ITU/93-1 23 February 1993 Finland to host first World Telecommunication Standardization Conference next week The International Telecommunication Union (ITU)(1) is holding the first World Telecommunications Standardization Conference in Helsinki (Finland) from 1 to 12 March next at the invitation of the Finnish Government. It is the first time in its 128-year history that an ITU conference will be held in Finland. The Conference, which succeeds what was formerly called the CCITT Plenary Assembly, will take place at the Marina Congress Centre. Telecommunications Standards: Critical For The World Economy International standardization activities are a catalyst in the development of tele communications and represent a global collective effort involving several hundreds of millions of dollars. Concretely, ITU standards ensure global compatibility of equipment and systems on as wide a geographic area as possible. This global interconnectivity and interoperability thus enable customers' choice of equipment, customers' choice of services and customers' choice of suppliers as well as lower costs through greater competition among manufacturers and service providers and larger production runs of equipment. Whenever global standards are not adopted, it is generally not possible to enjoy these conditions. The ITU underwent a fundamental restructuring last December in order to step up its capacity to face the challenges of the new environment in which it is operating. One of the decisions made was to merge into a single body the standards-setting activities of the Union relating to public telecommunications with a view to strengthening the organization's role in this respect and enhancing its ability to produce, in a timely, dynamic and efficient way, the needed standards. This overhaul was a must for the Union in order to maintain its pre-eminent role in international standards-making activities so as to prevent the creation of de facto fragmented markets which would be contrary to the interests of the economy in general, the industry in particular and ultimately, the users. "The time element is of critical importance in the formulation of standards" says Pekka Tarjanne, ITU Secretary-General. "Research and development costs are enormous and it is clear that each manufacturer will want to take advantage of any new product it has developed in order to conquer a share of the market for the product and overtake its competitors". "This being so", he added, "nobody is prepared to miss an opportunity and wait patiently for a standard to be adopted or to adapt his products to a standard after large-scale production has begun. However, if technical and economic enclaves were allowed to develop, a large number of activities like finance, which are global in nature, would be curbed and the world's economic foundations would be seriously affected. It is important therefore to understand exactly when to standardize and to decide what the ITU should and should not standardize. It is also crucial to issue standards as they are available" Dr Tarjanne concluded. World conferences to deal with global issues World Telecommunication Standardization Conferences, which represent the governing body of the Telecommunication Standardization Sector, meet every four years at the conclusion of a study cycle. Their role is to approve, modify or reject draft telecommunication standards called Recommendations because of their voluntary character, and approve the programme of work on the basis of the proposals made by Study Groups. To this end, they decide which study groups to maintain, set up or abolish and how to allocate the questions to be studied. Besides the "ordinary business", World Telecommunication Standardization Conferences also have the duty to re-assess the effectiveness of the Sector in light of the changes that take place in the world of telecommunications and adopt measures to keep the leading role of the ITU in global standardization. In carrying out these duties, they focus on management issues with decision responsibility. During the four-year study cycle, groups of experts comprised of administrations and public/private sector entities meet to prepare standards on the basis of the work programme established by the previous Conference( 2). Their focus of work is on standardization of telecommunication services, operation, performance and maintenance of equipment, systems, networks and services, tariffs principles and accounting methods. Although they are not binding, ITU Recommendations are generally complied with because they guarantee the interconnectivity of networks. The standardization activities of the Union have become the node with global connections for exchanging information on networks, systems and applications and play a strategic role in the industry's decisions regarding planning, design and provisioning. As such, ITU standards represent critical tools for the implementation of worldwide networks and the provision of services on a worldwide scale. The Helsinki Conference The Helsinki Conference will deal with a number of issues including the examination of the reports from Study Groups on the work carried out during the past four years and on their proposals for the future work programme, the organization of work and the allocation of questions as well as the approval of the draft standards submitted to it by the Study Groups. It will also deal with the creation of an advisory group and will review the approval process of standards. An analysis of the work programme to be adopted generally provides the main areas of technology development and highlights what issues are considered of importance to the industry at large. Rapid availability of ITU standards: the best way to ensure global interconnectivity at the service of the economy 474 proposed standards consisting of 175 new ones and 299 substantially revised texts will be tabled for consideration and approval. Another 389 standards were approved under the accelerated procedure( 3) of which 185 were substantially revised texts and 204 were new. As a result, if all draft standards submitted to WTSC are adopted, there will be 1 954 current standards i.e. a 20 % increase over the last four years. In this context, the Conference will have to review the accelerated approval procedure which was adopted twenty-five years ago and revised periodically since. The last revision in 1988 was significant in that standards approved under the accelerated procedure were put into effect without having to wait for the formal approval of the legislative body. The application of this procedure brought down the time for producing a standard from 4 years to 18 months, thus being more responsive to the requirements of the market. This revision has undoubtedly been a key step to improve the output of standards so as to remain competitive in the standardization arena. This accelerated approval procedure is to be revised by the WTSC at the request of the Plenipotentiary Conference so as to remedy some of the difficulties encountered by its application. Some countries felt that too many draft recommendations were received for consideration and approval within a very short period of time and that the small number of experts to carry out this work in many countries was posing a serious problem. "This situation was the result of the recent introduction of the mechanism in 1989 at a time when the study groups were starting a new study cycle" explains Mr Irmer. "It was therefore not before three years later that standards started to emerge from their work thus creating a peak period during which indeed a high number of texts were sent out for approval. But as the work is now done on an on-going basis (once a standard is approved, the study group continues its work with the preparation of other standards), it is expected that the flow of standards will be more uniformly spread throughout the year and the problem of small administrations having to deal with standards approval will be alleviated". Notwithstanding this self-adjustment, it is also proposed to extend the time period given for approving standards. Concerns have also been expressed as to the representativity of the decisions made through this procedure as the number of replies often do not exceed a few dozens. These concerns underscore the fact that in any decision-making process, not all participants express their position, preferring to voice objection if the course of action is not proceeding in accordance with their views and interests. Also, the decision to apply the accelerated approval procedure is to be taken unanimously thus already demonstrating a broad base of support. Moreover, the meeting at which the decision to apply the accelerated approval mechanism is to be made, must be announced several months ahead of time to all administrations together with a summary of the standard to be subject to the procedure and a cross-reference to the whole text. This enables any administration concerned by the subject matter to either participate in the meeting or delegate its authority to one of its operators. Finally, it should also be stressed that ITU standards are not binding but have a voluntary character. As a result, any country can, at any time, challenge a standard within the normal work of the Study Group or at a conference and request a revision of the text. ITU standards are in constant evolution, being amended or revised almost continually to reflect the technology and market changes and no decision is ever carved in stone in this respect. The right balance between safeguards and a flexible, efficient method to provide the telecommunications industry at large with suitable and timely standards is therefore of critical importance. What is at stake here is the capacity for ITU to produce a standard fast enough to prevent regional or proprietary standards to take precedence thus safeguarding for all the benefits of global standards. Above all, figures speak for themselves. In the previous study cycle (1984 -1988), there was a total of 1 612 current Recommendations which represented 18 500 pages. In the present cycle (1988 -1992), the number of Recommendations shows an increase of 342 standards bringing the total of current texts to 1 954. But these are detailed in 13,568 more pages hence representing an increase of 73% which obviously could not be the subject of any thorough review and approval in a two-week conference! Strategic advice for a strategic activity Another area of importance is the setting up a Telecommunication Standardization Advisory Group, coined TSAG (pronounced Tee-Sag), to provide strategic advice to the Director of the Telecommunication Standardization Bureau (TSB). The creation of advisory groups for each of the three sectors (telecoms standardization, radiocommunication and development) has been decided by the 1992 Geneva Plenipotentiary Conference. One of the underlying motives for setting up such groups is to open ITU to all players which are now shaping the world of telecommunications. "It is essential that ITU draws upon the forces of such powerful groups if it is to maintain its leading role in global standardization" says Mr Irmer. And I believe that the establishment of TSAG will play an important role in the future". TSAG is seen as an instrument to set priorities, streamline the standardization processes, increase efficiency and provide advice to the Director of the Telecommunication Standardization Bureau. Although "advisory" by mandate, this group is nevertheless expected to monitor and direct standardization work on the basis of the expectations of the new, enlarged Standardization Sector's membership. To meet this objective, TSAG will have a wide representation from both the Administrations which are increasingly carrying out the role of regulators and from the emerging new entities which are the manufacturers, network operators and service providers. It will also comprise the Study Group Chairmen and the TSB Director. They will work collegially to bring about a dynamic process leading to up-to-date standards responsive to market demands. "But there is much more behind", says Theo Irmer, Director of ITU's Telecommunication Standardization Bureau; "this TSAG is not just another kind of group of which we have many; the creation of this group", he says, "reflects the fact that standardization is increasingly being carried out by "non-Administrations" (operators, service-providers, manufacturers) which, at the same time, need to be more fully integrated into the decision-making process". The precise terms of reference and working methods will be decided by WTSC. Consolidation of the standardization sector: shaping a dynamic and responsive ITU Another area to be considered by the WTSC concerns the transfer of standards-setting activities from the radio sector( 4) to the standardization sector. For historical reasons, there has been a division of responsibilities between wire-based and radio systems which were handled by two separate ITU bodies, the CCIR and CCITT. The consolidation of standards-setting activities into one single standardization sector will contribute to a more efficient way of dealing with standards by reducing the time-frame under which such standards were produced in the past. Such transfer of activities will initially include network-related radio standardization tasks. A first joint meeting between members of the radio and telecoms standardization sectors took place on 22 January last to identify, from the programme of work of the CCIR, what activity or elements were network-related. "This is a difficult task", says Mr. Irmer, "and by no means a technical decision alone. The way questions of study are defined in the CCIR differ greatly from the way it is done in the CCITT making the separation difficult". "In addition", he added, "there are no clear-cut distinctions between what is network-related alone and what is also related to radio matters." Another difficulty resides in the fact that, for the CCITT, the network is the carrier for all services irrespective of the transmission media. In the CCIR, however, the service characteristics are linked to the transmission capability which depends on the frequency band used. Hence, in the CCITT the standardization of services is performed by one Study Group regardless of the transmission medium whereas in the CCIR services are dealt with by several Study Groups (mobile communications, satellites, microwave, broadcasting, etc.) At the joint meeting, a first plan was however agreed upon according to which all matters relating to television and radio broadcasting transmissions will be transferred to the Standardization Sector with a joint membership as in the past; two Joint Coordination Groups on Future Public Land Mobile Telecommunication Systems (FPLMTS) and on ISDN/Satellite matters will also be part of the Standardization Sector. Finally, a small group of experts has been given the task of reviewing the work of certain study groups which deal with subjects of common interest to both the radio and the standardization sectors( 5) with a view to making a proposed allocation of work. Technological change in telecommunications is rapid and continuing and further boundary changes are likely to take place as radiocommunications become even further integrated in public networks. Some work on radio systems, which will initially remain within the Radiocommunication Sector, could be transferred in the future to the Standardization Sector as technology develops and in the light of experience. Clearly, the matter will need to be kept under constant review for any adjustments which might be desirable. The reform process started at Melbourne in 1988 was a first overhaul in many areas: structure, organization, working methods and, in particular, acceleration of the production and publication of standards. All the measures taken then are showing positive results. The Helsinki conference will be called to push reforms one step ahead taking account of the changes that occurred in the last four years both in technology and in the marketplace. Like in our natural environment, only those which show the capacity to constantly adapt will remain in existence. Footnotes: (1) The ITU is an intergovernmental organization, within which the public and private sectors cooperate for the development of telecommunications and the harmonization of national telecommunication policies. The ITU adopts international regulations and treaties governing all terrestrial and space uses of the frequency spectrum as well as the use of the geostationary- satellite orbit, within which countries adopt their national legislation; it develops standards to ensure the interconnection of telecommunication systems on a worldwide scale regardless of the type of technology used; it also fosters the development of telecommunications in developing countries. (2) Prior to the Telecommunication Standardization conferences, these functions were carried out by Plenary Assemblies the last one of which took place in Melbourne (Australia) in 1988. (3) Under this procedure, and if agreed unanimously, a Study Group can decide that a standard is urgent and must be approved before the holding of the Standardization Conference (held every four years) by correspondence. The text of the standard is sent to all Administrations which, within a three month period, indicate whether or not they approve it. If a certain number of criteria are met, including an expressed majority in favour of the Recommendation, it is approved and put into effect. (4) The radio sector is formed by the merging of the former CCIR and IFRB. The CCIR was the technical body responsible for the study and preparation of standards applicable to radio systems and the IFRB was responsible for the regulatory work pertaining to radiocommunications. (5) CCIR Study Groups 4 (Fixed-satellite service), 8 (Mobile, radiodetermination and amateur services), 9 (Fixed service using radio-relay systems), 10 (Radio Broadcasting) and 11 (Television broadcasting)