1. Minnesota Public
Safety Broadband
and FirstNet Brief
Prepared for:
Governor’s Task Force on Broadband
October 16, 2012
Presenter:
Brandon Abley, DPS-ECN

2. Agenda
1. Public Safety Broadband/LTE Basics
2. FirstNet and a New National Model
3. Minnesota’s Broadband Study
4. Making a Business Case
5. Unresolved Issues
6. Next Steps for Minnesota
2

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
3

4. LTE Performance
Category LTE Performance
• PSBL Block 5+5 MHz
Bandwidth 10 MHz
• D-Block 5+5 MHz Peak Downlink Data Rate Theoretical peak: 86 Mbps
• Total 10 MHz in each Peak Uplink Data Rate Theoretical peak: 36 Mbps
Estimated Avg DL Throughput 16 Mbps
direction Est. Cell-Edge DL Throughput 0.5 Mbps
• Estimated 3X more Est. Avg UL Throughput 9 Mbps
spectral efficiency than 3G Est. Cell-Edge UL Throughput 0.3 Mbps
VoIP Capacity 200 Users per sector
• Varies based on antenna
configuration
– 2x2 MIMO
– 4x4 MIMO
• Highly variable based on
signal to noise ratio
4 4

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
5

6. Architecture
• RAN
– Radio access network
– Sites
• EPC
– Core network
– Servers, gateways, switchin
g, management
• Applications
– 3rd-party/neutral transport
– Network-native
6

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
7

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)!
8

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!)
9

10. 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
11

12. FirstNet
698 704 710 716 722 728 734 740 746
A B C D E A B C
Multiple AT&T AT&T AT&T Multiple Multiple AT&T AT&T
DTV Licensees (acquired Licensees Licensees
(most of (most of from (most of (most of
US) US) Qualcomm) US) US)
Ch 52 Ch 53 Ch 54 Ch 55 Ch 56 Ch 57 Ch 58 Ch 59
A Block Guard Band B Block Guard
Upper 700 MHz Band (Access Band (Vacant)
Spectrum, Pegasus, etc.)
746 757 758 768 769 775 776 787 788 798 799 805 806
C PSBB PSNB C PSBB PSNB
Verizon Verizon 800
MHz
Ch 60 Ch 61 Ch 62 Ch 63 Ch 64 Ch 65 Ch 66 Ch 67 Ch 68 Ch 69
FirstNet License
Source: FCC Regulatory Update March 8 2012
12

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
13

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
14

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-sustainability
Source:http://www.ntia.doc.gov/files/ntia/publications/firstnet_prospectus_-_final.pdf
15

16. Timeline
FCC 30 Days (March 23)
Minnesota/SRB Interop Board
planning activities
Creation of State & Local
6 Months
FirstNet Implementation Grant
(August 20)
FirstNet ?? (No deadline)
RFPs
NTIA/Governors ?? + 90 Days)
Minnesota Public
Safety Broadband! State ?? + 180 Days)
FirstNet Deploys
Opt-Out
Some information from: Alcatel-Lucent, “FirstNet: Implementation Timeline & Requirements”, March 2012

17. 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
17

18. Core Functions:
Findings
With FirstNet model, these “core” services
are not owned by any state/local
government.
18

19. 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
20

21. Findings
Survey Responses by Organization:
Other
Tribal Government
State Government
NGO
Hospital
County Government
City Government
0 10 20 30 40 50 60 70 80
Number of Respondents
21

22. Findings
Survey Responses by Profession:
120
100
80
Responses
60
40
20
0
22

23. Devices:
Findings
What device(s) do you currently use on the existing wireless network(s)?
Smartphone or PDA 54%
Devices: Rugged Smartphone or PDA 9%
Embedded Cards (within laptop) 21%
Expansion Slot or USB Modem 33%
Express Card 10%
USB Modem Card 25%
Rugged PC or Tablet 41%
Mobile Router (modem + Wi-Fi) 13%
Vehicular Modem (single radio) 18%
None 15%
Other (please specify) 6%
0% 10% 20% 30% 40% 50% 60% 23

24. Applications:
Findings
100%
Devices:
90%
Current 2015 Current (2015 responders)
80%
70%
60%
50%
40%
30%
20%
10%
0%
24

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.
25

26. Incident Modeling:
Findings
Law Enforcement Incident Command SWAT Fire EMS
120
Number of First Responders by Agency
100
80
60
40
20
0
0 15 30 45 60 75 90 105 120 135 150 165 180 195 210 225 240
INCIDENT TIMELINE (minutes)
26

27. Findings
Stats:
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
• 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.
27

28. Findings
Other Notes:
Scenario Average Average Percentage Speed Comparisons:
Uplink Downlink Video Dial-up: 56 kbps
(kbps) (kbps) (UL/DL)
Project 25: 9.6 kbps
Present / 623 3,849 26%/60% (per-channel)
Urban
DSL: 1,500 / 256 kbps
Present & 197 2,509 41%/61%
Future Rural (down/up)
Future / 4,298 7,596 74%/77% Cable Modem: 3,000 / 756 kbps
Urban (down/up)
Study document includes separate figures for
urban, rural, present, future scenarios
28

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.
29

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:
Scenario Av UL Av DL % Video
Dial-up: 56 kbps
Present Urban 623 3,849 26%/60%
Project 25: 9.6 kbps
Rural 197 2,509 41%/61%
DSL: 1500 / 256 kbps
Future / Urban 4,298 7,596 74%/77%
Modem: 3000 / 756 kbps
30

31. 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)
A B C D E A B C C A D B C A D B
Public Safety
Public Safety
Public Safety
Public Safety
Narrowband
Narrowband
Broadband
Broadband
D - BLOCK
D - BLOCK
MediaFlo
MediaFlo
Guard
Guard
Guard
Guard
Guard
Guard
LTE Band 17 LTE Band 17 LTE Band 13 LTE Band 14 LTE Band 13 LTE Band 14
LTE Band 12 LTE Band 12
698 704 710 716 722 728 734 740 746 757 758 763 768 775 776 787 788 793 798 805
769 799
31

32. Findings
Section 4: Implementation Model
Model Description Advantages Disadvantages
Private Completely Private State controls Highest capital cost
Service Solution (could be requirements and
DBOM by 3rd party) priorities (public safety
grade, pre-emption)
Public / Leverages assets of Reduced capital costs, Unknown operating
Private commercial carriers balanced costs, potentially
Partnership requirements versus unmet requirements
capital
Commercial Commercial carrier No capital costs High risk of unmet
Service DBOM system requirements
32

33. Preliminary Network Designs:
“ARMER PLUS” Findings
ARMER New
Region Total % New
Sites Sites
Central 63 20 83 24%
Metro 70 36 106 34%
Northeast 97 35 132 27%
Northwest 59 18 77 23%
South
20 3 23 13%
Central
Southeast 39 18 57 32%
Southwest 32 11 43 26%
Total 380 141 521 27%
521 sites to meet all
requirements 33

34. Findings
34

35. Actual Throughput
Findings
• 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)
35

36. Note: Throughput rates
Findings
with 5x5 MHz Channels
(i.e. without D Block)
36

37. Preliminary Network Designs:
Findings
“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%
37

38. Findings
38

39. Findings
Section 5: Funding Models
• Three models covered
• To range the gamut from fully state-owned (like
ARMER; “opt-out” scenario) to carrier-owned
Model Description
State 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.
39

40. Implementation Cost per Subscriber
$100.00 Findings ARMER+
$90.00 Amort. & ARMER+
$80.00 ARMER
Cost per User per Month
$70.00 Amort. & ARMER
$60.00
$50.00
$40.00
$30.00
$20.00
$10.00
$-
0
10,000
20,000
30,000
40,000
50,000
60,000
70,000
80,000
90,000
100,000
110,000
120,000
130,000
140,000
150,000
Number of Subscribers (Users)
40

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”
41

42. 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
43

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.
44

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
45

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
46

47. Unresolved Issues

48. FirstNet
State 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?
48

49. Next Steps

50. Next Steps
SRB/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
50

51. Next Steps
Progress 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.
51

52. Questions?
Brandon Abley
MN DPS-ECN
brandon.abley@state.mn.us
651 201 7554
52