数字化频谱公共政策文件

Public Policy Paper December 2025 The GSMA is a global organisation unifying the mobileecosystem to discover, develop and deliver innovationfoundational to positive business environmentsand societal change. Our vision is to unlock thefull power of connectivity so that people, industryand society thrive. Representing mobile operatorsand organisations across the mobile ecosystemand adjacent industries, the GSMA delivers for itsmembers across three broad pillars: Connectivity forGood, Industry Services and Solutions, and Outreach.This activity includes advancing policy, tacklingtoday’s biggest societal challenges, underpinning thetechnology and interoperability that make mobile work,and providing the world’s largest platform to convenethe mobile ecosystem at the MWC and M360 series ofevents. We invite you to find out more atgsma.com Contents Executive Summary21. Digitalisation is critical to development52. Local networks are delivered by several spectrum mechanisms73. Well-designed licence conditions are the least intrusive mechanism84. Set-asides do not enable more local networks105. Spectrum sharing may be used if necessary116. Regulators should ensure spectrum is availableoverall in harmonised bands137. mmWave have a role to play14 Executive Summary Background Terminology around networks for localised use – suchas a factory floor, a smart city, a campus network, aprivate network, or a non-public network – varieswidely as their uses intersect. For example, whilemost private enterprise and government networksare, by nature, local, they often use public, nationalspectrum. Additionally, licensed spectrum used toprovide connectivity for consumers may be used for alocal tailored deployment (e.g. a mmWave network ina sports stadium). There are numerous applications forwide-area enterprise networks such as utilities grids orrailway connectivity that do not fit the ‘local’ tag, whilelocalised networks take a great many forms. This document focuses on the specific spectrummechanisms needed to deliver tailored localconnectivity. These mechanisms are consistent,regardless of whether the network ultimately servesan enterprise, a government initiative, a campus, or alocal telecoms provider. However, the type of spectrumaccess used to enable connectivity is distinct from thepurpose or user of the network itself. For simplicity, we refer to these collectively as ‘localnetworks’, but the spectrum policies that underpinthem all have one purpose: to deliver digitalisation ofgovernment, business and society. Local networks will also need to meet a number ofspecific network requirements – several of whichmay apply to any single enterprise or public service.Services that require very low latencies and high data rates have different spectrum requirements too (e.g.NB-IoT). As with all mobile networks, low, mid- and highbands will be used depending on the scenario. Public network operators provide 5G solutions throughend-to-end offerings, including access to shared publicinfrastructure and operator-managed spectrum. Industryusers may require solutions tailored to their individualneeds and such solutions may come from a nationalmobile operator or a specialised service provider. Whatever the solution, the mechanisms thatgovernments and regulators use to connect localnetworks is crucial to paving the way for developmentacross industries. Network Slicing:“Network slicing is a concept of running multiple logically customized networks on a commoninfrastructure, for different customers in different industries and for different required functions, based onan agreed Service Level Agreement (SLA). Network slicing allows mobile operators in the 5G era to providecustomized network services to their customers using a common network infrastructure.”1 Policy Positions 1. Digitalisation is critical to development 5. Spectrum sharing may be used if necessary The digitalisation of industry and society is a priority forevery country. It is a tool both for governments as theypursue economic growth and public sector efficiency,and for enterprises that seek to enhance productivityand streamline their businesses. Spectrum sharing frameworks are often seen byregulators as being an attractive solution, but theyadversely impact network operators. However,spectrum sharing may be used in cases where noalternatives exist, especially where incumbent use isoccasional or limited geographically. 2. Local networks are delivered by severalspectrum mechanisms 6. Regulators should ensure spectrum isavailable overall in harmonised bands The use of public spectrum resources must benefitbusinesses and consumers simultaneously. Localnetworks, can be either part of the public mobilenetwork, use a hybrid of public spectrum, or may belocally licensed. Governments can ensure sufficient connectivity forlocal networks through the definition of spectrumroadmaps that cater for the growth in data use drivenby consumers and enterprises. Low, mid-, and highba