Five-year spectrum outlook2014–18The ACMA’s spectrum demand analysis and strategic direction for the next five yearsSEPTEMBER 2014

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Chairman’s message

Welcome to the Five-year spectrum outlook 2014–18. This edition of the Outlook again reflects the ACMA’s dedication and commitment to ongoing consultation and partnership with industry, the Australian public, government and our international colleagues.

Over this past year, the ACMA delivered on a number of key spectrum initiatives including:> the continuation of digital TV restack following

digital switchover and reallocation of the digital dividend spectrum

> continuing to establish new arrangements for both the 2.5 GHz and 400 MHz bands

> continuing the extensive work program to manage the next tranche of expiring spectrum licences.

Over the past five years, the ACMA has listened to commentary from stakeholders and as a result the content of the Outlook has evolved over this time. This year’s Outlook is different from previous editions. In response to your feedback, we have streamlined the way that the Outlook is presented, to focus on the areas in which stakeholders have indicated particular interest. For example, we have removed the service-by-service analysis, which has previously documented incremental change and provided greater explanation on the ACMA’s environmental scanning processes and how this informs our prioritisation process for spectrum management activities and issues. As in previous years, this edition sets out the ACMA’s view of the future direction of Australia’s spectrum management strategy.

We have also separated the Outlook into three parts, with each part focusing on a different aspect of our approach to spectrum management. Our approach continues to be shaped by our ongoing experiences, observations and evaluation of the spectrum environment, both within Australia and across the global stage.

Part 1 of this year’s Outlook explains how the ACMA uses evidence from the spectrum environment to guide the direction of our spectrum management strategy. It provides information on the ACMA’s decision making process and particular focus is given to the regulatory forward agenda and those issues that will influence the shape of our spectrum management strategy:> the government’s deregulation agenda and goal to minimise costs to industry and

consumers by cutting red tape> the outcomes of the government’s Review of Spectrum Management.

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Part 2 leverages the outcomes of our environment scanning and analysis and provides information on the broad process we use to determine key priority areas of regulatory focus for the next 12 month period. Our prioritisation process identifies areas of focus across four broad themes:1. maximising the overall public benefit arising from use of spectrum 2. reducing the cost to business arising from regulation 3. implementing current reform priorities 4. ensuring the national interest.

Part 3 sets out the ACMA’s work plans for the next five years in greater detail than ever before. The work plan is set out on an annual basis and explains what the activity is, and when it is expected to be completed.

To manage any possibility of a future spectrum crunch, the ACMA will need to continue to take long-term planning horizons into account, given the long lead times associated with changing uses of spectrum. The ACMA continues to critically evaluate demand and the need for spectrum across all sectors to better understand the complex and dynamic interaction of social, economic and technical factors that drive spectrum requirements.

Your feedback will continue to assist us in delivering our strategic goal: ‘to make communications and media work in Australia’s public interest’. Feedback can be provided to the ACMA via spectrum.outlook@acma.gov.au

Thank you for your continuing interest in spectrum management.

Chris ChapmanChairman

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Contents

Part 1: Our evidence-informed spectrum management strategy1. Introduction 51.1. Purpose 51.2. An evidence-based approach 52. The ACMA’s analysis of the spectrum environment 83. Environmental scan 93.1. Layer 1—Environment 94 Layer 2—Consultation 125 Priorities 136 Summary 13

Part 2: Ensuring the national interest1. Introduction 152. Theme—Maximising the overall public benefit arising from

use of spectrum 172.1. The spectrum research program 172.2. Flexible arrangements for spectrum access 182.3. Mobile broadband strategy 192.4. Priority compliance areas 202.5. Broadcasting regulatory issues 212.6. Spectrum pricing initiatives 222.7. High Frequency Direction Finding (HFDF) Project 233. Theme—Reducing the cost to business arising from regulation 243.1. Customer service centre 243.2. Contemporary licensing and assignment tools 254. Theme—Current reform priorities 254.1. Review of Radiocommunications Act 1992 254.2. Wireless microphone transition 264.3. Implementing outcomes from the 400 MHz band review 275. Theme—Ensuring the national interest 285.1. Preparation for the next International Telecommunication Union

World Radiocommunication Conference 28

Part 3: Indicative work plans 2014–181. Purpose 311.1. Development of the indicative work programs 311.2. The indicative work programs 311.3. Consultation for spectrum management changes 33

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Contents (Continued)

Schedule 1: Band-by-band work program

2014–15

2015–16

Longer term

Schedule 2: Regulatory and service planning work programs

2014–15

2015–16

Longer term

Invitation to commentMaking a submission 48

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Executive summary

The external environment that the ACMA operates within is rapidly changing and evolving. New technologies and services are emerging and demand for access by new services to encumbered spectrum is increasing, along with the complexities associated with implementing appropriate and equitable access arrangements. The Five-year spectrum outlook is an annually updated integrated business and planning tool that assists the ACMA to improve its spectrum management functions by: > providing greater insight and transparency for spectrum users about the

environmental factors influencing spectrum demand> setting out the ACMA’s strategic direction and priorities for the short- to medium-

term in response to spectrum demand> explaining how the ACMA determines its priorities and decides which work

programs are to be delivered.

Stakeholders can use the Outlook to identify when the ACMA expects a particular work program to commence, and to understand the priority applied to particular activities by the ACMA. The Outlook is also intended to assist stakeholders in engaging with the ACMA by providing guidance on the kinds of matters the ACMA considers when deciding whether to undertake particular spectrum activities.

To provide this clarity to stakeholders, this year the ACMA has divided the Outlook into three parts. An additional key change is the removal of the service-by-service analysis provided in Chapter 5 of previous editions of the Outlook. The ACMA agreed with stakeholder feedback that changes to services were incremental and difficult to distinguish. As a result, the analysis has been removed with a view to providing the information in a more informative way, such as the release of industry or service analysis papers, or occasional papers.

Part 1 articulates, at a high level, how the ACMA approaches spectrum management in response to the external environment. Alongside the existing spectrum management functions involved in the planning, licensing and allocation of spectrum, regulating the supply of communications equipment, or undertaking its compliance and enforcement obligations, the ACMA is also involved in, and contributes to, the broader communications policy initiatives initiated by government. For example, the ACMA is working in conjunction with the Department of Communications in the Review of Spectrum Management and is actively contributing to the government’s deregulation agenda.

These broader government policy objectives will have ongoing effect in the ACMA’s spectrum management strategy and function into the future. The outcome of the Review of Spectrum Management, in particular, is likely to influence the principles and objectives underpinning the spectrum management function and the mechanisms within which the ACMA can continue to move spectrum to its highest value use.

Part 2 describes the overarching framework within which the ACMA determines its key priority areas and work program for the near term. This part is aimed at providing a level of transparency to stakeholders about the pressures on spectrum and the

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priorities assigned to particular spectrum management activities in response to those pressures.

Key priority areas arise through four broad themes which are informed by the ACMA’s research program and the ACMA’s work to further the government’s deregulatory agenda.

The first theme—maximising the overall public benefit arising from use of spectrum—reflects the ACMA’s Principles for spectrum management. This theme explains why, for example, the ACMA’s mobile broadband strategy and flexible arrangements for spectrum access are current priority areas.

The second theme—reducing the cost to business arising from regulation—reflects the government’s deregulatory agenda. This theme explains why, for example, the ACMA’s new system, the SPECTRA Enterprise Suite from LStelcom, is a current priority area. It will improve functionality associated with assigning frequencies and allocating licences. The introduction of the new suite of tools also provides the ACMA with the opportunity to improve its businesses processes.

The third theme - implementing current reform priorities - recognises that the ACMA is responsible for implementing major reform priorities, for example, the development of arrangements for the transition of wireless microphones and the 400 MHz project.

The final theme—ensuring the national interest—acknowledges that sometimes ongoing work programs become a key priority area because this work culminates in decisions which have far-reaching consequences for future spectrum management. This theme explains why, for example, preparations for the World Radiocommunications Conference (WRC) to be held by the International Telecommunications Union (ITU) in Geneva in 2015 are a key priority area for the ACMA.

Part 3 sets out the ACMA’s five year spectrum management work plan. This section includes details on proposed commencement or completion timeframes. The intention is to provide greater clarity on what action the ACMA is taking in response to identified pressures and the timing of those actions so that stakeholders have an early opportunity to provide feedback to the ACMA on that work plan.

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Acknowledgements

In developing the 2014–18 Outlook, the ACMA gratefully acknowledges the input provided, in response to the Five-year spectrum outlook 2013–2017, by the following individuals and organisations:> Australian Mobile Telecommunications Association> Australian Subscription Television Association> Free TV Australia> Global VSAT Forum> Motorola Solutions> O3b Limited> Stephen Ireland> Telstra.

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Part 1:Our evidence-informed spectrum management strategy

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1. Introduction The ACMA is an independent statutory authority within the Australian Government’s communications portfolio. The ACMA manages the radiofrequency spectrum in accordance with its obligations under the Australian Communications and Media Authority Act 2005 (the ACMA Act) and the Radiocommunications Act 1992 (the Act).

The ACMA supports the efficient, effective and appropriate operation of the Australian spectrum management regulatory regime. The annual Five-year spectrum outlook is an important tool that assists in realising this goal. Initially launched in 2009, the Outlook continues to provide insight and transparency for industry and government spectrum users about pressures on spectrum; and the direction of the ACMA’s spectrum management work in the short, medium and longer term to respond to those pressures.

The Outlook is part of an overall targeted consultation strategy on spectrum issues, alongside the RadComms conference, Spectrum Tune-ups and release of discussion papers. Through these and other consultation mechanisms, the ACMA works actively with stakeholders to discuss and identify emerging pressures for change to spectrum access arrangements. This partnership approach is critical in managing the scarce radiofrequency resource.

The ACMA continually seeks to improve its regulatory toolkit and frameworks and is responsive to innovation and the converging nature of the external environment. The Outlook demonstrates that the ACMA’s spectrum management work is informed by a wide range of evidence, which is continually refreshed. The ACMA is open to ongoing feedback and this edition of the Outlook incorporates views provided by spectrum users in response to the previous edition.

1.1. PurposeThe Outlook outlines the direction of the ACMA’s spectrum management work across a five-year period, 2014–18. We consider that some level of certainty about our activities can be provided within this timeframe, such as the work plans for the 2014, 2015 and 2016 periods outlined in Part 3. However, the level of certainty decreases from the fourth year, 2017, in the analysis due to the speed within which technology evolves and impacts on the associated capability and efficiencies derived from use of the spectrum.

The Outlook is intended to provide an avenue for meaningful engagement with stakeholders about emerging pressures on spectrum. It is not intended to be a substitute for separate and targeted industry consultation on specific spectrum management issues. For this reason, any observations on proposed approaches outlined in parts 2 and 3 of this Outlook may only represent the ACMA’s preliminary thinking.

1.2. An evidence-based approachThe ACMA undertakes its own scan of the domestic and international spectrum environment to identify trends in spectrum use and likely future pressure points on spectrum. While there is an inherent degree of uncertainty in predicting spectrum requirements over the next five years, consideration in advance of the likely pressure points on spectrum is valuable for two reasons. Firstly, it should ensure that the ACMA’s work priorities are closely linked to actual emerging demand pressures. Secondly, it should provide a greater degree of industry certainty about the ACMA’s priorities and promote dialogue with spectrum users about these priorities.

The ACMA is investing in its research capability and has a broad research program, of which spectrum research is an important part. The spectrum research program is

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concerned with regulatory best practice and fulfilling the ACMA’s function as an effective and efficient regulator.

While this capability is in development, the ACMA relies on the evidence obtained from its scanning of the spectrum environment, including outcomes of consultation with industry and stakeholders, as a key means of informing the ACMA’s view on spectrum demand, spectrum availability and, ultimately, its work plan.

When considering issues for inclusion in the Outlook, a comprehensive approach is undertaken, based on the best available evidence. Figure 1 illustrates how the ACMA uses this evidence to inform its work plans for spectrum management.

Figure 1 How evidence informs the development of the Five-year spectrum outlook

In this ongoing scanning of the spectrum environment, the ACMA takes into account international developments, industry and government perspectives on spectrum requirements and broader policy objectives, identification of spectrum demand and available spectrum (Layer 1). The advice from government, industry and consumers is obtained through extensive consultation processes (Layer 2). There are interdependencies between layers 1 and 2, as the environmental scan involved information obtaining from stakeholder engagement. The ACMA is keen to manage any unnecessary burden on stakeholders that consultation processes can impose. We therefore rely on a mix of both informal and formal processes, such as Spectrum Tune-ups, the RadComms conference, discussion papers, industry representations and submissions to relevant spectrum research projects.

The information obtained through Layers 1 and 2 is then considered in the ACMA’s work planning and prioritisation processes (Layer 3) in the context of the existing legislative and regulatory framework available under the Act and applied filters, such

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as the Principles for spectrum management and a cost/benefit analysis of regulatory proposals, to our decision-making process. This results in the ACMA making a range of spectrum management decisions with outcomes ultimately affecting the environment and the demand for and supply of spectrum.

Principles for spectrum managementThe principles are intended to guide the ACMA’s management of the radiofrequency spectrum within its existing legislative responsibilities and government policy settings. The key theme of the principles is that maximising the overall public benefit from use of the radiofrequency spectrum requires balanced application of both regulatory and market mechanisms. The principles have been adopted by the ACMA but will not (and cannot) override the law, such as the Act and other relevant legislation. The principles therefore provide additional guidance to stakeholders about the approach that the ACMA will take to decision-making.

In summary, the principles are as follows:1. Allocate spectrum to the highest value use or uses.2. Enable and encourage spectrum to move to its highest value use or uses.3. Use the least cost and least restrictive approach to achieving policy objectives.4. To the extent possible, promote both certainty and flexibility.5. Balance the cost of interference and the benefits of greater spectrum utilisation.

Application of cost-benefit analysisThe challenge in managing the radiofrequency spectrum stems from the fact that it is a finite resource subject to increasing demand for access from a variety of users and uses and the continual evolution of wireless technologies. Part of the ACMA’s task is to balance the understandable needs of existing spectrum uses and users with facilitating access for new uses or technologies. The ACMA’s spectrum management decisions are informed by a wide range of evidence, which includes analysis of the costs and benefits of a particular strategy or outcome.

While the ACMA continues to develop its capability in this area, the contributions of stakeholders regarding their expected incremental costs and benefits (in terms of dollar values associated with proposed regulatory options) will continue to be a vitally important factor in the ACMA’s decision-making process. This is because in order for decisions to be made effectively, tradeoffs need to be considered using a common unit of comparison. The information provided to the ACMA to make these decisions is, by nature, sensitive in both commercial and government settings and would be considered in confidence. Where it is not possible to provide quantitative analysis, the ACMA also seeks qualitative evidence or input on the incremental costs and benefits of a proposed regulatory proposal.

Regulatory decisions regarding the planning, licensing and allocation of spectrum take into account the relative net benefit of proposals, with a view to ensuring that the spectrum outcome maximises the public benefit. Decisions consider technical and engineering factors alongside national interest objectives, such as the economic and social benefits that access to spectrum provides. This approach is integrated throughout the ACMA’s spectrum management decision-making framework, including its Principles for spectrum management.

Our research acma program aims to better deliver tools to assist in the quantitative analysis of regulatory options. Earlier this year, the ACMA released its initial research on the spectrum requirements of the mobile telecommunications sector, which included the creation of a mobile telecommunications network model. The outcomes of such research could assist in providing weightings for assessing the impact on

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relocating incumbent services in some circumstances. However, this type of analysis requires time and is resource intensive.

Figure 2 illustrates ACMA’s spectrum management decision-making framework. It shows the use of the principles and the place of this document in the overall process for making decisions about spectrum management.

Figure 2 The ACMA’s spectrum management decision-making framework

2. The ACMA’s analysis of the spectrum environmentThe ACMA uses the information acquired through its environmental scan outlined in the diagram at Figure 1 to inform its analysis of the spectrum environment and prioritise the spectrum management activities that, if undertaken, will strategically position the ACMA to leverage the opportunities created by technology evolution.

The outcome of our environmental scan is informed by the increasing importance placed on spectrum as an economic enabler for the Australian economy. The quick adoption of new technologies and services ensure economic benefits accrue to both industry and consumers. Therefore, it is important that the radiocommunications regulatory framework is able to quickly respond to the changing spectrum environment and continue to meet stakeholder needs.

One of the ways that the ACMA is responding to the changing spectrum environment is considering the implementation of interim regulatory arrangements to facilitate early access to spectrum for stakeholders while longer term regulatory frameworks are developed. Key examples of this include the ACMA’s work in developing

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arrangements to provide early access to spectrum in the 700 MHz and 1800 MHz bands.

Stakeholders have an expectation of immediate and exclusive access to spectrum to support their intended use. However, arrangements can only be implemented effectively where stakeholders recognise the necessary balance required between managing the rights and expectations of incumbent spectrum users with the access demanded by prospective new uses of spectrum. With most spectrum identified for prospective new uses already in use or allocated for use by particular services, changing the use of bands from one service to another (such as fixed to mobile services) and the flow on effects that these planning and regulatory decisions have on existing services take time to be implemented. As a result, an increasing number of access arrangements may be provided for prospective users of spectrum either on a co-existence basis or as the spectrum is vacated by incumbent users.

The core interest that will continue to be advanced across the five-year period set out in this Outlook is the public interest. We consider this is best achieved by applying effective regulation to optimise the productive, allocative and dynamic efficiency of the spectrum. Therefore, the ACMA’s blended regulatory strategy of both market mechanisms and centrally planned decisions will continue to be used. The tension between public and commercial use of the spectrum will continue to be an inevitable part of the ACMA’s regulatory environment.

3. Environmental scanThe information in this section is intended to provide stakeholders with an understanding of how the ACMA undertakes its environmental scanning process outlined in Figure 1 and uses the outcomes of this to inform its work planning and decision-making process.

3.1. Layer 1—Environment3.1.1 IndustryCollaboration with various industry sectors and representative bodies, via both formal and informal consultation mechanisms, combined with the outcome of spectrum research and monitoring of international spectrum developments informs the ACMA’s view regarding conditions in the contemporary communications and media environments.

The outcome of this interaction between the ACMA and stakeholders is the development of spectrum management strategies with an emphasis on market developments, and the refinement of regulatory policy settings and interventions needed to support efficient use of the spectrum resource.

3.1.2 GovernmentThe ACMA works closely with the Department of Communications and other central government agencies to ensure that its spectrum management strategies promote best practice regulation, reflect the government policy agenda and further the national interest.

Best practice regulationDevelopments in the spectrum environment provide an opportunity for streamlining the regulatory environment applying to radiocommunications, allowing productivity gains in the broader economy. The ACMA balances the drive for deregulation with an awareness that some level of regulation in the spectrum environment is necessary, and indeed desirable, to both industry and consumers.

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At its most basic level, regulation aimed at interference management maintains the utility of the spectrum, thereby maximising the overall benefits that can be derived from a finite resource. By imposing rules that manage the risks of unacceptable levels of interference, regulation contributes to the efficient use of the spectrum. By aligning with internationally-harmonised standards, regulation allows Australia to reap the benefits of economies of scale in the manufacture of equipment. International harmonisation also allows the introduction of innovative value-added services into the Australian economy.

Devices that rely on radiocommunications are integral to daily life and regulation assists individuals have confidence that these devices will work, and work safely. Regulation also ensures the allocation and use of spectrum can accommodate the needs of community and other not-for-profit organisations, ranging from the Royal Flying Doctor Service to the Bureau of Meteorology.

The ACMA therefore considers that an appropriate level of regulation is necessary and provides an essential framework for a dynamic radiocommunications industry in Australia. This essential framework must be capable of responding to the rapidly changing spectrum environment.

The ACMA considers that it if regulation is to achieve its purpose, it is vital to actively engage with potentially affected individuals, businesses and community organisations in the development of that regulation. The ACMA is committed to the provision of transparent, collaborative and responsive regulatory regimes.

Broader government policy agendaThe current framework for managing Australia’s valuable spectrum resource has been in place for almost twenty years. The framework has served the nation well, and has been a source of international competitiveness. However, for some time there has been a significant increase and acceleration in the pressures placed on the spectrum resource.

In the Australian context, the relative success experienced over much of the last twenty years can be attributed to having a framework that has been adaptive and market-oriented. However, to a large extent the framework’s once significant flexibility has been overtaken by technological change and is no longer able to cope well with demands and the pace of change in radiocommunications technologies and markets.

A major pressure is the increased in demand for spectrum from a range of uses and users of spectrum. A second pressure is technological change. This may be less immediately obvious, but it is no less real. There are several technologies that are opening up both new possibilities and challenges for spectrum regulators that may hold part of the solution to meeting this increasing demand.

The ACMA is an active participant working alongside the Department of Communications in the Spectrum Management Review announced by the Minister for Communications on 23 May 2014. This review provides an opportunity to update the spectrum management regulatory framework by systematically assessing the fit of current and proposed regulatory tools to the contemporary and emerging communications environment. The ACMA has consistently documented the need for regulatory reform arising from convergence pressures on the regulatory framework.

A significant drawback with the current regulatory framework is the considerable and unnecessary inflexibility to respond to the emerging pressures. The review of the Act provides a long-awaited opportunity to reform regulation and processes that are limiting Australia’s capacity to embrace the future of radio technologies and hence increase Australia’s social and economic welfare.

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Key drivers for the review are identifying arrangements best able to:> maximise the overall public benefit from the use of the radiofrequency spectrum > ensure the safe use of radiocommunications> further Australia’s national interests.

A critical outcome of the review will be to establish a framework that best positions Australia to manage the spectrum in an increasingly complex, converging and changing communications landscape.

3.1.3 InternationalThe ACMA and industry participate in international radiocommunications forums to promote Australia’s views and expertise—and to protect and further Australian interests—in spectrum management. Australian participation in these forums also facilitates the competitive provision of services and the efficient use of the radiofrequency spectrum.

The ACMA oversees extensive industry and stakeholder consultation in preparation for the International Telecommunication Union (ITU) World Radiocommunication Conference (WRC). The outcome of the 2015 WRC (WRC-15) will affect the ACMA’s work plan from 2016 onwards, as Australia’s allocations are updated to align with the ITU’s requirements for the Asia–Pacific region.  

Australia’s consultation for the WRC-15 is conducted through the ACMA’s Preparatory Group for WRC-15 (PG WRC-15) and the Australian Radiocommunications Study Groups (ARSGs). The participation of Australian industry and stakeholders is essential in ensuring that the decisions and future development of international radiocommunications regulations serve Australia’s interest. ARSGs are chaired by a mix of government and industry representatives and coordinated by the ACMA. Six ARSGs and one Preparatory Group for the Joint Task Group 4-5-6-7 (PG JTG 4-5-6-7), which mirror the work of the ITU-R Study/Task Groups, have been established for WRC-15.

An important part in the WRC preparatory process involves the ACMA working closely with the Asia–Pacific Telecommunity (APT) to achieve a coordinated approach to radiocommunications issues in the Asia–Pacific region. Cooperation within the APT results in Australia’s positions and proposals to a WRC being harmonised, as much as possible, with those of other countries in the region.

A number of WRC-15 agenda items are likely to result in significant changes—including potential new service allocations—that will shape the ACMA’s work plan in years to come. Of particular interest are agenda items targeting:> possible new spectrum for use by mobile broadband services, fixed-satellite

services and Earth exploration-satellite services > possible new or revised regulatory provisions for wireless avionics intra-connection

systems, satellite earth stations located on board vessels and control and non-payload communications of unmanned aircraft systems.

A complete list of the WRC-15 agenda items and further information on the Australia’s preparation for this conference can be found on the ACMA website.

3.1.4 Spectrum demand and availabilityTo meet stakeholder expectations and fulfil its spectrum management obligations in accordance with the objects of the Act and the Principles for spectrum management, the ACMA needs to understand the critical drivers of future spectrum demand and the likely impact of these drivers on the economy. These drivers occur in both the

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domestic and international context and include changing consumer demand and technology take up, the outcome of international planning decisions, and government regulatory objectives, such as the broader deregulation and regulatory reform agenda.

As the international trend to identify more spectrum for mobile services continues and economies of scale in equipment availability develops, demand for access to this spectrum almost immediate follows. Ultimately, the pace at which demand emerges places increased pressure on existing spectrum management arrangements and incumbent services. The tension involved in balancing the needs of incumbent users and uses of spectrum with facilitating access by prospective or new uses and users requires the ACMA to make decisions that will affect the availability of spectrum.

The recent introduction of government regulatory oversight processes managed by the Office of Best Practice Regulation (OBPR) means that we will need to find ways to speed up what is currently a complex and protracted process in order to meet stakeholder expectations regarding access to available spectrum. The ACMA is always looking for opportunities to increase the utility of spectrum including the potential to re-farm or re-allocate spectrum to assist it in moving to its highest value use. The spectrum review provides an opportunity to investigate and explore options to reform our regulatory toolkit to meet challenges in these areas.

To make informed policy choices, the ACMA needs research and analysis that pulls these many inputs together. During 2014, the ACMA has recently completed two key research projects which will impact on the ACMA’s future decisions on meeting increasing spectrum demand:> The economic impacts of mobile broadband on the Australian economy, from 2006

to 2013 > The ACMA mobile network capacity forecasting model .

The work in these two research reports also represents the ACMA’s commitment to developing flexible policy responses in an evidence-informed way. We recognise that future mobile broadband services are not the only current or future spectrum uses. In seeking to respond to the demand for mobile broadband spectrum, it is important to take into account the needs of incumbent services, together with national safety and security obligations and passive and sensing uses of spectrum.

4 Layer 2—Consultation The ACMA actively encourages stakeholder engagement by identifying and sharing information about emerging technologies and regulatory thinking with its stakeholders. As outlined in the sub-categories in Layer 2 of Figure 1, we use formal and informal stakeholder engagement strategies, and techniques that range from regular direct discussions with interested organisations and individuals, to formally constituted advisory committees. As well as the Outlook, some of the direct strategies include:> RadComms conferences> Spectrum Tune-ups> the release of formal and occasional papers> ongoing collaboration with industry and other stakeholders via meetings, e-

newsletters and portal approaches (for example, e-newsletters and portals available to accredited persons, and the implementation process for the outcomes of the 400 MHz review).

The ACMA also has mature processes for obtaining stakeholder input into its involvement in the ITU processes, most notably in preparation for World Radiocommunication Conferences.

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These initiatives are in addition to our well established discussion paper process and the development of key one-off initiatives.

The ACMA’s multi-faceted approach to consultation recognises that spectrum management is a topic that has significant strategic and operational aspects, and a particularly diverse range of stakeholders. When undertaking consultation processes, some overarching issues we consider include:> providing clarity in the key messages we present> meeting the obligatory consultation requirements> providing appropriate timing for consideration and response to issues> taking opportunities to work in partnership with industry, government and the

community to further common regulatory objectives> understanding the capacity and resources of the ACMA and stakeholders in

engaging on various issues> using the best methods of communicating with affected stakeholders> committing to accountability and transparency in all matters.

The ACMA generally uses the information provided by stakeholders to ensure that significant planning, licensing and pricing decisions are well-informed, robust and meaningful. This process ensures that the ACMA has a clear understanding of the technical, economic and social environments governing users and services, which enables the ACMA to implement spectrum management decisions that address these needs.

5 PrioritiesThe outcomes of the environmental scanning and consultation processes outlined in this part of the Outlook provide the ACMA with the necessary information to generate the detailed spectrum management work plans that are contained in parts 2 and 3.

This approach also informs a prioritisation process, which allows the identification of key areas of ACMA focus in the following year. This year, for the first time, the ACMA is including detail on how we determine those priority areas to provide visibility and transparency to stakeholders. This is discussed in Part 2.

6 SummaryGiven this broad analysis and decision-making framework, the ACMA welcomes stakeholder commentary on whether there are other factors that we should be aware of in developing future spectrum management priorities and work programs.

In particular, the ACMA welcomes stakeholder views on:> the potential areas of regulatory reform in the spectrum environment> what information stakeholders can provide to the ACMA to assist in its

consideration of public interest and valuation issues.

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Part 2:Ensuring the national interest

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1. IntroductionIn previous editions of the Outlook, the ACMA has included discussion on how we use evidence from the spectrum management decision-making framework and analysis against the principles to guide the content of our long-term work program. This year we are also attempting to provide information on the broad framework that we use to determine key priority areas for ACMA work in spectrum management.

Spectrum management involves working in a rapidly changing, converged communications environment. In such an environment, the ACMA's key priority areas can only ever be a snapshot in time. The ACMA emphasises that priorities will change as we respond to shifts in the external environment. Our ongoing research program is an important element in ensuring our understanding of the external environment remains current and allows our priorities to change as we respond dynamically to changing pressures.

Our priority areas arise from four broad themes:1. Maximising the overall public benefit arising from use of spectrum. 2. Reducing the cost to business arising from regulation. 3. Implementing current reform priorities.4. Ensuring the national interest.

These themes attempt to summarise the broad range of matters that the ACMA may be considering at any one time. They reinforce the importance of the guidance provided by the principles—as discussed in Part 1—and reaffirm our commitment to furthering the government’s intention to reduce, wherever possible, the regulatory burden placed on business. Finally, we consider that ensuring the national interest, for example through the prosecution of Australia’s agenda at international fora, is a very important part of the ACMA’s role. This is reflected in the objectives of the Act and is included in the broad themes.

This year, we have identified 13 key priority areas, as shown in Table 1 below. These are the areas where we expect peaks in both workload and focus may occur. This table also maps each area to the broad themes, to show why the ACMA considers that work to be a priority this year. Importantly, we hope these areas demonstrate that the ACMA’s priorities extend well beyond ‘high profile’ projects.

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Table 1 The ACMA’s key priority areas

Theme Key priority area

Maximising the overall public benefit arising from use of spectrum

Spectrum research program

Flexible arrangements for spectrum access

Mobile broadband strategy

Priority compliance areas

Broadcasting regulatory issues

Pricing issues

HFDF Project

Reducing the cost to business arising from regulation

Customer Service Centre

Contemporary licensing and assignment tools

Implementing current reform priorities

Review of Radiocommunications Act 1992

Wireless microphone transition

Implementing outcomes from the 400 MHz band review

Ensuring the national interest WRC-15 preparation/Agenda items

Some projects might arguably sit across more than one thematic area. For reasons of simplicity and clarity, however, we have tried to attribute each key priority area to the principle theme from which it derives.

For example, all our work is informed by the government's deregulatory agenda and we are committed to assisting the government to further reduce the burden that regulation and red tape places on individuals, businesses and community organisations. The way that this frames the ACMA’s priorities—and indeed all our work—is discussed below.

In addition, the ACMA is subject to the government's requirements to cost all policy options, as administered by the Office of Best Practice Regulation (OBPR). This means that all our key priority areas are informed by the importance of maximising the overall public benefit arising from use of the spectrum. As the ACMA has consistently said, this does not mean that spectrum should always be allocated to the commercial user who is prepared to pay the most for it. Spectrum use is a key enabler of broad social objectives as well as commercial ones and the ACMA has always intended ‘overall public benefit’ to capture both.

However the regulatory best practice objectives of the government mean that the ACMA must attempt to cost the benefits and burdens of possible regulatory decisions. That is, to the greatest extent possible, we need to be able to quantify the overall public benefit accruing from options to allow an assessment of the preferred way forward. For some time, we have been urging our stakeholders to work with us in trying to cost social or non-commercial uses of spectrum—particularly the benefits and burdens of possible changes to existing arrangements for those uses—and we

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continue to do so. As discussed in Part 1, we need a single unit of comparison when considering options for future spectrum uses, and cost information is a key element of that comparison, though we emphasise that it is not the only one.

We hope that clear identification of the broad themes that assist us in setting the key priority areas for our work each year may provide greater visibility and understanding for stakeholders of our internal working processes.

Much of the ongoing work of the ACMA falls outside these areas, but it remains very important. In some cases it is ongoing work, for example our planning and licensing functions. In other cases it is work that has been on the ACMA’s forward work program for some time but has not yet matured to the point where it becomes a key priority. An example of this is the work on the 900 MHz band. Alternatively, it is work that was a key priority at one point, but has now become a routine part of the ACMA’s functions. Examples of this category include ongoing work on the expiring spectrum licence bands and unsold lots from the 700 MHz digital dividend auction. Similarly, the ACMA is always involved in a degree of international work, but only in the lead-up to major events like the WRC does it become a key priority.

2. Theme—Maximising the overall public benefit arising from use of spectrum

2.1. The spectrum research programAs discussed in Part 1, the ACMA’s research program is a vital element of our analysis of the broader spectrum management environment. It is therefore a key area of focus for us.

The ACMA has developed a draft three-year program which is informed by analysis against the external environment, the policy environment in which the ACMA operates and internal business needs. The research program remains in development and research projects are in varying stages of preparedness, particularly for those issues identified beyond 2015. The outcome of consultation will further inform the forward program of work, which is currently divided into five broad research areas:> Market and technology developments—identifying and understanding the key

developments that could lead to likely pressure on licensing and allocation processes, for example.

> Consumer demand and input—consideration of the many and varied ways that consumers utilise communication technologies, how the public respond to market and technology trends, and how public interest needs can (or should) influence spectrum management policy.

> Digital society—relating to the ongoing transition to a connected society, where an increasing number of services and interactions are performed online, and convergence blurs the lines between online and offline.

> Regulatory best practice—considering the effectiveness of current regulatory settings, their impact on overall spectrum management efficiency and how such settings will respond to emerging challenges.

> Safeguards—contributing to the ACMA’s evidence-based approach to consumer, industry and government safeguards to strike a balance between factors such as competition, industry innovation, and government risk and consumer protection.

Following consultation with both internal and external stakeholders, the draft three-year program outlined in Table 2 focuses on three of these areas.

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Table 1 Topics identified in the ACMA’s spectrum research program

Proposed project streams for spectrum research

Project stream 2014–15 2015–16 2016–17

Market and technology developments

Assessment—spectrum v infrastructure costs

Snapshot—Wi-Fi technology and market development

Report—Online streaming of broadcast content

Spectrum sharing trial

Spectrum whitespaces

Assessment—Value of satellite services

Assessment—Value of fixed services

Consumer demand and input

Assessment—Value of broadcasting services (relevant to spectrum)

Report—Mobile network capacity forecast (Analysys Mason)

Update—Mobile network capacity forecast report (Analysys Mason)

Regulatory best practice

Review—Radiocommunications Act 1992

Report—Mobile broadband strategy

Report—Digital dividend and unsold lots

Review—Low Power Open Narrowcasting (LPON) Service

Review—Principles for spectrum management, Total welfare standard

Review—Radiocommunications Act 1992

WRC-15

Update—Broken concepts paper

Spectrum benchmarking

Desktop research—incentive-based auctions

2.2. Flexible arrangements for spectrum accessThe ACMA is mindful of the ever-increasing demand for spectrum access. Advances in technology have seen many enterprises considering their current and likely future spectrum needs, even where the use of spectrum is not core business. Potential users, in part, base their decisions to deploy networks and services on the entry costs and certainty of access to spectrum. With this in mind, there is increased pressure to support new users, while also maintaining the regulatory and technical arrangements that provide access for incumbent services. To attempt to respond to this increasing pressure, the ACMA has identified the development of flexible arrangements for spectrum access as an important issue for policy attention.

The review of spectrum management arrangements and the government’s deregulation agenda provide an opportunity to further develop flexible and agile regulatory settings to enable and encourage increased spectrum utility and efficiency.

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BackgroundThe ACMA’s spectrum management toolkit allows us to apply a range of methods to produce fit-for-purpose regulation of spectrum use. However, the present licensing regime focuses primarily on granting licensees exclusive access to spectrum. In addition, the current framework has relatively ‘hard’ boundaries between the existing licence types (class, apparatus and spectrum). This can be an unnecessary barrier to increased flexible spectrum access arrangements such as spectrum sharing.

To provide a more flexible framework for spectrum access, the ACMA is considering factors such as the service offered, number of participants, market competition, interest in and demand for spectrum, and the need for closer coordination. The ACMA is aware of the increasing need for flexible spectrum access arrangements to be developed to assist in balancing tensions for access to spectrum between incumbent and prospective uses and users. For example, the ACMA created a class licence which provides 50 MHz of spectrum in the 4.9 GHz band for public safety agencies (PSAs) to share Australia-wide. This will provide very high speed, short range on-demand capacity to areas of high activity to support a wide range of uses. The band is internationally harmonised for public protection and disaster relief communications by the ITU and will therefore provide for international interoperability (when needed) and equipment economies of scale.

In particular, the ACMA is interested in how we could better employ the current regulatory framework; and in identifying legislative reform that might assist in a greater facilitation of spectrum-sharing arrangements. This has the potential to assist spectrum users to more efficiently and effectively utilise the spectrum. The concept of spectrum sharing is also being examined internationally with developments in most jurisdictions. For example:> The European Commission is developing a coordinated approach to promote

spectrum sharing and capitalise on new technologies that facilitate sharing. > In the United States, the FCC is investigating sharing spectrum between

government agencies and Wi-Fi services. > In the United Kingdom, Ofcom has foreshadowed supporting the use of spectrum

shared on a geographic basis for machine-to-machine technology.

The ACMA also continues to monitor developments in overseas arrangements such as those that facilitate flexible spectrum arrangements for program making and special events (PMSE) users who were previously using TV ‘white space’ in the 700 MHz band.

TimingThe ACMA expects to implement trial ‘private park’ arrangements for shared access to the 1800 MHz band in the Pilbara. Participants within the private park are required to plan and manage the use of spectrum within the private park.

Consultation and engagement with stakeholders helps drive the ACMA’s development of flexible, agile and resilient spectrum access arrangements. The ACMA has been pursuing these avenues in its trial of shared spectrum access in the Pilbara and in responding to PMSE sector concerns on wireless microphone use. We consider that stakeholder engagement is an essential part of our strategy to ensure we can respond to the evolving (and at times conflicting) needs of industry, government and consumers. This will help provide practical solutions and, importantly, evaluate their ongoing effectiveness.

2.3. Mobile broadband strategyMaintaining appropriate spectrum arrangements for mobile broadband services remains a major element of the ACMA’s spectrum management work program. While

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it is acknowledged that mobile broadband services are a key economic enabler and that demand for these services is increasing, the associated spectrum implications need to be considered in the context of the broader communications environment and the requirements of other users of the spectrum.

The ACMA has started an update of our public strategy on mobile broadband spectrum matters that is currently outlined in Towards 2020—Future spectrum requirements for mobile broadband (Towards 2020). This update identifies and prioritises spectrum planning and allocation activities to balance spectrum requirements of all spectrum users while facilitating growth in mobile broadband capacity requirements.

BackgroundSpectrum management settings established by the ACMA are a major (though not the only) contributor to the delivery of capacity for mobile broadband services. As already outlined in Towards 2020, other factors contributing to the delivery of capacity include advances in mobile broadband technology and network densification, which will remain important considerations in future strategy developments.

Given the importance and sensitive nature of mobile broadband spectrum matters, the ACMA has for a number of years provided detailed guidance on its associated strategy and work plan.

The ACMA’s existing public strategy on mobile broadband spectrum is Towards 2020, released in 2011. Towards 2020 has remained the ACMA’s established public stance on mobile broadband spectrum matters. While this work has served that role well, there have been a number of substantial developments since its development that means it is timely for a review and update of the ACMA’s overall strategy. Some of these developments include:> completion of the digital dividend auction> commissioned research undertaken by the ACMA for wireless access services and

the economic benefits of mobile broadband> developments internationally and domestically on bands identified in previous

ACMA papers such as the 800/900MHz band, the 1.5 GHz band and the 3.5 GHz band

> preparations for WRC-15 on agenda item 1.1 considering IMT and mobile broadband matters.

TimingWork on the draft update to the ACMA’s mobile broadband strategy is underway. It is expected that there will be interest across the radiocommunications industry in the updated strategy. As such, the ACMA is planning to consult publicly on the draft update in Q3 2014. Following industry feedback, the updated mobile broadband strategy is expected to be released in early 2015. This matter may also be discussed at the ACMA’s RadComms conference in September 2014.

2.4. Priority compliance areasThe purpose of the annual priority compliance area (PCA) program is to direct the ACMA’s compliance resources towards identified compliance problems and areas of highest risk. PCAs address cases of harmful interference that are of high risk to spectrum utility, or of high risk to public safety or public interest.

Establishing PCAs means that the ACMA has forward-looking and fit-for-purpose compliance strategies that address the highest priority issues.

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BackgroundThe ACMA will continue its priority compliance area program in 2014–15, with a focus on: > LED lighting product compliance with mandated EMC standards > compliance of mobile devices including mobile handsets > transmitter licensing compliance for services operating in the 400MHz bands to

facilitate the ongoing transition to the new 400MHz band plan.

PCAs are set based on evidence from intelligence-gathering mechanisms, analysis and risk assessment.

Within the constraints of the existing legislative framework, we adopt a holistic approach to our PCA program. We seek to educate individuals about the law before non-compliance has occurred and use traditional enforcement methods when necessary, if the law has been broken. This end-to-end view enables us to extend our regulatory reach in an effective and targeted way.

TimingPCAs for 2014–15 were published on the ACMA website in August 2014.

2.5. Broadcasting regulatory issuesThe object of this key priority area is to reduce the cost and time taken for industry to comply with the ACMA’s broadcast planning process. The ACMA prepares legislative instruments called licence area plans (LAPs) for analog radio under section 26 of the Broadcasting Services Act 1992. LAPs determine the number, category and characteristics of broadcasting services to be available in particular areas of Australia that use the broadcasting services bands. Once a broadcasting service for a particular area is planned in a LAP, an apparatus licence may be issued under the Act to authorise the operation of the transmitter. This licence may be subject to further operating conditions prescribed in technical planning guidelines (TPGs) made pursuant to section 33 of the Broadcasting Services Act 1992. Licensees are able to request variations to LAPs to improve services in their licence areas, for example to add a transmitter for in-fill coverage, or request a power increase.

Consistent with the government’s deregulation agenda, the ACMA plans to consider ways in which to reduce the complexity of LAPs, such as ensuring that LAPs contain only the minimum necessary technical characteristics to ensure the integrity of the planning process, for example. Additionally, the ACMA intends to examine the requirements of the TPGs to ensure that they are necessary and relevant, and to simplify them by removing provisions that have become redundant following the end of analog television broadcasting.

It is anticipated that by simplifying the broadcast planning process, the ACMA could reduce the administration and delay costs incurred by licensees who seek approval to make changes to their services, and could reduce the ongoing cost from compliance with provisions of the TPGs that may no longer be necessary.

BackgroundMost requests for LAP variations are of minor impact. Yet the existing framework requires the ACMA to undertake a process of varying a legislative instrument, resulting in requests for such changes to technical transmission parameters taking lengthy periods to finalise.

TimingThe ACMA is planning to consult with the industry in the second half of 2014 with a view to finalising its approach in the first quarter of the 2015 calendar year.

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Stakeholder interestThe ACMA will work closely with and seek the views of commercial, national and community broadcasting industry and stakeholders.

2.6. Spectrum pricing initiativesAll apparatus and spectrum licensees are affected by the pricing of spectrum. It directly relates to how much each licensee has to pay for the spectrum that they use. It also indirectly affects prospective users of spectrum because it influences the amount of spectrum that is available to all users.

BackgroundThe ACMA will derive market-based prices for licences, which provide a return to the Commonwealth for use of a public resource.

The ACMA has identified a number of areas for priority spectrum pricing work over the next few years. In general, reviews of taxation arrangements will normally be aligned with major licensing, planning and allocation processes conducted by the ACMA. This will allow the ACMA to focus resources on projects that have a high priority across the agency.

TimingIn 2014–15, we plan to implement new apparatus licensing taxation arrangements for wireless audio devices. We also expect to continue the discussion with Communications Alliance about reviewing the taxation arrangements associated with providing satellite services in Australia, which we began in 2013–14, and review the associated apparatus licence taxes.

We will continue our review of the taxation arrangements associated with the 400 MHz band, as an on-going responsibility. In August 2012, the ACMA introduced opportunity cost (OC) pricing in the high-density areas of the 400 MHz band as a complementary component to the 400 MHz Band review. The 400 MHz band has experienced significant congestion in the high-density areas of Sydney/Wollongong, Melbourne/Geelong and Brisbane/Gold Coast. The congestion has made it difficult for new licences to be issued and therefore new services to be provided.

The ACMA implemented the first of five intended increments towards a new OC-based licence tax rate of $199/kHz (plus annual CPI escalation) for these high-density areas on 15 August 2012. In June 2014, the ACMA proposed implementing the second of the remaining increments towards the full OC-based tax rate, after conducting a monitoring exercise of the levels of congestion within the high-density areas. The feedback we receive from industry will assist the ACMA in considering whether to introduce the second increment and the monitoring exercise to be used for considering future increments.

In June 2014, the ACMA also announced that we propose to introduce OC pricing in the remote density areas of Australia in the 400 MHz band. Given the relatively low levels of demand for services, the ACMA proposed a reduction in the nominal tax rate from approximately $4 to $0 per kHz, but with the retention of the minimum tax rule. Under the minimum tax rule, a user is charged $37.48, even if the nominal tax calculation is less than $37.48.

In 2014–15, the ACMA will consider the feedback from industry of these two proposals and in future years will consider the implementation of the remaining increments to the tax rate in the high-density areas.

We also note that the ACMA has previously committed to reviewing the apparatus licence taxation arrangements associated with television outside broadcast services.

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This review is expected to commence at the end of the current transition from the mid-band gap of the 2.5 GHz band to new apparatus licence arrangements in alternative bands. This review is expected to commence in 2016.

Stakeholder interestComments from industry concerning the taxation and charging arrangements are always welcomed by the ACMA. While spectrum pricing work focuses on major initiatives, we are also interested in hearing from industry about other bands and services where changes to the spectrum pricing arrangements could improve the efficiency of spectrum use.

The specialist nature of pricing work means that it can sometimes be difficult ensuring that the right people in an organisation are aware of the ACMA’s proposals and provided with an opportunity to contribute to the discussion. The ACMA welcomes feedback from industry about how best to target our pricing discussions and what forums might work best to foster a collaborative approach to developing future pricing arrangements.

2.7. High Frequency Direction Finding (HFDF) ProjectThe new HFDF and monitoring system will provide the ACMA with a long-term capability (20 years) to resolve harmful interference originating from international sources to Australian HF radio spectrum users. Such users include the aviation, broadcasting and transport sectors, the emergency services community, Defence, and Australians living or working in regional and remote regions.

BackgroundA HFDF system is used to locate HF radio signals nationally or globally. Due to the characteristic of ‘over-the-horizon’ HF propagation, the HF services used inside Australia can be affected by interfering transmitters located almost anywhere in the world. The majority of HF interference sources are located outside Australia—it is estimated that on average 85 per cent of the transmitter DF targets are from international locations. Without a HFDF network, it would be very difficult to protect Australian HF services from interference.

The existing ACMA HFDF system was built over 20 years ago and is at the end of its operational life. It must be replaced if the ACMA is to continue to provide interference resolution services for licensees and services that use the HF band, including the Department of Defence and Australian Defence Force. The ACMA’s ability to operate the existing system is compromised by the unreliability of aging equipment and low support levels from vendors. The establishment of a new HFDF and monitoring system is necessary for the ACMA to fully discharge its spectrum management functions in relation to the HF band, and to continue assisting the key HF users.

The ACMA’s HFDF project started in July 2013 with the objective of procuring and installing a new HFDF network at four sites across Australia that would be operational no later than 30 June 2015. The project is implementing a New Policy Proposal announced in May 2013 that included $9.2 million in capital funding over the 2013–14 and 2014–15 financial years, and ongoing funding until 2035. The project approach was changed at the end of 2013, with the knowledge that Defence are enhancing an existing HF communications system with an upgrade that will enable a HFDF capability (Project Nullarbor).

Discussions between the ACMA and Defence to reach a formal agreement about technical, operational and project requirements commenced in January 2014. The ACMA expects to finalise arrangements with Defence for HFDF and monitoring access to the Nullarbor system in the second half of 2014. Under the new approach, the ACMA is procuring a new HFDF system for its site at Quoin Ridge and will be provided

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with access to the Defence HFDF systems at four sites across mainland Australia as part of Project Nullarbor.

TimingThe development phase of the project is expected to be delivered over three years and comprises:> Installation of new HFDF and monitoring facilities in Quoin Ridge, Tasmania—

estimated completion by end of 2014.> Remote client access to the Defence High Frequency Communications System for

the ACMA for HFDF and monitoring purposes—expected to occur in the second half of 2016.

> Decommissioning of three other existing sites: Bullsbrook (WA), Capalaba (Qld), and Cox Peninsula (NT)—estimated to be completed in the second half of 2016.

> Installation of new VHF/UHF facilities in Darwin and Brisbane—estimated to be completed by the end of 2015.

Stakeholder interestThe ACMA maintains close relationships with Defence and Airservices (as the main users of HF spectrum and owners of HF communications infrastructure) concerning HF communication requirements in Australia and opportunities for knowledge and resource sharing. These factors have influenced the project approach, to ensure the project is delivered to give value to the Commonwealth and to maximise benefit for stakeholders.

3. Theme—Reducing the cost to business arising from regulation

3.1. Customer service centreThe Customer service centre was established to provide a single point of contact for customers seeking information, advice or services from the Communications Infrastructure Division of the ACMA.

BackgroundThe Customer service centre commenced operations on 3 March 2014. Before this, there were about 100 types and points of entry that a client had to choose from in attempting to find the right area of the ACMA to respond to their issue or concern. Establishing the service centre has greatly streamlined this process.

The service centre assists customers wanting to apply for a licence, report interference to radiocommunications services or to their television or radio reception, buy a Smartnumber, ask about cabling, or any of the other myriad responsibilities of the Communications Infrastructure Division.

The ACMA will now further develop and expand the role of the service centre to eventually provide a single point of entry to the entire ACMA organisation. This will provide a significantly improved customer service experience across all activities and responsibilities of the ACMA.

TimingThe service centre is expected to be operational across the whole of the ACMA by mid-2015.

Stakeholder interestAny suggestions for improvements to, or feedback about, the customer experience with the ACMA is welcome from any interested party.

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3.2. Contemporary licensing and assignment toolsThe ACMA is undertaking a project to replace its aging radiocommunications licensing and frequency assigning toolsets (collectively referred to as RADCOM). The objective of the project is to implement a new system, while also significantly improving processes to modernise and improve the way the ACMA does business with applicants and licensees.

BackgroundThe ACMA’s new system, the SPECTRA Enterprise Suite from LStelcom, will improve functionality associated with assigning frequencies and allocating licences. The introduction of the new suite of tools also provides the ACMA with the opportunity to improve its businesses processes.

The use of SPECTRA is being introduced on a staged basis, commencing with spectrum licensing, followed by the apparatus licensing process and finishing with the broadcast licence management function.

The ACMA will also make changes to the look of standard documents such as licences and invoices to make them simpler. It will also improve the customer experience by establishing online mechanisms for radiocommunications licence management and access to the public register of radiocommunications licences digital channels for licensing.

TimingSpectrum licensing related activities were transferred to the SPECTRA system in 2013 and the ACMA Lodgement Facility was released to support spectrum licence device registration. The ACMA is working to implement apparatus licensing functions within the SPECTRA system in 2014. The final stage of the project will be to provide functionality for broadcast licence management. This will occur in 2015.

Stakeholder interestThe ACMA recognises that apparatus licensing processes and procedures are vitally important to our stakeholders. We have so far invited feedback from accredited persons and other parties working with the ACMA’s data. Any suggestions for improvements to licence application and management processes are welcome from any interested party.

4. Theme—Current reform priorities4.1. Review of Radiocommunications Act 1992On 23 May 2014, the Minister for Communications announced a review of the spectrum policy and management framework. The purpose of the review is to examine what policy and regulatory changes are needed to meet current challenges, and ensure the framework will serve Australia well into the future. The minister announced that the Department of Communications will conduct the review in conjunction with the ACMA and report to the minister in six to nine months.

The review is aligned with the government's deregulation agenda and a key aspect of the review is to simplify the spectrum management framework wherever practicable. The review will consider the effectiveness of the current framework and identify opportunities to make arrangements more efficient, effective and flexible. It will consider whether the framework can be improved by adjusting what is currently in place or whether more fundamental changes are required. It will also identify opportunities for reducing regulation and non-legislative reform approaches where possible.

The review will consult with stakeholders during 2014 using a range of mechanisms, including calls for comments, meetings and workshops.

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BackgroundThe current spectrum management framework has been in place since 1992 and was last reviewed by the Productivity Commission in 2002. Since that time, technological innovation and market and service convergence has placed increasing pressure on the framework in terms of its complexity, cost and responsiveness. The ACMA is keen to support the government in implementing its deregulation agenda to reduce the cost, and increase the effectiveness, of regulation for industry, community groups and end users.

The review is an opportunity to enhance the flexibility and adaptability of spectrum regulation, reduce complexity and establish a spectrum policy and management framework better suited to meet the challenges of a complex and rapidly changing communications environment.

TimingThe review will be conducted during 2014 in close consultation with stakeholders. There will be opportunities for stakeholder participation throughout the review process through such mechanisms as meetings, workshops, the ACMA’s RadComms conference and calls for written comments. Summaries of workshops will also be published on the Department of Communication’s website.

The review is expected to report to the minister in six to nine months from commencement.

Stakeholder interestThe review process provides an opportunity for stakeholders to identify improvements to spectrum regulation and processes. The ACMA encourages stakeholders to provide feedback about spectrum regulation and management via any of the mechanisms identified above. More information about the process and scope of the review is available on the Department of Communication’s website: Spectrum review.

4.2. Wireless microphone transitionIn June 2010, the Australian Government announced that frequencies in the 694–820 MHz range (also known as the digital dividend) would be used for new communication services. Achieving the digital dividend required analog television services to be switched off and digital television services to be restacked below 694 MHz. The changes also meant that wireless audio transmitters would no longer be allowed to operate in the digital dividend.

The ACMA is helping wireless audio transmitter users to relocate from the digital dividend to other frequency bands by 31 December 2014. Wireless audio transmitters include wireless microphones and public address systems. These devices are licensed via a class licensing arrangement.

The digital dividend will no longer be available for wireless audio transmitter users after 31 December 2014. The main frequency band available to these users will be the 520–694 MHz band. The ACMA has also revised regulations to give users access to the 1790–1800 MHz frequency band, which was previously not available.

In addition, the ACMA has also revised regulations regarding the supply of wireless audio transmitters in Australia.

Many community groups and businesses use wireless audio transmitters on a day-to-day basis. The ACMA is therefore implementing a range of awareness and outreach activities and providing resources to help users prepare for this change.

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Activities and resources include:> a dedicated website (www.wirelessmicrophones.gov.au) that provides information

and resources for users and suppliers> a stakeholder engagement plan that sets out the ACMA’s awareness and outreach

activities> a short video, featuring popular television presenter, Shelley Craft, who explains

the changes and what users need to do> the ACMA’s online channel finder for wireless microphones> a suite of regional fact sheets and FAQs that explain the changes > a free, monthly e-bulletin that provides updates on the ACMA’s work on wireless

microphones.

BackgroundThe ACMA and the government has realised the digital dividend. Analog television services were switched off in December 2013. In April 2013, the ACMA conducted an auction to reallocate the digital dividend. The winning bidders’ licences will commence on 1 January 2015, allowing them to deliver 4G mobile broadband services.

Digital television services are being restacked from the digital dividend to spectrum in the 520–694 MHz range. Restack will be completed by 31 December 2014. In parallel with this restack, the ACMA is working with community groups and businesses to relocate wireless audio transmitter users from the digital dividend to other parts of the spectrum.

TimingFrom 1 January 2015, wireless audio transmitters must not be used in the 694–820 MHz frequency range.

Further work is being undertaken to provide greater flexibility for wireless audio transmitter use at major events by professional users than is currently provided by class licensing arrangements. This work will consider options to allow outdoor use of wireless audio transmitters in the 520–694 MHz on the condition that they do not cause interference to digital television broadcast services. Consultation on arrangements to further support the transition of wireless audio transmitters from the digital dividend commenced in July 2014, and is expected to be completed before the end of 2014.

Stakeholder interestMany community groups and businesses use wireless audio transmitters on a day-to-day basis and the ACMA has a stakeholder engagement plan that sets out how we are helping users prepare for this change. The ACMA has also developed a dedicated website (www.wirelessmicrophones.gov.au) that provides information and resources for wireless audio transmitter users and suppliers.

4.3. Implementing outcomes from the 400 MHz band reviewA review of the 400 MHz band was triggered by feedback from users of the band that the current arrangements governing the band’s use were increasingly inefficient and inflexible, including that:> the band was congested in some capital cities> the band configuration did not support some existing and emerging technologies> planning rules for assigning frequencies in the band were inflexible in some

circumstances, constraining new and innovative uses of the band.

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Key outcomes for the 400 MHz review are to deliver harmonised government spectrum in support of the COAG National Framework to Improve Government Radiocommunications Interoperability; an increased number of available channels in the band; and spectrum configurations that support new and emerging technologies.

BackgroundThe 400 MHz band carries radiocommunications for a diverse range of industry and government organisations that deliver essential public and private services to the Australian community. The band has been one of most heavily used parts of spectrum in Australia.

The efficient and effective use of the 400 MHz band is of strategic importance to the Australian community because of the diverse range of essential and emergency services that rely on the band for operations. An efficiently structured 400 MHz band facilitates effective and efficient use by all these services.

The new 400 MHz band arrangements include the implementation of a nationally-harmonised and interoperable system of government radio networks operating in most areas by 2015. Advances in government radio interoperability are leading to considerable efficiency gains in resource use and availability, particularly during events of national significance such as bushfires and floods.

In recognition of the benefits of government radio interoperability, the Council of Australian Governments endorsed a National Framework to Improve Government Radiocommunications Interoperability in 2009. This framework was developed by the National Coordinating Committee for Government Radiocommunications in consultation with the ACMA and complements the 400 MHz review objectives.

TimingThe 400 MHz band review commenced in 2008 and extensive consultation was undertaken with stakeholders to develop reform proposal. A staged plan to restructure the band was released by the ACMA in 2010. Implementation of the plan commenced in 2012 and will continue until 2019.

5. Theme—Ensuring the national interest5.1. Preparation for the next International Telecommunication Union World

Radiocommunication ConferenceThe ACMA and industry participate in international radiocommunications forums to promote Australia’s views and expertise—and to protect Australian interests—in spectrum management.

A key focus for the ACMA is the International Telecommunication Union World Radiocommunication Conference. World Radiocommunication Conferences (WRC) are held every three to four years. It is the job of WRC to review, and, if necessary, revise the Radio Regulations, the international treaty governing the use of the radiofrequency spectrum and the geostationary-satellite and non-geostationary-satellite orbits.

BackgroundIn most countries including Australia, spectrum planning starts at the international level through participation in the ITU. The ITU is the leading United Nations agency for information and communications technology issues and is the global focal point for governments and the private sector for the development and regulation of networks and services. ITU radiofrequency spectrum planning outcomes may need to be incorporated by the ACMA into Australian spectrum arrangements.

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The Radiocommunication sector of the ITU (ITU-R) works to ensure rational, equitable, efficient and economical use of the radiofrequency spectrum by all radiocommunications services (including those using satellite orbits) and to carry out studies and approve recommendations on radiocommunications matters. The ITU-R also maintains the international Radio Regulations, which set out the allocations of bands to various types of services.

Australia is a signatory to the ITU Convention, a treaty-level legal instrument that obliges Australia to comply with the Radio Regulations. In essence, Australian radiocommunications services must not cause interference to the services of other countries where those services operate in accordance with the Radio Regulations. Conversely, Australian services are entitled to protection against interference from other countries.

The ACMA oversees extensive industry and stakeholder consultation in preparation for the WRC. Australia’s consultation for the 2015 WRC (WRC-15) is conducted through the ACMA’s Preparatory Group for WRC-15 (PG WRC-15) and the Australian Radiocommunications Study Groups (ARSGs).

The participation of Australian industry and stakeholders is essential in ensuring that the decisions and future development of international radiocommunications regulations serve Australia’s interest. The ARSGs are chaired by a mix of government and industry representatives and coordinated by the ACMA. Six ARSGs and one Preparatory Group for the Joint Task Group 4-5-6-7 (PG JTG 4-5-6-7), which mirror the work of the ITU-R Study Groups, were established for WRC-15.

An important part in the WRC preparatory process involves the ACMA working closely with the Asia-Pacific Telecommunity (APT) to achieve a coordinated approach to radiocommunications issues in the Asia-Pacific region. Cooperation within the APT results in Australia’s positions and proposals to a WRC being harmonised with those of other countries in the region.

The outcomes of WRC-15 will affect the ACMA’s future work plan, as Australia’s allocations are updated to align with the ITU’s requirements for the Asia-Pacific region. This will be reflected in editions of the Outlook from 2016 onwards.

Further information on the ARSGs and ACMA Preparatory Groups responsible for following WRC-15 Agenda items can be found on the ACMA website. Further information on ITU Agenda items for WRC-15 is available on the Conference Preparatory Meeting page on the ITU website.

TimingPreparation for the ITU World Radiocommunication Conference 2015 commenced immediately after the conclusion of the 2012 WRC.

Key events and dates leading to WRC-2015 are:> Asia–Pacific Telecommunity Preparatory Group for WRC-15 meeting 4—early

2015.> Conference Preparatory Meeting—March 2015.> ITU-R Radiocommunication Assembly—26–30 October 2015.> ITU World Radiocommunication Conference—2–27 November 2015

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Part 3:Indicative work plans 2014–18

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1. PurposeBased on submissions received in response to earlier editions of the Outlook, we understand that the ACMA’s indicative work programs are considered by industry to be a particularly valuable part of the Outlook. In previous editions, we tried to provide certainty for the initial year of the Outlook with all other activities being included in a long list of activities with indicative timeframes.

This edition provides greater certainty and transparency to stakeholders on activities being undertaken by the ACMA over a two-year period, 2014 to 2016. These activities have been identified as a result of the environment scanning process and the key priority areas explained in parts 1 and 2.

Part 3 continues the practice of previous editions of outlining the priority assigned to spectrum projects by the ACMA. In response to stakeholder feedback, the emphasis in this Outlook is to provide greater detail on when a particular project is to commence and the expected timeframe to complete each project. The work programs provide a basis for meaningful engagement with stakeholders about the ACMA’s current work priorities and the known future projects provide a starting point for the ACMA and industry with regard to the consideration and status of other spectrum-related work as it arises.

1.1. Development of the indicative work programsThe projects included in the indicative work program have been identified through the ACMA’s environment scanning process discussed in Part 1. Stakeholders should consider the projects identified in the work program as the ACMA’s response to increasing pressures on spectrum demand and availability. However as identified in Part 1 of the Outlook, the outcome of the government’s review into spectrum management may change these priorities.

The projects outlined in the work program are not detailed and should be considered to represent the ACMA’s preliminary thinking. The work programs do not reflect all the work the ACMA undertakes in radiocommunications issues. For example, the work programs do not include our ‘business as usual’ work, such as responding to requests from stakeholders resulting in minor changes to services within existing regulatory arrangements.

The ACMA received eight submissions in response to its 2013–2017 Outlook (submissions closed on 20 December 2013). Submissions covered a range of matters, including the spectrum needs or requirements or individual submitters and suggestions for matters the ACMA might wish to consider in positioning future editions of the Outlook. We consider these submissions to be a key element in informing the development of the ACMA’s work programs.

1.2. The indicative work programsThe ACMA has organised the indicative spectrum management work programs it expects to commence or continue to progress over the next five years on a year-to-year basis. We have split the information into two schedules as follows:> Schedule one is a list of projects or activities on a band-by-band basis, listed in

ascending frequency order.> Schedule two lists the regulatory or service based projects that, given the activity’s

broad ranging impact (such as spectrum pricing activities) may span a number of bands or services.

We emphasise that these work programs should be considered in the context of the key priority areas discussed in Part 2. In some cases, key priority areas actually

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appear in the detailed work programs, such as the 400 MHz project, for example. In other cases, however, key priority areas do not appear as projects in their own right but should rather be seen as providing a framework in which the ACMA will pursue projects in the work program. For example, the development of flexible arrangements for spectrum access and consideration of appropriate pricing mechanisms are matters that we would consider in many of the projects in the work program.

The work programs outlined in the schedules provide a mix of information relevant to the identification and status of a project: > For band-related projects in schedule one, each row includes an activity type that is

intended to provide a quick reference for stakeholders in determining what outcome a project is directed towards. Further information on the activity types is provided below.

> For regulatory projects in schedule two, no activity type is provided as the project item may be linked to many band planning or other projects undertaken by the ACMA.

> The tables in the schedules also provide an indicative timeframe for the completion of the project. This is intended to assist stakeholders in informing their business cases and engaging in early dialogue with the ACMA regarding current and future spectrum needs.

The following table provides a quick reference guide to identifying the purpose or status of each project.

Table 2 Spectrum management activity type and meaning

Activity type Meaning

Expiring spectrum licences

Consider the re-issue of spectrum licences prior to expiry. This process is required under Part 3.2, Division 4 of the Radiocommunications Act 1992.

Allocation Process to allocate licences via price-based or over-the-counter mechanisms. Process may include consultation on appropriate allocation instrument and supporting information.

Implementation Process has moved to the implementation phase as set at in individual consultation documents. For example, process may include issue of licences, clearance of bands post consultation process or transition of services from one band to another.

Regulatory assessment To undertake research and analysis to develop spectrum management strategies to provide access to spectrum new technologies or in response to demand for additional spectrum.

Monitoring Watching brief on regulatory or planning activities. Future action may be contingent on the external environment. For example, outcomes of WRC, emerging technology, international policies or demand.

Band review Developing arrangements for the future use of a band. Process may include in-depth consultation with public, industry and government to identify improvements to the way a band is used.

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1.3. Consultation for spectrum management changesThe ACMA publishes the work programs in the Outlook to give information to industry, government and community groups about planned spectrum management activities that can assist them in providing us with views about likely future pressures on spectrum management over the 2014–18 period.

The ACMA stresses that consultation with interested parties about planned spectrum management work and related changes will be an ongoing feature of its regulatory functions.

The work programs are living documents that the ACMA reviews annually to ensure their relevance to current trends in radiocommunications. This will include regular updates of the time frames and priorities for each task and project to ensure they reflect current demand.

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Schedule 1:Band-by-band work program

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2014–15

Frequency range

Work task Outline Status Priority Expected completion time frame

45–52 MHz 56–70 MHz

85–108 MHz

137–144 MHz

Band review:

VHF broadcasting service bands

Spectrum in these bands has been vacated following the switch-off of analog television

The ACMA is undertaking a review to examine potential future uses for these bands. Subsequent projects (or subsequent stages of this project) will be needed to implement arrangements for any new uses of the bands.

Active High Q1 2015

403–520 MHz Implementation:

400 MHz band arrangements

Outcomes of the 400 MHz band review announced in April 2010 and implementation began in early 2011. Project is due for completion by end 2019.

Active High 2019

174–230 MHz

520–820 MHz

Implementation:

Restack/Retune of digital TV

Work to support the restack process to clear the digital dividend spectrum of digital TV services.

Active High Q4 2014

694–820 MHz Implementation:

Wireless microphone transition

Work to support the transition of wireless microphones from the digital dividend. Work is split into two streams, educational activities and development spectrum options that provide additional flexibility for major events and professional users.

Active High Q4 2014

803–960 MHz Band review:

Review of the band 803–960 MHz to explore future opportunities

Review spectrum planning options for the digital CMTS segments and a possible extension of the 800 MHz band in 807-825 MHz/852-870 MHz, also a key band identified as a candidate band for mobile broadband in Towards 2020.

The review will be considered in accordance with the ACMA’s mobile broadband strategy.

The review will incorporate provisions for public safety mobile broadband.

Active High 2015

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1710–1712.5 MHz and 1805–1807.5 MHz (Paired)

1770–1775 MHz and 1865–1870 MHz

Allocation:

Residual spectrum in the 1800 MHz band—spectrum licences

Allocation process to support issue of spectrum licences in available segments of the 1800 MHz band—Adelaide, regional South Australia, Cairns/Townsville.

Active High Q1 2015

1710–1785 MHz

1805–1880 MHz

Implementation:

Review future arrangements of the 1800 MHz band

Licensing, planning and pricing arrangements to encourage the band to move to its highest value use in regional and remote areas of Australia.

Active High Q4 2014

1900–1920 MHz

1920–1980 MHz

2110–2170 MHz (Paired)

Expiring spectrum licence process:

2 GHz band

Reissue and/or reallocation of expiring spectrum licences.

Q4 2014 High Q2 2015

2302–2400 MHz

Expiring spectrum licence process:

2.3 GHz band

Reissue and/or reallocation of expiring spectrum licences.

Active Medium Q3 2014

3400–3600 MHz

Band review:

Review of the 3.5 GHz band for future use by fixed and mobile broadband services

Review licensing and allocation arrangements in the 3400–3600 MHz band, which includes both spectrum and apparatus licensing arrangements.

Technical and regulatory frameworks are likely to be updated for both arrangements.

3400–3600 MHz was identified as a candidate band for mobile broadband in Towards 2020 and is likely to be considered under the ACMA’s mobile broadband strategy.

Active High Q4 2014

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5850–5925 MHz (5.9 GHz band)

Implementation:

Intelligent Transport Systems (ITS)

Development of spectrum access and licensing arrangements to facilitate the introduction of intelligent transportation systems (ITS).

The ACMA released a public consultation paper in November 2009 outlining possible arrangements for ITS in the band. The ACMA has received input from industry and is now able to progress work on the finalisation of arrangements for ITS.

Q4 2014 Medium 2015

26.5–27.5 GHz

Expiring spectrum licence/band review:

27 GHz band

Subject to outcome of consultation—activity to commence could be either an ESL or band review process.

Active High priority

Q4 2014

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2015–16

Frequency range

Work task Outline Status Priority Expected completion timeframe

168–174 MHz Band review:VHF television channel 6

Review of policy position regarding VHF television channel 6. Currently subject to Embargo 32, consideration required in the context of restack replanning and possible use by digital television channels.

Inactive Low Q4 2015

380–400 MHz Implementation:Defence band

Defence currently has exclusive use under footnote AUS101.

In principle agreement between Defence and some federal government agencies has been reached to provide access to parts of this segment and is being progressed bilaterally

Active Medium Subject to other agency considerations

406–406.1 MHz Monitoring:

Support search and rescue

Introduction of the Galileo GNSS expected for around 2014—search and rescue uplink.

Embargo 53 - no new assignments to be made to national security, law enforcement and emergency services to harmonise government spectrum.

Active Low No fixed date

1.5 GHz Band review:

Potential future use by mobile broadband

This band was identified as a candidate band for mobile broadband in Towards 2020 and is likely to be considered under the ACMA’s mobile broadband strategy. The 1.5 GHz band is under consideration for potential IMT identification under agenda item 1.1 of WRC-15. The ACMA will consider the outcomes of this issue at WRC-15 before progressing work domestically.

Inactive Medium Subject to WRC-15 outcomes/mobile broadband strategy

1980–2010 MHz and 2170–2200 MHz

Band review:

Potential future use by mobile broadband.

These bands were identified as candidate bands for mobile broadband in Towards 2020 and is likely to be considered under the ACMA’s mobile broadband strategy.

Active Medium Subject to mobile broadband strategy

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9300–9500 MHz

Monitoring:

Increased use of maritime radar and possible replacement of racon technology.

The ACMA will monitor the deployment of maritime radars and the developments of non-magnetron radars, and will consult with AMSA on the continuation of racons after 2013.

Active Low No fixed date

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Longer term

Frequency range

Work task Outline Priority

108–117.975 MHz

Regulatory assessment:

Impact of introducing new services in the aeronautical mobile services (AM(R)S) band—LOS applications, including RNSS signal correction.

This band was allocated to the on a primary basis at WRC-07 for LOS applications, including RNSS signal corrections. The ACMA wil continue to consider the impact of the introductions of AM(R)S on existing services by:

> sharing studies between AM(R)S and VHF-FM band radio

> assessing compatibility between GBAS/GRAS correction signals and FM broadcasting.

This band is also undergoing work as part of the digital switch-off.

Low

117.975–137 MHz

Monitoring:

Congestion experienced in VHF aeronautical mobile bands at the international level

Additional primary allocations made to the AM(R)S at WRC07 are intended to alleviate congestion. However, the ACMA first needs to consider the impact of the introduction of AM(R)S on existing services.

Low

174-230 MHz (VHF Band III)

Monitoring:

Spectrum availability to support the introduction of DAB+

Digital dividend—spectrum vacated following the analog TV switch-off and restack

Clearance of the digital dividend at 700 MHz will require additional use of this VHF band for digital television services.

VHF channel 9A is available for DAB+ digital radio in mainland state capital cities, but there is limited spectrum availability for regional areas, particularly those close to capital cities.

Digital radio broadcasting services commenced in mainland state capital cities on 1 July 2009. No new commercial digital radio licences will be issued in these areas for six years after this date. No start-up date has been announced for digital radio services in regional Australia.

The ACMA will continue to facilitate DAB+ trials. Deployment of DAB+ in regional areas requires further consideration by the ACMA and the government.

High

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2700–3100 MHz

Regulatory assessment:

Assignment coordination difficulties between radar operators

The ACMA is working with Defence, Airservices Australia and the BoM to consider improved arrangements for radiolocation and radionavigation services in these bands. This has included establishment of a domestic radar technical working group.

Low

2700–3100 MHz

Band review:

Potential future use by mobile broadband

This band was identified as a candidate band for mobile broadband in Towards 2020 and is likely to be considered under the ACMA’s mobile broadband strategy. The 2700–3100 MHz band is under consideration for a potential IMT identification under agenda item 1.1 of WRC-15. The ACMA will consider the outcomes of this issue at WRC-15 before progressing work domestically.

Low

5091–5150 MHz

Regulatory assessment:

Impact of introducing new aeronautical mobile services (AM(R)S) in the band

Allocated to the AM(R)S on a primary basis at WRC-07 for surface applications at airports, aeronautical telemetry and security-related transmissions, the ACMA will consider the effect of the introduction of AM(R)S on existing services, including the impact on Globalstar feeder links. Sharing between possible future AM(R)S systems and the FSS should be possible by adhering to the provisions of ITU-R Resolutions 418, 419 and 748.

International sharing studies. International deployment of technology. Coordination with Globalstar Earth stations.

Low

14.40–14.83 GHz/15.15–15.35 GHz

Regulatory assessment:

Impact of introducing Defence common data link (CDL) systems in the band

The spectrum is currently used extensively by fixed links and FSS. The ACMA will continue to work with Defence and other government users to identify approaches to support use of the band by CDL systems, while maintaining access for existing and future fixed and fixed satellite services.

The ACMA will continue work with Defence to explore options for customised CDL systems that maintain interoperability with overseas systems but are better suited to Australian spectrum arrangements.

Medium

15.7–16.6 GHz

Monitoring:

Use of this band for the operation of ASDE overseas; possible interest for future use in Australia.

The ACMA will continue to monitor ASDE developments and its possible future introduction in Australia.

Any future introduction of ASDE would require prior consultation with Defence.

Monitoring

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Schedule 2:Regulatory and service planning work programs

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2014–15

Work task Outline Status Priority Expected completion timeframe

Regulatory assessment:

Mobile broadband strategy

Development of a spectrum management strategy on mobile broadband services. Further information on the mobile broadband strategy can be found in parts 1 and 2 of this Outlook.

Active High Q1 2015

Regulatory assessment:

LPON services (87.5– 88.0 MHz)

The ACMA is considering options for the future operation of LPON services resulting from the expiry of the drop through specified in the section 34 determination made under the BSA at the end of 2013.

This project will involve consultation with industry and affected stakeholders.

Active Medium Ongoing work program

Implementation:

Licence area planning (LAP), process review

The ACMA is considering options to reduce the cost and complexity in licence planning including a review of the ACMA’s technical planning guidelines (TPGs), and the contents of licence area plans (LAPs).

Active Medium Ongoing work program

Implementation:

Broadcast service planning. licence area plans (LAPs), television licence area plans (TLAPs) and digital radio channel plans (DRCPs)

The ACMA responds to requests to vary LAPs, TLAPs and DRCPs to enable changes to existing transmissions, provide new transmissions extending or improving coverage, or to include new services.

Ongoing work program

Medium Ongoing work program

Implementation:

Sunsetting instruments

The Legislative Instruments Act 2003 (LIA) provides a regime (known as sunsetting) for the automatic repeal of regulations and other legislative instruments after 10 years unless action is taken to exempt them. Over the months and years ahead, the ACMA, like all other Commonwealth departments and agencies, will need to respond to the ‘sunsetting’ requirements of the LIA.

Ongoing work program

High Ongoing work program

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Implementation:

HF DF

The establishment of a new high-frequency direction-finding (HF DF) and monitoring system to provide the ACMA with a long-term capability to resolve harmful interference to licensed users of the HF Band (3-30 MHz), including the aviation, broadcasting and transport sectors, the emergency services community, Defence and Australians living or working in regional and remote regions

Active Medium December 2016

Regulatory assessment:

Taxation arrangements for wireless audio devices

The ACMA has commenced a review of the tax arrangements associated with the existing apparatus licence licensing framework.

Active High The outcome of the review will be announced in 2014–15.

Regulatory assessment:

Taxation arrangements for satellite services

In 2013–14 , the ACMA commenced a discussion with Communications Alliance about reviewing the taxation arrangements associated with providing satellite services in Australia. The ACMA expects to continue that discussion and review the associated apparatus licence taxes in 2014–15.

Active Medium Review to be completed in 2014–15

Regulatory assessment:

Methodology for implementing opportunity cost pricing in appropriate bands

In January 2010, the ACMA decided to consider the use of opportunity cost pricing for annual fees for administratively allocated spectrum. Reviews of taxation arrangements will normally be aligned with major licensing, planning and allocation processes conducted by the ACMA. This will allow the ACMA to focus its resources to projects that have a high priority across the agency. The first will be the 400 MHz band review.

Active Medium The ACMA expects to make announcements about the taxation arrangements for high-density and remote-density areas of this band in 2014–15. Further consultation about high-density areas will be undertaken over the next four years.

Regulatory assessment:

Ultra wide-band (UWB) devices

Arrangements for UWB were included in the update to the LIPD class licence in June 2014. Industry has requested that the ACMA consider additional arrangements for UWB. This request will be considered after further consideration and consultation with industry.

Active Low 2015

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Monitoring:

LIPD class licence

The existing LIPD class licence was made in July 2000 and was last amended in June 2014. Additional updates are expected in 2013–14 to support the transition of wireless microphones from the digital dividend. The ACMA is monitoring emerging technology developments for consideration of possible future reviews and updates to the class licence and conditions for operation, frequency bands and radiated power limits.

Active Low Ongoing, next update anticipated end 2015

Regulatory assessment:

Microwave-fixed service bands

Review of planning arrangements for microwave-fixed services bands.

The ACMA is considering changes to channel arrangement to provide spectrum options capable of supporting increased data rates in microwave backhaul networks. The focus is in bands 6 GHz and above.

Active Medium 2014

Monitoring:

5 GHz RLANs/Wi-Fi

Support for 5 GHz RLANs/ Wi-Fi technologies is provided across a range of frequency segments as prescribed in the Radiocommunications (Low Interference Potential Devices) Class Licence.

The ACMA is monitoring developments in arrangements for RLANs across the 5 GHz band and intends to discuss with industry limited changes to existing arrangements late 2104/ early 2015 as part of the next update to the LIPD class licence.

The ACMA is also monitoring developments in the ITU on use of the band 5350–5470 MHz and will further review after ITU WRC 2015 in November 2015.

Active Low 2015/2016

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2015–16

Work task Outline Priority

Monitoring:

Projected increases in the use of digital maritime HF data services may require additional spectrum allocations for future use

The ACMA will continue to monitor the progress of HF data services and relevant technology developments.

Options for planning arrangements will be assessed when spectrum requirements are known.

Low

Regulatory assessment:

Infrastructure park

The ACMA is undertaking research and analysis into the development of a type of ‘private park’ to be made available for smart infrastructure.

Medium

Band review:

Smart infrastructure

Building on the government’s smart infrastructure initiative. Identification of suitable spectrum is underway, with options being investigated within the band 803-960 MHz as part of the review of that band.

High

Regulatory assessment:

Earth receive station licensing

The ACMA has commenced consultation on its regulatory response to address non-compliance. This work program is ongoing.

Medium

Regulatory assessment:

Taxation arrangements for television outside broadcast services

The ACMA has previously committed to reviewing the apparatus licence taxation arrangements associated with television outside broadcast services. This review is expected to commence in 2016, at the end of the current transition from the mid-band gap of the 2.5 GHz band, to new apparatus licence arrangements in alternative bands.

Medium

Regulatory assessment:

Develop methodology for implementing opportunity cost pricing in appropriate bands

In January 2010, the ACMA decided to consider the use of opportunity cost pricing for annual fees for administratively allocated spectrum. Work has begun to develop a methodology for introducing opportunity cost pricing into various bands.

Medium

Monitoring:

Whitespace

Whitespace is a colloquial term used to describe ‘unused’ television channels and has traditionally been used by wireless microphones. There is now interest in whitespace for use by Wi-Fi-like systems. The ACMA is monitoring developments in this area and the review of the Radiocommunications Act might assist in the development of new regulatory approaches that would assist in the introduction of such technologies.

Medium

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Longer term

Work task Outline Priority

Monitoring:

Digital radio broadcasting

Planning of additional digital radio services pending government policy decisions.

Low

Monitoring:

Earth station siting

Consultation has commenced on the development of a long-term strategy for the sustainable siting of Earth stations.

Medium

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Invitation to commentMaking a submissionThe ACMA invites comments on the issues set out in the Outlook or any other issues relevant to spectrum demand analysis and strategic direction. Submissions should be made:By email: Spectrum.outlook@acma.gov.auBy mail: The Manager

National Infrastructure, Government and Space SectionSpectrum Infrastructure BranchAustralian Communications and Media AuthorityPO Box 78Belconnen ACT 2616

The closing date for submissions is 19 December 2014.

Electronic submissions in Microsoft Word or Rich Text Format are preferred.

Media enquiries should be directed to Emma Rossi on 02 9334 7719 or by email to media@acma.gov.au.

Effective consultation The ACMA is working to enhance the effectiveness of its stakeholder consultation processes, which are an important source of evidence for its regulatory development activities. To assist stakeholders in formulating submissions to its formal, written consultation processes, it has developed Effective consultation—a guide to making a submission. This guide provides information about the ACMA’s formal written public consultation processes and practical guidance on how to make a submission.

Publication of submissionsIn general, the ACMA publishes all submissions it receives. The ACMA prefers to receive submissions that are not claimed to be confidential. However, the ACMA accepts that a submitter may sometimes wish to provide information in confidence. In these circumstances, submitters are asked to identify the material over which confidentiality is claimed and provide a written explanation for the claim.

The ACMA will consider each confidentiality claim on a case-by-case basis. If the ACMA accepts a claim, it will not publish the confidential information unless authorised or required by law to do so.

Release of submissions where authorised or required by lawAny submissions provided to the ACMA may be released under the Freedom of Information Act 1982 (unless an exemption applies) or shared with other Commonwealth Government agencies under Part 7A of the Australian Communications and Media Authority Act 2005. The ACMA may also be required to release submissions for other reasons including for the purpose of parliamentary processes or where otherwise required by law (for example, under a court subpoena). While the ACMA seeks to consult submitters of confidential information before that information is provided to another party, the ACMA cannot guarantee that confidential information will not be released through these or other legal means.

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PrivacyThe Privacy Act 1988 imposes obligations on the ACMA in relation to the collection, security, quality, access, use and disclosure of personal information. These obligations are detailed in the Australian Privacy Principles that apply to organisations and Australian Government agencies from 12 March 2014.

The ACMA may only collect personal information if it is reasonably necessary for, or directly related to, one or more of its functions or activities.

The purposes for which personal information is being collected (such as the names and contact details of submitters) are to:> contribute to the transparency of the consultation process by clarifying, where

appropriate, whose views are represented by a submission > enable the ACMA to contact submitters where follow-up is required or to notify

them of related matters (except where submitters indicate they do not wish to be notified of such matters).

The ACMA will not use the personal information collected for any other purpose, unless the submitter has provided their consent or the ACMA is otherwise permitted to do so under the Privacy Act.

Submissions in response to this paper are voluntary. As mentioned above, the ACMA generally publishes all submissions it receives, including any personal information in the submissions. If a submitter has made a confidentiality claim over personal information which the ACMA has accepted, the submission will be published without that information. The ACMA will not release the personal information unless authorised or required by law to do so.

If a submitter wishes to make a submission anonymously or use a pseudonym, they are asked to contact the ACMA to see whether it is practicable to do so in light of the subject matter of the consultation. If it is practicable, the ACMA will notify the submitter of any procedures that need to be followed and whether there are any other consequences of making a submission in that way.

Further information on the Privacy Act and the ACMA’s privacy policy is available at www.acma.gov.au/privacypolicy. The privacy policy contains details about how an individual may access personal information about them that is held by the ACMA, and seek the correction of such information. It also explains how an individual may complain about a breach of the Privacy Act and how the ACMA will deal with such a complaint.

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