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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_Toc3944033027/26/2019 Broadband Study
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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 6-40: Efforts and costs scenario 2.................................................................................. 178
Figure 6-41: Efforts and costs scenario 3.................................................................................. 179
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
Residential/business user
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
NUTS (LAU) layer or grid
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
Residential/business user
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
NUTS (LAU) layer or grid
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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