Unlicensed Spectrum Policy for Government of India

Unlicensed Spectrum Policy for Government of India is a telecom policy paper co-authored by Satya N. Gupta, Sunil Abraham, and Yelena Gyulkhandanyan, published under the CIS Telecom Policy Paper Series (2013).

The report proposes a roadmap for expanding unlicensed spectrum access in India to support affordable connectivity, local innovation, and inclusive digital growth. Drawing on international experience, it argues that unlicensed spectrum functions as a public good, vital for bridging the digital divide and fostering community-based network development.

Publication Details
Abstract
Context and Background
Key Themes or Findings
Full Text
Citation

Publication Details

👤 Authors:: Satya N. Gupta, Sunil Abraham, and Yelena Gyulkhandanyan
🏛️ Published by:: The Centre for Internet and Society (CIS)
📅 Year:: 2013
📘 Type:: Telecom Policy Paper / Policy Recommendation to the Government of India
📄 Access:: Download PDF

Abstract

This policy paper presents a framework for expanding unlicensed (licence-exempt) spectrum in India, advocating for a flexible, innovation-friendly approach to spectrum management. Based on a detailed analysis of international best practices — including those of the ITU, European Union, FCC (United States), and Ofcom (United Kingdom) — the paper demonstrates how unlicensed spectrum can enhance access, affordability, and technological innovation.

It argues that unlicensed spectrum enables low-cost communication systems, supports rural connectivity, and provides a foundation for emerging wireless technologies. By promoting open access to specific frequency bands, India can encourage inclusive growth and empower local communities through decentralised network development.

Context and Background

At the time of publication, India’s spectrum policy primarily relied on licensed allocation, creating barriers for smaller operators, innovators, and rural users. However, new wireless technologies — such as WLAN, RFID, NFC, UWB, and Software Defined Radio (SDR) — demonstrated the feasibility of shared, low-power, and interference-free spectrum use.

The paper situates its argument in the context of the National Telecom Policy 2012, which acknowledged the importance of unlicensed spectrum for public use. It emphasises that spectrum should be treated as a public resource, echoing the Supreme Court of India’s 1995 ruling declaring airwaves public property.

Through case studies like AirJaldi (Dharamsala Network), Digital Empowerment Foundation’s Wireless for Communities Project, and Village Telco, the authors illustrate how unlicensed frequencies already serve as platforms for affordable rural broadband, telemedicine, and local entrepreneurship.

The document calls for India to align with global regulatory trends that encourage flexible, market-driven spectrum management, fostering both innovation and equitable digital access.

Key Themes or Findings

Public Good and Accessibility:
Unlicensed spectrum is positioned as a public good, crucial for providing affordable connectivity in underserved regions.
Technological Progress:
Modern spectrum-sharing technologies reduce interference and allow multiple operators to coexist within the same band efficiently.
International Best Practices:
The paper surveys unlicensed spectrum policies across the U.S., U.K., and E.U., identifying frequency ranges and regulatory approaches that India could adopt.
Existing Indian Bands:
Lists current unlicensed ranges (e.g. 2.4 GHz, 5.8 GHz) and highlights congestion issues due to limited availability.
Recommended Frequency Ranges for De-Licensing:
- 433–434 MHz – Data telemetry and short-range devices
- 902–928 MHz – Low-power wireless equipment
- 1880–1900 MHz – Cordless communication
- 2483–2500 MHz – Broadband access
- 5150–5350 MHz and 5725–5775 MHz – Broadband access (outdoor and indoor use)
Policy Recommendations:
- Expand licence-exempt spectrum in both sub-1 GHz and 5 GHz ranges.
- Permit experimentation on a licence-exempt basis for emerging technologies.
- Reform national regulations to enable spectrum sharing and community access.
- Recognise unlicensed bands as key to inclusive growth and innovation.

Full Text

📄 Download Full Report (PDF)

Citation

If you wish to reference or cite this publication, you may use one of the following formats.

APA Style

Gupta, S. N., Abraham, S., & Gyulkhandanyan, Y. (2013).
Unlicensed Spectrum Policy for Government of India.
The Centre for Internet and Society (CIS) Telecom Policy Paper.
https://sunilabraham.in/publications/unlicensed-spectrum-policy/

BibTeX

@report{gupta2013unlicensed,
  author = {Gupta, Satya N. and Abraham, Sunil and Gyulkhandanyan, Yelena},
  title = {Unlicensed Spectrum Policy for Government of India},
  institution = {The Centre for Internet and Society (CIS)},
  year = {2013},
  url = {https://sunilabraham.in/publications/unlicensed-spectrum-policy/}
}

MLA Style

Gupta, Satya N., Sunil Abraham, and Yelena Gyulkhandanyan.
"Unlicensed Spectrum Policy for Government of India."
The Centre for Internet and Society (CIS) Telecom Policy Paper, 2013.
https://sunilabraham.in/publications/unlicensed-spectrum-policy/