Frequency Open Policy in Japan

February 　 2004

Radio Department, Telecommunications Bureau

Ministry of Public Management, Home Affairs,
Posts and Telecommunications
 Process of Spectrum Reform
Study
Studyon
onEffective
EffectiveUse
Useof
of
Radio
RadioPolicy
PolicyVision
Vision Radio
RadioSpectrum
Spectrum

Telecommunications Study
StudyGroup
Groupon
onEffective
EffectiveUse
UseofofSpectrum
SpectrumPolicy
TelecommunicationsCouncil
Council Policy

Aug. Jan.
Jan.'02
'02 Start
Start
Aug.'02'02 Consultation
Consultationof
of
Radio
RadioPolicy
Policy Dec.
Dec.'02
'02 1st
1stReport
Report
Jun.
Jun.'03
'03 Public
Public 【【Introduction
IntroductionofofCompensation
Compensation
Comment Scheme 】
Commentto to Scheme 】
Report
Report Sep.
Sep.'03
'03 2nd
2ndReport
Report
Jul. 【【Introduction
Introductionofof
Jul.'03
'03 Report
Report Registration
Registration】】
Dec.
Dec.'03
'03 3rd
3rdReport
Report
【【Assignment
AssignmentofofSpectrum
Spectrum
refarming 】
refarming 】

Oct.
Oct.'03
'03 the
theGuidelines
Guidelinesfor
for Feb.
Feb.'04
'04 Draft
DraftRevised
RevisedRadio
RadioLaw
Law
Spectrum
SpectrumRefarming
Refarming submitted
submittedto
tothe
theDiet
Diet
published
published
 Radio Policy Vision (Report of the Telecommunications Council)

Basic roles of radio Mid- and long-term outlook

Desirable radio policy
spectrum use of radio spectrum use

• Expectations for realization of a

wireless broadband environment I.I. dynamic
dynamicreview
reviewofofradio
radio
spectrum allocation 　
••Realization It is expected that various radio spectrum spectrum allocation
Realizationofof

Realization of a ubiquitous network society through construction

uses have been drastically expanding in
comfort
comfortand
andhigh
high such areas as the home, business,
quality of life medicine/welfare, security of Japanese II.II.Policies
quality of life nationals, so that the radio spectrum uses Policiesfor
forfrequency
frequency
contribute to realization of convenient/ refarming
refarming andradio
and radiospectrum
spectrum
safe/secure daily lives and society. use
use

of wireless broadband environment

･ Expansion of radio-related market
sizes
••Revitalization
Revitalizationofof III.
III.Reform
ReformofofSpectrum
SpectrumUser
UserFee
Fee
industrial/economic
industrial/economic
activities
activities
Mid- and long-term
outlook of radio policy IV.
IV.Promotion
PromotionofofR&D
R&D

••Formation
Formationofofaasafe
safe Mid- to long-term goals (in 5 to 10
years) V.
V.Facilitating
Facilitatingsmooth
smoothprevalence
prevalence
and disaster-tolerant
and disaster-tolerant ofofradio
society/country radioequipment
equipment
society/country • Contribution to realization of a
ubiquitous network society
through construction of the VI.
VI.Enhancing
Enhancinginternational
international
world’s most advanced wireless strategy
strategy
••Invigoration broadband environment
Invigorationofoflocal
local
economy
economy • Ensuring national security
through use of diversified VII.
VII.Building
Buildingaasafer
saferand
andsecurer
securer
networks environment for radio
environment for radio
• Fostering internationally
spectrum
spectrumuseuse
competitive wireless ICT industry
 Estimation of Market Sizes of Radio-related Industries

Industries
IndustriesPotentially
PotentiallyUsing
UsingRadio
Radio**

(Trillion Yen) 2013 distributors, education,

92 Tri. Yen medical/nursing care/welfare
100 services, games, etc.

80 37.8
2008 Industries
IndustriesUsing
UsingRadio
Radio**
43 Tri. Yen
60 Security service, Airline,
2000 Maritime, Railway and
19 Tri. Yen 9.7 25.8 Automobile transportation
40 services etc.
1.6 9.9
28.3 Core
CoreRadio-based
Radio-basedIndustries
20 23.4 Industries
17.5
Cellular Operators,
0 Broadcasters, Related
2000 2008 2013 manufacturers, Contents
creaters, mobile EC etc.

* Radio-related Amounts
 Dynamic Review of Frequency Allocation
It is necessary to dynamically review radio
spectrum allocation in order to facilitate the
introduction of radio systems required for the
world’s most advanced Wireless Broadband
Environment
(1)dynamic review of radio spectrum allocation in all frequency bands including
those assigned to the national government and public corporations.
(2)Encourage licensees to return redundant spectrum not being used efficiently.
(3)refarming of radio spectrum, which are used for radio systems actually
replaceable with fiber-optic cables etc., to other radio systems such as mobile
communications, for which radio spectrum use is indispensable.
(4)Rapid refarming of radio spectrum to new radio systems with higher demand.

Expansion of usage in the future *1 Concepts for addressing radio Measures to be taken for promotion
spectrum demands

Mobile Large increase in demands for radio spectrum Based upon results of survey on actual Examples of major candidates for additional frequency
Communicatio (based on forecast methods developed by ITU) radio spectrum usage including those bands for mobile communication systems
in the public sector,
n Systems - 270 MHz bandwidth (current status) - 800MHz band, 1.5 GHz band (currently in use for
(below 5-6GHz) - 330 – 340 MHz bandwidth (5 years later) (1) Create radio spectrum for new use, MCA)*2
through efficient use of radio spectrum
- 1,060 - 1,380 MHz bandwidth (10 years later) - 1.7 GHz band (currently in use for fixed communications)
and transition to fiber-optic cables
(2) Rapid refarming of radio spectrum - 4 GHz / 5 GHz bands (currently in use for fixed
communications)
(3) Shared-use with other radio
Wireless LAN Large increase in demands for radio spectrum systems Examples of major candidates for additional frequency
(mainly in (based on forecast methods developed by ITU) bands for Wireless LANs.
5GHz band) - 200 MHz bandwidth (current status) - 4.9-5.0 GHz band (currently in use for fixed
- Max. 480 MHz bandwidth (5 years later) communications)
- Max. 740 MHz bandwidth (10 years later) - 5.25-5.35 GHz band (currently in use for radars)
- 5.47-5.725 GHz band (currently in use for radars)

Terrestrial Smooth penetration and development of - Smooth implementation of measures - Frequency assignment for facilitating nationwide
Digital digitalization for conversions of current TV deployment of digital broadcasting
frequencies for digitalization.
Television - The UHF band except those used for digital TV will be
- Radio spectrum vacated by the used for mobile communications after 2012; the VHF
termination of conversion process band will be used for radio systems with high demand
(analog/digital simulcasting) will be after 2011.
used for mobile communications, etc.

RFID Advanced utilization of electronic tags will 135 kHz, 13.5 MHz, 2.4 GHz bands are Consideration of available frequency bands, based on
(Electronic evolve in diversified fields such as physical currently in use. concrete images of applications using RFID.
distribution.
Tag)
ITS, HEO *3, Development of these radio systems will Clarification of available frequency Implementation of domestic frequency assignment,
UWB progress. bands, necessary bandwidths, etc. considering international spectrum allocation and
based on considerations concerning international harmonization.
trends in R&D, sharing conditions.
*1 The figures of the bandwidths of Mobile Communication Systems and Wireless LAN are round numbers.
*2 MCA: Multi-Channel Access (a trunked radio system.)
*3 HEO : Highly Elliptical Orbit satellite system used for satellite communication, radiodetermination etc.
 Facilitation of rapid radio spectrum refarming

• The amendment to the Radio Law in 2002 institutionalized the scheme for conducting
surveys and evaluation on actual radio spectrum usage and publicizing the results. The
survey conducted by MPHPT every year is to cover one of three sections of the radio
spectrum, such that in three-years’ time, the surveys will have covered all of the radio
spectrum.
MPHPT evaluates the extent of efficiency in radio spectrum usage based on the survey
results through seeking public comments, and publicizes the results.
The Radio Regulatory Council recommends that MPHPT formulate refarming plans, as
appropriate, taking into consideration such evaluations, in order to meet demands for
other radio systems such as mobile communication systems and wireless LANs.
• Should refarming need to be completed in a short term, e.g. 3 years from the
formulation of a frequency refarming plan, incumbent licensees will be forced to
dismantle radio facilities that the licensees purchased and constructed in the past and to
purchase and construct alternative facilities.
The Council recommends that MPHPT conduct studies on establishment of a scheme to
compensate incumbent licensees for refarming costs such as a portion of the remaining
book value and the dismantling cost of the radio facilities, etc.
 Surveys and Evaluation on Actual Radio Spectrum Usage
All of the radio spectrum is divided
【 Survey Items 】 into the following three sections.
　〇 Number of radio stations
　〇 Traffic
　　Surveys
Surveyson
onActual
ActualRadio
Radio Surveys are made every year on
one of the sections.
　〇 Years in use of radio facilities
　〇 Replaceability with other
Spectrum
SpectrumUsage
Usage
①Below 770MH ｚ
②Above 770MH ｚ /below 3.4GH ｚ
means of telecommunications ③Above 3.4GH ｚ
such as fiber-optic cables
　　 etc.

Evaluation
Evaluationof ofthe
theextent
extent
of
ofefficiency
efficiencyininradio
radio
spectrum
spectrumusage
usageon oneach
each
frequency
frequencyband
band

Surveys
Surveyson
oneconomic
economicimpacts
impactsonon
licensees
licenseescaused
causedby
bymodification
modificationof
of
Frequency
FrequencyAssignment
AssignmentPlan
Plan

Reflectio
n

Modification
Modificationof
ofFrequency
FrequencyAssignment
AssignmentPlan
Plan
 Transparency of radio spectrum use

• In the introduction of auction systems into licensing procedures, there could be a risk that
the introduction hinders effective radio spectrum use, in such a way as the
delay/withdrawal of services due to extremely high bidding prices as seen in some
European countries. Accordingly, from the viewpoint of promoting effective radio spectrum
use by incorporating advantages of market principles, it is necessary to consider other
appropriate measures by which such kind of demerits can be avoided.
• In the report of Radio Policy Vision, it recommends that MPHPT conduct studies on
introduction of a licensing system incorporating the following assessment items in the
process of comparative examination in addition to appropriateness of business plans:
- A portion within the amount of the frequency refarming costs to be shared by new
licensees.
- Expansion plans of service areas (i.e., facilities investment amount, etc.) etc.
It is also appropriate to ensure transparency and fairness in licensing procedures through
publication of figures concerning assessment items prior to the assessment.
 Outline of Draft
　　Revised Radio Law

Target

Rapid
Rapidfrequency
frequencyrefarming
refarming Facilitation
Facilitationof
offlexible
flexible
in
inorder
orderto
toaccomodate
accomodate
wireless business
businesspromotion
promotion
wirelessbroadband
broadbandsystems
systems

Solution

Introduction
Introductionofofcompensation
compensation Partial
Partialintroduction
introductionofof
scheme
schemeforforrapid
rapidfrequency
frequency aaregistration
registrationscheme
scheme
refarming
refarming with
withsimplified
simplifiedprocess
process
 Compensation Scheme for Rapid Spectrum Refarming

New Spectrum Incumbent

Users Licensees
<A new entry is possible on vacated frequencies>
《 RLAN, etc. 》 New entry <Station for fixed
Restaurant microwave links>
s
Internet

Base stations of Hotel

Telecommunications
Carriers

Withdrawal
- No alternative frequencies
- Shorter transition period within 3 years
《 Intelligent Home Appliances 》 (10 years for the existing scheme)
Economic Costs to Incumbent Licensees
(Salvage Value, Removal Cost and so on)

Need for Compensation

Provision
Provisionof
of
Compensation
Compensation
Economic benefits
to new spectrum Collection
Collectionofofadditional
additionalSpectrum
SpectrumUser
UserFee
Fee
users from new spectrum users
from new spectrum users
 Enhancing flexibility of radio spectrum use

In the report of the Radio Policy Vision, it recommends that MPHPT:

• Identify more spectra as “Commons” to allow unlimited numbers of

unlicensed wireless systems operated at low power to share
frequencies under certain conditions;

• Introduce a regulatory scheme such as the registration of radio

stations, with simplified process, to allow unlimited numbers of
wireless systems such as base stations of wireless LAN systems
operated outdoors at relatively high power to share frequencies
under certain conditions in order to respond to such expanding
installation needs;
 Outline of Registration System
＜ Current System ＞
License
License System
System
※ No license required for Small Power or
※ No license required for Small Power or
Limited
LimitedBandwidth
Bandwidth

Background:Technological
<Bandwidth Guaranteed Type> Development, etc.
＜ Shared Use Type ＞
Broadcasting stations, Best Effort systems such
Cellular Phones, etc. Introduction (planned)
as High Power Out-door
Radio LAN

Ex-ante Checking Ex-post Checking

（ License System ） （ Registration System ）
　
　

　・　High
　・　 HighPower
Power ・
・Higher
HigherPower
Powerthan
thanLicense-free
License-freesystems
systems
　・　Exclusive
　・　 ExclusiveUse
Use ・ Same operation rules applied
・ Same operation rules applied
　（ Coping
　（ Copingwith
withInterference,
Interference,limited
limitedterm
termpermission,
permission,etc. ）　
etc.） 　
To Promote Multiple Use of Radio Spectrum

Realization
Realizationofofwireless
wirelessbroadband
broadbandenvironment
environmentcorrespond
correspondtotointernet
internetera
era
 Spectrum Expansion of the “Commons”

9600MHz bandwidth in 18 bandwidth is allocated to the “Commons”

for RLAN and cordless telephone, etc. (the world most levels)
(14kHz) (835kHz) (1.1MHz) (335kHz) (1.1MHz) (8.2MHz) (4MHz)

430
440
74.6

322.4

381.3
13.56

76

253.9
255

322

380.2

413.7

469.5

806
810

MHz
(2MHz) (35.1MHz) (97MHz) (161MHz) (100MHz) (80MHz)
1216
1217
1252

2497

5000

5091
2400
1253

1884.5

1919.6

4900

5030

5150

5250

5770

5850

MHz
(30MHz) (200MHz) (900MHz) (7000MHz) (1000MHz)
10.51
10.54

59
24.05

24.25
24.77

25.23

27.02

27.46

66

76

77

GHz
Review of the Allocations to Mobile, Fixed, and Other Services
in the 5 GHz Band (WRC2003 Agenda Item 1.5)

2.4 GHz band 5 GHz band

97 MHz bandwidth 100 MHz bandwidth
2400 2497
Radio LAN
(for indoor and
Radio LAN
outdoor use) (for indoor use)
Industry, science, Satellite
and medical equipments
communications Radar Radar,
レーダ等 etc.
(e.g. microwave ovens)

2400 2500 5150 5250 5350 5725

[MHz] [MHz]
New allocations for Radio LAN on a worldwide basis
355 MHz bandwidth Under
Under Study in
Study in
97 MHz bandwidth 100 MHz bandwidth Telecommunications Council
Telecommunications Council
2400 2497
Radio LAN
Radio LAN Radio LAN Radio LAN
(for indoor and
outdoor use)
(for indoor use) (for indoor use)* (for indoor and outdoor use)
Industry, science, Satellite
and medical equipment
communications Radar Radar, etc.
(e.g. microwave ovens)
2400 2500 5150 5250 5350 5470 5725 [MHz]
[MHz] * Limited outdoor applications are possible.

- The frequency band that can be used for outdoor applications has
Major frequency bands been greatly expanded.
being used now 　　⇒ More users are able to use faster communications.
-Common frequency bands that can be used on a worldwide basis
have been expanded.
　　⇒ Users can benefit from improved convenience and less
expensive equipment.
 Promotion of establishment of experimental radio stations

１　Background
１　 Background&&Assignment
Assignment
<Background> (1) Serious tightness of frequency resources
(2) Developing of New System as well as effective use technology
industrial revitalization

＜ Assignment ＞ Acceleration & Simplification of establishment of experimental radio

【 experimental
stations 　radio stations 】 : radio stations used exclusively for experimentation aimed at scientific
or technological development. (Valid term of licenses: 5 years)

２　View
２　 Viewpoint
pointof
ofconsideration
consideration
　　　　　 ・ no interference to existing staions
＜ Assumption ＞ ・ to specify area and frequency in advance
　　　　　 ・ short-term limitation (1 year in principle)of license period ）

（ Simplification of procedure, revitalization of activation experimentation ）

Ensuring
Ensuringofoffrequency
frequencyfor
forexperimental
experimentalstations
stations&&Simplification
Simplificationofoflicensing
licensingprocedure
procedure
 Towards Realization of Ubiquitous Network Society
＜ Wire ＞ ＜ Wireless ＞
Telephone line Optical fiber
（ ADSL, CATV ）
Wireless
Usable No. of line: 　 35 mil Usable No. of line: 16.8 mil 　 Broadband
　　　　 actual use: 　　 　　　 actual use: 　　 0.7
11.6 mil mil
Frequency Open Policy
・　 guidelines for frequency refarming
12.26
12.26mil
milBroadband
Broadbandusers
users ・　 expansion of frequency for “Broadband”
・　 flexible use of radio spectrum environment

Broadband
BroadbandConvergence
ConvergenceofofWire
Wire&&Wireless
Wireless
Advent
Adventof
ofUbiquitous
UbiquitousSociety
Society

Creation of New Industry

（ Infrastructure & Users industry ） Creation of Applications

the
theworld’s
world’smost
mostadvanced wireless Network
advancedwireless Network
Rebirth of Economy Hopeful, affluent society Visible existence of Japan