Broadband Study

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DigitalAgendafor Europe

Study on Broadband

and InfrastructureMapping

FINAL REPORT

A study prepared for the European CommissionDG Communications Networks, Content & Technologyby:


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This study was carried out for the European Commission by

TV Rheinland Consulting GmbH

Department Telco Services & Solutions

Uhlandstrae 88-90

10717 Berlin, Germany

WIK-Consult GmbHRhoendorfer Str. 68

53604 Bad Honnef, Germany

Authors:

Dr Ren Arnold

Marius Kirch

Dr Martin Waldburger

Andreas Windolph

Internal identification

Contract number: 30-CE-0555114/00-17SMART 2012/0022

DISCLAIMER

By the European Commission, Directorate-General of Communications Networks, Content & Technology.

The information and views set out in this publication are those of the author(s) and do not necessarily reflectthe official opinion of the Commission. The Commission does not guarantee the accuracy of the data included inthis study. Neither the Commission nor any person acting on the Commissions behalf may be held responsible

for the use which may be made of the information contained therein.

ISBN 978-92-79-44529-3

DOI: 10.2759/488313

European Union, 2014. All rights reserved. Certain parts are licensed under conditions to the EU.

Reproduction is authorised provided the source is acknowledged.


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Table of Contents

List of Tables.......................................................................................................... 5

List of Figures........................................................................................................ 8

Executive summary........................................................................................... 12

1 Introduction..................................................................................................... 25

2 Objectives......................................................................................................... 26

3 Definition four types of broadband mapping................................... 29

3.1 Infrastructure mapping ........................................................................................ 30

3.2 Broadband service mapping ................................................................................ 31

3.3 Broadband demand mapping .............................................................................. 33

3.4 Investment and funding mapping ...................................................................... 36

3.5 Use cases and further exploitation scenarios ................................................... 37

4 Political and regulatory background of broadband and

infrastructure mapping................................................................................ 41

5 Review of existing national broadband mapping initiatives......... 50

5.1 Inventory of public national broadband and infrastructure mapping

initiatives in EU Member States .......................................................................... 51

5.2 Survey results review of existing broadband mapping initiatives............. 53

5.2.1 The sample of EU Member States broadband mapping initiatives.............................55

5.2.2 General insight into the functioning of EU Member States broadband mappinginitiatives..................................................................................................................................57

5.2.3 Insights guiding the development of a comprehensive broadband mappingmethodology...........................................................................................................................75

5.2.4 Demand mapping ...................................................................................................................84

5.2.5 Investment mapping.............................................................................................................87

5.3 Conclusion of the review ...................................................................................... 88

6 Methodology choices.................................................................................... 91

6.1 Introduction ............................................................................................................ 91

6.2 General set-up of a broadband mapping initiative .......................................... 93

6.3 The mapping process: data collection, processing and publication............ 104

6.3.1 Data collection......................................................................................................................105

6.3.2 Data processing ....................................................................................................................125

6.3.3 Data publication...................................................................................................................129

6.3.4 Case study Breitbandatlas service mapping Germany.............................................133

6.3.5 Feedback and concerns of data suppliers .......................................................................136


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6.4 Technical requirements/specifications ............................................................. 138

6.4.1 Expansion stages and general issues..............................................................................139

6.4.2 Tiers of a mapping system .................................................................................................144

6.5 Integration into the regulatory and political context.................................... 1596.5.1 Impact of regulations on mapping methodology..........................................................159

6.5.2 Potential impact on general mapping methodology.....................................................160

6.5.3 Potential impact on data collection/processing/publication methodology...............162

6.6 Effort required for setting up and operating a broadband mapping

initiative ................................................................................................................ 164

6.6.1 General assumptions ...........................................................................................................165

6.6.2 Effort items for broadband mapping ................................................................................169

6.6.3 Further effort requirements (software and hardware)................................................175

6.6.4 Effort estimation for selected scenarios ..........................................................................177

7 Recommendations on mapping methodology................................... 184

7.1 First steps and thoughts for setting up broadband mapping....................... 184

7.2 Recommendations for infrastructure mapping ............................................... 186

7.3 Recommendations for service mapping.......................................................... 189

7.4 Recommendations for demand mapping methodology................................ 191

7.5 Recommendations for investment mapping methodology........................... 193

8 Annex................................................................................................................ 195

8.1 Broadband mapping activities for EU Member States ................................... 195

8.1.1 Country profiles of national broadband mapping initiatives .......................................195

8.1.2 Selected regional broadband mapping initiatives in EU Member States.................248

8.1.3 Selected broadband mapping initiatives worldwide.....................................................252

8.1.4 Summary contacted authorities and mapping initiatives............................................259

8.2 Effort related to broadband mapping ............................................................... 273


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List of Tables

Table 5-1: Overview of operating and planned types of broadband mapping initiatives inEU Member States*.................................................................................................... 52

Table 5-2: Sample of the online survey..................................................................................... 55

Table 5-3: Sample of the online survey..................................................................................... 58

Table 5-4: Number of employees (FTE) and tasks outsourced by initiatives.................... 64

Table 5-5: External access to data.............................................................................................. 74

Table 5-6: Split of costs (fixed vs operational)........................................................................ 76

Table 5-7: Usage and costs of background data*.................................................................... 80

Table 5-8: Obligation and willingness to provide data............................................................ 82

Table 5-9: Overview of demand mapping initiatives............................................................... 86

Table 5-10: Investment mapping initiatives................................................................................ 87

Table 6-1: Mapping initiatives objectives and relevant types of mapping........................ 93

Table 6-2: Example broadband mapping objectives.............................................................. 94

Table 6-3: Overview of information types and attributes.................................................... 111

Table 6-4: Coverage of minimum information set (as stipulated by Article 4 of CostReduction Directive) by mapping initiatives responding to questionnaire ... 162

Table 6-5: Theoretical market scenarios.................................................................................. 165

Table 6-6: Company size groups............................................................................................... 166

Table 6-7: Costs and effort estimation....................................................................................... 176

Table 8-1: Overview of public broadband mapping initiative in Austria........................... 195

Table 8-2: Overview of public broadband mapping initiative in Belgium......................... 196

Table 8-3: Overview of questionnaire results for Belgium................................................... 197

Table 8-4: Overview of questionnaire results for Cyprus..................................................... 199

Table 8-5: Overview of public broadband mapping initiative in Croatia........................... 200

Table 8-6: Overview of questionnaire results for Croatia.................................................... 201

Table 8-7: Overview of questionnaire results for the Czech Republic............................... 203


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Table 8-8: Overview of public broadband mapping initiative.............................................. 204

Table 8-9: Overview of questionnaire results for Denmark................................................. 205

Table 8-10: Overview of public broadband mapping initiative in Estonia ........................... 207

Table 8-11: Overview of questionnaire results for Estonia.................................................... 207

Table 8-12: Overview of public broadband mapping initiative in Finland ........................... 208

Table 8-13: Overview of questionnaire results for Finland.................................................... 209

Table 8-14: Overview of public broadband mapping initiatives in France .......................... 210

Table 8-15: Overview of questionnaire results for France (ARCEP) ..................................... 211

Table 8-16: Overview of questionnaire results for France (Mission France Trs HautDbit)........................................................................................................................... 212

Table 8-17: Overview of public broadband mapping initiatives in Germany ...................... 214

Table 8-18: Overview of questionnaire results for Germany (Infrastructure Mapping)... 215

Table 8-19: Overview of questionnaire results for Germany (BMWi) .................................. 216

Table 8-20: Overview of public broadband mapping initiative in Greece ........................... 217

Table 8-20: Overview of questionnaire results for Hungary .................................................. 219

Table 8-21: Overview of public broadband mapping initiative.............................................. 220

Table 8-22: Overview of questionnaire results for Italy (Ministry) ...................................... 222

Table 8-23: Overview of questionnaire results for Italy (Infratel) ....................................... 223

Table 8-24: Overview of questionnaire results for Latvia ....................................................... 225

Table 8-25: Overview of questionnaire results for Lithuania ................................................. 227

Table 8-26: Overview of public broadband mapping initiative in Luxembourg ................. 228

Table 8-27: Overview of public broadband mapping initiative in the Netherlands ........... 230

Table 8-28: Overview of questionnaire results for the Netherlands ..................................... 231

Table 8-29: Overview of public broadband mapping initiative in Poland ............................ 232

Table 8-30: Overview of questionnaire results for Portugal .................................................. 234

Table 8-31: Overview of questionnaire results for Slovak Republic ..................................... 236

Table 8-32: Overview of public broadband mapping initiative in Slovenia ......................... 237


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Table 8-33: Overview of public broadband mapping initiatives in Spain ............................ 239

Table 8-34: Overview of questionnaire results for Spain (CNMC) ........................................ 240

Table 8-35: Overview of questionnaire results for Spain (SETSI) ........................................ 241

Table 8-36: Overview of public broadband mapping initiative in Sweden .......................... 243

Table 8-37: Overview of questionnaire results for Sweden ................................................... 244

Table 8-38: Overview of public broadband mapping initiatives in the United Kingdom .. 246

Table 8-39: Overview of questionnaire results for the United Kingdom ............................. 247

Table 8-40: Local broadband mapping initiatives in Germany.............................................. 249

Table 8-41: Overview of public broadband mapping initiative in the Basque region inSpain............................................................................................................................ 252

Table 8-42: Overview of public broadband mapping initiative in Norway .......................... 252

Table 8-43: Overview of public broadband mapping initiatives in Switzerland ................. 253

Table 8-44: Overview of questionnaire results for Switzerland (broadband map)........... 254

Table 8-45: Overview of questionnaire results for Switzerland (radio base stations)..... 255

Table 8-46: Contacted Member State departments (telecommunications)........................ 260

Table 8-47: Contacted broadband mapping initiatives (online questionnaire sent)......... 262

Table 8-48: Collected information on bandwidth speeds ........................................................ 264

Table 8-50: Matrix Mapping Initiatives Profile.......................................................................... 265

Table 8-51: What technologies are used to collect the data.................................................. 266

Table 8-52: Costs for broadband mapping initiatives (based on Review).......................... 267

Table 8-53: Broadband mapping initiatives in the EU............................................................. 268

Table 8-54: Excel file for effort estimation................................................................................ 273


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List of Figures

Figure 0-1: EU Member States (EU28) with broadband mapping initiatives in operation(green: Member State with mapping initiative, blue: no informationavailable, yellow: planned activities)...................................................................... 14

Figure 0-2: Approach: Development of a modular mapping concept.................................... 16

Figure 0-3: Modular mapping concept and interface for different mapping types.............. 17

Figure 0-4: Dimension of data conversion................................................................................... 18

Figure 0-5: Approach to detailed effort estimation.................................................................... 20

Figure 0-6: General recommendations for broadband mapping categories......................... 21

Figure 0-7: Recommended methodology choices for infrastructure mapping..................... 22

Figure 0-8: Recommended methodology choices for service mapping................................. 23

Figure 1-1: Context of the study.................................................................................................... 25

Figure 2-1: Types and sources of data for broadband mapping............................................. 26

Figure 2-2: Communication process channels and stakeholders............................................ 28

Figure 3-1: Categories of broadband mapping........................................................................... 29

Figure 3-2: Infrastructure mapping at a glance......................................................................... 31

Figure 3-3: Service mapping at a glance..................................................................................... 32

Figure 3-4: Two functions of demand mapping.......................................................................... 33

Figure 3-5: Demand mapping at a glance................................................................................... 35

Figure 3-6: Investment mapping at a glance.............................................................................. 36

Figure 3-7: Use cases for information on broadband situation............................................... 37

Figure 3-8: Areas of distinctive potential for development ...................................................... 39

Figure 3-9: Example of a broadband index................................................................................. 40

Figure 5-1: Data collection process............................................................................................... 50

Figure 5-2: EU Member States (EU28) with broadband mapping initiatives in operation(green: Member State with mapping initiative, blue: no informationavailable)...................................................................................................................... 52

Figure 5-3: Objectives of infrastructure mapping...................................................................... 58
http://s/EU_Studie_Broadbandmapping_II/6_Bearbeitung/Dokumenterstellung/Study/Final_report/Anpassungen_Szenarien/2014-06-06_EC_Smart2012-0022_Broadband-mapping-study-final_report_eEe_aw_Layout_withoutmarkups_v8.docx%23_Toc394403302http://s/EU_Studie_Broadbandmapping_II/6_Bearbeitung/Dokumenterstellung/Study/Final_report/Anpassungen_Szenarien/2014-06-06_EC_Smart2012-0022_Broadband-mapping-study-final_report_eEe_aw_Layout_withoutmarkups_v8.docx%23_Toc394403302http://s/EU_Studie_Broadbandmapping_II/6_Bearbeitung/Dokumenterstellung/Study/Final_report/Anpassungen_Szenarien/2014-06-06_EC_Smart2012-0022_Broadband-mapping-study-final_report_eEe_aw_Layout_withoutmarkups_v8.docx%23_Toc394403302http://s/EU_Studie_Broadbandmapping_II/6_Bearbeitung/Dokumenterstellung/Study/Final_report/Anpassungen_Szenarien/2014-06-06_EC_Smart2012-0022_Broadband-mapping-study-final_report_eEe_aw_Layout_withoutmarkups_v8.docx%23_Toc394403302


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Figure 5-4: Objectives of service mapping*................................................................................ 59

Figure 5-5: Target groups of mapping*....................................................................................... 60

Figure 5-6: Scatterplot number of employees vs costs*...................................................... 62

Figure 5-7: Scatterplot costs vs number of data suppliers...................................................... 63

Figure 5-8: Mapping software......................................................................................................... 65

Figure 5-9: Infrastructure mapping collected data................................................................. 67

Figure 5-10: Infrastructure mapping data suppliers.............................................................. 68

Figure 5-11:Infrastructure mapping data suppliers differentiated...................................... 68

Figure 5-12: Service mapping collected data.......................................................................... 69

Figure 5-13: Service mapping collected coverage data........................................................ 70

Figure 5-14: Service mapping bandwidths downstream....................................................... 71

Figure 5-15: Service mapping technologies............................................................................. 72

Figure 5-16: Service mapping data suppliers.......................................................................... 73

Figure 5-17:Infrastructure mapping ways for data supply................................................... 78

Figure 5-18: Service mapping ways for data supply.............................................................. 78

Figure 5-19: Infrastructure mapping data formats................................................................ 79

Figure 5-20: Service mapping data formats............................................................................ 79

Figure 5-21: Relevance of INSPIRE............................................................................................... 83

Figure 6-1: Methodology choices for broadband mapping....................................................... 91

Figure 6-2: Methodology Choice 1: operation of the mapping initiative............................... 98

Figure 6-3: Correlation between effort for and completeness of data collection .............. 100

Figure 6-4: Methodology choice 2: obligation to supply data................................................ 102

Figure 6-5: Modular mapping concept........................................................................................ 104

Figure 6-6: Methodology choice 3: selection of data sources............................................... 108

Figure 6-7: Structure of broadband information...................................................................... 109

Figure 6-8: Methodology choice 4: spatial level of resolution (data collection)................ 115


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Figure 6-9: Approximate vs aggregated collection of service data...................................... 116

Figure 6-10: Methodology choice 5: selection of data formats ............................................. 118

Figure 6-11: Methodology choice 6: selection of data supply process................................ 122

Figure 6-12: Example of drop-down menu................................................................................ 123

Figure 6-13: Example entering of data via WebGIS................................................................ 123

Figure 6-14: Methodology choice 7: update frequency.......................................................... 124

Figure 6-15: Dimensions and effort for data processing........................................................ 125

Figure 6-16: Example intersection of polygons........................................................................ 126

Figure 6-17: Methodology choice 8: data quality check options........................................... 129

Figure 6-18: Methodology choice 9: access to data................................................................ 130

Figure 6-19: Methodology choice 10: publication format....................................................... 131

Figure 6-20: Examples of dynamic map applications.............................................................. 132

Figure 6-21: WebGIS of the German broadband service mapping...................................... 133

Figure 6-22: Decision tree broadband mapping for German service mapping example. 136

Figure 6-23: Overview of expansion stages.............................................................................. 139

Figure 6-24: Technical details of expansion stage 4............................................................... 140

Figure 6-25: Organisational and technical measures.............................................................. 142

Figure 6-26: High-end and Low-end workstations................................................................... 145

Figure 6-27: Hardware small and medium workgroup............................................................ 146

Figure 6-28: NAS small and medium workgroups.................................................................... 147

Figure 6-29: Webserver requirements........................................................................................ 148

Figure 6-30: Data backup linear tape open............................................................................... 149

Figure 6-31: Security/firewall....................................................................................................... 149

Figure 6-32: Data management and validation........................................................................ 152

Figure 6-33: Databases / data managing.................................................................................. 154

Figure 6-34: Requirements conversion tools............................................................................. 155


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Figure 6-35: Requirements data exchange................................................................................ 156

Figure 6-36: Software and components for web servers........................................................ 157

Figure 6-37: Function and features data presentation and collection................................. 158

Figure 6-38: Project phases.......................................................................................................... 168

Figure 6-39: Efforts and costs scenario 1.................................................................................. 177



Figure 6-42: Efforts and costs scenario investment mapping............................................... 180

Figure 6-43: Efforts and costs scenario demand mapping..................................................... 182

Figure 7-1: First steps and thoughts for setting up broadband mapping........................... 184

Figure 7-2: Broadband mapping methodology choices........................................................... 185

Figure 7-3: Recommended methodology choices: infrastructure mapping........................ 186

Figure 7-4: Recommended methodology choices: infrastructure mappingdatabase model......................................................................................................... 188

Figure 7-5: Information to be collected regarding service mapping.................................... 189

Figure 7-6: Recommended methodology choices: service mapping.................................... 190

Figure 7-7: Recommended methodology choices: demand mapping

(need for broadband services)............................................................................... 192

Figure 7-8: Recommended methodology choices: demand mapping(quality of service).................................................................................................... 193

Figure 8-1: Screenshot of US National Broadband Map.......................................................... 257

Figure 8-2: Screenshot of broadband mapping in Australia (investment mapping)......... 258

Figure 8-3: Screenshot of broadband mapping in New Zealand........................................... 259


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Executive summary

The present document is the final report of the Broadband and infrastructure

mapping study (SMART 2012/0022)which was commissioned to a consortium of

TV Rheinland and WIK-Consult by the European Commission in June 2013.

Introduction and background of the study

The broad background for the present study is the Digital Agenda Europe, the

Broadband state aid guidelines and the proposal of the European Commission on

measures to reduce the cost of deploying high-speed electronic communications

networks. In order to support the achievement of the broadband-related

objectives of the Digital Agenda Europe, reliable and valid information on existing

infrastructure, broadband services already offered, etc. is fundamental. Indeed,it is obvious that efficient and pertinent planning and decision-making processes

need to be based on appropriate qualitative and/or quantitative information.

Likewise, such information might be able to inform citizens and authorities on the

current broadband situation. Against this backdrop, the overarching objective of

the present study is to develop a coherent and comprehensive broadband

mapping methodology that is applicable in all EU Member States and can adapt

to various mapping contexts such as service mapping or investment mapping.

The study therefore aims to enable Member States to make educated choices by

providing them with guidance about how to set up a sophisticated, accurate and

useful broadband mapping system.

In a nutshell, broadband mapping can be defined as the gathering and

presentation of data related to the deployment of broadband. Overall, we have

defined four types of broadband mapping:

(1) infrastructure mapping;

(2) service mapping;

(3) demand mapping;

(4) investment and funding mapping.

Infrastructure mapping can be defined as the detailed, georeferenced and

structured gathering, processing and visualisation of data of relevant infrastructure

(e.g. ducts/fibre/nodes suitable for the provision of electronic communications

services but also other relevant infrastructure serving energy or water supply).

Broadband service mapping describes systems that gather, analyse and

present information on the supply side of broadband service provision including

the available bandwidths (speed), technologies, operators/service providers and

quality of service in a specific area. Demand mapping focuses on gatheringinformation in a structured process on dimensions characterising the demand


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for broadband services, including broadband speeds required by citizens,

expectations regarding service quality and willingness to pay by different user

groups. Finally, investment and funding mappingaims to gather, consolidate,

process and visualise information related to financing sources and instruments for

broadband project funding.

Review of existing broadband mapping activities

An important building block of the present study is a review of existing

broadband mapping activities. To this end, we have established an inventory of

existing broadband mapping initiatives (based on desk research) and we have

gathered information directly from broadband mapping initiatives via both an

online questionnaire and on-site visits including personal expert interviews with

members of staff in the broadband mapping initiatives.

As to the inventory, we have identified 45 types of operational mapping

initiatives in the EU28. Our research shows that most1 of the Member States

currently are involved in at least one type of the aforementioned broadband

mapping approaches, whereby most of the initiatives have chosen to focus on

service mapping and infrastructure mapping.

1Bulgaria and Malta are not involved in any of the four mapping types. Latvia and Romania are in the planning

phase for a mapping initiative.


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Figure 0-1: EU Member States (EU28) with broadband mapping

initiatives in operation (green: Member State with mapping initiative, blue: no

information available, yellow: planned activities)

Our online survey and the on-site visits of broadband mapping initiatives aim tohighlight the crucial factors that determine how broadband mapping initiatives

are functioning. In total, 30 mapping initiatives have responded to the online

survey. In total, 19 initiatives stated that they collect infrastructure data, while

21 reported that they collect data on service provision. Not surprisingly, a much

smaller number reported collecting demand (four initiatives) and investment data

(three initiatives). In our analysis, we are addressing the following characteristics

of the (type of) initiatives: (1) organisational background; (2) objectives and

envisaged target groups; (3) costs associated with an initiative; (4) operational

elements (development of the mapping concept and of tools; data collection andprocessing; system operation and maintenance); (5) publication of results.

Based on the evaluation of these characteristics, we have tried to substantiate

the potential decisive elements of a comprehensive broadband mapping

methodology.

First, it is necessary to ascertain what drives the costs of mapping. The results

from the online survey show that fixed costs drive around a third of the costs for

infrastructure initiatives and about 43 % of the costs of service mapping

initiatives in the first 3 years of operation. Interestingly, expenses for softwareand hardware are more important in the case of infrastructure mapping than


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they are in the case of service mapping. The longer an initiative is in operation,

the higher the share of operational costs is likely to become. Within the first 3

years, this share amounts on average to slightly over 60 %.

Second, a major issue is which channels and data formats are used to gather data.For both infrastructure and service mapping, data supply via email is the most

common. Uploading data directly seems to be used more often by service mapping

initiatives. Other methods of data supply are also used, but not as frequently. An

additional important approach to collect service data is the derivation of this

information from already collected infrastructure data. The predominant data

formats for infrastructure mapping are digital geodata (e.g. shapefiles, kml) or as

tables or text files with a spatial reference. As regards the spatial level of supplied

data, the overwhelming numbers of infrastructure mapping initiatives ask their

data suppliers to submit data with exact or approximate location (e.g. grid cells).In the case of service mapping, the result is less clear-cut. Practically all possible

spatial resolutions play a role.

Third, we have analysed which official data i.e. background data such as

streets, administrative boundaries or households are needed as the backdrop

for mapping. In total, 17 out of the 30 responding initiatives answered the

questions on which data they use and whether they can acquire the data free of

charge or only for money on a national level or for specific regions. Official

statistics offices and cadastres can substantially facilitate the task of mappinginitiatives by supplying the data in formats that can be processed easily and free

of charge as well as free of bureaucratic challenges. The on-site visits supported

this insight.

Fourth, we are interested in the impact of an obligation to provide respective

data. Overall, 13 broadband mapping initiatives state that all data suppliers in

their country are obliged to supply data. Another 13 initiatives have at least a

partial obligation to deliver data. Usually, the obligation is aimed at incumbents

as well as the most important players in the market. Only very few initiatives

offer an incentive. If they do, it tends to be additional data for the data suppliers.

The willingness to supply data on a voluntary basis varies between the different

initiatives. A small trend can be observed that the willingness to provide service

data is higher than for infrastructure data.

Fifth, we have asked to what extent INSPIRE is relevant. In this regard, the

results of the online survey show that for the majority of the mapping initiatives,

the INSPIRE Directive is not or only partially relevant. However, INSPIRE might

have potential relevance as it can provide a framework for gathering spatial data

on general infrastructure such as roads or tracks. In sum, the development ofthe methodology later in this study will take INSPIRE into account.


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Broadband mapping methodology

The insight from the review of existing broadband mapping initiatives is used to

compile the breadth of methodology choices that one faces when setting up an

initiative to map broadband infrastructure, service, demand or investment or acombination of those. In sum, the careful planning and setting of the objectives

of the initiative appears to be a key success factor as well as the single most

important issue that influences almost all methodology choices that follow. In

fact, all methodology choices are heavily intertwined as the following paragraphs

highlight. The case study on the BMWi Breitbandatlas2further illustrates this in

the present study.

Figure 0-2: Approach: Development of a modular mapping concept

There is some overlap regarding the three major objectives for a mapping

initiative ((1) To create insight into the current state of broadband availability;

(2) To coordinate broadband deployment measures; (3) To reduce costs of

broadband deployment). So, for instance, while service mapping is clearly best

suited for achieving the first objective, infrastructure and/or demand mapping

may also offer some tentative insight or may add additional information to

service mapping. Ideally, of course, all four types of broadband mapping would

offer a complete picture to all stakeholders for any purpose. In practice,

however, it was identified in the review of existing broadband mapping initiatives

that they rarely all exist side by side in any one country.

Besides the type of mapping, the objective also directly influences the degree of

completeness of the mapping that ought to be achieved, which in turn may mean

it is a legally binding obligation to supply data. These choices may necessitate

that a National Regulatory Authority (NRA) or a Ministry is in charge of the

2German Broadband Mapping: www.breitbandatlas.de.


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mapping initiative and not the operator of the initiative. It should be noted that

there are reasons to outsource the actual operation of the mapping.

One issue that emerged from the review of existing broadband mapping

initiatives as particularly influential is the structure of the telecommunicationsmarket in the specific country. Thus, it is not surprising that this aspect also has

an impact on methodology choices, especially as, at least in theory, setting up

infrastructure mapping appears to be easier when there is only a small number

of large operators/infrastructure owners. In practice there might be less need for

mapping as the few infrastructure owners already have good knowledge about

where infrastructure is available (or at least they know who to contact). As

regards the practical organisation of data collection and processing, the structure

of the telecommunications market has an obvious impact on complexity and

potential costs for the initiative.

Figure 0-3: Modular mapping concept and interface for different mapping types

The operational process of a mapping initiative, which is structured for thepurpose of this study into (1) data collection, (2) data processing and (3) data

publication, has various methodologies to choose from. For most of these

choices, the selected type of broadband mapping limits the options to a

manageable selection. It is important to note that some attributes can be

considered minimum information if one seeks to concur with certain regulatory

frameworks on the European level.

The choice of spatial level of resolution has an impact on the data suppliers as

well as on the initiative itself regarding the effort that is needed to process the

data. While exact geocoded points and lines data offers the best quality and


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potentially the most valuable insight for infrastructure mapping, it might be

difficult for some (in particular smaller) data suppliers to deliver this kind of data

due to a lack of GIS3 skills. Such small operators might be supported with a

WebGIS application to enter their data. In sum, the choice of spatial level has to

reflect the structure of the telecommunications market taking into account the

capabilities of most of the data providers, the objective of the initiative regarding

the spatial level for publication, the budget available to process the data and the

possibility to offer individualised ways of data supply. In general, it has emerged

from the review of existing initiatives that address-level raw data involves the

smallest (technical) challenge for all parties involved and might be a compromise

for small stakeholders.

The fit of the data collection process and requirements will determine the effort

needed to process the data within the initiative. The major function of dataprocessing is to verify the quality of the data and to convert data that does not

immediately match the requirements for publication, which given that normally

not all data is published due to confidentiality agreements refers to all supplied

data.

Figure 0-4: Dimension of data conversion

Quality checks should at least be conducted to verify the general plausibility of

the data. They data enhanced by additional manual checks as well as user

feedback. It should, however, be noted that it is important to strike a balance

between data accuracy and effort as the incremental increase in accuracy can be

expected to diminish with increasing effort. Integrating additional spatial data is

another important building block of data processing. If the initiative chooses to

3Geo Information System


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publish maps or interactive maps of its results, then at least some additional

data has to be integrated such as administrative boundaries and streets for

instance.

As regards data publication, the main decision refers to who will be grantedaccess to which data. Again, the objective of the initiative may limit the

initiatives number ofoptions here. The spatial level of publication is limited by

the decision taken earlier on the spatial level of data collection. More often than

not, data is published on a less detailed spatial level than the level at which it

has been collected due to confidentiality agreements. Furthermore, a variety of

publication formats exists. Today, a dynamic web application seems to be the

most promising publication format to gain impact and attention from a wide

range of audiences. If this is the envisaged outcome of the initiatives work, then

logically the choices on data collection and processing must match this outcome,i.e. these choices enable the data to be presented in a dynamic map format.

In light of the vast amount of methodology options, the question arises about

how these methodology options relate to the political and regulatory context for

broadband mapping. This context is characterised by a number of policy

dimensions, covering broadband deployment goals (Digital Agenda for Europe),

supportive measures (Cost Reduction Directive, Broadband state aid guidelines,

Universal Service Directive) and harmonisation in Europe (Connected

Continent/Single Market Regulation proposal, INSPIRE).It is essential to note that none of the regulatory sources mentioned specifies a

broadband mapping methodology. The state aid guidelines constitute the only

source that explicitly demands a mapping exercise. However, even though the

guidelines require a mapping exercise, they do not specify a methodology for

such a broadband mapping exercise. The mention of a mapping exercise is one

of the criteria to be checked for state aid conformity, not how the mapping

exercise in question is conducted.

From a strict viewpoint, broadband mapping can therefore be seen as

methodologically unregulated at this point in time. In more practical terms,

however, it shall be noted that the review among European mapping initiatives

showed clearly that while there are certainly methodological differences

mapping initiatives typically apply comparable methods and that common

practices are emerging.

While direct regulatory impact on the mapping methodology was found to be

very limited if not absent there are a few aspects of a general mapping

methodology that might be affected by regulatory and political considerations.

These aspects affect the overall objectives of broadband mapping, the choice ofelements to be mapped and the existence of any obligation to supply data.


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Effort and costs of broadband mapping

The effort related to the developed mapping methodologies varies due to the

various methodology choices. Hence, within the scope of this study the level of

effort has been estimated using a bottom-up approach by defining effort forvarious items in the different project phases depending on different market

surroundings and methodology choices. Potential effort on the part of the

operators is included, too. In order to support initiatives intending to map

broadband coverage, a tool has been developed that can be used to estimate

effort based on different market surroundings as well as methodology choices. In

the case of mapping, it has to be taken into account that a successful broadband

mapping initiative needs to find a good balance between the extent and level of

detail of mapping on the one hand and the necessary effort on the other hand.

One option to keep the effort for mapping within reasonable bounds could be thegeneration of synergies by carrying out different kinds of mapping by one

initiative in parallel. As regards the technical specification of a mapping system, a

similar modular approach has been carried out by describing the different tiers of

a mapping system and defining their technical components for different

expansion stages.

Figure 0-5: Approach to detailed effort estimation


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Recommendations for broadband mapping methodology

The core result of the study is the modular mapping concept which comprises all

four kinds of broadband mapping. Each developed methodology choice consists

of two to four options to implement broadband mapping systems. Based on theresults of the review section, every authority focusing on the set-up of a

broadband mapping initiative can choose the best-fit option depending on their

requirements.

Figure 0-6: General recommendations for broadband mapping categories

The aim of infrastructure mappingis to reduce costs of broadband deployment

and to coordinate broadband deployment measures. The authority in chargeshould be the NRA in cooperation with external expertise for data processing as

well as project management. To ensure legal liability and data contribution, an

obligation for the telecommunication infrastructure owner should be

implemented. Details, scope and content of the obligation shall be defined based

on the requirements of each Member State.

For the data source, infrastructure mapping shall focus on telecommunication

companies in the first step. In terms of information to be collected, the initiative

shall focus on location and route, infrastructure type, current use and contact

point.

For infrastructure mapping, exact points and lines are needed in terms of spatial

resolution.

The access to data shall be set up with restricted access and dedicated rights and

user management. The access to the data shall be on a local level to reduce data

misuse.


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Figure 0-7: Recommended methodology choices for infrastructure mapping

Service mappingcan be conducted to create an insight into the current state of

broadband availability. The authority in charge should be the NRA in cooperation

with external expertise for data processing as well as project management.

In terms of information to be collected, the initiative shall focus on supplier

name, type of technology and bandwidth downstream. Additional information

required includes bandwidth upstream, data volume usage, QoS4 and take-up

and shall be collected depending on additional requirements only.

For spatial resolution, we suggest using a grid cell raster to aggregate

information. Information shall therefore be delivered as exact or approximate

points. Data delivery of addresses covered is the most suitable methodology for

fixed networks. For wireless networks, aggregation and approximation is

sufficient.

The preferred data formats are geodata vector and data with spatial reference.The initiative shall offer a wide range of data supply options such as email,

upload server, and data entry via a web portal and web services.

4Quality of Service


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Demand mappinghas to be divided into two mapping approaches:

1. the mapping of demand in terms of need for broadband services based onundersupply or future needs;

2. the mapping of quality of service such as delivered bandwidth.

The current Broadband State Aid Guidelines do not require demand mapping in

particular to be undertaken in order to demonstrate market failure in a given

area. However, the Guidelines also do not exclude any kind of method of

identifying market failure, which would need to be done in addition to the

existing method of submission of market operators plans for the next three

years. In this context, once demand mapping produces actual results, there

could be scope for mapping of demand according to definition (1) to be combined

with the state aid guidelines, which would represent one element of justifying

state aid measures. In particular, demand mapping could provide a clearer view

of: a) the types of areas (white, grey or black) under examination for state aid

(level of demand, range of price to be paid by willing consumers and required

technical characteristics); b) the identification of market failure; and c) the

identification of changes required (e.g. whether indeed there is demand in white

areas or whether there is unsatisfied demand in grey/black areas). We suggest

conducting such demand mapping on a regional level in correlation with state aidmeasures and their support. Methodology wise, data can be collected via a web

Figure 0-8: Recommended methodology choices for service mapping


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interface as well as paper and pen depending on the resources of the regional

initiative. The data can be processed on the spatial resolution information with

spatial referenceand can be aggregated on a municipal level.

In terms of mapping of quality of service, there are different measures toanalyse and map for broadband services. It has to be stated that the study

provides recommendations on how to handle and process gathered information

on quality of service; however, the study does not include any recommendations

on how quality of service shall be measured.

Generally, investment mappingcontains elements of infrastructure mapping as

well as service mapping in different data resolutions and information to be

collected. Therefore, we suggest implementing any information on rolled-out

investments in infrastructure and service mapping.

In terms of planned investments, it has to be split into funded and private

investments. We suggest keeping the documentation (mapping) of planned

private investments on a regional level based on the state aid guidelines. As

already mentioned above, the state aid guidelines describe measures which help

inform relevant public authorities about future investments.


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1 Introduction

In order to achieve the EU broadband objectives of the Digital Agenda Europe,

reliable and valid data on existing infrastructure and broadband services already

offered is fundamental. Such data can support planning and decision-makingprocesses as well as inform citizens and authorities on the current broadband

situation. Overall, suitable mapping of broadband infrastructure and other related

data will help to identify gaps in the broadband coverage and penetration in the

EU, to identify suitable areas of investment, and to cut investment costs.

Additionally, it will avoid duplication of financing as subsidies can be allocated to

areas truly affected by market failure.

Figure 1-1: Context of the study

Broadband and infrastructure mapping in general is a very heterogeneous field

with different approaches of mapping as well as diverse challenges regarding

regulations and data security aspects both within the EU and within Member

States. Providing appropriate data and ensuring data accuracy vis--vispredefined levels of detail and data are crucial to setting up a reliable and usable

broadband and infrastructure mapping system.

Both in EU Member States and elsewhere, broadband-related mapping initiatives

have already been established to some extent. Notwithstanding their overall aim

to support effectively the deployment of high-speed broadband internet, the

initiatives reflect a range of different methodologies, data and implementation.

In June 2013 the European Commission Directorate-General for

Communications Networks, Content and Technology commissioned a studyfocusing on a review of current broadband mapping initiatives in the EU and the


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development of appropriate methodologies (SMART 2012/0022).This document is

the first interim report.

2 Objectives

The study is conducted in the context of the EC proposal for a Regulation of the

European Parliament and of the Council on measures to reduce the cost of

deploying high-speed electronic communications networks.5

The main objective of the study is the definition and development of one or more

appropriate methodologies/templates aiming for a sophisticated broadband and

infrastructure mapping system applicable in all Member States which facilitates

the roll-out of broadband networks. The methodology is supposed to enable

relevant authorities in the EU to map infrastructure and broadband services aswell as demand for and investment in broadband infrastructure in a practical and

efficient manner. It does not aim to build an overall EU database nor does it

intend to oblige Member States to set up respective broadband mapping

initiatives. Rather, the results of the study will provide Member States with

guidance as to how to set up a sophisticated, accurate and useful broadband

mapping system, encompassing the categories of infrastructure, services,

demand and investment.

Figure 2-1: Types and sources of data for broadband mapping

5 http://ec.europa.eu/digital-agenda/en/news/proposal-regulation-european-parliament-and-council-measures-

reduce-cost-deploying-high-speed.


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Public national broadband mapping initiatives appear to be similar in terms of the

conditions and challenges they face in relation to the objective of the present

study, i.e. to develop a mapping methodology applicable in all Member States.

Consequently, the review, which constitutes an integral part of the study,

concentrates on public national mapping initiatives in EU Member States.

Additionally, major public mapping initiatives outside the EU will be considered

such as in the United States and Switzerland. Regional and private mapping

initiatives are not going to be considered unless they offer unique and specific

insight from which methodology development is likely to profit. The review aims

to identify compatible methodologies to represent data for all types of mapping

within a coherent visual and interactive representation frame.

The study concentrates on six groups of stakeholders. The main focus is on

existing national broadband mapping initiatives mandated or organised by publicauthorities. These public authorities tend to be either NRAs or Ministries. The

European Commission, in particular DG CONNECT, is involved in this study in the

role of the commissioning party. Moreover, the European Commission may also

reflect viewpoints by interested DGs and by related initiatives, especially

INSPIRE, which is establishing infrastructure for spatial information in Europe.6

Finally, there are other stakeholders such as operators, local authorities and

consumers that have to be considered within the scope of the present study.

Consequently, one major objective of the study is also an extensive consultationprocess with all stakeholder groups mentioned above. European Commission

officials were informed about the progress and results of the study in steering

committee meetings as well as by participating in the consultation workshop in

January 2014. This workshop primarily aimed at national and regional broadband

mapping initiatives. At the workshop, national mapping initiatives and other

stakeholders had the opportunity to challenge the methodology developed in this

study, which was published to the community of stakeholders through the

projects website at least 10 days prior to the workshop. Furthermore, the data

collection process can be considered a continuous exchange of opinions and ideas

between the study team and broadband mapping initiatives. All other

stakeholders had the opportunity to partake in the process of the study through

a dedicated website.7

6 http://inspire.jrc.ec.europa.eu/.

7 http://www.broadbandmapping.eu/.


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Figure 2-2: Communication process channels and stakeholders

The final results of the study will again be presented at an open workshop

involving all six groups of stakeholder described above. However, the purpose of

this final workshop is to inform all relevant stakeholders rather than challenge

the methodology again. Again the final report will be published 10 days prior to

the workshop on the projects website. Next to the presentation of study results,

it is planned to include some best practice presentations by national broadband

mapping initiatives.


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3 Definition four types of broadband mapping

Broadband mapping can be defined as the gathering and presentation of data

related to the deployment of broadband. This can be data on the deployment of

broadband infrastructure itself, i.e. copper or fibre cable, and it can also be

related to infrastructure, such as ducts and pipes. Additionally, broadband

mapping needs to consider the actual supply of and demand for broadband

services as well as existing and (potentially) planned investments in broadband

infrastructure. These facets have led to the definition of four types of broadband

mapping used throughout the present study:

infrastructure mapping;

investment mapping;

service mapping;

demand mapping.

Figure 3-1 provides a brief overview of the four types of broadband identified for

this study. The following sections describe the four types in more detail.

Figure 3-1: Categories of broadband mapping

Although the categories are linked to the word mapping, broadband mapping is

not only linked to geo-referential visualisation; broadband mapping comprises

the entire process of data collection. Although publicly available maps and

statistics are the most visible outcomes of broadband mapping in EU Member

States, many more activities can be observed.


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Therefore, broadband mapping has to be divided into:

public broadband mapping;

non-public broadband mapping.

From a technical point of view, it may be possible to collect detailed data such asbroadband speeds, noise margins and used data volume for each premises. It

might, however, not be feasible to publish this data for instance by means of a

detailed (i.e. non-aggregated) broadband service map due to privacy and/or

confidentiality concerns. As the review among European mapping initiatives as

well as on-site visits indicates (cf. Section5.2.2), it is not unusual for a mapping

initiative to collect more data or data in a finer granular resolution than what is

published. This has to be taken into account in the definition of mapping

categories and initiatives.

3.1 Infrastructure mapping

For the purpose of this study, infrastructure mapping is defined as the detailed,

georeferenced and structured gathering, processing and visualisation of data of

relevant infrastructure with a focus on creating transparent access to relevant

information to dedicated users and user groups in order to gain synergy effects

in the further deployment of broadband networks.


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Figure 3-2: Infrastructure mapping at a glance

In addition to the capturing of telecommunication infrastructure like ducts, cable

routes or locations of radio base stations, other infrastructure built by utilities or

construction companies suitable for hosting elements of broadband networks

should be involved.

3.2 Broadband service mapping

The concept of broadband service mapping describes systems that gather,

analyse and present supply of broadband services including terms of available

bandwidth (speed), technologies, service operators and quality of service. The

main purpose is to inform the general public as well as broadband shareholders

who additionally derive important information necessary for the planning and

decision-making process.

While broadband service mapping initiatives on a national level are in most cases

driven by the respective NRA or a Ministry (see Section 5.2.2 for more details),

Facilitation of roll-out of broadband networks by generation of synergies andreduction of roll-out costs.

Aims

Investors / operators

Public authorities: energy, transport, telecommunication

Consultants

Target group

Telecommunication infrastructure (ducts/fibre/nodes)

Integration of other relevant infrastructure data like energy or water supply

Construction works

What can be mapped?

Owners of infrastructure

Open data projects

Public authorities

Sources of data

Vector data (points, lines)

Visualisation


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there are also private initiatives engaged in broadband service mapping. An

example of such a private initiative is the mapping effort by the consultancy and

market research firm Point Topic. Point Topic publishes and regularly updates the

so-called Broadband Competition Map,8 which depicts broadband service

coverage (in a technology-dependent manner) in the EU28. Point Topic also

publishes detailed country profiles with information on broadband service

coverage.

Figure 3-3: Service mapping at a glance

8Point Topic: Broadband Competition Map of Europe. See: http://point-topic.com/services/the-broadband-

competition-map-of-europe-2/.

Knowledge of the current national broadband situation as well as monitoring ofprogress in broadband roll-out

Identification of spots affected by market failure for allocation of state aid

Comparison with other member states

Aims

Residential/business user

Public authorities: telecommunication, IT, economics

Consultants

Investors/operators

Target group

Bandwidth download/upload

Broadband technologies

technical attributes (e.g. noise margin)

Operator/provider name

Information about price rate (ARPU)

Quality of service

Take-up rate

What can be mapped?

Broadband operators

Measurements

User messages

Sources of data

NUTS (LAU) layer or grid

Points (addresses) and lines (street segments)

Visualisation


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3.3 Broadband demand mapping

Demand mapping within the scope of this study comprises two distinct functions.

The first function is the collection of the individual demand of a user for

broadband products, bandwidths and technologies. The second function is themeasurement (using hard- or software) of effectively available bandwidths of a

users access and the qualityof this, for example the permanent availability of

the service.

Figure 3-4: Two functions of demand mapping

As part of the first function of demand, insight into the actual demand for

broadband services is created. Such insight is likely to be useful in the funding

and deploying of broadband networks. Proof of existing undersupply and/or

demand for (higher) bandwidths commonly initiate the planning process for

broadband deployment. Actual deployment still depends, of course, on the

specific business case, i.e. the economic potential of the specific area. If

economic potential is lacking in an area where there is undersupply or demand

for a better connection, there could be scope for state aid funding schemes to

offer support. Demand mapping could also be seen as a tool to facilitate state aid

distribution and to avoid misdirected investment.9

Demand mapping often refers to primary data collection methods to acquire thesought-after information. Information on demand is essential to obtain an

overview about objective evidence in case of undersupply of broadband services

and therefore could be seen as a planning parameter for assignment of financial

means, subsidies and, in particular, state aid. In theory, demand mapping

portals on the web may also serve as a means to aggregate demand and

potentially make a business case for broadband infrastructure deployment in

areas where there are white or grey spots. Demand mapping could be useful to

identify the level of demand (percentage of population in an area requiring9For more information on this topic see Chapter4.

products,bandwidths,technologies,

availability,...

1. User demandfor...

2. Qualityof existing...


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broadband service), the applicable price range of demand, and the relevant set

of technical characteristics (e.g. speed) required by existing or potential

customers of the broadband service. Demand mapping could therefore relate

closely to questions of investment mapping, in particular, with respect to state

aid and determining white, grey and black areas. So far, the absence of

broadband infrastructure/service was sufficient to document market failure;

considering demand for broadband service in an identified white area in addition

to this might improve the assessment of market failure in the future. Similar

considerations could hold for grey and black areas, namely to check whether

there is any unsatisfied demand in such areas. In practice, however, it is

questionable whether this role should be taken by an initiative that is commonly

contracted by the state, e.g. through the respective NRA or a Ministry. First and

foremost, it is the task of a region with dedicated demand for broadband serviceto investigate and negotiate the business case with potential network operators.

The second function of demand mapping, i.e. monitoring the actual quality, e.g.

speed of broadband connection, mainly serves to control the telecommunications

market and its stakeholders. Thus, this data is likely to support the work of

NRAs. However, consumers also appreciate such speed test tools as they enable

them to learn about their actual connection speed and thus make informed

decisions on selecting an Internet Service Provider (ISP).


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Figure 3-5: Demand mapping at a glance

Identification of areas with potential for commercial roll-outFacilitation of allocation of state aid (demand mapping)

Surveillance of quality of existing services (no primary study aim)

Identification of areas with low take-up ratesstimulation of demand (noprimary study aim)

Aims

Investors/operators

Public authorities

Consultants


Target group

Level of demand for broadband service (bandwidths/technologies)

Information on quality of existing services

Technical characteristics reqired by existing/potential customers

Take-up rates

Willingness to pay (price range of demand)

Digital literacy (availability and affinity of IT/computer)

Market potential for broadband roll-out

What can be mapped?

Measures (e.g. speed tests)

User messages

Analysis of sociodemographic factors to designate areas with market potential

Public authorities

Sources of data


Points (addresses) and lines (street segments)

Visualisation


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3.4 Investment and funding mapping

Figure 3-6: Investment mapping at a glance

Investment and funding mapping describes the gathering, consolidation,processing and visualisation of information related to activities of financing,

investment or funding of broadband projects. The rationale behind this fourth

type of broadband mapping is to inform relevant stakeholders about

assignments, usage and efficiency of past, current and future investments in

broadband and broadband-related infrastructure.

Focus on funding and state aid

Visualisation of amount of funding and regions funded

Aims

Public authorities


Investors/operators

Target group

Funded regions (on different scales)

Investment costs

Investment planning (unlikely to be gathered)

Regions affected by market failure

Regions with progress in broadband availability

Regions with market analysis already carried out concerning allocation of funding

What can be mapped?

Key aspects defined in state aid framework that are required from EU on fundedprojects

Which attributes are important?

Funding authorities

Broadband operators/investors

Infrastructure/service mapping for progress regions

Service mapping/demand mapping for market failure

Sources of data


Visualisation


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3.5 Use cases and further exploitation scenarios

All four types of mapping defined previously serve important functions for

policymakers, businesses as well as society in general. Figure 3-7 provides an

overview of standard as well as more sophisticated use cases and exploitationscenarios for information that documents the broadband situation in an area.

These use cases will then be introduced and discussed subsequently.

Figure 3-7: Use cases for information on broadband situation

Synergies and cost reduction

The usage of existing infrastructure for broadband deployment can reduce costs

significantly. For that purpose, knowledge on the location of available, i.e.

existing, infrastructure is essential. The provision of information via a single

information point, such as an infrastructure mapping service, is supposed to help

broadband deployment by facilitating co-usage and co-deployment of broadband

infrastructure and therefore lead to reduced deployment costs.

Identification of undersupplied areas

The availability of broadband infrastructure and related services can be used to

identify undersupplied areas in a country or region. Based on information about

the location of undersupplied areas, appropriate measures can be undertaken by

competent authorities or private actors aiming to supply these areas withbroadband. For instance, an undersupplied municipality may locate other

Broadbandsituation

Synergies andcost reduction

Identification

ofundersupplied

areas

Spatialallocation of

state aid

Provision ofinformation

EU-widestatistical

scores

Investmentmonitoring

Furtheranalysis


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undersupplied municipalities in the vicinity and cooperate with them. In addition,

operating companies can be identified and directly contacted regarding an

evaluation of possibilities for broadband deployment in the respective area.

Spatial allocation of state aid

For undersupplied areas, a potential means to provide incentive to broadband

deployment in the respective area may be state aid. Since state aid is an

instrument that is intended to be used only as a complementary measure to

private investment, it is important to show that an area is indeed uncovered and

that state aid does not lead to significant market distortions. Broadband mapping

determines the effective instrument to address this information need.

Provision of information

Broadband mapping initiatives are frequently required to provide information on

various broadband topics. An adequate response to information requests lies

within an initiatives own interest as it aims to increase the acceptance of

mapping as well as to avoid the publication of inaccurate or even incorrect data.

In some cases, authorities may even be obliged to respond to information

requests, e.g. parliamentary questions. Accordingly, the main inquirers are

authorities or press. Questions are typically related to different regional scales

and are supposed to be prepared individually. In particular, press inquiries areoften accompanied by individual requirements regarding, for example, the format

and design of broadband availability maps.

EU-wide statistical scores

The monitoring of progress towards the aims of the Digital Agenda requires a

European-wide comparable statistical basis on the broadband situation in every

Member State. The higher the quality of this data basis (and of the available data

basis in every single Member State), the more accurate the reality may be

represented.

Investment monitoring

If an authority allocates state aid or funds for broadband deployment,

investment monitoring may become relevant in order to determine resulting

effects. Such monitoring may, for instance, document the economic benefit of

funding programmes as well as of single projects. Data on newly deployed

infrastructure or progress made in terms of broadband service availability is

typically used for this purpose.


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Further analysis

In addition to standard analysis, more sophisticated analysis can be carried out

using mapped broadband data. Three examples are briefly described below. For

each presented case, a mapping initiative is likely to depend on third-partyexpertise.

Broadband areas of distinctive potential: Areas of distinctive potential for

development may be identified by combining data on broadband availability with

additional data like household distribution. An example of such areas determined

on a basis of 250-metre grid cells is shown in Figure 3-8.In this case, a special

algorithm was developed for determining and aggregating areas.

Figure 3-8: Areas of distinctive potential for development

Spatial key indicating factors: Spatial key indicating factors (e.g. a broadband

index) can be used to show areas in which deployment of broadband probablywill be carried out by market players. These key indicators can also be derived

using broadband and additional data. Such analysis may, for instance, enable

estimations on the prospective progress of broadband availability.

Figure 3-9 shows an example broadband index using information from a number

of relevant indicators, such as number of operators, available technologies and

maximum bandwidth, combined with the spatial characteristics (e.g. rural,

suburban and urban).


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Figure 3-9: Example of a broadband index

Methodology of cost estimations: Data on existing infrastructure can be used for

the estimation of costs related to future expansion of broadband, enabling costs,

for example for fibre-based Next Generation Access (NGA), to be estimated. In

order to estimate costs, the deployment of a broadband network has to bemodulated. This is carried out based on georeferenced infrastructure, addresses

and streets using routing functionality and specialised optimisation algorithms.In

addition to cost estimations, the resulting data can be used for the creation of a

master plan, aiming to define corridors for the useful installation of ductwork or

broadband-related infrastructure.

Number ofoperators

Occuringtechnologies

Max. bandwidthSpatial

characteristics

Broadband index


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4 Political and regulatory background of broadband and

infrastructure mapping

The previous chapter introduced relevant use cases and exploitation scenarios forbroadband mapping. A large part of the scenarios reflects use cases in which

broadband mapping constitutes an essential instrument in relation to key policy

objectives and their level of achievement. This is due to the fact that mapping

often provides the relevant tool to significantly increase transparency for public

and private stakeholders alike by visualising the degree to which underlying

broadband and infrastructure policy objectives have been implemented. In doing

so, mapping reveals its potential to foster the process of strengthened policy

objective achievements.

Accordingly, this section provides insight into policies with strong relevance to

mapping. It outlines objectives and requirements raised, and it details

infrastructure mapping as the key driver to reducing costs. It concludes with an

assessment of potential effects on broadband infrastructure, investment and

competition in relation to recent regulatory proposals towards a European single

market.

Infrastructure and broadband service mapping

Motivation for infrastructure and broadband service mapping emerges in thecontext of policy objectives in relation to many socio-economic dimensions.

Examples include an inclusive society, strong participation, full transparency,

prosperity by competitive businesses and efficient governmental processes. Such

dimensions provide rationale for national, European and international

communications policies.

Given the enormous weight that is allocated to infrastructure mapping in

communications policies, the need for open information on facilities or property

and ongoing and planned public works10and theavailability of transparent, up-

to-date and comparable information on offers and services11 has been

recognised in the European Union regulatory framework for e-communications

10 Recital 43 of DIRECTIVE 2009/140/EC OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL of

25 November 2009 amending Directives 2002/21/EC on a common regulatory framework for electroniccommunications networks and services, 2002/19/EC on access to, and interconnection of, electronic

communications networks and associated facilities, and 2002/20/EC on the authorisation of electronic

communications networks and services; OJ L 337, 18.12.2009, p. 37.11

Recital 32 of DIRECTIVE 2009/136/EC OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL of

25 November 2009 amending Directive 2002/22/EC on universal service and users rights relating to

electronic communications networks and services, Directive 2002/58/EC concerning the processing of

personal data and the protection of privacy in the electronic communications sector and Regulation (EC) No2006/2004 on cooperation between national authorities responsible for the enforcement of consumer

protection laws; OJ L 337, 18.12.2009, p. 11.


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(2009). The e-communications framework provides that NRAs may request

electronic communications providers to deliver relevant information so that a

detailed inventory of the nature, availability and geographical location of the

facilities12 becomes feasible, potentially making the respective information

available to third parties.

In a directly comparable way, strong motivation for infrastructure mapping is

outlined in European broadband policies. Key examples include the Broadband

Communication (2010),13the NGA Recommendation (2010),14and the Directive

on Cost Reduction of Broadband Deployment (2014).15

Standards-based data models for infrastructure mapping

Infrastructure mapping requires the appropriate data models to be in place.

Data specifications such as those developed within the frame of INSPIRE form

the essential basis.

INSPIRE stands for Infrastructure for Spatial Information in the European

Community. It refers to the respective INSPIRE Directive16that came into force

in 2007. The Directive aims to develop a spatial data infrastructure for Europe

based on common Implementing Rules (IR), e.g. common metadata and data

specifications. Specifications are planned for 34 different types called themes

of spatial data which have been selected primarily to support environmentalapplications. In order to support a phased roadmap, these 34 themes have been

grouped in three so-called annexes that are implemented sequentially. Metadata

for themes related to annex III have been available since the end of 2013, while

the according data sets are planned to be available around two years later.

Annex III is of specific interest to this study, in particular to infrastructure

mapping, since it covers the theme of utility and governmental services. The

12 Article 12 of DIRECTIVE 2002/21/EC OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL of

7 March 2002 on a common regulatory framework for electronic communications networks and services

(Framework Directive) as amended by Directive 2009/140/EC (**) and Regulation 544/2009 (***)(unofficially consolidated version); OJ L 108, 24.04.2002, p. 33.

13 Communication from the Commission to the European Parliament, the Council, the European Economic and

Social Committee and the Committee of the Regions, European broadband: investing in digitally driven

growth, COM (2010) 472 final.14

Commission Recommendation of 20 September 2010 on regulated access to Next Generation Access

Networks (NGA); (Text with EEA relevance) (2010/572/EU).15

European Parliament: DIRECTIVE 2014//EU OF THE EUROPEAN PARLIAMENT AND OF THE

COUNCIL on measures to reduce the cost of deploying high-speed electronic communications networks.

Amendments by the European Parliament to the Commission proposal, 8 April 2014, Available at

http

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