Wireless Technologies and the National Information Infrastructure September 1995 OTA-ITC-622 GPO stock #052-003-01421-1 Recommended Citation: U.S. Congress, Office of Technology Assessment, Wireless Technologies and the National Information Infrastructure, OTA-ITC-622 (Washington, DC: U.S. Government Printing Office, July 1995). oreword he United States is in the midst of a fundamental restructuring of its communications and information technology infrastructure. Con- gress, the executive branch, and the states all are attempting to deter- mine how to combine the country’s many different networks—tele- phone, computer, cable television, cellular telephone, satellite, and broadcasting—into a broader National Information Infrastructure (NII). The private sector is spending billions of dollars developing systems to bring a wide variety of improved services to businesses and consumers. Wireless technolo- gies, including radio and television broadcasting, satellites, cellular and other mobile telephones, and a variety of data communication systems, make up one of the most vibrant elements of this new telecommunications order, and will offer the American people new and more flexible ways to communicate with each other, access information resources, and receive entertainment. However, realizing the benefits of wireless technologies while avoiding potential ob- stacles and adverse consequences will require a long-term commitment to overseeing the changes now being set in motion. Government and private sec- tor representatives must cooperate to ensure that wireless and NII goals and policies work together. This report examines the role wireless technologies will play in the emerg- ing NII and identifies the challenges that policymakers, regulators, and wire- less service providers will face as they begin to more closely integrate wireless systems with existing wireline networks. The report provides Congress with a broad overview of the wireless technologies being developed and discusses the technical, economic, and public policy issues associated with deploying them. Potential policy options are presented to help ensure a smooth transition to an integrated wireline/wireless NII. The report also discusses some of the techni- cal and social implications of the widespread use of wireless technologies— paying particular attention to the profound changes that wireless systems may cause in patterns of mobility. OTA appreciates the assistance of the project advisory panelists, workshop participants, and contractors who contributed to the study. OTA also thanks the many representatives of industry; federal, state, and local government offi- cials; and members of the public who were so generous with their attention and advice. OTA values their perspectives and comments; the report is, however, solely the responsibility of OTA. ROGER C. HERDMAN Director iii dvisory Panel Alfred F. Boschulte Jim Lovette Jim Strand President and Chairman Principal Scientist President NYNEX Mobile Apple Computer, Inc. Lincoln Telecommunications Communications Co. John Major William F. Sullivan Timothy J. Brennan Senior Vice President General Manager Resources for the Future Motorola, Inc. KPAX-TV Steven D. Dorfman Howard Miller Laurel L. Thomas President Senior Vice President, Broadcast Telecommunications Consultant Hughes Telecommunications Public Broadcasting Service and Space Co. Marilyn B. Ward Alex Netchvolodoff Division Commander Francis J. Erbrick Vice President, Public Policy Orlando Police Department Senior Vice President Cox Enterprises, Inc. United Parcel Service Daniel Weitzner Stewart D. Personick Deputy Director Susan Hadden1 Assistant Vice President Center for Democracy and Professor Bellcore Technology LBJ School of Public Affairs The University of Texas at Austin William W. Redman, Jr. ________________ Commissioner 1Deceased. Ellwood R. Kerkeslager North Carolina Utilities Vice President Commission AT&T W. Scott Schelle Rob Kling (Chairman) Chief Executive Officer Professor American Personal University of California, Irvine Communications iv roject Staff Peter D. Blair PRINCIPAL STAFF ADMINISTRATIVE STAFF Assistant Director, OTA David Wye Liz Emanuel Industry, Commerce, and Project Director Office Administrator International Security Division Todd La Porte Karolyn St. Clair James W. Curlin Analyst PC Specialist Program Director* Industry, Telecommunications, and Commerce Program Alan Buzacott Diane Jackson Analyst Administrative Secretary Andrew W. Wyckoff Program Director Greg Wallace Karry Fornshill Industry, Telecommunications, Research Analyst Secretary and Commerce Program Jean Smith CONTRACTORS Editor Bruce Egan Consultant Glenn Woroch University of California, Berkeley Philip Aspden and James Katz Bellcore George Morgan Center for Wireless Telecommunications Virginia Polytechnic Institute and State University ________________ *Until September 1994 v ontents EXECUTIVE SUMMARY 1 Part A: Overview 5 1 Introduction and Policy Issues 5 Request for the Study 6 Scope of the Study 7 Background: The NII 8 Why Wireless? 13 Policy Environment 25 Findings and Policy Options 29 2 Mobility and the Implications of Wireless Technologies 47 Findings 48 Selected Examples of Mobile Wireless Services 48 Characteristics of Mobility 52 Jobs and Mobility 53 Implications of Increased Mobility 55 Part B: Wireless Technologies and Applications 65 3 Voice Technologies and Applications 67 Findings 68 Mobile Voice Services 69 Fixed Wireless Technologies 95 4 Wireless Data 99 Findings 99 Wireless Data Services 101 Wireless Data Systems 104 Issues and Implications 124 vi 5 Broadcast and High-Bandwidth Services 133 Findings 133 Background 137 Radio Broadcasting 137 Video Programming Services 144 Emerging High-Bandwidth Services 162 Part C: Issues and Implications 167 6 Standards and Interoperability 169 Findings 169 The Wireless Standards-Setting Process 171 Cellular and Personal Communications Service Standards 175 Interoperability of Wireless and Wireline Networks 181 7 Regulation of Interconnection 185 Findings 185 LEC Interconnection Obligations 187 Interconnection Obligations of Wireless Carriers 194 8 Zoning Regulations and Antenna Siting 201 Finding 202 Background 203 General Court Guidelines on Federal Preemption 206 The Case for Federal Preemption 207 The Case Against Federal Preemption 209 9 Wireless Technologies and Universal Service 213 Findings 214 The Role of Wireless Technologies in Universal Service 215 Policy Issues 220 10 Privacy, Security, and Fraud 223 Findings 224 Confidentiality and Privacy 225 Cellular and Other Wireless Fraud 233 vii 11 Health Issues 239 Findings 239 The Controversy Surrounding Health Effects 241 Biological and Health Effects of Wireless Telecommunications 243 12 Electromagnetic Interference and Wireless Devices 251 Finding 251 Background 252 Interference With Medical Devices 252 Interference With Aircraft Control Systems 255 Unanticipated Interactions Among Large, Complex Systems 257 APPENDIXES A Radio Communications Basics 259 B Federal Government Roles 269 C Acronyms and Glossary of Terms 275 D Reviewers and Contributors 279 E Workshop Participants 283 INDEX 285 viii xecutive Summary ver the next five to 10 years, wireless technologies will dramatically reshape the communications and informa- tion infrastructure of the United States. New radio–based systems now being developed will use advanced digital technologies to bring a wide array of services to both residential and business users, including ubiquitous mobile telephone and data services and many new forms of video programming. Exist- ing wireless systems, including radio and television broadcast- ing, cellular telephony, and various satellite and data networks, will also convert to digital technology. This will allow them to improve the quality of their services, expand the number of users they can serve, and offer new information and entertainment ap- plications. Before the benefits of these wireless systems can be realized, however, technical, regulatory, and economic uncertain- ties must be resolved. This report examines the role wireless com- munication technologies will play in the evolving National Information Infrastructure (NII), examines the challenges facing policymakers and regulators as wireless becomes a more integral part of the telecommunications and information infrastructure, and identifies some of the longer term implications of the wide- spread use of wireless systems and services. BACKGROUND The public’s imagination has been captured by notions of an “in- formation superhighway.” Newspaper articles, television adver- tisements, and technical journals are filled with visions of communication services that allow people to transmit and receive phone calls, computer files, images, and even movies; people working anywhere—at the beach, in their homes, or in their cars; and hundreds of channels of entertainment programming, includ- |1 2 | Wireless Technologies and the National Information Infrastructure ing movies on demand. The foundation for these Second, radio–based systems can offer more visions, the technologies that will make them pos- flexible and affordable access to the nation’s in- sible, is formally known as the National Informa- formation/communication resources—not only tion Infrastructure. The NII is conceived as a for mobile users, but also for those who may be ubiquitous, interconnected series of telecommu- tied to a particular location. Wireless technology nications networks and computer–based services can extend wire–based (telephone,