Policy paper

Public sector spectrum framework

Published 9 July 2025

Summary

Spectrum refers to the invisible radio waves that enable all wireless technologies, from our mobile phones, Wi-Fi and Bluetooth devices to aircraft navigation, satellite and military applications, among others.

Spectrum also has an important enabling role to play in addressing major upcoming policy challenges, including in digital connectivity, space-based science, resilience of critical national infrastructure, and defence applications.

As the number of wireless devices continues to grow, the demand for spectrum from both Crown and civil applications grows too. It is therefore essential that this finite resource is managed efficiently to ensure optimal use, maximise access for different users and services, and to support wider government policy priorities.

In the UK, Ofcom is responsible for managing spectrum and licensing civil spectrum use. Crown bodies – government departments or some agencies - do not need authorisation or a licence from Ofcom to install or use radio equipment. This is known as Crown immunity.

Department for Science, Innovation and Technology (DSIT) is the lead government department for spectrum policy. This document outlines the government’s new framework to coordinate spectrum use across government.

Our primary goals in establishing this framework are:

1. To ensure that Crown spectrum users have access to the spectrum they need to support strategic government priorities and deliver critical services.

2. To ensure efficient use of spectrum and enable opportunities to maximise spectrum value and support growth by sharing spectrum with civil applications, where possible.

Our intention is to establish an enduring framework with a focus on periodic reviews of Crown spectrum demand, reviewed alongside inputs from Ofcom on demand for spectrum access from civil users, and innovative approaches to enabling shared use of spectrum.

It has been several years since the government last set out its approach to managing Crown spectrum use. This framework provides clarify to wider stakeholders on the process for coordinating spectrum use across government and the government’s priorities in doing so.

The previous Public Sector Spectrum Release (PSSR) programme has driven greater efficiency in public sector use of spectrum over the past decade, releasing a significant amount of spectrum for other uses. We will continue to look at options for release where opportunities emerge. However, our focus under this framework will be on spectrum sharing and innovation – which we expect to be increasingly important given the growing pressure on this finite strategic resource.

Enhancing the use of spectrum across government through this framework will help to improve the performance and productivity of government while creating new opportunities for access to valuable spectrum bands, supporting growth and innovation throughout the economy.

Managing spectrum use in the UK

In the UK, Ofcom is responsible for spectrum management under two Acts of Parliament: the Communications Act 2003 and the Wireless Telegraphy Act 2006. With the exception of Crown use of spectrum, Ofcom is responsible for authorising access to spectrum and setting and enforcing the rules by which people can transmit using radio technology. The Wireless Telegraphy Act does not bind the Crown, so Crown bodies do not need authorisation or a licence from Ofcom to install or use radio equipment as they have Crown immunity.

The public sector is a major user of spectrum for a variety of services and applications. These include defence applications, the emergency services, UK space activities, weather and climate science, among others. The majority of Crown spectrum use is for defence, however other departments and agencies – including the Department for Transport, the Home Office, UK Space Agency, the Science and Technology Facilities Council (STFC) and the Met Office – also use spectrum under Crown Immunity.

Some wider public sector uses do not access spectrum under Crown immunity and are instead licensed directly by Ofcom (e.g. police and fire services) This may be because the relevant applications align more closely with civil use cases, making it more practical to manage them through Ofcom’s licensing regime rather than Crown use. Ofcom has a duty, set out in the relevant Acts, to ensure efficient use of spectrum. The focus of this document is on Crown spectrum use, though wider public sector use of spectrum will be considered where relevant.

Governance

The Department for Science, Innovation and Technology (DSIT) is the lead government department for spectrum policy. Its spectrum-focused work includes keeping the legal framework for spectrum management under review, setting strategic direction for Ofcom to consider in its spectrum management functions, including in international spectrum negotiations, and leading cross-government policy on public sector spectrum use.

Crown spectrum use is recognised in the United Kingdom Frequency Allocation Table (UKFAT) and changes to this Crown use must be approved by the government. Given the importance of coordinating Crown and broader spectrum use to ensure the optimal use of spectrum overall, relevant departments and agencies work closely with Ofcom, for example, to minimise interference. DSIT provides cross-government coordination and sets overall policy on spectrum, including around release or sharing of spectrum used by the Crown for civil applications.

The UK Spectrum Board, the senior cross-Government official-level working group on spectrum, and the supporting Spectrum Implementation Group (SIG), provide forums for discussing such changes of use and wider policy on Crown use of spectrum. Any change in Crown use, including release or sharing, is agreed by the governance process within the relevant department(s).

DSIT chairs the Spectrum Board and is responsible for the organisation of regular meetings and engagement with members and observers. Ofcom attends the Spectrum Board as an observer, providing independent advice to government on spectrum matters where appropriate.

Trends in spectrum use

The growth in the number of wireless devices and applications has resulted in changing demand over time for both public and private sector spectrum users. There is now an ever-greater range of demands for access to certain frequency bands and an increasing use of higher frequencies.  

Examples of trends in the evolving use of spectrum include the rapid growth of mobile data consumption, the growth of private networks using 4G and 5G technology, the deployment of non-geostationary satellites, the growth of wireless machine-to-machine technologies, and advancements in the equipment used for a wide range of spectrum applications.

There are also several changes affecting Crown and wider public sector spectrum use. For example, effective use of spectrum has long been recognised as a critical enabler for military success. Changing demand for spectrum for defence applications is being driven by the need for improved situational awareness, intelligence, drones, ever increasing data rates and target detection at greater distances, to name but a few.

Spectrum use by the emergency services is also evolving. Currently, their needs are predominantly met by the long-established Tetra based Airwave service. This is planned to be replaced by the 4G/LTE Emergency Services Network (ESN) to meet the evolving nature of emergency service’s critical communication needs. Whilst ESN will make use of suitably enhanced commercial mobile networks with existing spectrum allocations in many cases, it may be that some vital requirements are most appropriately met in other ways, including Crown use. Ensuring the appropriate spectrum solution is in place will be critical to ensuring ESN meets its coverage and functionality objectives.

The earth and space science community continue to rely on the availability and appropriate protection of spectrum for climate science, weather and related high impact services. These services often require access to spectrum which is internationally harmonised for these uses and has strict protection from interference.

Maximising access to spectrum

Growing spectrum demand from both Crown and civil users emphasises the importance of promoting more efficient use of spectrum with more sharing and coordination between users. This framework will ensure that spectrum continues to support our mission of driving sustained economic growth, while accelerating innovation, investment and productivity across the country. At the same time, it will safeguard Crown access to the spectrum needed to support strategic government priorities and deliver critical services.

The following principles for spectrum policy and regulation underpin our approach:

1. Spectrum is a strategic asset and an important enabler for a range of government policy objectives. For example, national security is one of the primary objectives of government and spectrum has a strategically important role in fulfilling that objective.

2. Spectrum management should promote innovation and investment alongside consumer-focused outcomes. Access to appropriate spectrum is a key factor in unlocking economic growth, innovation and investment. We want to ensure that the UK continues to be at the forefront of wireless infrastructure and technology, from next generation satellites to future wireless applications in healthcare, manufacturing and defence, among many others. To do this, access to spectrum must support innovation, ensuring the UK is an attractive home for investment.

3. Spectrum management should ensure efficient and optimum use and be linked to actual usage where appropriate. As demand for spectrum increases, a renewed focus on more efficient use of spectrum is essential to maximise value from spectrum. A wide range of measures can support this, from incentivising more interference-resilient and spectrally efficient technologies, to use of local and shared spectrum, and encouraging the transfer or sharing of lightly used spectrum to additional or alternative users.

4. Spectrum management should itself take best advantage of innovation as well as supporting innovation in the services which use spectrum. Alongside innovation in the technologies and services that use spectrum, innovation in spectrum management, from advanced market mechanisms to automated and dynamic licensing tools, can drive more efficient use of spectrum, boosting spectrum value and supporting growth. There is also an important role for innovation in public sector spectrum use. For example, dynamic spectrum access could enhance civil access to Crown use spectrum while protecting critical services.

The UK has been a trailblazer in innovative spectrum management and we want this to continue. We must continually strive to maximise the use of and access to spectrum. This requires a range of measures, one of which is enhancing our Crown use of spectrum. Advances in technology and new spectrum management techniques continue to enable more efficient use of spectrum, for example, through improved resilience to interference and spectrum licensing more closely linked to spectrum utilisation.

On shared access to spectrum, Ofcom took an important and pioneering step with the introduction of its 2019 spectrum sharing framework, enabling localised shared access to spectrum bands that support mobile technology. Ofcom’s spectrum sandboxes - where players can come together to test spectrum sharing scenarios that are not currently possible in ordinary licensing conditions – also offer a new mechanism for further investigation into innovative spectrum access techniques and technologies.

DSIT’s spectrum sandbox programme explored enhanced sharing between Wi-Fi and mobile services, and between localised, private wireless networks. These 12-month projects, supported by £5 million of DSIT funding, also examined the extent to which new technologies could support spectrum sharing and enable a less conservative approach to spectrum management. This research generated useful insights for the future of spectrum access in the UK.

In line with our wider focus on innovation in the use and management of spectrum to maximise the overall value of spectrum use to the UK, this document is intended to ensure that we have the right framework in place to promote efficiency and innovation across Crown spectrum use.

Previous public sector spectrum release programme

As part of the 2010 Spending Review, there was a commitment to implement a Public Sector Spectrum Release (PSSR) programme. At the time, spectrum was becoming more important for a wide range of uses and the government committed to consider how it used spectrum and to make available any spectrum that could be released for civil use.
The original target was for the public sector (i.e. Crown users) to make 500 MHz of spectrum below 5 GHz available for private sector use by the end of 2020. This was later extended to 500 MHz below 10 GHz by the end of 2020, with a stretch target of 750 MHz below 10 GHz by the end of 2022.

The core aims of the PSSR programme were to:

1. Take better account of spectrum usage across the whole public sector
2. Improve the coordination of spectrum use across the public sector
3. Manage public sector spectrum holdings as a national asset, incorporating greater shared use of spectrum and release for private sector use wherever practical

The focus of the programme was identifying priority candidate bands for sharing or release, undertaking work to understand the options for sharing or release in those bands, and where necessary coordinating remediation works to allow civil use of spectrum previously used by the Crown. For shared spectrum to be counted towards the release target, the shared spectrum had to meet most of the potential civil demand in the band.

That programme ended in December 2022 having delivered significant value through 687 MHz of released or shared spectrum. This is a considerable amount of valuable spectrum and included making spectrum available in the 3.4 GHz band, which enabled the first 5G mobile deployments in the UK. The table below details the spectrum released or shared.

Band	Lead department	Date	Quantity (MHz)	Status
70.5-71.5 MHZ; 80-87.7 MHZ; 138.0875-138.1125 MHz; 138.2875-138.3125 MHz	HO	2012	9	Released
1668-1670 MHz 1698-1700 MHz	HO	2012	4	Released
870-872 MHz 915-917 MHz	MOD	2014	4	Released
960-1164 MHz	Civil Aviation Authority	2016	92	Shared
2025-2070 MHz	MOD	2015	45	Shared
Upper 2.3 GHz (2350-2390 MHz)	MOD	2015	40	Released This band was released in Great Britain only due to ongoing use or planned use in Northern Ireland
3.4 GHz (3410-3600 MHz)	MOD	2015	190	Released
7.9-8.4 GHz	MOD	2019	168	Shared
2390 – 2400 MHz	MOD	2015	10	Shared
5725 – 5850 MHz	MOD	2020	125	Shared
Total Release	no data	no data	687	no data

Alongside delivering a substantial amount of spectrum for civil use, the programme was also successful in improving our understanding of spectrum use across Crown users, establishing governance structures through the UK Spectrum Board, and promoting close collaboration between Ofcom and government departments on spectrum-related projects.

Post-PSSR programme: spectrum access projects

Work to explore opportunities for further sharing with civil users has continued since the conclusion of the PSSR programme. For example, the lower 2.3 GHz band has been under consideration for release or sharing opportunities for several years. After full release proved unviable due to the ongoing and expected demand for defence services, sharing options were considered and in 2024, 2.32-2.34 GHz was added to Ofcom’s shared access licence framework for low power private mobile networks, with ongoing Ministry of Defence use in the lower portion of the band.

The 26.5-27.5 GHz band is now also being made available for mobile use. This spectrum was out of scope of the PSSR programme (as the programme only included spectrum up to 10 GHz) but had been allocated for defence use. The Ministry of Defence worked closely with Ofcom to enable the release of this spectrum and in early 2025 Ofcom begun making it available for wireless services, including 5G and beyond.

This spectrum, referred to as millimetre wave spectrum, holds significant potential for innovative new applications due to its low latency, high data rate properties. Ofcom is taking an innovative approach to making this spectrum available, using both shared access licences available on a local basis, and auctions for major towns and cities. This approach and the availability of this spectrum, which was in part made possible by public sector release, has the potential to deliver advanced connectivity for business and people across the UK. Millimetre wave technology is expected to enable a wide range of advanced applications, including smart manufacturing and immersive technologies.

Under this new framework, we will build on these successes to ensure that spectrum is being shared between Crown and civil users wherever appropriate. Ongoing work looking at sharing possibilities, including options for the Programme Making and Special Events (PMSE) sector to access the 7 GHz band used by the Ministry of Defence for satellite downlink, will be continued and developed under the framework.

A new public sector spectrum framework

Spectrum access has an important role to play in enabling this government to achieve our missions. Many of the steps we are taking to kickstart economic growth, make Britain a clean energy superpower, or break down barriers to opportunity will require wireless technologies.

As the demand for spectrum to support both Crown and civil applications continues to grow, it is important that we continue to have a clear framework in place to ensure that we are maximising use and access wherever possible.

This framework will also serve a crucial function in maintaining coordination of Crown and wider public sector spectrum use across relevant departments. Spectrum is playing an increasingly important role in meeting the government’s strategic priorities and in our work with international partners to mitigate and address some of the biggest challenges of our time. It is therefore appropriate that we are clear as to how spectrum is being used, or expected to be used, to support these priorities across government. This framework will ensure coherence and coordination in the government’s demand for and use of spectrum. While we want to ensure that efficient use of spectrum remains a priority, and that spectrum is made available for civil applications whenever possible, we also need to ensure that the right spectrum is available to Crown users (and wider public sector users) to meet strategic priorities.

Adopting a target-based approach for the first phase of the Public Sector Spectrum Release Programme (PSSRP) was effective in providing clarity and identifying spectrum for release at a time when public sector spectrum use was relatively inefficient. Identifying further spectrum for outright release is likely to be increasingly complex and may not always be the best solution.

The new framework for public sector spectrum use will therefore be established on a sustainable, demand-led basis rather than a fixed release target. Whereas the PSSR programme focused on spectrum below 10 GHz, there will be no upper limit on spectrum bands within scope for consideration.

Given the potential challenges with more outright release of spectrum, the focus will be on sharing spectrum. This will include both sharing spectrum assigned for Crown use with civil users and identifying the need for new Crown user access to spectrum, where appropriate. It will also include ongoing scrutiny of Crown spectrum requirements and use.

Greater spectrum sharing between networks and users is expected to be an increasingly common feature of advanced connectivity and it is right that this innovation is considered across Crown use as well as civil. Innovative new technologies and spectrum management approaches, such as dynamic and automated tools, have the potential to make shared access more feasible where full release is not practical.

Framework outputs

The key outputs underpinning the new Framework will be:

1. Relevant government departments and agencies maintain and present an up-to-date overview of their current and expected future spectrum use to the Spectrum Board at least once every World Radiocommunication Conference (WRC) cycle.

Departments will provide a summary of spectrum applications and bands used, an assessment of the utilisation of relevant bands, and the scope for improving efficiency or sharing with other users.

This review should also highlight any new applications or areas of changing spectrum use or emerging demand and the associated spectrum access implications, including potential demand for access to additional spectrum.

This will provide continued cross-government senior awareness and scrutiny of Crown use of spectrum.

Relevant departments and agencies include the:

• Ministry of Defence
• Home Office
• Department for Transport
• Department of Health and Social Care
• Department for Energy Security and Net Zero
• Cabinet Office
• UK Space Agency
• Science and Technology Facilities Council
• Met Office

2. Ofcom presents a corresponding analysis of emerging demand signals to the UK Spectrum Board.

This analysis will highlight potential civil demand for key bands used by Crown users - resulting from international, market and technology developments - taking account of other spectrum access options available to these users.

Ofcom will continue to work with government departments and agencies to understand their current and future spectrum requirements, to allow Ofcom to appropriately consider emerging and strategic priorities from the public sector.

3. The UK Spectrum Board agrees a list of priority bands for further study.

Based on Ofcom’s assessment of demand signals from the market and departmental reports on their own spectrum demand, the UK Spectrum Board will identify and agree a list of priority bands where further study, providing more detailed analysis of departmental use and exploration of opportunities for sharing, would support efficient use of the spectrum.

The relevant department or agency will convene a project team to undertake this work, working with Ofcom where appropriate, and will report back to the UK Spectrum Board. Departments and agencies will also be expected to present areas of emerging demand and sharing potential to the UK Spectrum Board when identified and will provide rolling updates on sharing projects at each Board meeting.

4. The Spectrum Board will maintain a longer-term plan of projects.

In some cases, there may be constraints which mean that potential changes in spectrum use are not practicable for a period, but there is scope for value to be generated at a later point in time. Maintaining a longer-term awareness of these areas through the Spectrum Board will ensure that the government and Ofcom have a shared understanding of potential future sharing or change of use projects and to maximise spectrum value and access.

5. DSIT will work with Ofcom and relevant departments to maintain a table of public sector spectrum use across spectrum bands.

This will include a corresponding view of the associated opportunity cost in these bands. This will ensure the government has an overarching understanding of spectrum use across departments and agencies and may help to inform more complex sharing decisions in the future. This table will be reviewed and updated as appropriate subject to discussion at the Spectrum Board. The figure below provides an indicative illustration of the framework in practice.

Indicative illustration of the framework in practice

Read description of the indicative illustration of the framework in practice (Annex).

These core elements of the new framework build upon and enhance many of the successful components of the previous release PSSR programme. This framework aims to continue to promote effective coordination through the Spectrum Board and supporting Spectrum Implementation Group, identify and agree priority bands for upcoming work across relevant parties, maintain and improve our understanding of Crown and wider public sector spectrum use, and facilitate effective cooperation between Ofcom and relevant departments.

Given the sensitive nature of some public sector spectrum use, the reports produced under this new framework will not be published. The government will, however, publish periodic updates on Crown spectrum use and the implementation of the framework, as appropriate.

Conclusion

Spectrum-dependent technologies and services underpin much of how we each live and work. They also play a central role in our security, economy, and society. As the number of wireless devices continues to grow across all sectors and the nature of our communication with each other continues to change, maximising access to spectrum will be crucial. This finite resource must be managed effectively to ensure that it continues to be an enabler for growth, innovation and our wider strategic priorities.

This document is intended to establish an enduring framework for the coordination of cross-government work on Crown and wider public sector spectrum use, and to support new sharing opportunities with civil applications.

In line with our wider focus on innovation in the use and management of spectrum, this framework will ensure that we have the right mechanisms in place to promote efficient spectrum use and innovation across Crown spectrum users. It will also ensure that Crown users continue to have access to the spectrum needed to support strategic government priorities and deliver critical services.

This framework has been developed collaboratively between DSIT, government departments with spectrum interests, and Ofcom to ensure it is fit for purpose and achieves our shared goals.

Annex: accessibility information

Description of an indicative illustration of the framework in practice

(For the indicative illustration of the framework in practice image).

• Periodic review of current and expected future public sector spectrum use to be completed at least once every WRC cycle
  • Departments and agencies present overview of current and future spectrum use to Spectrum Board
  • Ofcom presents analysis of emerging civil demand signals to Spectrum Board
  • Spectrum Board agrees list of priority spectrum bands for further work
• Priority bands projects implementation
  • Project teams convened, working with Ofcom where appropriate and presenting regular updates to Spectrum Board
  • Resulting change of use decision discussed at Spectrum Board before departmental approval
  • Spectrum shared or released made available for use through Ofcom spectrum management process
• Supporting documents maintained and updated as appropriate
  • Timeline for delivery of periodic reviews agreed by Spectrum Board
  • Table of public sector spectrum use across bands and associated opportunity cost
  • Longer-term list of potential projects to change use of enhance spectrum value