HDTV Standards Setting: Politics, Technology, and Industry
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HDTV Standards Setting: Politics, Technology, and Industry David F. Donnelly, Ph.D. Dr. David Donnelly is on the faculty of • Influence they exert in determining the eventual the School of Communication at the degree of success experienced by the innovation. University of Houston. His research and publishing interests include the diffusion of innovations, the social and Typically viewed as an inconsequential part of the cultural impact of technological comparatively unimportant technical prehistory of an change, communication policy, and innovation, the standards-setting process is not merely technological forecasting. He has provided media and Internet consulta- a technological issue. It is, in fact, a complex and tion for numerous private and nonprofit fascinating amalgam of public and private concerns, a organizations and is currently on the nexus of economic, sociological, and political forces. Advisory Board for Recreational Data An examination and analysis of the standards-setting Services, Inc., an Internet publishing firm. He is the author of The Encyclopedia of Television and process yields important information concerning the International Teleconferencing Yearbook 1994, and has published origins of a technology, and helps to provide a fuller, articles in such journals as Communication Research, Informatics, richer understanding of the entire technological and Telematics. He holds an M.A. and Ph.D. in Communications innovation process. This article explores this ne- from the University of Massachusetts at Amherst, and a B.A. in RTVF from the University of Maryland. glected dimension of technological development by examining the standards-setting process connected with high definition television (HDTV). ver the course of the past several decades, we have witnessed a tremendous surge in the Standards O number of communication and information technologies. These technologies have spread Standards can be defined as “technical parameters throughout various facets of our society and have that govern the operation of a piece of equipment or 1 influenced the way we live our lives in many ways. an entire industry.” The establishment of uniform As they have become increasingly integral to our day- standards is particularly critical when complementary to-day existence, our need to understand the phenom- products are required (for example, hardware and enon of technological innovation has become more software configurations) and when interconnections critical. between products are desired. Standardization can The early stages of technological innovation are help to accelerate the diffusion of technological extremely important, though often overlooked. One products, and also help reduce risks for both market particularly important aspect of the early development entrants as well as consumers. On the other hand, the of an innovation involves the establishment of appro- establishment of standards tends to remove the priate technical standards which govern the operation incentives for further development and can stifle of the innovation. This lack of attention is both technological innovation. Moreover, there is always surprising and problematic given the: the possibility that an obsolete standard can become so ingrained that it is difficult to phase in a new one. • Critical role standards can play in the timing of the Standards can therefore serve to prompt or inhibit introduction of an innovation. adoption of a new technology. • Effect they have on the capabilities and nature of The standards-setting process is an intricate the technology. activity. Standards can be established through government actions, via industry coalitions, or through Page 20 1070-3683/95/$3 © 1995 Technology Futures, Inc. 3Q95 New Telecom Quarterly free market competition. Rosen, Schnaars, and Shani impact of advanced television services. The FCC have devised an analytical framework comparing these concurred that the subject merited attention and, on various approaches to standards setting and have August 20, 1987, opened a Notice of Inquiry to con- drawn the following conclusions: “managing stan- sider the technical and public policy issues of ad- dards is preferred to letting the marketplace decide..., vanced television. coalitions generally offer the greater advantages with the fewest negative effects..., active government THE FCC STRATEGY intervention in standard setting is preferable in some To assist them in the process, the FCC chartered situations.”2 the Advisory Committee on Advanced Television Within the communication industry, standards are Service (ACATS) on September 30, 1987. The forma- an especially important element in the acceptance and tion of the Advisory Committee differed from the diffusion of a new technology. Several communication traditional FCC approach of hearings and demonstra- technologies have floundered or failed for want of tions. By making the FCC “dependent upon the coherent, uniform standards. In the United States, private sector for assistance,” this action was a reflec- quadraphonic sound, videotex, and AM stereo are tion of the prevalent deregulatory governmental classic examples. Given their inherent complexity, philosophy.3 The ACATS charter states that the technical uniformity is particularly critical in television committee is to advise the commission regarding the systems. The production, distribution, and reception facts and circumstances concerning advanced televi- of programming involves numerous sectors of the sion, and should the commission decide that it would industry, and relies upon a complex chain of machin- be in the public interest to adopt some form of ery. Such interconnections necessitate standardization advanced television service, the committee would also within the television industry. “recommend policies, standards, and regulations that would facilitate the orderly and timely introduction of HDTV Standards advanced television services in the United States.” Drawing upon the input of the Advisory Commit- In the late 1960s, Japanese researchers for NHK tee and the contributions offered through the public began research on an advanced system of producing comment process by other affected parties, the com- and displaying video images that utilized projected mission issued a series of significant decisions over the 35mm film as a technical benchmark. This research next several years. While some of these decisions produced what became known as high definition have been issued more tentatively than others, they television or HDTV. When compared with the existing comprise a coherent strategy on HDTV and have had a world television systems, HDTV offers a wider aspect major influence on the shape and direction of ad- ratio, provides a significant increase in the number of vanced television within the United States. On Sep- scanning lines resulting in improved picture clarity and tember 1, 1988, the commission stated that “providing definition, and enables “CD-quality” audio. The for terrestrial broadcast use of ATV techniques would technology was promoted by its early advocates as a benefit the public,” but HDTV systems must be potential basis for a new and unified world television compatible with existing NTSC service, and no spec- standard. In the early 1980s, HDTV was demonstrated trum space outside of the VHF and UHF bands would in the United States, and, as the decade progressed, be allocated for such service.4 In September 1990, the the technology became a topic of increased discussion commission refined its introduction strategy by an- and interest. nouncing its intention to endorse a simulcast HDTV Broadcasters, aware that alternative distribution system.5 systems like cable and direct broadcast satellites had The transmission of conventional NTSC on existing fewer spectrum constraints and could adopt HDTV channels and HDTV transmission of the same pro- fairly quickly if they so decided, and cognizant of the gramming on a separate channel, it was felt, would increased competition at the Federal Communications enable a comparatively smooth and spectrum-efficient Commission (FCC) for spectrum for non-broadcast transition to the new standard. Such a strategy would applications, asked the FCC to act on HDTV. A also encourage the further development of new HDTV coalition of 58 broadcasting organizations petitioned systems by freeing the technology from the inherent the FCC on February 21, 1987 to initiate a proceeding limitations of the existing NTSC system.6 In May 1992, to explore the issues surrounding the introduction and the commission released several tentative decisions 3Q95 Page 21 concerning a timetable for industry conversion to could be counted on to seek out flaws in each other’s advanced television service. These decisions were designs.”10 modified slightly, and the commission issued the System selection criteria fell into three categories. following ATV implementation strategy on October 16, The category of spectrum utilization included a 1992.7 Broadcasters would have three years from after consideration of the anticipated service area for the time that an ATV allotment table was released or broadcasters, as well as a determination of the number an ATV standard was set to apply for an ATV channel, of existing NTSC stations which could be accommo- and six years to complete construction of an ATV dated by an additional ATV channel. Economic facility. The commission adopted a deadline of 15 criteria included a consideration of the cost of ATV years from the effective date of the new