4.9GHz Band to get New Band Manager Under FCC Plan

Primary Goal is to Improve Adoption of 4.9GHz Band

The FCC on Oct. 24, 2024 issued orders to implement a new management framework for the 4.9GHz spectrum band, aiming to enhance its utilization for public safety communications. This initiative seeks to address previous under use and to integrate modern technologies, including private domain 5G mobile networks, into public safety operations.

Originally allocated in 2002, the 4.9GHz band comprises 50 megahertz of spectrum (4940-4990 MHz) designated for public safety communications. The initial intention was to support various applications such as incident scene management, private cellular networks, local area networks, and fixed point-to-point communications. However, over time, the band has been underutilized, with only about 3,500 licensees nationwide, leading to concerns about its efficiency and prompting the FCC to explore new management strategies.

Unlike other public safety bands, the 4.9GHz band was managed at the state and local level without centralized coordination, leading to inconsistent use across jurisdictions. Some states or municipalities have adopted the band, while others have shown no interest. This lack of a coordinated approach has contributed to scattered, low-density usage patterns and has made the spectrum difficult to manage on a regional level and in areas of intersecting jurisdiction.

The 4.9GHz band so far has been underused for three main reasons:

One big reason for limited use of the band is the high cost of equipment, representing a significant barrier for most agencies with tight budgets. This has led to continued used of older communication bands and missed opportunity, given the unique characteristics of the higher frequency band. Relatively low demand for technology specific to the band has resulted in reduced development of compatible products by equipment vendors, resulting in a stalemate and apathy by both parties. The FCC hopes to end this cycle by introducing structure to the band and a commitment of ongoing support.

The second major issue that has slowed adoption of the 4.9GHz band is a lack of standardized applications and equipment that work across jurisdictions. This lack of interoperability means agencies cannot collaborate as easily in regional emergencies, reducing the appeal of investing in a band that isn’t fully interoperable with other public safety tools and systems.

FCC Seeks to Improve Adoption of 4.9GHz for Public Service

The availability of services like FirstNet (operated by AT&T) are seen as adequate by a lot of smaller agencies that rely mostly on voice and small form data like paging and telemetry. Centralized management makes FirstNet an attractive option and has resulted in an easy choice toward the managed products it offers and little reason to stray once committed. With this order, the FCC aims to enhance the understanding that services on 4.9GHz are an adjunct to your existing communications model and should be explored further.

The third major issue slowing adoption is the uncertainty surrounding the future of the 4.9GHz band in the sometimes fickle hands of the FCC. Are they committed to this band or are they going to reallocate the 4.9GHz band and recall their support? This question has led some agencies to hold off on adopting expensive new technology until a clearer regulatory path was established. The lack of long-term security for the band has likely discouraged investments in infrastructure and technology by both the agencies that need equipment and the vendors that should be developing the advanced equipment and software services needed to enable on-the-fly ad-hoc inter-agency communications.

By implementing a new management framework with a centralized Band Manager, the FCC hopes to address these issues, enhancing the spectrum’s appeal through better coordination, streamlined the licensing process, and by clarifying the agency’s long-term goals.

The New Management Framework

This approach centralizes coordination to optimize public safety use and facilitate the integration of advanced technologies.

The Band Manager Will be Responsible For:

Leasing Model Opens Up Potential Revenue Stream for 4.9GHz Licensees

An important part of the new management framework for the 4.9GHz band is its balanced approach that seeks to optimize spectrum use by creating a flexible, locally managed system that addresses the requirements of public safety users while creating potential for non-public safety secondary users. This framework, structured around a state-based leasing model, gives states the authority to lease spectrum access to eligible non-public safety entities, such as utilities, critical infrastructure providers, and commercial users, in areas where public safety demand is lower. This approach is designed to increase efficient use of the 4.9GHz band while generating potential revenue for state and local agencies that can be reinvested into public safety initiatives.

Requirements for the new Band Manager

In the initial wild west structure of the 4.9GHz band allocation, the responsibility for frequency coordination was largely left to individual public safety agencies, local governments, and state-level entities rather than being managed by a central authority. With no nationwide frequency coordination mechanism in place, local public safety agencies and state governments were responsible for managing interference and coordinating usage within their jurisdictions.

This approach worked reasonably well in areas with fewer public safety users but created challenges in densely populated regions where multiple agencies might attempt to use the same frequencies. In some cases, neighboring agencies or municipalities developed informal agreements to prevent overlap or interference, especially in regions where multiple agencies might need to use the band simultaneously. However, these agreements were not standardized and relied on voluntary cooperation, which led to inconsistent practices and sometimes resulted in interference issues.

The FCC did set basic technical parameters for the 4.9GHz band, such as power limits and channelization (designating certain frequency channels for particular uses, like mobile vs. fixed operations). However, they did not actively coordinate how these channels were used on a local level. The agency expected public safety entities to follow these parameters independently but didn’t mandate an overarching coordination structure to enforce them.

Unlike some other public safety bands that have dedicated frequency coordinators, the 4.9GHz band lacked an assigned body to oversee or facilitate frequency use across jurisdictions. Without a central body to manage it, coordination was often ad hoc, and many agencies faced insurmountable technical and logistical challenges in planning reliable, interference-free operations.

In high-density urban areas or regions with overlapping jurisdictions, the absence of centralized coordination led to frequency conflicts and inefficiencies. Without a national coordination framework, agencies sometimes experienced interference or had to limit their use to avoid conflicts with neighboring entities, reducing the band’s effectiveness.

The new Band Manager framework is designed to address these issues by establishing a centralized authority to coordinate the 4.9GHz band nationally. The Band Manager will handle frequency coordination duties, ensure that interference issues are resolved more systematically, and oversee consistent use of the band across regions. This centralized coordination aims to improve efficiency, reduce interference, and enhance the band’s functionality for critical public safety communications.

4.9GHz Band Manager to be Private Contractor

The band manager will operate under FCC oversight and will be responsible for coordinating usage across the 4.9GHz band, ensuring compliance with FCC rules, and balancing public safety needs with any secondary usage allowed within the band. By designating a non-government entity as the band manager, the FCC is relying on the expertise and technical capabilities of a public sector contractor while at the same time acknowledging its own limited resources and agility.

The Commission will set guidelines and performance requirements to ensure that the Band Manager fulfills its responsibilities. They will likely have mechanisms in place for monitoring the Band Manager’s compliance with public safety and interference management standards.

The FCC has indicated that a public safety-focused selection committee will be involved in selecting the band manager. This committee is expected to represent the interests of public safety stakeholders and will help choose the most qualified organization for the role. The selection criteria will likely emphasize expertise in spectrum management, public safety operations, and experience with complex coordination needs.

Potential contractors qualified to serve as band manager include the usual suspects: AT&T, Verizon, Google, Harris, Nokia, Federated Wireless, and Motorola. As with most government contracts, the FCC will likely want a long-term deal or agreement with the selected Band Manager, including performance metrics, monitoring and oversight, and performance-based renewal terms. These measures may focus on things like reducing interference incidents, effectively maximizing band usage, dispute resolution, and satisfaction of public safety entities served.

Why a Private Band Manager?

The decision to use a private entity for this role aligns with the FCC’s goal of improving efficiency, flexibility, and access to technical expertise. A private organization with spectrum management expertise is seen as more agile than a government entity. Additionally, this structure allows the FCC to maintain oversight while delegating day-to-day management activities to an entity with skills and experience in this area. The goal of this structure is to improve coordination and efficiency while ensuring public safety needs are met across the entire band in a timely manner.

Role of Local Governments

Local governments and public safety agencies retain operational control over their communications within the 4.9GHz band. They will collaborate with the Band Manager to coordinate spectrum use, ensuring efficient and interference-free operations. This partnership aims to balance centralized coordination with local autonomy, enhancing the effectiveness of public safety communications.

This new framework represents a significant step toward optimizing a valuable spectrum resource. By centralizing coordination and promoting the integration of advanced technologies, the initiative seeks to improve public safety communications while encouraging more efficient spectrum use.

The Band Manager will handle frequency coordination duties, ensure that interference issues are resolved more systematically, and oversee consistent use of the band across regions. This centralized coordination aims to improve efficiency, reduce interference, and enhance the band’s functionality for critical public safety communications.

Implementing a 4.9GHz Band Manager: Process and Timeline

Implementation of the new management framework for the 4.9GHz band is overseen by the FCC’s Wireless Telecommunications Bureau and the Public Safety and Homeland Security Bureau. These bureaus are responsible for establishing procedures to select a nationwide band manager, including forming a selection committee, identifying selection criteria, and overseeing the selection process. The FCC order outlines three specific implementation phases:

Phase 1: Selecting a Band Manager

The first step in rolling out the new framework will be selection of the new band manager. This will involve an FCC-administered application and review system aimed at identifying an entity with the expertise and resources necessary to oversee leasing arrangements, ensure public safety prioritization, and manage potential interference. Interested candidates will be evaluated based on their experience in spectrum management, technical capacity for coordinating between public safety and non-public safety users, and ability to enforce the protections required to maintain public safety communications. The selected band manager will also need to demonstrate a commitment to fostering efficient spectrum use and supporting interoperability across jurisdictions. After reviewing applications, the FCC will make a final selection, appointing a band manager to execute a long-term strategy that aligns with public safety goals while supporting secondary uses where appropriate.

Phase 2: Application of National Overlay License

The nationwide overlay license process for the 4.9 GHz band is designed to facilitate a coordinated and efficient approach to spectrum access by establishing a single license holder with the authority to manage and lease the band across the country. This process is necessary because it centralizes oversight, ensuring that the spectrum is used consistently and effectively across different regions, particularly where state-level use varies. By assigning an overlay license, the FCC aims to streamline leasing arrangements for secondary users while safeguarding public safety operations through uniform rules and interference protections. This national license holder will be responsible for managing spectrum use to balance public safety and secondary user needs, maximizing efficient utilization of the 4.9 GHz band while addressing regional variations in public safety requirements and commercial demand.

3: Operational Rollout

The operational rollout phase for the 4.9 GHz band will proceed through a phased implementation approach, beginning with the establishment of the band manager’s authority and state-by-state engagement to develop leasing agreements that prioritize public safety needs. Initially, the band manager will work with state agencies to assess local public safety usage and identify areas with available bandwidth for secondary users. Following these assessments, the manager will facilitate leases with non-public safety entities while ensuring compliance with public safety interference protections. As leases are approved, secondary users will gradually activate services, starting in regions where demand is high and public safety usage is lower, allowing for a controlled increase in network activity. Throughout this phase, the band manager will coordinate ongoing monitoring and troubleshooting to optimize interoperability and address any issues, ensuring a smooth transition to a fully operational, multi-use spectrum that serves both public safety and secondary users.

While specific dates are not detailed in the order, the FCC emphasizes a prompt transition to enhance the band’s utility.