電波管理制度에 關한 公法的 硏究

다국어 초록 (Multilingual Abstract)

The radio frequency spectrum is a vital and limited national resources. In today's era of modern broadcasting and communications, Spectrum contributes to medical service, public welfare, transportation infrastructure, public safety, job creation, and economic growth, and it enables us to promote ubiquitous information society. Moreover, radio spectrum is a 'key resource' for a number of essential service, e.g. mobile, wireless and satellite communications, TV and radio broadcasting, transport, radio location (GPS: Global Positioning System), scientific applications (meteorology and weather satellites, earth observation, telemetry, radio astronomy and space research), and various other applications, such as alarms, remote controls, medical equipment, e.g. implants and hearing aids. Radio technologies also support and sustain 'public services' of prime importance defence, security, (road, air and maritime) safety, emergency, law enforcement, and scientific-oriented activities. As a result, an efficient and coherent use of spectrum in all these sectors can, by stimulating growth and competitiveness, contribute towards realizing priorities and establishing commonly acceptable policies, that lead to the development of wireless communications technologies has enabled new and effective forms of voice and data communication building a 'fully inclusive' information society, based on the extensive use of ICT (Information and Communication Technology). In view of the requirement of the information society for instantaneous access to, and dissemination of, information, irrespective of time and/or location, radio spectrum is a factor of unlimited importance for the further advance of the Korea( Rep. of) economy. However, access to this spectrum resources can be artificially restrained when spectrum management policies fail to keep pace with advances in spectrum technologies. Therefore, this paper research a comparative law study on the spectrum management system of the radio spectrum policy's advanced countries in the legal viewpoint.
In this paper, the issues of the spectrum management system can be mentioned as below :
At first, spectrum refarming (i.e. spectrum redeployment) is a spectrum management tool, which can be used to satisfy new market demands, increase spectrum efficiency or to respond to changes in international frequency allocations. This work investigates differences, especially about the refarming plan of the low frequency bands, between some overseas policies and Korea(Rep. of). Studying on the refarming plan of the low frequency bands, we lay out the policy improvement program of spectrum refarming for raising efficience of the radio wave resources. The U.S. have secured 108MHz bandwidth in the 700MHz band by a firm digital TV transition date (June 12, 2009). According to digital TV transition schedule of the 60MHz available in the upper band (746-806MHz), FCC allocated 24MHz for public safety and ordered the aution of 32MHz for commercial use to begin in January 2008, so the remaining 4MHz are guard bands. On 2007, Ofcom of the U.K. published its 'Digital Dividend Review', which sets out proposals for consultation for the most effective use of the spectrum that will be released by digital switchover is in the UHF band in the frequencies 470-862MHz. 112MHz of spectrum that will become available as a result of digital switchover. These channels are numbered 31-35, 37, 39-40 and 63-68. Channel 36 is currently used for airport radar and Channel 69 for wireless microphones. Both channels have the potential to be cleared, and together make up 16MHz of spectrum.
Secondly, An aspect of spectrum reform receiving increasing attention is the introduction of secondary markets for spectrum in order to enable more flexibility to reassign unused and underused spectrum to users that will use it more efficiently. This paper proposes to focus on the policy issues relating to the development of well-functioning secondary markets for spectrum. Despite the compelling potential benefits, the secondary market for spectrum remains underdeveloped in countries that have introduced it. This section draws on various government documents and government commissioned reports and experience in countries that have introduced spectrum trading to identify a range of regulatory policy issues relating to spectrum trading. Despite the persuasive rationale for spectrum trading, countries have been slow to introduce it. This is in part because a number of significant concerns remain in regard to spectrum trading and liberalization. The presence of such concerns makes it understandable if countries decide to introduce spectrum trading through a phased stage-by-stage approach (as the U.K. has done). And it underlines the continuing need for a wide range of regulatory tasks to establish and sustain well functioning secondary markets for spectrum.
Thirdly, the rapid growth in demand for radio frequency spectrum causes increase radio spectrum management costs, and funds for considerable and ceaseless R&D investment are needed to promote innovation wireless communications and broadcasting areas. In accordance with the 1st clause, the 67th article, Radio Waves Act, the Korea Communications Commission (hereinafter referred to as “KCC”) can impose and collect spectrum fee on using radio stations for appropriating the spectrum management costs and for promoting the fields of involving in radio spectrum. Spectrum fee must impose and collect under user pays principle. I ultimately expect the scope of using spectrum fee to be enacted more clearly and precisely.
Fourthly, what is spectrum liberalization? Most spectrum licences include restrictions on the services and technology that can be deployed over the specified band of frequencies. Liberalization reduces or removes these limitations and will allow licence holders greater flexibility in the way they use their licences. Ofcom expects that spectrum liberalization and trading will make it easier for entrepreneurs and innovators to enter the market, deploy new technologies and applications, and compete with existing players; they will make it easier for spectrum to migrate from relatively low value uses to higher value ones. Although spectrum trading and liberalisation are distinct developments, they are complementary. A recent report for the European Commission estimated the benefits of spectrum trading with liberalization to be some ??9bn per year across the EU, predominantly arising from the earlier adoption of new technologies and applications that trading and liberalization would allow. The benefits of spectrum trading alone, without liberalization, were estimated to be about one tenth of this. So this paper analyzed Korea existing spectrum policy and compared it with trends of spectrum policy of leading country like U.S.A. and U.K. etc. As a result, we proposed to introduce interference management which allow interference to be controlled by marked like marketable pollition permits. I expect that if we set interference management for liberalization, technical and service conditions related to spectrum licences will be mitigated by managing interference directly.
Fifthly, new technologies such as SDR, UWB, and CR are expected to alleviate the scarcity of radio spectrum to a large extent. For successful introduction of the new technologies, we need to design the policies which promote efficient sharing of the radio frequencies currently occupied by licensees in addition to overcoming technological hurdles. This paper draws implications from the review of the past examples of spectrum sharing. It also argues that two alternative mechanisms free contract and regulatory requirement may result in insufficient spectrum sharing unless the service provided by incumbent licensee and the new service are complementary each other. The ‘commons’ approach. By contrast, with the exclusive rights approach, a licence-exempt ‘commons’ approach allows access to spectrum by all users (open access spectrum) or to a group of users who hold the rights to that spectrum in common (spectrum commons). However, the commons regime recently proposed by many researchers to implement spectrum sharing has its own shortcomings that it does not have a proven efficient mechanism to control access and congestion. We are expecting concurrent future research on efficient mechanisms to control congestion under commons regime or to provide incentives for incumbent licensees to allow socially efficient level of spectrum sharing.
Sixthly, auctions are popular mechanism for the exchange of goods and services in the marketplace. Recently, U.S., U.K., and EU are seeking efficient use of scarce spectrum resources under marked-based spectrum management policy. Spectrum auction, trading and administrative incentive pricing (AIP) are regarded as major instruments for recent spectrum management policy. And usage liberalization and appropriate set up of spectrum usage rights (SURs) are preerquisites for the introduction of spectrum trading. Spectrum auction is needed for the efficient spectrum allocation. Since 1994, the Federal Communications Commission (FCC) has conducted auctions of licenses for electromagnetic spectrum. These auctions are open to any eligible company or individual that submits an application and upfront payment, and is found to be a qualified bidder by the Commission. FCC auctions are conducted electronically and are accessible over the Internet. Thus, qualified bidders can place bids from the comfort of their home or office. Further, anyone with access to a computer with a web browser can follow the progress of an auction and view the results of each round. From 2000-07-31 to 2000-08-18, the German government conducted an aution for 12 frequency blocks for the new UMTS mobile telephony standard. The total of the bids exceeded expectations by reaching the staggering amount of DEM 98.8 billions (EUR 50.8 billions).
Finally, the International Telecommunication Union (ITU) is a forward-looking, dynamic organization that has been in the business of helping the world communicate for over 140 years. Also, ITU is the leading United Nations agency for information and communication technologies. ITU's role in helping the world communicate spans 3 core sectors: radiocommunication, standardization and development. Especially, managing the international radio-frequency spectrum and satellite orbit resources is at the heart of the work of the ITU Radiocommunication Sector (ITU-R). The ITU-R World Radiocommunication Conference (WRC), which convenes every three to four years, is at the core of the international spectrum management process and constitutes the starting point for national practices. WRC reviews and revises the Radio Regulations, an international treaty establishing the framework for the utilization of radio frequencies and satellite orbits among ITU member countries, and considers any question of a worldwide character within its competence and related to its agenda. However, the government of the Republic of Korea has faced a lot of challenges such as the lack of experts who keep consecutive participation in the conference, insufficient study materials, limited opinion channels, loosened cooperation in regional organization and delayed implementation of WRC results. But, in this paper, it foundationally researched ITU, ITU's legislation and WRC. Especially, we must be continuously carrying out research on spectrum management of the ITU.
To ensure that spectrum management policies of KCC are capable of harnessing the promise of beneficial, new technologies, first of all, the most important strategy is that the KCC has the spectrum management policies for the spread of the Radio Waves Mind. These include spectrum usage liberalization, spectrum common model, market-based spectrum auctions, spectrum trading, and so on. The KCC is an independent regulatory agency established by the Act on the Establishment and Operation of Broadcasting and Communications Commission. Its mission includes regulating communications by radio frequency spectrum. On the other hand, Its the most important mission, for the spectrum promotion, is the spread of the Radio Waves Mind. What is the best way to do it? It is the best way that restrictions on access to spectrum resources is eased. Finally, this work might be expected to be used as critical research material to form the effective as well as efficient spectrum management and policy improvement plans.

국문 초록 (Abstract)

본 연구는 궁극적으로 유한한 전파자원의 효율적 이용이라는 본연의 당위적 목적에 있는 것이다. 그러므로 여기에서는 유한한 전파자원을 최적의 용도로 최대의 이용자에게 공급하여 주파수의 이용효율을 극대화 할 수 있는 전파관리제도에 대하여 논의하고자 한다. 따라서 제1장에서는 21세기 유비쿼터스(ubiquitous) 전파세상을 선도하는 전파자원의 중요성을 살펴보면서, 전파의 특성에 따른 전파관리제도의 진화를 문제의 제기측면에서 검토해 보았다.
제2장에서는 국내외 전파관리제도를 고찰해 보기 위한 전제로서 국내외 관련 문헌을 참고하고 전파와 주파수의 법적 분석을 통하여 그 개념과 법적 성질 및 양자의 관계에 대한 명확성을 도모하고자 하였다. 그리고 전파의 소유권에 관해서는 아직까지 이론적으로 정립되지 않은 바, 우리나라 학설의 대립을 살펴보고 주요 외국의 입법례를 검토하여 전파의 소유권에 관한 논의를 정리해 보았다.
제3장은 전파의 관리에 관한 연구로서, 전파관리에 관한 관리권의 근거를 살펴보고, 국내외 관리체계와 관리법제 및 관리기관을 개괄적으로 고찰해 보았다. 또한 전파자원의 배분을 위한 주파수분배, 주파수할당, 주파수지정, 주파수 사용승인에 대한 논의를 정리해 보았다.
제4장에서는 본론으로서 최근 국내외 전파관리제도의 동인(動因)과 그 의미를 통하여 어째서 시장기반(market-based)의 전파관리제도를 도입할 필요성이 있는지와 관련 제도의 중요성을 살펴보았다. 그리고 주요 외국의 전파관리제도와 우리나라의 관련 제도를 비교하여 그 개선방안 및 발전방안을 도출해 보았다. 이와 관련하여 우리나라 전파법의 개선방안으로서 첫째, 전파자원의 확보측면에서 한정된 전파자원의 이용을 극대화하기 위한 방법으로서, 주파수의 효율적 이용을 시의적절하게 유도할 수 있는 주파수 회수/재배치(refarming)제도를 그 사례를 통하여 비교법적으로 검토해 보았다. 둘째, 현행 전파법에 따라 대가할당을 받은 자는 주파수이용권을 가질 수 있으며(전파법 제14조 제1항), 일정한 기간 이후에는 거래(양도․임대)할 수 있도록 규정하고 있다(전파법 제14조 제2항). 그런데 주파수이용권 거래제(trading)가 도입된 이후로 현재까지 단 한건도 이루어지지 않고 있으므로, 이에 대한 문제점을 중심으로 해외 주요국의 동향과 비교하여 그 개선방안을 제시해 보았다. 셋째, 현행 전파법 제67조는 방송통신위원회가 전파관리에 필요한 경비의 충당과 전파 관련 분야의 진흥을 위하여 시설자에게 해당 무선국이 사용하는 전파에 대한 사용료(전파사용료)를 부과․징수할 수 있도록 규정하고 있는데, 현재는 전파사용료를 국가의 일반회계예산으로 편입하여 그 사용에 있어서 법적 범위와 상치(相馳)된다는 측면이 있으므로 전파진흥을 위한 전파사용료의 운용방안을 고찰해 보았다.
또한 우리나라 전파법의 발전방안으로서 첫째, 특정한 주파수의 용도를 정하는 주파수분배(전파법 제2조 제2호)를 함에 있어서 주파수의 이용효율을 도모할 수 있는 방안으로는 주파수 이용자유화(liberalization)와 주파수 공유모형(common model)이 있으며, 이러한 주파수 대역의 확대와 주파수분배는 산업․과학․의료(ISM: Industrial, Scientific and Medical)용 주파수 대역을 이용한 무선기술의 발전이나 소출력 공동체 라디오 방송의 활성화 혹은 소출력 디지털 멀티미디어 방송(DMB: Digital Multimedia Broadcasting)의 도입 등으로 이어질 것이다. 둘째, 최근 정보통신기술(ICT)의 발전으로 면허나 배타적 이용권의 제한 없이 이용자가 주파수를 이용할 수 있는 체계로서 주파수 공유모형(Spectrum Common Model)이 있다. 여기에서는 시간적․공간적으로 주파수를 공유할 수 있는 SDR이나 UWB 또는 CR 등의 주파수 이용기술을 살펴보고, 주요 외국의 이용 동향을 검토하여 전파법령에서 활용할 수 있는 발전방안을 제시해 보았다. 셋째, 특정한 주파수를 이용할 수 있는 권리를 특정인에게 주는 주파수할당(전파법 제2조 제3호)단계에서는 최근 도입이 논의되고 있는 주파수 경매제(auctions)의 도입을 위한 전파법의 발전방안을 검토해 보았다.
제5장은 결론으로서 최근 전파자원의 유한성을 극복하기 위해서 일반 국민들의 공감대를 형성하고 주파수 이용의 효율성을 극대화하며 그 이용분야를 확대하려는 시도의 일환으로서 유비쿼터스(ubiquitous) 전파세상을 실현하려는 개방적 전파마인드(Radio Waves Mind) 확산정책의 중요성을 강조하고자 한다. 또한 위에서 검토한 내용을 종합적으로 정리하여 주파수 이용효율의 극대화라는 정책적 목표를 달성하기 위한 우리나라 전파관리제도의 입법적 개선방안 및 발전방안을 제시하였다.

목차 (Table of Contents)

• 第1章 序論 1
• 第1節 問題의 提起 및 硏究의 目的 1
• I. 問題의 提起 1
• 1. 21世紀 電波資源의 重要性 1
• 2. 電波管理制度의 進化 4
• II. 硏究의 目的 7
• 第2節 硏究의 範圍 및 方法 11
• I. 硏究의 範圍 11
• II. 硏究의 方法 14
• 第2章 電波의 法律的 特色 17
• 第1節 電波의 意義 및 特性 17
• I. 意義 17
• 1. 槪念 17
• 2. 發見 19
• II. 特性 21
• 1. 物理的 特性 21
• 2. 資源的 特性 26
• 3. 經濟的 特性 27
• III. 周波數와의 關係 29
• 第2節 電波의 法的 性質 30
• I. 資源으로서의 性質 30
• 1. 憲法上 自然資源 30
• 2. 所有權의 歸屬 32
• 가. 問題點 32
• 나. 學說의 對立 33
• (1) 國有資源說 33
• (2) 所有權의 對象 否定說 35
• (3) 管理權 重要說 36
• 다. 主要 外國의 立法例 36
• 라. 小結 39
• 3. 公有資源과 電波資源의 比較 39
• II. 公物로서의 性質 44
• 1. 公物槪念의 擴大化 傾向 44
• 2. 公物의 成立要素 充足與否 46
• 3. 公物로서 電波의 法源 47
• 4. 公物로서 電波의 分類 48
• III. 物件으로서의 性質 50
• 1. 公物의 物件性 50
• 가. 問題點 50
• 나. 學說의 對立 51
• (1) 廣義의 見解 51
• (2) 狹義의 見解 51
• 다. 小結 52
• 2. 電波의 物件性 54
• 第3章 電波의 管理 56
• 第1節 電波管理에 關한 槪觀 56
• I. 管理權 56
• 1. 意義 56
• 2. 法的 根據 및 性質 56
• 가. 公所有權說 56
• 나. 公法上 物權的 支配權說 57
• 다. 包括的 管理權能說 57
• 라. 自由公物과 他有公物의 區別說 58
• 3. 小結 58
• II. 管理體系 60
• 1. 國際的 電波管理의 必要性 60
• 2. 國際電氣通信聯合(ITU)의 電波管理體系 61
• 가. 電波管理의 槪要 61
• 나. 電波通信部門(ITU-R) 62
• 다. 世界電波通信會議(WRC) 63
• 라. 國際的 周波數分配 66
• 3. 韓國의 電波管理體系 68
• 가. 國際電氣通信聯合(ITU)에의 加入 68
• 나. 電波管理體系 70
• III. 管理法制 70
• 1. 國際電氣通信聯合(ITU)의 法制 70
• 가. 憲章과 協約 71
• 나. 業務規則 71
• 다. 其他 法律 文書 72
• 2. 韓國의 法制 72
• 가. 電波法의 槪觀 72
• (1) 淵源 72
• (2) 目的 75
• (3) 沿革 77
• (4) 構成 78
• 나. 電波主權의 確立 79
• IV. 管理機關 80
• 1. 國際電氣通信聯合(ITU) 80
• 가. 設置 80
• 나. 目的 83
• 다. 組織 85
• 라. 機能 89
• 2. 韓國의 放送通信委員會 90
• 가. 設置 90
• 나. 組織 92
• 다. 權限 94
• 라. 放送通信 關聯 法令體系 95
• 第2節 電波의 配分 98
• I. 周波數分配 98
• 1. 意義 98
• 가. 槪念 98
• 나. 電波法上 周波數分配 99
• 2. 法的 性格 102
• 가. 問題點 102
• 나. 學說의 對立 103
• (1) 行政規則說 103
• (2) 行政計劃說 104
• (3) 行政行爲說 105
• 다. 小結 105
• 3. 節次 106
• 4. 效果 108
• II. 周波數割當 109
• 1. 意義 109
• 가. 槪念 109
• 나. 國際的 周波數割當 110
• 다. 韓國의 周波數割當 111
• 2. 法的 性格 112
• 3. 種類 113
• 가. 國際的 周波數割當方式 113
• 나. 韓國의 周波數割當方式 115
• (1) 代價割當 116
• (2) 審査割當 117
• (3) 轉換 118
• 4. 節次 119
• 5. 效果 120
• III. 周波數指定 120
• IV. 周波數 使用承認 121
• 第4章 電波管理制度의 爭點과 發展方案 123
• 第1節 電波環境의 變化와 電波管理制度의 改善論意 123
• I. 電波管理制度의 動因과 그 意味 123
• 1. 國際的 動向 123
• 2. 韓國의 動向 125
• II. 電波管理制度의 改善論意 및 發展方案 127
• 第2節 周波數 回收/再配置 130
• I. 周波數 回收/再配置의 意義 130
• 1. 槪念 130
• 2. 要件 132
• 3. 節次 133
• 4. 損失補償 134
• 5. 事例 136
• II. 主要 外國의 周波數 回收/再配置 139
• 1. 美國 139
• 2. 英國 144
• 3. 日本 146
• 4. 佛蘭西 147
• 5. 獨逸 149
• III. 周波數 回收/再配置의 比較 150
• 1. 周波數 利用現況의 調査確認 151
• 2. 周波數 回收/再配置의 節次 152
• 3. 周波數 回收/再配置에 따른 損失補償 153
• IV. 周波數 回收/再配置의 改善方案 156
• 1. 周波數 利用現況의 調査確認 活性化 156
• 가. 周波數 利用實績의 重要性 156
• 나. 電波法上 實效性 確保方案 158
• 2. 損失補償에 關한 法的 檢討 160
• 가. 問題點 160
• 나. 補償與否 163
• 第3節 周波數利用權 去來制 167
• I. 周波數利用權 去來制의 槪要 167
• 1. 導入背景 167
• 2. 導入의 必要性 169
• 3. 細部事項의 重要性 171
• II. 周波數利用權의 意義 172
• 1. 槪念 172
• 2. 法的 性格 172
• 3. 去來(讓渡賃貸)의 目的物 176
• 4. 電波法上 周波數利用權 去來制 178
• III. 主要 外國의 周波數利用權 去來制 180
• 1. 美國 180
• 2. 英國 183
• 3. 日本 186
• 4. 佛蘭西 187
• 5. 獨逸 189
• 6. 濠洲 190
• IV. 周波數利用權 去來制의 比較 193
• V. 周波數利用權 去來制의 改善方案 194
• 第4節 電波使用料 195
• I. 電波使用料의 法的 問題點 195
• 1. 公物의 使用料 徵收와 電波使用料 195
• 2. 使用料 徵收의 論理 197
• 3. 電波使用料의 法的 性格 199
• 4. 割當代價와의 關係 200
• 5. 算定方式의 變化 201
• 6. 電波法上 電波使用料 203
• II. 主要 外國의 電波使用料 208
• 1. 美國 208
• 2. 英國 210
• 3. 日本 212
• 4. 濠洲 215
• III. 電波使用料의 比較 218
• IV. 電波使用料의 改善方案 220
• 1. 問題點 220
• 2. 使用者 負擔의 原則 221
• 3. 小結 222
• 第5節 周波數 利用自由化 223
• I. 周波數 利用自由化의 意義 223
• 1. 槪念 223
• 2. 潛在的 利益 224
• 3. 期待效果 225
• 4. 電波法上 周波數 利用自由化 226
• II. 主要 外國의 周波數 利用自由化 227
• 1. 美國 228
• 2. 유럽聯合(EU) 230
• 3. 英國 230
• 4. 日本 232
• 5. 獨逸 233
• 6. 濠洲 233
• III. 周波數 利用自由化의 比較 234
• IV. 周波數 利用自由化의 發展方案 236
• 第6節 周波數 共有模型 237
• I. 周波數 共有模型의 意義 237
• 1. 周波數 共有技術의 發展過程 238
• 2. 共有技術의 理解 239
• 가. 소프트웨어 定義 無線(SDR) 239
• 나. 超廣帶域 無線(UWB) 240
• 다. 認知 無線(CR) 242
• 3. 電波法上 周波數 共有模型 245
• II. 主要 外國의 周波數 共有模型 247
• 1. 美國 247
• 2. 유럽聯合(EU) 250
• 3. 英國 253
• 4. 日本 254
• 5. 濠洲 256
• III. 周波數 共有模型의 比較 257
• IV. 周波數 共有模型의 發展方案 259
• 第7節 周波數 競賣制 260
• I. 周波數 競賣制의 意義 260
• 1. 槪念 261
• 2. 競賣方式의 分類 262
• 가. 傳統的 競賣方式 262
• (1) 單一財貨 競賣方式 262
• (2) 複數財貨 競賣方式 263
• 나. 同時 多重라운드 競賣方式 264
• 3. 競賣理論의 分析 265
• 가. 私的價値模型(private value model) 265
• 나. 共通價値模型(common value model) 266
• 다. 一般模型(general model) 267
• 4. 周波數 競賣制의 長短點 268
• II. 主要 外國의 周波數 競賣制 270
• 1. 美國 270
• 2. 英國 276
• 3. 獨逸 278
• 4. 濠洲 280
• 5. 香港 282
• 6. 新西蘭 283
• III. 周波數 競賣制의 比較 284
• IV. 周波數 競賣制의 發展方案 286
• 1. 財産權 시스템(property system)의 導入 287
• 2. 周波數割當의 公正性과 透明性 提高 288
• 3. 電波法 改正案의 檢討 289
• 第5章 結論 294
• I. 開放的 電波마인드의 擴散政策 294
• II. 周波數 利用效率의 提高를 爲한 電波法 改定方案 299
• <參 考 文 獻> 305
• <附錄1: 國內外 電波通信放送 法令> 319
• <附錄2: 國內外 放送通信機關> 320
• <附錄3: 國內外 放送通信機關 인터넷住所> 321
• <附錄4: 外國語 略語 解說> 322
• ABSTRACT 328