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TETRA for Poland

8 July 2011

O R G A N I S AT I O N A L & B U S I N E S S M O D E L S

A Mikromakro Institute Report

ISBN 978-83-62824-01-4

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TETRA for Poland

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TETRA for Poland O R G A N I S A T I O N A L & B U S I N E S S M O D E L S

The deployment and implementation of a single nationwide communications system for public protection

and disaster relief services is a complex challenge for any country. Synergies in the technical

organisation of communications systems must be created for a number of different services, governed by

different regulations and financed from different sources, which requires adaptation to their specific

needs. One cannot discard the experience gained from their earlier operations, but on the other hand,

some old ways, like the physical ownership and control of infrastructure need to be changed, because it

is now better to share infrastructure with others. Securing stable financing for a major project can be

quite a challenge, as it will compete with other important public policy objectives financed from thenational budget.

Even when governed by uncompromising security or national defence requirements, public

telecommunications projects are increasingly often planned as long-term cooperation with private

partners. The telecom sector has been commercialised over the last decade or so, and learned the ways

of the market economy. Even if not designed to compete with market players, state-operated projectsmust take account of the market environment or else they will be unable to cope with their operating

costs or secure finance for development. When taking on new challenges in the area of

telecommunications, the public sector may take advantage of the knowledge of the private sector in the

fields of technology, infrastructure roll-out, management of telecommunications operators' costs or

application of sophisticated financial instruments. With a selected partner, it may co-decide on operating

responsibilities, financing models and risk management. This report by the Mikromakro Institute

Foundation does not purport to identify the optimal model for working with a private partner, technology

vendor, integrator, operator or investor in Poland. To a certain extent, these are political choices. The

State decides how it wishes to control ventures, which are critical for the security of the population,

protection of property, infrastructure or the economy. It is also up to the government to decide, if it

wishes to promote the deployment of an international technical platform for the cooperation of public

protection and relief services in neighbouring countries. Such choices need to be made following a

thorough review of the considerations. In our report we wish to point to a range of possible solutionsderived from other countries' experiences.

In drawing up this report we wished to avoid discussion on technical issues, e.g. comparisons of the

technical or functional specifications, preferring to leave that to experts in radio trunking systems.

Technical terms are used in the report mostly to illustrate prevailing market trends. What we want to do

in this report, is to dispel doubts about the rationality of selecting TETRA for nationwide public protectionand disaster relief networks in many countries, including all European countries, except Poland, at least to

date.

The greatest benefit associated with the TETRA digital system, developed specifically for public

protection and disaster relief services, is the maturity of this open standard and dozens of successful

implementations. The standard will continue its evolution, thus meeting the expectations with regard to theintegration of high-speed data transmission, also in the new generations of radiocommunications systems,

e.g. LTE. This market is restricted to professional applications, which are a niche, as if it were, comparing

to commercial mobile telephony. Nonetheless, the effects of competition are clearly visible in TETRA

systems, including the drive at the interoperability of different vendors' equipment, testing of cross-

border network connectivity, development of the applications' market or specialised industrial

applications. Dozens of working fora, seminars and conferences provide ample opportunity to share

experiences on the roll-out and operation of TETRA systems, development of interfaces, new services and

applications. No other competing radio trunking system has the same kind of evolutionary momentumcollectively driven by technology vendors, operators and users of government networks. It is precisely



TETRA for Poland

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such conditions, which have led to the development of applications and specialised technical solutions,

which no single user could afford to develop alone.

We address this report to:

Policy-makers and decision-makers involved in crisis management, national security, public law &

order and disaster relief services;

Policy-makers dealing with communications systems and spectrum management;

Those in charge of the development and operation of communications services for government

services, emergency services, public security services of the Ministry of Interior and Administration,

crisis management services;

Users of state-operated radio trunking systems.



Table of contents

1. RADIO TRUNKING SYSTEMS IN POLAND ............................................................... 1

Current TETRA status in Poland ......................................................... ..................................................... 2

2. ORGANISATION AND ECONOMICS OF TETRA NETWORKS ................................... 4

Scope and scale of the system .............................................. ............................................................... . 4

Risk of nonfeasance and makeshift solutions ........................................................ ............................... 6

Role of project leadership ................................................................................................ ...................... 7

Network planning ........................................................... .............................................................. ............ 8

Contract with infrastructure operator .................................................................................................. . 9

3. SELECTED EXAMPLES OF IMPLEMENTED TETRA NETWORKS GOVERNMENT PROJECTS 11

Hungary ...................................................... ................................................................. ............................ 11

Finland ........................................................ ................................................................. ............................ 14

Estonia ......................................................... ................................................................. ............................ 16

Denmark ..................................................... ................................................................. ............................ 18

4. TETRA AS A PANEUROPEAN EMERGENCY COMMUNICATIONS SYSTEM ............ 21

Frequency harmonisation in Europe ............................................................ ....................................... 22

Standardisation...................................................................................................................................... 23

European forum of government TETRA network users and administrators ................................. 26

Cross-border cooperation ....................................................................................... ............................ 27

Sector representation – the TETRA Association ............................................................... ................. 27

5. DIGITAL RADIO TRUNKING SYSTEMS ALTERNATIVE TO TETRA TECHNOLOGY .. 29

DMR ............................................................. ................................................................. ............................ 29

CDMA2000 - GoTa ....................................................... .............................................................. ......... 30

6. INTEROPERABILITY ISSUES .................................................................................... 37

Interoperability Certificate ................................................................ .................................................. 37

ISI inter systems interface ......................................................... ............................................................ 37

7. TETRA DEVELOPMENT ........................................................................................... 40

8. SOURCES ............................................................................................................... 42



TETRA for Poland

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TETRA for Poland O R G A N I S A T I O N A L & B U S I N E S S M O D E L S

RADIO TRUNKING SYSTEMS IN POLANDCurrently, Poland has more than ten thousand diverse operational trunked radio networks rolled out over

the years. They are used in organisations, which need permanent communications, but also require

mobility. Such communications allow real-time coordination within an organisation and simultaneous

communications with all users. Mobile radio users can remain in touch at all times, but they can also listen

too what is happening with the rest. This is the way that many organisations use their means of

communications and it corresponds to users' habits.

Despite the rapid growth of mobile telecommunications services and applications, the technical and

service aspects of the successive generations of commercial GSM, UMTS or HSPA networks have been

designed in a different way than radio trunking networks and they do not offer the basic services

required of radio trunking networks, nor the other services currently available in radio trunking networks,

such as: group calls, which dominate in radio trunking networks, pre-emptive priority calls or direct mode

calls. Even though cellular networks are built according to theoretically flexible standards suitable for

new SOA standards, commercial mobile operators have never been particularly keen on looking for

technical solutions or services, which could be substitutes for typical radio trunking network applications.

In the meantime, several hundred thousand mobile radios currently operating in radio trunking networks

in Poland use many radio channels in different frequency bands. These are mostly very small and simple

networks, using the same channel for TX and RX (simplex mode). Call quality in these networks susceptible

to fading and interference is usually low and radio frequency spectrum efficiency is poor. The

widespread increase in mobility and increased demand for transmitting information over the radio has

turned such wasteful radio spectrum utilization into a problem. In the early 1990s Poland started to build

technically more advanced networks, so-called trunking networks, in which a computerised mobile services

switching centre would automatically set up connections, selecting the free radio channel from the pool of

available channels. One example of such networks was the EDACS network supplied by Ericsson and

operated by the police. Other examples were a nationwide commercial network based on the British

standard MPT13277, the network used by the national power grid and some 20 local networks. These

networks, which used analogue methods to process and transmit signals, became obsolete as digitalsystems evolved. Digital technologies, the development of semi-conductor technologies, a greater scale of

integration and improved battery performance have made it possible not only to develop better

terminals, base stations, switches and processing methods, but also offered much more efficient radio

signal coding, modulation and frequency spectrum utilisation. The users of private radio trunking networks

are now offered digital systems, like DMR or TETRA.



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It is estimated that there are currently some 2000 networks rolled out at different times, using many

different technologies, which cater to the needs of state services, whose important duties require mobility.

Among others, these are security and public order services, national security agencies, national fire

brigades fighting and disaster relief services, emergency medical services and the border guard.

Current TETRA status in PolandCommunications administration in Poland tends to have an open approach to EU policy concerning the

development of pan-European radiocommunications systems, unless there are some major, objective

barriers, e.g. due to Poland's position as an EU frontier state. This was the case with the proposed

frequency allocations for a pan-European TETRA mobile communications system for public protection and

disaster relief services, which was one of the postulates in connection with the publication of the 1994

Green Paper on a common approach in the field of mobile and personal communications [Green Paper,

EU 1994]. The intention to roll out a TETRA network in Poland first appeared in a government strategy

paper in the late 1990s , entitled "Telecommunications development strategy" published in mid 1996

[Polityka, 1996]. This document had an exceptional status, as it was first adopted by the Council of

Ministers and then presented in the Parliament.

In the late nineties of the 20th century entities, which had the right to make decisions about

radiocommunications systems had obtained access to offers for TETRA technology and it took relatively

little time to deploy more than a dozen local networks. The year 1999 saw the beginning of the roll-out

of a TETRA system in a technology supplied by Motorola to the Command Control Centre (SWD) of

Warsaw's Police HQ. The system became operational in 2002. Later, Provincial Police HQs in Łódź,Szczecin, Cracow and Szczytno also started using TETRA networks. In 2004, Poland's NRA (URTiP, at the

time) issued seven decisions, which made it possible to roll out local networks. It was then that the

networks managed by the cities of Szczecin, Wrocław and Gdańsk were built. Speaking of local

commercial networks, one should mention equipping the biggest airports, seaports, container terminals

and power distribution companies with TETRA networks.

The first practical step which took Poland closer to the deployment of a nationwide TETRA network was

the designation of a team at the Ministry of Interior and Administration in July 2000, which was to lay

down the rules for the establishment and operation of an organisational unit assuring nationwide TETRA

communications. In November 2001 a team with a similar brief achieved a higher status, as it had been

called into being by a decision of the President of the Council of Ministers.

The concept of deploying a nationwide TETRA network was recognised as realistic when the decision was

made that under the contract for the delivery of 48 F-16 fighters to Poland, concluded on 20 June 2003,

the roll-out of a state-of-the-art communications system for public protection and disaster relief services,

with the transfer of TETRA equipment manufacturing technology could be included as an important

element of the offset deal in a 10-year period. The value of this offset commitment was estimated at US$ 1.4 billion, including the transfer of equipment manufacturing technology to Radmor SA.

June 2003 saw the establishment of the ComputerLand SA, Prokom Software SA, Tel-Energo SA and

Motorola consortium, which after a year of preliminary negotiations with the Ministry of Interior and

Administration, developed a TETRA roll-out plan, which was to last three years and a half and ensure

nationwide coverage by 2008. This new network was to replace the older SWD Police networks. The

plan called for building some 1700 base stations, a backbone optical fibre network, many radio lines

and equipping some 140,000 users in public protection and disaster relief services with mobile radios.



TETRA for Poland

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The lack of experience on the part of the government side in negotiating offset terms, absence of a

negotiation strategy for the development and operation of a TETRA network and, as we can now say

with the benefit of hindsight, maybe mostly the lack of leadership in the strategy of the implementation

of new technologies in the economy, have led to a deadlock in the negotiations. The Council of Ministers

took very long to make a decision and to resolve on the division of powers between the Ministry of

Interior and Administration in charge of the TETRA project and the Ministry of the Economy, responsiblefor programming the offset. Estimated project costs soared to nearly PLN 5b, nobody had any clue as to

how to finance the project, there was no clear vision of the organisation and financing of the provision of

the services in the future network, or how to coordinate and integrate the IT systems of the various

services. Ultimately, the government decided that project implementation under the offset, i.e. within a

pre-defined model of cooperation, would not be successful.

Early in 2007 the Ministry of Interior and Administration developed a modified conception for the

deployment of a nationwide TETRA network, in several stages, based on an open tender. The first stage

called for the deployment of pilot networks in Warsaw and Katowice, plus a national crisis managementcentre. After that, the system was to be gradually extended. Unfortunately, nobody bothered to review

the economic estimates earlier prepared for the offset project, which had been already challengedearlier. It was also assumed that after approval by the Council of Ministers, the project was to be used to

secure financing under one of the financial instruments offered under EU structural funds, EIB bonds or

under the so-called Norway Grants in the framework of funds earmarked for technical projects relatedto the protection of Schengen frontiers. Returning to offset negotiations was another option of

implementing the project, but the proposals of the Ministry of Interior and Administration lacked vision,

which the government could back. Moreover, there were no proposals on issues, which had been the

weakness of earlier offset negotiations, namely, on the future business model for the TETRA systemoperator or how to ensure seamless cooperation between the different users.

The new coalition government, which came to power after the fall elections of 2007, started the

preparations for the tender for a nationwide TETRA system from scratch. It proposed to change the

approach to the implementation of government ICT projects by, among other methods, transferring the

organisation of preparations to a new institution - the Centre for IT Projects answerable to the Ministry of

Interior and Administration. The ultimate approach was to select bidders for framework agreements and

a staged implementation of a project, neutrally called in technological terms – Nationwide Digital

Communications System. One can only assume that this procedure was to be a prelude to negotiations,

which would allow the transfer of knowledge on optimised business, technical and economic models.

The tender was announced in August 2010. The project was to be financed up to 85% with EU funds –

Operational Programme Innovative Economy, i.e. PLN 500m. The first stage meant the roll-out of

radiocommunications networks for public protection and disaster relief services in Poland's biggest cities,

which are to host the EURO 2012 European Football Championships. Unfortunately, in view of the

deadline imposed by the EURO 2012, the Ministry of Interior and Administration was unable to make up

for the time wasted on procedural wrangling, instead of substantive negotiations and to fine tune the

project. Tying the project to the EURO 2012 timetable became impossible and the tender was officially

cancelled on April 14.



ORGANISATION AND ECONOMICS OF TETRA NETWORKSEuropean countries have adopted different organisational and economic models for the roll-out and

operation of TETRA networks for their public protection and disaster relief services. However, any

government authority in charge of the planning and implementation of such an undertaking will always

face the same fundamental dilemma – how to reconcile contradictory determinants:

Ensuring that the new system has all the necessary functionalities and coverage derivedfrom the duties of the services, which will use it;

Budget constraints

Scope and scale of the system

The basic user groups, for which professional

radio trunking networks are built and for which the

TETRA standard had been developed, are variouspolice, public protection, fire fighting, medical

emergency, technical emergency services, utilities,

road transport, railways, inland navigation, public

transportation, logistics, electrical energy

producers & distributors, liquid fuel producers &

distributors, major factories located on large sites, such as chemical, automotive or metallurgical plants.

Although this varies in scope and degree, the ability of all these TETRA user groups to operate depends

on effective communications. For several years now, emergency medical services have been implementing

detailed procedures intended to streamline their operations, which includes minimising the time required

for reaction, proper incident qualification, first aid and transit to the hospital. Communications are a

factor allowing cutting down on the time required for these procedures.

There are times, when a communications system is not only indispensable, but when it becomes an inherent

part of an organisation. This is the case of modern-day police, where an officer in the field should have

permanent access to a reliable mobile communications device.

The growing significance of information systems has not only recently changed the way, in which many

organisations operate, but it has radically overturned those, which had already earlier relied on trunked

mobile radiocommunications. In logistics and transportation, increasingly conceptually sophisticated

resource management is a must. It is not only about increasing productivity, but also about obvioussavings in factors, which indirectly affect the operation of various systems, but are as important as e.g.

energy consumption. This was the consequence of a competitive marketplace and a better understandingof the need to protect the environment. Complexity and automatic information processing systems have

brought about the notion of smart transportation, but also smart power industry, or smart cities.

Generally, telecommunications systems are governed by economies of scale. Theoretically, if we pass

over the not so negligible market aspects of service provision in a competitive environment, it would be

more profitable to build a bigger system, serving a greater number of users, especially users whose

ability to pay for the services does not depend on the state budget. The 380MHz frequency band

harmonised in Europe for TETRA networks was clearly allocated for the purposes of mobile

communications in emergency situations. However, it is more for budgetary considerations, than anyrestrictive state security policies, that government-built TETRA networks in the case of most known projects

have been scaled to the requirements of state public protection and disaster relief services, even ifsimple professional logic concerning traffic planning in the network would suggest allowing for the

redundancy required in an emergency mobilization.

Postponing the migration of trunked radionetworks used to date to a new TETRA

network will delay the achievement of the

break-even point by its operators



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Project preparation management

Due to some historical momentum, the telecommunications sector, including Poland, still has some state-

owned or scientific IT networks, whose administrators have not yet been forced to learn about analysing

investment and operating costs. However, the TETRA project is not only autonomous, but it is also

associated with the provision of services to many organisations, differing in terms of organisation andneeds.

Budget constraints, which to a varying extent have affected practically all nationwide TETRA networks

deployed to date, should not be interpreted as a need to limit the scope of projects. Such an approach

would be irrational considering the purpose of such networks. In other words, public protection anddisaster relief services, constitutionally responsible for performing critical missions on behalf of the state

must fulfil their duties irrespective of the time or location of events, which require their intervention.

Radiocommunications networks designed to serve them must ensure full functionality and territorial

coverage, to allow the performance of these duties. Budget constraints should provide incentives to look

for savings in project organisation, but not necessarily in its scope. In particular, it's worth assessing ifmakeshift solutions or half measures can generate savings, or perhaps, on the contrary, they will increase

costs in a strategic perspective.

The fact of dealing with a special government project does not mean that one can dispense with

developing a state-of-the-art financial model for the project and its subsequent operation. Irrespective of

funding or network ownership, all government TETRA networks are now built under the operator model,which simply speaking means that they should be settled as standalone projects designed to provide

services to interested users. Decisions on who will own the network and who will provide the services are

a separate issue.

The telecommunications sector has operated in a competitive environment for the past decade or so,

which enabled it to develop financial methodologies for projects, including issues such as:

CAPEX and OPEX for networks, terminal equipment, services and applications;

Marketing considerations

Legal considerations

Organisation of the investment project

Organisation of the provision of services

Technical solutions

The pressure of competitive market prices on motivation to increase efficiency has little meaning in the

case of a government TETRA network, or at least it is not a primary consideration. However, a similareffect can be achieved due to the need to frugally manage the budget of state services. At the planning

stage, the purpose of cost-saving analyses is to speed up project implementation by identifying and

analysing the factors, which will allow cutting back on CAPEX and OPEX, organisation, legal, market and

technical considerations.



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Risk of nonfeasance and makeshift solutions

Budget constraints in the functioning of a state often generate situations, where money is short even for

some very mundane, day-to-day needs of public protection or disaster relief services. In making a

rational assessment of investment in communications systems, it is difficult not to compare such spending

with potentially tragic losses due to delayed reaction or poor coordination due to the lack of information.

It is a recent practice to analyse relief operations in great detail, which involved major resources on thepart of public protection and disaster relief services. Such analyses always involve key issues like the

coordination of activities and information transmission procedures. Major disasters, accidents at mass

events or terrorist attacks don't happen on a daily basis. The appropriate services of collaborating

countries share their experiences from such incidents. Such analyses make it possible to review and

improve procedures, and also, to take preventive measures to avoid repeating the same mistakes or,

even better, to mitigate the risk of the recurrence of such incidents. Unfortunately, we have all too many

examples of situations, where poor preparation and availability of information systems, incompetent

information processing or blocked information channels due to spurious savings in the organisation of

information systems have had their major share in the escalation of threats and only compounded losses,which could have been minimised.

In this context we need to take account of the relatively new terrorist risks, where we deal with intentional

acts seeking to maximise damage, find weak spots in security systems and also, increasingly often, in

emergency response procedures.

Valuable experience is also to be derived from drills like those organised with the participation of the

Mikromakro Institute at the Freedom and Security (Wolność i Bezpieczeństwo) in Gdańsk in June 2011.

The evacuation of the spectators at the Ergo Arena hall after a simulated bomb attack and the

participation of all services available in Tricity (Trójmiasto), including the Volunteer Lifeguard Service

(WOPR), Border Guard and a Navy helicopter was both spectacular and successful. However, it also

showed that some routine procedures, including the sharing and management of information in such

situations were equally unadapted.



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Role of project leadership

In most analyses of the development of government TETRA networks much emphasis was placed on the

role of leadership in project implementation, as a means of mobilising the parties concerned to push

forward with the objectives of the project and of reconciling contradictory interests. Leadership is

required at various stages – when the model of the project takes shape, when financing is decided upon,

in negotiations with the infrastructure operator, in the investment process, but also during service

implementation and user migration to the new network.

Building an integrated network, intended for many hierarchical organisations, which are nonetheless used

to operate autonomously, will inevitably involve resistance and a confrontation of different views. TETRA

is a very flexible instrument at the technical level, developed on the basis of scores of implementation. It

allows the creation of fully autonomous user groups and can be adapted to most of the specific needs of

different organisational structures. However, the operator model presupposes that services and

applications will be provided to these organisations by an outside provider, who must understand their

specific needs and synthesize these diverse expectations for his own purposes. Given that emergency

response systems are still under development in most countries, there are significant differences in theunderstanding of the role, purpose and utilisation of radiocommunications systems, even in such simple

matters as the semantics of the description of actions, services and applications. After all, the role of a

TETRA network operator does not include solving a state's problems concerning emergency response

coordination or day-to-day emergencies handled by the various services. Operators from different

countries have indicated that these things tend to be a problem during the start-up of services and noteverything can be promptly resolved at the level of technical contacts.



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Developing the strategy for migration from older systems to a state-of-the-art, single digital TETRA

network is a typical dilemma for most countries. Solving this dilemma requires strong, duly empowered

and politically conscious leadership of the TETRA project. Users' inertia is due to their habits, but also the

presumed benefits of the earlier used systems. Sometimes, these are systems, which are not technically

worn out yet. Facing delays in the implementation of the TETRA project in Poland, users are sometimes

forced to buy new system to take care of their day-to-day needs. Some of them opt for relativelymodern systems, e.g. DMR class, which may ultimately cause obstruction to the development of a more

professional nationwide system, more suitable for the services. On the other hand, given the inevitability

of the deployment of a uniform nationwide system, one must consider the costs of the integration of

different incompatible systems, but also the cost of the additional delay in the achievement of the break-

even point by the TETRA system. In the case of Poland, e.g. during the organisation of regional

emergency communications call centres, evolutionary implementation of new communications systems has

been often the preferred method. The operator model, optimal for the roll-out and operation of TETRA

systems, under which the financing model should break even as soon as possible, is in conflict with the

strategy of evolutionary transition from existing systems to a new one. In most cases of analysed TETRA

government networks abroad, decisions were made to quickly migrate users to new networks, which often

meant freeing the previously used frequencies.

Network planning

The need to take account of the specific requirements of networks intended for public protection and

disaster relief services established to deal with critical missions is well illustrated by a comparison of theirdeterminants with commercial cellular networks, which are usually planned so as to ensure that services

have good population coverage. Cellular operators invest most heavily in densely populated

agglomerations. Sparsely populated areas are less well served. There, operators usually deploy BTSs

with minimum capacities required for the conditions and state-of-the-art solutions are introduced later.

Yet disasters, which require handling increased radio traffic, can happen anywhere, which is why

networks designed to take care of such emergenciesrequire different planning. The risk of incidents, which

may require the intervention of disaster relief services,

is always higher along all, not necessarily majortransport routes, roads or railways, tunnels, bridges,

gas and fuel pipelines or storage areas, water dams.

Of course a mobile BTS may be deployed as a

makeshift solution, but one needs to remember that

mission critical radio and backbone networks mustallow flexible configuration, reliable scaleability and

continuity. In case of a major disaster, such systems must

be fully operational for several days on end, becauseif there are power supply problems, that is when they

will be most needed and that is their strategic purpose.

Private communications systems designed to operate in

mission critical situations should be subordinated to the logic of operation of public protection or disaster

relief services and supervised by such services.

While the external features of professional mobile radios are visible attributes of services operating

under difficult conditions, one must also take account of design features, which are difficult to imitate, such

as the ACELP speech coding algorithm, where the comfort of accurate timbre transmission in a cell phone

is less important than the requirement to cut off noise, to allow conversation in a noisy environment.

TETRA network planning – differences comparing with

commercial cellular networks

Networks scaled to achieve coverage, ratherthan capacity

Group calls, including calls to many units,operation in a single channel

Priority hierarchy with several levels

Queued access to radio resources

Short call duration

Majority of traffic to control rooms Heavy use of data transmission applications, such

as vehicle location



TETRA for Poland

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Despite the theoretical obligation of telecommunications operators to have emergency plans, if an

emergency does happen, there is no room for discussion with entrepreneurs on methods to be used to

restore communications, or relief and maintenance activities. Compromises tolerable in the design of

commercial networks, which allow a lower network capacity in case of force majeure, are unacceptable

for services dealing with the rescue of humans and mitigating crisis consequences, which enter into action

precisely at such times.

Contract with infrastructure operator

Without trying to determine what model of ownership and operator relationships should be

recommended for the development of the network, including who is to be the owner and what should be

the relationship between the network operator, its owner and maybe an additional service provider, it

would appear that the operator model would be optimal. This should be understood as a situation, in

which some designated organisational unit will be in charge of the TETRA project implementation. The

sensitive areas to be agreed in an operator model are supervision over project implementation, funding,

CAPEX and OPEX optimisation. Where a private partner is selected for the project, the parties' interests

may be protected by various form of concession agreements or a PPP agreement.

The differences in ownership relations, funding and authority: owner operatorservice provider

users come down to the sharing of risks between the parties.

However, provisions dealing with service levels required for public protection and disaster relief services,

especially with regard to mission critical requirements, when serious interference may be anticipated in

other communications systems, as well as transportation problems or power outages are equally

important. Such networks must be planned from scratch to ensure continued operation in unusual, crisis

conditions, which means they must take account of service availability in unusual places, which was

mentioned in the previous chapter. The infrastructure operator must allow for the costs associated withensuring reliability, flexible scaleability, service levels and continuity in the financing model, which it will

develop, i.e. already at the network design stage. Available experience shows that the success of suchnegotiations depends on the good preparation of the parties.

The users' interest is to ensure that the agreement provides for the supply of mobile radios and some

other equipment by different vendors.

Negotiations should also take account of the earlier mentioned differences in the specific requirements of

various services and settle their differences over competencies, which have not been previously regulated

in the relationships of different radiocommunications services.

Given the strategic importance of government TETRA networks, the government representative, as thechief administrator of the TETRA network, usually looks after strategic national interests in the decision-

making bodies of the infrastructure operator and also supervises its organisational unit in charge ofsecurity.

Given all the considerations above, probably the worst solution is a situation, where the government

decides to buy a service from an operator and has no control over the execution of the investment

project or its security.



TETRA for Poland

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Today, when Europe is reeling from the crisis, when we see problems in Greece or Portugal, we are

all discussing the most effective ways to build networks. Governments experience problems with

financing the basic needs with budget funds, so discussions on investments include even TETRA

networks, which are crucial to the everyday safety of the population.

There are different ways to build and operate networks. There was a time, when governments were

in charge of network operation and were their owners. I believe that future will see the spread of

the service model, especially in countries experiencing problems with the financing of public

investment projects. The state will have no need to invest, but it will be able to obtain services,

sometimes even better than offered by its own organisations. There are already several examples

of countries, which rely on outsourcing for their communications networks, such as e.g. Hungary. A

private partner is taking care of network roll-out and the organisation of services. A state-owned

operator will now become the owner and provide the services, but technical maintenance and

network management will remain with the private firm.

Today, Finland is an extreme example, because the network, which has been operating for years

now, is run by a state organisational unit, but the state is transferring more autonomy and

responsibility to that operator, adding new duties related to the maintenance of secure

communications systems.

Many countries choose to transfer the responsibility, but therefore also the technical risks associated

with network development and management, to specialised firms. Of course this requires

governmental decisions, because funds need to be allocated for the purchase of services, but this

tends to be easier than planning an investment project in a debate on the state budget. The police,

fire brigades, rescue services – they all incur the operating costs of communications, which can beidentified and summed up. This OPEX can be used as a basis for estimating the cost of purchasing

services. Quality issues also need to be dealt with in detail, as the operator has to agree to take

special measures to ensure the requisite level of service availability. All the users should agree to

such a mechanism.

There is already a considerable body of practical knowledge in the market on how such projects

should be dealt with under the operator model. The Polish government may expect the selected

partner to offer such experience as its contribution to cooperation.

Hans Holmberg

Sales Vice-President

Security & Communication

Solutions

Cassidian Systems



TETRA for Poland

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SELECTED EXAMPLES OF IMPLEMENTED TETRA NETWORKS GOVERNMENTPROJECTS

HungaryModel – the state buys retail and wholesale services from the operator – service provider

System name – EDR – Uniform Digital Radiocommunications System (EDR)

System operator – Pro-M, a company of the Magyar Telekom group, which is a part of T-Systems

Purchase of services from the operator, who built the network according to the requirements set out by

the government on negotiated terms and conditions:

Network roll-out, launch and operation financed by the operator - Pro-M,

Flat annual fee of EUR 37.3 million + VAT,

In the first stage the operator supplied 14 thousand terminals. Their rental fee is includedin the flat fee payable for services,

Users hold open tenders for thepurchase of the remaining 28

thousand terminals,

The term of the agreement is 10

years. After 2015 network

ownership will be transferred to

the state.

Basic parameters of the EDR network

Population 10 030 975

Area 93 030 km2

Length of

borders

2 185 km

Number of basestations

270

Number of switches 4Number ofdispatchers

400

Number of terminals 42,000 (currently abt.37K)

Technology Cassidian - TETRA (TEDS

in second half of 2011)

A summary of the Hungarian project

emphasises that the appointment of a

government plenipotentiary in the rank of a

secretary of state answerable directly to the

PM was crucial to success



TETRA for Poland

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The Hungarian government conducted the negotiations in two rounds according to the competitive

dialogue procedure set out in public procurement law. The Minister of Communications and IT published

the announcement on the negotiation procedure on 21 April 2005 in the Official Journal of the EU (OJ

UE 2005/s 78-075773) and on 29 April, and a week later in the official Hungarian public procurement

bulletin.

The Hungarian government appointed a special plenipotentiary in the rank of a secretary of state to

ensure an efficient negotiation process and then project implementation and coordination with users'

organisations. In the years 2002-2010 the plenipotentiary was a former military officer, chief engineer

of the IT Department of the Hungarian Ministry of Defence, Mr. István Pesti. He was also responsible for

the implementation of the 112 European Emergency Number.

At the time of the conclusion of the agreement with the Pro-M operator the EDR was formally supervised

by the Chancellery of the Council of Ministers. Today supervision is assured by the Minister for

Development.

The announcement concerned the provision of services in a private digital network operating in the

terrestrial radiocommunications service in the harmonized 380-385/390-395 MHz band, in accordancewith Schengen recommendations and relevant domestic standards in at least 94% of the country's area

and in the border regions. Among other things, the announcement specified:

that the network should handle at least 42K terminals and 20 different authorised

entities, while ensuring their virtual separation and freedom of organisation & hierarchy

and different security levels;

the basic range of services to be provided in such a network, including IP data

transmission;

the financial status of the tenderers based on their financial statements;

tenderers' technical competencies and experience;

the experience of the experts and sub-contractors involved;

the method for awarding points for offers, with points being awarded for:

technical criteria and sub-criteria for the network,

technical criteria and sub-criteria for the services,

the declared annual fee,

declared coefficients of contractual penalties for defective network operation (given as a

discount rate),

a bank guarantee,

a performance bond.

Project timetable:

25 May 2005 – Opening of the bids,



TETRA for Poland

Page 13

29 May 2005 – The Hungarian PM announces the winner - T-Mobile Hungary - T-Mobile

is a company of the Magyar Telecom capital group,

26 October 2005 – Contract signed,

5 April 2006 – Network start-up ceremony in Budapest,

21 December 2006 – Network operational after 422 days from the opening of the bids,

January 2007 – Final acceptance of the coverage of the entire national territory with

services.

The RFQ for T-Mobile (the winner) laid down, among other things, the reference specification for the

radiocommunications system and a matrix of project indices, so that the bidder could in advance select

the technology, supplier and specify project assumptions. It is also for this reasons that the total cost of

obtaining radio trunking services in the old technologies – EUR 80m for the previous year – was adopted

as a reference value. A lot of attention during the negotiations was devoted to arrangements concerning

the use of its own network resources and equipment by the government, the annual fee and estimatingthe value of the network to be turned over to the state upon the termination or expiry of the agreement.

The agreement settled several key issues:

the value of the performance bond was fixed at HUF 15b (EUR 60m),

provisions concerning the buyout of the network upon the expiry of the agreement (0HUF),

rules concerning the supervision of the operator's activities by the state. These provisionsspecify that the government may delegate its representatives to the decision-making

bodies of the company – Supervisory Council (4 out of 11) and the Management Board(1 out of 6). Government services also delegate persons heading the operator's security

department.

An affiliated company of Magyar Telekom called Pro-M was founded to operate the Uniform Digital

Radiocommunications System (EDR).

The EDR network operates in the 380-385/390-395 MHz band, which according to the National

Frequency Allocation Table is intended for harmonised emergency communications. The operator was

charged with the following tasks:

planning, roll-out and operation of the EDR network;

using the EDR to provide the services set out in the specification until the year 2015;

operation of the EDR system, including continuous operation on a 7/24/365 basis,protection against damage, maintenance work and logging of events, repairs and

restoration, modifications and modernisation;

management and monitoring of the EDR system, including lines leased from other

operator;

user training.



TETRA for Poland

Page 14

EDR users: police, border guards, fire brigades, Directorate for Protection against Disasters,

environmental protection services, Water Management Directorate, Ministry of Finance, National

Ambulance Service, Hungarian army.

Arrangements concerning network parameters

o network availability – 99.9% in a year, total allowed downtime – 8 hrs per year,

o radio signal coverage – 94% of the country's area, i.e. 93,000km2,

o number of users – maximum number specified in the contract is 42 thousand, but

operator's remuneration does not depend on the actual number of connected users,

o network usage – unlimited number of group or individual calls, SDS messages, IP traffic,

limited number of outgoing calls from the network.

Fixed remuneration of the operator (Pro-M) agreed as a flat fee of EUR 37.3 million + VAT per

year.

The EDR network is functionally integrated with the European Emergency Number 112.

The launch of the EDR network also meant turning off all radio trunking systems used earlier by various

state services.

A broad promotion campaign among users preceded the implementation of these services. There were a

number of seminars, the book "You and your TETRA radio" [Heikkonen, 2004] was translated into

Hungarian and offered to several hundred heads of organisations using radio trunking systems. Training

on new developments in the networks is provided on an ongoing basis. This includes:

new equipment and using its functions

maps are updated quarterly, as are any modifications in markings on the maps

introduction of theme maps

traffic reports and descriptions of incidents

presentation of data, statistics, charts, alarms, images, photos and films.

The system allows the use of the network by users other than state services, mostly under the assumption

that these will be organisations taking part in disaster relief operations, non-governmental rescue services

or municipal services.

Finland

Model – the state owns and operates the network

System name – VIRVE1 – organisational unit of the Ministry of Internal Affairs

VIRVE is non-profit,

The VIRVE network collaborates with National Security Networks Ltd.,

1

VIRVE – fin.VIRanomais VErkko – government network



TETRA for Poland

Page 15

Operating experience since 2002 shows that savings in such an integrated system are in the

order of 20-30% comparing to physical private networks,

VIRVE handles about 4 million SDS text messages per day, 100,000 group calls per day,

The installation of broadband TEDS started in 2010.

Number of base

stations

1300

Number of switches 15

Number of terminals 32K terminals serving

about 100K users

Network technology Cassidian


Area 338 145 km2, whereof

33 372km2 of waters, 171000 islands

Length of

borders

2 654 km, including 1 313 km

of Schengen border with

Russia

The team charged with the organisation of VIRVE was established in 1995. Since that time, at the roll-out

stage VIRVE operated as an organisational unit of the Ministry of Internal Affairs, in two groups:

operating group and technical group. In the years 2004-2007, during the organisation of the service

provision system, the Ministry of Transportation and Telecommunications set up a group for liaising withthe users, called TURVE. During the past year relations with users at VIRVE have been handled by the

VIRVE cooperation team.

The VIRVE cooperation team makes decisions on financial planning and on services & networkdevelopment strategies. Representatives of the following organisations make up the team:

o Ministry of Internal Affairs,

o armed forces,

o National Agency for Emergencies,

o Health and Social Welfare Ministry,

o technical centre of the police,

o border guard,

o operator of the National Security Networks.

The group of VIRVE's main users makes decisions on technical issues and the implementation of new

solutions and applications. This group is made up of representatives of:

police,



TETRA for Poland

Page 16

fire brigades and disaster relief services,

armed forces,

Health and Social Welfare Ministry,

border guard,

customs services,

operator of the National Security Networks.

Project timetable:

1992 – planning,

1995 – beginning of the project,

1998 – network roll-out,

2002 – achievement of nationwide coverage,

2004 – services fully operational.

Estonia

Model – the state buys services from an entity using state-owned infrastructure

System name - ESTER

Network owner – Minister of Internal Affairs

Service provider – SMIT (IT & Development Centre) an organisational unit answerable to the Minister of

Internal Affairs

Network operator – RIKS (National ICT Foundation)

Services are provided in a network built by the state

The state rolled out the network, which is operated by an organisational unit answerable

to the Minister of Internal Affairs

The network is operated by an entity founded by the state - RIKS, which operates on a

non-profit basis under the law on foundations

The costs of the RIKS operator are paid for by the state budget

User organisations buy their own terminals

Number of base

stations

100

Number of terminals abt. 10K



TETRA for Poland

Page 17

Technology Cassidian

Population 1.3 m

Area 45 227 km2, whereof 2

015km2 of waters, 1 520

islands

Length of

borders

633 km, including 338.6 km

of Schengen border with

Russia

RIKS, the National ICT Foundation was founded by a government decision in December 2000. The

foundation was to be a non-profit organisation. Its duty was to provide telecommunications and ICT

services to organisational units of the state, including the management of networks designed to operate

in emergencies.

90% of the project was financed from the Schengen fund. Estonia obtained this funding to strengthen its

borders. The subsidy was about EUR 13.4m.

RIKS now employs 63 people and manages 3 networks:

a fixed government telephone network,

a coastal communications network, as the waters of the Baltic Sea account for much of the

national territory (MF, HF, VHF),

PMR trunking systems:

EDACS – an analogue trunking system launched in 1994 and shut down in 2009,

5 base stations of the Finnish TETRA VIRVE network since 2002,

ESTER – TETRA network since 2007.

Project timetable:

3 June 2003 – government approves the project of the digital radiocommunications PMR

network,

7 July 2005 – governmental decision to announce a tender for the roll-out of a

nationwide radiocommunications network,

28 September 2006 – agreement signed with2 Secure Networks Oy,

25 August 20007 – confirmation that network achieved its full functionality.

ESTER' operating model – RIKS, the operator assures the technical maintenance of the network and

provides technical advice to users. All service issues rest with the government service provider SMIT.

2

EADS Defense&Security changed its name to Cassidian on 17 September 2010



TETRA for Poland

Page 18

Operational planning concerning services is done separately for each organisation served. RIKS is a non-

profit foundation, so the state budget pays for the costs of its operation, in which leasing space for base

stations or space on masts accounts for 30-40% of total costs. Technical management costs account for

about 25-45% of the total. The monthly upkeep of one base station is about 1500 euros. Given that

RIKS is an autonomous economic entity, the costs of its operation can be quite easily monitored by using

normal business practices, without the bureaucratic problems inherent in administrative bodies. The formof a non-profit foundation was chosen to motivate RIKS to look for ways to cut operating costs, including

energy-saving solutions for base stations.

Transmission lines in the ESTER network are leased.

Denmark

Model – the state buys services from the operator

SINE network – government agency, formerly supervised by the Ministry of Finance and since 1

September 2008 by the Danish state police (answerable to the Minster of Justice)

System operator – DBK - Dansk Beredskabskommunikation A/S – Motorola Inc (99.4%)

Purchase of the service from the operator – TETRA technology vendor according to the requirements

specified by the government on terms and conditions, which had been negotiated

The operator-technology vendor organises the roll-out, start-up and operation of the

network

Users own about 1/3 of all terminals

The operator is remunerated for the provision of services and guarantees the coverage,

capacity and requisite service levels, irrespective of the number of users or the way in

which they use the network. Service coverage is nationwide and specifically includes all

key sites: bridges, tunnels, selected buildings, border areas and major events.

The operator provides services directly to users

The government pays a flat fee for a network with a guaranteed capacity and the citiesmake their settlements for services with the government

Indoor service coverage in public buildings is specified in relevant regulations

DBK made a small profit in 2010

Number of base stations abt. 500

Number of service areas

(redundant switches)

6

Number of terminals 20K terminals (target 40K)

Transmission lines 99% leased from TDC

Technology Motorola



TETRA for Poland

Page 19


Area 43 094 km2, whereof

700km2 of sea waters and

abt. 406 islands

The agreement between the Danish government and Motorola on the provision of TETRA network services

was concluded in June 2007, after a year of arduous negotiations, in which the government side was

supported by consultancies - Gartner specialising in the IT market and Rovsing Management, specialising

in project management and - at the preparatory stage – also by Analysis Manson, specialising in the

strategies of new information technologies, a valued advisor in many TETRA projects.

SINE had the following key expectations during negotiations with Motorola:

Obtaining a guarantee of a high stability of the SINE system

Achieving a high service availability level

Achieving the shortest possible resolution times for issues related to service stability,

quality and availability

SINE lifetime of minimum 10 years with continuous network and services optimisation

DBK should preserve the highest possible standards in network organisation and handlingof terminals

DBK answers to enquiries should be accurate and detailed

Maintaining the best possible relationships and working contacts

Rules for SINE's collaboration with DBK

Steering committee

Working group meetings once per month

Requests for changes

Implementation of new functionalities and technical solutions

Monthly reports on performance, condition of the SINE network and errors

Working-level contacts on demand

Additionally, working groups have been organised in all regions of Denmark, made up local authorities

and representatives of municipal services, at decision-making, operational and technical levels.

The early stages of operational collaboration between DBK and SINE and the users saw many problems

related to the ability to satisfy very diverse expectations and needs of the basic user groups, whichemphasised their specific nature and autonomy. Developing mechanisms to reconcile these different

expectations was the most absorbing part of the TETRA start-up phase.



TETRA for Poland

Page 20

SINE has a separate agreement on the handling of dispatcher centres. It was concluded in January 2008

with TERMA, Denmark's biggest integrator of systems for the defence and security sectors. Another task

for the integrator was to integrate the communications systems of the police, fire brigades, ambulances,

but also hospital services, national defence sector and emergency response services. Prior to integration,

this meant about 100 different systems, mostly based on analogue platforms. The integration platform

deals not only with the infrastructure and network layers of these networks, including systems responsiblefor the management of the operation of various services in emergencies, but also the secure, effective

and reliable sharing of information. The IT systems of different organisations should interwork and be

able to share data within the limits prescribed by applicable legal regulations and to monitor, e.g.

location data.

TERMA's involvement in SINE was reduced upon the completion of the organisation of dispatcher centres

in December 2010.

Additionally, SIME entered into agreements with terminal equipment vendors. Motorola has the highest

share in the Danish market of terminals, but users are also buying terminals from other leading

companies, like Sepura, Cassidian and Selex.

The TETRA communications system is used by the police, fire brigades, emergency medical services,

security service, border guard, maritime safety administration, civil services of the MOD and public

transportation.



TETRA AS A PANEUROPEAN EMERGENCY COMMUNICATIONS SYSTEMEliminating technical barriers in the cooperation of public protection and disaster relief services is

intended to improve their performance in the prosecution of crimes, rescue and relief operations in

catastrophes, natural disasters and all emergencies that they are responsible for. It is clear that in a

Europe made up of 27 autonomous public protection and disaster relief systems, ensuring the conditions

required for cooperation, let alone interoperability, as it is called in international military operations, is a

major challenge. Technical issues are only one area, among many differences in the legal or

organisational approach. It is common knowledge that many countries cannot cope with regulating their

internal relations, let alone the international. However, while technical standardisation is helpful in

organising collaboration, the incompatibility of communications systems may be a barrier, which can

permanently and effectively stymie.

The harmonisation of the requirements and frequencies has an important economic aspect. In a

competitive environment standardized equipment and systems are cheaper. Operations and rescue arealso much cheaper, because IT systems, which support decision-making, are more effective and run faster.

Moreover, such a policy is easier to construe within EU's general strategy. Standardized communicationssystems promote the creation of a common European economic space and are also necessary due to the

increased mobility of Europe's inhabitants, which includes criminals and terrorists. Effective and rapid

information sharing between public protection services promotes the mobility of European citizens and the

elimination of traditional border barriers. The abolition of border controls in the Schengen area allows

the services of one state to undertake individual or joint activities outside their borders, e.g. in border

areas. This also applies to natural disasters and catastrophes, when the management of the forces and

resources of rescue and relief services should depend on their availability, rather than their formalterritorial competencies.

Efforts in the EU forum to harmonize the approach to the development of TETRA as a uniform

communications system for public protection and disaster relief services is only one of areas, whichrequire agreement on the organisation of IT systems. Such harmonisation work concerns also other

communications systems. The fact that the list of issues to be agreed upon has a lot of other items, may

indirectly favour the future formal recognition of TETRA as a pan-European system, because it has been

implemented in nearly all the states.

Even though the original intention of EU policy in the early 1990s was to create conditions for developing

TETRA as a uniform pan-European system, which was to be assisted by the harmonisation of frequencies

in the 380MHz band and standardisation work by ETSI, member states continued to build their TETRA

systems according to their own conceptions for more than a decade. This is why Europe now has

nationwide TETRA and TETRAPOL 3, which differ in terms of organisation and technical solutions. The

existence of dozens of technology companies in the market testify to the openness of the TETRA standard,but network solutions are based on technologies independently developed by Cassidian, Motorola and

Selex4. These networks have been rolled out in different periods and compatibility with other networks

was rarely treated as a top priority. For the past several years active efforts have been undertaken in

various international fora to develop the rules for the interworking of these networks, including the

development of networking interfaces, the compatibility of equipment, networks and applications,

roaming settlements and enhanced joint coordination of the technical development of the system.

3 TETRAPOL networks have been rolled out in Spain, France, Switzerland, Czech Republic, Slovakia and Romania. TheTETRAPOL was developed in 1986 by Matracom. Apart from the interoperability of ISI standars, it is not beingdeveloped as an ETSI standard. Cassidian (EADS) remains the sole vendor of this technology4 Rohde&Schwarz supplied the network to Bosnia and Herzegovina



TETRA for Poland

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ITU – International

Telecommunications Union,

ITU – fr. Union

internationale des

telecommunications – one

of the oldest international

organisations with its

headquarters in Geneva,

currently part of the UN

system, dealing withdevelopment policies and

standardisation in

telecommunications and

the Radio Regulations,

including radio frequencyspectrum management.

Ensuring the technical ability of rescue and relief services to cooperate and

act together in individual and collective emergencies, catastrophes, natural

disaster and warfare has been a traditional area of international

harmonisation since the beginning of radiocommunications. Some of this

harmonisation requires global coordination, covering a whole range of issues

dealing with the principles governing the operation of marine, aviation,satellite, fixed and mobile terrestrial services. These issues are taken up

within the International Telecommunications Union (ITU). It was in the ITU forum

that the common methodology for the organisation and allocation of

frequencies for two areas, collectively referred to as PPDR systems5 was

adopted:

Public protection (PP) radiocommunication: Radiocommunications usedby responsible agencies and organizations dealing with maintenance of lawand order, protection of life and property, and emergency situations. Disaster relief (DR) radiocommunication: Radiocommunications used by

agencies and organizations dealing with a serious disruption of thefunctioning of society, posing a significant, widespread threat to human life,health, property or the environment, whether caused by accident, nature orhuman activity, and whether developing suddenly or as a result of complex,long-term processes.

[ITU-R Report M2033]

Frequency harmonisation in Europe

The deployment of a pan-European system of mobile TETRA

radiocommunications for public protection and disaster relief emerged in

official EU documents as one of the buzzwords calling for the liberalization of

the common market of mobile services in the early 1990s [EU Green

Paper,1994].

In Europe the 380MHz6 frequency was allocated to the digital land mobile

systems for emergency services, by a decision of the European Conference of

Postal and Telecommunications Administrations - CEPT [ERC Dec(96)01] in

1996. Such a decision is binding on all CEPT member states. Another

CEPT/ECC decision issued at the same time specified this and several other

frequency bands as intended for a trans-European trunked radio system

TETRA [ERC Dec(96) 04 ].

5 PPDR – Public Protection and Disaster Relief6

380-385/390-395MHz



TETRA for Poland

Page 23

CEPT – Conférence

européenne desadministrations des postes et

des telecommunications –

organisation established in

1959, which is the mainplatform for market,

standards, regulatory and

frequency harmonisation for its

48 government communications

administrations from Europe.

The organisation and its

autonomous executive

committees, including the ECC,

which issues decisions

concerning TETRA, is like a

technical back office for theEuropean Commission.

Subsequently CEPT complemented its frequency decisions on TETRA: by a

decision of 2001 on frequencies7 for DMO8 , both in domestic networks and

in border areas [ERC Dec(01)19], and by the decision on frequency

channels in the band allocated to TETRA, which can be used for airplanes or

helicopters supporting land operations [ECC DEC/(06)05].

In June 2008 CEPT/ECC issued a decision, which in anticipation of the

increased significance of broadband applications, extended the

possibilities of the allocation of frequencies to public protection and

disaster relief services to the entire 380-470MHz band, [ECC DEC/(08)02].

This was a confirmation of the recommendations of the World

Radiocommunication Conference ITU of 2003 [ITU-R Report M2033].

Harmonised decisions have replaced the earlier decisions for the

narrowband versions of the TETRA system. Harmonised decisions

superseded the earlier frequency decisions on narrowband TETRA versions.At the same time, some allocations for systems, which the market had not

accepted as autonomous devices, were dropped, while the use of CDMAuse was allowed in some bands9.

Efforts are currently undertaken in various EU fora and in the member

states to allocate new, harmonised spectrum bands for broadband servicesin PPDR radiocommunications networks. Various frequency bands are

contemplated, including the use of LTE technology in a specially allocated

band, e.g. above 400MHz.

Standardisation

There is no doubt that ETSI work on an open standard provides an excellent

opportunity for TETRA to achieve the status of the most mature of radiotrunking systems. ETSI is working under a mandate from the European

Commission, which no doubt strengthens its position. From ETSI's perspective,

the history of the implementation of the TETRA standard is one of a major

success. TETRA is currently used in more than 2000 networks in more than

117 countries, of which 65% are non-European states, including 30 in Latin

America [Murgatroyd, 2011]. TETRA is still evolving and is modernised, just

like the GSM cellular telephony system and its successive generations

developed within ETSI.

No international radio trunked system has achieved a global coverage

comparable to TETRA, nor is there a system, which would offer significantbenefits above and beyond those, achievable with TETRA. This is why ETSI is

considering new, evolutionary TETRA variants, e.g. in synergy with LTE,

rather than hypothetical new technical solutions. ETSI currently has no plans

for standardisation work on an alternative, new radio trunking systems for

public protection and disaster relief services. It is estimated that TETRA

7 446MHz – 4-6 channels 24kHz width8 DMO – Direct Mode Operation9

410-430MHz and 450-470MHz



TETRA for Poland

Page 24

networks, which are now in operation, can be developed for at least 25 more years10.

Work on the development of the TETRA standard is conducted by the TETRA Technical Committee11 of

ETSI. Earlier versions are superseded by a version developed in parallel, with enhanced TETRA data

transmission capability - TEDS12. In ETSI TETRA represents several hundred different standardisation

documents.

The terms of reference for the TETRA standard have been defined as follows:

The provision of user driven services, facilities and functionality as required by traditional

Professional Mobile Radio (PMR)13 user organizations such as the Emergency Services,

Government, Military, Transportation, Utility and Industrial organizations as well as Public Access

Mobile Radio (PAMR)14 Operators.

The evolution and enhancement of TETRA as required by the market with the provision of new

services, facilities and functionality made possible by new technology innovations and standards.

Further enhancements of the TETRA standard in order to provide increased benefits andoptimization in terms of spectrum efficiency, network capacity, system performance, quality of

service, security and other relevant parameters.

The backward compatibility and integration of the new services, facilities and functionality with

existing TETRA standards in order to future-proof the existing and future investments of TETRA

users

[ETSI ToR]

The fact that TETRA is an open standard implies, among others, the following benefits:

Economies of scale provided by a large harmonised market served by several independent

manufacturers and suppliers competing for the same business resulting in competitively priced

solutions

Greater choice of vendors for new products

Greater choice of products for specialised applications

Greater responsiveness to customer's needs by suppliers because of competition

Evolution (instead of revolution) of the technology standard ensuring longevity and good return

on investment for both users and suppliers

Second source security if existing suppliers exit the market

Strong incentives for innovation

10 However, work continues on technically advanced radiocommunications systems like Software Defined Radio andCognitive Radio for military applications11 TC TETRA12 TEDS – TETRA Enhanced Data Services13 Professional Mobile Radio14

Public Access Mobile Radio



TETRA for Poland

Page 25

To seek synergy and compatibility with other technologies, work in the TETRA Technical Committee in ETSI

includes participation in other fora, which may be related to the development of the TETRA standard:

radiocommunications, security and frequencies. The promoted vision of TETRA is one of a harmonised

communications platform for all kinds of

operations carried out by PPDR services, also with

the use of other technologies.

ETSI conducts work on TETRA also in communication

with standards organisations in non-European

countries, leaders in innovative technologies:

China15, Korea16, USA17 .

Specialised requirements are developed for the TETRA standard depending on the specific needs of

various user groups:

Public Safety

Transportation

Utilities

Government

Military

PAMR

Commercial & Industry

Oil & Gas

Standardisation work is organised in the so-called Working Groups. Currently active WGs are:

WG1 TETRA User Requirements / Services

WG3 TETRA Network aspects

WG4 TETRA High Speed Data

WG5 TETRA Voice coding

WG6 TETRA Security

WG8 TETRA Direct Mode Operation.

EU funds are used to support standardisation works. The EU standardisation plan for the years 2010-

2013 allocated EUR 100m for these purposes [Standardisation EU].

Like all other terminals, TETRA terminals come within the scope of EU directive 98/13/EC relating to

telecommunications terminal equipment and satellite earth station equipment, including the mutual

recognition of their conformity. The decision of the European Commission on common technical

15 CCSA – China Communications Standards Associations16 TTA – Telecommunications Technology Association17

TIA – Telecommunications Industry Association

No technology developed outside Europe

for trunked radio communications (PMR) canoffer any significant benefits above and

beyond what can be achieved using the

TETRA technology.



TETRA for Poland

Page 26

requirements for TETRA equipment was issued in 1999 [EC decision, 1999/645/EC]. This decision

references the relevant ETSI standard.

European forum of government TETRA network users and

administrators

Successive EU presidencies have been dealing with the harmonisation of the development of

radiocommunications systems for PPDR services in the European forum within the Law Enforcement

Working Group (LEWG)18. Poland is represented by the Ministry of Internal Affairs and Administration.

Recommendations to take action in this area, especially with regard to the need for fast data

transmission, have been formulated towards the end of the Czech Presidency [10141 ENFOPOL]. In

November 2009, under Swedish Presidency, the meeting of the LEWG was used as an opportunity to set

up an informal working group of radiocommunications experts (RCEG)19, which is a contact forum for EU

members' internal affairs administrations. The project calls for developing multilateral network interfaces

in all TETRA versions used:

TETRA/TETRA

TETRAPOL/TETRAPOL

TETRA/TETRAPOL

The RCEG took up the harmonisation of network interfaces ISI20, thus supporting the efforts of the TETRA

Association, including international roaming offered on a reciprocity basis on commercial terms and for a

low fee. Another area of activity is the system development policy, which includes solutions capable of

offering fast data transmission and the acquisition of new, harmonised frequencies required for the

implementation of broadband services.

Independently from the foregoing countries, which are already implementing or operating government

TETRA networks for public protection and disaster relief services, have initiated another informal working

group - PSRG21. The goal is to share experiences and identify common areas of interest. This group was

created also in 2009, by Belgium, France, Spain, the Netherlands, Germany, Portugal, Romania and

Switzerland.

In 2010 the PSRG synthesised the available studies on user expectations in Germany, France, United

Kingdom, Finland and the Netherlands, but it also summed up ETSI work. Given that users describe some

applications as more or less useful in different applications, such studies are to help optimising the plan

for the development of standards and implementation of applications, which may require fast data

transmission.

LEWG/RCEG/PSRG are good platforms for harmonisation efforts by internal affairs administrations, i.e.

the representatives of TETRA users and administrators with telecommunications administrations CEPT/ECC,telecommunications standards fora – ETSI, and to build technical contacts with public protection and

disaster relief outside Europe, e.g. in USA.

18 LEWG – Law Enforcement Working Group19 RCEG – Radiocommunications Expert Group20 ISI – Inter System Interface21

PSRG – Public Safety Radiocommunications Group



TETRA for Poland

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TETRA Association

The TETRA MoU (Memorandum

of Understanding), now known

as the TETRA Association, was

established in December 1994

to create a forum which wouldbe a middle ground for all

players building and using

TETRA networks [TETRA MoU].

Joining the TETRA Association

means joining a platform, which

organises interested parties to

act on their behalf. The TETRA

Association gathers users,

manufacturers, application

providers, integrators,

operators, test houses andtelecom agencies. Today the

TETRA Association represents

more than 160 organisations

from all continents of the world.

The organisation also has more

than 700 active individual

members. The TETRA

Association is a Limited

Company and is registered in

the United Kingdom.

Cross-border cooperation

Another area of cooperation, also organised by the Council of the

European Union is the implementation of the Schengen Agreement. The

issues of the interoperability of the technical systems of police forces and

border control services are dealt with by the so-called Schengen

Catalogue, published in 2003. It has the status of a recommendation, whichis why it is not directly binding, but it does point to cooperation

mechanisms, which the member states should strive to achieve. The long-

term goal specified in these recommendations is that radiocommunications

systems used in border areas should be based on TETRA/TETRAPOL

technology operating in the harmonised 380MHz band.

Sector representation – the TETRA Association

Stakeholders in the TETRA equipment and services market have founded

the TETRA Association – an interest group of the sector – just like the

operators and GSM 22 suppliers and recently, also technology vendors forFTTH 23 access networks.

The TETRA Association hosts big annual congresses, which despite the highlyspecialised issues of an essentially niche market, gather several thousand

participants. 2500 participants registered at the 13th International TETRA

Congress held in Budapest in May 2011. It was attended by 90 speakers

and participants of discussion panels, and nearly 100 exhibitors.

During the year, the Association also organises regional events.

For example, until the end of 2011, TETRA Association congresses will be

held in Brazil, Mexico, United States, Russia, Norway, Philippines, Bangkok,

Indonesia and India.

The TETRA Association organises contacts with ETSI, CEPT, the European

Commission and the ITU. A collective success of 2011 was the joint pushing

through of access to the TETRA technology to the American market in the

Federal Communications Commission FCC24. The TETRA Association is also

an effective platform for multilateral contacts used to harmonise technical

requirements and R&D efforts. There are more than a dozen working

groups in the TETRA Association, which deal with many areas of

development work. Here are some of them:

Radio Spectrum Group25 - it works with EU institutions in charge ofthe radio frequency spectrum, but also with national

telecommunications administrations, to promote the allocation of thenecessary spectrum resources for the purposes of emergency

communications;

22 GSMA, GSM Forum23 FTTH Council24 FCC – Federal Communications Commission25

RSG – Radio Spectrum Group



TETRA for Poland

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Operator User Association - OUA26 - an information-sharing forum for TETRA users and

operators. It synthesises user expectations;

Technical forum FT27 - primary technical forum, also responsible for equipment certification;

Security and Fraud Prevention Group SFPG28 - draws up technical reports and security

recommendations. It works on developing compatible and complementary security policies ofdifferent vendors;

Apps WG29 - a forum for discussion and sharing of experiences on applications. Recently it

started offering the possibility to establish contacts with the developers of new applications;

Forum of small and medium-sized companies (SME Forum).

Much attention is currently focused on ensuring the interoperability of the IOP30 system. The TETRA

Association organised a system for the certification of terminals. Manufacturers participating in the

programme receive IOP certificates, guaranteed by the authority of the TETRA Association. This is toensure that the users, manufacturers and integrators have a real market with multiple TETRA system and

equipment vendors.

26 OUA – Operator User Association27 FT – Technical Forum28 SFPG – Security and Fraud Prevention Group29 Apps WG – Applications Working Group30

IOP – Interoperability



DIGITAL RADIO TRUNKING SYSTEMS ALTERNATIVE TO TETRATECHNOLOGY

DMR

The replacement of analogue radiocommunications equipment with digital equipment is a natural

consequence of technological progress, although mobile radio manufacturers still keep their simpler and

cheaper analogue mobile radios in their product lines and still offer technical support for their analogue

systems. Organisations, which use mobile radios in both unlicensed and licensed bands, as well as more

demanding users operating analogue radio trunking networks, e.g. the MPT1327 type, are looking for

more modern solutions, relatively inexpensive, which offer easier network resources management and

also, a more efficient utilization of the increasingly valuable radio frequency spectrum resources. Even

users, who care less about better transmission or functional parameters, will find power economy, i.e.

longer battery life a practical argument for migrating from analogue to digital systems.

Manufacturers of equipment for radio trunking networks have drawn on the experience of othersegments of the radiocommunications market. Since 2003 ETSI has been conducting work on the DMR31 standard for small PMRs. Initially, this work encountered some problems and even stalled for a while,

mostly because groups of interest in the market were not quite convinced that such a standard was

needed at all, given the progress in the development of other systems. Some mobile radio manufacturers

offered their proprietary network solutions, which usually operated autonomously and did not appreciatethe benefits of standardisation. The fundamental ETSI document for the DMR standard was published in

2005, while the first devices complying with this standard made it to the market around 2007. Work on

the standardisation of the digital version of systems using the somewhat less expensive FDMA32 signal

transmission was a bit delayed, but the dPMR standard was also published in 2005 [dPMR].

Experienced manufacturers, like Motorola, Selex or Sepura, who are heavily investing in thedevelopment of TETRA technology, also have DMR-compliant mobile radios in their product ranges. The

marketing policies of these companies with regard to TETRA and DMR clearly show that these solutions

are not necessarily addressed to the same customer groups, even though they are complementary to a

certain extent.

Both standards, TETRA and DMR will be probably competing in the segment of semi-professional applications and in those user groups, which have relatively conventional

requirements with regard to the systems' functionalities.

TETRA is offered for professional applications with uncompromising requirements,

especially those, where reliable and non-stop communications are crucial to the operation

of an organisation, including public protection and disaster relief services33.

Currently, there are no plans to offer TETRA to individual consumers.

31 Digital Mobile Radio32 FDMA – Frequency Division Multiple Access – a transmission technology in systems serving multiple users, allowing thesharing of available bands through the allocation of appropriate frequencies. Systems operating in DMR and TETRAstandards use TDMA – Time Division Multiple Access, which allows multiple users to access the same radio channel bydividing channels into time slots. Comparing the technical pros and cons of the systems is not the object of this report,though we can say that the outcome would not be obvious. We can only comment that it is rather the market, i.e. businessconsiderations, which are decisive for the development of TDMA and FDMA technologies, rather than the inability tosolve technical problems.33 On the American market of government services it is the TIA Project 25 (P25) standard. This system, which is practicallyconfined to US public security services (police, firefighters, government networks). Even though there are several vendorson the market, it is largely dominated by one manufacturer, which contributes to the high prices of these devices (US$4000-6000). This is also due to network organisation – relatively large cells imply high-powered mobile radios.



TETRA for Poland

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The TETRA system is currently used by some very small organisations, equipped with a dozen or so

radios, but it has been specifically designed for government public protection and disaster relief services,

which have to retain the ability to operate and cooperate in mission-critical situations. For many civilian

organisations, including business organisations, an uncompromising approach to service availability,

reliability and continuity is also the key criterion in the choice of communications systems. In this sense, the

difference between TETRA and DMR is more than just the theoretical outcome of a different approach tosystem design, but very concrete, practical solutions, e.g. the approach to frequency availability for

radio calls.

DMR and radiocommunications networks created on its basis are first of all an improved digital option of

the offer aimed at the market of the current users of analogue radio trunking networks. In the case of

DMR, the suitability of the offer for various applications is more important than a high level of reliability

in access to services. This is why the platform of the DMR standard is sometimes used in mobile radios

operating in a variety of frequency bands, but sometimes at the expense of quality and service

parameters. This is mostly about the different conditions of radio waves' propagation in differentfrequency bands and operating environments, but also about the ability to use services associated with

the radio layer. These are also offers intended for different user categories, starting with those lookingfor inexpensive consumer products, through many simple or more advanced business applications, up to

the segment of professional users who have specialised requirements. One should also remember that it is

unlikely for standardisation on the DMR market to go beyond the ability to integrate terminals fromdifferent vendors in a single network. In the case of TETRA, due to the legal requirement for the

cooperation of various services, the emphasis is on providing interfaces ensuring the interoperability of

different networks.

The decision on the roll-out of a nationwide TETRA network in Poland has been put off for years, leading

some potential users to seek alternative solutions. It is sometimes necessary, when radiocommunications

systems in operation urgently require replacement or modernisation due to wear and tear. However,

persons making local decisions in some cities on the purchase of new DMR radiocommunications systems

for public protection and disaster relief services should keep in mind that this is not a cheaper alternative

to the target nationwide TETRA system, but a makeshift solution, capable of limited evolution, which will

not guarantee full interoperability with the future nationwide system.

CDMA2000 - GoTa

The need to analyse radio trunking networks built on the CDMA2000 platform in the 420MHz band

arose out of the market entry of Nordisk Polska in the Polish market. This is an affiliated company of

Polkomtel, which intends to offer such services.

CDMA 2000 IN THE 450MHZ BAND

CDMA2000 is a family of several versions of standards used in public cellular networks, which competeswith UMTS networks in some markets outside Europe. UMTS in turn, is a standard developed by ETSI, as

the so-called third generation (3G) for GSM – currently the most popular standard for cellular networks.

Both cellular telephony systems use CDMA34 for access to the radio transmission medium, selected, among

other reasons, for its resilience to harmful interference.

34 Code Division Multiple Access – The basic standardization documents for CDMA have been developed by theAmerican Telecommunications Industry Association (TIA). Most of the patents for key CDMA technologies are owned bythe American company Qualcomm, which means that maufacturers of devices using CDMA technology have to pay

royalties to Qualcomm.



TETRA for Poland

Page 31

The shutdown of old public analogue cellular networks operating in many countries in the 450MHz band

on the basis of the NMT system developed in the Nordic countries offered an opportunity for

CDMA200035 networks to enter the European market. PTK Centertel, a company of the TP group,

operated the first NMT450 network in Poland. At the turn of the 1990s, NMT network operators tried to

develop a new, digital version of a GSM standard for the 450MHz band within ETSI, but they found out

that these efforts lacked the practical support from manufacturers. In 2003 a European governmentalCEPT36 conference found that it will be more advantageous to use CDMA37 technology in this band in

Europe. At that time, there were already several CDMA2000 networks operating in the 450MHz band in

various parts of the world.

In Poland, unlike many other European operators, Centertel retained its frequency assignment in the

450MHz band, modifying its purpose for providing fixed telephony, so-called universal service to remote

rural areas and fixed Internet access, using modified NMT450 network infrastructure for some time.

Later, it rolled out a new CDMA 450 network, using mostly radio network technology supplied by the

Chinese manufacturer Huawei Technologies and offered fixed wireless Internet access, also mostly inrural areas, which lacked modern cable plant.

The organisation38 gathering technology vendors, operators and other organisations interested in thedevelopment of CDMA has recently identified some 118 CDMA450 network operators differing in class

and size in 62 countries [CDG]. This includes such vast markets as Russia, or Brazil. These are commercial

networks, which mostly offer mobile or fixed Internet access, but some also offer cellular telephonyservices. The CDMA450 category conventionally includes also the neighbouring bands, i.e. various

CDMA2000 systems operating between 410 and 490MHz, which includes the network rolled out in

Poland by Nordisk Polska, which operates in the 420 band. No European CDMA450 operator other than

Nordisk Polska offers PMR services.

NORDISK MOBILTELEFON

PTS, the Swedish NRA decided at the beginning of 2004 that the 450MHz licence held by Telia Sonera

would expire at the end of 2007. Given that very shortly the utilization of these frequencies became

negligible, PTS launched an auction, in which 5 organisations took part. Nordisk Mobiltelefon AS offered

86m SEK and won the auction. The entry of the new player in the Swedish market stirred mobile

operators and initially, there were even attempts to challenge the NRA's decision. Shortly thereafter

Nordisk obtained a CDMA450 licence in Norway and in both countries, it concluded agreements with

other operators on the use of their masts. The plan to build an operator for all of Scandinavia fell

through when Nordisk lost a tender in Finland. However, it did obtain licences in Denmark, Iceland,

Ireland and Poland.

Nordisk owners adopted an ambitious strategy of conquering new mobile radiocommunications market,

which had not yet reached the saturation phase, because mobile telephony operators are still focusing on

the most profitable mass segments of the market. They have probably assumed that the greatestadvantage of CDMA450 is the frequency, which offers large area coverage, i.e. an opportunity tocapture mobile Internet access in rural areas throughout Scandinavia. Even preliminary estimates showed

that this would require heavy investment outlays, which in Sweden alone in 2005 were estimated at SEK

35 For good order's sake, we should also mention Sferia – the company, which built CDMA telephone networks in severalPolish cities, operating in the 850MHz band36 CEPT – European Conference of Postal and Telecommunications Administrations37 ETSI also took up standardization work on CDMA38

CDG – DCMA Development Group [CDG]



TETRA for Poland

Page 32

2b. It is for this reason that strong investors were invited to join in: the Swedish-Norwegian group Orkla,

Siminn from Iceland and Qualcomm, the owner of many key CDMA patents.

Nordisk tested several vendors of CDMA networks, but finally opted for Chinese manufacturers ZTE and

Huawei, probably also because they enjoyed advantageous financing from the China Development

Bank. Moreover, ZTE could contribute significant added value – its proprietary GoTa radio trunking

system. This fell in with the strategy of capturing new markets. The plan to offer radio trunking services

was attractive e.g. in Norway, where a relatively small number of base stations located next to fiords

could offer state-of-the-art communications for all marine craft in coastal waters. Nordisk also ordered a

specially developed model of a handheld mobile radio. Rolling out a radio trunking network based on

the Chinese GoTa system also became the main plan for Poland.

However, Nordisk investment projects started to gradually lose their momentum. Bringing in a new

American investor, rebranding and selling off foreign companies, also in Poland, did not help. The key

problem was the debt to the China Development Bank, exceeding EUR 43m [Svenolof,2009]. In

November 2008 the company launched a recovery process, but to no avail and it declared bankruptcy

in February 2009. Access Industries, an American shareholder took over shares in the Swedish and

Norwegian companies. These companies now operate in Sweden and Norway as NET1.

Ericsson supplies CDMA450 network equipment for NET1. Ericsson also manages the network.

Cooperation with ZTE was dropped and the whole network was promptly replaced between May and

December 2010. The network now has 800 base stations and offers 90% coverage in Sweden, Norway

and Denmark [Ericsson, 2011]. NET 1 does not offer radio trunking services. It specialises in mobile

Internet access services, but is actively looking for niche applications, e.g. for special M2M applications in

land transportation and coastal navigation, electric power industry [NET 1, 2011].

NORDISK POLSKA

When the tender for the assignment of frequencies for a mobile radio trunking network was launched at

the end of 2005, it was clear to the Polish NRA (URTiP/UKE) that the TETRA network project, which was tobe built for public protection and disaster relief services would be seriously delayed. Apart from security

policy considerations, it was difficult to assume in such a situation that the government TETRA network

could be used by users other than the public sector. What could have been anticipated was the increaseddemand for radio trunking services, e.g. due to the need to shut down networks operating in the bands

allocated to new military needs, following Poland's accession to the NATO in 1999.

To harmonize the allocation of frequencies for radio trunking systems in Europe, the CEPT/ERC issued a

decision in 1996, in which it specified the frequency bands for commercial systems39. Poland opted for

the 410-420MHz/420-430MHz bands, but freeing these bands required recovering them from theMinistry of Defence, which happened when the military bands were changed after Poland's accession to

the NATO.

In 2003 the President of URTiP invited tenders for TETRA-type networks. There was not much interest and

only 7 decisions were issued to urban networks with local coverage. This led to the development of a

plan to allocate the remaining frequencies to a nationwide system. The tender covering two duplex

channels in the 420MHz40 band was announced by the President of URTiP on 13 December 2005, but

the tender was awarded by the new NRA – the President of the Office of Electronic Communications

(UKE) on10 May 2006 [UKE, 10.05.2006].

39 ERC Dec(96)0440Two duplex channels, 1.25 MHz wide with 10MHz spacing: 412,5-413,75/422,5-423,75MHz and 413,75-

415/423,75-425,0 MHz



TETRA for Poland

Page 33

In keeping with the principle of technological neutrality promoted in EU policy, the tender did not specify

the technology to be used to roll out the radio trunking network. It only specified a certain general set of

services, which should be provided in the network:

voice services

text messages (addressed directly or broadcast)

packet-switched data transmission

simultaneous transmission of voice and data

group calls and closed user groups and dynamic user group management

fast call set-up

automatic priority call queuing when the network is busy (overloaded)

direct access to other public networks (PTSN, data transmission networks, etc.)

access to emergency calls

caller identification

Only one of the three offers submitted passed to the second stage of the tender. UKE decided that the

other two did not conform to the requirements of tender documentation. The tender was awarded to the

company Polskie Sieci Dyspozytorskie, which obtained the maximum number of points. It offered PLN

16.1m for the right to use the frequencies until the end of 2020. Nordisk Mobiltelefon AB was a

shareholder in the company. The company soon changed its name to Nordisk Polska sp. z o.o., organised

itself and went on to cooperate with China's ZTE, entered into an agreement with Emitel41

on the use ofmasts for the deployment of base stations, started up a backbone network and a network management

centre. The problems of the Swedish owner, burdened with significant cost of investment in progress, who

provided Internet access services in its own name, but also wholesale services to Multimedia Polska, have

led to a situation where the owners started to look for a buyer for Nordisk Polska. After several changes

in the capital structure, Polkomtel SA, one of Poland's four dominant mobile operators became the

company's sole owner.

Joining a strong capital group provided Nordisk Polska with the much needed growth potential. By June

2011 the Office of Electronic Communications had issued more than 500 radio permits to Nordisk Polska

[UKE 06.06.2011 ]. In its offer posted on the web the company is currently offering only fixed CDMA

radio telephony service inside numbering zones and mobile and fixed Internet access.

On 21 March 2011 Polkomtel officially announced the launch of its CDMA Radio Trunking System.

Polkomtel's press release did not emphasise the fact that the system was operated by Nordisk Polska

[Polkomtel, 21.03.2011]. For the time being, this move was mostly interest of Polkomtel, which needed to

consolidate its image as a financial investor building a strategic group of companies and strengthens its

presence in the market of wireless services. One should remember that this was accompanied by parallel

41 Emitel Sp. z o.o. – a company of the TP capital group, main operator of terrestrial infrastructure of radio and TVstations and masts with a nationwide coverage. The company offers space on its masts throughout Poland to othertelecommunications operators. In June 2011 the the Office of Competition and Consumer Protection approved the

acquisition of the company by the Montagu private equity fund for PLN 1.7b



TETRA for Poland

Page 34

negotiations with prospective investors, who were to take over all of Polkomtel in a deal, which was

estimated at PLN 18b.

As goes for Nordisk Polska, who offered its services on its own, a new business model is being

developed, in which Polkomtel will be in charge of marketing and sales.

The frequencies used by Nordisk Polska are intended for a radio trunking network, which implies theobligation to launch the sale of these services, but the technical and commercial ability of Polkomtel or

Nordisk Polska to provide and manage such services will be developed gradually, as they gain

experience and fine tune their technical solutions. Projects implemented for clients, who already use radio

trunking services in the CDMA network of Nordisk Polska are undertakings, which should be treated as

pilot projects for the time being.

One must remember that the ability to use CDMA2000 technology in the 420MHz band to offer mobile

Internet access on a commercial basis, like Orange450, will be crucial to the assessment of the business

potential of Nordisk Polska. This service is already offered under the Polkomtel brand, as the opportunity

to take advantage of the vast sales network of the mobile operator and its marketing experience is a

major asset. CDMA420 is a technical complement to mobile Internet services offered by Polkomtel.Greater coverage achieved in the 450MHz band is an opportunity to extend mobile Internet to areas, in

which the roll-out of 3G cellular network has so far been unviable.

However, from a strategic perspective, Polkomtel may find it more interesting to use CDMA networks for

the growing market catering to M2M (machine to machine) services. This will be a quickly expanding

market in the next few years, serving all kinds of measurement instruments, e.g. in the electrical power

industry, sensors, control systems, intelligent transport systems and smart urban infrastructure. Frequency

resources in the bands allocated to individual users' telephones may prove insufficient for the needs of

this market and many countries, including those, which had never built CDMA450 networks before, are

contemplating the use of the 450MHz band for M2M solutions. This report does not purport to analyse

the mobile Internet access market, but there is no doubt that tapping this opportunity will bear on thefinancial results of Nordisk Polska, giving it more "breathing space" for the implementation of a new

technology of radio trunking system and opening up new markets for such services.

So far, Polkomtel has been offering CDMA Internet access as a product separate from other mobileInternet access services in its network42. The construction of tariff plans is different. Many clients may find

this distinction difficult to understand. But DGT43, which supplies CDMA modems to Polkomtel, can also

offer dual-system modems CDMA450 and GSM – EDGE 900/1800 [DGT 2011]. DGT is also offering

CDMA450 modules for smart electrical energy, water and heat meters.

If Nordisk Polska – the operator of a CDMA450 network – wishes to expand radio trunking services, thenin addition to developing its limited frequency resources, it will also have to decide on security issues,

because physical separation from commercial cellular networks is an often used argument in favour of theroll-out of separate radio networks for special purposes. Offering Internet access services, including M2M

services, on a commercial basis, when radio trunking networks are not yet fully functional, profitable orreliable may be a good solution to promote a company's survival and strengthening, but also a potential

problem in negotiations with customers, who have been earlier indoctrinated about the benefits of

physically separate networks catering to the special needs of services in charge of mission-critical

applications.

42 Polkomtel offers mobile Internet access mostly under the iPlus brand43 DGT – Polish producer and integrator of telecommunications equipment, an innovative private firm from Gdańsk, one

of the most experienced telecommunications technology vendors on the Polish market



TETRA for Poland

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GOTA

Nordisk Polska obtained the right to use the frequencies and declared the roll-out of a radio trunking

network in the 420MHz band allocated to these purposes. It opted for the CDMA450 technology,

because the Chinese supplier – ZTE – used the CDMA2000 platform to develop GoTa – a technological

and application overlay, which has made it possible to provide and manage radio trunking services. The

Chinese manufacturer selected the CDMA2000 platform on the assumption that the opportunity toachieve much better data transmission parameters will give it an edge over TETRA.

ZTE declares that GoTa has open architecture44, but it is clearly a proprietary system, given that for the

time being, ZTE is the only producer of equipment for the system. ZTE says it has some 120 patents

related to GoTa.

GoTa is a hardware platform, which includes a base station subsystem, dispatcher's subsystem, switching

subsystem, packet switching subsystem, special terminals and a subsystem for the services layer [GoTa

(a)]. Hence, caution is advisable in comparing TETRA with known and proven in scores of implementations

CDMA2000 network parameters45. The features of the Chinese system, which concern specific trunking-

type services, depend largely on the technical solutions implemented in GoTa. This applies in particular to

such typical trunking-type services as group calls or direct mode operation.

ZTE uses a dozen or so networks as references for GoTa, but they have been poorly described. Nearly

all of them, including those in China, are commercial networks and this list has not been confirmed. For

example, Norway is cited as a successful implementation. This concerns the NET1 operator, whose

predecessor tested one of the first GoTa implementations after 2005, but like the Swedes, NET1

dropped ZTE and replaced the equipment with CDMA2000 solutions supplied by Ericsson. Among the

dozen or so GoTa implementations boasted by ZTE, one would be at pain to find operators providing

PMR services, such as Mobilink from Chile, whose networks covers the whole of the area of Chile's capitalSantiago [Mobilink] and caters to the needs of municipal services and at least some disaster relief

services.

Considering all the above factors, it would be difficult to make an impartial technical assessment of the

GoTa radio trunking system in the network of Nordisk Polska, by e.g. drawing up a table comparing

GoTa and TETRA, especially that we should assume that the Chinese system is still at the developmentstage. Working with the operator, the Chinese supplier may improve the system, including its

functionalities, even if this should require investing in research and development. The lack of references or

unconvincing references for GoTa projects in other countries, as well as the lack of comparable,

verifiable third-party data is no doubt a major weakness of the offer of Nordisk Polska, as a system to

be used by services in mission-critical situations. In this case one would also have to consider the sensitiveaspect of trust in the security and reliability of a system remaining under the exclusive technological

control of the Chinese vendor.

CUSTOM SERVICE OFFERING

One serious argument that Polkomtel may use in offering radio trunking services in the network of

Nordisk Polska to public protection and disaster relief services could be that the users would avoid taking

investment risks. This is an economic argument – a service model under which, like in the case of typical

44 GoTa – Global open Trunking architecture [GoTa]45 E.g direct telephone calls at the push of a button, like in mobile radios, push-to-talk or PTT has been developed forCDMA. It is for the same reason, to capture customers among walkie-talkie users, that group calls were introduced.The service was offered mostly in the American market, but it has had a verly limited take-up. Call set-up time andreliability are far worse than in professional radio trunking networks. A standard for an identical service has been also

developed for GSM networks, but few European operators were interested in offering the service.



TETRA for Poland

Page 36

commercial cellular services, the operator would offer a new, better service in a network it had built on

its own and which it operates. This model has proved itself to a certain extent in the commercial

telecommunications market, because operators are driven by competitive pressure, fearing that their

users may switch operators to take advantage of better offerings by other operators. In the case of

highly specialised services, where there is no competition, a very detailed contract is required to ensure

quality, reliability and security.

The experience of countries, which had adopted an outsourcing service model for government services

dealing with critical missions shows that achieving terms satisfactory to both parties in negotiations with a

private partner is a process, in which the parties cannot afford compromises. In the case of an operator,

who had rolled out a network initially intended for the provision of services to commercial clients, it will

be difficult to negotiate a posteriori the quality, performance, reliability and security features required in

mission-critical applications, while anticipated savings to be achieved by passing the investment risk to

the private operator may prove illusive.



TETRA for Poland

Page 37

INTEROPERABILITY ISSUES

Interoperability Certificate

The TETRA Association launched an interoperability certification system46. The involvement of

manufacturers – technology vendors will be the key to success. The purpose is to ensure that the users,

manufacturers and integrators can enjoy the benefits of a real market made up of many vendors of

TETRA systems and equipment. More than a dozen companies have decided to join the programme47:

3T Communications Artevea Digital Cleartone Telecoms Damm Cassidian Harris Hytera Communications Corp. Ltd. Motorola

Piciorgros

Rohde & Schwarz Professional MobileRadio

Rohill Technologies Selex Communications OTE Sepura Teltronic Thales Unimo Technology

The Italian ISCOM48 Institute, which operates the accredited laboratory of the Italian Economic

Development Ministry, carries out certification measurements for the participants of the TETRA Associationprogramme. A lot of equipment has already undergone certification, which makes it possible to offer

equipment from alternative vendors in most of the networks currently deployed. Certificates are large

80-90 page documents, which include reports from measurement tests.

This voluntary certification system makes it easier to define the principles for system implementation,

development of equipment for specialist applications, ensures continuity in the introduction of innovations

and ultimately, brings about lower equipment prices.

However, IOP certification is not a system designed to confirm type-approval or compatibility

requirements49, allowing the use of equipment on the basis of general requirements.

From a user's perspective, the IOP certificate enables them to choose equipment according to its features:

functionalities, design, display, technology

supported frequencies

battery capacity (operating time)

security features

producer, service support, availability of accessories

price, warranty, payment terms

ISI inter systems interface

46 IOP interoperability certificate47 At the end of Q3 201048 ISCOM - Istituto Superiore delle Comunicazioni e delle Tecnologie dell'Informazione49

E.g. R&TTE, CE



TETRA for Poland

Page 38

Much emphasis is currently placed on the development of the ISI inter-systems interface. Work on the ISI

inter-systems interface for TETRA is carried out in several fora, both in the working group representing

the internal affairs administrations of the member states, in the ETSI and CEPT fora, and in the TETRA

association community. The immediate reason is the need for cross-border cooperation between public

protection and disaster relief services. Work continues in two directions. First, technical requirements,

legal issues, and roaming settlement terms are developed. The second issue, strategically more important,is to ensure the technical capabilities for the full interoperability and interconnection of neighbouring

countries' networks.

Work on ISI has a long history, as it actually dates back to the beginning of the operation of European

networks. Pilot operational technical tests on network interoperability were organised in the German city

of Aachen, near the Dutch and Belgian borders in 2003 [ISI,2010]. The tests identified the need for

additional harmonisation in the interoperation of IT systems:

maps showing the movement of vehicles operated by the services

harmonisation of terminology, descriptions and other language issues

unification of procedures

These tests have led to the development of the requirements in 2005 and 2008, later published as ETSI

document [ETSI TR 101 448]. These issues are also the object of work carried out in the Police

Cooperation Working Group (PCWG) operating within the Council of the European Union.



TETRA for Poland

Page 39

Many functionalities have already been fine tuned and

implemented in the TETRA technology. TETRA has more functionalities than any other professional

communications system, but of course, this does not mean that any user uses all of them. Rather thanthat, a user can choose those, which are adapted to the specific nature of his duties. When a

supplier agrees on a TETRA system implementation plan with a user, he does not really need to

adapt anything to the user's needs. Usually, the user only needs to be shown how it works.

We have also observed that users, who initially simply expect TETRA to offer better operation than

their previous communications systems, need to be taught to use its capabilities. The sharing of

experiences between operators and suppliers in the forum of the TETRA Association emphasises the

importance of the training phase, which averts misunderstanding on the one hand, but on the other, it

helps streamlining the user's organisation.

The next few years will see many new applications, because people want to invest in their

development. Vehicle location is just one example. Many of its applications already work so wellthat they have practically become a part of the system. Inspiration from users helps communications

systems to become smarter. Today, when most states are struggling with the consequences of the

economic crisis, users wish to use technology to reduce operating costs and the operators agree on

appropriate solutions with the manufacturers.

TETRA is a voice and data transmission system. Already for quite a while we have been observingthat there are many functionalities in mission critical situations, which use data transmission. TEDS was

very much needed, but it will be soon insufficient, so somebody came up with the idea of using LTE

capabilities for these purposes and we are now working to make it come true.

The economic crisis requires the optimisation of CAPEX and reduction of OPEX. Hence, we arediscussing the evolution of operating models, increased competencies for operators, who arecharged with new tasks, become autonomous and in many countries; they act as outside companies

offering their services to government agencies.

Phil Kidner

TETRA Association

Chief Executive



TETRA for Poland

Page 40

TETRA DEVELOPMENTAchieving the integration and seamless interoperation of all IT and telecommunications systems, both

narrowband and broadband, used by services responsible for mission critical situations is a vision ofTETRA strongly supported by standardisation work carried out within ETSI.

New systems are emerging, which integrate various radio technologies, e.g. TETRA with Wi-Fi, RFID50,

NFC51, satellite systems.

There is an increasing demand for demanding data transmission applications, which will improve the

management of rescue operations, like e.g. real-time transmission of images from incident sites.

Increased activity on the part of

application developers, who are

trying to expand the functionality of

current TETRA networks, but are alsoworking on new applications for

public protection and disaster relief

services is one of the results of

standardisation works. At the same

time, new markets for TETRA

network applications are emerging

in municipal services, transportation

and other specialised professional

uses.

The materialisation of this vision

means more than a standardisation

challenge, i.e. the integration of

information systems with fast data

transmission networks, but also theneed to obtain new frequency

resources. Interest groups interested

in developing TETRA are striving to

use the development potential of

LTE, a standard developed for the

next generation of public mobile

cellular radiocommunications, butresearch also continues on the

application of new technologies andnew areas of the spectrum. Even

though LTE is only at the

development stage and commercial cellular networks are very cautious about its implementation, it

already offers very advantageous and technically effective solutions for fast data transmission.

Moreover, LTE is very efficient with respect to the use of the radio spectrum. During the recent TETRA

50 RFID – Radio Frequency Identification - tagging of objects, resources51

NFC – Near Field Communication - technology developed for wireless electronic payments, access cards

At the TETRA 2011World Congress, Cassidian and ourselves have informed the

community interested in the development of TETRA that we will

be undertaking a joint effort to use the potential of both

leading companies to develop broadband technologies, which

have so far not been available in the 400MHz band. This joint

solution will support services based on broadband data

transmission, such as mobile video security for security systems,

location-based mobile video for vehicles, integrated smart

transportation systems and other advanced broadband data

transmission services complementing the existing TETRA

functionalities. We are hopeful that if the governments of

European states decide to allocate a part of the 400MHz band

for public protection and disaster relief networks, LTE may take

only a few years to start supporting the development of a newgeneration of networks and applications.

Pierre

TournassoudAlcatel-Lucent

Vice President,

Strategic Industries



TETRA for Poland

Page 41

World Congress held this year in Budapest, Cassidian, one of the world's leading suppliers of TETRA

networks and Alcatel-Lucent declared that they were going to cooperate in the development of

broadband LTE applications for public protection and disaster relief services.

Several months ago Motorola issued a similar communication on cooperation in LTE development with

Ericsson.



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TETRA for Poland

About the author:

Piotr Rutkowski started his consultancy "rotel" in 1990. He specialises in

the strategies of telecommunications market and electronic media development, the legal and regulatory

system for the electronic networks and services, public private partnership, innovation, as well asinformation security and protection of critical infrastructure.

He is the Vice-President of the Mikromakro Institute.

He has worked with many leading companies of the sector and took part in a number of regulatory

projects commissioned by the European Commission in Poland and other EU member states. In 2007 heserved as an advisor to the NRA of Bosnia & Herzegovina. Often invited to work with Parliament

committees, as a permanent expert or advisor, he took part in drafting the telecommunications law and in

the transposition of EU law into the Polish legal system. In the years 2006/2007 he served as an advisor

to the Special Services Coordinator for telecommunications and the protection of critical infrastructure.

A regular writer of the Computerworld weekly. In 2009 he was nominated to the European Prize for

Journalism for his publications on the Community issues. He is a lecturer at the Postgraduate Study on

Information Society at the Jagiellonian University in Cracow. A co-author of Poland's growth strategies

under the National Foresight Programme "Poland 2020" - "Information and communications

technologies". Actively involved in the preparation of local governments' broadband network projects.

Piotr Rutkowski graduated from the Warsaw University, where he studied physics and astronomy. Inaddition to completing a postgraduate study in photography and image information, he also graduated

from a postgraduate study in ICT security at the National Defence University.

Contact: [email protected]

Photographs by Piotr Rutkowski (except photograph on p. 19 – courtesy of Motorola)

MIKROMAKRO INSTITUTE FOUNDATION – a centre of excellence, a think-tank promoting strategic

approach to the state, society and economy both on the micro scale (i.e. at the level of local action

groups, local governments or companies) and on the macro scale (at the national and global level). Our

motto is "Programmamus futura".

„Instytut Mikromakro” Foundation, ul. Lanciego 13/149, 02-792 Warszawa;

Tel.(48) 22 4072076

NIP 9512293688, REGON 142025412, KRS 0000337473; District Court for the Capital City of

Warsaw, XIIIth Business Division of the National Court Register (KRS)

You can make your donation to the foundation's account: Bank PEKAO SA VIII O/Warszawa ul. Wołoska

18, account # 36 1240 1112 1111 0010 2743 9367

mailto:[email protected]


