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O B I T E C H N I C A L P A P E R No . 3 SPECTRUM ANALYSIS: OPTIONS FOR BROADCAST SPECTRUM OBI TECHNICAL PAPER NO. 3 June 2010 F E D E R A L Co MMUN I CA tio N S Co MM I SS io N | JUNE 2010 O B I T E C H N I C A L P A P E R No . 3 to compensate broadcasters who choose to participate. If EXecutiVE SummarY authorized by Congress, incentive auctions would create a cooperative process and enable a more timely and equitable Mobile broadband networks, devices and applications are a reallocation from broadcast TV bands to mobile broadband critical component of the overall broadband landscape and use. Since a significant portion of the TV bands is not directly increasingly central to the productivity of American workers, used for broadcasting, a limited number of stations in a limited the global leadership position of American innovation and the number of markets choosing to participate voluntarily could daily lives of tens of millions of American consumers. Spectrum recover a significant amount of spectrum. The FCC would, of is the nourishment for mobile broadband, and the FCC—as part course, seek to ensure that such auctions and other actions to of Connecting America: The National Broadband Plan (“the enable reallocation do not significantly adversely affect par- Plan”)—is seeking new sources of spectrum to feed the rapidly ticular communities of American TV viewers. accelerating demand for mobile broadband services. There are several reasons why stations may choose to Among these potential sources are the broadcast television participate in an incentive auction. First, as demonstrated bands. The TV bands are particularly attractive for two reasons. by the market value gap, some stations may realize that their First, they have technical characteristics that are well-suited spectrum license holds more value in an auction than they can for current and next generation mobile broadband services. TV achieve under their current business model and future broad- bands comprise nearly 30% of the spectrum allocation between cast opportunities. Many others will likely value the current 225 MHz and 1 GHz, considered the most valuable “beach- business and future options available through their spectrum front” property for mobile broadband due to the excellent license more than the value they could obtain from an auction, propagation characteristics in that frequency range. Second, and will therefore choose not to participate. As noted industry the TV bands in their current use have a substantially lower analyst Marci Ryvicker stated, market value than similar spectrum recently auctioned primar- ily for mobile broadband use. “[An incentive auction] could be good for the business… Of course, the FCC should not make spectrum allocation Broadcasters who believe they will be better monetizing decisions based solely on market valuations. Broader public the spectrum on their own will do something with it. benefits resulting from a service using the public airwaves are Those who figure they really don’t know what they are also very important considerations. From this perspective, both going to do with the extra spectrum will be the ones that over-the-air (OTA) TV and mobile broadband provide impor- are going to give it back. So, allowing the broadcasters tant services and benefits above those captured in a market to decide is probably the best part of the plan.”3 valuation. Free, OTA TV has served longstanding policy goals including competition, diversity, localism and emergency com- Second, the Plan recommends that the FCC establish a munications. Elderly, rural, African American, Hispanic and licensing framework that would enable stations to share six- other minority populations heavily rely upon free, OTA TV.1 megahertz channels while maintaining most, if not all, of their Mobile broadband promises to deliver public benefits from current revenue streams. Analysis published for the first time applications that are unique to the mobile, two-way context— by the FCC in this paper demonstrates that stations could such as location-based services to target interactive emergency continue to broadcast in HD while sharing a channel. Stations communications quickly and accurately, and health applica- choosing to share a channel could relinquish a portion of their tions to remove geography, time and access to information as bandwidth to an incentive auction and receive all or a portion impediments to quality healthcare delivery. These benefits of the proceeds. In other words, they could continue to deliver also disproportionately reach under-represented populations. free, OTA television service while gaining access to much- A higher percentage of African Americans and Hispanics use needed capital to invest in local and diverse programming. mobile devices for Internet activity relative to other groups.2 The combination of a voluntary, incentive auction followed Because both free, OTA TV and mobile broadband are by a repacking of channels could make great strides towards important components to our nation’s communications achieving the goal to which the Plan aspires, of recovering 120 infrastructure, we seek to design a mechanism that would en- megahertz from the broadcast TV bands. It is very difficult to able repurposing of spectrum from the broadcast TV bands to predict such an outcome ex ante, however, because the very mobile broadband use, while protecting longstanding policy nature of a voluntary process implies choice and, therefore, goals and public interests served by OTA TV and further sup- uncertainty. The FCC is building a new tool, an Allotment porting those served by broadband use. Such a mechanism Optimization Model, which will help bring more predict- would be voluntary and market-based, using incentive auctions ability to the process. Once its development is complete this F E D E R A L C O MMUN I CA tio N S C O MM I SS io N | Sp EC T R U M A NALYS I S 1 O B I T E C H N I C A L P A P E R No . 3 model, introduced for the first time in the paper, will be able to contributor to the next steps, such as the upcoming Broadcast indicate what range of actions would need to happen volun- Engineering Forum and rulemaking proceedings. We encour- tarily—i.e., what number of stations in which markets, making age feedback and comments throughout all of these steps to voluntary choices to relinquish some or all licensed spectrum— ensure we best serve the interests of the American public. in order to achieve the target, and what would be the expected Though we recognize the uncertainty inherent in predicting impact on consumer reception of OTA signals. This model is a the outcome of this process, we are confident that the analy- work in progress, but we are making its initial results and tech- sis in this paper and the tools under development at the FCC nical details available in this paper to provide transparency and could enable the FCC, with extensive public input throughout enable continued refinement and improvement. a rulemaking proceeding, to establish a voluntary process that This paper, the Omnibus Broadband Initiative (OBI) paper recovers a significant amount of spectrum from the broadcast referenced in the Plan, is the second step in a process begun TV bands while preserving consumer reception of, and public by the Plan. It is not a conclusion but rather an important interests served by, OTA television. 2 F E D E R A L C O MMUN I CA tio N S C O MM I SS io N | W W W . B R O AD B AND .GOV O B I T E C H N I C A L P A P E R No . 3 TABLE OF CONTENTS Executive Summary ........................................................................................................................................................................ 1 Introduction .....................................................................................................................................................................................4 What is New in This Technical Paper ...........................................................................................................................................................5 I. The Opportunity ...........................................................................................................................................................................6 Technical Characteristics................................................................................................................................................................................6 Value Gap ...........................................................................................................................................................................................................7 Public Benefits from Broadcast Television and Mobile Broadband .....................................................................................................10 II. Analytical Methodologies ..........................................................................................................................................................11 Simulated Annealing .......................................................................................................................................................................................11 Allotment Optimization Model (AOM) ...................................................................................................................................................... 12 Coverage and Service Analyses ...................................................................................................................................................................
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