FCC and NTIA Model City Advanced Sharing Technologies
Federal Communications Commission
United States Department of Commerce
445 12th St., S.W.
National Telecommunications and
Washington, D.C. 20554
1401 Constitution Ave., N.W.
Washington, D.C. 20230
News Media Information 202 / 418-0500
News Media Information 202/ 482-7002
July 11, 2014
THE FEDERAL COMMUNICATIONS COMMISSION AND THE NATIONAL
TELECOMMUNICATIONS AND INFORMATION ADMINISTRATION:
MODEL CITY FOR DEMONSTRATING AND EVALUATING
ADVANCED SHARING TECHNOLOGIES
ET Docket No. 14-99
Comments Date: [45 days after date of Federal Register publication]
The National Telecommunications and Information Administration (NTIA) and the Federal
Communications Commission’s (FCC) Office of Engineering and Technology (OET) issue this Joint
Public Notice to seek public comment on the President’s Council of Advisors on Science and Technology
(PCAST) recommendation that the Secretary of Commerce establish a public-private partnership to
facilitate the creation of an urban test city, that would support rapid experimentation and development of
policies, underlying technologies, and system capabilities for advanced, dynamic spectrum sharing. The
test services (referenced herein as a “Model City”) for demonstrating and evaluating advanced spectrum
sharing technologies could include large-scale sustainable facilities for systems-level testing in real-world
environments across multiple frequency bands, including public safety and selected federal bands.
Through this Joint Public Notice, NTIA and OET seek to promote the Model City concept in conjunction
with: (1) the new Center for Advanced Communications established by NTIA and the National Institute
of Standards and Technology (NIST) and (2) the FCC’s existing experimental licensing program.
In July 2012, the President’s Council of Advisors on Science and Technology (PCAST) released
a set of recommendations to the President on how to realize the full potential of government-held
spectrum to spur economic growth by facilitating spectrum sharing as a mainline approach to spectrum
management.1 This report (herein PCAST Report) concluded that clearing and reallocation of federal
spectrum is no longer a sustainable basis for spectrum policy due to the high cost, lengthy time to
1 See Report to the President: Realizing the Full Potential of Government-Held Spectrum to Spur Economic Growth,
at 49-50 (July 2012), available at http://go.usa.gov/k27R (PCAST Report).
implement, and disruption to the federal mission.2 Based on this finding, the PCAST called for a new
spectrum architecture premised on spectrum sharing rather than exclusive use. To bridge the gap from
today’s spectrum use model to such a new regime, one of the PCAST’s recommendations was to create an
urban test city in a major U.S city to support realistic, rapid experimentation in spectrum management
technology and practice.
Before and after the release of the PCAST Report, the Administration, NTIA and the FCC
launched several initiatives to facilitate research, development, testing, and evaluation of spectrum-
sharing technologies. The 2010 Presidential Memorandum on “Unleashing the Wireless Broadband
Revolution” directed the Secretary of Commerce, working through NTIA in consultation with NIST, the
National Science Foundation (NSF), the Department of Defense, the Department of Justice, the National
Aeronautics and Space Administration, and other agencies as appropriate, to create and implement a plan
to facilitate research, development, experimentation, and testing by researchers to explore innovative
spectrum-sharing technologies.3 NTIA, NIST, and NSF, with support from the National Information
Technology Research and Development (NITRD) program, formed the Wireless Spectrum R&D (WSRD)
Senior Steering Group (SSG) to coordinate spectrum-related research and development activities across
the federal government, private sector, and academia.
The 2013 Presidential Memorandum on “Expanding America’s Leadership in Wireless
Innovation” directed the Secretary of Commerce, working through NTIA, to continue to facilitate greater
discussions between government and commercial stakeholders on spectrum sharing.4 Pursuant to this
memorandum, the NITRD WSRD SSG, on behalf of NTIA and NIST, published a comprehensive
inventory of federal and non-federal test facilities.5 NTIA and NIST also created a new Center for
Advanced Communications (CAC) to promote interdisciplinary research, development, and testing in
several areas including spectrum sharing and advanced technologies for broadband and public safety.6
The CAC will develop multiuser testbeds that allow government and industry researchers to measure and
evaluate the performance of new advanced spectrum-sharing technologies.
The 2013 Presidential Memorandum also directed NTIA to design and conduct a pilot program to
monitor spectrum usage in real time in selected communities throughout the country to determine whether
a comprehensive monitoring program in major metropolitan areas could disclose opportunities for more
efficient spectrum access, including via sharing.7 In August 2013, NTIA published a Notice of Inquiry on
2 See id. at vi.
3 See Memorandum for the Heads of Executive Departments and Agencies, Unleashing the Wireless Broadband
Revolution (rel. June 28, 2010), published at 75 Fed. Reg. 38387 (July 1, 2010), available at http://go.usa.gov/8nr3.
4 See Memorandum for the Heads of Executive Departments and Agencies, Expanding America’s Leadership in
Wireless Innovation (rel. June 14, 2013), published at 78 Fed. Reg. 37431 (June 20, 2013), available at
http://go.usa.gov/8nr3 (2013 Presidential Memorandum).
5 See WSRD SSG National Wireless Testbed Information Portal, available at http://go.usa.gov/8ngh.
6 See NIST and NTIA Announce Plans to Establish New Center for Advanced Communications, Press Release
(June 14, 2013), available at http://go.usa.gov/DTdG.
7 See 2013 Presidential Memorandum.
the spectrum monitoring pilot program to solicit input from stakeholders, and has used some of the
information collected from that inquiry to begin implementation of the pilot.8
The FCC recently modified its experimental licensing rules to provide a more flexible framework
to keep pace with the speed of modern technological change, including advanced spectrum sharing
concepts.9 The revised rules permit institutions to move from concept to experimentation to finished
product as rapidly as possible using a new program experimental license that gives licensees more
flexibility to conduct multiple experiments in certain locations without filing separate applications.
Program licensees can also conduct specific types of experiments without individual authorizations in
designated “innovation zones.” In March 2014, the FCC’s Technological Advisory Council (TAC)
created a working group to study advanced sharing of federal and non-federal spectrum bands and
enabling wireless technologies.10 This working group is developing key recommendations to support the
creation of a Model City including scope, logistics, locations, frequency bands, and other operational
issues and objectives.
The purpose of this Joint Public Notice is to build upon the PCAST recommendations on test
services necessary to demonstrate and evaluate advanced spectrum sharing technologies through the
potential establishment of a Model City program. This program, if established, could facilitate large-scale
sustainable facilities for systems level testing in real-world environments across multiple frequency
bands, potentially including selected federal and non-federal frequency bands. NTIA and the FCC would
work together in accordance with their respective areas of authority. The responses to this Joint Public
Notice will help determine whether NTIA and/or the FCC may need to undertake additional actions or
initiate formal proceedings.
Through this Joint Public Notice, NTIA and OET seek comment on the PCAST recommendation
and on ways to establish, fund, and conduct the Model City program. We also welcome stakeholder input
on other measures that NTIA and the FCC could employ to promote the program, for example, through
independent public-private partnerships among federal and local government stakeholders and
commercial interests. We are soliciting ideas on how to move the PCAST recommendation forward and
therefore seek comment on the next steps that NTIA and the FCC could take to develop specific
approaches for effectively demonstrating and evaluating sharing technologies in real-world environments.
NTIA and OET also seek comment on the types of spectrum sharing innovations and supported
applications that would be good initial candidates for such evaluations, including their potential benefits,
recommended spectrum bands for sharing, and appropriate operational requirements.
NTIA and OET seek comment on the extent to which the Model City can and should be a largely
to establish independent public-private partnerships by industry, municipalities (or
8 See NTIA, Spectrum Monitoring Pilot Program, Notice of Inquiry, 78 Fed. Reg. 50399 (Aug. 19, 2013), available
9 See FCC, Promoting Expanded Opportunities for Radio Experimentation and Market Trials under Part 5 of the
Commission’s Rules and Streamlining Other Related Rules, ET Docket No. 10-236, Report and Order, 28 FCC Rcd.
758 (Feb. 2013), available at http://hraunfoss.fcc.gov/edocs_public/attachmatch/FCC-13-15A1_Rcd.pdf.
10 See TAC, Summary of Meeting at 36 (Mar. 10, 2014), available
other political subdivisions), and other non-federal stakeholders. Particularly in light of the recent
modifications to the FCC’s experimental licensing rules, how could the Model City take advantage of
these rule changes without having to establish or fund a new federal program? What type of formal or
informal agreements or arrangements among the non-federal parties would be necessary to effectuate the
Model City relationships and understandings between, for example, an industry consortium and the
participating city? Beyond the FCC’s formal role in administering the experimental licensing process,
NTIA and OET seek comment on how it could further expedite or streamline the process for Model City
participants and more effectively ensure compliance with the rules and any license conditions.
In addition to coordinating experimental license applications to use bands implicating federal
spectrum assignments, to what extent should NTIA be involved in particular initiatives to facilitate
federal agency participation in a Model City program? NTIA and OET seek input from commenting
parties on whether the Model City program should be managed by the federal government or whether the
FCC and NTIA could, on top of their existing licensing and coordination roles, help initiate and facilitate
a dialogue between the key stakeholders who will directly develop, participate in, and benefit from a
successful Model City program within the scope of existing rules or other requirements.
The new CAC established by NTIA and NIST could be a potential vehicle to advance the Model
City concept. As noted above, a core function of the CAC is to promote interdisciplinary research,
development, and testing in radio frequency technology and spectrum sharing. NTIA and OET seek
comment on the potential role of the CAC in managing the activities within one or more Model Cities,
such as working directly with NTIA and the FCC to coordinate the interests of incumbent spectrum users
to avoid harmful interference, while ensuring that innovators have access to adequate spectrum resources
and other facilities in cooperation with city officials. While we would expect private sector stakeholders
to drive the design and development of innovative wireless technologies and business models that could
be tested in a Model City, NTIA and OET seek comment on how the CAC could work as an impartial
facilitator with the federal and non-federal stakeholders and local governments to develop feasible test
plans, minimize regulatory issues and constraints, monitor experimental deployments, and evaluate and
report the test results.
The FCC’s experimental licensing program makes spectrum available to any non-federal party
interested in experimenting with new radio technologies, equipment designs, radio wave propagation
characteristics, and innovative service concepts (including market trials), especially in new innovation
zones. NTIA and OET seek comment on how this program can be effectively used as a platform for the
establishment of the Model City. For example, how can the FCC and NTIA facilitate stakeholder
deployment of innovation zones in one or more Model Cities?
NTIA and OET invite commenters to suggest opportunities for collaboration among wireless
service providers, hardware vendors, academia, federal agencies, and other researchers and developers.
How would such collaboration in a Model City better facilitate more rapid experimentation of advanced
spectrum sharing techniques between new commercial systems and incumbent or new federal systems?
How would such collaborative use within Model City innovation zones enhance stakeholders’ ability to
try various sharing concepts? For example, what kind of flexibility would stakeholders need to make
adjustments as needed when developing sharing protocols under real-world scenarios while ensuring
protection of other services and operations?
The host community for a Model City could play a crucial and collaborative role by expediting
access to rights-of-way and other facilities (e.g., fiber, conduits, poles, towers, buildings, rooftops, park
spaces, tunnels, etc.) for short- and long-term wireless infrastructure and monitoring deployments. The
PCAST Report suggests that regional clusters of local industry associations, government, and academia
could develop proposals to host the Model City in their particular regions to leverage their own
innovation investments, local suppliers, terrain characteristics, nearby federal installations, and other
unique features and benefits. 11 NTIA and OET seek comment on the most appropriate approach for
soliciting or identifying eligible cities interested in hosting Model City deployments. What particular
factors, accommodations, commitments, or benefits would be important? For example, how should local
permitting processes, accessibility to city lands and facilities, or incentives be considered? What features
of a Model City would be most attractive for candidate cities to participate in the program?
Finally, NTIA and OET seek input on the potential funding mechanisms and other processes for
establishing and maintaining one or more Model City deployments in a manner that facilitates potentially
resource-intensive collaborative efforts among a wide range of stakeholders while minimizing
expenditure of taxpayer (both federal and local) dollars. How should funding be addressed in Model City
proposals and what minimal commitments should be required for such proposals to go forward? How
would existing mechanisms, such as federal Cooperative Research and Development Agreements, be used
to expand opportunities for private stakeholder funding, collaboration, and information protection and
what other alternative methods could be used to formalize the parties’ roles and responsibilities, including
funding? What incentives might be provided, and by whom, to increase participation in a Model City
program? What other factors should be considered in a process to solicit interest in and successfully
initiate Model City proposals?
Pursuant to sections 1.415 and 1.419 of the Commission’s rules, 47 CFR §§ 1.415, 1.419, interested
parties may file comments and reply comments on or before the dates indicated on the first page of this
document. Comments may be filed using the Commission’s Electronic Comment Filing System (ECFS).
See Electronic Filing of Documents in Rulemaking Proceedings, 63 FR 24121 (1998).
Electronic Filers: Comments may be filed electronically using the Internet by accessing the
Paper Filers: Parties who choose to file by paper must file an original and one copy of each
filing. If more than one docket or rulemaking number appears in the caption of this proceeding,
filers must submit two additional copies for each additional docket or rulemaking number.
Filings can be sent by hand or messenger delivery, by commercial overnight courier, or by first-
class or overnight U.S. Postal Service mail. All filings must be addressed to the Commission’s
Secretary, Office of the Secretary, Federal Communications Commission.
All hand-delivered or messenger-delivered paper filings for the Commission’s Secretary
must be delivered to FCC Headquarters at 445 12th St., SW, Room TW-A325,
Washington, DC 20554. The filing hours are 8:00 a.m. to 7:00 p.m. All hand deliveries
must be held together with rubber bands or fasteners. Any envelopes and boxes must be
disposed of before entering the building.
11 See PCAST Report at 71.
In addition, written comments may be submitted to NTIA electronically in standard Word
or Adobe PDF format by email to firstname.lastname@example.org or by mail to: National
Telecommunications and Information Administration, U.S. Department of Commerce,
1401 Constitution Avenue NW, Room 4096, Washington, DC 20230, Attn: Rangam
Subramanian, Office of Spectrum Management, Docket Number 140708559-4559-01;
and to Matthew Hussey, Office of Engineering and Technology, Federal
Communications Commission, 445 12th Street, SW, Room 6-A324.
Commercial overnight mail (other than U.S. Postal Service Express Mail and Priority
Mail) must be sent to 9300 East Hampton Drive, Capitol Heights, MD 20743.
U.S. Postal Service first-class, Express, and Priority mail must be addressed to 445 12th
Street, SW, Washington DC 20554.
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Documents in ET Docket No. 14-99 are available for public inspection and copying during
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Questions regarding this Public Notice may be directed Rangam Subramanian at (202) 482-4399 or
email@example.com and Matthew Hussey at (202) 418-3619 or firstname.lastname@example.org.
By the Chief, Office of Engineering and Technology and Deputy Chief, Counsel, National
Telecommunications and Information Administration.
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