few non-EA incumbents remain most were
relocated or acquired in late 1990s.
5
Outline

• How Did We Get Here?
• The Interference Problem
• The Rulemaking
• The Transition
• Whats Next?

6
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

8
Near/Far Problem
Near/far problem First responder is near the
CMRS cell site and far from its own base station
Public Safety BaseStation
CMRSCellSite
Strong signal from cell site
10 MILES
Weak signal from public safety base station
2500 FEET
Result Signal from cell site overloads public
safety handset
9
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
• Whats Next?

11
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.
• Commissions rebanding plan incorporates some
  elements of the Consensus Proposal but also has
  new and additional elements

13
800 MHz -- Old Band Plan
806
824
762
764
849
851
746
747
B
A
D
C
B
A
B
A
700 MHz Public Safety (24 MHz)
Cellular (50 MHz)
800 MHz Band
Upper 700 MHz Commercial (30 MHz)
ATG
776
777
894
896
792
794
700 MHz Guard Band
806
809.75
821
816
824
Channels 1-120 SMR/General Category
NPSPAC (Public Safety)
SMR, B/ILT, Public Safety Interleaved
ESMR
854.75
866
861
869
851
Interleaved Spectrum -12.5 MHz 250 Channels 80
SMR Channels (Licensed by EA, Some Incumbent
Operators Remain) 70 Public Safety Channels 50
Business Channels 50 Industrial/Land
Transportation Channels
SMR/General Category -7.5 MHz 150
Channels Licensed by EA Blocks of 25 channels
(SMR) Some Incumbent Operators Remain (includes
Business, I/LT, and Public Safety)
NPSPAC - 6 MHz 225 Channels _at_ 12.5 kHz spacing 5
Channels _at_ 25 kHz spacing 5 Mutual Aid Channels
ESMR/Upper 200 10 MHz 200 Channels Licensed by
EA A few non-EA incumbents remain most were
relocated or acquired in late 1990s.
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800 MHz New Band Plan
806
824
849
851
762
764
746
747
B
A
B
D
C
B
A
A

800 MHz Band
700 MHz Public Safety
Upper 700 MHz Commercial
ATG
Cellular
776
777
894
896
792
794
700 MHz Guard Band
824
806
809
817
815
816
866
NPSPAC (Public Safety)
866
869
Public Safety B/ILT Non-Cellular SMR
854
Expansion Band
ESMR
Guard Band
862
851
862
854
861
860
869

• 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
NPSPAC (Public Safety)
SMR, B/ILT, Public Safety Interleaved
ESMR
Expansion Band
Guard 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 Nextels 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 Commissions 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 RO
  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
• Whats Next?

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Transition Process

• The 800 MHz RO 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
NPSPAC (Public Safety)
Channels 1-120 -- SMR/General Category
SMR, B/ILT, Public Safety Interleaved
ESMR
Expansion Band
Guard 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 1-120 SMR/General Category
NPSPAC (Public Safety)
SMR, B/ILT, Public Safety Interleaved
ESMR
Expansion Band
Guard 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 RO 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
30
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
• Whats Next?

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Whats Next

• Pending Reconsideration Petitions
• Stage 2 Scheduling Issues
• Additional Mediation Cases
• Negotiations with Canada and Mexico
• Nextel Network Cost Issues
• Post-Rebanding Licensing Issues