Minnesota Public Safety Broadband and FirstNet Brief
Prepared for:Governor’s Task Force on Broadband
October 16, 2012Presenter: Brandon Abley, DPS-ECN
2
Agenda
1. Public Safety Broadband/LTE Basics2. FirstNet and a New National Model3. Minnesota’s Broadband Study4. Making a Business Case5. Unresolved Issues6. Next Steps for Minnesota
3
Introduction to LTE Technology
• Next generation cellular standard• All Internet Protocol (IP) based• OFDM (DL) and SC-FDMA (UL) Air
Interface• Flat architecture with more capable
eNodeB’s• Use of Multi Inputs Multi Output
(MIMO) antennas• Tens of megabits throughput and sub
50 mS latency
• 10 band classes (incl. Band Class 14 for PS) and in seven bandwidths
• Global adoption by dozens of commercial carriers including all major US carriers
44
• PSBL Block 5+5 MHz• D-Block 5+5 MHz• Total 10 MHz in each
direction• Estimated 3X more
spectral efficiency than 3G• Varies based on antenna
configuration– 2x2 MIMO– 4x4 MIMO
• Highly variable based on signal to noise ratio
LTE PerformanceCategory LTE Performance
Bandwidth 10 MHzPeak Downlink Data Rate Theoretical peak: 86 Mbps
Peak Uplink Data Rate Theoretical peak: 36 MbpsEstimated Avg DL Throughput 16 MbpsEst. Cell-Edge DL Throughput 0.5 Mbps
Est. Avg UL Throughput 9 MbpsEst. Cell-Edge UL Throughput 0.3 Mbps
VoIP Capacity 200 Users per sector
5
LTE Coverage Not Equal to LMR
Coverage and Operations
• LMR link budget is better than LTE at broadband speeds– 4G requires far more sites to match
coverage– However, LTE could scale to non-
broadband speeds
• Significantly less cost per eNodeB than per LRM
• More sites may increase operations budget versus LMR
• Huge eNodeB backhaul requirements to Core
6
Architecture
• RAN– Radio access network– Sites
• EPC– Core network– Servers, gateways,
switching, management• Applications
– 3rd-party/neutral transport– Network-native
7
What is a RAN?
Radio Access Network
• UE (“User Equipment”)– These are user devices!– Cell phones, modems, etc.
• eNodeB – These are sites!– They connect directly to the
core network without intermediate controllers
– LTE has a flat architecture and only IP connections
8
What is an EPC?
Evolved Packet Core
• Distributed Architecture• Not all traffic has to go through every network node• Well-defined interfaces (intended for) vendor interoperability• Some interfaces left open to vendor interpretation (by design)!
9
Why do we care?
• Innovative new services through new applications• Make applications decisions independently of network decisions• Maximum communications interoperability; one network, one
frequency; all systems can be interconnected• Enhanced situational awareness• NG9-1-1 traffic delivery to responders• Reduced long-term costs
– Global standard shared by public and private (economy of scale)– Can offset existing costs spent on commercial services– Expanded public-private partnership capabilities
• Better spectral efficiency (We are in a spectrum crunch!)
FirstNet and a New National Model
11
FirstNet
2012 Middle Class Tax Relief and Job Creation Act
• 700 MHz D Block to reallocated to public safety• First Responder Network Authority (new entity within NTIA) will hold
public safety broadband license and be responsible for NATIONAL network deployment and operation– FirstNet board of directors will include federal, state, and local representatives
(NTIA must appoint state/local members by August 20, 2012)
• Up to $7.3 billion in funding for network from future FCC incentive auctions (NTIA can borrow $2 billion up front)
• States can “opt-out” and deploy state networks (subject to FCC approval)
Source: FCC Regulatory Update March 8 2012
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FirstNet
Source: FCC Regulatory Update March 8 2012
AMultiple Licensee
s
BAT&T(most of
US)
CAT&T(most of
US)
DAT&T
(acquired from
Qualcomm)
EMultiple Licensee
s
AMultiple Licensee
s
BAT&T(most of
US)
CAT&T(most of
US)
CVerizon
746 768 798 806769 775757 776758 799787
698 704 710 716 722 728 734 740 746
Ch 52 Ch 53 Ch 54 Ch 55 Ch 56 Ch 57 Ch 58 Ch 59
Ch 60 Ch 61 Ch 62 Ch 63 Ch 64 Ch 65 Ch 66 Ch 67 Ch 68 Ch 69
PSBB PSNB CVerizon
PSBB PSNB
805788
A Block Guard Band (Access Spectrum,
Pegasus, etc.)
B Block Guard Band (Vacant)
DTV
800 MHz
Upper 700 MHz Band
FirstNet License
13
FirstNet
Transition
• FCC to transition public safety broadband spectrum to FirstNet • FCC Technical Advisory Board for First Responder Interoperability
– Develop technical requirements for broadband interoperability– Board recommendations submitted to FCC for review– FCC approves Interoperability Board recommendations and
transmits them to FirstNet for adoption• Timing:
– March 23 -- FCC appoints Interoperability Board members– May 22 -- Board must submit recommendations to FCC– June 21 -- FCC must transmit recommendations to FirstNet
Source: FCC Regulatory Update March 8 2012
14
FirstNet
FirstNet Duties and Obligations
• Determine uses/access to network• Develop RFPs • Promote competition in the equipment market• Receive payment for use of FirstNet’s spectrum/infrastructure• Consult with States on State & Local Planning• Leverage existing commercial or other infrastructure (e.g, ARMER)• Develop/sponsor national standards and requirements• Represent Public Safety before standards bodies
Source: Alcatel-Lucent, “FirstNet: Implementation Timeline & Requirements”, March 2012
15
FirstNet
FirstNet Duties and Obligations (More) • Creating the over-arching strategic framework for the public safety
network• Ensuring nationwide standards for use and access to the network based
on commercial standards• Working to deliver economies of scale for public safety• Maximizing opportunities for long-term cost savings and improved
functionality• Integrating federal first responders and public-safety-related uses to
maximize the efficiency of the new network• Formulating a fee collection system that reflects market reality and
ensures FirstNet self-sustainabilitySource:http://www.ntia.doc.gov/files/ntia/publications/firstnet_prospectus_-_final.pdf
Creation ofFirstNet
State & LocalImplementation Grant
FirstNetRFPs
NTIA/Governors
StateOpt-Out
FirstNet Deploys
FCCInterop Board
Some information from: Alcatel-Lucent, “FirstNet: Implementation Timeline & Requirements”, March 2012
Timeline
30 Days (March 23)
6 Months(August 20)
?? (No deadline)
?? + 90 Days)
?? + 180 Days)
Minnesota/SRB planning activities
Minnesota Public Safety Broadband!
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FirstNet
What is “Opt-Out”?
• State opts to do its own RAN build-out• The state’s network is still part of the national network• The state still pays access fees to FirstNet spectrum• The state may be required to still pay fees for national core
infrastructure, or may be barred from buying its own core with Federal funds
• The state is not excluded from national funding if it opts out• Opt-out plans subject to regulatory approval and must
demonstrate a compelling economic case• Opting out means states can pursue novel/innovative partnerships
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FindingsCore Functions:
With FirstNet model, these “core” services are not owned by any state/local government.
Minnesota Broadband Study
20
Findings
Section 1: User Needs Assessment
Data collected through:
• Face-to-face interviews (hundreds of man-hours’ worth)
• Online survey (175 respondents)
• Included use cases, equipment/applications needed, and a tabletop exercise
21
Findings
Survey Responses by Organization:
City Government
County Government
Hospital
NGO
State Government
Tribal Government
Other
0 10 20 30 40 50 60 70 80
Number of Respondents
22
Findings
Survey Responses by Profession:
Tran
sporta
tion
Communications
Public W
orks
Firefi
ghting
Inform
ation an
d Planning
Mass Care
Resource
Support
Health
, Med
ical, a
nd EMS
Searc
h and Resc
ue
Hazard
ous Mate
rials
Food an
d Wate
r
Energ
y
Military
Support
Public Inform
ation
Volunteers
and Donati
ons
Law En
forcemen
t
Animal
Servi
ces
Public Se
rvice
Educati
on/Schools
Sanita
tion & Se
werOther
0
20
40
60
80
100
120
Resp
onse
s
23
Findings
Devices:
Other (please specify)
None
Vehicular Modem (single radio)
Mobile Router (modem + Wi-Fi)
Rugged PC or Tablet
USB Modem Card
Express Card
Expansion Slot or USB Modem
Embedded Cards (within laptop)
Rugged Smartphone or PDA
Smartphone or PDA
0% 10% 20% 30% 40% 50% 60%
6%
15%
18%
13%
41%
25%
10%
33%
21%
9%
54%
What device(s) do you currently use on the existing wireless network(s)?
Devices:
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Findings
Devices:
SCAD
A fo
r Fac
ilitie
s
Softwar
e & O
pera
ting S
yste
m U
pdat
es
Biom
etric
s: Pa
tient
or Pe
rsonn
el
AVL o
r Tele
met
ry Se
rvic
es (v
ehic
les, p
erso
nnel,
offen
ders)
GIS-b
ased
Disp
atch
Dat
a
Map
ping
or G
eosp
atial
Data
High R
esol
ution
Vide
o (TV
quali
ty)
Low Re
solu
tion V
ideo
(Web
quali
ty)
Web
brow
sing
Datab
ase L
ooku
ps: D
river
licen
se, fi
nger
prin
t ret
rieva
l, etc
Incid
ent R
epor
ting
Voice
: Pus
h-to
-Talk
Voice
: Ful
l Dup
lex
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Current 2015 Current (2015 responders)
Applications:
25
Findings
Service Area:
• Existing carrier coverage is not ubiquitous, many rural areas without service– 85% of respondent reported coverage problems
• Expectations:– Priority must be to provide 95% mobile coverage on County-by-
County basis– In-building coverage to be a growing requirement– Must have quicker coverage augmentation solutions available
for emergencies; COWs, COLTs, Satellite, etc.
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FindingsIncident Modeling:
0 15 30 45 60 75 90105
120135
150165
180195
210225
2400
20
40
60
80
100
120
Law Enforcement Incident Command SWATFire EMS
INCIDENT TIMELINE (minutes)
Num
ber o
f Firs
t Res
pond
ers b
y Ag
ency
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Findings
PEAK Uplink PEAK Downlink Average Uplink Up % Average Downlink Downlink %
Strike Team Subtotal: 2856 kbps 492 kbps 2667 kbps 62% 303 kbps 4.0%
Unified Command Subtotal: 1106 kbps 10009 kbps 427 kbps 10% 6524 kbps 86%
Staging Area Subtotal: 1044 kbps 609 kbps 947 kbps 22% 513 kbps 7%
Perimeter Subtotal: 257 kbps 256 kbps 257 kbps 6% 256 kbps 3.4%
INCIDENT TOTALS: 5263 kbps 11366 kbps 4298 kbps 7596 kbps
Stats:
• Peak Traffic: 11,366 DL / 7596 UL kbps• Or, approximately one completely maxed out 10x10 MHz LTE sector
• Uses multicast/broadcast for traffic efficiency• Does not include mission-critical push-to-talk• At the time, showed we did not have enough spectrum
for an incident. We do now with the D Block.
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Findings
Other Notes:
Study document includes separate figures for urban, rural, present, future scenarios
Scenario Average Uplink (kbps)
Average Downlink
(kbps)
Percentage Video
(UL/DL)
Present / Urban
623 3,849 26%/60%
Present & Future Rural
197 2,509 41%/61%
Future / Urban
4,298 7,596 74%/77%
Speed Comparisons:Dial-up: 56 kbpsProject 25: 9.6 kbps
(per-channel)DSL: 1,500 / 256 kbps
(down/up)Cable Modem: 3,000 / 756 kbps
(down/up)
29
Findings
Network Requirements
• A statement of basic technical requirements that would form the basis of an RFP specification
• Includes detail on coverage, throughput, features, security, etc.
30
Findings
Coverage Requirement:
Coverage Requirement Area Description UL Rate DL Rate
95% In-Building Metropolitan areas 256 kbps 933 kbps
95% Outdoor Handheld Suburban counties 256 kbps 1437 kbps
95% Mobile Statewide County-by-County 256 kbps 1437 kbps
Speed Comparisons:Dial-up: 56 kbpsProject 25: 9.6 kbpsDSL: 1500 / 256 kbpsModem: 3000 / 756 kbps
Scenario Av UL Av DL % Video
Present Urban 623 3,849 26%/60%
Rural 197 2,509 41%/61%
Future / Urban 4,298 7,596 74%/77%
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Findings
Section 3: Carrier Assessment• No pre-emptive priority• No ARMER-level coverage (no commercial benefit)• Availability approx. 99.5%• Not public safety-grade on carrier spectrum• May have option for using public safety spectrum on carrier
network (hosted core/leased backhaul)
793
A B C
Media
Flo
D
Media
Flo
E A B C
Guard
AD
- BL
OC
KD
Pu
blic S
afetyB
roa
db
and
Pu
blic S
afetyN
arro
wb
and
Guard
B
D - B
LO
CK
D
Pu
blic S
afetyB
roa
db
and
805
Gua
rd
Pu
blic S
afetyN
arro
wb
and
Guard
B
Guard
A
788776 787775768
Gua
rd
763758 769798
799757746740734728722698 704 710 716
C C
LTE Band 17LTE Band 17 LTE Band 13 LTE Band 13LTE Band 14 LTE Band 14
LTE Band 12LTE Band 12
32
Findings
Section 4: Implementation ModelModel Description Advantages DisadvantagesPrivate Service
Completely Private Solution (could be DBOM by 3rd party)
State controls requirements and priorities (public safety grade, pre-emption)
Highest capital cost
Public / Private Partnership
Leverages assets of commercial carriers
Reduced capital costs, balanced requirements versus capital
Unknown operating costs, potentially unmet requirements
Commercial Service
Commercial carrier DBOM system
No capital costs High risk of unmet requirements
33
FindingsPreliminary Network Designs:“ARMER PLUS”
Region ARMER Sites
New Sites Total % New
Central 63 20 83 24%
Metro 70 36 106 34%
Northeast 97 35 132 27%
Northwest 59 18 77 23%
South Central 20 3 23 13%
Southeast 39 18 57 32%
Southwest 32 11 43 26%
Total 380 141 521 27%
521 sites to meet all requirements
34
Findings
35
FindingsActual Throughput
• Actual LTE throughput at each site can be as high as 8500 kbps with 5x5 MHz; double that with 10x10 MHz
• Various factors degrade actual throughput, so statewide requirement is actually a fraction of peak performance
• Sectors are unlikely to perform at peak performance most of the time for technical reasons (adaptive modulation, intra-system interference, others)
36
FindingsNote: Throughput rateswith 5x5 MHz Channels
(i.e. without D Block)
37
FindingsPreliminary Network Designs:“ARMER” 380-site Transitional Design
ARMER Only – Broadband Speed• Avoids 141 tower builds• 94% statewide mobile coverage (lt.
green)• 28 counties < 95%, E.G.,:
– Cook: 78%– Winona: 82%– Lake of Woods: 86%– Lake: 82%
ARMER Only – Dial-up Speed• LTE can scale down to lower rates in the
yellow areas• > 95% statewide coverage• 4 counties < 95%:
– Cook: 92%– Winona: 93%– Lake of Woods: 91%– Lake: 94%
38
Findings
39
Findings
Section 5: Funding Models• Three models covered• To range the gamut from fully state-owned (like
ARMER; “opt-out” scenario) to carrier-ownedModel DescriptionState Public Model The State builds, owns, operates, and maintains the network.
This is analogous to land-mobile radio deployment in the past, such as ARMER.
Vendor-Financed Model A vendor fills in financial shortfall for building and operating the network by making commercial usage available to the network.
Commercial Carrier Model An existing carrier augments it network to meet public safety needs.
40
Findings0
10,0
00
20,0
00
30,0
00
40,0
00
50,0
00
60,0
00
70,0
00
80,0
00
90,0
00
100,
000
110,
000
120,
000
130,
000
140,
000
150,
000 $-
$10.00
$20.00
$30.00
$40.00
$50.00
$60.00
$70.00
$80.00
$90.00
$100.00
Implementation Cost per Subscriber
ARMER+
Amort. & ARMER+
ARMER
Amort. & ARMER
Number of Subscribers (Users)
Cost
per
Use
r per
Mon
th
41
Phase 2
Phase 2 Broadband Study “Plan the Plan”
• To develop a process for:– Compiling the data needed by FirstNet to design in MN– Compiling the data needed by stakeholders to join NPSBN
• To Identify gaps in – Governance– Statewide planning– Sustainability– Support needed by FirstNet
• To create a basic Minnesota public safety broadband plan template to empower stakeholders to make “the big decision”
Making a Business Case
43
Making a Business Case
An LTE Network is Useless!
• A network, by itself, does absolutely nothing• The value of the network is determined by:
– The services it provides– The services that users can provide for themselves– The ability for the network to deliver those services– Potential for consolidation and cost center mitigation
• The national model provides us with a means for basic connectivity, but as of yet, there is no real business case
• To make a decision and to interact with FirstNet, the state needs a business case for the network
44
Making a Business Case
Potential Assets in Minnesota:
• Commercial service offsets (cellphones, network, internet access) • Private partners
– Users: Utilities, rural communities, general government ($$ generation)– Providers: Telcos, cellular companies, ISPs ($$ savings)
• Hosted applications (CAD, CPE, logging, LMR, productivity)• Incumbent private public safety communications systems• Incumbent government (agencies, funds, technical staff, leadership)• Pre-existing infrastructure (ARMER, locally-owned fiber)
To make a business case, we should focus on offsetting existing costs first, then exploring new and added value.
45
Making a Business Case
Public Safety is Local
• The role of state and Federal government in public safety is somewhat limited– All incidents are local incidents– Some incidents are state or Federal incidents– E.g., ARMER: <25% of system users are state or Federal responders
• We cannot justify a network of this size without comprehensive support from local government
• Minnesota’s—and the nation’s—business case must be palatable for local government to ensure participation
46
Making a Business Case
How Much Will it Cost?
• Estimates vary; if we extract estimates for Minnesota to all 50 states we can expect:– CAPEX: Over $16 Billion– OPEX: Over $795 Million
• FirstNet bill provides up $7.3 Billion; most likely won’t cover even HALF of CAPEX
• FirstNet bill provides no OPEX, but gives FirstNet the authority to collect fees to support operational expenses
• Unlikely that government at all levels will generate new revenues at these levels; better to focus on cost savings and efficiencies
Unresolved Issues
48
FirstNetState Planning Funding• State grant funding guidelines required to advance the planning strategy• State assets analysis during the planning phase (tower, fiber, data centers, POPs)
FirstNet Network Deployment• What is the role of states and local jurisdictions in developing the implementation
strategy?• How will the network deployment strategy be prioritized?• What FirstNet service level agreements are to be proposed and are the network
coverage objectives?• How will the cost of service be determined?• Who are the authorized public safety users?• Is FirstNet pursuing national or regional partnerships for revenue sharing?• What is the schedule to auction spectrum to fund the build out?• What is the balance of the FirstNet proposal compared to an Opt-Out strategy?
Next Steps
50
Next StepsSRB/SCIP Broadband Action Items:
1. Establish a statewide body under the Statewide Radio Board to sanction public safety interoperable data planning activities
2. Develop a full assessment of assets to contribute to the network
3. Develop a Minnesota Public Safety Broadband Plan
4. Develop applications and data interoperability standards
5. Investigate potential formal partnerships
6. Continue to foster interoperability planning on a regional basis
7. Monitor, and participate when appropriate, in larger planning and standards-setting
51
Next StepsProgress Snapshot, October 2012:
• Goal 1: SRB has established interoperable data committee, representing varied public safety and private interests.
• Goals 2 and 3: Project to establish framework for public safety broadband plan underway. A core component of this plan is a detailed inventory of assets to assist local governments in making a business case.
• Goal 4: Minnesota participation in national efforts to set nationwide baseline requirements for the NPSBN through professional organizations (NPSTC, etc)
• Goal 5: Private partners to be included as stakeholders in the state broadband plan
• Goal 6: Minnesota work through RECCWG; region-wide joint filings with NTIA/FCC on public safety broadband issues
• Goal 7: Minnesota representation in workgroups through NPSTC, APCO, etc.
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