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SPECTRUM SILOS to GIGABIT WI-FI 2 to Safety NEW AMERICA MICHAEL A. CALABRESE SPECTRUM SILOS TO GIGABIT WI-FI SHARING THE 5.9 GHZ ‘CAR BAND’ JANUARY 2016 About the Author About New America Michael A. Calabrese directs the Wireless New America is dedicated to the renewal of American Future Project at New America, a non-profit politics, prosperity, and purpose in the Digital Age. We think tank based in Washington, D.C. As carry out our mission as a nonprofit civic enterprise: an part of the New America’s Open Technology intellectual venture capital fund, think tank, technology Institute, he develops and advocates laboratory, public forum, and media platform. Our policies to promote ubiquitous, fast and hallmarks are big ideas, impartial analysis, pragmatic affordable wireless broadband connectivity, including policy solutions, technological innovation, next the reallocation of more prime spectrum for shared and generation politics, and creative engagement with broad unlicensed access. audiences. Calabrese has served as an appointed Member of the Find out more at newamerica.org/our-story. U.S. Department of Commerce Spectrum Management Advisory Committee (CSMAC) since 2009. He also served About the Open Technology Institute as an Invited Expert on the President’s Council of Advisors on Science and Technology (PCAST) spectrum reform working group during 2011-2012. The Open Technology Institute at New America is committed to freedom and social justice in the digital Calabrese previously served as Vice President of age. To achieve these goals, it intervenes in traditional New America (2003-2010), as General Counsel of the policy debates, builds technology, and deploys tools Congressional Joint Economic Committee, as director with communities. OTI brings together a unique mix of domestic policy at the Center for National Policy, of technologists, policy experts, lawyers, community as a counsel at the national AFL-CIO, and as a clerk to organizers, and urban planners to examine the impacts California Supreme Court Justice Allen E. Broussard. of technology and policy on people, commerce, and communities. Our current focus areas include Calabrese is a graduate of Stanford Law and Business, surveillance, privacy and security, network neutrality, where he earned a JD/MBA degree; and a graduate of broadband access, and Internet governance. Harvard College, where he earned a B.A. in Economics and Government. About the Wireless Future Project New America’s Wireless Future Project (WiFu) develops and advocates policies to promote ubiquitous, fast and affordable wireless broadband connectivity, mobile broadband competition, and more efficient spectrum use, including the reallocation of more prime spectrum for shared and unlicensed access. WiFu operates as part of New America’s Open Technology Institute. Contents Executive Summary 2 Background: The Opportunity for Gigabit Wi-Fi 5 Auto Safety, DSRC and the Intelligent Transportation Service Band 11 Global Developments 27 The New Regulatory Paradigm: General Purpose Sharing, Not Special Purpose Silos 30 Safety and Sharing: Options for Shared Access to 5.9 GHz Band 34 Conclusion and Policy Recommendations 38 Endnotes 41 EXECUTIVE SUMMARY The enormous and increasing economic value of Wi-Fi using the IEEE’s 802.11ac standard is designed unlicensed spectrum for both personal and business specifically to operate on the wider, contiguous productivity is well-documented. In addition to channels available only in the 5 GHz band. Using generating more than $200 billion in value for the U.S. 802.11ac, Wi-Fi routers can support multiple, economy each year, unlicensed spectrum serves as simultaneous high-bandwidth uses, such as parallel an incubator of wireless innovation, including as the streams of very high-definition video, and with better connective tissue of the emerging Internet of Things. A performance. The benefits of leveraging 80 and 160 single application – Wi-Fi – already carries between 60 megahertz channel sizes in the 5 GHz band include and 80 percent of all mobile device data traffic, making gigabit network capacity, enhanced performance for wireless Internet access far more available, fast and video, improved hotspot coverage and longer battery affordable for consumers. use. Realizing this public benefit will depend, to a considerable degree, on unlicensed sharing of at least Unfortunately, there are obstacles to extending and the lower portion of the 5.9 GHz band. expanding the public interest benefits of Wi-Fi. One challenge is that the unlicensed bands themselves Currently, the 75 megahertz at the top of the U-NII-4 are becoming congested, particularly in cities and band (from 5850 to 5925 MHz) is allocated on a primary other densely populated areas where many users are basis for Intelligent Transportation Systems (ITS), a sharing spectrum in order to operate increasingly set of technologies the auto industry is developing for high-bandwidth applications like video chat and future vehicle-to-vehicle (V2V) and possibly vehicle- streaming video. Although unlicensed bands are to-infrastructure (V2I) wireless signaling systems. The used very efficiently – due to sharing and small-area ITS band is channelized for auto industry use of a re-use of spectrum – the FCC has not increased access specialized IEEE 802.11 standard known as Dedicated to unlicensed spectrum at the same pace as it has for Short-Range Communications (DSRC). More than 15 licensed services. years after the FCC allocated the band to the auto A second related challenge to the nation’s broadband industry on a co-primary basis, the band mostly lies goals is throughput capacity. With more and more fallow – even as wireless technologies have flourished users demanding increasingly high-bandwidth and as an industry. real-time applications, such as high-definition video When ITS America initially petitioned the FCC for calling and streaming, the 20 megahertz wide channels a dedicated band of spectrum, it emphasized non- that characterize today’s Wi-Fi do not offer enough safety services such as navigation assistance, in- capacity to accommodate the projected increases vehicle signage, driver advisories, toll collections in demand for mobile data. Wider channels will be and fleet management for commercial enterprises. critical to fuel very high-bandwidth apps and pervasive Today the focus of DSRC technology, at least for connectivity. This is particularly true in the enterprise the U.S. Department of Transportation (DOT) and environment and in user-dense venues such as schools, hotels, retail malls and sporting events. its safety agency, the National Highway Traffic Safety Administration (NHTSA), has shifted to very As Wi-Fi transports an increasing majority of the narrowband vehicle-to-vehicle signaling applications nation’s mushrooming mobile data traffic, Americans designed to warn drivers of impending vehicular will need both more unlicensed spectrum and the hazards and thereby avoid accidents before they occur. wider channels necessary to handle higher-bandwidth Real-time V2V safety applications require at most three applications and higher-density demand. Opening channels (30 megahertz). The auto industry wants large contiguous tracts of spectrum in the 5 GHz band to retain near-exclusive use of the full 75 megahertz, for unlicensed sharing is key to creating the “wider without an auction and at no charge, but most of it pipe” required for gigabit Wi-Fi networks. would be used for commercial applications unrelated OPEN TECHNOLOGY INSTITUTE | SPECTRUM SILOS TO GIGABIT WI-FI 2 to safety. Furthermore, most of these non-safety and effective. Ultimately, the future is likely to be applications are already being delivered today over dominated by a mix of semi- and fully-autonomous general-purpose wireless networks (e.g., cellular and vehicles that use a combination of driver-assist Wi-Fi). technologies to automatically sense-and-avoid accidents. Companies including Google have already Policymakers grappling with the question of extensively road-tested fully autonomous vehicles and whether DSRC systems can share all or at least part the new Tesla Model S includes an “autopilot” system of the 5.9 GHz band with Wi-Fi and/or other low- integrating cameras, radar, GPS and ultrasonics. None power unlicensed technologies should consider the of these driver-assist or autonomous car safety systems broader context in which a V2V mandate would be use or rely on DSRC. implemented: First, there is a critical distinction between DSRC A single application – Wi-Fi – safety-of-life applications and DSRC informational already carries between 60 and 80 applications. Non-safety DSRC applications are likely to include in-car information that enables services percent of all mobile device data such as turn-by-turn directions, traffic and weather traffic, making wireless Internet alerts, wireless payments at gas stations or parking access far more available, fast and garages, and display advertisements from roadside vendors. In making spectrum allocations, it is affordable for consumers. important to identify and separate out the spectrum requirements for safety-of-life applications specifically. Even if NHTSA adopts a V2V mandate, most of the Most of the informational services DSRC technology ITS band would not be used for real-time crash is touted to deliver are already publicly available avoidance or public safety purposes. From the outset, via smartphone applications and other mobile edge the auto industry has emphasized other potential providers. And as ubiquitous, high-speed cellular and
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