The FCC is beginning a proceeding on removing regulatory impediments to "smart" radio. What makes a radio "smart?" Well, software-defined radio would clearly qualify. But there are intermediate steps too, like making radio transmitters and receivers more interference-resistant. If done right, it could be a step towards the spectrum "Supercommons." If done wrong, it'll be just another way for the wealthy licensees of radio spectrum to further deploy a control model on the space. (FCC's announcement inside).
FCC OPENS PROCEEDING ON SMART RADIOS
Washington, D.C. - In light of the ever increasing demand for radio
spectrum, and to facilitate new technologies and services and permit more
intensive and efficient spectrum use, the Federal Communications Commission
today adopted a Notice of Proposed Rulemaking (Notice) and Order that sets
forth proposals and seeks comment on the use and applications for cognitive
"smart" radio systems. The Commission's proposals would provide additional
technical and operational flexibility for service providers, particularly
in rural and underserved areas, and also offer the potential for
facilitating increased interoperability for public safety first
responders. As a result, consumers may benefit from new and enhanced services.
Smart radios have the technical capability to adapt their use of spectrum
in response to information external to the radio. For instance, a system
could use geolocation information to determine whether certain
transmissions are permissible. Alternatively, such radios could sense
their operating or radiofrequency (RF) environment and use this information
to determine the optimal frequencies and transmit powers to use, while
avoiding harmful interference. Many smart radios also can interpret and
transmit signals in different formats or modulation schemes. Because of
their technical and operational flexibility, they also make it possible to
use vacant spectrum channels - that is, spectrum that may be available in a
particular geographic location or during a particular period of time -
spectrum that would otherwise go unused.
Certain smart radio capabilities are employed to some extent today in
applications such as commercial mobile wireless services and wireless local
area networks (WLANs). Further advancements in the technology promise
greater future benefits.
The Notice seeks comment on the ways in which the Commission can encourage
and remove regulatory impediments to continued development and deployment
of smart radio technologies, including, for example, facilitating the
ability of licensed spectrum users to deploy them for their own use to
increase spectrum efficiency, and to facilitate secondary markets, allowing
licensees to lease their spectrum access to third parties using such
technologies. The Notice also seeks comment on ways in which smart radios
can facilitate opportunistic use of the spectrum by unlicensed devices,
while protecting incumbents from harmful interference.
In addition, the Notice seeks comment on rules permitting additional
technical flexibility, including allowing unlicensed devices in limited
bands to use higher transmit powers in rural and underserved areas. This
would potentially reduce network infrastructure costs, facilitating
broadband and other services in these areas. The Notice also seeks comment
on a specific technical approach that would provide licensees with the
ability to retain real-time access to spectrum they lease to third parties,
such as public safety entities, if the Commission decides to permit such
leasing. Also, the Notice seeks comment on how smart radios could
facilitate public safety interoperability. Specifically, because of their
frequency agility, smart radios may potentially be used as a communications
bridge between two different radio services - effectively translating the
signals from one service into the format and frequency of another. This
could enhance the ability of different public safety entities to
communicate with one another in the event of an emergency.
The Notice also seeks comment on specific applications for smart radios,
such as mesh networks and real-time frequency coordination between NGSO
satellite and other services. Further, the Notice proposes changes to the
Commission's equipment authorization processes to better accommodate
software-defined radios and smart radio systems.
Action by the Commission December 17, 2003, by Notice of Proposed
Rulemaking and Order (FCC 03-322). Chairman Powell, Commissioners
Abernathy, Copps, Martin, and Adelstein, with separate statements issued by
Chairman Powell, Commissioners Copps, Martin, and Adelstein.
Office of Engineering and Technology contact: Mr. Hugh L. Van Tuyl, (202)
418-7506, e-mail Hugh.VanTuyl@fcc.gov or Mr. James Miller, (202) 418-7351,
e-mail James.Miller@fcc.gov.
ET Docket No. 03-108
FCC
SEPARATE STATEMENT OF
CHAIRMAN MICHAEL K. POWELL
Re: Facilitating Opportunities for Flexible, Efficient, and Reliable
Spectrum Use Employing Cognitive Radio Technologies (ET Docket No. 03-108);
Authorization and Use of Software Defined Radios (ET Docket No. 00-47),
Notice of Proposed Rulemaking and Order (Adopted December 17, 2003)
Today we take another step forward to improve access and efficiency of our
Nation's spectrum and to provide opportunities beyond today's horizon. I
am pleased to support this item that grew out of the Spectrum Policy Task
Force and that explores the many benefits of smart radio technology and its
real-time processing capabilities. Last week, I had the pleasure of
visiting several high-tech companies and met with tribal communities that
are taking advantage of these new and innovative technologies.
Recent advances in smart radio technologies have the potential to provide
more innovative, flexible, and comprehensive use of spectrum while at the
same time minimizing the risk of harmful interference. On a real-time
basis, smart radios determine their location or environment, have the
flexibility to select the best frequencies to use, know how to avoid
interference with existing users, and can use vacant spectrum
channels. Not only do they have flexibility to use a variety of
frequencies, they also can understand and transmit in many different formats.
Smart radio technologies also offer potential solutions to the increasingly
crucial interoperability demands facing public safety entities and other
licensed users to enable them to coordinate response and recovery efforts
and ensure national security. Because they can use different frequencies
and modulation techniques, smart radios could also translate signals
between two different radio systems. This ability may enable more
interoperability between public safety first responders - so that, in an
emergency, firefighters from one jurisdiction could more effectively
communicate with firefighters in another jurisdiction.
Today's Notice of Proposed Rulemaking and Order is part of a larger effort
to expand opportunities for wireless services in rural America. We
recently adopted two Notices of Proposed Rulemakings designed to foster
advanced telecommunications in rural America. First, an NPRM on how we can
clarify rules to minimize regulatory costs and provide incentives to serve
rural markets. And second, an NPRM on modified power limits, new
technologies such as smart antennas, and streamlined equipment approval.
In this proceeding, we will consider the technical capabilities as well as
proposed changes to the Commission's rules and equipment authorization
processes to accommodate and enable more efficient use of software defined
radio and cognitive radio system technologies. Of special note is the
potential of smart radios to facilitate spectrum leasing transactions,
including possible leasing of public safety spectrum that would not
otherwise be possible without the technology.
The possible uses for smart radios are wide ranging. The challenge before
the Commission is to determine how we can open the door for these
technologies so as not to shut out any of their tremendous potential.
SEPARATE STATEMENT OF
COMMISSIONER MICHAEL J. COPPS
Re: Facilitating Opportunities for Flexible, Efficient, and Reliable
Spectrum Use Employing Cognitive Radio Technologies (ET Docket No. 03-108);
Authorization and Use of Software Defined Radios (ET Docket No. 00-47),
Notice of Proposed Rule Making and Order (Adopted December 17, 2003)
Cognitive radios have the potential to be a powerful tool for increasing
spectral efficiency while keeping interference at acceptably low
levels. So, I hope that this NPRM keeps us moving in the direction of
allowing consumers and companies to take advantage of these new
technologies. I am also eager to explore the idea of allowing higher power
levels for unlicensed technologies in rural areas. The wireless networking
community has been asking for this for a long time now. If higher powers
allow them to bring more service to under-served areas, and more
competition to areas largely bereft of competition, we are already late to
the game. So I'm glad we're moving forward.
Finally, I want to note that while this NPRM examines technologies that
would allow public safety entities such as police departments and fire
companies to lease spectrum to non-public-safety users, I will need to be
convinced that this is a good idea before voting to allow it. While I want
to increase the efficiency of spectrum use in crowded bands, I will need to
see proof that allowing commercial operation in the same bands relied on by
policemen and firemen is safe. And I will need to be convinced that the
lure of big dollar figures from commercial companies will not lead to
states and municipalities living in difficult budget environments to lease
out not only extra spectrum, but also core spectrum.
SEPARATE STATEMENT OF
COMMISSIONER KEVIN J . MARTIN
Re: Facilitating Opportunities for Flexible, Efficient, and Reliable
Spectrum Use Employing Cognitive Radio Technologies (ET Docket No. 03-108;
Authorization and Use of Software Defined Radios (ET Docket No. 00-47),
Notice of Proposed Rulemaking and Order
I am very pleased to support this item, which seeks to facilitate the
development of cognitive or "smart" radio technology. Cognitive radio
technology has truly great potential to improve spectrum access and
efficiency. Among other things, the technology allows for greater sharing
of spectrum. As I have previously discussed, promoting spectrum sharing is
a fundamental part of encouraging efficient spectrum usage. See, e.g.,
Remarks by Kevin J. Martin to the FCBA Policy Summit & CLE, U.S. Spectrum
Policy: Convergence or Co-Existence? (Mar. 5, 2002). While the amount of
available spectrum is ultimately limited only by technology, the spectrum
supply currently feels very limited. Sharing spectrum is a crucial means
to get more mileage out of this important resource.
See id. Cognitive radio technology allows for greater spectrum sharing by
enabling devices to find and use available spectrum in different
frequencies, times, or spaces. This can be as simple as frequency hopping
in a wireless local area network or as advanced as DARPA's XG program,
which would allow multiple users to share common spectrum by avoiding
conflicts in time, frequency, code, and other signal characteristics. I am
confident that we will see even greater advances in spectrum sharing
through cognitive radio technology, and the Commission should do what it
can to facilitate such advances.
Cognitive radio technology also makes possible improved spectrum access in
rural areas. Many Wireless Internet Service Providers (WISPs) are using
unlicensed spectrum to provide innovative services in rural areas but are
finding it difficult to provide adequate signal coverage because of our
current Part 15 power limits. This item proposes allowing such providers to
increase their power input if they use cognitive radio technology to avoid
interference to other users. I am very supportive of this proposal, and I
look forward to receiving comments.
Cognitive radio technology also has great potential for enabling
interoperability among public safety agencies. Lack of interoperability
has been identified as a significant problem in our response to the
September 11 attacks and in other disasters involving multiple
jurisdictions, and we must all focus on improving
interoperability. Cognitive radio technology can play an important part in
that improvement by enabling devices to bridge communications between
jurisdictions using different frequencies and modulation formats. Through
such a mechanism, a fire department from Long Island could communicate
effectively with a police department from Manhattan even if they use
completely different radio systems. Such interoperability is crucial to
enabling public safety agencies to do their jobs.
Accordingly, for all of these reasons, I look forward to receiving comment
on how we can best promote cognitive radio technology.
SEPARATE STATEMENT OF
COMMISSIONER JONATHAN S. ADELSTEIN
Re: Facilitating Opportunities for Flexible, Efficient, and Reliable
Spectrum Use Employing Cognitive Radio Technologies ET Docket No. 03-108;
Authorization and Use of Software Defined Radios (ET Docket No. 00-47),
Notice of Proposed Rulemaking and Order
Earlier this year, I had the privilege of helping the Office of Engineering
and Technology open its workshop on cognitive radio technologies. At that
time, I remarked that cognitive radios can potentially play a key role in
shaping our spectrum use in the future. I believe that these technologies
should lead to the advent of smarter unlicensed devices that make greater
use of spectrum than is possible today. Cognitive radios may also provide
licensees with innovative ways to use their current spectrum more
efficiently, and to lease their spectrum more easily on the secondary
market. I had the opportunity to see cognitive radios demonstrated during
the past year and am just amazed by their potential.
It is for all of these reasons that I am so pleased this item on cognitive
radios is before us today. I recently restated my interest in having the
Commission make more of an effort to get spectrum in the hands of people
who are ready and willing to use it. This is such a timely discussion of
the very latest radio technologies and of how we can best harness these
developments to improve access to spectrum by those providers who want to
serve underserved areas. Spectrum is a finite public resource. And in
order to improve our country's use of it, we need to improve access to
spectrum-based services, and this effort will facilitate that process.
I am particularly pleased with our proposal to allow higher power operation
for unlicensed devices operating in rural and other areas of low spectrum
use. We heard last month at our wireless ISP forum that operators across
the country need improved access to spectrum. Improving access to spectrum
can drive broadband deployment deeper and farther into all parts of
America. This item takes such an important step in making that broadband
deployment more of a reality.
I believe that cognitive radios will play an important role in "spectrum
facilitation." That means stripping away barriers - regulatory, economic,
or technical - to get spectrum into the hands of operators serving
consumers at the most local levels. Cognitive radios can literally
leapfrog the technical and legal problems that currently hamper many of
today's spectrum access opportunities. Spectrum policy is a two-sided coin:
a framework for innovation on one side, with spectrum facilitation on the
other.
I also find the discussion of interruptible spectrum leasing very
interesting. Such a development may enable previously reluctant licensees
to explore a technological fix to address some of the current challenges of
spectrum leasing. While I remain unsure that we should actually allow
public safety licensees to potentially lease their spectrum to commercial
providers, I appreciate the value in having a discussion on the technical
aspects of interruptible spectrum leasing and its possible use by public
safety licensees.