Policy paper

Spectrum statement

Published 11 April 2023

Executive summary

Radio spectrum (spectrum) is the range of invisible electromagnetic waves that enable all wireless technology, from our mobile phones, Wi-Fi and Bluetooth devices to aircraft navigation and satellite applications, among many others.

Spectrum is an increasingly important and valuable finite national resource. The devices and services that depend on spectrum now underpin almost every aspect of our economic and social lives. Its use is also of strategic importance to addressing major upcoming policy challenges, from our digital connectivity ambitions and the future of broadcasting to the energy transition and delivery of the National Space Strategy and Integrated Review.

We know that demand for spectrum will continue to grow. Across sectors, both private and public, an expanding range of spectrum applications is contributing to changing demand for spectrum and shaping the challenges facing spectrum management, with greater scarcity in some frequency bands and increasing use of higher frequencies. More efficient use of spectrum and coordination across public and private sector use is a priority to ensure that spectrum is not a limiting factor on the UK’s economic and societal potential. The UK has been a pioneer in innovative spectrum management and we want this to continue.

This statement is intended to ensure that, across government, we have the right policy framework in place to maximise the overall value of spectrum use to the UK, while supporting wider policy objectives. It sets out a new strategic vision and principles for spectrum policy, with a focus on innovation in the use and management of spectrum to create greater opportunities for growth and societal benefits through increased access to spectrum. It also highlights the importance of spectrum in enabling wider government priorities and outlines the governance arrangements in place to support effective cross-government working and engagement with Ofcom on spectrum matters, including international representation and our work towards a new framework for public sector spectrum use. This will support the government’s plan to cement the UK’s place as a science and technology superpower by 2030.

Managing spectrum use

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 from Ofcom in order to install or use radio equipment.

The Department for Science, Innovation and Technology (DSIT) is the lead UK 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.

Spectrum value

In the 2014 Spectrum Strategy, we set a goal to double the annual economic contribution of spectrum by 2025. While it is difficult to precisely quantify, it is clear that the value of spectrum has grown substantially in recent years. However, trade-offs to be made in spectrum policy decisions are more complex than simply increasing overall economic value. The importance of spectrum to critical services like earth observation and defence means that the societal and non-economic benefits often need to be compared against direct economic and commercial benefits. Hence, we do not believe that a flat target to increase the overall value of spectrum will drive value maximisation, including wider social value, and a more progressive vision is called for.

A new vision to maximise spectrum value

Through a renewed focus on advancements in our use of spectrum, we can stimulate innovation and investment across sectors to maximise the value derived from the various applications that depend on this critical national asset. Despite being finite, spectrum is also reusable. Notwithstanding progress in spectrum efficiency in particular frequency bands and locations, spectrum is still heavily underutilised in many places and at many times. If this underutilised spectrum could be made available for use, and reused intensively, additional value could be realised.

A renewed focus on innovation in wireless technology, enhanced sharing of spectrum bands, continuing to expand the frontiers of usable spectrum, advanced spectrum management techniques, monitoring, improved interference management and resilience will enable us to significantly improve spectrum availability, thereby creating greater opportunities for growth by increased access to spectrum and ensuring that spectrum is not a limiting factor on the UK’s economic and societal potential.

Principles for spectrum policy

To support this vision, our overall principles for spectrum policy are that:

• Spectrum is a strategic asset and an important enabler for a range of government policy objectives. Spectrum is a critical national asset and a key enabler for a wide range of public policy priorities. We will ensure the broad range of government interests are duly considered in the overall approach to spectrum through coordination between government and Ofcom, with strategic direction through the Statement of Strategic Priorities and Directions where necessary and appropriate.
• Spectrum management should promote innovation and investment alongside consumer-focused outcomes. Spectrum has an important role to play in supporting UK innovation and investment. We want to ensure that the UK continues to be at the forefront of future wireless infrastructure and technology, from next generation satellites to future wireless applications in healthcare and manufacturing, among many others. To do this, access to spectrum must support innovation, ensuring the UK is an attractive home for investment. We will work with Ofcom to maximise the benefits from innovation in spectrum applications and services and consider the need for spectrum-focused innovation support, including opportunities to maximise the value generated through Ofcom’s spectrum sandboxes.
• Spectrum management should ensure efficient and optimum use and be linked to actual usage with users empowered to make decisions where appropriate. As demand for spectrum increases, a renewed focus on more efficient and intelligent use of spectrum is essential to maximise value from spectrum use. Where appropriate, decisions on spectrum use should be placed in the hands of users or determined through market mechanisms. We will continue to work closely with Ofcom and industry to identify areas where the government can support the repurposing of spectrum to technologies or services which maximise the efficiency of spectrum use and the wider benefits to the UK. We also set clear ambitions to further enhance spectrum sharing arrangements in the UK in both civil and public sector spectrum use.
• 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, such as automated and dynamic licensing tools, can enable more efficient use of spectrum, boosting the value attributable to spectrum use and supporting growth. We will keep the legislative framework under review to ensure it continues to be fit for purpose and Ofcom has the tools it needs to adapt to changing policy and market conditions or technological developments, where necessary. We will also look for opportunities to adopt innovative approaches in public sector use of spectrum, such as dynamic spectrum access allowing civil access when spectrum is not used by the public sector.

Wireless infrastructure ambitions

In the Wireless Infrastructure Strategy, which we are publishing alongside this statement, we have set a new ambition that the UK should have** nationwide coverage of standalone 5G to all populated areas by 2030. The Strategy also sets out an ambition to harness the transformative potential for advanced wireless connectivity for businesses and public service delivery. The potential benefits for society and economic growth are vast but will not be realised without concerted action by government, Ofcom and the telecoms industry.

The strategy sets out the steps we will take to create an environment that supports commercial investment in 5G and advanced wireless connectivity. These include asking Ofcom to do further work to ensure timely and efficient access to suitable spectrum on appropriate terms. As part of this, we have asked Ofcom to review and set out for ministers a clear and forward looking rationale for its approach to setting mobile spectrum fees. This should include an assessment of the current tools used to deliver the benefits of a market-based approach to spectrum management. We also highlight the importance of enhanced spectrum sharing arrangements to support the scaling up of enterprise networks. We have therefore asked Ofcom to further explore options to accelerate the automation of Shared Access Licence (SAL) band licensing.

Spectrum and Net Zero

Spectrum has an important role to play in helping the UK reach our target of Net Zero emissions by 2050. We will work with UKSA, Ofcom and the wider earth and space science community, to ensure the continued availability and appropriate protection of spectrum for climate science, weather and related high impact services. We are also working closely with the Department for Energy Security and Net Zero, Ofcom and Ofgem to assess the energy and wider utility sector’s communications requirements and ensure that timely decisions are taken on any resulting spectrum needs.

Space sector ambitions

Spectrum’s crucial role in the space sector is recognised in the government’s National Space Strategy. The space sector relies on spectrum for command and control of space assets and the delivery of a range of services, including global communications, satellite broadband, broadcast TV services, global positioning services and earth observation monitoring weather and climate change. We want to ensure that spectrum policy can adapt in a timely manner to support the UK’s ambition to grow the space sector.

Ensuring effective governance arrangements

Effective cross-government coordination is critical to ensure government interests are aligned and trade-offs in government spectrum decisions are properly considered. DSIT has overarching responsibility for spectrum policy and strategy across government. The main cross-government governance forum is the UK Spectrum Board which provides a forum for strategic level discussion and cross-Whitehall coordination on spectrum-related matters. We are in the process of updating the Memorandum of Understanding (MOU) which outlines both Ofcom’s engagement with the Spectrum Board and its representation of UK interests in international spectrum bodies (under the direction made by the Secretary of State) to ensure it reflects the current arrangements.

Public sector spectrum use

The public sector is a major user of spectrum for a variety of services and applications, in particular Defence. As part of the 2010 Spending Review, there was a commitment to implement a Public Sector Spectrum Release (PSSR) Programme. The current Programme came to a close in December 2022 having delivered significant value. Working with relevant government departments and Ofcom, we will develop a next phase framework for the public sector use of spectrum. Rather than a flat target of spectrum to be released, the new Framework will be demand-led and ensure regular reviews of how the government utilises spectrum, with a focus on ensuring the availability of necessary spectrum for public sector use while promoting efficient use and making spectrum available for commercial use where possible.

1. What is spectrum?

Figure 1: The Electromagnetic Spectrum

Radio spectrum is the part of the electromagnetic spectrum with frequencies below 3,000 GHz (3 THz). Commercial applications of spectrum have to date been predominantly below 100 GHz, although technological advancements are supporting increased use of higher frequencies for a range of applications, and this trend is expected to continue.

Information or data encoded into radio waves can be transmitted, received and decoded by reception technologies. However, the communication between transmitter and receiver can be disrupted by interference. For this reason, spectrum cannot be used in an uncontrolled way and its use is carefully managed.

Specific bands or frequency ranges of spectrum have different characteristics and are therefore used for different purposes. For example, lower frequency spectrum has longer wavelengths, which allows information carried using such spectrum to travel further and be less disrupted by obstacles such as buildings or trees. Higher frequency spectrum has shorter wavelengths and wider available bandwidths, which is well suited to carrying larger volumes of data but over shorter distances.

Trends in spectrum use

Spectrum use is evolving rapidly, with a greater volume of usage and diversity of applications and technologies. Some examples include:

1. Continuing rapid growth of mobile data: Ofcom estimates that mobile data demand has grown by around 40% per year in recent years. The extent of future data growth is uncertain, but Ofcom has modelled ranges of 7.5 to 52 times the 2021 level by 2030, and as high as 19 to 540 times by 2035. Additional spectrum is not the only means of meeting demand growth but is sometimes the most economical and flexible compared to the alternative of building additional base stations with higher spectrum efficiency.

2. Wi-Fi use with full fibre: Fast connections to homes and businesses have grown rapidly, with 70% of all homes able to get gigabit capable broadband and 42% of homes covered by full fibre broadband as of January 2022. These connections deliver high speeds and can support many devices simultaneously. Most devices connect to broadband wirelessly via Wi-Fi, which needs wide spectrum bandwidths to avoid limiting the speed and performance experienced.

3. Private mobile networks: While national networks providing nationwide coverage for public users are the most prominent mobile networks, there is a long history of private and localised mobile networks for business applications such as taxi firms and utilities. Traditionally these have used narrow band technologies. There is now increasing interest in using mobile broadband technology, particularly 4G and 5G, for private applications such as in Defence, transport hubs, manufacturing and healthcare, and potentially for localised community networks delivered by a range of organisations in addition to mobile operators. These require access to spectrum which is available over localised areas but is supported by widely available mobile technology, acting as an additional demand on spectrum.

4. Non-geostationary satellites: New broadband satellite systems are being deployed, each using hundreds or thousands of satellites orbiting the Earth rapidly in non-geostationary orbits (NGSO), closer to the Earth than other systems. These can deliver broadband services with faster speeds and lower delays than traditional geostationary satellites. Such satellite systems need spectrum both for the connections between the satellites and users, and to connect them to the internet via fixed Earth stations. Early developments are also emerging aimed at delivering direct connections from satellite to mobile handsets.

5. Satellite remote sensing: Satellites also play an increasingly important role in sensing the Earth for monitoring short term weather, long-term climate change and natural disasters such as floods and storms. Delivering high resolution imagery requires multiple spectrum bands and high bandwidths with minimal interference.

6. Changing Defence requirements: The strategic context in which Defence operates is increasingly complex, dynamic, and competitive. Effective use of spectrum has long been recognised as a critical enabler for military success. Anticipating and adapting to changes in the spectrum environment is critical for operational advantage and flexibility to be maintained and exploited. Spectrum demand from MOD and its coalition partners is growing and advances in technology are also being adopted by potential adversaries, which will make available spectrum even more congested and contested. This demand is 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. More information is available in MOD’s Electromagnetic Spectrum Blueprint.

7. Internet of things: Networks of sensors and controllers can be used to detect the state of machinery and the environment and control them to make better use of scarce resources. These networks are applied to important sectors such as Defence and security, agriculture, power generation, energy and water distribution. Interconnecting these networks makes use of a range of wireless machine-to-machine or “Internet of Things” technologies, requiring spectrum which can deliver reliable connectivity over long or short distances to objects with very low power resources.

8. Advanced equipment: The equipment used for a wide range of spectrum applications is also changing, with more software defined radio systems capable of agility across spectrum bands and the ability to be reconfigured in software to access different frequencies and deliver different services. These flexible systems can make use of emerging artificial intelligence techniques to extract signals from interference and select the optimum spectrum to use. Such approaches can allow more efficient and flexible use of spectrum.

Across sectors, an expanding range of spectrum applications is contributing to changing demand for spectrum and shaping the challenges facing spectrum management, with greater scarcity in some frequency bands and increasing use of higher frequencies.

2. Managing spectrum use

International

Since radio signals propagate across national borders, spectrum management is necessary at both national and international levels to ensure efficient allocation and use of spectrum, protect users against harmful interference, and enable economies of scale and interoperability across regions.

Effective international collaboration is also critical to the development of innovative approaches to spectrum management and continuous improvement in the efficiency of spectrum use. For example, technical studies with input from different administrations, including significant contributions from Ofcom on behalf of the UK, promote peer learning and ensure robust assessment of novel approaches.

Global coordination and management of spectrum use is organised internationally within the framework of the International Telecommunication Union (ITU), an agency of the United Nations (UN). The ITU Radio Regulations specify, among other things, the allocation of different services to specific frequency bands and the associated technical criteria and regulatory conditions, as well as procedures for coordinating to avoid or mitigate international interference, when needed. The Radio Regulations are updated about every four years at World Radiocommunication Conferences (WRC). The next WRC will take place in late November - early December 2023.

Regional level organisations have been established to agree common positions in preparation for ITU decisions, harmonise national allocations within the ITU framework, and to harmonise the standards and procedures for certification of equipment. In Europe, the Electronic Communications Committee (ECC), a committee of the European Conference of Postal and Telecommunications Administrations (CEPT), is responsible for harmonised and efficient use of spectrum across Europe including the UK. The European Telecommunications Standards Institute (ETSI) supports European regulations and legislation through the creation of Harmonised European Standards.

Ofcom represents the UK’s interests at the ITU and CEPT, under Direction from the Secretary of State. In line with this Direction, Ofcom reports on the emerging UK positions to the government ahead of key international spectrum negotiations.

Additionally, some public sector use is governed and coordinated by other international bodies. NATO has an important role, for example, in the allocation and use of spectrum across Europe in harmonised military bands, which in turn has a bearing on wider international spectrum discussions and domestic flexibility in those bands. The International Civil Aviation Organisation (ICAO) and the International Maritime Organisation (IMO) work closely with the ITU and decisions on aeronautical and maritime use of spectrum are embedded in the ITU Radio Regulations.

Domestic

The international framework recognises that spectrum use is ultimately a matter of national sovereignty. The Radio Regulations aims to allow each country the greatest possible flexibility with regards to spectrum use.

The UK legislative framework for spectrum management is set out primarily in two Acts of Parliament: the Communications Act 2003 (Comms Act) and the Wireless Telegraphy Act (WTA). Under these Acts, Ofcom is responsible for spectrum management in the UK with DSIT as the sponsoring department. 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. This is done primarily either via licensing or licence exemption, whereby a user does not need a licence as long as their device complies with specified technical parameters. Ofcom also manages interference through monitoring, compliance and enforcement.

Table 1: Summary of Ofcom’s Statutory Duties

Communications Act 2003

Wireless Telegraphy Act

Ofcom’s principal duties under the Comms Act are to further the interests of citizens and consumers, where appropriate by promoting competition. In doing so, Ofcom is required to (among other things) secure the optimal use of spectrum. Ofcom defines optimal use as ensuring “that spectrum is used in a way that maximises the benefits that people, businesses and other organisations derive from its use, including the wider social value of spectrum use.” Ofcom must also have regard to: (i) the desirability of promoting competition in relevant markets; (ii) the desirability of encouraging investment and innovation in relevant markets; (iii) the desirability of encouraging the availability and use of high-speed data transfer services throughout the United Kingdom; and (iv) the different needs and interests, so far as the use of the electromagnetic spectrum for wireless telegraphy is concerned, of all persons who may wish to make use of it.

In carrying out its spectrum functions, Ofcom has a duty under section 3 of the WTA to have regard, in particular, to: (i) the extent to which the spectrum is available for use or further use for wireless telegraphy; (ii) the demand for use of that spectrum for wireless telegraphy; and (iii) the demand that is likely to arise in future for the use of that spectrum for wireless telegraphy. Ofcom also has a duty to have regard to the desirability of promoting: (i) the efficient management and use of the spectrum for wireless telegraphy; (ii) the economic and other benefits that may arise from the use of wireless telegraphy; (iii) the development of innovative services; and (iv) competition in the provision of electronic communications services.

As noted in its recent spectrum management strategy, Ofcom’s approach is guided by the general principle of using market mechanisms to determine the use of spectrum, where possible and effective, whilst undertaking regulatory action where necessary. Examples of market mechanisms include spectrum pricing, liberalisation, auctions and trading.

Since spectrum is used by a wide range of sectors, beyond telecommunications, Ofcom’s spectrum functions take it beyond its role as regulator for the communications sector. Ofcom takes account of and addresses the spectrum needs of all sectors which use it, public and private.

Government’s interest and role

With spectrum as a national asset playing an increasing role in addressing major policy challenges, the government has a strong overarching interest in ensuring that spectrum policy and the legislative framework support the maximisation of value from spectrum for the nation, while supporting wider policy objectives. We keep the legislative framework under review to ensure it remains fit for purpose and, where necessary, propose legislative changes through Parliament.

While Ofcom is independently responsible for spectrum management, there are routes for the government to set out strategic priorities for Ofcom to consider in its spectrum management functions. We have formal Direction powers in the Comms Act and the WTA. Under Section 5 of the WTA the Secretary of State can give directions to Ofcom on the carrying out of its spectrum functions. Section 5 of the Comms act also provides for Secretary of State directions to Ofcom for the purposes of national security, public safety or health, and international relations or obligations. We also have the power to periodically designate a Statement of Strategic Priorities (SSP) for spectrum management, among other areas, in the Digital Economy Act 2017. Ofcom must have regard to the SSP when exercising its regulatory functions.

As the public sector is also a major user of spectrum, particularly the Ministry of Defence, we lead on overarching policy on public sector spectrum use, including release and sharing.

Access to and efficient use of spectrum can help sectors across the economy to grow and thrive. Across government, specific departments have sectoral interests in spectrum. For example, the National Space Strategy considered the important role spectrum can play in achieving the UK’s space sector ambitions. As sponsor department for Ofcom, DSIT has a lead role within government in coordinating cross government interest in spectrum including policy on public sector spectrum and international spectrum matters.

3. Maximising the value of spectrum

In the 2014 Spectrum Strategy, we set a goal to double the annual economic contribution of spectrum by 2025. While it is difficult to precisely quantify, it is clear that the value of spectrum has grown substantially in recent years. Spectrum has become an increasingly important input to a growing range of sectors, and to both established and new technologies. Furthermore, data demand continues to rise, with total mobile data traffic increasing at a rate of around 40% each year. With increasing requirements for wireless connectivity for new consumer and enterprise applications, spectrum is crucial to enable businesses to innovate, deliver services, and connect people. We estimate the economic value (GVA) of selected sectors reliant on spectrum increased 37% from 2009-2019.^{[footnote 1]}

2022 research by Frontier Economics and LS Telcom for DCMS assessed the economic value in 2019 Gross Value Added (GVA) terms^{[footnote 2]} of various spectrum-using sectors:

• For some sectors, spectrum is intrinsic and indispensable - without it associated services could not be delivered. For example, the mobile communications industry, which is dependent on spectrum, contributed £8.7 billion to the economy, with DSIT analysis identifying that the value of wireless telecommunications activities increased five-fold in real terms from 2009 to 2019.^{[footnote 3]}
• In some sectors, spectrum is an important part of the value chain. Wi-Fi for example is the predominant final link between the broadband router and the Wi-Fi enabled device. While alternative means exist to achieve this, such as through a wired connection in the building, Wi-Fi is often the preferred and most cost-effective means. The GVA of the fixed telecoms industry is £11.7 billion altogether, though it is complex to extract the value component of spectrum within this.
• In broadcasting, Digital Terrestrial TV (DTT), radio and Direct to Home (DTH) satellite services rely on wireless transmission and spectrum. The component of the broadcast sector GVA that is attributable to spectrum is £2.5 billion.
• In transport, for sectors such as maritime and aeronautical, with an overall GVA of £9.2 billion and £10.7 billion respectively, spectrum using applications such as communications and navigation aids are critical.
• In other sectors, often with a strong public sector component, while there is significant direct economic value, there will be important wider social and non-economic benefits. A study undertaken for the UK Space Agency estimated the total UK space industry income at £16.5 billion in 2019/20. However, this economic value is likely to understate important wider benefits of UK space activities such as the scientific contribution to our understanding of the solar system, Earth’s environment, climate change and weather. Such applications require spectrum with minimal interference.
• Defence sector equipment spending stands at £20 billion a year with an additional £1.8 billion a year in R&D investment. The wider value to UK society and national security is immeasurable. Spectrum is vital through its contributions to tactical and strategic communications, situational awareness, automation and intelligence-led interventions. Spectrum reserved for defence use is the predominant portion of public sector spectrum.

Clearly the economic contribution of spectrum is large. This is likely to increase further as new wireless applications such as in advanced manufacturing, healthcare, automotive and transport, and energy systems emerge. However, the wider benefits, including externalities and non-market benefits will be significantly more than what is directly valued. Quantifying the indirect or social value of spectrum across sectors is difficult. Furthermore, the importance of spectrum to critical services like earth observation and defence means that the societal and non-economic benefits often need to be compared against direct economic and commercial benefits. Thus trade-offs required in spectrum policy decisions are more complex than simply increasing overall economic value.

4. A spectrum vision for the coming period

Spectrum is a vital ingredient with complex and competing demands from a wide range of applications. As discussed above, the trade-offs to be made in spectrum policy decisions are more complex than simply increasing measurable economic value. While the economic contribution of different services or applications will always be an important evaluation tool when making regulatory and policy decisions on future access to spectrum, we do not believe that a flat target to increase the overall value of spectrum in itself will drive the maximisation of value from spectrum, including wider social value, and a more progressive vision is called for.

Through a renewed focus on advancements in the use of spectrum we can create greater opportunities for growth and societal benefits through increased access to spectrum, stimulating innovation and investment to maximise the value derived from the various applications that depend on this critical national asset.

As demand for spectrum continues to grow, with congestion and competition for access in an increasing number of bands, more efficient use of spectrum is a priority. As we look ahead at the next few years, a key challenge is likely to be accommodating existing services and users alongside demand from new services, across both public and private sector users.

Despite being finite, spectrum is also reusable. Notwithstanding progress in spectrum efficiency in particular frequency bands and locations, spectrum is still underutilised in many places and at many times. If this underutilised spectrum could be made available for use, and reused intensively, additional value could be realised. Examples of opportunities to achieve this include more use of local and shared spectrum, automated and dynamic access to spectrum, refarming spectrum to accommodate higher value services, and use of more agile and interference-resilient technologies.

There are of course challenges to overcome on the extent to which spectrum can be reused, such as the limitations caused by longer propagation distances at lower frequencies. Also, upfront investment certainty, in terms of availability of spectrum, is important for users of spectrum from mobile network operators to defence and science users, to support network investment decisions. Some spectrum users (e.g. radio astronomers) have stringent limitations on the interference they can tolerate.

A renewed focus on innovation in wireless technology, enhanced sharing of spectrum bands, continuing to expand the frontiers of usable spectrum, advanced spectrum management techniques, improved interference management, monitoring and resilience will enable us to significantly improve spectrum availability, ensuring that spectrum access is not a limiting factor on the UK’s economic and societal potential.

5. Principles for spectrum policy

Expanding on our ambition for a renewed focus on maximising value by progressively removing spectrum-related constraints on growth, our overarching principles for spectrum policy are:

• Spectrum is a strategic asset and an important enabler for a range of government policy objectives.
• Spectrum management should promote innovation and investment alongside consumer-focused outcomes.
• Spectrum management should ensure efficient and optimum use and be linked to actual usage with users empowered to make decisions where appropriate.
• Spectrum management should itself take best advantage of innovation as well as supporting innovation in the services which use spectrum.

These are intended to inform our overall approach to spectrum issues. Clearly there are significant interrelationships between these principles, each of which is discussed further below.

Spectrum is a strategic asset and an important enabler for a range of government policy objectives

Spectrum is a critical national asset and a key enabler for a wide range of public policy priorities. Ofcom is independently responsible for spectrum management, in line with its powers and statutory duties as specified in the Comms Act and WTA. We believe that the independence of Ofcom is important in ensuring a transparent and predictable spectrum management framework, which in turn is a vital pillar in maximising the value from spectrum.

Ofcom has a duty, among other things, to ensure the optimal use of spectrum. government interests may extend beyond Ofcom’s duties in some cases - such as supporting UK international interests, industrial leadership and ecosystems, Net Zero, national security and defence.

National security is one of the primary objectives of government and in some areas spectrum has an essential role in fulfilling that objective. Use of spectrum for defence purposes is outlined elsewhere in this statement. Wider national security objectives that are supported by spectrum management include prevention of unauthorised use of unmanned aerial vehicles, restrictions on mobile phone use within UK prisons, and wider law enforcement activity. Spectrum management also supports the government’s agenda of increasing security and resilience through diversification of the ecosystem. While Ofcom maintains responsibility for spectrum management, achieving these national security objectives can require targeted government engagement or collaboration with Ofcom and private holders of radio spectrum, such as mobile network operators.

We therefore engage extensively with Ofcom on a range of policy areas where spectrum is an important enabler. Given the strategic importance of spectrum to a range of government priorities, there are established routes for the government to set strategic direction for Ofcom. The Secretary of State also has the power to periodically designate a Statement of Strategic Priorities (SSP) for spectrum management, among other areas, in the Digital Economy Act 2017. Ofcom must have regard to the SSP when exercising its regulatory functions.

We will ensure government interests are duly considered in the overall approach to spectrum policy through coordination between government and Ofcom, with strategic direction through the SSP and Directions where necessary and appropriate.

Spectrum management should promote innovation and investment alongside consumer-focused outcomes

Spectrum has an important role to play in supporting UK innovation and investment. Spectrum access is an important enabler for innovation in wireless technology and the applications and services that depend on wireless communications.

We want to ensure that the UK continues to be at the forefront of future 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.

Experience from the 5G Testbeds and Trials Programme highlighted the importance of spectrum access and a viable spectrum path for progress from trials to commercialisation or exploitation by public services.

Ofcom has placed a strong emphasis on supporting wireless innovation in its spectrum management strategy, ensuring different types of organisations can access the right spectrum to meet their needs. This could be through the innovation and trial licensing framework, or other spectrum access options such as Shared or Local Access Licences. Ofcom has also introduced spectrum sandboxes to trial potential solutions for complex spectrum sharing scenarios.

We will work with Ofcom to ensure partners in government sponsored innovation programmes have a clear understanding of spectrum options early in the development process. We will also consider the need for spectrum-focused innovation support, including opportunities to maximise the value generated through Ofcom’s spectrum sandboxes.

Spectrum management should ensure efficient and optimum use and be linked to actual usage with users empowered to make decisions where appropriate

As demand for spectrum increases, a renewed focus on more efficient and intelligent use of spectrum is essential to maximise value from spectrum. As set out above, 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 transfer or sharing of lightly used spectrum to additional or alternative users.

Changes in spectrum use

Refarming spectrum to accommodate more efficient technologies or higher value services can support significant growth in spectrum value.

In some cases, change of use is driven by spectrum management decisions, whether within the domestic framework or linked to implementation of international harmonisation decisions. These spectrum management decisions involve complex trade-offs and a consideration of economic and wider political or social value derived from spectrum use.

Depending on the specific circumstances, there may be a role for the government in funding clearance of existing users, as in the 700 MHz clearance programme which moved Digital Terrestrial TV (DTT) out of certain frequencies to allow the spectrum to be awarded for national mobile use.

Although viewing habits are changing, DTT remains an important means for UK citizens to consume television services. The licences for DTT platforms have been extended until 2034 with provisions allowing for an earlier termination for spectrum management reasons with the consent of the Secretary of State (but require that revocation cannot take effect before the end of 2030 and that a five-year notice period must apply). Ofcom’s recent call for input on the UK position for the ITU World Radio Conference (WRC 23), published June 2022, made public our preference for ‘no change’ to the international spectrum allocation to broadcast at this point in time ie. not supporting the proposal to allocate mobile services in the International Radio Regulations on a co-primary basis alongside with the existing allocation for Broadcasting services.

However, looking ahead to the 2030s and beyond, there is likely to be a reduction in demand from broadcasters for DTT. This longer-term shift both in the UK and internationally could enable part, or potentially all of this band to be made available for other uses. Any future policy decision on spectrum availability for DTT will need to take numerous factors into consideration, including ongoing changes in TV content viewing habits, the significant ongoing socio-cultural importance of broadcasting, and other surrounding factors on the future format of broadcasting and the importance of Programme Making and Special Events (PMSE) for the UK’s vibrant media and cultural sectors. For this reason, the government has asked Ofcom to continue to track changes to DTT viewing and to undertake an early review, before the end of 2025, on market changes that may affect the future of content distribution over the next decade and beyond. Regardless of changes to viewing habits, there will be an ongoing requirement for spectrum for PMSE which uses, among other bands, spectrum in the 470-694 MHz band.

In other cases, such as 2G and 3G sunsetting, spectrum users refarm or repurpose spectrum from older to newer technologies. Mobile operators in the UK have been refarming spectrum away from 2G/3G technologies for some time, as network traffic over these legacy technologies decreases, they reach the end of their natural lifespan, the cost of maintaining these networks increases, and the spectrum is needed for next generation technologies.

In December 2021, we published a Joint Statement with the mobile network operators, setting out an expectation that all operators do not intend to offer 2G and 3G mobile networks past 2033 at the latest. While sunsetting is an industry-led process and mobile operators are each moving at their own pace within this timeline, establishing this sunsetting timeline was an important step in providing much needed clarity as to the likely commercial longevity of these technologies. This timeline enables users to confidently plan for their future.

We will continue to work closely with Ofcom, mobile operators, and government users of 2G/3G services to ensure that this transition away from 2G/3G and towards alternative technologies, including 4G and 5G, happens smoothly and continues to meet the needs of business users and consumers, including vulnerable groups.

Market mechanisms such as trading and leasing also play an important role in allowing for and incentivising the transfer of spectrum rights between users. Where appropriate, decisions on spectrum use should be determined through market mechanisms.

We will continue to work closely with Ofcom and industry to identify areas where the government can support the repurposing of spectrum to technologies or services which maximise the efficiency of spectrum use and the wider benefits to the UK.

We consider potential communications requirements for future utilities networks and changing public sector spectrum needs in sections below.

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 public sector spectrum while protecting critical public sector use. We consider public sector spectrum use in more detail below.

Ofcom has confirmed the next major mobile spectrum award, making higher frequency spectrum - the 26 GHz and 40 GHz bands - available for mobile use. Given that the anticipated use of these bands will be concentrated in areas with high levels of data traffic, Ofcom has confirmed a combination of citywide and local licences. We welcome Ofcom’s consideration of innovative approaches to spectrum awards.

As part of its spectrum management strategy, Ofcom surveyed alternative market-based tools or concepts that could be relevant to spectrum management. Examples include:

• Incentive auctions, where participants can sell as well as purchase spectrum rights
• Foothold auctions, where a spectrum licence is periodically re-auctioned, but the incumbent user is given an advantage in the auction and compensation if it is outbid
• Congestion triggers, where spectrum licences are initially allocated at administrative cost in the expectation in the near term of no excess demand, but higher fees (or some other method of managing congestion) may be triggered if some measure of excess demand is met
• Depreciating licences, where a licence holder pays a licence fee based on a declared price at which it is willing and obliged to sell the spectrum rights.

Ofcom notes that at present it does not consider it has the necessary powers to conduct incentive auctions. In particular, it does not have the power to retain the receipts of an auction and make these (or a proportion of these) directly available to participants in the auction.

It is important to keep the legislative framework for spectrum management under periodic review. We want to ensure that the legislative framework continues to be fit for purpose and that Ofcom has the tools it needs to adapt to changing policy and market conditions or technological developments, where necessary.

It is also important to consider how wider technological developments such as Artificial Intelligence (AI) and machine learning could be applied in spectrum management, for example to improve automated spectrum sharing.

We will keep the spectrum legislative framework under review and continue to work with Ofcom to ensure it has the necessary powers to adopt innovative approaches to spectrum management, where appropriate. This will include a more detailed consideration of future market and technological changes and the potential application of innovative spectrum management tools.

6. The importance of spectrum to wider policy priorities

Spectrum is an essential ingredient in a range of government policies and ambitions. In this section, we outline our ambitions for how spectrum can support some of these wider policy priorities.

Wireless Infrastructure ambitions

We want the UK to realise the full economic and social benefits of 5G and other advanced wireless networks, including Wi-Fi and satellite networks, as soon as possible. Encouraging investment in and adoption of these networks can help to bridge the digital divide and deliver good coverage across the UK, as well as supporting a proliferation of new business and enterprise applications.

In the Wireless Infrastructure Strategy, published alongside this Statement, we have set a new ambition that the UK should have** nationwide coverage of standalone 5G to all populated areas by 2030. The potential benefits for society and economic growth are vast but will not be realised without concerted action by government, Ofcom and the telecoms industry.

Private networks and other deployment models will also play an increasingly important role in delivering the economic and social benefits of 5G, for example in addressing localised enterprise, venue and community-based applications.

The strategy sets out the steps we will take to create an environment that supports commercial investment in 5G and advanced wireless connectivity. These include reducing regulatory barriers to innovation and investment, ensuring competition in the mobile market supports investment and delivers good outcomes for UK businesses and consumers, and working with Ofcom to ensure timely and efficient access to suitable spectrum on appropriate terms.

Access to suitable spectrum on appropriate terms is critical to the realisation of our wireless infrastructure ambitions, across both public and private networks. In the Wireless Infrastructure Strategy, we consider in particular the role of market mechanisms in promoting the efficient use of existing mobile spectrum holdings and opportunities to enhance shared spectrum access in the UK. We also look ahead to potential future spectrum requirements in our UK 6G Strategy.

Market mechanisms to promote efficient use of spectrum

The UK pioneered the application of market mechanisms in spectrum management following the Independent Review of Spectrum Management led by Professor Martin Cave.

As noted above, Ofcom’s approach to spectrum is guided by the general principle of using market mechanisms to determine the use of spectrum, where possible and effective, whilst undertaking administrative regulatory action where necessary. Examples of market mechanisms include spectrum pricing, liberalisation, auctions and trading.

With growing demand for spectrum, it is important that the application of market mechanisms continues to promote the efficient use of existing mobile spectrum holdings, including preventing underutilisation, and adapts to market developments. In the Wireless Infrastructure Strategy, we considered stakeholder views on the role of Annual Licence Fees (ALFs) for mobile spectrum in promoting efficient use of spectrum. Given the significant costs ALFs present to industry, the evolving market conditions and the importance of spectrum to the deployment of mobile networks, it is important to keep the approach to fees under review, ensuring the approach continues to be fit for purpose in promoting the efficient use of spectrum.

We have asked Ofcom to review and set out for ministers a clear and forward looking rationale for its approach to setting mobile spectrum fees before the end of 2023.

This should include an assessment of the current tools used to deliver the benefits of a market-based approach to spectrum management, considering how well these mechanisms have delivered their stated objectives to date and the extent to which they may need to evolve to adapt to changing market conditions and support a strong investment environment. It would also be helpful to understand whether there are useful lessons from approaches in other countries.

Enhanced sharing arrangements

Spectrum sharing will be increasingly important for private mobile networks as well as potentially for public ones, as operators seek increased access to midband and millimetre wave spectrum.

Ofcom took a pioneering step forward in enabling localised access to spectrum bands that support mobile technology with its 2019 spectrum sharing framework, catalysing the UK’s sharing landscape. The framework introduced Shared Access Licences (SAL) for localised access to a number of bands and Local Access Licences (LAL) which enable access to unused spectrum licenced to national mobile operators. A similar approach is now being encouraged by the European Union and considered by other administrations, demonstrating Ofcom’s international leadership and forward looking approach to spectrum management.

While welcoming the sharing framework, some users have cited that the current application process is too manual, resource-intensive and lacks transparency. The technical restrictions applied to shared spectrum, including limits on mast height, power limits and antenna directionality have also been noted by some stakeholders as hampering the potential of spectrum sharing in the UK. We note that Ofcom needs to take a balanced view on what technical conditions will be most likely to maximise the value of shared spectrum overall. However, we want to support the introduction and scaling up of new localised enterprise services in the UK, ensuring that access to spectrum is not a barrier.

Ofcom has published a call for input on the evolution of SAL bands and a discussion paper on opportunities for dynamic or adaptive approaches to managing spectrum in the UK. We welcome these publications and encourage relevant stakeholders to provide feedback and responses to Ofcom so as to help shape the future of spectrum sharing in the UK.

The feedback provided by stakeholders to date has been crucial, informing DSIT’s and Ofcom’s thinking about how spectrum sharing in the UK should develop. Ofcom is taking steps to help address these barriers, including introducing an automated management system across all spectrum licences. This programme of work will see hundreds of thousands of spectrum licences moved onto an online platform to support more efficient and updated application processes. Ofcom expects that SAL bands will be automated by April 2024.

The automation of licensing in Shared Access Licence (SAL) bands must be a priority to ensure the scaling up of enterprise networks. We have therefore asked Ofcom to explore further options for accelerating the planned automation process for SAL bands specifically.

We remain committed to the introduction of Dynamic Spectrum Access (DSA) where appropriate and will work closely with Ofcom, industry and other relevant stakeholders to define what form DSA in the UK should take and ensure its timely introduction.

In addition to automation, Ofcom’s Spectrum Management Strategy and Spectrum Roadmap also highlight ongoing work to improve propagation modelling in its frequency assignment processes. This will help Ofcom to ensure that the technical restrictions imposed to facilitate shared access remain appropriate and assist them in identifying where they can be relaxed.

We support Ofcom’s work to review the spectrum sharing framework to ensure that the technical conditions are optimal to maximise the utility of the spectrum. We have also asked Ofcom to consider what further steps could be taken relating to licensing conditions for LALs and SALs, with a view to scaling up enterprise networks while protecting incumbent services in the same or adjacent bands.

Further details on our vision for spectrum sharing can be found in the Wireless Infrastructure Strategy.

Spectrum as a pillar of the UK 6G Strategy

By acting now we can shape the future of telecoms in line with our established aims and priorities. The availability of suitable spectrum will be critical. We have the opportunity, working through international fora such as the WRC and ITU, to ensure this for 6G. It will be for Ofcom to identify and award specific frequency bands for 6G, where necessary, but in the Wireless Infrastructure Strategy we set out some important considerations. These include that spectrum needs to be identified and made available in a timely fashion to support research, development and innovation.

Spectrum and Net Zero

Spectrum has an important role to play in helping us reach our target of Net Zero emissions by 2050. Space-based earth observation continues to play a pivotal role in understanding climate and weather. Understanding climate change is prerequisite to effective, targeted action to protect our climate. The UK is a leader in this field. These endeavours rely on access to suitable and sufficient spectrum that is free from interference.

Spectrum-dependent applications also enable new ways of working and living, which in turn can reduce carbon emissions. For example, enhanced connectivity can reduce travel requirements and support more efficient working practices. Of course, these same applications - across communications networks, data centres and user devices - also generate carbon emissions, highlighting the importance of decarbonisation throughout the economy.

Protecting spectrum for space and climate science

There has always been a debate between services that cause interference and those that receive it as to the reasonable level of interference that should be accommodated - particularly in terms of worst-case interference scenarios (which may be present for a very small proportion of time) and typical ones which are more widely experienced. As the uses of spectrum expand, this debate becomes more pertinent. In the case of scientific measurements where even a very small amount of interference could significantly contaminate the measurements, it is vital that interfering services and the recipients of interference endeavour to avoid placing undue limitations on each other. Increased spectrum sharing is likely to be a reality in the future.

We will work with UKSA, Ofcom and the wider earth and space science community to ensure the continued availability and appropriate protection of spectrum for climate science, weather and related high impact services.

Assessing the energy sector’s communications requirements

Spectrum also plays an important role in enabling the digital connectivity needed for future low carbon energy networks. Reaching Net Zero requires fundamental changes to the way we generate, transport and consume energy. We are moving towards a smarter, more flexible and more integrated energy system which will require significantly enhanced connectivity and digitalization throughout the network to support the coordination, automation and control of energy network assets. This increased connectivity requirement will likely require a variety of telecommunications technologies including fibre, satellites, and public and private mobile networks. Certain communications functions may require enhanced power resilience and reliability. If meeting these or other requirements is best served by private wireless networks, the identification of suitable and sufficient spectrum may be necessary.

We are working closely with the Department for Energy Security and Net Zero, Ofcom and Ofgem to assess the energy (and wider utility) sector’s communications requirements and ensure that timely decisions are taken on any resulting spectrum needs.

Keeping the spectrum management framework under review

Spectrum management decisions, including the allocation of frequencies to specific services and the design of spectrum awards, can influence the energy efficiency of spectrum-dependent networks and services. However, as noted by Ofcom in its recent Spectrum Roadmap, a greater focus on energy-efficient communication services and the need for more durable, recyclable and upgradable equipment may not always be aligned with spectral efficiency. More complex radio technologies or network topologies that maximise spectral efficiency may use more electricity than simpler, less spectrally efficient technologies.

In line with our commitment to keep the legislative framework for spectrum under review and wider government work on economic regulation principles, we will ensure regulatory duties are fit for purpose to meet broader policy challenges and that the government provides strategic clarity on long-term aims.

Space Sector ambitions

Spectrum is critical to the use of all space applications across both the public and private sector. Satellites use spectrum in order to communicate with other satellites and terminals based on the ground. Applications and services in the space sector include satellite broadband communications particularly to hard-to-reach locations, backhaul for mobile base stations, broadcast TV, global positioning services, and emergency and defence communications. Spectrum is also vital in radio astronomy and other space science activities, Earth observation and the monitoring of weather and climate change. While these have traditionally been the main users of space spectrum, the sector is broader and consistently evolving.

Challenges for users of space spectrum often include frequency coordination and managing interference, particularly for uses that require minimal interference like Earth observation. Due to the recent rise in the number of Non-Geostationary Satellites (NGSOs) launched into orbit, the importance of managing spectrum interference is becoming more pertinent. The management of spectrum at both a national and international level is necessary to ensure that interference does not occur in an increasingly congested space environment.

Spectrum’s crucial role in the space sector is recognised in the Government’s National Space Strategy and supporting Defence Space Strategy. To meet the strategy’s ambition for the UK to stand as a leader in the space industry, it aims to ensure that the UK’s spectrum regulatory environment is supportive of innovation and an attractive home for investment. Further to this, Ofcom published a Space Spectrum Strategy in 2022 with the aim of making sufficient spectrum available to deliver even greater benefits in the future and helping to enable the UK’s National Space ambitions.

We want to ensure that spectrum policy can adapt in a timely manner to support the UK’s ambition to grow the space sector. A rapidly expanding space industry will provide both opportunities and challenges for users. We want to ensure that access to spectrum is not a barrier to innovation and investment for new and emerging technology, supporting the growth of the space industry while protecting existing services.

For example, to support our position as a world leader in climate monitoring, we have looked at the specifics of the spectrum required. In terms of new NGSO satellite constellations, our ambition is for the UK to be an attractive location for the development and delivery of next generation satellite networks and services. Ofcom introduced a new NGSO licensing framework in 2022. Ofcom’s aim in implementing this framework was to ensure that it is equitable, practical and enables multiple next generation satellite service providers to undertake activities and deliver services in the UK. We share this goal.

We will continue to proactively engage with industry, across government and with Ofcom on space spectrum issues to ensure spectrum policy is informed by stakeholder views and supports our wider space sector ambitions.

7. Ensuring effective governance arrangements

As noted in our spectrum policy principles, spectrum is of strategic importance and a crucial enabler in delivering a wide range of government policy objectives.

As the sponsor department for Ofcom, DSIT has a lead role within government in coordinating cross-government interest in spectrum. DSIT has overarching responsibility for spectrum policy and strategy across government, including policy on public sector spectrum use and international spectrum matters. In this role, it seeks to ensure a coordinated approach to spectrum issues across government.

Effective cross-government coordination

Effective cross-government coordination is critical to ensure government interests are aligned and trade-offs in government spectrum decisions are properly considered.

The main cross-government governance forum is the UK Spectrum Board. Formed in 2018, the Spectrum Board replaced the UK Spectrum Strategy Committee (UKSSC). The Spectrum Board is chaired by DSIT with senior-level representatives from key departments with spectrum interests. The Board provides a forum for strategic level discussion and cross-Whitehall coordination on spectrum-related matters. This includes working with the Devolved Administrations where necessary. The Board is supported by subgroups including the Spectrum Implementation Group (SIG), which has representatives from all departments and agencies with spectrum interests, and the Public Safety Spectrum Policy Group (PSSPG), which focuses on the emergency services.

Ofcom sits as an observer on these boards in recognition of its independence from government, and provides senior level advice.

We are in the process of updating the Memorandum of Understanding (MOU) which outlines both Ofcom’s engagement with the Spectrum Board and its representation of UK interests in international spectrum bodies (under the direction made by the Secretary of State) to ensure it reflects the current arrangements.

Maximising UK influence in international spectrum bodies

Global coordination and management of spectrum use is essential to ensure efficient allocation and use of spectrum, protect users against harmful interference and enable economies of scale and interoperability across regions. It is a highly contested space that involves balancing the interests of different sectors, countries and regions. UK policy often needs to balance a range of priorities and competing interests. It also needs to be flexible and responsive to the positions of other countries as negotiations develop.

The UK holds a prominent and positive role within the international spectrum community and we want that to continue. We want to maximise the benefits to the UK from international spectrum decisions in the ITU and CEPT. It is important that the UK policy development process is open and participative, that UK stakeholders can understand the broad context of UK policy, and that all stakeholders’ views can be properly taken into account in formulating UK policy.

Ofcom represents the UK’s interests at the ITU and CEPT, under a Direction from the Secretary of State. In line with this direction, Ofcom updates the government on developing policy positions for such international discussions, enabling government coordination to ensure that they align with government interests and priorities. In the run up to WRC, developing positions are discussed at the UK Spectrum Board. Government stakeholders participate in WRCs, ITU groups and CEPT conferences alongside Ofcom as part of the UK delegation. Ofcom also engages UK stakeholders on international spectrum matters through the International Frequency Planning Group (IFPG), which is open to UK commercial, academic and public sector stakeholders.

The UK is also a prominent and active member of other international organisations with significant interests in spectrum such as the International Maritime Organisation (IMO), the International Civil Aviation Organisation (ICAO) and NATO. These organisations often have strong perspectives in the issues being discussed in ITU and CEPT.

With the next World Radiocommunications Conference (WRC) in 2023 our focus is on ensuring government priorities are duly covered. There are numerous items of crucial importance to the UK, from the allocation of the upper 6 GHz band to a regulatory definition for space weather operations.

We have established a framework to consolidate views across government, meet with industry stakeholders and engage effectively with Ofcom. Through these arrangements, we will keep Ministers apprised of the evolving UK positions culminating in the final set of positions for the WRC and at relevant future forums.

Working with industry

We recognise the importance of regular engagement with industry on current and future spectrum policy issues. We will continue to actively engage with industry including through the Spectrum Policy Forum, which aims to address strategic spectrum issues and provide cross-industry advice to the government on key spectrum policy issues.

8. Public sector spectrum use

The public sector is a major user of spectrum for a variety of services and applications. Some public sector users, such as the police and fire services, access spectrum through spectrum licences from Ofcom. Other “Crown bodies” or departments can use spectrum under Crown immunity, which means that they can manage their own use of spectrum without authorisation or a licence from Ofcom.

Crown spectrum use is recognised in the UK Frequency Allocation Table, with changes to Crown use approved by the government. The majority of Crown spectrum use is for defence, however other departments and agencies also use some spectrum under Crown Immunity.

Given the importance of coordinating Crown and wider spectrum use to ensure the optimal use of spectrum overall, Crown users work closely with Ofcom, for example to minimise interference DSIT provides cross-government coordination and sets overall policy, including around release or sharing of Crown use spectrum for commercial applications. The UK Spectrum Board provides a forum for discussing such changes of use. Any spectrum release has to be agreed by the governance process within the relevant department(s). Ofcom undertakes the necessary coordination efforts where civil use is enabled alongside or replacing Crown use.

The principle of charging opportunity-cost based fees for Crown use of spectrum was adopted following the 2002 Cave Review, to incentivise efficient use of spectrum across Crown users. Ofcom provides advice to the government on the opportunity cost of spectrum bands used by Crown users, with the Treasury and the Secretary of State for DSIT confirming the charges to be made under Section 28 of the WTA.

Public sector spectrum release

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 and 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 private sector use.

The current Programme came to a close in December 2022 and an end of Programme report will be published in 2023. From an original target of 500MHz with a stretch target of 750MHz, the Programme has released or shared 687MHz of spectrum. The Table below details the spectrum released or shared.

Band	Lead Dept.	Quantity of Spectrum (MHz)
70.5-71.5 MHz 80-87.7 MHz 138.0875-138.1125 MHz 138.2875-138.3125 MHz	Home Office	9
1668-1670 MHz 1698-1700 MHz	Home Office	4
870-872 MHz 915-917 MHz	Ministry Of Defence	4
960-1164 MHz	Civil Aviation Authority	92
2025-2070 MHz	Ministry Of Defence	45
Upper 2.3 GHz (2350-2390 MHz)	Ministry Of Defence	40
3.4 GHz (3410-3600 MHz)	Ministry Of Defence	190
7.9-8.4 GHz	Ministry Of Defence	168
2390 - 2400	Ministry Of Defence	10
5725 - 5850	Ministry Of Defence	125
TOTAL RELEASED/SHARED		687 MHz

In addition to enabling the release of spectrum, the Programme has been successful in ensuring government Departments carefully consider how they use spectrum, and this is not just limited to spectrum under 10GHz which was the focus of the PSSR Programme. For example, with the increasing focus on higher frequency bands, MOD has been doing a lot of work recently with Ofcom looking at the defence allocated spectrum in the 26 GHz band and how this could be made available for or shared with commercial mobile broadband and fixed wireless applications. Despite being outside the scope of the PSSR Programme, this will result in significantly more public sector spectrum being available for commercial use cases.

Future public sector spectrum programme

Spectrum is playing an increasingly important role to meet government strategic priorities in the same way that it is for commercial applications.

Going forward, spectrum will continue to be an important tool for a wide range of public sector uses, from protecting the nation and providing emergency services to ensuring the UK remains a science superpower. Therefore, while we want to continue to ensure that efficient use of spectrum remains a priority for Crown users and surplus spectrum reserved for public sector use being made available to the private sector whenever possible, we also need to ensure that the right spectrum is available to the public sector in order to meet associated government strategic priorities. Adopting a target based approach for the first phase of the PSSR Programme has been effective in identifying spectrum used by the public sector for release. Identifying further spectrum will be more challenging since the earlier release of spectrum necessarily resulted in transferring systems in those bands into the remaining spectrum used by the public sector. We are keen to keep the momentum in driving further efficiencies in public sector use and enabling access to commercial applications either via release or on a shared basis. The next phase of the initiative on public sector use of spectrum should be done on a demand-led basis rather than a fixed release target and facilitated via the full release of spectrum or through sharing as appropriate. This will entail a focus on investigating potential future demand from commercial applications and identifying candidate frequency bands used by the public sector for release or sharing.

The increasing interest in higher frequency bands combined with the use of innovative spectrum management approaches such as dynamic and automated tools should make shared access to new users of existing public sector spectrum more feasible where a full release is not practical.

Working with relevant government Departments and Ofcom, we will develop a next phase framework for spectrum used by the public sector. The main access mechanism is likely to be shared access. However, where appropriate, release of spectrum will be explored. Rather than a flat target of spectrum to be released, the new Framework will be demand-led and ensure regular reviews of how government utilises spectrum as well as how Departments engage with Ofcom, encompassing the following three principles:

1. ensuring continued availability of necessary spectrum for existing, evolving and new public sector use cases, particularly those that deliver improved and innovative services or support new defence capabilities

2. prioritising spectrum efficiency in public sector uses while recognising their specific requirements and constraints

3. Continued focus on identifying and making available spectrum no longer needed by the public sector for commercial or emerging public sector use cases.

Private sector spectrum for public sector use

Alongside considering what spectrum currently assigned to the public sector can be made available for civil use, we will consider scenarios where the public sector may need access to spectrum currently licenced to civil users in order to meet government priorities.

9. Summary of actions

A renewed focus on innovation in wireless technology, enhanced sharing of spectrum bands, continuing to expand the frontiers of usable spectrum, advanced spectrum management techniques, improved interference management, monitoring and resilience will enable us to significantly improve spectrum availability, thereby creating greater opportunities for growth by increased access to spectrum and ensuring that spectrum is not a limiting factor on the UK’s economic and societal potential. The Statement sets out a range of principles and actions to support this vision.

Spectrum is a strategic asset and an important enabler for a range of government policy objectives

We will ensure all government interests are duly considered in the overall approach to spectrum through coordination between government and Ofcom, with strategic direction through the SSP and Directions where necessary and appropriate.

Spectrum management should promote innovation and investment alongside consumer-focused outcomes

We will work with Ofcom to ensure partners in government sponsored innovation programmes have a clear understanding of spectrum options early in the development process. We will also consider the need for spectrum-focused innovation support, including opportunities to maximise the value generated through Ofcom’s spectrum sandboxes.

Spectrum management should ensure efficient and optimum use and be linked to actual usage with users empowered to make decisions where appropriate

Where appropriate, decisions on spectrum use should be determined through market mechanisms. However, we will continue to work closely with Ofcom and industry to identify areas where the government can support the repurposing of spectrum to technologies or services which maximise the efficiency of spectrum use and the wider benefits to the UK.

Spectrum management should itself take best advantage of innovation as well as supporting innovation in the services which use spectrum

We will keep the spectrum legislative framework under review and continue to work with Ofcom to ensure it has the necessary powers to adopt innovative approaches to spectrum management, where appropriate. This will include a more detailed consideration of future market and technological changes and the potential application of innovative spectrum management tools.

Wireless infrastructure ambitions

We have asked Ofcom to review and set out for ministers a clear and forward looking rationale for its approach to setting mobile spectrum fees before the end of 2023. This should include an assessment of the current tools used to deliver the benefits of a market-based approach to spectrum management, considering how well these mechanisms have delivered their stated objectives to date and the extent to which they may need to evolve to adapt to changing market conditions and support a strong investment environment. It would also be helpful to understand whether there are useful lessons from approaches in other countries.

The automation of licensing in Shared Access Licence (SAL) bands must be a priority to ensure the scaling up of enterprise networks. We have therefore asked Ofcom to explore further options for accelerating the planned automation process for SAL bands specifically.

We remain committed to the introduction of Dynamic Spectrum Access (DSA) where appropriate and will work closely with Ofcom, industry and other relevant stakeholders to define what form DSA in the UK should take and ensure its timely introduction.

We support Ofcom’s work to review the spectrum sharing framework to ensure that the technical conditions are optimal to maximise the utility of the spectrum. We have also asked Ofcom to consider what further steps could be taken relating to licensing conditions for LALs and SALs, with a view to scaling up enterprise networks while protecting incumbent services in the same or adjacent bands.

Spectrum and Net Zero

We will work with UKSA, Ofcom and the wider earth and space science community to ensure the continued availability and appropriate protection of spectrum for climate science, weather and related high impact services.

We are working closely with the Department for Energy Security and Net Zero, Ofcom and Ofgem to assess the energy (and wider utility) sector’s communications requirements and ensure that timely decisions are taken on any resulting spectrum needs.

Space sector ambitions

We will continue to proactively engage with industry, across government and with Ofcom on space spectrum issues to ensure spectrum policy is informed by stakeholder views and supports our wider space sector ambitions.

Effective governance arrangements

We are in the process of updating the Memorandum of Understanding (MOU) which outlines both Ofcom’s engagement with the Spectrum Board and its representation of UK interests in international spectrum bodies (under the direction made by the Secretary of State) to ensure it reflects the current arrangements.

We want to maximise the benefits to the UK from international spectrum decisions. We have established a framework to consolidate views across government, meet with industry stakeholders and engage effectively with Ofcom. Through these arrangements, we will keep Ministers apprised of the evolving UK positions culminating in the final set of positions for the WRC and at relevant future forums.

Public sector spectrum use

We will publish an end of Programme report for the Public Sector Spectrum Release Programme in 2023.

Working with relevant government Departments and Ofcom, we will develop a next phase framework for spectrum used by the public sector. The main access mechanism is likely to be shared access. However, where appropriate, release of spectrum will be explored. Rather than a flat target of spectrum to be released, the new Framework will be demand-led and ensure regular reviews of how government utilises spectrum as well as how Departments engage with Ofcom, encompassing the following three principles:

1. ensuring continued availability of necessary spectrum for existing, evolving and new public sector use cases, particularly those that deliver improved and innovative services or support new defence capabilities

2. prioritising spectrum efficiency in public sector uses while recognising their specific requirements and constraints

3. Continued focus on identifying and making available spectrum no longer needed by the public sector for commercial or emerging public sector use cases.

1. This covers selected industry codes covering some activities within broadcasting, mobile telecommunications, some fixed services, aviation, and some maritime activity. ↩

2. GVA is a measure of economic value. It is roughly calculated as the final value of goods or services produced by an industry minus the value of intermediate inputs used in the production process. ↩

3. This relates only to the industry ‘wireless telecommunications activities’ (SIC code 61.20), which includes transmission of voice, data, text, sound, and video using a wireless telecommunications infrastructure, maintaining and operating paging as well as cellular and other wireless telecommunications networks, but excludes WiFi. ↩