Study on Broadband

and Infrastructure
Mapping

FINAL REPORT
A study prepared for the European Commission
DG Communications Networks, Content & Technology
by:

Digital
Agenda
for Europe

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 GmbH
Rhoendorfer Str. 68
53604 Bad Honnef, Germany
Authors:
Dr Ren Arnold
Marius Kirch
Dr Martin Waldburger
Andreas Windolph

Internal identification
Contract number: 30-CE-0555114/00-17
SMART 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 reflect
the official opinion of the Commission. The Commission does not guarantee the accuracy of the data included in
this 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.

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 mapping
initiatives..................................................................................................................................57
5.2.3 Insights guiding the development of a comprehensive broadband mapping
methodology ...........................................................................................................................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 .................................... 159

6.5.1 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 in

EU 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 Cost

Reduction 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 Haut
Dbit) ........................................................................................................................... 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
Page 6 / 280

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 in
Spain ............................................................................................................................ 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 information
available, 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 information
available) ...................................................................................................................... 52
Figure 5-3: Objectives of infrastructure mapping ...................................................................... 58

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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

Page 9 / 280

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 mapping
database 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

Page 11 / 280

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 gathering
information in a structured process on dimensions characterising the demand
Page 12 / 280

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 mapping aims 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.

Bulgaria and Malta are not involved in any of the four mapping types. Latvia and Romania are in the planning
phase for a mapping initiative.
Page 13 / 280

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 to
highlight 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 and
processing; 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 software
and hardware are more important in the case of infrastructure mapping than
Page 14 / 280

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 mapping
initiatives 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 of
the methodology later in this study will take INSPIRE into account.
Page 15 / 280

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 a
combination 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 Breitbandatlas2 further 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
2

German Broadband Mapping: www.breitbandatlas.de.

Page 16 / 280

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 telecommunications
market 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 the

purpose 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
Page 17 / 280

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 data
processing 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
3

Geo Information System

Page 18 / 280

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 granted
access to which data. Again, the objective of the initiative may limit the
initiatives number of options 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 of
elements to be mapped and the existence of any obligation to supply data.
Page 19 / 280

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 for
various 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 the
generation 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

Page 20 / 280

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 the
results 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 mapping is to reduce costs of broadband deployment

and to coordinate broadband deployment measures. The authority in charge
should 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.

Page 21 / 280

Figure 0-7: Recommended methodology choices for infrastructure mapping

Service mapping can 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.

Quality of Service
Page 22 / 280

Figure 0-8: Recommended methodology choices for service mapping

Demand mapping has to be divided into two mapping approaches:

1. the mapping of demand in terms of need for broadband services based on
undersupply 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 aid
measures and their support. Methodology wise, data can be collected via a web
Page 23 / 280

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 reference and can be aggregated on a municipal level.
In terms of mapping of quality of service, there are different measures to
analyse 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 mapping contains 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.

Page 24 / 280

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-making
processes 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--vis
predefined 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 study

focusing on a review of current broadband mapping initiatives in the EU and the
Page 25 / 280

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 as
well 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

http://ec.europa.eu/digital-agenda/en/news/proposal-regulation-european-parliament-and-council-measuresreduce-cost-deploying-high-speed.
Page 26 / 280

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 public
authorities. 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 consultation
process 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
7

http://inspire.jrc.ec.europa.eu/.
http://www.broadbandmapping.eu/.
Page 27 / 280

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.

Page 28 / 280

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.

Page 29 / 280

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 as
broadband 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. Section 5.2.2), 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.

Page 30 / 280

Figure 3-2: Infrastructure mapping at a glance

Aims
Facilitation of roll-out of broadband networks by generation of synergies and
reduction of roll-out costs.
Target group
Investors / operators
Public authorities: energy, transport, telecommunication
Consultants

What can be mapped?

Telecommunication infrastructure (ducts/fibre/nodes)
Integration of other relevant infrastructure data like energy or water supply
Construction works
Sources of data
Owners of infrastructure
Open data projects
Public authorities
Visualisation
Vector data (points, lines)
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),
Page 31 / 280

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
Aims
Knowledge of the current national broadband situation as well as monitoring of
progress in broadband roll-out
Identification of spots affected by market failure for allocation of state aid
Comparison with other member states
Target group
Residential/business user
Public authorities: telecommunication, IT, economics
Consultants
Investors/operators
What can be mapped?
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
Sources of data
Broadband operators
Measurements
User messages
Visualisation

NUTS (LAU) layer or grid

Points (addresses) and lines (street segments)

Point Topic: Broadband Competition Map of Europe. See: http://point-topic.com/services/the-broadbandcompetition-map-of-europe-2/.

Page 32 / 280

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 the
measurement (using hard- or software) of effectively available bandwidths of a
users access and the quality of this, for example the permanent availability of
the service.
Figure 3-4: Two functions of demand mapping

1. User demand
for...

2. Quality
of existing...
products,
bandwidths,
technologies,
availability,
...

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 the
sought-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 requiring
9

For more information on this topic see Chapter 4.

Page 33 / 280

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 service
to 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).

Page 34 / 280

Figure 3-5: Demand mapping at a glance

Aims
Identification of areas with potential for commercial roll-out
Facilitation of allocation of state aid (demand mapping)
Surveillance of quality of existing services (no primary study aim)
Identification of areas with low take-up rates stimulation of demand (no
primary study aim)
Target group
Investors/operators
Public authorities
Consultants
Residential/business user
What can be mapped?
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
Sources of data
Measures (e.g. speed tests)
User messages
Analysis of sociodemographic factors to designate areas with market potential
Public authorities
Visualisation
NUTS (LAU) layer or grid
Points (addresses) and lines (street segments)

Page 35 / 280

3.4 Investment and funding mapping

Figure 3-6: Investment mapping at a glance
Aims
Focus on funding and state aid
Visualisation of amount of funding and regions funded
Target group
Public authorities
Residential/business user
Investors/operators
What can be mapped?
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
Which attributes are important?
Key aspects defined in state aid framework that are required from EU on funded
projects
Sources of data
Funding authorities
Broadband operators/investors
Infrastructure/service mapping for progress regions
Service mapping/demand mapping for market failure
Visualisation
NUTS (LAU) layer or grid

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.

Page 36 / 280

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 exploitation
scenarios 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
Identification
of
undersupplied
areas

Further
analysis

Broadband
situation

Investment
monitoring

EU-wide
statistical
scores

Spatial
allocation of
state aid

Provision of
information

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 with
broadband. For instance, an undersupplied municipality may locate other
Page 37 / 280

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 are
often 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.

Page 38 / 280

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-party
expertise.
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 probably
will 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).

Page 39 / 280

Figure 3-9: Example of a broadband index

Number of
operators

Occuring
technologies

Max. bandwidth

Spatial
characteristics

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 be
modulated. 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.

Page 40 / 280

4 Political and regulatory background of broadband and

infrastructure mapping
The previous chapter introduced relevant use cases and exploitation scenarios for
broadband 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 the
context 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 works10 and the availability of transparent, upto-date and comparable information on offers and services11 has been
recognised in the European Union regulatory framework for e-communications
10

11

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 electronic
communications 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.
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) No
2006/2004 on cooperation between national authorities responsible for the enforcement of consumer
protection laws; OJ L 337, 18.12.2009, p. 11.
Page 41 / 280

(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),13 the NGA Recommendation (2010),14 and 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 Directive16 that 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 environmental
applications. 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

13

14

15

16

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.
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.
Commission Recommendation of 20 September 2010 on regulated access to Next Generation Access
Networks (NGA); (Text with EEA relevance) (2010/572/EU).
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://www.europarl.europa.eu/sides/getDoc.do?pubRef=-//EP//NONSGML+AMD+A7-2013-0455+071071+DOC+PDF+V0//EN.
European Parliament and the Council of the European Union: DIRECTIVE 2007/2/EC OF THE EUROPEAN
PARLIAMENT AND OF THE COUNCIL of 14 March 2007 establishing an Infrastructure for Spatial
Information in the European Community (INSPIRE). Available at http://eurlex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2007:108:0001:0014:EN:PDF.
Page 42 / 280

INSPIRE Thematic Working Group Utility and Governmental Services published

the according data specification17 in early 2013. The specification differentiates
six
utility
networks
(electricity,
oil,
gas
and
chemicals,
sewer,
telecommunications, thermal and water networks). The data specification
models links in these networks as ducts. Nodes are modelled as poles.
Moreover, the data specification covers elements for manholes, towers and
cabinets. The data model for each considered utility network is available in
terms of a Unified Modelling Language (UML) class diagram. For instance, for
telecommunications networks, it supports the modelling of detailed
characteristics such as material types for links (e.g. optical fibre) or specific
network elements.
The primary impact of standards-based data models for infrastructure mapping
lies within their potential for cross-sector synergies. An INSPIRE-compatible
database design for broadband infrastructure mapping initiatives may support
the achievement of this goal. A high level of compatibility with INSPIRE might
ensure that georeferenced data on existing telecommunications-oriented
infrastructure could be jointly analysed with data on utilities infrastructure
available
through
INSPIRE,
allowing
for
potential
exploitation
of
telecommunications/utilities synergies.
In the context of standards-based infrastructure mapping, the European project
VIRGO (Virtual Registry of the Ground Infrastructure) may determine an
interesting case as well. The project was initiated in 2014. It is coordinated by
Infratel Italia which is active in broadband mapping in Italy. VIRGO aims to
implement a virtual registry of infrastructure on the cloud using a standardised
system for under-, on- and above-ground infrastructure in Europe. The project
accordingly intends to produce results in terms of a harmonised structure for a
European virtual registry, guidelines for the relevant stakeholders, a white book
as a basis for a national/European legal framework, and pilot projects
implemented in Italy, Romania and Portugal.

An

in-depth

understanding

of

broadband

policies

as

well

as

universal

access/service policies becomes necessary in order to determine relevant

regulatory aspects for broadband service mapping. For any service that is
considered to fall under the definition of a universal service, universal
access/service policies (and the respective regulation) typically include provisions
that require monitoring and updating of a universal service. Mapping, hence,
constitutes an instrument to address such requirements for universal service.
17

INSPIRE Thematic Working Group Utility and Governmental services: D2.8.III.6 INSPIRE Data
Specification on Utility and Governmental Services Draft Technical Guidelines. Available at
http://inspire.jrc.ec.europa.eu/documents/Data_Specifications/INSPIRE_DataSpecification_US_v3.0rc3.pdf.
Page 43 / 280

The question of whether broadband service is a universal service (and whether

any mapping should therefore include broadband service as one of the covered
universal services) has so far not been answered in the same way worldwide.
Furthermore, it is important to realise that there might be multiple differing
definitions of broadband in different regions. When mapping broadband
infrastructure, service, demand and investment, differing notions need to be
reflected. This is equally important with regard to mapping exercises monitoring
the progress of broadband service coverage in relation to national or regional
broadband plans or broadband initiatives (similar terms may apply). Producing a
broadband service map constitutes a key instrument for many broadband
plans/initiatives.
The need for mapping as an instrument to facilitate the monitoring of universal
access/service or the progress of a broadband plan/initiative is also supported by
another policy domain, that of consumer rights. The proposal18 for a Regulation
of the European Parliament and of the Council laying down measures to complete
the European single market for electronic communications and to achieve a
Connected Continent stipulates in Article 25 that providers need to publish
transparent, comparable, adequate and up-to-date information among other
things on actually available data speed for download and upload in the endusers Member State of residence, including speed ranges, speed averages and
speed at peak-hours.

18

European Commission (2013): Regulation of the European Parliament and of the Council laying down
measures concerning the European single market for electronic communications and to achieve a Connected
Continent COM (2013) 627.
Page 44 / 280

Demand for providers to publish broadband service information

The consumer rights mentioned in the proposed Single Market Regulation with
regard to transparent, comparable, adequate and up-to-date information refers
the respective information duties to providers of broadband services. Broadband
service mapping determines a well-suited instrument for providers to address
these information duties.
Article 25 of the proposed Single Market Regulation aims for transparency and
publication of the following information duties. In addition to general information
about the provider (e.g. contact information), each broadband service needs to
be described with respect to applicable tariffs, quality parameters, applicable
charges and costs for terminal equipment.
For internet access services, therefore services of direct interest to broadband
services,

the

information

duties

cover

actually

available

data

speed

(down/uplink), any applicable data volume restrictions, the impact of speed,

limitations, and any specialised service on content, applications/services,
congestion avoidance techniques in place as well as contractual terms and
access to emergency services.
Of particular interest to broadband service mapping are provisions in Article 25
that relate to measurements: the legislator may impose methods for measuring
speed and quality of service parameters. In addition to methods, the level of
information that needs to be published will also be specified. The Regulation
proposal does not go into further details here, but in case of measurement result
publication, a broadband service map would certainly qualify as an appropriate
tool to show which speed/which quality is achieved where.
The Regulation proposal goes even further as it governs that end-users shall
have access to independent evaluation tools allowing them to compare the
performance of electronic communications network access and services. This
can be seen as another use case for broadband service mapping, in which the
result sets from evaluation tools are collected and displayed in a measurement
location-dependent manner in a broadband service map.

Broadband demand and investment mapping

Both public and private actors in the broadband market need to identify local
demand for broadband. For private actors, this enables the efficient allocation of
investments in broadband infrastructure. They can easily identify profitable
areas. Conversely, they can also easily spot areas where there is little or no
Page 45 / 280

promise for profits. For public actors, broadband demand mapping provides a
means to identify areas that require public support to get broadband access.
These

insights

can

also

be

used

to draw

up

new

regulations

in

the

telecommunications market (e.g. in the Long-Term Evolution (LTE) roll-out in

Germany, remote areas had to be connected first).
As regards investment mapping, two major perspectives come into play. First,
lack of sufficient broadband investment across Europe provides a sound
motivation for broadband investment mapping as it may enable us to identify
regions that qualify for public funding and thus simplify the process of accessing
public support wherever necessary. This seems particularly interesting in light of
the underspending in the European broadband infrastructure support from 2007
to 2013. By the end of 2010, only about one-fifth of the budget assigned to
regional and local broadband infrastructure improvement had been spent.
Obviously, Member States and in particular regional and local stakeholders
struggled with regulations and finding ways to attract private investors. While
the European Commission has taken some steps to improve the situation, e.g.
the Guide to Broadband Investment19 or workshops and seminars on the topic,
investment mapping might be an easy-to-access way of providing the right
information to all actors involved.
The second aspect of interest relates to regulatory framework conditions, for
instance, with respect to the question of whether regulations may require telecom
operators to publish their investment plans or information on state aid support
received. In this regard, it is important to realise that a key goal behind universal
access/service policies to close market gaps may determine tension with
competition-oriented

policies

regarding

limits

to

subsidies

for

broadband

development. An example of such a policy is the state aid guidelines (2013).20 It is

important to study the impact of related regulations on broadband investments. In
any case, broadband investment mapping constitutes a key instrument to visualise
market gaps and the potential for broadband investment.

Mapping as a necessary condition to assess state aid conformity

Investment in broadband by market players may be selectively complemented
by state aid and the respective national broadband strategies. In order to ensure

19

20

European Commission (2011): Guide to broadband investment, final report. Available at

http://ec.europa.eu/regional_policy/sources/docgener/presenta/broadband2011/broadband2011_en.pdf.
European Commission (2013): EU guidelines for the application of state aid rules in relation to the rapid
deployment of broadband networks. Available at http://eurlex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:C:2013:025:0001:0026:EN:PDF.
Page 46 / 280

that state aid for broadband is compatible with the single market, the state aid
guidelines govern that detailed mapping is mandatory.
The Digital Agenda for Europe (DAE) determines a broadband roadmap with
ambitious goals. The DAEs scoreboard targets broadband coverage for everyone
for 2013 and coverage with a bandwidth of more than 30 Mbit/s by 2020. Also,
by 2020 it envisions that every second household subscribes to broadband with
a bandwidth of more than 100 Mbps. Investment is needed to achieve a fast
roll-out of broadband infrastructure and service that is in line with these policy
goals.
Investment by market forces into broadband infrastructure is, however, not
uniformly distributed. While some (typically densely populated areas) see early
and fast investment by more than one operator, other areas may see limited
and/or

delayed

investment,

and

some

seem

completely

uncovered

by

investment and the respective broadband infrastructure. Where there is too little
commercial interest, state aid e.g. within the context of a national broadband
strategy may determine an instrument to provide incentive for investment
and, thus, for broadband deployment.
It is essential that state aid remains a complementary, not a substituting,
instrument to investment by market players. And state aid shall not lead to
competition distortion. With this in mind, and based on Article 107(1) of the
Treaty on the Functioning of the European Union (TFEU), the Commission issued
the EU guidelines for the application of state aid rules in relation to the rapid
deployment of broadband networks. These state aid guidelines are applied for a
compliance check of national broadband strategy actions.
Detailed

mapping

and

analysis

of

coverage

constitutes

not

only

recommended condition mapping constitutes a necessary condition that must

be fulfilled to demonstrate the proportionality of the measure. If a mapping
exercise is not conducted (or any other necessary condition is not met) a more
detailed assessment of the state aid in question may follow, possibly leading to
a conclusion that the aid is incompatible with the internal market.
And indeed, the analysis of Commission decisions on state aid to broadband21
shows that the condition of a mapping exercise is explicitly mentioned in nearly
every decision published. Mapping is typically considered in decisions for two
purposes: (1) to make target areas of state aid transparent, and (2) to inform
relevant stakeholders during a consultation period of planned state aid. This is
consistent with the motivation for mapping and public consultation provided in

21

Published regularly in the form of a PDF document available for download at

http://ec.europa.eu/competition/sectors/telecommunications/broadband_decisions.pdf.
Page 47 / 280

the state aid guidelines, which outline why mapping is essential in this context:
A detailed mapping exercise and a thorough consultation ensure not only a high
degree of transparency but serve also as an essential tool for defining the
existence of white, grey and black areas.

Infrastructure mapping as the key driver to reduce costs

The Commission has conducted an impact assessment22 accompanying its
proposal for a Regulation23 on measures to reduce the cost of deploying highspeed electronic communications networks. The impact assessment concluded
that infrastructure mapping constitutes an important means to positively
influence costs and to overcome investment hurdles into broadband.
The main cost driver when deploying new networks has been identified to consist
of up to 80 % in civil engineering costs (digging, ducting, etc.). This cost level
was determined by several studies, and it was further substantiated by means of
a public consultation. Co-deployment and use of existing infrastructure has been
identified as the key contributor to diminishing costs. The problem, however, is
that co-deployment and use of existing infrastructure are heavily underused.
The consultation has shown that there are several reasons for this under-usage,
including missing procedures for infrastructure sharing, administrative burden
and unsuitable existing equipment the top-most important reason being lack
of transparent information on available infrastructure.
Considering that the use of existing infrastructure is estimated to save up to
75 % of costs (in comparison to building new infrastructure), the Commission
realised the need to promote this. EU law was characterised to not cover the
required instruments sufficiently, especially when it comes to cross-utility
cooperation. The Commission stated that only a few NRAs dispose of the
necessary knowledge as well as legal basis regarding cross-utility cooperation.
Due to the identified lack of transparency (as the number one barrier to codeployment), infrastructure mapping has been focused on in the set of prioritised
policy actions assessed by the Commission. The structural funds and the
proposed Connecting European Facility are mentioned explicitly as potential
funding instruments. The INSPIRE Directive is referred to as a potential
connecting point as well, but given the architecture of the INSPIRE Directive, the
22

European Commission (2013): Impact Assessment Accompanying the document 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. Available at
http://ec.europa.eu/information_society/newsroom/cf/dae/document.cfm?doc_id=1907.
23
This proposal was the basis for the Cost Reduction Directive (see Footnote 12). The Commission proposal is
available as COM (2013) 147 final.
Page 48 / 280

operators are not in a position to directly benefit from the available information
to deploy broadband.
In terms of a cost-benefit analysis, the Commission states that costs to build
infrastructure mapping would be marginal or sunk for those 17 Member States
that are currently working on implementing infrastructure mapping. The
remaining Member States are reminded to consider that a mapping exercise may
have to be undertaken anyway in order to comply with the Broadband Guidelines
and the INSPIRE Directive.

Page 49 / 280

5 Review of existing national broadband mapping

initiatives
The overarching objective of the present study is to develop a coherent
broadband mapping methodology that is applicable in all EU Member States and
that can adapt to various mapping contexts such as service mapping or
investment mapping. The first research objective contributing to fulfilling the
overarching objective is to review existing broadband mapping objectives. This
first research objective was approached from two sides: (1) desk research and
(2) gathering information from broadband mapping initiatives directly. The desk
research took an inventory of existing broadband mapping initiatives in EU
Member States. It also identified broadband mapping initiatives in major
countries outside the EU, such as the United States and Norway. Direct
information gathering was limited to public national broadband mapping
initiatives in EU Member States.24 The process split into an online questionnaire
and on-site visits including personal expert interviews with staff at broadband
mapping initiatives.
Figure 5-1: Data collection process25

On-site Visits
Online Questionnaire

and
Telephone Interviews

The following chapter presents the results of our review of existing public
national broadband mapping initiatives in EU Member States. First, the chapter
provides an overview of existing public national broadband mapping initiatives in
EU Member States as well as some insight on plans to extend existing initiatives
or commence new ones. More detailed information gathered on individual
Member States initiatives and initiatives in Australia, Canada, New Zealand,
Norway, Switzerland and the United States is shown in the annex. These country
portraits draw on desk research as well as selected questionnaire results. The
second part of the chapter presents the results of the online questionnaire. First,
results are presented that provide insight into the general functioning of
broadband mapping initiatives. After that, the chapter focuses on insights that

24

25

One mapping initiative from outside the EU28 also took part in the online survey. The initiative was from
Switzerland. The conditions there are assumed to be sufficiently similar to the EU28 to include it in the
review without explicitly referring to its individual responses.
Please note that the on-site visits are still ongoing and additional information may further alter the content of
the following section.
Page 50 / 280

provide immediately relevant insights for developing a comprehensive mapping

methodology.

5.1 Inventory of public national broadband and infrastructure

mapping initiatives in EU Member States
The first part of the review of public national broadband mapping initiatives in EU
Member States consisted of desk research conducted to build an inventory of
existing initiatives. This section reports the results of this desk research. The
inventory includes operating as well as planned broadband mapping initiatives.
Although for some countries more than one initiative per type was identified, the
inventory only shows if there is at least one initiative for each type of broadband
mapping considered in the study.
The present study considers four types of broadband mapping (see Chapter 3):
(1) service mapping, (2) infrastructure mapping, (3) demand mapping and (4)
investment mapping. Taking all four types of broadband mapping into account,
our research shows that except for Bulgaria and Malta, all Member States are
currently conducting (or in the case of Latvia and Romania planning for) at least
one type of broadband mapping initiative (see Figure 5-2). The most common
type of mapping initiative is service mapping (operational in 20 EU Member
States). At least one mapping initiative is operational in the realm of
infrastructure mapping in 15 EU Member States. Six and four EU Member States
currently conduct mapping initiatives on demand and investment respectively
(see Table 5-1). In 13 Member States, there is initial effort or plans to establish
new types of broadband mapping (see Table 5-1). These early efforts and plans
revolve mainly around infrastructure and service mapping activities matching the
most important types of broadband mapping initiatives already present in most
Member States. This clearly echoes the relevance these mapping categories hold
for policymakers and national regulatory agencies, but also indicates that there is
a demand for this information in the public realm, e.g. by infrastructure or
telecommunication providers to reduce costs in the process of building additional
infrastructure. Demand and investment mapping play only a minor role in the
plans of Member States.

Page 51 / 280

Figure 5-2: EU Member States (EU28) with broadband mapping

initiatives in operation (green: Member State with mapping initiative, blue: no
information available)

Table 5-1: Overview of operating and planned types of broadband

mapping initiatives in EU Member States*
Country

Service
Mapping

Infrastructure
Mapping

Demand
Mapping

Investment
Mapping

Austria
Belgium
Bulgaria
Cyprus
Croatia
Czech
Republic
Denmark
Estonia
Finland
France
Germany
Greece

Page 52 / 280

Service
Mapping

Country

Infrastructure
Mapping

Demand
Mapping

Investment
Mapping

Hungary
Ireland
Italy
Latvia
Lithuania
Luxembourg
Malta
Netherlands
Poland
Portugal
Romania
Slovakia
Slovenia
Spain
Sweden
UK

1 Existing broadband mapping initiatives

Planned broadband mapping initiatives
*The table shows if there is at least one initiative in the respective country. There is no count of initiatives.

5.2 Survey results review of existing broadband mapping

initiatives
While the inventory of public national broadband mapping initiatives provides
general insight into the types of broadband mapping conducted and highlights
their importance, it cannot shed much light on how broadband mapping
initiatives function. Hence, it is also not suited to deliver the necessary insight to
develop a comprehensive methodology for broadband mapping, which is the
overarching objective of the present study. Consequently, a survey and on-site
visits were used to gather more in-depth first-hand information from the existing
initiatives. The box on the next page provides some key facts on the
methodology used to gather the information as well as on selected quality
measures for the survey such as response rate. The remainder of this chapter
presents the major results of the online survey administered to public national
broadband mapping initiatives identified in the inventory (see 5.1). The
presentation of these results is structured along major building blocks necessary
Page 53 / 280

to compose a profound understanding of how existing mapping initiatives

function, which in turn will support the development of comprehensive
methodology applicable across different types of broadband mapping and across
EU Member States.
Methodology
Online survey of existing broadband mapping initiatives in EU Member States
The online survey enabled the systematic gathering of information on existing
broadband mapping initiatives. The survey design was shaped by key results
gained in a pre-study, which was conducted in preparation for the present
study. In particular, the survey was construed around the main issues relating
to broadband mapping identified in the pre-study. The questionnaire featured
individual sets of questions aligned to four types of broadband mapping, namely
(1) service, (2) infrastructure, (3) demand and (4) investment mapping. The
complete questionnaire is provided in the annex. Additional telephone interviews
were used to clarify open issues represented in some of the questionnaires.
The total sample of the online survey was 30 completed questionnaires.
However, it has to be noted that not all initiatives partaking in the survey were
able to answer all questions. First of all, there was no obligation to answer all
the questions. Secondly, some initiatives had just commenced their broadband
mapping activities and therefore may not have had the necessary insight yet.
Software used: LimeSurvey
On-site visits and interviews
In total, four on-site visits were conducted by the study team as part of the
review of existing mapping initiatives. A further six on-site visits also fed
information into the review process, but were mainly aimed at gaining
information and feedback on the methodology that represents the overarching
research objective for the present study.
As part of each on-site visit, interviews were conducted by the study team with
members of staff of the national broadband mapping initiative. These interviews
were guided by semi-structured discussion guides. This enabled comparisons
across different interviews, but also allowed the specific questions to be tailored
to the particular initiative.

This chapter presents and discusses the major results of the online survey, the
additional telephone interviews and the on-site visits that provide general insight
into the functioning of EU Member States broadband mapping initiatives or hold
Page 54 / 280

immediate implications for the development of the mapping methodology, which

is the overarching research objective of this study. These two research questions
provide the structure for this chapter. In the following sections, results from
infrastructure and service mapping initiatives are presented. Due to the small
number of responses (which was expected) from demand and investment
initiatives, the insight gathered on these two types will be briefly described
afterwards.
5.2.1 The sample of EU Member States broadband mapping initiatives
Section 5.1 reported that in 24 EU Members States there is at least one mapping
initiative in operation. In total, the desk research identified 45 types of
operational mapping initiatives26 in the EU28. The online survey conducted as
part of the review of mapping initiatives provides a good representation of the
identified initiatives. In total, 30 mapping initiatives27 responded to the online
survey. Also by splitting by type of mapping initiative, a good representation of
existing initiatives can be assumed. Mapping initiatives in the sample represent
all four types of mapping initiatives relevant to the context of this study. Table
5-2 depicts the sample of the online survey. In total, 19 initiatives reported that
they collect infrastructure data, while 21 reported collecting data on service
provision. As expected, a much smaller number reported that they collect
demand (four initiatives) or investment data (three initiatives). For some
countries, more than one initiative participated in the survey. For instance, from
Lithuania multiple responses were received for the existing initiatives. Minor
inconsistencies were resolved by direct contact with the individual respondents.
Responses refer to both operational and planned initiatives.
Table 5-2: Sample of the online survey
Organisation

Country

Federal Ministry for

Transport, Innovation and
Technology ; Broadband
Bureau

Austria

Belgian Institute for Postal

services and
Telecommunications
(BIPT)

Belgium

Croatian Regulatory
Authority for Network

Croatia

26

27

Infrastructure

Services

Demand

Investment

This number refers only to the existence of a specific type of mapping initiative. It is not a count of all
mapping initiatives. Some Member States, for instance, have got more than one service mapping initiative at
the national level.
One of these initiatives is from Switzerland and therefore not represented in the inventory.
Page 55 / 280

Organisation

Country

Infrastructure

Services

Demand

Investment

Industries (HAKOM)
Office of the Commissioner
for Electronic
Communications and
Postal Regulation
(OCECPR)

Cyprus

Czech Telecommunication
Office (+ Ministry of
Industry and Trade)

Czech
Republic

Energy Regulatory Office

(ERO)

Czech
Republic

Danish Business Authority

(DBA)

Denmark

Estonian Broadband
Development Foundation

Estonia

Finnish Communications
Regulatory Authority
(FICORA)

Finland

Ministry of Transport and

Communications

Finland

Administrative
Authority
for Post and
Electronic Communications
regulation (ARCEP)

France

Mission France Trs Haut

Dbit

France

Federal Ministry for

Economic Affairs and
Energy

Germany

National Regulatory
Authority Germany

Germany

Ministry of National
Development

Hungary

Economic Development
Ministry

Italy

Public Utilities Commission

(NRA)

Latvia

Public Establishment
Placiajuostis Internetas

Lithuania

National Regulatory
Authority Lithuania (RRT)

Lithuania

Information Society
Development Committee
Under the Ministry of
Transport and
Communications (ISDC)

Lithuania

Communications
Regulatory Authority of the

Lithuania
Page 56 / 280

Organisation

Country

Infrastructure

Services

Demand

Investment

Republic of Lithuania
ACM

Netherlands

ANACOM

Portugal

Infratel Italia

Italy

Vyskumny Ustav Spojov,

N. O.

Slovak
Republic

Comisin del Mercado de

las Telecomunicaciones
(CMT)

Spain

Secretara de Estado de
Telecomunicaciones y para
la Sociedad de la
Informacin

Spain

Swedish Post and Telecom

Authority

Sweden

OFCOM CH

Switzerland

Ofcom

United
Kingdom

While the number of initiatives in EU Member States is already quite impressive,

there are some initiatives that have to be considered one-off exercises since the
data is not updated on a regular basis nor planned in the near future. Based on
their responses in the questionnaire, three infrastructure mapping initiatives
appear to be one-off exercises. These initiatives are the ones by BIPT (Belgium),
the Public Utilities Commission (NRA) (Latvia) and ISDC (Lithuania). Within the
service mapping initiatives, only one initiative appears to be a one-off exercise
(Lithuania (ISDC). The service mapping initiative by BIPT in Belgium provides
updates on some data, but not on all. All other mapping initiatives receive and
publish new data at least annually.
5.2.2 General insight into the functioning of EU Member States
broadband mapping initiatives
Organisational Outfit
To understand the functioning of broadband mapping initiatives, one first has to
gather insight into the organisational outfit of broadband mapping initiatives.
Table 5-3 provides an overview of the organisational outfit of our sample of
initiatives. Overwhelmingly, national public broadband mapping initiatives in the
sample are contracted by their respective NRA (17) or a Ministry (8). In line with
this result, 21 of the 30 mapping initiatives in the sample are undertaken by a
Page 57 / 280

public authority. Most commonly they are carried out by the respective NRA.
Other organisational outfits are less frequent.
Table 5-3: Sample of the online survey
Contracting Authority

Organisational Outfit
N

NRA

17

55

Public authority

21

68

National Ministry

26

Private company

10

Regional Ministry

Voluntary initiative

Private company

Cooperation

13

Other

13

Other/No answer

Sum

31

100

Sum

31

100

Objectives and target groups

The objectives of the mapping initiatives in our sample are logically linked to the
type of broadband mapping conducted. The responses are generally in line with
expectations already drawn up in Chapter 3. Infrastructure mapping initiatives
concentrate on the Facilitation of broadband network roll-out followed by
Information/transparency and Generation of synergies/cost reduction. The
spatial allocation and monitoring of state aid seem to be of secondary interest.
Figure 5-3: Objectives of infrastructure mapping

Please indicate the objectives of the infrastructure mapping carried out by your
initiative.
Facilitation of broadband network rollout

80

Information / transparency

59

Generation of synergies / cost reduction

38

Target orientated spatial allocation of state aids (i)

33

Monitoring of allocated state aids (ii)

Other, please specify

24
5

*Respondents were asked to rank the objectives listed. Points were given to each rank (rank 1 = 6
points to rank 6 = 1 point). The figure shows the total points for each item. Please note that not all
respondents ranked all items.

In case of broadband service mapping, the most common objective is to acquire

Page 58 / 280

knowledge about the current state of play of the national broadband roll-out and
to monitor its progress. Data is also used to identify areas of market failure by
mapping initiatives themselves. In the on-site visits, it became clear that it is
likely that this objective is only carried out by initiatives themselves if they also
either themselves or through their contracting authority initiate support
measures for these regions. Otherwise, other stakeholders (e.g. regional
authorities) tend to use the data made available by the initiatives to argue their
case for receiving state aid. These results indicate that objectives laid out in
Chapter 3 tend to be congruent with those of the actual mapping initiatives.
However, more effort could be given to the identification of regions eligible for
state aid as well as subsequent support.
Figure 5-4: Objectives of service mapping*

Please indicate the objectives of the service mapping carried out by your initiative.

Knowledge on the current national broadband situation

74

Monitoring of progress in broadband roll-out

67

Creation of a knowledge base regarding identification of

spots affected by market failure for allocation of state aid

42

Creation of a knowledge base regarding the controlling of

allocated state aids

29

Comparison with other Member States

Other, please specify below

27
10

*Respondents were asked to rank the objectives listed. Points were given to each rank (rank 1 = 6
points to rank 6 = 1 point). The figure shows the total points for each item. Please note that not all
respondents ranked all items.

Chapter 3 has also listed potential target groups for infrastructure and service
mapping. It was assumed that investors and operators would be the most
important target group for infrastructure mapping initiatives next to NRAs. The
responses from the online survey indicate a slightly different picture as Figure 55 shows. While public authorities (e.g. NRAs) are the most important target
group, investors such as operators are only in the focus for a few of the
infrastructure mapping initiatives. This is interesting since there should be a
general mutual interest to be aware of where which infrastructure has been
deployed as well as if and how it might be put to additional use.
Page 59 / 280

Nearly as often as service mapping initiatives target public authorities, they

target telecommunications, e.g. operators. These stakeholders may use the data
accessible via the initiative to obtain insight into the broadband service market
situation. The most obvious difference compared to infrastructure mapping
initiatives target groups is the role that consumers play. Service mapping is
often construed as an information platform for consumers if and what type of
broadband is available at their (future) home.
The on-site visits also shed some light on if and how target groups use the data
provided by the initiatives. The most active user of data is usually the NRA often
also

acting

as

contractor

for

the

mapping

initiative.

Telecommunication

companies apparently make less use of infrastructure mapping, at least in the

context of deploying new infrastructure. More often than not information on
whether existing infrastructure can be used to reduce cost of deployment is
obtained by informal ways. Telecoms usually have a good knowledge of the
market and who has deployed infrastructure in a specific area. Thus, they usually
contact the company directly. If they do not have this information, a register like
the one in Sweden28 can be very helpful. The on-site visits indicate that
consumers tend to visit broadband service mapping web portals before deciding
on moving house as they would like to make sure that the new home will at least
match their current level of broadband speed.29 Also several initiatives reported a
peak in consumer requests when they commenced their web service. They
attributed this to the novelty value of being able to check what broadband speed
ought to be available in ones neighbourhood.
Figure 5-5: Target groups of mapping*

Who are the main target groups of the mapping?

Public authorities

132

Companies related to telecommunications

117

Private persons

52

Industrial users/commercial users

Investors

48
39

28

ledningskollen.se.
For example, the study Why Consumers Love FTTH The FTTH Consumer Experience Study found that
for FTTH users in Sweden, quality of broadband is the first criterion after house price when choosing a new
home (http://www.diffractionanalysis.com/2014/04/10/free-webinar-on-swedish-consumer-study/)
29

Page 60 / 280

*Respondents were asked to rank the objectives listed. Points were given to each rank (rank 1 = 5
points to rank 5 = 1 point). The figure shows the total points for each item. Please note that not all
respondents ranked all items.

Costs of broadband mapping

The costs of a mapping initiative are an important parameter to consider
irrespective of whether the initiative is undertaken by a public authority or a
private entity. The online survey inquired about the cumulative costs of the first
three years of conducting the mapping initiative. Responses vary considerably for
this item. While one30 mapping initiative claims to have spent only 5,000 in the
first three years of operation, another mapping initiative has spent 1.5m over
the same time period. However, these results have to be interpreted very
carefully. Numerous issues are likely to influence the cost associated with the
first three years of operation. Most obviously labour costs differ significantly
across EU Member States. For instance, the specific year of commencing work
may also influence costs due to changing economic environments. Other factors
influencing costs in the first three years may include the type as well as the
number of types of information mapped (e.g. service and demand), the level of
granularity at which the respective information is mapped and the level of
fragmentation in the telecommunications and utilities market of the specific EU
Member State, i.e. a very fragmented market is likely to induce higher costs for
collecting and processing the data (including steps needed for the purpose of
data quality assurance). Finally, the specific objectives of an individual mapping
initiative are likely to influence its cost structure, e.g. depending on the emphasis
that is placed on public relations.
The huge difference between the lowest and the highest value identified in this
question provokes us to analyse the costs associated with the first three years of
operation in more depth.31 Due to obvious limitations of sample size, statistical
analysis does not seem to be an option. However, scatterplots of cost data
against other variables may be able to identify patterns potentially hidden in the
data.
First and foremost, it would seem obvious that the number of employees is an
important factor. The scatterplot presented below, however, does not indicate a
clear pattern. Rather, the distribution of data points appears to be random. One
possible explanation is that the number of employees is not necessarily a good

30

For reasons of confidentiality, individual mapping initiatives cannot be named publicly.

The period of three years has been chosen as it is a sufficient time frame to set up and implement the
broadband mapping initiative.
31

Page 61 / 280

predictor of the volume and scope of the work that is done by specific broadband
mapping initiatives as numerous initiatives outsource some or all of the work to
external consultants.32 Thus, in fact, cost may be relatively higher with fewer
employees.
Figure 5-6: Scatterplot number of employees vs costs*

*y-axis: Number of employees working for initiative; x-axis: cumulated costs for the first three
years of operation in euros

32

See next section Operation of mapping initiatives.

Page 62 / 280

Figure 5-7: Scatterplot costs vs number of data suppliers

*y-axis: Number of data suppliers to the initiative; x-axis: cumulated costs for the first three years
of operation in euros

The scatterplot for costs and number of data suppliers seems to provide a more
plausible explanation. The number of data suppliers can be understood as a
proxy for market fragmentation in the specific country. However, it should be
noted that three initiatives handle a very large number of data suppliers with
relatively limited costs. Nonetheless, one may tentatively assume that there is a
link between number of data suppliers and therefore considerably more workload
collecting and analysing data and costs of the mapping. At least for two out of
the three initiatives that are able to work in a market that is highly fragmented
at marginal costs, it is known that they work with address (raw) data provided
by the operators, which supports that this is the preferable way. This also seems
to be true from the side of the operators, because all of them will have addresslevel data available. There is no need to further recode, aggregate or otherwise
manipulate the data before sending it to the initiative.
Operation of mapping initiatives
The first question that arises as regards the operation of mapping initiatives is
who is performing the numerous tasks that are necessary to conduct the
mapping exercise and to present or publish the results. In the online survey, five
Page 63 / 280

typical tasks were defined and responding initiatives were asked to indicate
which of those tasks they outsourced. The five tasks were:

development of mapping concept;

development of tools;

data collection;

data processing;

system operation and maintenance.

Usually, only a few members of staff are assigned to mapping initiatives.

Sometimes these members of staff are actually employed by the NRA and only
part of their time is associated with work for the mapping initiative. Other
mapping initiatives devote full-time personnel who work on little else. Three
initiatives claimed not to have any employees at their disposal; rather, most of
the tasks are outsourced. However, outsourcing specific tasks of the workload is
not limited to staff-strapped initiatives. On average, 1.6 tasks out of a set of 5
typical mapping tasks are outsourced to external consultants or firms (see Table
5-4). Three initiatives outsource four or more of the five tasks. These are the
initiatives with the fewest fully dedicated staff. Otherwise, there is no clear
correlation identifiable between number of employees and number of tasks
outsourced.
Table 5-4 also provides insight into which tasks are most commonly outsourced.
Development of tools and data processing are outsourced by 10 and 9 initiatives
respectively. Mapping initiatives rarely outsource the development of the
mapping concept and the actual operation of the mapping.
Table 5-4: Number of employees (FTE) and tasks outsourced by
initiatives
Employment (No of staff (FTE))
Average

Median

Minimum

0.1

Maximum

Outsourcing (No of initiatives)

Task

Outsourced by [] initiatives

Development of tools

10

Data processing

Data collection

Development of mapping concept

Page 64 / 280

System operation and maintenance

Average number of outsourced tasks

1.6

For the tasks that mapping initiatives perform themselves, specific software is
needed. Such software is available as licensed or open source code. A third way
to process data is to use standard software such as an Office suite that has often
already been purchased and licensed. The responses in the online survey show
that mapping initiatives make use of the full spectrum of software types.
However, some differences are noticeable as regards the specific tasks to be
performed as part of the initiatives operation.
The majority of initiatives use at least one kind of standard software for the tasks
of data collection and processing as well as publication and visualisation. It may
be presumed that more often than not an office solution of one kind or another
plays a part in this. Licensed software appears to be most important for data
processing. A high number of infrastructure mapping initiatives use licensed
software for this task. The previous section found that the costs associated with
the first three years of infrastructure mapping tend to be higher than for service
mapping. A major part of this difference may be explained by the importance of
licensed software for conducting infrastructure mapping. The on-site visits
confirmed that if one needs licensed software, this incurs major costs.
Figure 5-8: Mapping software
What kind of software is used for
infrastructure

What kind of software is used for

service

A mix of licensed and open software is also common among infrastructure

mapping initiatives, again mainly for data collection and processing. Service
mapping initiatives tend to rely more on standard software for these tasks. Little
difference is found in the use of open software between infrastructure and
service mapping initiatives. The following section takes a closer look at the data
collection process.

Page 65 / 280

Data collection
Data collection is really at the core of any broadband mapping initiative; it plays a
major role in understanding the functioning of broadband mapping across EU
Member States. Therefore, this section is slightly longer and more detailed than
the others. To understand the data collection process, one first and foremost has
to consider which data is actually gathered by the mapping initiatives in the online
survey. This was also the first question respondents were asked. Naturally, the
types of data gathered differ between infrastructure and service mapping
initiatives and therefore will be discussed separately in this study.
Infrastructure mapping
In line with their objectives, infrastructure mapping initiatives across EU Member
States focus on gathering data on telecommunication infrastructure such as
cables, network elements and radio towers. At least eight existing initiatives are
also collecting data on ductworks. The mapping of non-telecommunicationinfrastructure (e.g. water and electricity) is not yet a common feature of
infrastructure mapping initiatives. As infrastructure mapping initiatives often
receive the information about the infrastructure from the owners of the
respective infrastructure, it can be assumed that the initiatives do hold data
about infrastructure ownership even though this data may not be published or
otherwise made use of. If mapping initiatives do not collect this data, it seems
likely that they could easily amend their data gathering and storing accordingly.
A noteworthy way of linking infrastructure owners and potential infrastructure
users can be seen33 in Sweden and the Netherlands. In these countries, there are
central points of contact instead of an always fully data set of infrastructure.
These central points of contact are open to anyone who seeks to build or deploy
infrastructure and everyone doing so is encouraged to make contact. Staff at the
contact point then link the potential builder or user to all owners of infrastructure
in the respective area so that both parties can learn which infrastructure is
already there and can negotiate if and how additional usage is possible. Such a
system of contact establishment is motivated by increased coordination and, in
particular, by preventing damage to existing infrastructure.
Damage prevention mapping and civil works coordination systems constitute a
special form of infrastructure/investment mapping which offer the potential for
cost savings and which are relevant also in the context of broadband
infrastructure deployment. A number of examples for damage prevention and

33

These insights were gathered in an on-site visit and a telephone interview.

Page 66 / 280

civil works coordination systems in operation were mentioned in the report34

summarising the results of the public consultation carried out in view of the
preparation of the cost reduction proposal. Most of these systems were found to
be implemented on a local level, with fewer on the regional or national level.
Effort on the regional/national scale was mentioned in the Netherlands, Slovenia,
Denmark, Italy and Spain. The Klic35 (the Netherlands, national) and Klip36
(Belgium, Flanders region) initiatives and local initiatives in Sweden and Norway
were mentioned in terms of potential best practice cases.
The example of Sweden is called ledningskollen.se. The initiative directs
enquiries to all listed companies owning infrastructure; in practice, it is a
database of companies and their relevant contacts for companies who plan road
or construction works that acts as a middleman.
Figure 5-9: Infrastructure mapping collected data

Please specify the infrastructure data you collect.

Number of answers

14
12
10
8
6
4
2

The most frequent suppliers of infrastructure data are telecommunication

companies. While crowdsourcing was not used as a source for infrastructure data
in any of the surveyed infrastructure mapping initiatives, ISPs and municipalities
are typical infrastructure data suppliers. Also, utilities and governments are
suppliers of infrastructure data, albeit not in most of the infrastructure mapping
initiatives. Thus, infrastructure mapping initiatives bring together data from
numerous sources. Which data is supplied and who supplies it is further depicted
in Figure 5-10.

34

http://ec.europa.eu/information_society/newsroom/cf/dae/document.cfm?doc_id=1065&ei=c.
http://www.kadaster.nl/klic.
36
http://klip.agiv.be/.
35

Page 67 / 280

Figure 5-10: Infrastructure mapping data suppliers

Who supplies data?

Figure 5-11: Infrastructure mapping data suppliers differentiated

Who supplies data?

The number of data suppliers varies greatly. This has already been mentioned in
the cost section of this chapter. There, it emerged that with an increasing
number of stakeholders that have to be handled by a mapping initiative, it is
likely that costs will also rise. Generally, the number of data suppliers depends
on the size of the country and the objectives of the mapping initiative, e.g.
whether they include lots of infrastructure that is not in the original field of
telecommunication and the fragmentation of the telecommunications market in
their country. The comparison of the on-site visits in the UK and in Poland
brought to the fore two widely differing approaches. In the UK 99 % of the
market is covered by only a few companies. Combined with the major aim of
Page 68 / 280

preparing annual reports on the broadband situation for the government, the
supply of data from the major operators is sufficient. In Poland, in contrast, the
largest 10 to 12 operators only cover approximately 80 % of the market. The
remaining 20 % is covered by 3,500 small operators. This aspect in combination
with a legal obligation for every operator to supply data leads to a very high
number of data suppliers.
Service mapping
Linked to their objectives, broadband service mapping initiatives collect a
different set of data compared to infrastructure mapping initiatives. In line with
expectations presented in Chapter 3, data on coverage/availability of broadband
and the available37 speeds (bandwidth) are collected by the vast majority of
broadband service mapping initiatives. According to the online survey, 8 out of
the 21 service mapping initiatives in the sample also collect data on take-up of
broadband services and thereby provide more relevant insight for telecom
operators and ISPs. Traffic volumes and quality of service data is collected by
only a few mapping initiatives.
Figure 5-12: Service mapping collected data
Please specify the broadband data you collect.

Considering the mapping of coverage/availability in more detail, it can be seen

that mapping of availability downstream speeds is carried out by twice as many
initiatives as the availability of upstream speeds. The number of available
providers is also of great importance. Commonly, service mapping initiatives do
not distinguish between availability of broadband speeds for private and for
commercial customers. If they do distinguish, they usually are able to map both,
37

The questionnaire did not differentiate between average, minimum or advertised speed.
Page 69 / 280

i.e. they can also highlight potential differences in broadband services accessible
to private compared to commercial customers.
Figure 5-13: Service mapping collected coverage data
Please specify the broadband coverage/availability data you collect

To achieve the objective of monitoring the broadband roll-out, available

broadband speeds have to be taken into account next to mere coverage. The
informative value of this data strongly depends on the number and specification
of the broadband speeds represented in the broadband service mapping. On the
one hand, these speeds have to enable a good depiction of the actual and
relevant state of broadband roll-out. For instance, in Germany a map of the
availability of broadband at 1 Mbit/s is of little use to stakeholders as this goal of
Germanys broadband strategy has been achieved already and this speed does
not satisfy the demand for bandwidth. On the other hand, the scale used must
also

represent

policymakers

goals

for

broadband

roll-out

as

otherwise

monitoring the goals is not possible. It is therefore not surprising that the most
frequently used speed in the scales of broadband service mapping initiatives is
30 Mbit/s which is the threshold most commonly used to distinguish a highspeed or an NGA network, without excluding LTE.

Page 70 / 280

Figure 5-14: Service mapping bandwidths downstream38

Please specify the broadband coverage/availability data you collect
Downstream

Next to the available bandwidth, the available technologies to access the internet
in a specific area provide important information for consumers and other
stakeholders such as policymakers alike. For instance, in theory, the bandwidth
in an area where an LTE network is available may be as high as 50 Mbit/s.
However, due to LTE being a shared medium the bandwidth achieved in practice
tends to be much lower. In general, data on fixed broadband technologies is
collected more commonly by broadband service mapping initiatives than data on
wireless access technologies. Only about half of the initiatives in the sample
collect data on Wi-Fi or WiMAX. Even fewer initiatives include satellite access in
their mappings.

38

Please see Table 8-49: Collected information on bandwidth speeds

Page 71 / 280

Figure 5-15: Service mapping technologies39

Please specify the technologies considered in the data collection.

The attributes of the technologies considered by the service mapping initiatives

in our sample already give some indication of which access to the internet they
are likely to enable. Overall, most service mapping initiatives collect at least all
possible technologies for fixed internet connections. As shown above, they also
collect the potential access speeds.40 Cross-tabulation of this data provides a
good overview of what access is available where and what might be the potential
available top-speeds by tuning the existing technology.
In line with expectation, data on broadband service is usually supplied by
telecoms

or

ISPs.

Only

one

initiative41

mentioned

the

population,

i.e.

crowdsourcing, as a source of data for the mapping of information on quality of

services. As already described for infrastructure mapping, the number of
contributing data suppliers varies greatly.

39

Please see Table 8-51: What technologies.

Information on data collection for each broadband mapping initiative can be found in 8.1.1: Country profiles
of national broadband mapping initiatives
41
Within the German broadband mapping website, the user is able to give feedback on the actual speed received
to validate the data.
40

Page 72 / 280

Figure 5-16: Service mapping data suppliers

Who supplies data?

Publication of results
Both infrastructure and service mapping initiatives use several formats for
publication. Static maps are by far the most common format. Around two-thirds
of infrastructure initiatives and almost three-quarters of service mapping
initiatives use this format for publication. Interactive web-based maps, tables
and statistic reports are used less often by infrastructure mapping initiatives
compared to their service counterparts.
All data publication formats seem to be dedicated to either public or restricted
format; very few initiatives used one and the same format for both types of
access to their data. Data access policies differ across infrastructure and service
mapping initiatives. There is no clear pattern; however, often the information
that is available on a restricted level, i.e. usually within the telecommunications
sector as it was reported in the on-site visits, tends to be more detailed. For
instance, initiatives will offer aggregated locations publicly, but give restricted
access to exact location data for specific stakeholders, sometimes on an
individual contract basis. It appears to be likely that the level of detail that
initiatives

gather

and

hence

publish

may

affect

their

impact

in

the

telecommunication industry as well as other sectors and society. However, from

data gathered in the present study, this effect is hardly discernable and would
require a research project that specifically focuses on the effect of broadband
mapping.

Page 73 / 280

Table 5-5: External access to data

Number
Static
maps
Infrastruc Public
ture
Restricted

Service

Total

Interactive
web-based
maps

Per cent

Statistics Tables
(e.g. in
reports)

Geodata
(geodata files or
web services)

Static
maps

Interactive
web-based
maps

Statistics
(e.g. in
reports)

Table
s

Geodata
(geodata files or
web services)

33.3

26.7

26.7

33.3

20.0

20.0

13.3

33.3

26.7

26.7

Both

6.7

0.0

6.7

0.0

0.0

Not available
outside the
initiative

40.0

60.0

33.3

40.0

53.3

Sum

15

15

15

15

15

100.0

100.0

100.0

100.0

100.0

Public

60.0

53.3

60.0

53.3

6.7

Restricted

13.3

6.7

20.0

33.3

33.3

Both

0.0

0.0

13.3

6.7

6.7

Not available
outside the
initiative

26.7

40.0

6.7

6.7

53.3

Sum

15

15

15

15

15

100.0

100.0

100.0

100.0

100.0

Public

14

12

13

13

46.7

40.0

43.3

43.3

13.3

Restricted

16.7

10.0

26.7

30.0

30.0

Both

3.3

0.0

10.0

3.3

3.3

Not available
outside the
initiative

10

15

16

33.3

50.0

20.0

23.3

53.3

Sum

30

30

30

30

30

100.0

100.0

100.0

100.0

100.0

Page 74 / 280

Towards the end of the online survey, respondents were asked to fill in openended questions on more general aspects relating to their broadband mapping
initiatives standing within the wider frame of stakeholders, the strengths and
weaknesses of the methodology used as well as potential areas for improvement
and better support from stakeholders or the European Union. The information
gathered through these questions provides insight into how broadband mapping
initiatives are perceived by stakeholders and what they see as their specific
strengths and weaknesses as well as what additional support may be needed.
According to the initiatives themselves, data gathered and presented by
broadband mapping initiatives is used by public administration as well as the
private sector. This result indicates that the target groups of broadband mapping
initiatives are actually reached and that cost reduction rationale for further
infrastructure deployment often being the political impetus behind broadband
mapping may actually work.
In general, feedback is perceived to be positive by initiatives. Rare criticism
refers most commonly to the spatial resolution of the data presented. Initiatives
recognise this as one major issue where improvements are possible and likely to
have a positive effect on other underlying objectives of broadband mapping such
as rendering state aid allocation more effective. Another area for improvement
indicated by initiatives is the automation of data collection, which they think to
be one of the major drivers of broadband mapping cost reduction. Responding
initiatives would also like to enhance international exchange among EU Member
States broadband mapping initiatives in order to learn from each other.
These insights also indicate issues to be considered in the development of a
comprehensive methodology for broadband mapping, which is the overarching
research objective of the present study. The following section will further support
this research objective by analysing the data gathered in the online survey in
more depth.
5.2.3 Insights

guiding

the

development

of

comprehensive

broadband mapping methodology

What is driving costs of mapping?
To understand what is driving costs, it is most appropriate to split the costs
reported by the initiatives into two major categories: (1) fixed costs and (2)
operational costs. Fixed costs tend to be costs that are closely linked to the initial
set-up of the initiative. Operational costs commonly refer to the recurring costs
for running the initiative. In the questionnaire, initiatives were asked to split the

Page 75 / 280

costs they reported for the first three years42 of operation into:

concept and tool development;

software43/hardware/data licences;

data collection and processing;

system operation/maintenance;

not specified.

The first two points were understood as fixed costs, whereas points three and
four represent operational costs. Table 5-6 depicts the cost structure of
infrastructure and service mapping initiatives in the sample. 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 three years of operation. It is plausible that the share of
fixed costs further reduces over the operation of the initiative in later years.
Interestingly, expenses for software and hardware are more important in the
case of infrastructure mapping than they are in the case of service mapping. This
may be due to the more complex task of dealing with numerous different types
of infrastructure.
The longer an initiative is in operation, the higher the share of operational costs
is likely to become. Within the first three years, this share amounts on average
to slightly over 60 %. Only a marginal share of costs could not be allocated in
the respective categories by respondents. Therefore, we consider these results
reliable.
Table 5-6: Split of costs (fixed vs operational)
Type of costs

Type of mapping initiative

Infrastructure

Service

Total

Percentage shares of total costs in the first three years

Fixed Costs

Concept and tool

development

33.1

Software/hardware/data
licences
Operational
Costs

Data collection and

processing

12.2

43.0

20.9
66.3

System
operation/maintenance

52.1

28.7

38.1

14.3
56.5

14.2

42.9

20.5
17.6

61.4

13.6

47.5
13.9

Not Specified

0.6

0.5

0.5

Sum

100.0

100.0

100.0

42

Three years are chosen as it reflects an adequate time frame to completely implement nationwide service and
infrastructure mapping systems with the highest contribution possible from the data supply side.
43
The relevance of software licences for an initiatives cost structure has already been discussed in Chapter 5.2.2.
Page 76 / 280

Section 5.2.2 has shown that licensed software can be a major driver of costs.
This analysis supports this result. Consequently, the methodology that is to be
developed as part of this study will put particular emphasis on the discussion of
which open source software can be used to reduce costs, in particular in the first
phase of setting up the initiative.
Which channels and data formats are used to gather data?
This is a major issue for developing a comprehensive mapping methodology.
Thus, the online survey featured a number of questions relating to this issue.
Due to the differences that were noticed relating to the kind of data suppliers of
infrastructure compared to service mapping initiatives in Chapter 5.2.2, these
two types will again be discussed separately in the following paragraphs.
For both infrastructure and service mapping, data supply via email is 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. One initiative is taking the data directly from suppliers websites.
One further important approach to collecting service data is the derivation of this
information from already collected infrastructure data. Advantages of this
approach are on the one hand the high accuracy of information that can be
achieved and on the other hand the reduction of effort for the data suppliers. For
data suppliers, the provision of raw data is often easier than processing the data
to derive aggregated data on services.
All these insights will feature in the methodology in the later chapters. The onsite visits showed that there is no best practice for data supply as such;
however, it transpired that delivering addresses, i.e. raw data, can be the most
effective way for all parties involved.

Page 77 / 280

Figure 5-17: Infrastructure mapping ways for data supply

Number of answers

Please specify the ways in which data is supplied.

14
12
10
8
6
4
2
Upload

Via email

By mail

Data can be
entered/digitised
via a
Website/WebGIS

Figure 5-18: Service mapping ways for data supply

Please specify the ways in which data is supplied

Number of answers

12
10
8
6
4
2
Upload (e.g. on a
web portal)

Via email

Data can be
entered/digitised
via a
Website/WebGIS

Measurements

Other

The predominant data formats for infrastructure mapping are digital geodata
(e.g. shapefiles, kml) or tables or text files with a spatial reference. The supply of
analogue geodata is only accepted by three initiatives due to the high level of
effort necessary to process it. In the case of service mapping, the data supply
format used by the majority of initiatives is tables or text files with spatial
reference. As is presented in the following figure, this format was mentioned
three times more often than the second format, which was entering or digitising
data via a website or WebGIS. To interpret this information, it has to be taken
into account that in the questionnaire the respondent only had the opportunity to
select one answer so the figure shows the frequency of what the initiatives
perceived to be the most frequent/important data formats.
Page 78 / 280

Based on the results of the on-site visits as well as the experiences of the
authors in broadband service mapping, it is important to offer more than one
way and one data format for the supply of data when aiming at a high
participation of data suppliers. Ways and formats are supposed to be designed
with the aim of mapping in mind, as well as the existing data and skills in data
processing of data suppliers. Nevertheless, the more precise data formats are
defined by the initiatives who want the method to require the least effort to
process the data. This insight will be carried into the development of a mapping
methodology.

Figure 5-19: Infrastructure mapping data formats

Please specify the data format used to supply data.

Number of answers

12
10
8
6
4

2
Digital geodata
(e.g. shapefiles,
kml)

Analogue
geodata (e.g.
paper maps)

Tables/text files
Data can be
Other, please
with spatial entered/digitised specify below
reference
via a
Website/WebGIS

Figure 5-20: Service mapping data formats

Please specify the data format used to supply data.

Number of answers

14
12
10
8
6
4
2
Digital geodata Analogue geodata Tables/text files
Data can be
with spatial
entered/digitised
(e.g. shapefiles, (e.g. paper maps)
kml)
reference
via a
Website/WebGIS

Other, please
specify below

Finally, in relation to the spatial level of supplied data, the online survey found
Page 79 / 280

that overwhelmingly infrastructure mapping initiatives ask their data suppliers to

submit data with exact or approximate locations (e.g. grid cells). In the case of
service mapping, the result is less clear-cut. Practically all possible spatial
resolutions play a role. Data suppliers frequently submit exact, approximate or
aggregated location data. This is, among other reasons, due to the fact that at
least six initiatives offer the data suppliers multiple options for the resolution of
the data to be supplied. A second explanation is related to the objectives of the
mapping and therefore to the initiatives own demands on the spatial resolution
of the data. For the methodology, we should take away from this result the
insight that the spatial level of data that is required from data suppliers has to
meet the objectives of the initiatives and should therefore be built into the
methodology as a flexible module.
Which official data is needed as a backdrop for mapping?
In order to present data in a map, it appears plausible that every mapping
initiative requires some background data such as streets, administrative
boundaries or households. The official statistics offices and/or cadastres in each
Member State play a critical role in the process of acquiring this data. 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 mapping initiatives 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. In some cases,
such background data can be very expensive even if it comes from official
sources. In the on-site visits, costs for background data were reported to be as
high as 60,000 p.a. Considering the average total amount that is commonly
required for setting up and operating a mapping initiative (see Section 5.2.2),
these are significant costs.
Table 5-7: Usage and costs of background data*
Type of data

Usage of background
data
No

No (total) = 17

Cost of background data

No

No

Free of
charge
(nationwide)

Charged
(nationwide)

No

No

Free
(partial
areas)

Charged
(partial
areas)

Administrative
boundaries

17

100.0

14

82.4

5.9

11.8

5.9

Addresses

47.1

10

58.8

17.6

11.8

5.9

Streets

52.9

52.9

23.5

5.9

5.9

Page 80 / 280

Population
numbers

52.9

12

70.6

23.5

17.6

0.0

Household

15

88.2

41.2

41.2

11.8

5.9

Location of
companies

35.3

23.5

29.4

5.9

5.9

Licensed
background
maps

41.2

35.3

41.2

0.0

5.9

Open source
background
maps

52.9

0.0

0.0

5.9

0.0

Other

0.0

0.0

11.8

0.0

0.0

*Table refers only to initiatives that use external data.

Based on these results, the methodology will highlight the importance of liaising
with the cadastre and potential other suppliers of relevant external background
data.
What is the impact of obligatory data supply?
Section 5.2.2 has tentatively identified a correlation between the number of
operators, i.e. the fragmentation of the market in a specific country, and the cost
that is required for setting up a mapping initiative. While consolidation of the
market does not fall within the scope of policymakers function, they can,
however, at least ensure that data supply is obligatory for all operators thereby
reducing at least transaction costs for the initiatives. However, before taking this
conclusion into account for developing a comprehensive mapping methodology,
one has to understand the effects of such a regulation. The data collected in the
online survey shed some light on the issue.
Overall, 13 broadband mapping initiatives state that all data suppliers in their
country are obliged to supply data. For 13 initiatives, at least partial obligation to
deliver data applies. Usually, the obligation is aimed at incumbents as well as the
most important players in the market.
Out of the eight mapping initiatives that are active in both infrastructure and
service mapping, only one initiative reports that the obligation to supply data
differs between the suppliers of infrastructure data and suppliers of service data.
Commonly, in both cases at least some (usually the most important) data
suppliers are obliged to supply data. Only two initiatives conducting both types of
mapping report that all suppliers supply data voluntarily.

Page 81 / 280

Table 5-8: Obligation and willingness to provide data

Are data suppliers obliged to supply
data?

Number of
responses
(regarding
obligation)

Number of
responses
(regarding
willingness)

Not applicable

Willingness to
supply data

Infrastructure mapping
Yes, all of them.

Yes, but only some of them.

No, all provide data voluntarily.

Yes, all of them.

Yes, but only some of them.

No, all provide data voluntarily.

Very high

High

Low

Very low

Very high

High

Low

Very low

No answer

Not applicable
0

Very high

High

Low

Very Low

Very high

High

Low

Very Low

Table 5-8 above gives some indication of data suppliers willingness to provide
data if they are obliged to do so. Overall, it appears that there is no clear-cut
effect of partial obligation to provide data as compared to an all-voluntary data
supply. Nevertheless, if the aim is to map (close to) 100 % of the market, then
own experience from within the study team as well as the insights from the onsite visit indicate that obligation is mandatory. It should be noted that almost
none of the mapping initiatives in our sample provide any kind of incentive for
suppliers to partake in the mapping exercise. If they do, it tends to be additional
data for the data suppliers.
Although not shown in this document, obligation, as well as willingness to supply
data, has little if any influence on the quality and accuracy of the data that
initiatives receive. Generally, the initiatives in the sample report that data quality
is good and only minor (if any) data checking and correction has to be
Page 82 / 280

performed.
In order to develop a comprehensive mapping methodology, these results imply
that obligation by the state can be supportive as at least some initiatives have to
struggle with very low willingness of data suppliers to provide data. Obligation
has apparently no impact on the quality or accuracy of data delivered. Thus,
although not really within the scope of the methodology, it still may be sensible
to recommend to Member States that would like to commence a mapping
initiative to make data supply by operators and other stakeholders obligatory.
Nevertheless, it should be noted that in some Member States, willingness to
support mapping is very high even though all data is delivered voluntarily.
What is the impact of INSPIRE?
The INSPIRE Directive has briefly been summarised in Chapter 4 and its
relevance for the present study has been highlighted. However, the results of the
online survey show that for the majority of the mapping initiatives, the INSPIRE
Directive is not or only partially relevant.
Figure 5-21: Relevance of INSPIRE

Is the INSPIRE directive relevant for your initiative?

No. The INSPIRE Directive is not an issue for our
initiative.

Yes. The central issues of INSPIRE (e.g. interoperability

of spatial data, trans-border access) are also major
aspects of our initiative.

Yes. We explicitly use existing framework and standards

for data collection, processing and publication.

10

15

Number of answers

These results may at least partially be due to the fact that telecommunication
data is currently only proposed in the technical guidance of INSPIRE data
specification on utility and governmental services. INSPIREs inherent complexity
was reported as a concern by an initiative that aimed to design its mapping
database in full compliance with INSPIREs data models for telecommunications
infrastructure. The initiative adopted its own database design after considering
INSPIRE, although it is planning to move towards INSPIRE compliance in the
future.

Major

difficulties

regarding

the

complete

implementation

of

Page 83 / 280

telecommunication data in INSPIRE have been identified by the participants of

the ISA working group on spatial information and services. Their main concern
is linked to the aspect that the infrastructure is private property. The
recommendation of the working group is to check which parts of INSPIREs core
data model as well as the utility data specification can be used for the collection
of broadband data.
In order to develop a comprehensive mapping methodology, INSPIRE has
potential relevance as it can provide a framework for gathering spatial data on
general infrastructure such as roads or tracks. However, issues about how to
deal with telecommunications infrastructure have to be overcome in order to
make INSPIRE work fully for the purpose of broadband mapping. In sum, the
development of the methodology later in this study will take INSPIRE into
account, but in line with the results of the online survey it will not play a major
role.
5.2.4 Demand mapping
As it has transpired in the above, demand mapping is not widespread in the EU
Member States. There are six countries with demand mapping initiatives and
three countries plan to introduce such a mapping. In comparison to the analysis
of service and infrastructure mapping, the information from the online
questionnaire replies cannot be analysed meaningfully due to a minute sample
size. Consequently, the following chapter provides a brief qualitative discussion
based on the responses gathered in the online survey.
Austria conducts country-wide demand mapping based on qualitative data and
statements received from inhabitants. Data is not actively collected, but may be
inserted on a web-based form made available on the website of BMVIT
(Bundesministerium fr Verkehr, Innovation und Technologie; Federal Ministry
for Transport, Innovation and Technology). This form can be used to submit an
inquiry or a complaint. Submitted inquiries/complaints are analysed in a GIS, and
the respective providers are then contacted with regard to the subject matter in
question (e.g. question regarding planned broadband deployment or potential for
cooperation

to

initiate

deployment).

Upon

response

from

the

contacted

providers, an answer is sent to the inquirer. Relevant data is incorporated into

the (non-public) GIS, which serves BMVIT as a basis to determine areas
qualifying for support as well as the monitoring of development in previously
identified problematic areas.
Cyprus is conducting broadband demand mapping within a project that involves
a broadband speed test tool. The results of subscribed users will be made
Page 84 / 280

publicly available. The data is collected via tables and text files with spatial
reference. Data can be entered via a website. The information is published with
the approximate location of the broadband demand using interactive maps,
statistics and reports.
In terms of demand mapping in Finland, FICORA has done several consumer
surveys to collect information about user experience, demand and the main
problems. However, the survey might not be continued in the future. There are
plans to launch a national pilot project with one or more measurement platform
vendors and operators. The study is still ongoing and no decisions have been
made yet.
The German NRA launched an initiative to evaluate the quality of internet
access. The initiative is collecting user information including online speed tests as
well as router data. The results are presented within a report giving a
comprehensive overview of the quality of service delivered by the providers. In
particular, actual broadband speed at the customers premises is compared with
the speeds advertised by the providers. They provide georeferenced analysis and
statistics.
In Sweden, the Swedish Post and Telecom Authority (PTS) collects demand data
for broadband in areas where there is no availability of broadband of a minimum
1 Mbit/s. The user can submit a demand on the PTS website. The demand is
shown within the mapping as a single point.
The UKs regulator Ofcom started a project to collect actual residential UK
broadband speeds in 2010. The research looked at 14 packages provided by the 7
largest ISPs in the market, representing over 75 % of the residential broadband
subscribers in the UK. Some 455 million separate performance tests were carried
out in 1,767 homes in May 2011. For the tests at consumer premises, specially
developed test boxes were used and connected to the test system. The UK
broadband mapping was operated by the private company SamKnows.com.
Ofcom compared the data delivered by the operators with data collected via
SamKnows. Only minor differences were found between these figures. The
average bandwidth calculated with data from the initiative is around 17 Mbit/s,
whereas SamKnows reports an average of 14 Mbit/s.
In sum, demand mapping is done using different methods, but more importantly
the different approaches in the EU Member States also follow two different
rationales.44 In Germany and the UK, activities were started to evaluate the
quality of services, whereas other countries like Sweden focus on demand in
44

In Poland, data on demand is not yet collected; from the Office of Electronic Communications (UKE) point of
view, demand data might be an interesting issue in the future.
Page 85 / 280

terms of need for broadband in unserved or underserved areas.

Table 5-9: Overview of demand mapping initiatives
Country

Demand mapping

Austria
Belgium
Bulgaria
Cyprus
Croatia
Czech
Republic
Denmark
Estonia
Finland
France
Germany
Greece
Hungary
Ireland
Italy
Latvia
Lithuania
Luxembourg
Malta
Netherlands
Poland
Portugal
Romania
Slovakia
Slovenia
Spain
Sweden
UK

1 Existing broadband mapping initiatives

Planned broadband mapping initiatives

Page 86 / 280

5.2.5 Investment mapping

Investment is not widespread within the EU Member States. Information based
on research and consultation shows that just three countries are running
nationwide investment mapping activities. Again, the small number of responses
in the online survey does not allow for quantitative analysis and presentation of
results.
France and Lithuania are collecting information on private and funded
investments. Lithuania is gathering data of funded infrastructure like ducts and
fibre as well as coverage of the networks. The aggregated location is published
with maps and statistics.
In Poland data on investments is collected on the city-level and not as nodes.
The information comprises private planned investments as well as funded
investments.
In Sweden PTS is mapping co-funded regions. The mapping comprises all cofunded regions by the PTS, which are either planned or built already. The
information about these projects is sourced by PTS itself as they cope with
broadband projects with EU structural funds. The mapping of private investment
does not appear to be feasible from PTSs point of view.
In Germany there are plans to implement georeferenced information for
municipalities supported with state aid to deploy telecommunication networks.
The information will be collected and displayed on a municipality level with basic
information such as technology used or provider.
According to the findings, there are very few mapping approaches on investment
mapping. Among those that exist, the focus is on mapping of funded projects.
However, the example of Poland shows that planned private investments can
also be mapped by a central body. It has to be noted that in practice the results
are published on very low detail level like NUTS 3.
Table 5-10: Investment mapping initiatives
Country

Investment mapping

Austria
Belgium
Bulgaria
Cyprus
Croatia
Czech
Republic
Denmark
Page 87 / 280

Country

Investment mapping

Estonia
Finland
France
Germany
Greece
Hungary
Ireland
Italy
Latvia
Lithuania
Luxembourg
Malta
Netherlands
Poland
Portugal
Romania
Slovakia
Slovenia
Spain
Sweden
UK

1 Existing broadband mapping initiatives

Planned broadband mapping initiatives

5.3 Conclusion of the review

The review of mapping initiatives presented in this report can be considered to
provide a good representation of existing national broadband mapping initiatives.
A total of 30 initiatives participated in the online survey set up for the present
study. Infrastructure and service mapping were the two mapping types best
represented in the sample. Demand and investment mapping did not yield a
sample that allowed for meaningful quantitative analysis of the data. The results
of

the

survey

provide

relevant

insight

towards

the

development

of

comprehensive mapping methodology. This section will briefly summarise these

insights.
First, the general functioning of mapping initiatives across Europe was analysed.
Page 88 / 280

It was found that most mapping initiatives are operated by NRAs. More often
than not, they are part of these public bodies and their staff are employed by the
NRA. This seems sensible especially in terms of infrastructure mapping as the
NRAs tend to hold the best knowledge about the relevant market and its
stakeholders.

They

are

also

equipped

with

the

authority

necessary

for

negotiating data supply. From the perspective of completeness of broadband

mapping, obliging data suppliers, such as operators, to provide access to their
customer data is helpful. It appears to be the only option if one intends to map
(close to) 100 % of the market. However, it should be noted that obligatory data
supply does not seem to have a specific effect on data quality and accuracy.
Also, partial obligation does not have any particular effect on willingness to
supply data compared to complete voluntary contribution of data.
A second major interest of the review was what is driving costs relating to
broadband mapping. It was found that fixed costs contribute a relatively high
share to the total costs in the first three years of operation. One of the main
drivers of costs is software licences, in particular for infrastructure mapping
initiatives. Furthermore, it was shown that the number of employees does not
have a clear-cut impact on the costs associated with the first three years of
operation. However, the number of data suppliers appears to influence these
costs quite directly. It transpired in the on-site visits that having operators and
other stakeholders deliver address data can take some of the burden away from
initiatives and operators as well, but this must be weighed against the financial
burden imposed on these stakeholders.
From a policymaker's point of view, it seems reassuring that mapping initiatives
are generally able to reach their intended target groups. Also, their objectives
concur with the ones that would be expected from them based on the regulatory
background laid out in Chapter 4. Infrastructure mapping initiatives collect a
wide range of broadband-relevant infrastructure. However, it also has to be
noted that INSPIRE appears to play only a minor role for these initiatives. Also,
the on-site visits indicated that common solutions that are able to link
infrastructure owners and potential deployers of new/additional infrastructure
might be more effective as extensive maps. Often potential deployers are
acquainted with infrastructure owners and choose direct contact over an official
mapping tool. Service mapping initiatives also collect a wealth of data. Their
procedures and output tend to be guided by policy objectives for broadband
infrastructure roll-out. Thus, it is hardly surprising that the most commonly
applied speed threshold is 30 Mbps, i.e. one of the Digital Agenda objectives.
Relating to the actual operation of gathering data, it was found that delivery of
raw data, i.e. address data, appears to be most effective for all parties involved.
Page 89 / 280

In general, initiatives are able to acquire relatively exact and accurate data on
exact or approximate location level. This data is supplied electronically. Usually
data suppliers send a file via email. After processing, the data is published
usually either to the interested public or with restricted access. Rarely, initiatives
offer both formats at least for the same level of detail. To present data in a
meaningful way, background data such as streets or households is necessary.
The official suppliers of data such as the cadastre therefore play an important
role in the operation of mapping initiatives. First and foremost, the data is often
not free of charge, but also other constraints set by official bodies can be
envisioned, e.g. copyright issues or accuracy of data.
In sum, the review has identified four areas that have to be addressed in the
methodology referring back to the results and insight gathered in the online
survey and the on-site visits conducted for the review section of the present
study. These four areas are:
-

general set-up of the initiative;

data gathering, processing and publication;

integration into the regulatory and political context;

cost of setting up and operating the initiative.

To address these four areas, it was found that initiatives should preferably be set
up by the NRA. Costs depend mainly on the structure of the telecommunications
market and can only partly be influenced by using open source software. The
set-up of the initiative has to reflect its political purpose and take account of the
regulatory framework on the national and European level. Finally, specific
insights were gained that will be further elaborated in the methodology part of
the present study.
Results for demand and infrastructure did not differ from the ones found for
infrastructure and service mapping in these four areas.

Page 90 / 280

6 Methodology choices
6.1 Introduction
The previous chapter presented a review of existing broadband mapping
initiatives in European Member States. First, an inventory of existing mapping
initiatives in Europe showed that almost all Member States operate at least one
type of mapping initiative as defined in Chapter 3. In addition, an online survey
of broadband mapping initiatives provided insight into the general functioning of
mapping initiatives as well as towards the development of a comprehensive
mapping methodology. The purpose of this chapter is to outline the breadth of
methodology choices which should be considered by any organisation intending
to set up a broadband mapping initiative.
To achieve this objective, the major methodology choices have been derived
from the results of the review of existing broadband mapping initiatives, in
particular from the online survey and the on-site visits. The chapter goes through
these methodology choices and highlights the most relevant/realistic options for
each of these choices. Each of these brief discussions is introduced by a short
text discussing general aspects of the particular methodology choice followed by
a table that provides an overview of the pros and cons for each major option as
well as an estimate of effort for the initiative and the data suppliers (where
applicable).
Figure 6-1: Methodology choices for broadband mapping

The review chapter concluded that in particular four areas are noteworthy in
developing a comprehensive mapping methodology:

Page 91 / 280

general set-up of a broadband mapping initiative;

the mapping process: data collection, processing and publication;

integration into the regulatory and political context;

cost of setting up and operating a broadband mapping initiative.

The present chapter is structured around these four areas. First, choices within
the process of setting up a mapping initiative are discussed on a general level.
Second, the actual mapping process and its methodology choices are considered
in depth. The description of methodology choices for infrastructure and service
mapping is further supported by a case study on the Broadband Atlas in
Germany. Moreover, technical requirements and integration into the regulatory
and political context are presented. Finally, the chapter provides some insight
into the costs likely to be associated with setting up and operating a broadband
mapping initiative. It should be noted that all methodology choices outlined in
this chapter apply equally to all four types of mapping on any spatial level, e.g.
national, regional or local, unless otherwise noted.

Page 92 / 280

6.2 General set-up of a broadband mapping initiative

The general set-up of a broadband mapping initiative has to consider several
issues. First, one has to understand the different phases of setting up a mapping
initiative. Second, one has to understand the telecom market of the area in
which the initiative is to collect data. These two issues reflect the structure of
this section.
The objectives of the mapping initiative
Naturally, the objective of the broadband mapping initiative influences most of
the following decisions. Most crucially, it shapes the choice of mapping type (or
types) to be conducted, requirements for completeness of coverage of the
mapping and the update frequency of mapping data.
Three major options for defining the overarching objective of a mapping initiative
can be derived from the regulatory and political background of broadband
mapping as well as the results of the review of existing mapping initiatives. Each
of these options relates to a different set of relevant types of broadband
mapping.

Table 6-1: Mapping initiatives objectives and relevant types of mapping

Objective

Type of broadband mapping

Service

Infrastructure

Demand

Investment

To create insight into the current state of

broadband availability

+++

To coordinate broadband deployment measures

++

++

To reduce costs of broadband deployment

+++

+ some relevance, ++ relevant, +++ very relevant

Given the regulatory and political context of broadband mapping,45 creating

insight into the current state of broadband deployment constitutes one of the
main objectives of initiating a broadband mapping initiative in a particular region
or country. The most relevant type of mapping to achieve this is clearly service
mapping as it provides a good representation of what services are available to
the public. It can also be enhanced by measures to analyse quality of service or
quality of experience as planned in the Connected Continent/Telecom Single
Market Regulation proposal. Additionally, the availability of broadband service
45

See Chapter 4 and section 0.

Page 93 / 280

plays a major role in the process of state aid. Within that the most important
information refers to spots lacking sufficient broadband availability. In this
respect, one major aspect is to define the term sufficient broadband availability.
The minimum requirement is to identify those spots reliably. As there is usually
no

critical

telecommunication

infrastructure

deployed

in

these

areas,

confidentiality tends to be a minor issue. Thus, data can be collected more easily
from operators or infrastructure owners. Besides service mapping as such,
infrastructure mapping may offer basic insight into the availability of broadband
services based on the existence of broadband infrastructure.
Table 6-2:
Creating

Example broadband mapping objectives

Service

insights
Infrastructure
Demand

Coordinating
measures

Investment

Transparent publishing of state aid.

Service

Allocation of funds to areas without sufficient availability

(designation of white, grey and black areas).
Allocation of funds to areas without sufficient infrastructure
(designation of white, grey and black areas).
Incentive for private investment. Show market failure (in grey
areas).

Infrastructure
Demand

Cost
reduction

Detailed and spatially differentiated analysis on the current

broadband availability.
Spatial analysis on amount, length, etc. of infrastructure in an
area.
Identify areas with demand for broadband services. Monitor
quality.

Investment

Avoid allocation of state aid to areas with existing investments.

Service

Avoid allocation of funds to already sufficiently supplied areas.

Infrastructure

Publishing of infrastructure that can be used for broadband

deployment.

Demand

Targeted broadband deployment in areas with demand.

Investment

Knowledge on planned works (TC, non-TC) may trigger activity.

Page 94 / 280

Definition of availability
The term availability has to be defined thoroughly otherwise the results of
mapping can be ambiguous and will leave room for interpretation. The following
aspects have to be considered.
Private/business customers
Broadband operators differentiate between private and business customers. In
some cases, networks are specifically deployed at business customers request.
In return the customers have to pay higher fees. Availability therefore should be
collected separately for private and business customers with separate definitions
for private and business products and potentially defining a maximum fee for
broadband access of private customers.
Unit for private customers
Broadband availability can be collected for different units. Typical options are
households, inhabitants or residential houses. TC companies are expected to
have information on supplied residential houses. The number of supplied
households is often known, too.
An advantage of using households as a unit is related to the aspect that the ratio
of households/premises is higher in urban areas than in rural areas and thus the
availability for a country regarding households is higher than for premises. A
negative aspect in many countries is due to the fact that high-resolution
statistics on households are not provided by official authorities and thus have
at least partially to be bought from private companies.
Homes passed/connected
The definition of homes connected is unambiguous while homes passed leaves
room for interpretation. If availability is assumed as homes passed, for private
customers at least, it should be defined that the connection of the premises
mustnt lead to additional costs for the customer and has to be carried out in a
defined period of time. This period is often defined as a maximum of three
months but in some cases these three months might not be sufficient.

Service, infrastructure and demand mapping can all serve individually as sources
for information relevant to coordinating broadband deployment measures.
Additionally, investment mapping may help to understand if and how state aid
has been used or potentially where new deployments of broadband are planned.
Most useful, however, will be the combination of insight gathered from different
types of mappings here. Taken together, they enable the identification of white,
grey and black areas as laid out in the EU Broadband state aid guidelines (see
box below).

Page 95 / 280

White, grey and black areas regarding broadband networks

The EU Broadband guidelines differentiate between three types of areas trying to
assess market failure as regards broadband network deployment. These types
are used to allocate state aid. The complete definition can be found in chapter 3
of the state aid guidelines.46
Briefly speaking
- white areas are those in which there is no broadband infrastructure and
it is unlikely to be developed in the near future;
- grey areas are those in which one network operator is present and
another network is unlikely to be developed in the near future;
- and black areas comprise areas where there are or there will be in the
near future at least two basic broadband networks of different operators
and broadband services are provided under competitive conditions).
Data derived from broadband infrastructure or service mapping can be used as a
basis for the definition of the area types. Nevertheless, the aid granting authority
is supposed to publish the planned aid measure in order to verify that there are
no private investors planning to roll out their own infrastructure in the near
future, which also builds a case for investment mapping.

The most important information one needs to reduce costs of broadband

deployment is about existing infrastructure that may be used for broadband
deployment.

This

includes

non-telecommunications

infrastructure

such

as

sewers. Synergies can be found by insight into the planning of future broadband
deployment or current modernisations of broadband-relevant infrastructure. To
this end, investment mapping may also play a significant role for this type of
objective. Availability and demand for broadband add information to the picture
that is particularly relevant for operators, who seek new (lucrative) areas to
deploy infrastructure.
Ideally, all four types of broadband mapping offer a complete picture to all
stakeholders. However, they rarely exist side by side in a specific country.47 Just
how complete this picture can become depends very much on the aims of the
mapping initiative relating to completeness of coverage within each of the
mapping types, which will be briefly discussed in the following section.

46

European Commission (2013): EU Guidelines for the Application of State Aid Rules in Relation to the Rapid
Deployment of Broadband Networks. Available at
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:C:2013:025:0001:0026:EN:PDF.
47
See Chapter 5.1.
Page 96 / 280

Authority in charge of the mapping initiative

As the review of existing mapping initiatives has showed, more often than not,
NRAs or Ministries fulfil the task of collecting data for broadband mapping.
Differences between types of mapping exist. For instance, infrastructure data
more likely falls within the authority of the NRA, whereas service data is more
likely dealt with by a national Ministry. The operation of the actual mapping of
the data as well as the publication is often outsourced to a private company.
Some examples exist where the whole process is done by a private company
sometimes authorised by a state agency. The choice of authority in charge for
mapping therefore depends on the objective of mapping. Regarding the
outsourcing of tasks, it has to be taken into account that companies prefer to
supply data to a public authority than to a private company. If data is supplied to
a private company, the terms of data usage have to be agreed by contract.
The following figure provides an overview of options for this methodology choice.

Page 97 / 280

Figure 6-2: Methodology Choice 1: operation of the mapping initiative

Option
NATIONAL/REGIONAL AUTHORITY ONLY
The relevant national or regional authority controls and conducts the whole process of the
broadband mapping from data collection to publication.

Pros

Data confidentiality is secured

Jurisdiction e.g. for obligatory
data supply

Cons

Potentially missing technical skills

e.g. GIS or application
development
Budget or time constraints
outsourcing may be more efficient
than developing own skills
High IT requirements on the part
of the authority may complicate
processes considerably

NATIONAL/REGIONAL AUTHORITY SUPPORTED BY PRIVATE COMPANY

The regional or national authority may choose to outsource some of the tasks to a private
company. Most commonly these tasks relate to data analyses and publication.
Pros

Likely to be efficient as
outsourcing of missing
sophisticated skills (e.g.
application development) can
often be more efficient than
developing own skills (long-term
experience of specialised
companies)
Juristically relevant/sensitive
data may remain with the
authority

Cons

Potential loss of (some) control

over the data

PRIVATE COMPANY
All processes are outsourced to private company.

Pros

Likely to be efficient
Little or no financial risk

Cons

Authority still has to steer and

control the mapping activity
Companies prefer to supply data
to a public authority than to a
private company

Effort
Initiative

very
low

not applicable

very
high

Effort
Data
Suppliers

very
low

not applicable

very
high

Page 98 / 280

Telecom market-related aspects

The structure of the telecom market has emerged from the review chapter as
one of the major drivers of the costs of mapping initiatives. Costs generally
increased alongside the fragmentation of the telecom market. Thus, it is not
surprising that the structure of the telecom market also influences the objectives,
the type and general set-up of the specific mapping initiative. Various market
structures are imaginable ranging from a set of dominant operators and
infrastructure owners with a few much smaller (e.g. regional) competitors to
highly fragmented telecommunications markets with numerous competitors and
potentially a large number of infrastructure owners.
Infrastructure mapping may be easier to achieve in a market where there is only
a small number of dominant companies. However, in practice, it may be
somewhat pointless as there tend to be long-established relationships between
the relevant stakeholders including (in)formal knowledge about who to call if
access to specific infrastructure is needed.
The effect of the telecom market on mapping types appears to be less
pronounced. However, the feasibility, the costs and the processes needed to
operate such mapping initiatives is likely to differ greatly also depending on
whether there is legislation in place to oblige stakeholders to supply data or not.
As a result, the structure of the telecom market and the overarching objective of
mapping have a significant impact on the completeness of coverage the mapping
initiative is able and willing to achieve. For instance, if cost reduction is the major
overarching objective of the initiative, completeness is likely to be important. In
parallel, the balance between the costs for mapping that increase the more
complete the mapping has to be and the expected cost reduction potential for
broadband deployment needs to be kept in mind. However, if one seeks to
gather insight into the current state of broadband deployment, information from
the dominant operators completed with some relevant further companies may
suffice. In this case, the last marginal operators (e.g. some very local wireless
operators) could be neglected.
Organisational requirements on data collection
The organisational requirements on data collection one has to consider when
setting

up

broadband

mapping

initiative

are

mainly

linked

to

the

communication process with data suppliers (mailings, telephone support,

information material, etc.) and vary in complexity and effort required due to
many factors. Further factors that affect the organisational requirements of data
collection include the structure of the telecommunications market and degree of
Page 99 / 280

completeness, which have been discussed above, and the update frequency,
which will be discussed in the following chapter.
Depending on the degree of completeness aimed at, the initiative may choose to
collect data only from a group of large stakeholders that taken together cover a
sufficient share of the market e.g. more than 90 %. The costs to map the
remaining part of the market are likely to grow exponentially as smaller data
suppliers tend to have less sophisticated processes in place to deliver data in the
right format and at the required level of accuracy. A continuous data update
process adds to the complexity on the side of the initiative as there has to be at
least one person always available to deal with requests from data suppliers.
Based on the choices made in these three areas, the process of operating an
initiative may be relatively simple or complex.
Figure 6-3: Correlation between effort for and completeness of data collection

Obligatory data supply

If data supply is voluntary and the telecommunications market is fragmented,
mapping initiatives will be unlikely to gain all the necessary information, i.e.
completeness of coverage for any of the mapping types discussed in this study.
However, incentives may improve participation significantly. Some examples for
incentives can be found in the box below. Also, the most important stakeholders
may be obliged to supply the relevant data, e.g. the incumbent in the market has
to supply relevant data, while the competitors supply data voluntarily. If
completeness of information is needed, i.e. if the aim is to achieve a mapping of
close to 100 % of all existing relevant infrastructure, service offerings, demand
or investments, obligatory data supply for all relevant stakeholders appears to be
the only option.

Page 100 / 280

Incentives for voluntary data supply

Information on the availability and current capacity of infrastructure is important
for co-usage of infrastructure. However, the practical co-usage and availability is
not only dependent on the number of deployed fibre or ducts. In practice, ducts
can be disconnected or damaged as well as covered in future deployment plans.
Therefore it is suggested to keep the collection of information on availability of
infrastructure on a voluntary basis on the national level.
Information on availability shall be requested by the company intending to
deploy networks from the infrastructure owner just before the investment is
planned thoroughly. In fact, the request would be the second step after the
infrastructure mapping process. The request is supposed to be carried out on a
local level for the area of deployment. Further ground checks shall be done just
before the deployment in the detailed planning phase.

Results in the review section of this study show that there is no observable effect
on data quality comparing initiatives with and without obligatory data supply.
However, if one chooses to oblige all data suppliers, one should also consider the
views of data suppliers in the process of drawing up regulations. The results of
the review indicate that address-level data at least in the case of service
mapping is the best way to reduce data management effort for data suppliers as
well as mapping initiatives. Nonetheless, a significant workload remains with the
initiative to cleanse, validate and potentially publish data. In particular, raw data,
for instance in the form of analogue paper maps provided by small operators of
bridge technologies, can be difficult to process for initiatives, which makes sizecontingent obligation of only selected large data suppliers potentially the more
promising avenue especially in markets where there is a rather small number of
potential data suppliers. Nevertheless, the data collection of smaller NGA
operators justifies additional efforts on the part of the initiative as these most
advanced networks and their spatial distribution are of special interest for a
mapping initiative.

Page 101 / 280

Figure 6-4: Methodology choice 2: obligation to supply data

Option
OBLIGATION FOR ALL RELEVANT STAKEHOLDERS TO SUPPLY DATA
All relevant stakeholders are forced to supply data. The obligation to supply data may
also define the data formats and other details.

Pros

Most accurate representation of

the reality
Only option that guarantees a
coverage of close to 100 %
Liability aspects regarding
misuse of data

Cons

Potentially significant workload

for the initiative, e.g. interaction
with many small stakeholders
Legal effort and court
proceedings if companies do not
supply data

OBLIGATION FOR SELECTED RELEVANT STAKEHOLDERS TO SUPPLY DATA

Selected relevant stakeholders are forced to supply data. The obligation to supply data
may also define the data formats and other details.
B

Pros

Sufficient degree of
completeness of information can
be defined and attained

Cons

Potentially arbitrary selection

NO OBLIGATION
All data is supplied voluntarily. Incentives may enhance participation.

Pros

No legislation and accompanying

control mechanisms needed

Cons

Effort*
Initiative

very
low

Effort*
Data
Suppliers

very
low

Potentially high effort needed for

the initiative to convince data
suppliers
Potentially unreliable data supply,
e.g. as regards update frequency

very
high

very
high

*To estimate the effort, we consider the cumulative effort for data suppliers. In case of option C,
we assume that few data suppliers partake in the mapping initiative. If the majority of data
suppliers partake voluntarily, the cumulated effort will be similar to cases A and B. We consider
only the general effort of collecting/supplying data at all here. Naturally, the actual effort may vary
according to the quality of supplied data, data formats, data aggregation, etc. These issues are
described in other methodology choices in this study.

Confidentiality
Confidentiality

is

an

important

issue

for

most

companies

in

the

telecommunications market. Therefore, data protection and data security are

also topics that a mapping initiative has to address as commonly the initiative
has access to much more and much more detailed data internally than what is
Page 102 / 280

published. Consequently, they have to ensure that no data is leaked or falls into
the hands of potential competitors. This is the minimum requirement any
broadband mapping initiative has to fulfil. Thus, data should be delivered via a
secure port. Data should always be stored on a secure server with limited access
to only those who deal directly with the project.
Enhanced requirements for data security and protection may entail individual
contracts on how to handle the data with each data supplier. As there are
markets with a large number of potential data suppliers, this may become too
difficult without some sort of standard agreement. Obliging data suppliers to
provide the data may aid in this process. The degree of confidentiality
requirements has to be evaluated for every mapping approach within the concept
development.
Regarding demand mapping, confidentiality is also an issue for data collected
from users. Personalised demand or quality of service data need to consider data
privacy aspects. Hence, the user should actively approve an agreement on data
usage and data that is to be published aggregated with other data sets. Data on
funded investments has lower confidentiality requirements as Member States,
according to the EU Broadband state aid guidelines (Article 78j), must ensure
transparency regarding state aid measures.

Page 103 / 280

6.3 The mapping process: data collection, processing and

publication
The following sections describe and discuss the most important options related to
major methodology choices that one has to make when setting up an initiative.
The structure of the chapter follows the structure of the review of existing
initiatives. Additionally, insight is provided as regards the integration of
broadband mapping into the political and regulatory context, i.e. which
methodology issues should one consider if looking to achieve concordance with
existing and upcoming regulations on the European level.
The mapping concept is built up in a modular way meaning that every mapping
type can be carried out separately or combined with other types. Additional
mapping modules such as speed tests or applications for mapping of NGA
demand can be attached to the concept. A detailed technical description of
different kinds of speed tests, for example, is beyond the scope of this
broadband mapping study.
Figure 6-5: Modular mapping concept

Page 104 / 280

6.3.1 Data collection

Data sources
Relevant data sources for broadband mapping include infrastructure owners,
operators and providers. The user of services can be a source as well. Regarding
these two different groups of data suppliers, the mapping initiative should
concentrate on one of the groups as the primary data source. With the data
provided by the primary group, the challenging aspects are mainly the low
willingness to supply data and a tendency to display the situation better than it
actually is. These two aspects can be dealt with by a legal obligation or sufficient
incentives on the one hand and quality checks on the data on the other hand.
Problems that may occur with the user as a data source are the subjective
assessment of availability and the fact that the database would not cover an
entire area and would have gaps as it is unlikely that for every location of an
investigation area data is supplied by users. One option could be to combine the
two different data sources with the usage of the provider group as the primary
data source with user feedback as the control mechanism.
If infrastructure data is already collected in a country, this data can also become
a source for service mapping as broadband availability may possibly be derived
from the data set. For infrastructure mapping, INSPIRE may have a noticeable
impact. The following box describes the role of INSPIRE for infrastructure
mapping.

Page 105 / 280

Role of INSPIRE for infrastructure mapping

INSPIRE is a Directive aiming to create EU-level spatial data infrastructure to
support community environmental policies and policies or activities which may
have an impact on the environment. Within the scope of INSPIRE, 34 spatial data
themes are defined and have to be provided in compliance with Regulation
1253/201348 if the data is collected by public authorities in a digitised format in
support of public tasks.
One of those 34 themes is Utility and governmental services, which includes
utility and telecommunication infrastructure among others. The legally binding
requirements for the data are defined in Regulation 1253/2013, whereas
additional details and non-binding guidelines are provided in INSPIRE Data
Specification on Utility and Government Services Technical Guidelines.49 As per
the agreement with the Member States, some aspects provided in the technical
guidelines that concern telecommunication networks have been left out of
Regulation 1253/2013. The harmonisation of the Utility and governmental
services data theme is envisaged for October 2020 for existing data, or October
2015 for newly collected or extensively restructured data.50 It should be noted
that the obligation to share spatial data in the scope of INSPIRE started with the
entry into force of the Directive in 2007, which is independent of the roadmap for
data harmonisation.
Broadband and especially infrastructure mapping aims to collect data on the
current broadband situation and provide information via a single point of contact.
Infrastructure mapping was identified in a recent impact assessment51 as the
primary means to positively influence costs, especially when infrastructure
mapping enables co-deployment and use of existing infrastructure. As regards
transparency of existing physical infrastructure, costs are influenced by the
amount of information that is already gathered during telecom-specific
initiatives, for spatial planning reasons or in the context of allocating state aid.
Hence, the aim is to collect data from as many infrastructure owners as possible.
The INSPIRE Directive has been referred to as a potential connecting point, but
given the architecture of the INSPIRE Directive, the operators might not be in a
position to directly benefit from the available information to deploy broadband.
This statement is supported by the review results as the review shows INSPIRE is
only used for broadband mapping by a few Member State initiatives, as described
in the review part.
However, the INSPIRE Directive can and should, where possible and feasible,
support the mapping process. Hence, a broadband mapping initiative is supposed
to integrate helpful aspects of INSPIRE into the mapping concept. Such an
48

http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2013:331:0001:0267:EN:PDF.
http://inspire.ec.europa.eu/documents/Data_Specifications/INSPIRE_DataSpecification_US_v3.0.pdf.
50
See INSPIRE roadmap for implementation, http://inspire.ec.europa.eu/index.cfm/pageid/44.
51
European Commission (2013): Impact Assessment Accompanying the document 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. Available at
http://ec.europa.eu/information_society/newsroom/cf/dae/document.cfm?doc_id=1907.
49

Page 106 / 280

integration could be as follows:

Data collection
Based on the fact that utility infrastructure is within the scope of INSPIRE
legislation, the broadband mapping guidelines for data collection should benefit
as much as possible from the INSPIRE technical guidance and framework
documents. Some utilities may already be able to supply their data in line with
the INSPIRE guidelines. In this case, the mapping initiative would benefit from a
standardised data set that would not require major data conversions.
Furthermore, the INSPIRE-compliant supply of data should be offered to every
infrastructure owner but not be mandatory as companies without advanced GIS
skills would not be able to supply the data without extensive effort. In this case,
simplified technical guidelines for data supply and possibly re-usable software
tools are supposed to be defined by the initiative.
Data publication
The published data is supposed to be provided by the mapping initiative in an
INSPIRE-compliant way in the best case or according to the key aspects of
INSPIRE as standardised web services with the relevant meta data. This also
means that the services could be made discoverable through the national
INSPIRE discovery services.
Background data
Additional spatial data that is needed for broadband mapping may already be
available via INSPIRE as this kind of data is supposed to be available in the
Member States.

Demand mapping differs significantly from the other three mapping types in this
respect. First of all, its most important data suppliers tend to be consumers.
Second, not all of them can be expected to have access to the internet. The most
interesting group within the scope of demand mapping is actually consumers
without internet connectivity. Therefore, analogue methods of data entry have to
be offered. These may include a telephone hotline, a pen and paper
questionnaire or a simple post address. Property developers may be another
important data source for broadband demand mapping as they can offer insight
on new building sites and ongoing construction. As regards the second function
of demand mapping, i.e. speed tests and similar methods, there are also
differences compared to the other three types of broadband mapping as these
tests require specialised software and often even hardware to ensure accurate
and reliable measurements. Sometimes contacting existing initiatives within and
outside the area of interest may be helpful as they may already have some
measuring technology in place.
The following figure summarises the major options one has when deciding on
data sources.
Page 107 / 280

Figure 6-6: Methodology choice 3: selection of data sources

Option
EXISTING MAPPING INITIATIVES
Data collected by other (e.g. regional) authorities, INSPIRE or crowdsourcing projects
may be collected and aggregated to conduct a comprehensive mapping.
A

Pros

Cons

Potentially simple and quick

process

Little or no control over data

quality and accuracy
Potentially incompatible data or
data formats
Missing values

TELECOMMUNICATION COMPANIES
Data can be collected centrally from telecommunication companies. They tend to have all
the data necessary to set up a broadband mapping initiative.
B

Pros

Cons

Good data supply

Knowledgeable staff

Issues with confidentiality

TELECOMMUNICATION COMPANIES AND NON-TELECOMMUNICATION

COMPANIES
Data is also collected from non-telecommunication companies, e.g. utilities.
C

Pros

Cons

More data
More accuracy
Potentially more
meaningful/useful mapping

Effort

CROWDSOURCING/DEMAND DATA
Users of broadband services may serve as data source as well.

Pros

Effort*
Initiative

very
low

Effort*
Data
Suppliers

very
low

Cons

Good addition to other mappings

and quality checks of these
Consumer view

A and D

Subjective view
Data quality not assessable
No area covering
A lot of effort for data checking

C and D

B and C

very
high

very
high

*The estimate refers to the general effort inflicted by the different options not the specific effort of
data collection, which is more dependent on the methods used to collect data, data formats, data
quality and structure of the telecommunications market.

Page 108 / 280

Choice of information to be collected

Information that can be collected from telecom operators or utilities is split into
three tiers. The first tier is the type of information. For service mapping, only
Broadband availability exists whereas infrastructure mapping is split into
telecommunication

infrastructure, non-telecommunication

infrastructure

and

construction works. Aspects on mapping of construction works are summarised in

the box below.
The second tier of information refers to the major description that is added to the
basic information about the mere existence of infrastructure or availability of a
broadband service. This type of information is called an attribute. Typical
attributes include the size of a duct, the height of a radio tower or the speed of
the broadband service available in a particular area. The level of detail collected
on these two tiers of information may vary greatly depending on the overarching
objective as well as budget and time constraints of the initiative and its data
suppliers. The third tier comprises additional attributes as well as defined values
or terms for attributes of the second tier, such as the specification of
infrastructure types as empty ducts, fibre, etc.
Figure 6-7: Structure of broadband information

Tier 1: Type of Information

e. e.g. Telecommunication Infrastructure

Tier 2: Attribute Information

e.g. Infrastructure Type

Tier 3: Attribute Details

e.g. Nodes, Empty Ducts...

While some overarching objectives such as cost reduction require a well-defined

set of minimum information (type and attributes) that is laid out in Article 4 of
the Cost Reduction Directive, other objectives leave more choices to the
individual broadband mapping initiative. In general, the information collected by
the initiative must always meet its specific objectives. The following discussion is
structured along the tiers of information briefly outlined above. First, varying
options for the collection of types of infrastructure/services are discussed.
Second, an overview is provided of the numerous options on attributes that can
Page 109 / 280

be collected in relation to the infrastructure or service.

Infrastructure and service mapping differ with the respective information on
infrastructure and service types collected. Infrastructure data splits into data
referring to telecommunication infrastructure and data referring to nontelecommunication infrastructure such as sewers, water pipes or streets. The
effort that is needed to collect and process this data is mainly linked to the
spatial resolution, which is discussed in the following section. For service
mapping, only the actual availability of a broadband service appears to be
relevant for this type of information to be gathered. Table 6-3 presents an
overview of the most important types of information and attributes for all four
types of mapping considered in the present study. Attributes for infrastructure
include size, owner or availability of the infrastructure to others.
Availability of ducts, fibre and infrastructure
Information on the availability and current capacity of infrastructure is important
for co-usage of infrastructure. However, the practical co-usage and availability is
not only dependent on the number of deployed fibre or ducts. In practice, ducts
can be disconnected or damaged as well as covered by future deployment plans.
Therefore we would suggest keeping the collection of information on availability
of infrastructure on a voluntary basis on the national level.
Information on availability shall be requested by the company intending to
deploy networks just before the investment is planned thoroughly by the
infrastructure owner. In fact, the request would be the second step after the
infrastructure mapping process. The request shall be done on a local level for the
area of deployment. Further ground checks shall be done just before the
deployment in the detailed planning phase.

Attributes for service mapping appear to be even more diversified. Starting with
the name of the supplier of data, who also tends to be the provider of broadband
connectivity for consumers, the initiative should at least consider also collecting
contact details. These details may then be integrated into the website
representation of the mapping. This function may even serve as an incentive for
operators to provide data as this offers a cheap and regionally targeted form of
advertising. As regards broadband access technology, DSL, FTTB/H as well as
UMTS/LTE are likely to be relevant in practically every Member State. DSL may
additionally be differentiated between ADSL and VDSL. It should be noted that
this differentiation can also be carried out using the available bandwidths in a
specific area. Further technologies such as stationary radio networks or
broadband via coax-cable can be mapped as well depending on their specific
relevance in the Member State. The most important categories of bandwidth
Page 110 / 280

speeds are 2, 30 and 100 Mbit/s as they echo the objectives of the DAE. They
also play a significant role in the allocation of state aid. On a national level, other
categories may also be important. Furthermore, data on take-up rates may be
worth collecting as it may aid policymakers and NRAs understanding of the
market.
Table 6-3: Overview of information types and attributes

Tier 1: Type of information

Type of mapping
Infrastructure
mapping
Service mapping
Investment mapping

Demand mapping

Type of information

Option

Telecommunication infrastructure

Non-telecommunication infrastructure

Construction works

Broadband availability

Publicly funded broadband projects

Private (planned) investments in broadband

infrastructure

Actual demand for service

Quality of service

Tier 2: Attribute Information

Type of mapping

Attribute information
Location and route

Minimum
information

Size of infrastructure

Infrastructure mapping

Infrastructure type

Construction works type

Current use of infrastructure

Network elements involved in construction

works

Estimated date for starting the works and

their duration

Contact point

Availability for alternative/additional use

Supplier name

Type of technology

Speed downstream

Service mapping

Additional
information

Speed upstream

Data volume usage

Quality of service

Page 111 / 280

Take-up

Investment mapping

Demand mapping

Full text of the approved aid scheme and its

implementing provisions

Name of the aid beneficiary

Aid amount

Aid intensity

Used technology

Project status (planned or implemented)

Private or funded

User type (private/commercial)

Location

Access technology

Contract details

Broadband demand

Effective (if possible) measured speed

(up/down)

Further results/information
Type of measurement

Willingness to pay for broadband service

Tier 3: Attribute details

Type of mapping

Attribute details

Attribute

Infrastructure mapping

Nodes: distribution points (e.g. street

cabinets, DSLAMs, exchange central office),
radio tower, infrastructure to (potentially)
host radio towers,
Lines: ducts, fibre, coax, copper, radio link,

Infrastructure type

DSL, ADSL, VDSL, VDSL-Vectoring,

FTTH/B, CATV, UMTS/LTE, WiMAX/WLAN,
Satellite

Type of technology

2, 30, 100, X Mbit/s

Speed downstream

Service mapping

Investment mapping

Demand mapping

Start/end date, specifics on investment areas

(e.g. names of districts)
Municipality and district, address, radio cell

Location

Name of provider, contract period, speed as

shown in the contract (up/down), economic
sector (commercial users)

Contract details

Required speeds (up/down), required

services (VoIP, VoD, etc.), further
requirements (latency, data volume, etc.)

Broadband demand

Latency, customer satisfaction, stability of

service

Further results/information

Page 112 / 280

The types of information needed for investment mapping split into very easily
accessible data on publicly funded broadband deployment projects, which is
commonly made transparent as part of EU legislation, and information on
planned private investments, which is virtually impossible to access. This is for
two reasons. First, planned private investments are usually confidential because
making them public would give competitors a heads-up. Second, more often than
not the relevant time frame of three years is unforeseeable for small telecom
operators. Consequently, estimates of private broadband investments based on
the socio-economic data of a particular area appear to be more promising.
The types of information needed for demand mapping echo the two functions of
demand mapping laid out in Chapter 3.3. Thus, information on actual demand
and quality of service may be collected depending on the particular objective of
the initiative. As regards information on demand for broadband services, private
households and businesses may be separated meaningfully as their demands are
likely to differ as well. Consumers will mainly require good downstream service
whereas businesses usually also require high upload speeds, i.e. symmetrical
access. Future demand may be more easily estimated for commercial users than
for private ones. For the quality of broadband access, several attributes have to
be taken into account. Attributes differ for fixed compared to mobile access. One
particularly important attribute for fixed access is latency; one particularly
important attribute for mobile access is stability of service.

Page 113 / 280

Construction works and damage prevention

The mapping of construction works serves different purposes. Major aims of such
mapping include the coordination of civil works and the damage prevention
related to those works. For this purpose, two different kinds of information are
relevant for an area:
1. planned construction works;
2. present infrastructure/infrastructure owners.
Knowing this, a company aiming to carry out construction works can generate
synergies with other planned construction works and prevent damage of existing
infrastructure. As has been shown in the review, existing mapping initiatives for
construction works often concentrate on pragmatic and efficient mapping
approaches, such as the provision of contact details of infrastructure owners in a
region on request. The initiative itself only acts as a middleman.
Regarding broadband deployment, such information is of great value as the
knowledge on planned construction works can be used to evaluate whether
broadband cables could be co-deployed in addition to the aim of the work and
hence costs could be reduced. In addition, the provision of contact information
on present infrastructure or infrastructure owners in a region is one pragmatic
way for initial infrastructure mapping.
This kind of mapping is not just relevant for broadband purposes; it is not
supposed to be carried out by a broadband mapping initiative exclusively but
instead should be in coordination with other relevant entities.
One example for a simple and pragmatic approach for damage prevention and
construction works coordination is the Swedish initiative Ledningskollen.52 More
sophisticated approaches that are even dealing with INSPIRE issues include the
Klip53 initiative in Flanders, Belgium, and the regional mapping initiative in the
Lombardy region54 in Italy. According to the experts at the Joint Research Centre
(JRC), the usage of INSPIRE within the scope of damage prevention is currently
at a very early stage.

Spatial resolution of data

The spatial resolution of collected data has an immediate impact on the accuracy
and quality of the mapping and its potential exploitation. High-resolution data
allows for complex in-depth analyses resulting in high utility and hence
acceptance of the mapping. Handling high-resolution data, however, is more
complex than handling less detailed data. Furthermore, high-resolution data
requires better data protection as data suppliers confidentiality concerns will be
52

www.ledningskollen.se.
http://klip.agiv.be.
54
http://www.reti.regione.lombardia.it.
53

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raised.
The major options for spatial resolution are described in the following table with
additional information in the following figure and box. In addition to information
provided there, it should be noted that the collection of line data is especially
associated with very high levels of effort and can pose enormous challenges, in
particular for small operators. Sometimes the only option may be to manually
digitise analogue data from paper maps or similar sources. Furthermore, line
data of infrastructure may be used for criminal purposes and therefore data
security procedures need to be enhanced when working with this type of data.
Point data is far easier to produce. Few or even no GIS skills are needed as
points can often be defined as addresses which are easy to convert in GIS data
with the right skills and software. Some specific infrastructure such as radio
towers or central offices may already exist as publicly available data sets in a
geocoded point format.

Figure 6-8: Methodology choice 4: spatial level of resolution (data collection)

Option
EXACT POINTS AND LINES
Data is collected as exact points and lines representing nodes and routes of the
infrastructural network.

Pros

Most accurate representation of the

reality

Cons

High data security requirements

have to be met

GIS skills at the data supplier are

mandatory for line data

Virtually impossible for investment

mapping (due to prohibitive effort)

EXACT POINTS
Data is collected as exact points representing nodes of the infrastructural network. Lines,
however, are omitted, so that the effort of collecting and processing data can be reduced
significantly. Virtual lines may replace actual ones.
B

Pros

Still highly accurate representation

of the reality

Few if any GIS skills necessary

Cons

High data security requirements

have to be met

Virtually impossible for investment

mapping (due to prohibitive effort)

APPROXIMATION
Data on broadband services is often collected on an approximate spatial level;
infrastructure data can be collected on an approximate level too. In this case, data
suppliers have to indicate which infrastructure exists in the spatial unit. As part of this
process, they may also indicate whether there is a line within a specific grid cell.
Alternatively, lines can be integrated in the broadband mapping represented as virtual
connections between the nodes of the network. For wireless networks, a spatial
resolution of approx. 250x250m or higher can be regarded as exact data.

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Pros

Sufficient level of confidentiality for

infrastructure owners (data suppliers)

Cons

Effort is required to translate

address or other geographical
data on the approximate spatial
level

AGGREGATION
Data can also be collected with reference to an existing geographical aggregation system
such as NUTS or postal codes. Lines may be added as virtual connections between nodes.
D

Pros

Potentially very little effort for data

suppliers depending on the chosen
level of aggregation

Effort*
Initiative

very
low

Effort*
Data
Suppliers

very
low

Cons

Little or no options for further

analysis of the data depending on
the chosen level of aggregation
very
high

A and B

very
high

*To estimate the effort, we assume that the initiative is supplied with a data set in the described
form by the data suppliers and that this data set has to be generated by the data suppliers in
advance and does not already exist. Other forms of data may be possible and require different
effort on both sides. The effort for the initiative and the data suppliers may also depend on the
chosen data format as well as other parameters. From the on-site visits, it transpired that the
delivery of address-level data (raw data) may actually be most beneficial for both sides.

Figure 6-9: Approximate vs aggregated collection of service data

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Spatial levels
Exact spatial level
The exact spatial level is defined as the exact location of a point or a coverage
polygon and the exact route of a line.
Information on the exact level is the most valuable but requires a lot of effort.
Approximate spatial level
The term approximate spatial level is not clearly defined. In some EU Member
States, very small-scale official boundaries exist whereas in other countries the
municipality boundary is the smallest official resolution. The postcode level in the
UK is an example of a small-scale boundary as it usually comprises 10 to 15
premises.
For Member States currently lacking small-scale administrative boundaries, the
generation and usage of a nationwide broadband grid can be recommended.
Such a grid can be generated relatively easily and will not involve altering
administrative boundaries. Every grid cell attribute such as number of
households, addresses or which administrative boundaries the user belongs to
should be determined as these attributes can be used for further analyses. One
practice-approved resolution of such a grid is 250 x 250 metres.
An approximate spatial resolution is sufficient for a large number of questions
related to infrastructure and service mapping.
Aggregated spatial level
Aggregated spatial-level administrative boundaries are usually defined starting at
the municipality up to the national level.
The aggregated level should be available for every part of broadband mapping
but cannot be used to answer every question related to broadband mapping.

Data formats/type of data

Any mapping requires some sort of spatial data. The particular data format is
immediately linked to the spatial level of data collection and therefore also has
an immediate impact on data accuracy and quality. The following table provides
an overview of the major options for data formats/types of data.
For investment mapping, administrative boundaries such as municipalities are
often used. However, if it is easier for a data supplier to supply data on their
investments in the form of polygons or other geocoded data, this data can be
useful for the initiative.

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Figure 6-10: Methodology choice 5: selection of data formats

Option

GEODATA VECTOR
Geodata vectors deliver most exact information and are best suited for direct data
processing or aggregation. This format offers points, lines and polygons that are located
via x-y-coordinates. If one aims to collect exact point and lines data as outlined in the
above spatial-level section, geodata vectors are required.
Pros

Best representation of reality

Cons

GEODATA RASTER
Raster data represents a data format that is commonly used to depict coverage areas of
e.g. mobile networks. Usually, these files have to be converted prior to further processing.
Grid resolution with this data needs to be defined prior to data collection.
Pros

Well suited for mobile coverage

Cons

Further processing required

Potential issues with accuracy

DATA WITH SPATIAL REFERENCE (WITHOUT COORDINATES)

There are two approaches to collecting data in this format. First, data suppliers can be
asked to fill in data in a predefined grid or otherwise defined boundaries (e.g. NUTS
level). Each grid cell or polygon has its specific ID, which is used to insert geo references
into the data. Second, data can be supplied as addresses (raw data). Addresses are
geocoded for further processing.
Pros

GIS and GIS skills required to

produce data files
Very large file size

Small data files

Easy to handle (esp. address data)
High accuracy (address data)

Cons

Accuracy varies according to

defined boundaries (first approach)

DATA REQUESTING MANUAL PROCESSING/EDITING

A mapping initiative may also decide to accept the supply of data that cannot be
processed automatically or at least partially automatically. One example for such data is
analogue maps that need to be digitised by the initiative beforehand. This kind of data
supply may require a lot of effort on the part of the initiative.
Pros

Effort*
Initiative

very
low

Effort*
Data
Suppliers

very
low

Low effort level required on

operator side

Cons

High processing effort on the part

of the initiative

very
high

very
high

*The estimation of effort refers to the processing effort on the part of the initiative and the effort
needed for the generation of not yet existing data on the part of the data suppliers.

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Data supply process

The choice of options available for the processing of supplied data depends to
some extent on the choices made on data formats and the spatial level of data.
Two major issues have to be considered as part of this methodology choice.
First, the volume of data to be delivered may render some options impractical.
Second, the data security requirements may prohibit the use of some
technologies such as email. For smaller operators, not being able to produce a
data set that meets the requirements of the mapping initiative option C may be
particularly relevant as it offers the possibility to directly enter data on a web
portal either in alphanumeric form or even spatially on a map.
For demand mapping, other supply processes have to be considered which are
described in the boxes below.

Collection of user demand for broadband

First and foremost, analogue processes such as a telephone hotline or pen and
paper questionnaires have to be taken into account as not all respondents may
have access to the internet. These questionnaires can be personally distributed
or mailed to every household/premises in the study area. In parallel, the
questionnaires can be displayed or be provided as download for printing to
reduce costs for postage or printing. The advantage of using analogue
questionnaires is that participants in areas without broadband can be reached.
However, the procedure is very labour-intensive as it requires printing, mailing,
sending back and especially the manual entering of data that has to be carried
out by the initiative. It would therefore be more suitable for smaller areas rather
than nationwide.
The procedure can be supported by the use of a web portal. The portal includes
the same content as the questionnaires and enables the user to enter the data
directly. Such a portal can be set up in different ways using simple editable PDF
documents, interactive online forms or a combination with a WebGIS so that the
location can be entered by clicking on a map. The results of such online mapping
can be analysed directly without further manual editing. To increase
participation, the demand mapping is supposed to be accompanied by press
releases.
In addition to these methods, demand data can be collected via on-site visits and
interviews or by phone supported by call centres.

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Speed measurements
A common way to measure the current availability and quality of broadband
services is the provision of a browser tool to be executed by the user. This kind
of measurement can be designed to be user-friendly. Examples for such tools can
be found in existing initiatives from authorities, e.g. the Initiative Netzqualitt
from the German NRA (http://www.initiative-netzqualitaet.de/startseite/), or
commercial websites, e.g. the Ookla Speedtest (www.speedtest.net). For mobile
services, apps can be used to determine quality, speed and availability of
services. These apps can use the GPS of a smartphone or the radio cell for the
location of the measurement. One example for such an app is OpenSignal
(opensignal.com).
The pure measurement of the current speed is supposed to be only partially
appropriate for the collection of data on demand for broadband and thus should
at least be supported by an inquiry as described above.
Simple speed tests only use one defined server e.g. per country. To increase the
quality of measurement results, more sophisticated small-scale infrastructure can
be provided by the initiative. Naturally, such individual solutions inflict higher
costs. In this case the measurement is, for example, carried out using the
nearest server.
The measurements using browser tools or apps have several weaknesses:
inconvenient operating system or browser configurations, lack of updates or
running data transfer, to name only a few, may distort the results. A second
issue is related to the fact that such measurements mostly are carried out as
one-off exercises and hence only display the situation at the time of the
measurement. Periodical tests could partially solve such a problem. The
participants themselves can be a weakness of the methodology, too. The
dominating participants of such a mapping are often badly supplied users and
hence the results do not necessarily display the reality.
A further option to permanently measure broadband speeds and quality of
service uses participants existing routers or terminals. A large number of
providers already have the possibility to read information from the terminals and
analyse them in an anonymous way. Using the flexible adaptability of current
router hardware, the implementation of an update for speed measurements and
data transfer in coordination with the manufacturer of the hardware is
imaginable. Advantages of this procedure are the relatively cost-efficient
implementation as well as the possibility to map the quality permanently. One
weakness is related to the limited options to combine these measurements with
classic demand gathered using questionnaires.
To achieve high-quality measurement results with high comparability and
permanent measuring requires dedicated hardware such as a terminal at the
participants site. These measurements additionally require a defined measuring
environment on the side of the server. The measuring instruments need to be
developed, configured and distributed to the participants. Representative
voluntary participants need to be identified in advance and agreements on time
Page 120 / 280

frame and return of devices need to be made. This kind of measurement is

relatively costly and requires a lot of effort. However, it provides the most
reliable data. The procedure also can be used to verify other procedures in spot
tests. One example is the initiative of SamKnows
(http://www.samknows.com/broadband/how-it-works).

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Figure 6-11: Methodology choice 6: selection of data supply process

Option
EMAIL
Data files are attached to emails and sent to a dedicated address or contact. When
encrypted, this data supply process offers some data security.
A

Pros

Easy to handle
Can be relatively secure (SFTP,
SCP, HTTPS)
Always available (website)

Cons

Potentially insecure (FTP)

Data transfer can be slow
Some set-up and maintenance
required from the initiative
(website)

DATA ENTRY VIA A WEB PORTAL (WITH/WITHOUT WEBGIS)

Data is entered into a database usually via a web-based portal. Two major options to enter
data exist. First, data can be entered using a table with predefined options that the data
supplier selects from a drop-down menu or some other interface. The second option is to
offer a WebGIS application. This runs in the browser and the data supplier can enter its
data incl. type of information and attributes using the keyboard and mouse. Predefined grids
or other polygons may be used to simplify this procedure if an exact location is not required.
The figures below this overview exemplify a drop-down menu and a WebGIS.
Pros

Well suited for small data

suppliers with little or no GIS skills

Cons

Potentially insecure
Not feasible for large data volumes

UPLOAD SERVER OR PORTAL (WEBSITE)

Data is supplied via a dedicated upload server e.g. via FTP (File Transfer Protocol).
Encrypted data transfer is possible using SFTP (Secure FTP/SSH File Transfer Protocol)
or SCP (Secure CoPy). Implementation of the latter solutions may be problematic due to
complex IT requirements that have to be met on both ends of the transfer. Additionally,
data can be uploaded via a dedicated upload website portal. As long as the website
enables HTTPS (Hypertext Transfer Protocol Secure), the transfer is encrypted.
Pros

Cons

Easy to handle
No set-up cost

Accuracy varies according to

defined boundaries
Entering data may be tedious

WEB SERVICES
A very smart way to supply data is the usage of web services, e.g. Web Feature Service
(WFS). In this case, the data is published on the web server of the data supplier. The
mapping initiative embeds the service in the GIS and hence always has access to the
actual data. The access to the data via the web is one key element of the INSPIRE
Directive.
Pros

Effort
Initiative

very
low

Effort
Data
Suppliers

very
low

Data is always available and up to

date

A AND D

Cons

Advanced GIS skills needed

very
high

C AND D

very
high

Page 122 / 280

Figure 6-12: Example of drop-down menu

Figure 6-13: Example entering of data via WebGIS

Update frequency of data supply and publication

Similar to the options related to the degree of completeness of the mapping
discussed above, the frequency at which data is to be collected and hence
published depends to some extent on the overarching objective of the mapping
initiative. For instance, cost reduction can only be achieved if the mapping is
always as close to reality as possible, which essentially translates into a
continuous process of data updating. However, the effort needed to keep the
data up to date needs to balance with the cost reduction requirements. One way
of avoiding unnecessary effort could be the reduction of the extent and scale of
data that has to be kept updated. In this case, the full information as well as
spatial resolution only needs to be provided and updated on request. To gain
meaningful insight into the state of deployment of broadband infrastructure in
the form of service mapping, biannual updates may suffice. Other frequencies to
update the data are of course possible. The following figure summarises the two
basic methodology options.
Page 123 / 280

Publication frequency can be coupled with the update of supplied data.

Alternatively, publication of results may follow a different schedule. For instance,
it is quite common that a mapping initiative continuously collects data, but
publishes updates only twice a year. This is particularly helpful if data processing
cannot be automated or only partially automated as it helps to distribute the
workload. Technically, it is feasible to feed data directly into a WebGIS system,
which updates automatically. One has to be aware, however, that this data is not
checked before publication. Consequently, other approaches seem preferable.
Figure 6-14: Methodology choice 7: update frequency
Option

FIXED UPDATE FREQUENCY

Updates by data suppliers and data publication are done on a fixed schedule. Commonly,
annual or biannual updates are used. For investment mapping, annual updates represent
the lowest sensible frequency as this echoes the approval time frame for state aid. Thus,
every year a report on NUTS level (1,2,3) may be published summarising the approved
state aid in any Member State.
Pros

Cons

Potentially more attention for the

mapping results
Planning reliability

Shortcomings depending on the

objective of the initiative

CONTINUOUS UPDATES
Updates are made continuously by data suppliers as well as by the initiative.
B

Pros

Cons

Quality of information

Effort
Difficult to plan

Effort*
Initiative

very
low

very
high

Effort*
Data
Suppliers

very
low

very
high

*The effort for coupling data collection and publication can vary depending on data quality, data
formats and the way in which data is entered into the system e.g. a WebGIS.

Page 124 / 280

6.3.2 Data processing

Data conversion
Data conversion is really the central part of data processing for any mapping
initiative. Externally supplied data is usually not fit for publication, for instance,
either because it is too detailed and would reveal company secrets or because
the format does not match the requirements. Which data conversions are
necessary depends largely on the input specifications set by the initiative for data
suppliers, e.g. number of data formats that are accepted or the spatial resolution
and additional information of data delivered. In any case, frequently used data
formats are preferable as they can significantly reduce the effort of data
conversion. If this process can be handled well enough, there is a good chance
that only a few data conversions will be necessary. For instance, data can be
delivered in a format that enables immediate integration into the central
database
In practice, there are many instances when supplied data does not concur with
the format specifications such as data type required, spatial resolution of the
data or a lack of relevant attributes. Thus, advanced processing of the data is
needed. The effort on the part of the initiative increases with every bit of data
that needs to be processed, as is shown in the following figure. Three examples
of such processing procedures are briefly outlined below.

Figure 6-15: Dimensions and effort for data processing

Page 125 / 280

Example 1: Data does not match required data format

If data is supplied as addresses without coordinates, it needs to be geocoded.
Geocoded addresses in many countries are only provided free of charge to
authorities; companies have to buy the data and smaller companies are usually
only able to supply the address itself (at least municipality, street, house
number), not the geo coordinates of addresses. In this case, the geo coordinates
of the addresses have to be determined by the initiative. This can either be
achieved using commercial services or by the initiatives own computation
assuming that the initiative has the nationwide geocoded addresses available.
Example 2: Data does not match required spatial resolution
In the case that data is supplied as freely defined polygons, it may be necessary
to convert it to the defined spatial unit. This can be achieved by intersecting the
polygons with the defined spatial unit using a GIS. Functions for intersection or
spatial selection of features are available in every standard GIS.
Figure 6-16: Example intersection of polygons

Example 3: Data lacks relevant attributes

If data on services lacks information on available speeds, this information may
be estimated. One example is the estimation of VDSL speeds if only the address
and the connected cabinet are known. Based on this information, the available
speed can be estimated based on the distance between the address and the
cabinet using either the concentric distance or even better the distance via
routing alongside streets.

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The most difficult task relates to the digitisation of analogue data that can still be
found in many offices in the form of paper maps or other drawings, especially
referring to infrastructure. The effort associated with digitisation prohibits using
it on a large scale. If it is applied at all, it usually refers to a small area of high
interest to one or a group of stakeholders.

Aggregation of data
Supplied data needs to be aggregated into one data set that provides the basis
for every analysis and publication of data.
In a variety of publication scenarios, the data is required to be completely or at
least partially anonymised. Hence the publishing of data must not allow the
reader to draw inferences on the owner of the data or even the original supplied
data set. That is why the data is aggregated into one data set comprising all
geometries of every data supplier.
For broadband service mapping, the aggregation of data comprises a second
aspect. If more than one operator provides access to broadband for a single
spatial unit (e.g. a grid cell), the availability for this unit has to be calculated as
the highest value of all supplied data sets.

Additional spatial data

All types of mapping require at least some additional data to be collected
alongside the data that serves the purpose of the mapping initiative, e.g.
infrastructure data for infrastructure mapping. Some of this data is mandatory
while other data offers useful additional information or may simply extend the
information represented in the mapping.
Administrative boundaries are mandatory for any mapping initiative that
seeks to represent its results not solely in statistical form. Usually, this data is
available free of charge. In addition to this fundamental requirement, other
spatial

data

seems

to

be

useful

for

operating

broadband

mapping.

Georeferenced address data may help to process address data that is supplied
without coordinates. Additional attributes can include the number of residents,
households or businesses at each address. This data tends not to be free of
charge. Grid cells can be useful additional data for longitudinal analyses that
should be carried out independently from changes in the administrative
boundaries. If the mapping initiative chooses to enable data supply via a WebGIS
or uses such an application in the presentation of data, background maps have
to be purchased. They should at least show the names of agglomerations as well
Page 127 / 280

as streets. Additional attributes may facilitate data entry and orientation for the
user. It should be noted that good-quality open-access background maps are
available (e.g. www.openstreetmap.org).
Vector data of streets may also be useful as it enables the routing of lines
between two nodes. This can also enable estimation of DSL speeds at specific
addresses. Aerial pictures are likely to enhance background maps in a WebGIS
application.
In the phase of setting up a mapping initiative, it may pay off to spatially link the
different data sets to the other ones (e.g. address located in grid cell located in
municipality) and model these links in the data (e.g. adding the attribute ID of
grid cell and ID of municipality to the address).

Additional socio-demographic data for analyses

The analysis of broadband data in relation to further socio-demographic data
may provide interesting information for some specific research questions mainly
regarding the economic and structural development of regions. The broadband
availability in a region may for instance be intersected with the age distribution
to analyse whether correlations between these two factors can be determined.
Besides the age distribution factor, a variety of further socio-demographic
elements with links to broadband availability exist.
It should be noted, however, that most socio-demographic data is only available
at the level of administrative boundaries such as NUTS 3. Therefore, analyses
can rarely stretch to individual neighbourhoods or similar units.

Quality checks
To ensure the overall quality of the mapping, all data has to be checked. Thus,
the methodology choice one has to make is not whether or not to check data
supplied by telecommunication operators or infrastructure owners, but rather,
which quality check process or which combination of processes to install.
However, it is important to strike the right balance between a reasonable level of
accuracy of the data and the effort required to achieve this. To some extent, the
number of options depends, among others, on the selected data formats and
number of data suppliers. It is helpful to install a standardised procedure for
quality checks.
For investment mapping, data may also be validated by cross-checking it in
cooperation with the respective authorities and/or broadband infrastructure
deployment firms.

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Figure 6-17: Methodology choice 8: data quality check options

Option

PLAUSIBILITY CHECKS
Any externally supplied data ought to be checked for plausibility and various procedures
are available for this. First and foremost, data plausibility can be checked within each
data set, e.g. by identifying areas where there is supposedly 100 % broadband service
availability or areas far off the infrastructure owners territory. Additionally, data plausibility
can be checked across data sets, e.g. by comparing data for the same area provided by
different operators or by different stakeholders. Plausibility checks can be automated.
Plausibility checks appear to be mandatory for any mapping initiative. Therefore, pros and
cons do not apply here.

ADDITIONAL MANUAL CHECKS

Manual checks can be carried out using different approaches and intensities. A relatively
simple approach is to cross-check data with data otherwise published by the same
operator or infrastructure owner.
Pros

Cons

Potentially very tedious

ADDITIONAL USER FEEDBACK

User feedback offers another additional route to check and potentially improve data
quality. To receive user feedback, a feedback function is often integrated into the online
presentation of mapping results. The interested public may therefore provide feedback if
they feel that information is not accurately presented for their situation.
Pros

Effort*
Initiative

May add some accuracy to the

data

Relatively little effort

very
low

Cons

not applicable

Requires maintenance

very
high

*All types of quality checks can inflict various levels of effort on the initiative depending on their
intensity.

6.3.3 Data publication

Access to data including groups for access
The choice any mapping initiative has to make regarding the publication of data
refers to who should be allowed access to the data. The options include public
access to all published data, solutions that grant full access only to selected
groups, reduced access for the public or restrictions on data for internal use only.
The objectives of the initiative as well as the level of detail that is theoretically
available based on the data collected usually drive the choice among these
options. If the objective is to inform the public or even to generate interaction
with the public, e.g. through a feedback function or a speed test, then detailed
access to data that does not reveal any company secrets appears to be most
obvious choice. Conversely, if information could either harm the proceeds or
Page 129 / 280

business development of a particular stakeholder by providing secret information

to competitors or be used for criminal purposes, it would be more sensible to
restrict the access. All (potential) data suppliers should be offered an opportunity
to get involved in negotiating the depth of published information before the start
of the mapping project as well as every time changes are planned to the
publication format.
Figure 6-18: Methodology choice 9: access to data
Option
INTERNAL USE
Data is only used internally.
A

Pros

No effort required for publication

No misuse of data

Cons

Limited added value of data

No incentives for companies
No active promotion of the
initiative

RESTRICTED ACCESS
Data is used internally and additionally provided for a restricted user group.
B

Pros

Cons

Controlled data usage

Minimisation of data misuse

High administrative effort

Additional technical effort

PUBLIC ACCESS
All data is publicly published.
C

Effort*
Initiative

Pros

Active promotion of the initiative

High potential for generation of
added value based on the data

very
low

Cons

Vulnerable to data misuse or

incorrect assessment of data

not applicable

very
high

*The estimation of effort is dependent upon the publication format.

Publication format
One way of differentiating access to data can be the presentation of data in
different publication formats. For instance, while a dedicated website is built for a
selected group of stakeholders granted full access to the data, a report may be
made public presenting a subset of results and analyses. The choice of
publication format may further depend on the objective of the mapping initiative.
For instance, if feedback from the public is sought, an interactive website seems
to be most suitable. The same is true if the initiative seeks to update published
data immediately after data processing in a continuous manner. Additionally, the
initiative may choose to offer raw data files to specific user groups or even the
Page 130 / 280

public. This raw data may be provided as tables, geo files or web services. Webbased services have the advantage that they are always up to date as the data is
stored on the web server of the initiative and by request is provided via the web
to be displayed on the GIS of the user. Hence, if errors are corrected in the data
set it is assured that external users also receive the revised information. In
addition to such files, the initiative may also decide to publish further additional
material such as number of data suppliers, share of infrastructure represented in
the mapping, some indication of longitudinal development or the identification of
white, grey and black spots.
Figure 6-19: Methodology choice 10: publication format
Option
REPORTS AND STATISTICS
Data is analysed, summarised and published in reports that may be updated periodically.
A

Pros

Relatively easy way to present

summarised results

Cons

No small-scale data
No further analysis possible

DATA PROVISION
Data is provided as comprehensive tables or geo data.
B

Pros

High value of data

User can carry out further
analysis

Cons

Potentially incorrect assessment

of data
Confidentiality

BASIC WEBSITE (INFORMATION ONLY)

Reports, statistics or even static maps are presented on a website.
C

Pros

Reaches a large user group

Cons

Effort required for development

and operation of the website

ADVANCED WEBSITE (DYNAMIC MAPS)

Data is presented on a website using dynamic maps.
D

Effort*
Initiative

Pros

very
low

State of the art

High added value of data

Cons

More effort required for

development and operation of the
website

very
high

*The estimation of effort comprises the one-off as well as operating efforts.

If an initiative opts for a website, there is a variety of visualisations available

ranging from text, tables and pictorial maps over dynamic maps, e.g. with a
zoom function, up to fully interactive maps that also enable us to access

Page 131 / 280

additional data or perform analyses of the data. Figure 6-20 depicts some
examples of dynamic map applications.

Figure 6-20: Examples of dynamic map applications

Dynamic map applications enable the flexible presentation of spatial information.

The functionality presented here is based on the example of the Swedish
broadband mapping initiative. Such an application commonly comprises
1.
2.
3.
4.

the map window;

the legend;
navigation elements;
control panels for the display of spatial information.

Using the navigation elements, a user can navigate to the region of interest very
comfortably, e.g. by entering the name of the municipality in a search box. The
spatial information in this case the broadband availability is presented on
different spatial units depending on the zoom scale.
With the aid of the control panels, the user can switch between the different
spatial information, e.g. different bandwidths. Dynamic map applications improve
the visualisation of all four types of broadband mapping.
Based on the fact that the usage of smartphones and tablets is increasing
steadily, a map application would ideally work on a mobile device too.

Page 132 / 280

6.3.4 Case study Breitbandatlas service mapping Germany

To illustrate the methodology choices described above, the following section
shows the German broadband service mapping initiative as an example for the
application of the methodology. The description follows the structure of chapters
0 to 6.3.3.
Figure 6-21: WebGIS of the German broadband service mapping

General set-up
In 2005 a nationwide broadband service mapping initiative was implemented in
Germany. It is part of Germanys broadband strategy overseen by the Federal
Ministry of Economics and Technology (BMWi). Over the years, the methodology
has been altered. Operation of the current version commenced in 2009 with phase
1 Project preparation. In mid-2010, a redesign and development of a new
methodology based on grid elements were completed and data collection was
adjusted to the new methodology. Meanwhile the concept has been enhanced by
further functionalities. The mapping process (data collection, processing and
presentation) including the concept development is carried out by an external
contractor.
The main objective of the mapping is to obtain a nationwide, realistic and
independent illustration of broadband coverage in order to support broadband
deployment measures. As a result, service mapping has been selected as the
most appropriate mapping type. Creating transparency, identifying areas of
improvement or supporting planning and decision-making processes are just a
few of the numerous advantages that broadband mapping offers. Up to now, the
tracking of broadband availability only stretched to private households, but the
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tracking is currently being extended to include business customers.

Data collection
The telecommunications market in Germany is heterogeneous and fragmented
with various national, regional and local operators. While only a few companies
own and operate national infrastructure, regional operators make a considerable
contribution to the availability, especially for higher bandwidths in their respective
regions. Data supply from telecommunication operators is fully voluntary. To
achieve high commitment and participation, the 1020 most important market
players were consulted in the concept development phase to find out which
methods for data collection were feasible for the companies. One aspect was
related to confidentiality. It resulted in the agreement to collect and present data
on a 250 x 250 m grid. Operators are able to contribute continuously whereas
twice a year a major update of supplied data is carried out. Beyond that, the data
collection requires qualified support from the initiative as well as cyclical reminders
to supply data.
The INSPIRE Directive has no relevance for data collection. The availability is
differentiated for various technologies (DSL, CATV, LTE, etc.) and bandwidths (
1, 2, 50, etc. Mbit/s) that currently stretch only to downstream speeds. Data is
mainly collected on an approximate spatial level, i.e. 250 x 250 m grid cells.
Nevertheless, data suppliers may supply data using other spatial units. This is
done to increase participation, for instance, when telecommunication operators
are unwilling to convert data. Examples for such data are addresses, polygons or
even districts as long as the data resolution is sufficient. The effort for processing
this data lies with the mapping initiative and is performed by the contractor. As a
second service aiming to increase participation, a variety of data formats is
accepted including vector and raster geodata as well as data with spatial
references lacking coordinates. Consequently, data suppliers can deliver their
data in the formats already available with no need for additional data conversion.
To ensure the workload is manageable, the major market players are asked to
supply their data on the grid cell level in tables or text files containing the
unambiguous cell-ID of every grid cell.
The favoured way to supply data is to upload it on a dedicated website portal via
HTTPS. Accommodating the needs of data suppliers, further options such as
using an upload server or email are offered too. A further offer for smaller
companies that lack GIS systems and GIS skills is a specially developed WebGIS.
With this browser tool, the supplied grid cells can be marked on a map
depending on technology and bandwidths.
The level of participation currently more than 280 telecommunication operators
can be considered very high. Incentivising data supply activities by offering to
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link company websites on the interactive German broadband map proved helpful,
as well as several further aspects described below.
Data processing
All supplied data undergoes a plausibility check. Additional manual checks are only
carried out if needed, e.g. user feedback is collected via a special feedback
function in the web application.
Due to the various options for data supply, a larger set of additional data is
needed for data processing. Among others, it encompasses administrative
boundaries, geocoded addresses and vectorised streets as well as statistic data
on inhabitants and households. Supplied data is converted and processed using
different standard GIS functions as well as specially developed tools. In the end,
all data is aggregated to the 250 x 250 m grid cells.
The German broadband service mapping initiative is an example that offers data
suppliers various options to supply data, which leads to more work on the part of
the mapping initiative. While voluntary data supply may hinder the principal
objective of achieving a complete map of broadband services offered in
Germany, it appears to have advantages for data quality.
Data publication
Consolidated data is published with no restrictions via a dynamic web application
(www.breitbandatlas.de) and is also summarised in biannual reports to the
public. The broadband availability is clustered in bandwidth classes as well as
fixed and wireless technologies. Visualisation of the consolidated broadband
availability per grid cell by aggregating all supplied data of serving operators
guarantees

confidentiality

required

by

the

operators.

Furthermore,

the

broadband service offerings by operators are presented on the municipality level.

The results of the broadband mapping are additionally provided via a web map
service but only to restricted users, mainly authorities.

Page 135 / 280

Figure 6-22: Decision tree broadband mapping for German service mapping
example

6.3.5 Feedback and concerns of data suppliers

On March 25th 2014, a consultation workshop addressing broadband operators
and other infrastructure owners as data suppliers for broadband mapping was
carried out in Brussels. Within the scope of this workshop, data suppliers
provided various constructive and valuable comments on the broadband mapping
study. The feedback of the data suppliers is briefly summarised below and is
mainly based on the written feedback from Deutsche Telekom and British
Telecom as well as comments passed on in the workshop by other data suppliers.
One general concern of data suppliers was that by publishing the study on
broadband mapping, the EC intends to recommend how to carry out broadband
mapping that will require a lot of effort on the part of the data suppliers. Data
suppliers therefore propose finding a good balance between the effort required
and the benefits of mapping. The EC and the study team share this opinion. The
developed mapping concept should be seen as a tool kit for broadband mapping.
The decision about which kinds of broadband mapping should be carried out as
well as which methodology choices are to be selected is down to the initiatives
and should be made in consultation with the data suppliers in the Member State
during the concept development phase. Furthermore, the tool kit provided within
the study makes no claim of being complete and does not exclude further
approaches for dealing with issues, e.g. related to the state aid guidelines.
To address the potentially extensive resource and financial demands for the data
Page 136 / 280

suppliers for the generation of broadband data sets and the benefits for the
society as a whole, the data suppliers recommend finding an appropriate model
of co-funding through the available state aid and European Structural and
Investment Funds (ESIF).
Data suppliers generally question the necessity of carrying out investment and
demand mapping. From their point of view, the Broadband Guidelines do not
require demand mapping or mapping of investment plans. However, the fact that
the Broadband Guidelines do not require demand or investment mapping does
not mean that it cannot serve the purpose of state aid control.
Indeed, demand and investment mapping could be a step forward in the
direction of transparency and identification of absence of market delivery in order
to verify whether the distortion of competition caused by state aid for broadband
projects is limited to the minimum necessary. For example, the Broadband
Guidelines mention, as best practice, the creation of a central database of the
available infrastructure at a national level, thereby increasing transparency (see
point 78a).
Regarding the different types of mapping, the data suppliers recommend
processing them separately due to different objectives, user groups, precision
needs, etc. and not merging databases. However, the single mapping initiatives
are supposed to be carried out nationwide and not on the regional level in order
to avoid different standards and procedures and thus minimise the workload for
data suppliers. This view is not completely shared by the study team as the
carrying out of different mapping types by one initiative may generate synergies
on the part of the mapping initiative as well as for some data suppliers (6.6.4)
presuming that data security requirements are taken into account. For
infrastructure and service mapping, a centralised nationwide approach is
considered to be the most efficient one. Nevertheless, coexisting regional
mapping initiatives may be helpful when focusing on different aims, such as
levels of detail, although it has to be taken into account that these coexisting
initiatives may significantly add to the effort required on the part of the data
suppliers.
The data on exact location of infrastructure is seen as very sensitive and should
be collected on the basis of a legal obligation and only be provided to restricted
users who can prove they have a credible plan to roll out broadband networks.
Regarding the spatial resolution of infrastructure maps, the data suppliers
propose that an infrastructure map should give a first orientation of synergy
potential. Further details on the type of infrastructure, material, free capacity,
etc. are in any case best clarified bilaterally. The last mile is usually excluded
from mapping because of the highly sensitive character but also because
Page 137 / 280

handling this data would require tremendous additional resources. In addition to

broadband infrastructure, all passive infrastructure should be included, e.g.
utilities, rail tracks, motorways, to tap the full cost reduction potential.
Data suppliers prefer an approximate level of detail for service mapping instead
of the address level as from their point of view exact data might make the data
provision much more difficult. This view is not completely shared by the study
team as many operators have databases on connectable addresses already
available and hence this data only needs to be exported and does not require any
further spatial processing on the part of the data supplier. Nevertheless,
especially regarding data privacy and security aspects, the approximate level
may be the best solution.
Data suppliers mention major concerns about measuring speeds and noise
margins and mapping them. One objection, among others, is that no reliable
standardised measurement systems that deal with the various factors that
interfere

with

the

measurements

are available.

The

definition

of

these

measurement systems is beyond the scope of this study though the study does
provide a mapping system that is open to collecting, processing and publishing
data that is gathered by a measurement system when it is connected to a spatial
unit. The box Speed measurements in chapter 0 provides some general
information on existing different approaches of speed measurements and their
pros and cons without recommending any approach.
Operators consider information on investment plans to be very sensitive. These
plans should not be mapped and made available for third parties and only be
provided to authorities on special request before proceeding with an aid scheme.
An added value of a centralised mapping system compared with information
provided case by case cannot be seen by the operators. In fact, operators
propose the publication of passive infrastructure details to be rolled out with
state aid in an infrastructure mapping process and the resulting coverage to be
included in service mapping without an additional investment map.

6.4 Technical requirements/specifications

The following section provides information on possible technical requirements
and specifications for a broadband mapping initiative and applies to all four
mapping types. By describing different expansion stages and modules, it
attempts to meet the complexity of broadband mapping, namely the different
kinds of mapping and the various methodology choices. Every expansion stage
consists of different modules and tiers that can be combined and scaled based on
the aims and content of broadband mapping.
Page 138 / 280

This chapter does not claim to be a complete detailed description of every

possible combination of methodology choices; the definition of technical
requirements is one crucial task for every broadband mapping initiative when
developing the mapping concept.
6.4.1 Expansion stages and general issues
Expansion stages
There are four major expansion stages of a broadband mapping system, which
vary in complexity as well as variety of options from stage 1 to 4. These
expansion stages need to be viewed as guidelines and can vary in reality.
Figure 6-23: Overview of expansion stages

Expansion

stage

represents

minimum

solution

using

standard

communication (email, post) as well as a standard desktop GIS. Data is stored as

single files on the local workstation. Data processing as well as the generation of
reports or data files for provision is carried out manually by one user. This stage
is suitable for small projects or for the beginning of projects.
Expansion stage 2 uses an extended database for central data storage in
addition to stage 1. Different desktop GIS comprising extended components may
enable editing and processing in parallel within the working group that can be
carried out spatially divided at different locations as well. Using the central
database, defined processes can be automated and recurrently carried out. In
addition to stage 1, this stage comprises extended GIS functions for editing and
converting of data as well as layout elements and the generation of maps. The
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distributed working requires a user and digital rights management combined with
extended security mechanisms (hardware and software). As an extension, this
expansion stage can be set up completely as an internal web application in the
local area network (LAN). In this case, the functions for users would be available
within the browser.
Expansion stage 3 offers options to support the data collection process with
web-based tools. Websites and tools are developed enabling the data suppliers to
upload their data or even directly digitise it on a WebGIS in a secure
environment.
Within expansion stage 4, the results of broadband mapping are provided on
websites using basic websites or dynamic web-mapping applications. Depending
on the expected amount of users, these applications can be performance
optimised. Additionally, data can be provided as web services (OGC- or INSPIREcompliant) in terms of raster or even vector data sets for the purpose of a spatial
data infrastructure (SDI) and a direct integration of data in user processes. The
technical details of expansion stage 4 are summarised in the figure below.

Figure 6-24: Technical details of expansion stage 4

Page 140 / 280

Software
Currently, no universal software application for an all-embracing broadband
mapping exists. Commercial as well as open source software consists of multiple
single components or modules that can be assembled to a mapping system
corresponding

with

required

hardware

and

security

mechanisms.

These

components are modularly integrated for the purpose of a service-oriented

architecture (SOA). Major components of a broadband mapping SOA are GIS
applications, databases as well as development and web-mapping applications.
This therefore requires extended skills for the single components as well as the
interworking and operation.
The SOA can be built up of commercial as well as open source software modules
that need to be coordinated with existing applications and IT requirements.
The usage of commercial software often facilitates the first steps in a project but
requires more effort initially. This workload can be reduced by usage of open
source

software

though

this

does

demand

greater

skills

of

users

and

administrators. Especially at the beginning of a project when the amount of data

and usage of the system are at least partially unknown, the usage of open source
software that can be flexibly scaled can be useful given that the know-how is
available.
In practice, commercial and open source software are often used in combination
aiming to achieve the best value for money.
System scaling
The flexible scalability of a mapping system is one important issue. The selected
modules are supposed to be scalable regarding future expansion scenarios and
the development of numbers of users. Within the scope of scaling, some
components or modules may be multiplied or mirrored. In particular, data
storage, multi-user operation or concurrent editing requires scaling with
increasing usage. One additional example is data presentation using dynamic
web maps. With an increasing number of users, components need to be
multiplied and further steps towards performance optimisation taken. Options
and dependencies for system scaling are described in the context of the single
modules.
Aspects on service level agreements and temporal availability of the system need
to be considered as well, especially for expansion stages 3 and 4. If a high level
of system availability, for instance >98 %, is required, some modules and
components need to be redundant.

Page 141 / 280

Staff and skills

Depending on the requirements and aims of the mapping system, different user,
administrator or developer skills are needed. From the technical point of view, a
system administrator and a geo information scientist are needed. For the project
management, some telecommunication skills can be assumed as well. If an
obligation for data supply is envisaged, legal skills are a further basic
requirement.
Safety/data security/backup
The protection of data and company secrets of TC companies plays a major role
in broadband mapping. Hence, technical and organisational measures need to be
implemented. Organisational measures are supposed to consider the protection
status. If a high protection status is required, complex technical measures for
every project stage (data collection, conversion, publication) need to be planned.
These measures are summarised in the figure below.
Figure 6-25: Organisational and technical measures
Organisational measures

Technical measures

Agreements on data usage

User and role concept

Rules on data processing

Physical partition of networks

Data protection regulations

Firewall, virus scanner, etc.

Access authorisation

Separation of primary and

secondary data

Security audits and penetration

tests

Separation of processing and

publication system
Safety measures for mechanical
access to the system
Measures for permanent
storage and recovering of data
(backup)

Page 142 / 280

Data model
Data storage, including metadata management, needs to be considered at an
early stage of the mapping project. A unique data model needs to be defined that
comprises all aspects of the envisaged broadband mapping project including
historicisation of data sets. The data model defines all internal editing and
storage processes and can also be used to define and thus simplify the data
supply process by providing the data model to the data suppliers. Structures and
specifications for every expected object to be mapped need to be compiled in
advance. When developing a data model, the existing specification within the
INSPIRE framework may be helpful. The following object classes need to at least
be considered: field number per attribute, field name/description, alias (if
needed), field type (text, integer, double), field length (number of digits),
comment (memo field) and flag (mandatory field data entry, display get feature
info, input field/GUI).
The definition of recurring entries in lookup tables as well as the consideration of
links and dependencies within the data may simplify the data processing
noticeably and enable the reproducibility of results. One example for such links is
the spatial allocation of every feature to administrative boundaries.
Within the data model, the OGC-compliant storage, management and editing of
metadata according to DIN/ISO has to be considered, too. In doing so, data can
be searched or filtered easily by attributes, for instance creation date or location.
Test bed
Based on the modular set-up of the mapping system, a test bed is helpful
especially for expansion stages 3 and 4 comprising web technologies. Within the
test bed, processes can be tested under realistic conditions before going live.
Potential errors and system failures thus can be minimised and the operation of
the

system

stabilised.

Commercial

software

licences

often

include

the

implementation of test beds and do not require additional licences.

Page 143 / 280

6.4.2 Tiers of a mapping system

Successful broadband mapping requires different kinds of software, components
and modules. The basic requirements for every workstation are assumed as
follows:

up-to-date

systems

and

connection (bidirectional), two

releases,

22-inch

appropriate

external

network

monitors, completely administered

systems with up-to-date operating systems using MS Windows or Linux.

6.4.2.1

Network

The LAN can be run as 1 Gbit over WLAN (IEEE 802.11n). Capacities of more
than 1 Gbit/s fixed are regarded as ideal. Every external workplace is connected
to the LAN using encoded data connections, for instance VPN.
The minimum internet connection of 6 Mbit/s for download is preferred. For the
expected increased data transfer, a connection of 25 Mbit/s downstream and
5 Mbit/s upstream is preferred.
For security reasons a fixed IP address is mandatory.
The connection of web servers for data publication requires higher speeds of 50
to 100 Mbit/s downstream. A symmetric connection is sensible. The stability of
the network and the available bandwidth is crucial.
Servers

connected

to

public

networks

require

state-of-the-art

security

mechanisms and firewalls and are supposed to enable data exchange with the
internal network (update/backup) using suitable technical measures.

Page 144 / 280

6.4.2.2

Hardware

Desktop PC/workstation
Workstations can be designed in a low- or high-end version. A high-end version
is required for comprehensive geoprocessing tasks.
Figure 6-26: High-end and Low-end workstations
Low-end

High-end

CPU: actual dual core

processors

CPU: actual quad core

processors /high frequency

RAM: 4 GB

RAM: 16 GB

HDD: 500 GB

HDD: 256 GB SSD + 1 TB HDD

GPU: Internal, multi-monitor

ability (analogue)

GPU: Extension card, >1 GB

memory, multi-monitor ability
(digital)

Network-interface-card: 1 GB

Network-interface-card: 1 GB

USB 3

USB 3

1 22-inch monitor widescreen

2 24-inch monitors widescreen

Server (internal connection to LAN)

The internal servers are required for central storage of data as well as data
conversion or processing if necessary. Depending on the tasks and the data
protection status, it may be necessary to have two servers or instances available
in virtual systems.
The following applications/functions are represented on the server generally:
server OS (Windows/Linux), domain software, email groupware, webserver
software, antivirus software and backup software.
At least one of the provided servers should have the following configuration (the
server can also be performed as a virtual machine).

Page 145 / 280

Figure 6-27: Hardware small and medium workgroup

LOW (minimal hardware,
small workgroup)

HIGH (optimal hardware,

medium workgroup)

CPU: x86-64 compatible

(Opteron or similar)

CPU: x86-64 compatible

(Opteron or similar)

CORE: 4

CORE: 8

RAM: 8 GB

RAM: 64 GB

HDD: 1 TB SATA 24/7

HDD: 1 TB SAS HDD 24/7

RAID 1

RAID 10

Network-interface-card: 1
GB
1 manageable GigabitSwitches (16 Ports)

Network-interface-card: 10
GB
SSD-Cache, SAS-Interface
several manageable
Gigabit-Switches (48 Ports)
UPS

Page 146 / 280

Network Attached Storage (NAS)/internal data storage

The internal data management requires NAS with a scalable memory space of
1020 TB.
Figure 6-28: NAS small and medium workgroups
LOW (minimum for small
workgroups of 4-8 people)

HIGH (minimum for medium

workgroups of 10 - 40
people)

NAS

NAS / iSCSI

2 core CPU

4 core server CPU

4 GB RAM

Xeon, Opteron or
comparable

8-16 TB entire storage

8-16 GB RAM

8 x 1 TB / 2 TB SATA
HDD 24/7

24-32 TB entire storage

HOT SWAP

12 x 2 TB / 3 TB SAS
HDD 24/7

RAID 5

HOT SWAP

1 x 1 GB NIC

RAID 60

USV (if needed)

10 GB NIC
USV

Webserver (external connection to the internet)

A webserver connected to the public web is required for publication and collection
of data by the data suppliers where applicable Depending on the data protection
status, a separation of the collection and presentation tier may be essential. The
server host needs to be connected to service level agreements (SLAs) aiming to
ensure a permanent and undisturbed system operation and a quick recovery in
the event of damage. The servers can be set up as dedicated servers or
depending on the protection status as virtual machines. Hosting by external
providers may also be possible depending on the protection status.
The general webserver specifications are x86-64 compatible server-CPU, Xeon,
Opteron or comparable; 4 cores; 8 GB RAM, 1 TB SATA HDD 24/7, RAID 1, 1x
NIC 1 GB.

Page 147 / 280

Figure 6-29: Webserver requirements

Web server minimum

Web server ideal

Network connection 100 Mbit

Network connection 100 Mbit

Flat-rate traffic

Flatrate traffic

Backup memory

Backup memory
Hardware firewall
Load balancing
Cluster, failsave through
failover

Data backup
The system used for data storage must be as up to date as possible. Backups
have to be carried out at least on a daily, weekly and annual basis. It would be
favourable to create backups from several generations and a mixture of full,
differential and incremental backups. Additionally, optional data-deduplication
means that valuable storage space can be saved. In most cases, the data backup
depends on the existing specifications and the technical possibilities of the
internal IT.
If a data backup system still has to be determined, the following can be applied:

The memory capacity for a backup system (irrespective of deduplication

and/or compression) is dependent on the total net storage space. The
capacity should have double or three times the amount of total available
net storage space (see also examples for data storage systems).

The use of backup software is recommended.

Page 148 / 280

Figure 6-30: Data backup linear tape open

Linear Tape-Open LOW

Linear Tape-Open HIGH

LTO 4 Drive

LTO 8-12 Drive

Capacity: 2 TB (extensible)

Capacity: 10 TB (extensible)

external device - no rack

installation

Rack installation possible

(internal)

Bit rate: 160 MB/s

Bit rate: 400 MB/s

SAS Host

SAS Host

10 LTO bands

40 LTO bands

Security/firewall
The network and data security is of great importance in the project. To establish
and permanently sustain this security, different technical solutions and security
levels are necessary, depending on the status of the data protection.
Figure 6-31: Security/firewall
LOW

HIGH

Router

Router

managed and administered

software firewall

managed and administered

hardware firewall

If more security is required, the optimal configuration would be a hardware

firewall in combination with an application filter as well as a hardware router
(cascading, if required). Beyond that, at least one internal server should be used
as a domain controller (such as DHCP, email or AD).
In addition to the technical specifications (which should be kept up to date),
organisational measures and gradual access control lists within the software
should be introduced. This role concept regulates all internal and external users
to determine who may work where and when with which data.
The organisational regulations specify access authorisations to the corresponding
facilities as well as considerations of constructional measures, such as fire
precautions or anti-theft protection.
Page 149 / 280

Within the scope of the organisational regulations, competent employees should

always be available. To achieve this, education, training and briefing has to be
provided. Rules for the data handling and procedures should be specified and
ratified by the employees.
Above all, ISO 27001 regulations have to be followed.

6.4.2.3

Software

Operating systems
In the course of this project, several different operating systems might be
applied. For the desktop computer, MS Windows 7 or Linux distributions might be
used. It is of paramount importance that modern system software is used with
constant updates and patches in order to close possible security holes. A 64-bit
system should be preferred to a 32-bit version.
In addition to the MS Windows 2008 server and 2012 server, Linux distribution
can be used.
For mobile applications, cross-platform gtml5 applications may come into
operation. This way, complex app programming for different mobile systems
software (iOS, Android, Surface etc.) can be avoided.
Office
It is assumed that patched standard Office components (including databases) are
used:

text

processing,

spreadsheet,

graphical

software,

data

file

and

communication.
Virus scanner and other software/tools
On every computer (desktop, server), a current virus scanner should be installed
and updated frequently.
It is quite important to assure that the virus scanner, especially on a web server
as well as in the field of internal data processing, is adjusted so that it does not
constantly reduce the performance of the system.
The following tools should be available on every workspace:
-

current browser;

graphic

program/picture

viewer

to

open

and

work

with

raster

data/pictures;
-

tool to compress data.

Page 150 / 280

Desktop GIS/spatial data processing

Map navigation:
Standard tools for map navigation: pan, zoom, and rotate, find x, y location,
zoom in/out, extent of a theme/layer, pan and zoom to selected features, etc.
Map queries:
Identify features in the map, measure distance and areas, find places, addresses
or attributes (gazetteer), select data by location and attribute, interactively
select/unselect features, access attribute table and layer properties.
Tables:
Zoom to, pan to, select and identify, sort, find and replace attributes, create a
report, statistics, graphs, see and edit properties.
General mapping:
Visualise Map Page or Set of Data, Enable Projections of All Data Sets.
Interoperability and integration of different databases and alignment of this with
thematic blocks and layers within a dynamic legend. Possibility to interactively
change colour and symbols as well as allocation of translucence and advanced
regulations for the presentation. Support of standard spatial data related to
integration/import and export. Support of current raster data formats and
possibility of georeferencing of this data.
Collection of data
The GIS system has to enable an extensive analysis on all levels of the received
data. For this, the following functions should be supported: Intersect, Merge,
Buffer, Dissolve, Split, Overlay, Proximity, Other spatial analysis delivered.
Furthermore, there should be support of statistical analysis and determination of
specific values, amounts and fluctuations. Raster/vector conversion, modelling
spatial

relationships,

simple

conversion,

support

von

projections

and

transformations. Calculation of surfaces, numbers, ratios as well as queries of

spatial joined data basis.
Geocoding
Support finding associated geographic coordinates of addresses.

Page 151 / 280

Cartography/output
Possibility to display maps with the usual components as legends, scale, north
arrow and design, logo and so on. Output as print with the assistance of current
printer and plotter as well as output as pdf, geopdf or as digital geocoded raster
data set in standard format. Plot pattern and map layouts have to be able to be
stored and reused.
Data management and validation
Verifying of spatial relationships, creation and testing of topological relations and
links.
Figure 6-32: Data management and validation
LOW

HIGH

Standard desktop GIS

Concurrent editing

Spatial data import/export

Central data management

within a database

Simple spatial data

processing

Advanced spatial data

processing (topology, etc.)

Possibility to capture and edit

geometries

Advanced data management

and validation tools

Creation and output of maps

Advanced possibilities of map

design, publication and output

Local data management

Expansion stages
In the first expansion stage, new GIS workspaces could be added as a simple
option to increase the capacity. While upgrading in terms of expansion stage II,
it would be convenient to provide at least one central database for the storage
and administration of the data. In case of multi-users, functions for the handling
of

concurrent

editing

and

an

extended

user

administration

has

to

be

implemented. As a data management component, standard relational database

systems may be used. For this, MS SQL Server, Oracle or Open source products
such as PostgreSQL may be used in combination with a GIS-specific middleware
to approach the database or utilise the necessary GIS functionalities.
In addition to these features, particularly data acquisition functions and
construction functions, as well as those for data analysis and data handling,
might be added. This involves tools for a simplified import, easier handling of
Page 152 / 280

grid data and their intersection to improve the analysis process. Moreover,
procedures can be made to function semi-automatically by assistants with the
possibility of reproduction and processing. Among these functions, a further
modular development in the field of visualisation and creation of maps is possible
(for example, free labelling and cartographic possibilities) plus 3D components
for the visualisation/calculation of visibility and radio diffusion. These expansion
stages are mostly only necessary in advanced project stages or for very specific
requirements.
All functions can be represented completely on a web-based system and at
different spatial positions. This is especially important where there are medium
to large internal teams or divisions of work. The GIS functions all need to be
available within an internal WebGIS LAN-environment. The utilisation is carried
out by a web browser within a rich client, which reproduces almost all functions
of the desktop GIS. In some cases, plugins or browser expansions may be
necessary. The service can be combined at the same time with desktop
applications and is mostly focused on the existing structures and products.
Databases/data managing
In the project, central data managing is intended at least from expansion stage
II. The database serves as a central deposit and storage place for the data and
where applicable its geometry. Here, standard relational data management
systems may be used. In addition to these functions, the central relational
database management system (RDMS) can also take over spatial processing and
converting tasks.
It is very important to choose open date formats and standardised filling formats.
All data has to be able to be queried by SQL. The database should be harmonised
with and supported by the used GIS system.
At the beginning or the set-up stage of the project, open source applications or
commercial test applications (be aware of limited data volume) might be used.
An MS SQL Server, Oracle or PostgreSQL etc. are useful. The spatial extension of
the database can be used for a better integration in the processes and execution
of geoprocessing tasks.
Data management can be carried out in different entities, for example, divided
into primary and secondary data. Here the logical structure as well as the strict
consideration of the data and metadata model is indispensable.

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Figure 6-33: Databases / data managing

LOW

HIGH

Standard RDBMS database

Full RDBMS database

Partly limited queries and

automation functions

Extensions for administration,

storage and editing of
geometries

Storage capacity limited

Clustering
Replication
Mirroring
Unlimited storage

The following subjects also have to be considered in the planning phase:

-

avoidance of double data storage;

versioning (version or date);

metadata catalogue of the available data;

historiography;

fast connection to fast media (SAS or SSD storage).

Conversion tools
The GI-Systems used for broadband mapping are supposed to support current
established GIS and CAD data formats. Proprietary vector formats of ESRI
(shapefile) or MapINFO (Tab/MIF) as well as DXF, DWG and DGN files should be
importable without loss of connected attributes. In parallel, the OGC data
formats like GML are required. In addition, basic geodata or background data,
such as raster data (maps, aerial pictures), should be integrated. The integration
of OGC-compliant web services is a minimum requirement as well. In the best
case, these services are directly INSPIRE-compliant.
Options for transformation of data sets are required, as well as the possibility to
import alphanumeric data with a spatial reference (x-y-coordinates). Interfaces
for CSV import as well as standard database tables (MS SQL, Oracle,
PostgreSQL, MS Access) have to be planned.
Where a simple desktop is used, GIS open source conversion tools can be used
as extensions to cover the minimum requirements. Within the scope of the
concept development phase, the expected data formats need to be determined
and appropriate tools included in the concept. In many cases, the standard GIS
Page 154 / 280

functions are sufficient at the beginning of a mapping project.

Figure 6-34: Requirements conversion tools

Low-end

High-end

Limited number of supported

data formats

Nearly unlimited number of

supported data formats

Minor possibilities for

automatisation

Good possibilities for

automatisation

Restricted to one workstation

Application within the LAN at

every workstation
Integration into GIS
workstations

Expansion stage
In order to simplify data import and recurring processes, tools for automated
import can be implemented. These tools enable the definition of (recurring)
processes and steps as part of the conversion process using simple surfaces
without necessary programmer skills. Import as well as export of data can be
carried out in batch mode. In addition, conversion tools on the market support
plenty of raster, vector and alphanumeric GIS and database formats. Some of
them can be integrated directly into GIS workstations. Currently more than 250
different GIS formats are in use but locally not more than 50 different formats
are expected.
Data exchange (upload download)
The bidirectional data exchange with plenty of external and internal involved
parties is one core element of every broadband mapping initiative. In addition to
mail and email, different data exchange options exist which serve different
security requirements.
FTP
A simple way for data transfer is the installation and configuration of File
Transport Protocol (FTP) software on a web server. FTP is recommended in case
of low data protection status. Usage of FTP in practice is quick and easy with high
availability in most networks. However, data transfer is open and unencrypted.

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SFTP
When data has a medium protection status, Secure File Transport Protocol
(SFTP) or FTPS applications can be planned. The usage is not much more
complicated than using FTP but data is encrypted. Set-up, configuration and
operation require slightly more effort. In addition to this, within large companies,
authorities or institutions, the IT obstacles or restrictions can obstruct the usage.
Web upload
A practical way for data exchange is the implementation of a specific upload area
on a web server. Data security is ensured by using HTTPS/SLL (certificates are
required). It is accessible even for large companies with restrictive IT
requirements. Several applications are available on the market providing high
levels of browser compatibility as well as security via optional SSL. In case of
high data protection status, the application could be run on a separate instance.
External hosting could be a safety issue as well. The usage of cloud-based
services such as dropbox should be avoided for security reasons.
Figure 6-35: Requirements data exchange
Low-end

High-end

FTP/SFTP clients

FTP/SFTP clients

Small degree of individualisation

Individual software for upload

area

Simple security certificates

Extended security certificates

High degree of individualisation

Page 156 / 280

6.4.2.4

Web application

Data preparation/processing
The following software and components are standard for web servers.
Figure 6-36: Software and components for web servers

Service for provision of web content

Framework for programming of

websites

Server-based database with extension

for storage and processing of spatial
data
Service for real-time provision of map
content based on geometries or
database via the internet

Model viewer control as framework for

processing of requests and provision of
data
Web server-based scripting language
for display of dynamic content on the
internet

GIS-Software for display of spatial data

and maps as WMS or WFS services

Application for provision of dynamic

map content on web clients

Service for performance optimisation

(up to 100 times) by WMS processing
in advance and caching

Tool for statistical analysis and

visualisation of access on content and
services

Developing environment

Tool for monitoring and surveillance of

availability

Web client
Nearly every standard browser should be suitable as a web client. The application
needs to be optimised to current browser versions. Additional plugins or tools
should be avoided. The compatibility for standard browsers needs to be
considered for approx. two program versions in order to enable the usage of the
system for larger entities and authorities. Compliance with web standards and a
barrier-free environment are presumed.

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Data presentation and collection

Within the web application, the processed data is dynamically and interactively
provided on the internet. The integration of the processed broadband maps as
well as additional geo data, e.g. derived from OGC-compliant web services, has
to be enabled in a performant way. The presentation is supposed to be visceral
and user-friendly. Among others, the application should contain the following
functions and features (selection).
Figure 6-37: Function and features data presentation and collection
Presentation

Interactive selection of
layers and themes
Rights management and
user administration
Translucent display of
themes
Zoom using defined scales
or mouse wheel
Zoom using a section
Dynamic legend
Request of information via
mouse roll over or click
Display and generation of a
scale

Collection

Classification and colouring

of icons and objects
Labelling and display of
information
Measuring of distances and
areas
Print to PDF
Linking of objects to
alphanumeric data
Search and filter of
adresses or other spatial
units
Open, central and OGC
compliant data storage

Digitisation of spatial
features inc. attributes
Snapping and set-up of
simple topologies
Entry of alphanumeric data
using picklists or free text
Collection of locations via xy-coordinates
Surface for collection of
information and metadata

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6.5 Integration into the regulatory and political context

The relevant political and regulatory context for broadband mapping is
characterised by a number of policy dimensions. On the one hand, these
dimensions cover overall broadband deployment goals as well as the according
implementing and supportive measures; on the other hand, they focus on
harmonisation and unification in Europe.
The former dimension finds expression mainly in the DAE and its broadband
deployment goals. The respective implementing and supportive measures focus
on cost reduction (by means of fostering transparency and co-deployment), on
state aid to complement private investment in underserved areas, and on
monitoring progress of policy achievement. The latter dimension envisions a
connected continent and the implementation of a European single market. This
implies, for instance, enhanced consumer rights and the respective information
duties imposed on broadband service providers. Harmonisation among European
Member States also requires long-term effort to achieve common infrastructure,
such as INSPIRE.
In this light, the question arises how the methodology options depicted earlier in
this chapter relate to the political and regulatory context for broadband mapping.
This question is addressed subsequently in three steps. Methodology options that
derive directly from a regulatory point of view are considered first, followed by
the

impact

of

the

regulations

on

general

mapping

aspects

and

data

collection/processing/publication aspects, respectively.

6.5.1 Impact of regulations on mapping methodology
The following list summarises the key regulatory sources for broadband mapping
grouped according to the two policy dimensions introduced:

Broadband deployment goals and implementing/supportive measures:

o

DAE;

Cost Reduction Directive;

state aid guidelines;

Universal Service Directive.

Harmonisation and unification in Europe:

o

Connected Continent/Single Market Regulation proposal;

INSPIRE.

It is essential to note that none of the above sources imposes broadband

mapping. The state aid guidelines constitute the only source listed that explicitly
Page 159 / 280

demands for a mapping exercise. However, even though the guidelines require a
mapping exercise, they do not imply any (explicit) methodological impact on 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.
Broadband mapping can therefore be seen as methodologically unregulated at
this point in time when adopting a strict viewpoint. 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.
With an in-depth eye on wording, the state aid guidelines ask for a detailed
mapping and analysis of coverage (Article 78 (a)). This implies that the mapping
methodology allows a certain degree of granularity in terms of resulting
information, enabling a variety of analysis methods to be used. The guidelines do
not qualify or quantify explicitly the exact meaning of detailed and analysis,
but the context of Article 78 (a) comes down to an interpretation of these terms:
the mapping exercise should be detailed enough so that it results in an analysis
based on white, grey and black areas. This (methodological) interpretation is
supported explicitly in Article 78 (b): A detailed mapping exercise and a
thorough consultation ensure not only a high degree of transparency but serve
also as an essential tool for defining the existence of white, grey and black
areas.
6.5.2 Potential impact on general mapping methodology
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 embrace the overall objectives of broadband mapping, the
question on elements to be mapped, the applicable market surrounding, and the
question on any obligation to supply data.
Where cost reduction and synergies in broadband development determine the
primary goal of a broadband mapping initiative, policy goals originating from the
Cost Reduction Directive are deemed of high importance. This implies that a
mapping methodology would be well suited if it (a) puts a focus on infrastructure
and possibly also investment mapping, (b) is primarily targeting providers, (c)
increases transparency for these providers, (d) namely by allowing them to
assess potential for infrastructure co-usage/co-deployment, and (e) does so by
Page 160 / 280

covering at least a minimum set of infrastructure attributes (such as those

provided in Article 4 of the Cost Reduction Directive).
In cases where coordination of measures for broadband deployment determine
the primary goal of a broadband mapping initiative, policy goals originating from
the state aid guidelines are deemed of high importance. This implies that a
mapping methodology would be well suited if it (i) puts a focus on infrastructure
and possibly also investment mapping, (ii) is primarily targeting competent
authorities in Member States, (iii) facilitates their assessment of target areas,
(iv) namely on the level of white, grey and black areas, (v) enabling an analysis
of conformity with state aid.
Where knowledge and statistical analysis of the broadband situation determine
the primary goal of a broadband mapping initiative, policy goals originating from
the Digital Agenda (or a comparable national broadband agenda), the Universal
Service Directive, and the Connected Continent/Single Market Regulation
proposal are deemed of high importance. This implies that a mapping
methodology would be well suited if it (1) puts a focus on service mapping and
possibly also demand mapping, (2) is targeting a wider audience including endusers, (3) increases transparency for the public as well as competent authorities,
(4) namely in terms of broadband service availability and possibly also take-up
and actual broadband service quality, (5) facilitating an assessment of broadband
deployment objectives and monitoring of available broadband service.
Depending on these fundamental considerations regarding mapping goals,
further areas of a more general nature might show a substantial impact on a
well-suited mapping methodology. For instance, if a standardised European
broadband mapping initiative should be envisioned at some point in the future,
policy directions that aim at harmonisation on a European level would become
much more relevant than they are today. In particular, INSPIRE, which is nonbinding for telecommunications infrastructure today, may have a stronger impact
on a well-suited mapping methodology in such a scenario. For instance,
questions of (mapping) service discovery or harmonised data models would
probably shape the way the respective mapping methodology would look.
INSPIRE is similarly expected to gain more relevance in cases where the
mapping methodology looks to cover non-telecommunication infrastructure as
well.
Finally, the market surrounding an obligation to provide data may have a
counter-intuitive impact on a mapping methodology in certain situations. At first,
making it mandatory for providers to supply data might seem an obvious choice
to ensure a more complete mapping and timely updates. Similarly, it may sound
obvious to opt for an infrastructure

mapping for purposes of fostered

Page 161 / 280

(infrastructure) competition and potential for cost reductions by help of cousage/co-deployment. There may, however, be market structures for which a
cost-benefit analysis might indicate that infrastructure mapping is not needed;
instead, the goals behind it may be achieved more efficiently with an established
and efficient communications channel between providers in a market with only
two players, for example. Results from the review among European broadband
mapping initiatives as well as insight obtained from on-site visits show that the
specific market should be considered. The same holds for the decision whether to
impose an obligation for data supply.
6.5.3 Potential

impact

on

data

collection/processing/publication

methodology
The data that is collected from data suppliers defines the range and quality of
data to be processed as much as the data processed shapes the range and
quality of information being published. Only what has been collected can ever be
processed and eventually be published. In this context, it is most interesting
from a regulatory point of view to reflect on Article 4, provisions of the Cost
Reduction Directive.
Responses from the questionnaire55 sent to mapping initiatives may indicate the
extent to which initiatives collect those attributes that Article 4 defines as the
minimum information to be provided regarding existing physical infrastructure.56
For each attribute, Table 6-4 shows whether it is typically collected or by a few
initiatives only.
Table 6-4: Coverage of minimum information set (as stipulated by
Article 4 of Cost Reduction Directive) by mapping initiatives
responding to questionnaire
Attribute of infrastructure/Level of coverage

Typically collected by
initiatives

Only collected by few

initiatives

Location
Route
Type
Current use of infrastructure
Contact point
55
56

See Chapter 5 for a detailed analysis of the questionnaire.

Physical infrastructure is defined (in Article 2) as any element of a network which is intended to host other
elements of a network without becoming itself an active element of the network. The definition lists
examples. These embrace pipes, masts, ducts, inspection chambers, manholes, cabinets, buildings or entries
to buildings, antenna installations, towers and poles. The questionnaire sent out to mapping initiatives within
the context of this project asks for a comparable subset of the above examples listed, namely for ducts, cables,
network elements, radio towers, microwave, non-telecommunications infrastructure, roadwork, and other.
Page 162 / 280

Most initiatives that sent responses to the questionnaire cover information on

location (points). Routes are less frequently collected than locations. Exact
location information for points and routes is collected by nine responding
initiatives. Three initiatives may be added to this number as they collect points
on a non-exact location level. The number of initiatives that not only collect but
also publish the respective data is of comparable size, albeit slightly lower.
The type of infrastructure is typically collected by initiatives. This differs from the
attribute regarding current use of infrastructure, which is not often collected.
Nevertheless, some initiatives (e.g. in Poland) are known to collect information
on spare ports of network nodes or the occupation of cables.
The name of the infrastructure owner is supposed to be known to the initiatives.
The same holds true for the existence of a contact point.
In summary, questionnaire responses indicate a relatively high coverage of the
minimum set of attributes referred to in Article 4. Three out of five attributes are
typically collected by a majority of responding initiatives. High attribute coverage
implies, a priori, a profound basis with respect to the second aspect of
consideration in relation to Article 4 provisions, that of feasibility.
Article 4 includes several aspects that may show relevant influence on feasibility.
For one, information shall be made available via a single information point. In
case of an existing infrastructure mapping initiative, this requirement should be
feasible to achieve as it can be addressed by the respective initiative, especially
if the mapping initiative is one of those that typically collects the minimum set of
information stipulated in Article 4.
Feasibility of Article 4 provisions is further fostered by an existing and wellestablished mapping initiative since [m]inimum information [] shall be
accessible promptly, via the single information point, in electronic format and
under proportionate, non-discriminatory and transparent terms'. Infrastructure
mapping facilitates data delivery in electronic form and in a timely manner.
Questions of access terms (proportionate, non-discriminatory, transparent) are
relevant aspects for existing mapping initiatives when it comes to deciding which
type of user will be authorised to view what kind of information and in which
level of detail. Accordingly, many mapping initiatives are supposedly prepared57
to support different access levels.
Time limits constitute a key aspect when determining Article 4s feasibility.
Overall, access to the minimum information requested has to be ready by
57

What proportionate, non-discriminatory and transparent access will mean and to whom (e.g. if access will be
free-of-charge), however, is more a political question than a technical one.
Page 163 / 280

1 January 2017. For Member States with an existing mapping initiative, this
seems feasible.58

6.6 Effort required for setting up and operating a broadband

mapping initiative
The estimation of one single value for the effort required for broadband mapping
is practically impossible. As has been shown so far in the review as well as in the
methodology choices, broadband mapping can be carried out in very different
ways and to different levels of detail depending on various choices, the setting of
priorities, external factors like the structure of the TC market and the size of the
investigation area, e.g. a Member State, and last but not least the available
budget. Hence, a simple transfer of costs indicated in the review to the
developed mapping methodology did not appear to be sensible. According to this,
the estimation of effort within the scope of this study has been carried out using
a bottom-up approach demonstrating the various levels of effort required in the
different project phases and discussing them in connection with the methodology
choices and external factors.
The effort estimation also includes potential effort on the part of the operators.
This effort is mainly related to the data conversion and the data supply process.
The effort for data conversion can either be on the part of the operators or on
the part of the initiative; hence, the effort for data conversion is not split into
operator and initiative efforts.
In order to support mapping initiatives, the Excel file that has been used for the
effort estimation within the study can be provided on request. The Excel file
comprises all potential effort for broadband mapping with predefined values for
effort and market scenarios. These values or scenarios can easily be adapted by
the initiatives according to their mapping concept and market environment.
It has to be pointed out explicitly that the deliberations below provide a
generalised estimation of possible effort and do not replace a detailed effort
analysis by the mapping initiative. In particular, the effort needed for data
conversion has to be analysed in consultation with the TC companies for the
selected mapping concept.
In the course of setting up a broadband mapping initiative and developing a
58

The time limit appears sufficient (and therefore feasible) in comparison to time-related experience made by
initiatives (as documented in on-site visits and in the review). It should be noted that Article 4 does not impose a
mapping obligation on the minimum information to be provided. Since Member States with an established
mapping initiative have gained practical experience with comparable processes in terms of data supply and data
processing for mapping purposes, an assessment with respect to time limits mandated by Article 4 appears
reasonable.
Page 164 / 280

mapping concept, one crucial issue is to find a good balance between the extent
and level of detail of mapping on the one hand and the effort required for
mapping on the other hand. Especially if infrastructure mapping is envisaged to
reduce costs in broadband deployment, the effort needed for mapping is thought
to be much lower than the expected cost reduction potential in broadband
deployment.
6.6.1 General assumptions
TC market
For the purpose of effort estimation, several assumptions have to be made. As
the structure and size of the TC market are major issues concerning the effort,
three different theoretical markets as well as three groups of companies
depending on their service area have been defined. Market 1 represents a large
Member State with many different operators in every company group. The
second market stands for a smaller Member State or region with only small and
medium-sized companies. The third market is dominated by a few large
companies and can also represent data collection concentrating on the major
companies of an investigation area.
The company size has an impact on the amount of data and thus on the effort
required for data conversion. The effort estimation for each company size group
has to be considered as a mean value for the group and can vary between single
companies in reality. Telecommunication incumbents in large Member States are
excluded in the effort estimation as they may cover extremely large areas and
hence are inappropriate for a generalised approach. Besides, these companies
are supposed to be consulted by the mapping initiative during the concept
development phase anyway as their participation is crucial for the success of a
mapping project.
Table 6-5: Theoretical market scenarios
Small companies

Medium companies

Large companies

All

Actively
deploying

All

Actively
deploying

All

Actively
deploying

120

30

50

20

20

12

60

15

30

12

17

14

70

20

70

20

Market 1
Fixed
Thereof DSL Provider
Wireless
Market 2

Page 165 / 280

Fixed
Thereof DSL Provider
Wireless

10

10

10

15

10

15

10

Market 3
Fixed
Thereof DSL Provider
Wireless

Table 6-6: Company size groups

Company size
group

Definition

Small

Fixed: < 10 km of infrastructure; Wireless: < 10 points of infrastructure;

Service: < 10,000 supplied households

Medium

Fixed: > 101,000 km of infrastructure; Wireless: > 10100 points of

infrastructure; Service: >10,000100,000 supplied households

Large

Fixed: > 1,000 km infrastructure; Wireless > 100 infrastructure points;

Service: > 100,000 supplied households

Data collection/supply
One general assumption regarding the supply of data is that the data supplier
cannot be obliged to generate data that is not already available within the
company, e.g. if the supply of exact points and lines of infrastructure is required
by the initiative, a company cannot be obliged to digitise this data if it is only
available on analogue paper maps. Hence, for the effort estimation it is assumed
that the data is available in the required spatial resolution as well as the systems
needed for the production of the data. Nevertheless, a sort of goodwill from the
data suppliers is assumed as well, i.e. data suppliers are expected to collect not
currently existing data if the effort for data collection does not exceed one days
work. The collection of infrastructure as exact points and lines data on the last
mile is excluded because of the tremendous additional effort required on the part
of the operators, as mentioned by them in the operator workshop in March 2014.
Instead of mapping the exact route of infrastructure lines on the last mile, the
mapping can be simplified by only mapping the addresses connected to a
distribution point and if needed additionally displaying the virtual connection line
between an address and the distribution point.59 If further information on the
exact route of line is required, e.g. in implementation planning, this information
59

However, if information on the actual route is available, it should be integrated in the mapping process.
Page 166 / 280

can

be

exchanged

bilaterally

between

the

deploying

company

and

the

infrastructure owner.
Hence, the effort needed for data conversion is narrowed down to the conversion
of formats and spatial reference systems of geographical data sets, the filtering,
geocoding or spatial processing of non-compliant data sets and the estimation of
missing attributes as DSL speeds. This effort can either be on the part of the
initiative or the part of the data supplier.
Costs are estimated per year comprising the first-time data collection and one
update. Further assumptions on single issues are mentioned in the context of the
description of the single effort items.
Project phases
Developing a broadband mapping initiative of any type from scratch is without
doubt a complex task with numerous issues to be considered, as the following
sections show. However, the review of existing mapping initiatives has shown
that a breadth of existing approaches has already been adapted to various
market environments and objectives. Thus, there is plenty of practical knowledge
to draw from others who are in the process of setting up or operating a mapping
initiative.
In general, one can assume that initiatives go through four major project phases,
as depicted in Error! Reference source not found.the figure below.

Page 167 / 280

Figure 6-38: Project phases

Phase 1: Project preparation

Definition of responsibilities for broadband mapping
Definition of aims of mapping
Estimation of available budget
Estimation of timeframe

Concept development
Preparation and execution of tenders
Development of tools and methods
Implementation of tools
Testing/pilot phases/safety tests

Phase 3: Operation

Project Management

Phase 2: Development

Data collection, processing, presentation

Statistical analyses and reporting
Documentation/training
Communication and marketing approaches
Data updates
System operating/maintenance

Phase 4: Adaptations and further developments

The purpose of the project preparation phase is to define the objectives and
potential budget for setting up and operating the initiative. In phase 2, the
methodology and relevant tools or templates have to be developed. After
defining these technical specifications, it is advisable to re-evaluate the
estimated cost for setting up and operating the initiative. For both tasks, external
consulting may be supportive. All tools and templates ought to be thoroughly
tested before they are put to use. As most broadband initiatives deal with
sensitive often even strictly confidential data, it is also likely that data safety
measures have to be put in place and tested.
For a successful operation (phase 3), issues such as employee training and
documentation standards have to be taken care of. Furthermore, one should
consider if and how the mapping initiative is promoted publicly in order to
increase awareness as well as acceptance among relevant stakeholders. Early
inclusion of data suppliers in the whole process will increase the chances of
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acceptance considerably. A high level of acceptance is a pre-requisite for a

successful operation phase. After a first full iteration with data collection,
processing and publication, it is likely that amendments will have to be made.
Needless to say, the mapping initiative has to be kept up to date.
6.6.2 Effort items for broadband mapping
Effort can be divided into the three major project phases: preparation,
development

and

operation,

which

require

project

management

and

communication effort. Subsequent to the operation phase, a phase of adaptation

and further development is required. For this phase, effort depends on the scope
of adaptations and therefore cannot be estimated within this study.
The effort needed for every phase is summarised in the following sections in
person weeks (PW). For the development phase, the effort is divided into setup/development effort and testing effort. For the operation phase, the division is
split into effort for the first collection of data and update effort.
Project management
Every broadband mapping project requires comprehensive project management.
Major tasks are the coordination of actions and the provision of a point of contact
on the mapping initiative. During the phase of development and first data
collection, the effort for project management is comparatively higher than in the
update phase.
Assumptions

Estimated effort
35 PW for the development phase as
well as for every update phase.

Project preparation
Within the project preparation phase, the first action one has to carry out is to
become acquainted with the topic of broadband mapping, e.g. by reading the
study on broadband mapping and web research on existing initiatives. After this
initial review, responsibilities and aims of mapping need to be defined as well as
the available budget and time frame.
Assumptions

Estimated effort
4 PW.

Page 169 / 280

Development
The

development

phase

starts

with

the

concept

development.

Several

methodology choices on the mapping concept have to be made by the persons

responsible for the project. This can be accompanied by contacting existing
initiatives. Additionally, the major operators as sources of data are supposed to
be consulted on the mapping concept at least. Having defined the mapping
concept, tenders have to be prepared and executed, if necessary, often in liaison
with external consultancies or development of software and tools.
Assumptions

Estimated effort

If a tender is carried out, the effort

2.55.5 PW.

estimation assumes max. one tender for

each of the two tender categories.

However, the bulk of the effort required in the development phase is related to
the development, implementation and testing of tools and methods.
The data collection process has to be organised. Therefore a documentation
process for contacts with data suppliers needs to be set up. This process is
supposed to be more sophisticated in market environments with many data
suppliers as in smaller markets. The data collection can be supported by
information material on the mapping initiative (flyer, etc.) that has to be created.
If an obligation is part of the mapping concept, a framework and legal basis has
to be set up. In every case, effort for setting up contracts on data usage can be
assumed. For the data sources, potential data suppliers and market players need
to be identified, e.g. by web research or contacting authorities or organisations.
Assumptions

Estimated effort
2.58.7 PW.

Going one step further, technical aspects depending on the selected methodology
choices require development effort, too. For every kind of mapping, an
appropriate data model needs to be developed. The data model serves the
purpose of defining the data format and connected attributes supplied by the
data suppliers. As a second aspect, the data model describes the consolidation of
supplied data into one data set that is used for data publication and analysis.
Depending on the required spatial resolution of collected data, the research for or
development of templates for spatial data sets may be necessary. The most
important data sets are addresses, grids or other approximate small-scale areas
and administrative boundaries. Because the availability and potential licence fees
Page 170 / 280

for these data sets vary between Member States, effort for data licences cannot
be estimated within the study.
Assumptions

Estimated effort

Additional spatial data as addresses are free

4.26.6 PW.

of charge for the mapping initiative.

For the data supply process, upload server, upload websites or websites for
alphanumeric or even spatial data entry need to be set up and/or developed. A
backup process for the collected data on a web server is required as well.
Furthermore, if the concept envisages the usage of web services, software and a
process for the generation and processing of web services is needed. If data is to
be supplied via mail/email only, no effort is required.
Assumptions

Estimated effort
021.9 PW.
(Major effort: Set-up/development
website for spatial data entry 12.2
PW.)

The data conversion requires development effort related to processes for

conversion of formats and spatial reference systems of geographical data sets,
geocoding of addresses or research for commercial geocoding services, spatial
processing of non-compliant data sets and the estimation of missing attributes as
DSL speeds. Research effort primarily arises from required additional spatial data
as background maps, and statistical figures as households, vector streets or
aerial pictures. Quality checks for plausibility and manual checks need to be set
up and additional functions developed.
Assumptions

Estimated effort

A possible feedback function

016.3 PW.

comprises a form for entry of feedback

(Major effort: Set-up process for

as well as a function to locate the

determination of DSL speeds via

feedback on a map. It is implemented

routing 4 PW and feedback

in an existing website for data

function 2 PW.)

publication.

For the publication of data, technical measures for restricted access to data and a
process for granting access need to be developed in case the access to data is
Page 171 / 280

restricted. Depending on the publication format, the structure and content for a
report have to be defined, templates for data provision as tables, geodata or web
services developed as well as websites or mobile apps.
Assumptions

Estimated effort
021.5 PW.
(Major effort: Set-up/development of
advanced website 12.2 PW.)

The final effort requirement is related to the storage of data where a database
for the structured data storage as well as a backup process is required.
Assumptions

Estimated effort
03.4 PW.

Operation
The operation of a broadband mapping initiative starts with a mailing to all
potential data suppliers requesting the supply of data. The mailing is supposed to
be accompanied by a telephone and email support reminder. If an obligation for
data supply is implemented, companies may take legal action against the
obligation. The effort needed for these legal actions cannot be estimated within
the scope of this study as they are highly dependent on the number of cases and
their complexity. For data confidentiality, the signing and administration of
contracts with data suppliers requires effort.
Assumptions

Estimated effort

Half of the data suppliers require

1st collection 1.55.6 PW

support for half an hour on average.

Update 0.41.7 PW

The data supply process using email, upload server or special websites requires
relatively little effort on the part of the data suppliers. The usage of web services
for data supply may lead to a large amount of effort being required as some of
the data suppliers, especially the smaller companies, currently do not have the
requisite skills to generate web services. Hence, it has to be assumed that these
operators need to acquire that skill, which on average is estimated to require one
week per data supplier. Effort for entering or digitising data on a website is not
included in the data supply but in the data conversion process.

Page 172 / 280

Assumptions

Estimated effort

The effort for data supply without web

1st collection 0.5338.8 PW.

services does not extend to half an

Update 0.31.5 PW.

hour per data supplier. For data

(Major effort: 1st collection in

supply via web services, initial effort

market one using web services

on the part of the data suppliers of

for all data suppliers 334 PW.)

one week is assumed on average.

Some general assumptions regarding the data conversion have already been
made in chapter 6.6.1. The greatest effort is required for conversion of data sets
comprising exact points and lines. This is because this kind of data is the most
complex and requires the most work for conversion, filtering and harmonisation.
Small data suppliers are not required to dispose of exact point and line data but
it is assumed that the effort for the generation of this data, for instance via a
WebGIS provided by the initiative, does not exceed one working day and will
therefore be carried out by the data supplier. Comparing the conversion of exact
point data against approximated data, the necessary effort for the latter is
slightly higher as approximated data often requires geocoding and spatial
intersection of the data (whereas exact point data only needs to be geocoded).
The conversion of aggregated data requires the least amount of effort. One
additional conversion process that is related to effort is the estimation of DSL
speeds using spatial analysis. The effort is assumed to be on the part of the
initiative.
Assumptions

Estimated effort

Exact points and lines data is available in

1st collection 1.1141.6

the required spatial resolution as vector data

PW.

or non-geocoded addresses as well as the

Update 0.411.5 PW.

needed systems. Max effort for generation of

(Major effort: 1st

new data-based data sets that arent

collection in market one

compliant require 1 PD (person day) (e.g.

using data conversion of

digitisation). Last mile excluded. Exact

exact points and lines

points data is available in the required

136.6 PW.)

spatial resolution as geocoded or nongeocoded addresses as well as the needed

systems. Max effort for generation of new
data-based data sets that arent compliant
require 1 PD (e.g. generation address

Page 173 / 280

dataset). Approximation data is available

as exact points or lines as well as the needed
systems and needs to be converted. Max
effort for generation of new data-based data
sets that arent compliant require 1 MD (e.g.
digitising via WebGIS). Aggregation data
is available as exact points, lines or coverage
area as well as the needed systems and needs
to be converted.

Quality checks on the data can require a large amount of effort depending on the
extent and level of detail of checking. For the effort estimation for plausibility
checks, the carrying out of automated checks with a rough manual view on the
data is estimated. For additional manual checks, the same effort is estimated
once again. If a feedback function is implemented in a website, the effort
depends on the incoming feedback messages.
Assumptions

Estimated effort

As numbers for feedback messages, the

1st collection 0.26.8

following are assumed for the first data

PW.

collection Market 1: 300, Market 2: 50, Market

Update 0.12 PW.

3: 100. Effort for handling of one item of

feedback is 10 minutes. For the following update
cycles, the number of messages decreases by
half.

Going one step further to the publishing of data, effort is required for the
management of access to data depending on the amount of access requests. The
publishing process of data is related to effort for the generation of reports, data
provision or the implementation of data in websites.
Assumptions

Estimated effort

As numbers for access requests, the

1st collection 09.9 PW.

following are assumed for the first data

Update 09.95 PW.

collection Market 1: 500, Market 2: 70,

(Major effort: 1st collection in

Market 3: 100. Effort for granting access

market one managing

is 30 minutes. For the following update

restricted access to data 12.5

cycles, the number of requests decreases

PW.)

by half.
Page 174 / 280

Regardless of whether the data backup process is mainly automated, some

manual backup requirements will also require effort. In addition to backup of
data, maintenance of the mapping system requires effort that is difficult to
estimate as it depends on the complexity of the system and the level of detail of
maintenance.
Assumptions

Estimated effort

For system maintenance, a low- and a

1st collection 18.2 PW.

high-end process are estimated ranging

Update 0.57.7 PW.

from one man-day to three man-days per

(Major effort: 1st collection as

month.

well as update system

maintenance high-end 7.2
PW.)

In practice, the effort depends on the priorities an initiative sets in the mapping
process and may therefore vary from those estimated within this study. One
special case needs to be mentioned concerning the usage of existing mapping
initiatives: INSPIRE for data collection. In this case, the work would be at least
partially done by the external initiative.
6.6.3 Further effort requirements (software and hardware)
The technical details of hardware and software required for broadband mapping
have been explained in chapter 6.4. As has been discussed, the technical outfit
of a mapping initiative is highly dependent on the mapping aims, mapping
concept and the available budget. Regarding the costs, it has been explained that
costs can be reduced significantly by using open source software if the necessary
skills are available.
For the effort estimation within this study, a green field approach has been
carried out assuming that an initiative starts without any hardware and software
and is reliant on commercial software. Based on the division into expansion
stages and low-end/high-end components carried out in chapter 6.4, the costs in
the figure below have been estimated.

Page 175 / 280

Table 6-7: Costs and effort estimation

Expansion stage
I

Modules/components

Cost
Cost
EUR lowEUR
No No
end
high-end low high

II
Sum
costs

No No
low high

III
Sum
costs

No No
low high

IV
Sum
costs

No No
low high

Sum
costs

tier network
Internal network
Configuration
Router
Firewall
tier hardware
Desktop PC/workstation
Internal server
Web server
NAS
Backup
tier software
Operating system
Office suite
Other software
Desktop GIS
Database
Conversion tools
Data exchange
Web server data collection
Web server data presentation
Web client

15,000.00
5,000.00
1,000.00
5,000.00

0
0
0
0

0
0
1
0

0
0
0
0

0
0
1,000.00
0

1
1
1
1

0
0
0
0

15,000.00
5,000.00
1,000.00
5,000.00

1
1
1
1

0
0
0
0

15,000.00
5,000.00
1,000.00
5,000.00

1
1
1
1

0
0
0
0

15,000.00
5,000.00
1,000.00
5,000.00

1,800.00 3,500.00
6,000.00 12,000.00
4,000.00 8,000.00
5,000.00 15,000.00
2,000.00 15,000.00

1
0
0
0
1

0
0
0
0
0

1,800.00
0
0
0
2,000.00

2
1
0
1
0

2
0
0
0
1

10,600.00
6,000.00
0
5,000.00
15,000.00

2
0
1
0
0

2
1
0
1
1

10,600.00
12,000.00
4,000.00
15,000.00
15,000.00

2
0
1
0
0

2
1
1
1
1

10,600.00
12,000.00
12,000.00
15,000.00
15,000.00

200.00
0
400.00
0
500.00
0
3,500.00 8,000.00
1,000.00 15,000.00
3,000.00 8,000.00
1,500.00 8,000.00
15,000.00
0
9,000.00
0
0
0

1
1
1
1
1
1
1
0
0
0

0
0
0
0
0
0
0
0
0
0

200.00
400.00
500.00
3,500.00
1,000.00
3,000.00
1,500.00
0
0
0

4
4
4
2
0
0
1
0
0
0

0
0
0
2
1
1
0
0
0
0

800.00
1,600.00
2,000.00
23,000.00
15,000.00
8,000.00
1,500.00
0
0
0

4
4
4
2
0
0
0
1
0
0

0
0
0
2
1
1
1
0
0
0

800.00
1,600.00
2,000.00
23,000.00
15,000.00
8,000.00
8,000.00
15,000.00
0
0

4
4
4
2
0
0
0
1
1
0

0
0
0
2
1
1
1
0
0
0

800.00
1,600.00
2,000.00
23,000.00
15,000.00
8,000.00
8,000.00
15,000.00
9,000.00
0

Sum EUR (without purchase tax)

Costs (high data security requirements)

30 %

14,900.00
4,470.00

114,500.00
34,350.00
Page 176 / 280

156,000.00
46,800.00

173,000.00
51,900.00

6.6.4 Effort estimation for selected scenarios

In order to indicate overall effort requirements for broadband mapping
initiatives, effort estimation for three different scenarios has been carried out
focusing on infrastructure or service mapping with different characteristics and
market surroundings. Scenarios for demand and investment mapping are
described separately. The effort requirements are estimated for one year
including the development, 1st data collection and one update. Average labour
costs of 700/day have been assumed.
Scenario 1: Infrastructure mapping market 1: exact points and lines
The first scenario represents infrastructure mapping of exact points and lines and
is optimised for market 1. Data suppliers are obliged to deliver data. Data can be
supplied via mail/email, an upload portal or directly in a WebGIS. Supply via web
services is enabled as well. It is assumed that only companies that have already
implemented web services will use the opportunity and hence no additional effort
is required. Effort for data conversion is related to format conversion, address
geocoding and spatial conversion. The data is published on a website with
restricted access and can additionally be provided as geodata sets or web
services. For the system, high-end maintenance is required and for hardware and
software, expansion stage IV with four main users is assumed.
Figure 6-39: Effort and costs scenario 1

Page 177 / 280

Scenario 2: Infrastructure mapping market 1: aggregated spatial level

The second scenario differs slightly from the first one mainly due to the fact that
data is not collected as exact points and lines but as aggregated data, e.g. on
municipality boundaries. In this case, a website for data entry is not necessarily
needed. The data is provided using a dynamic web-mapping application but
without restricted access. For hardware and software, an adapted expansion
stage IV is assumed with only two users and slight shifts regarding the usage of
high- or low-end components. Security requirements are low as well as the
maintenance requirements.
Figure 6-40: Effort and costs scenario 2

Scenario 3: Service mapping market 2: approximate spatial level

The third scenario looks at a service mapping initiative collecting data on an
approximate spatial level in a smaller Member State represented by market 2.
The mapping initiative is run by one person only; hence, expansion stage 1 is
sufficient. Data in this scenario can be supplied via mail/email only and needs to
be converted, geocoded and spatially intersected. DSL speeds are estimated
using concentric circles and the availability is calculated for households. Data is
published within a report.

Page 178 / 280

Figure 6-41: Effort and costs scenario 3

Conclusion
Comparing the three scenarios, the effort needed for broadband mapping
decreases from scenario one to three as expected. The major effort requirements
arise in the first year as the systems and processes need to be developed
primarily on the part of the initiative though possibly on the part of the data
suppliers too. Within the first data collection phase, the number of participating
data suppliers is higher than in the update process because not every company is
actively deploying networks, thus increasing effort; the effort for the conversion
of a single updated data set decreases as the processes are already developed.
Comparing scenario one and two, one can see that the effort for mapping can be
reduced significantly when data is collected on an aggregated level only rather
than for points and lines.
Taking scenario three as an example for the comparison of one mapping
approach in different market environments, it can be seen that for smaller
market environments the effort required for the set-up and development of a
mapping system exceeds that needed for data collection and updates whereas
the opposite is true for larger market environments. Therefore, for initiatives
operating in a small market this can be recommended to reduce set-up,
development and hardware and software costs whereas larger markets should
focus on reducing effort in the data gathering and updating process.
As has already been mentioned, this effort estimation tries to provide an
overview of the effort items that may occur within a mapping initiative and which
Page 179 / 280

aspects require the most amount of effort. Based on these deliberations, an

initiative aiming to map broadband usage/coverage needs to carry out its own
cost estimations during the concept development phase. The provided Excel file
may be a helpful tool.
Investment mapping scenario
Information on investments in this scenario is collected on an aggregated spatial
level. Data sources are the TC companies that supply data via email as
predefined tables on a voluntary basis. As the data format is relatively simple, no
additional telephone support is needed. The tables are transferred into a central
database by the mapping initiative which is the basis for internal analysis of the
data. The publishing of data is not envisaged in this scenario.
Based on the relatively small effort required on the part of the initiative, the
expansion of stage 1 regarding hardware and software with only one user is
expected to be sufficient. A high level of security is not necessary.
Figure 6-42: Effort and costs scenario: investment mapping

Comparing the estimated efforts for the different markets, it is evident that for
market 2 and 3 with fewer data-supplying companies, the initial efforts for setup, development and testing of the system generally exceed the effort required

Page 180 / 280

for data collection and updates.60 In these markets in particular, it would be

advisable to seek synergies with other mapping types to reduce costs, for
instance for project management or hardware and software.
Demand mapping scenario
Demand mapping can either be the mapping of demand for broadband or speed
measurements. The processes for the collection of data on demand for
broadband as well as speed measurements vary largely depending on the aims of
mapping, the participation and various choices, as has been explained in chapter
6.3.1. As a result, an effort estimation scenario needs to exclude the data
collection process and start with the provision of the collected data. It has to be
kept in mind that these efforts need to be added to the estimation.
Demand data is commonly collected on an address level. The data is supplied to
the initiative as a set of addresses that need to be geocoded. The number of
collected addresses is dependent on the participation of users in the mapping
and hence can only be assumed at this point. For this estimation, the effort
needed for address geocoding in market 1 has been assumed as 1 person week
(1st) and 0.5 person weeks (update); in market 2, 0.2 person weeks (1st) and
0.1 person weeks (update); and market 3, 0.5 person weeks (1st) and 0.25
person weeks (update). After geocoding, the data is stored in a central database
and used for internal analysis only.
In this scenario the initiative is run by one user which is why hardware and
software expansion at stage 1 is sufficient. As the data is potentially at the
individual level, a high level of security is needed.

60

In market 2, the effort needed for updates is higher than that needed for the first data collection phase. This is
due to the fact that effort required for project management within the first data collection phase is assigned to
set-up, development and testing whereas for the update phase it is included in the update details.
Page 181 / 280

Figure 6-43: Effort and costs scenario: demand mapping

The effort needed for mapping is nearly equal in the three different markets. The
only difference is related to the number of addresses that need to be geocoded.
Nevertheless, it has to be taken into account that effort required for data
collection may vary a lot between the different markets. If, for instance, data on
demand for broadband is collected using pen and paper questionnaires, more
effort will be required as the size of the investigation area increases and more
people participate.
Similar to the effort needed for investment mapping, it is evident that the initial
effort is much higher than the effort required for the data processing and
updates. Once again, synergies with other mapping types are expected to be
generated.
Synergy potentials
If a mapping initiative intends to carry out more than one mapping type, some
synergies may be generated regarding the effort on the part of the initiative as
well as the data suppliers. Similar to the deliberations above, the effort
requirements of mapping the synergy potential cannot be determined as one
value due to the complexity and diversity of mapping approaches. As a result,
within the concept development phase a mapping initiative needs to determine
synergy potentials based on the selected methodology choices using the Excel
file. The synergy possibilities are summarised below.
Page 182 / 280

Costs for hardware and software contain large synergy potentials as it has
been assumed that an initiative starts from scratch without any hardware and
software already available. Theoretically, the same hardware and software could
be used for the different mapping approaches assuming that the same expansion
stage is selected and the mapping is carried out by the same users. In practice,
especially for infrastructure mapping, the co-usage of hardware could be difficult
due to the security requirements of data suppliers who often require physically
separate systems.
For the development and operation phase of a mapping initiative, possible
synergies can arise in two different ways. Firstly direct synergies can be
generated, for example, by using developed templates or applications for all
kinds of mapping. The second kind of synergy is more indirect and related to
skills that are acquired when carrying out a mapping initiative that can be used
for further mapping.
Regarding

project

management,

project

preparation,

concept

development and execution of tenders, effort can be reduced, for example,

by combining internal meetings or consultations with major operators.
Within the phase of development, implementation and testing of tools,
direct synergies arise from developed templates or applications like webapplications for data collection and publishing that often can at least partially be
used for different kinds of mapping. The same is true for an upload server that
needs to be installed or background data that needs to be processed. Regarding
these issues, the synergy potentials are greater the earlier they define which
kinds of mapping will eventually be carried out. For instance, if a web application
has to be developed for the collection of infrastructure and service data on
different spatial levels, the effort is lower if this fact is known from the beginning
of the development compared with a situation where the application has been
developed for one of the two mapping kinds and subsequently needs to be
adapted. Indirect synergies are more related to organisational issues or the setup of contracts or obligations.
Data suppliers can generate synergies within the operation phase. In the best
case, the supplied data can be used for different kinds of mapping. For instance,
infrastructure data could be used to derive information on services if the data
suppliers agree to such a co-usage. In this case, the initiative would save
additional conversion effort and quality checks. The data supply process could
also generate synergies. If, for instance, the usage of web services is envisaged
for more than one kind of mapping, the skills only need to be acquired once.
Indirect synergies on the part of the initiative may arise throughout the whole
Page 183 / 280

operation process including the communication process, data conversion skills up

to the publication of data by using reports or map templates, for example, as
well as skills for updating websites.

7 Recommendations on mapping methodology

7.1 First steps and thoughts for setting up broadband mapping
When starting a broadband mapping initiative, some first steps to be carried out
can be recommended. The first step requires studying of the work in hand,
meaning this study on broadband mapping. The results and deliberations
presented within the scope of this study are at least intended to provide an
overview of possibilities for broadband mapping and sense and purpose of the
different approaches. Thus the reader should at least be able to define the aims
of mapping and which approaches could be carried out.
In the second step, using the results of the review of existing initiatives currently
carrying out broadband mapping, the envisaged way can be determined and
analysed in practice. In the third step, these initiatives can be directly contacted
to get support. In addition, external consultants can offer support.
Having carried out these first steps, the foundation and comprehension on
broadband mapping need to be clarified so the project can start.
Figure 7-1: First steps and thoughts for setting up broadband mapping

Study on broadband mapping

Determination of mapping aims and suitable approaches
Best practices
Selection of and learning from best practices
Existing initiatives

Support

Consultants

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 the
results of the review section, every authority focusing on the set-up of a
broadband mapping initiative can choose the best-fitting option depending on
their requirements. However, within the following paragraph we will highlight the
choices which help to set up ideal and pragmatic broadband mapping for each
category.

Page 184 / 280

Figure 7-2: Broadband mapping methodology choices

Page 185 / 280

7.2 Recommendations for infrastructure mapping

The aim of infrastructure mapping is to reduce costs of broadband deployment
and to coordinate broadband deployment measures. The authority in charge
should 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 telecommunication infrastructure owners should be implemented.
Details, scope and content of the obligation shall be defined based on the
requirements of each Member State.
Figure 7-3: Recommended methodology choices: infrastructure mapping

For the data source, infrastructure mapping shall focus on telecommunication

companies in the first step. Secondary non-TC companies shall be targeted
where there is relevant telecommunication infrastructure such as ducts and fibre.
In terms of information to be collected, the initiative shall focus on location and
route, infrastructure type, current use and contact point.

Page 186 / 280

Table 7-1: Information to be collected for infrastructure mapping

Type of mapping

Attribute information

Minimum
information

Location, route

Size
Infrastructure mapping

Additional
information

Infrastructure type

Current use

Contact point

For infrastructure mapping, exact points and lines are needed in terms of spatial
resolution.
In terms of data format, the information shall be collected in geodata vector
format and, if required, based on spatial references.
To ensure data is up to date, a continuous update frequency is very helpful.
Plausibility checks are needed to improve the data quality of the delivered
information. Additionally, manual sample data checks shall be conducted and
results reported to the data source.
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.

Option for infrastructure mapping database model

Depending on the objective of infrastructure mapping and the given resources,
setting up a comprehensive infrastructure mapping initiative is very complex.
Based on the learnings of the review, the study team developed an approach for
infrastructure mapping with basic effort levels as an additional recommendation.
Instead of collecting infrastructure information in a central GIS system, basic
statistics of the existence of infrastructure on the municipality level shall be
collected. The database shall include all municipalities assigned with information
of the relevant infrastructure owner:
name of the company;
type of infrastructure;
contact details;
optional: quantity figures of infrastructure (e.g. length of ducts).
If an operator plans to build broadband infrastructure, it can contact the
infrastructure owner listed in the database and exchange the necessary
information directly. The mapping initiative will function as a middleman and
does not collect information on location of infrastructure.
Page 187 / 280

The approach could also be used as a step into infrastructure mapping and can
be further developed to a central data collection model.
The information can be published within an interactive or static map as well as
lists on the initiatives website.
Figure 7-4: Recommended methodology choices: infrastructure mapping
database model

Page 188 / 280

7.3 Recommendations for service mapping

Service mapping can 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 obligation to deliver data, starting the project on a voluntary basis is
recommended. In the first step, major data supplier(s) shall be consulted on
their requirements and willingness to provide information. From the review of the
existing mapping initiatives it can be stated that as long as coverage information
is not published with information on the name of the operator and information is
aggregated, operators tend to cooperate with mapping initiatives.
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, QoS and take-up and
shall be collected depending on additional requirements only.
Figure 7-5: Information to be collected regarding service mapping
Type of mapping

Service mapping

Attribute information

Minimum
information

Supplier name

Type of technology

Speed downstream

Additional
information

Speed upstream

Data volume usage

Quality of service

Take-up

For the spatial resolution, we suggest using a grid cell raster to aggregate
information. Information shall therefore be delivered as exact points or
approximate. Data delivery of addresses covered is the most suited methodology
for fixed networks. For wireless networks, aggregation and approximation is
sufficient.
Preferred data formats are geodata vector and data with spatial references. 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.
The amount of effort required for data conversion depends on the delivered data
formats, resolution and information. If the data is delivered in the required type,
obviously there will be less effort in terms of data conversion.
To ensure information is up to date, a continuous update frequency is very
helpful. Plausibility checks are needed to improve the data quality of the
Page 189 / 280

delivered information. Additionally, manual sample data checks shall be

conducted and results reported to the data source.
The data shall be published as reports and statistics and an advanced website
with a dynamic map visualising the information collected on an approximate level
is recommended. Furthermore, the data can be used for internal analysis and
statistics.
Figure 7-6: Recommended methodology choices: service mapping

Page 190 / 280

7.4 Recommendations for demand mapping methodology

Demand mapping has to be divided into two mapping approaches:
1. the mapping of demand in terms of need for broadband services based on
undersupply or future needs;
2. the mapping of quality of service such as delivered bandwidth.
Mapping of demand in terms of need for broadband services
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, they 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
the 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 aid
measures and their support. Methodology wise, data can be collected via a web
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 reference and can be aggregated on the municipal level.

Page 191 / 280

Figure 7-7: Recommended methodology choices: demand mapping (need for

broadband services)

Mapping of quality of service

There are different measures to analyse and map the quality of service 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.
The developed modular mapping concept provides the basis to handle all
relevant information in terms of quality of service. Either exact points based on
spatial references or aggregate information can be used as input data and
processed according to the requirements. The data can be collected via
crowdsourcing using a web portal that has quality measures, tools and user
information. The data collected shall be used for internal analysis and the results
shall be published within reports and statistics taking into account privacy
regulations.

Page 192 / 280

Figure 7-8: Recommended methodology choices: demand mapping (quality of

service)

7.5 Recommendations for investment mapping methodology

The field of investment mapping is a very broad field with diverse aims and
approaches. Generally, investment mapping contains elements of infrastructure
mapping as well as service mapping in different data resolutions and with
information to be collected. In terms of already rolled-out investments,
investment mapping is covered within the above-mentioned mapping categories.
Therefore, we suggest implementing any information on rolled-out investments
in infrastructure and service mapping. However, additional information on the
investment can be added depending on the requirements, such as:

state aid used;

approved aid scheme and its implementing provisions;

name of the aid beneficiary;

aid amount;

aid intensity;

roll-out date.

Planned investments have to be split into funded and private investments. Data
on planned private investments is confidential and often has unreliable
information as intentions to roll out networks depend on different aspects. At the
same time, there are existing state aid rules concerning the documentation of
Page 193 / 280

private investors roll-out plans. The documentation (mapping) can be done on a

regional basis upon the preparation of planned funded projects.
We

suggest

keeping

the

documentation

(mapping)

of

planned

private

investments on the regional level based on the state aid guidelines. The state aid
guidelines

already

describe

measures

which

help

inform

relevant

public

authorities about future investments. In fact, authorities should contact private

investors to find out whether the investors have concrete plans to roll out their
own infrastructure within three years from the publication of the planned state
aid measure. The results shall be documented on a local level and can further be
mapped for internal analysis and documentation.

Page 194 / 280

8 Annex
8.1 Broadband mapping activities for EU Member States
8.1.1

Country profiles of national broadband mapping initiatives

8.1.1.1

Austria

Two institutions determine the key sources for infrastructure and service
mapping

in

Austria.

These

are

BMVIT

(Bundesministerium

fr

Verkehr,

Innovation und Technologie; Federal Ministry for Transport, Innovation and

Technology) and RTR (National Regulatory Authority for Broadcasting and
Telecommunications). Senderkataster is a cooperative infrastructure mapping
effort involving both BMVIT and RTR as well as a third institution. Senderkataster
is in operation, and offers publicly accessible interactive maps. Since April 2014,
BMVIT has made its Broadband Atlas publicly available. RTR is planning for an
Infrastructure Atlas that will cover telecommunications-oriented infrastructure.
Table 8-1: Overview of public broadband mapping initiative in Austria

Country

Austria

Name

Senderkataster

Breitbandatlas

Infrastrukturkataster

Kind of
mapping

Broadband infrastructure
mapping

Broadband service
mapping

Broadband
infrastructure mapping

Operated by

Cooperation between BMVIT,

RTR, FMK (Forum
Mobilkommunikation)

BMVIT

RTR

Short
description

Senderkataster lets a user find

locations of mobile and radio
stations in Austria.

Breitbandatlas monitors
broadband coverage in
Austria (fixed and
mobile).

Infrastructure Atlas
gathers relevant
communications
infrastructure.

Main
objectives

- Base stations
- Radio towers
- Mobile measuring points

- Coverage
- Maximum speeds
- Provider

Telecommunicationsrelated infrastructure

Results

Interactive maps

Interactive maps

Interactive maps

Access

Public/restricted

Public

Restricted

Web address

http://www.senderkataster.at/

http://www.breitbandatl
as.info

n/a

8.1.1.2

Belgium

The Belgian Institute for Postal services and Telecommunications (BIPT) is in

charge of statistics and mapping of broadband-related figures in Belgium. BIPT is
Page 195 / 280

running two major mapping projects, the first one investigating retail broadband
take-up by municipality and the second one dealing with broadband mapping to
support universal service.
The first project was initiated in 2007 in relation to the implementation of
wholesale unbundled access. The European Commission asked for a more granular
geographic market analysis in terms of broadband coverage. BIPT is collecting
broadband take-up information at the municipality level from approx. seven
operators. Minimum broadband speed is defined as 512 Kbit/s. The data is
collected every semester from the incumbent, cable operators and mobile
operators. The respective analysis is performed on an annual basis and a report
is published accordingly.
The second project took off in light of plans in Belgium to set up a universal
service with a minimum of 1 Mbit/s. The main reason why Belgium started the
mapping initiative in March 2012 was to analyse minimum requirements for
universal service in terms of broadband speed.
Data was collected for broadband speed categories of 0.5, 1, 2, 4 and 8 Mbit/s.
Data has been collected from two fixed operators and three mobile operators. In
terms of fixed coverage, data on location of cabinets and served area was
collected. Furthermore, the location of broadband cables (homes passed) was
collected. Currently there are no plans to set up regular updates of the data. The
mapping exercise was primarily aiming to justify a universal service of 1 Mbit/s.
A new national plan for super-fast broadband in Belgium will be published in the
near future. Infrastructure mapping will be a major part of it. However, there are
no plans about implementation details. Moreover, it is important to note that the
region of Flanders is running an infrastructure mapping programme for various
kinds of infrastructure in order to support construction processes.
Table 8-2: Overview of public broadband mapping initiative in Belgium

Country

Belgium

Name

1. Retail broadband take-up (penetration) per municipality

2. Broadband mapping in the context of the universal service

Kind of
mapping

Broadband service mapping

Broadband infrastructure mapping

Operated by

BIPT

Short
description

1. BIPT estimated the competitive pressure in cable coverage areas.

2. BIPT estimated the availability of broadband per distinguished bit rate via different
complementary technologies on the Belgian territory and in the homes.

Main
objectives

coverage
speeds
technologies
Page 196 / 280

 infrastructure of local municipalities

Results

report/statistics

Access

public/restricted

Web
address

1. http://www.bipt.be/ShowDoc.aspx?objectID=3967&lang=en (point 3.4.1.2)

2. http://www.bipt.be/nl/637/ShowDoc/4082/Persberichten/Het_BIPT_stelt_voor_om_
de_bitsnelheid_van_function.aspx

Table 8-3: Overview of questionnaire results for Belgium

Category

Questionnaire Response

Country

Belgium

Organisation

BIPT

Website

www.bipt.be

Contracting authority

NRA

Organisational outfit

Public authority

Kind of mapping

Infrastructure
Services

Collected infrastructure data

Cables (Fibre, copper, TV)

Network elements (Central offices, FDIs)
Other (Localization of households)
Updates: Never (one-shot exercise)

Collected service data

Coverage/availability
Take-up
Speed (bandwidth)
Updates: Fixed BB penetration: every semester

Infrastructure data suppliers

Number of data suppliers: 7 (4 network operators and 3 public

bodies)
Obligation: No, all provide data voluntarily
Data suppliers:
Local municipalities
Telecoms

Service data suppliers

Number of data suppliers: 7 (for fixed BB penetration)

Obligation: Some are obliged, others are not.
Data suppliers:
Telecoms

Access to infrastructure data

Restricted

Access to service data

Public
Restricted

Infrastructure mapping costs

n/a

Service mapping costs

n/a

Employees

n/a

Relevance of INSPIRE

No. The INSPIRE Directive is not an issue for our initiative.

Page 197 / 280

8.1.1.3
The

Bulgaria

Market

Regulation

Directorate

at

the

Communications

Regulation

Commission (CRC) is in charge of research and analysis of the electronic

communications market. As at October 11 2013, no information on the usage or
plan of broadband mapping systems was available.

8.1.1.4

Cyprus

In Cyprus, the Office of the Commissioner for Electronic Communications and

Postal Regulation (OCECPR) is dealing with questions related to broadband
mapping. OCECPR currently runs two projects involving GIS maps and broadband
mapping that are expected to be finalised soon. The first project (NET2MAP)
involves depicting the coverage on a GIS map of existing fixed and mobile
broadband networks and the second project (2B2T) involves a broadband speed
test tool where the results of subscribed users will be publicly available.
Moreover, OCECPR is in the process of developing a GIS map for ducts and
infrastructure.
The key objective of 2B2T is to create transparency for consumers with respect
to broadband access product characteristics via reliable information regarding
their broadband connection. Transparency is perceived as an important means to
motivate ISPs to improve the quality of their internet access products. In
addition, it supports better-informed decision-making by consumers and assists
the NRA in market monitoring.
2B2T is under continuous development and is currently operating in the beta
phase. The next planned step will aim for user-provided information validation,
allowing ISPs to confirm (or correct) the location of a subscriber as well as
product characteristics. 2B2T is unique in its design and implementation as it
offers neutral speed measurements measurements are carried out at Cyprus'
internet exchange This is an important trust-building element to ensure that
consumers have high confidence in the measurement results.

Page 198 / 280

Table 8-4: Overview of questionnaire results for Cyprus

Category

Questionnaire Response

Country

Cyprus

Organisation

OCECPR

Website

www.ocecpr.org.cy
http://2b2t.ocecpr.org.cy/ (2B2T)
http://geomatic.com.cy/geomapstest/?map=geriet (NET2MAP)

Contracting authority

NRA

Organisational outfit

Cooperation (e.g. public authority and private company)

2b2t: OCECPR, private company, academic institution
NET2MAP OCECPR, private company

Kind of mapping

Infrastructure
Services
Demand

Collected infrastructure data

Other (Network availability by technology)

Updates: Twice a year

Collected service data

Coverage/availability
NET2MAP: Coverage/availability, Take-up
2B2T: Speed (bandwidth)
Updates: Semi-annual

Infrastructure data suppliers

Number of data suppliers: 8

Obligation: Yes, all of them.
Data suppliers:
Telecoms

Service data suppliers

Number of data suppliers: 8

Obligation: Yes, all of them
Data suppliers: Telecoms
Other (Available speeds are provided by Telecoms and then
benchmarked against consumers' speed tests)

Access to infrastructure data

Public

Access to service data

Public

Infrastructure mapping costs

90 % fixed costs
10 % operational costs

Service mapping costs

90 % fixed costs
10 % operational costs

Employees

5 (full-time equivalent)

Relevance of INSPIRE

n/a

Page 199 / 280

8.1.1.5

Croatia

In Croatia, the Croatian Post and Electronic Communications Agency (HAKOM) is

in charge of broadband mapping projects. HAKOM is engaged in writing a report
and broadband mapping in terms of service and infrastructure mapping.
In June 2013 HAKOM designated operators who are obliged to deliver the
required data for broadband mapping. Operators are obliged to deliver data at
the object level residential and business premises, which are homes passed by
broadband infrastructure. Data should be delivered as coordinates and addresses
(if the operator does not have data about coordinates, only addresses can be
delivered). Data is delivered according to the following speed ranges: 2 Mbit/s
to 30 Mbit/s; 30 Mbit/s to < 100 Mbit/s; and 100 Mbit/s. Operators must
state the access technology. Also, operators must state whether there is
availability of ducts to an object. Operators should update this data on a
quarterly basis.
Table 8-5: Overview of public broadband mapping initiative in Croatia

Country

Croatia

Name

HAKOM Interaktivni Portal

Kind of
mapping

Broadband service mapping

Infrastructure mapping (radio towers)

Operated by

HAKOM (Croatian Post and Electronic Communications Agency)

Short
description

HAKOM Interaktivni Portal presents information about broadband coverage/availability

and speed. In addition, the map provides locations of mobile, radio and TV stations.

Main
objectives

coverage (fixed/mobile/no of networks)

speed (fixed/mobile/no of networks)
mobile networks' base station locations
radio and TV transmitters
MNO integrated plan of area for building antenna towers
fibre distribution networks deployment intention

Results

Interactive maps

Access

Public,
WFS service available

Web
address

http://mapiranje.hakom.hr/

The report was recently published on HAKOMs website. It is available in the form
of dynamic maps. Users are able to see which broadband speeds are available in
a specific area, and also how many operators have their own infrastructure in the
specific area. Furthermore, access to a polygon layer via WFS service is
available.
In addition, HAKOM launched a certified speed measuring tool in November
Page 200 / 280

2012. The tool is available on multiple websites (including HAKOMs as well as

operator websites). It is Java-based for reasons of multi-platform support. The
tool can be executed as either a web-start Java or as a stand-alone application.
Each measurement is identified by a unique ID. Measurements endorse a large
number of parallel HTTP and FTP connections. Results are stored locally as well
as on a remote server. Users may file complaints if the measured speed is not in
line with the contractual agreements.
Table 8-6: Overview of questionnaire results for Croatia

Category

Questionnaire Response

Country

Croatia

Organisation

HAKOM

Website

http://mapiranje.hakom.hr/

Contracting authority

NRA

Organisational outfit

Private company

Kind of mapping

Services

Collected infrastructure data

n/a

Collected service data

Coverage/availability
Speed (bandwidth)
Updates: Quarterly

Infrastructure data suppliers

Number of data suppliers: n/a

Obligation: n/a
Data suppliers:
n/a

Service data suppliers

Number of data suppliers: 30

Obligation: Yes, all of them
Data suppliers:
Telecoms

Access to infrastructure data

n/a

Access to service data

Public
Restricted

Infrastructure mapping costs

n/a

Service mapping costs

n/a

Employees

n/a

Relevance of INSPIRE

No. The INSPIRE Directive is not an issue for our initiative

Page 201 / 280

8.1.1.6

Czech Republic

The Czech Republic is currently running a broadband infrastructure mapping

project covering related infrastructure (e.g. passive components). The project is
being carried out by the Czech Telecommunication Office in cooperation with the
Ministry of Industry and Trade.
There are other activities regarding mapping relevant infrastructure in the Czech
Republic (e.g. creating a passive infrastructure register, GeoInfoStrategie).
These activities will probably be united and managed by the Ministry of the
Interior.
All above-mentioned activities are related to specific targets defined in the
document State policy in electronic communications Digital Czech v. 2.0, which
is in accordance with the document DAE.
In addition, a study61 by the Ministry of Agriculture was published in March 2012.
It is of national scope and focuses on broadband infrastructure. Broadband refers
in this context to connections with a minimum speed of 2 Mbit/s. This definition
of broadband is different from current broadband mapping, which focuses on
NGA infrastructure with a minimum speed of 30 Mbit/s.

61

http://eagri.cz/public/web/mze/venkov/program-rozvoje-venkova/aktuality/analyza-pokryti-venkovskychoblasti.html.
Page 202 / 280

Table 8-7: Overview of questionnaire results for the Czech Republic

Category

Questionnaire response62

Country

Czech Republic

Organisation

Czech Telecommunication Office (+ Ministry of Industry and Trade)

Website

www.ctu.cz

Contracting authority

Federal ministry

Organisational outfit

Public authority

Kind of mapping

Infrastructure
Services

Collected infrastructure data

Ductwork
Cables (Fibre, copper, TV)
Updates: n/a

Collected service data

Coverage/availability
Take-up
Updates: n/a

Infrastructure data suppliers

Number of data suppliers: 7,983

Obligation: Some are obliged, others are not.
Data suppliers:
Government
Local municipalities
ISPs
Telecoms
Utilities

Service data suppliers

Number of data suppliers: 7,983

Obligation: Some are obliged, others are not.
Data suppliers:
Local municipalities
ISPs
Telecoms
Utilities

Access to service data

Public
Restricted

Infrastructure mapping costs

25 % fixed costs
70 % operational costs
5 % not specified

Service mapping costs

25 % fixed costs
70 % operational costs
5 % not specified

Employees

3 (full-time equivalent)

Relevance of INSPIRE

Yes. The central issues of INSPIRE (e.g. interoperability of spatial

data, trans-border access) are also major aspects of our
initiative.

62

The project is currently in the preparation phase. Several answers constitute estimates and may change in the
future.
Page 203 / 280

8.1.1.7

Denmark

The Danish Business Authority (DBA) is responsible for reporting on broadband

infrastructure and service. The DBA is preparing a yearly report on broadband
speeds, coverage and technologies. Results are displayed via statistics and static
maps.
In terms of mobile communications, radio towers are mapped separately within
the Mastedatabasen. The application provides information about locations of
radio towers in Denmark. It is a publicly initiated project and operated by
Erhvervsstyrelsen. Data is provided in maps or lists including technical
information and the location of radio towers. The tool and the respective
information are accessible to the public.
In December 2013, DBA plans to launch a new measurement tool for broadband.
The tool is available on the DBAs website.
Table 8-8: Overview of public broadband mapping initiative

Country

Denmark

Name

Broadband Mapping 2012

Mastedatabasen

Kind of mapping

Broadband service mapping

Broadband infrastructure mapping

Operated by

DBA

Erhvervsstyrelsen Danish
Business
Authority

Short
description

In a report, the DBA presents results about the

broadband coverage in Denmark.

The application provides

information about the locations of
the radio towers in Denmark.

Main objectives

speed
coverage
technologies

Location of:
radio towers

Results

report/statistics

interactive maps

Access

public/restricted

public/restricted

Web address

http://dba.erhvervsstyrelsen.dk/file/348160/bro
adband_mapping_2012.pdf

http://mastedatabasen.dk/VisKort/
PageMap.aspx

Page 204 / 280

Table 8-9: Overview of questionnaire results for Denmark

Category

Questionnaire response

Country

Denmark

Organisation

DBA

Website

erst.dk

Contracting authority

NRA

Organisational outfit

Public authority

Kind of mapping

Infrastructure
Services

Collected infrastructure data

Cables (Fibre, copper, TV)

Radio towers
Updates: Once a year.

Collected service data

Coverage/availability
Take-up
Speed (bandwidth)
Updates: Annual

Infrastructure data suppliers

Number of data suppliers: 92

Obligation: Yes, all of them.
Data suppliers:
ISPs
Telecoms
Utilities

Service data suppliers

Number of data suppliers: 92

Obligation: Yes, all of them
Data suppliers:
ISPs
Telecoms
Utilities

Access to infrastructure data

Public
Not available

Access to service data

Public

Infrastructure mapping costs

10 % fixed costs
90 % operational costs

Service mapping costs

n/a

Employees

1.5 (full-time equivalent)

Relevance of INSPIRE

No. The INSPIRE Directive is not an issue for our initiative.

Page 205 / 280

8.1.1.8

Estonia

In 2009, Ericson conducted a research project in Estonia to map existing

broadband backbone infrastructure. The research aimed to define possible
market failures.63
The Estonian Broadband Development Foundation ELA (www.elasa.ee) was
formed in Estonia and the organisation started to collect more detailed data
using GIS system and data layers to support investment decisions and overall
backbone planning.
Today the organisation provides an overview of existing backbone infrastructure
as well as mobile masts. All backbone investments done in the past with public
funding are presented within the mapping initiative.64
There are future plans with the Technical Surveillance Authority65 to map the
access network in an as much detail as possible. The main aim for this approach
is to define market failure and support public measures in investing in broadband
networks.
The initiative plans to collect the data from network owners. The public
authorities are already asked for all kinds of information and the mapping should
help lower the burden of collecting data.
The following information shall be collected and mapped:
1. Physical mapping of the access network all fixed networks and wireless
networks (hotspots). However, the mapping should include a description of
the network as it is important information for network owners and their
ability to further develop the network.
2. Service mapping what services and speeds (advertised and reality) are
offered? What is the quality (especially in wireless networks), and what are
the limitations?
3. Mapping of usage of broadband services which connections are actually
used? What speeds are used and what kind of offers are available?

63
64
65

http://www.elasa.ee/public/files/ESTWIN_network%20track_20090420.pdf.
http://ela12.elasa.ee/elakaart/.
http://www.tja.ee/en.
Page 206 / 280

Table 8-10: Overview of public broadband mapping initiative in Estonia

Country

Estonia

Name

elakaart

Kind of mapping

Broadband infrastructure mapping

Operated by

ELA (Estonia Broadband Development Foundation)

Short description

Mapping of the existing broadband backbone in Estonia

Main objectives

backbone infrastructure

Results

interactive maps

Access

public/restricted

Web address

http://ela12.elasa.ee/elakaart/

Table 8-11:

66

Overview of questionnaire results for Estonia

Category

Questionnaire response

Country

Estonia

Organisation

Estonian Broadband Development Foundation

Website

www.elasa.ee

Contracting authority

Other

Organisational outfit

Private company

Kind of mapping

Infrastructure

Collected infrastructure data

Cables (Fibre, copper, TV)

Network elements (Central offices, FDIs)
Radio towers
Updates: Once a year.

Collected service data

n/a

Infrastructure data suppliers

Number of data suppliers: 5

Obligation: No, all provide data voluntarily
Data suppliers:
Telecoms

Service data suppliers

Number of data suppliers: n/a

Obligation: n/a
Data suppliers: n/a

Access to infrastructure data

Restricted

Access to service data

n/a

Infrastructure mapping costs

30 % fixed costs
70 % operational costs

66

The map shows only the fibre network. This network is in a rural area and all operators can use it. The
Technical Surveillance Authority is preparing mapping for all broadband networks in Estonia.
Page 207 / 280

Category

Questionnaire response

Service mapping costs

n/a

Employees

5 (full-time equivalent)

Relevance of INSPIRE

No. The INSPIRE Directive is not an issue for our initiative.

8.1.1.9

Finland

The Finnish Communications Regulatory Authority (FICORA) is in charge of

broadband mapping and telecommunications. The initiative collects information
about broadband and telephony service availability with different speed and
technology categories from both fixed and wireless networks. The information is
collected from the operators. The data collection is part of the regular work at
the NRA and therefore the project is done across the department and not by one
specific team.
The project started in 2012 and there are plans to pilot a new way of information
gathering in quarter 2 or 3 of 2014. The plan is to collect fixed network
availability using address information and from mobile networks using simulated
network coverage information. The new model is supposed to be deployed and
used in 2015.
The initiative is also looking at possibilities to start collecting and publishing
quality of service information. To achieve this, FICORA is planning to launch a
national pilot project with one or more measurement platform vendors and
operators. The study is still ongoing and no decisions have been made yet.
However, FICORA mentions that it is very likely that the crowdsourcing part will
be based on the Netradar Service.67 FICORA is planning to publish quality of
service information as an interactive map.
In terms of demand mapping, FICORA has done several consumer surveys to
collect information about user experience, demand and the main problems. The
survey might not be repeated in the future.
Table 8-12: Overview of public broadband mapping initiative in Finland

Country

Finland

Name

Availability of high-speed broadband

Kind of mapping

Broadband service mapping

Operated by

FICORA

Short description

FICORA presents the availability of high-speed broadband lines by province as

of the beginning of 2013.

67

http://www.netradar.org.
Page 208 / 280

Country

Finland

Main objectives

speed
coverage
technologies

Results

statistics/report

Access

public/restricted

Web address

https://www.viestintavirasto.fi/en/aboutthesector/supplyandpriceinformation/inter
netservices/availabilityofhighspeedbroadbandconnections.html

Table 8-13: Overview of questionnaire results for Finland

Category

Questionnaire response

Country

Finland

Organisation

FICORA, Ministry of Transport and Communications

Website

www.ficora.fi, www.lvm.fi
https://www.viestintavirasto.fi/en/aboutthesector/supplyandpriceinfo
rmation/internetservices/availabilityofhighspeedbroadbandconnecti
ons.html

Contracting authority

NRA, Ministry

Organisational outfit

Cooperation (e.g. public authority and private company),

Authority

Kind of mapping

Services, Demand, Investment

Collected infrastructure data

n/a

Collected service data

Coverage/availability
Take-up
Speed (bandwidth)
Quality of service
Updates: Semi-annual

Infrastructure data suppliers

Number of data suppliers: n/a

Obligation: n/a
Data suppliers: n/a

Service data suppliers

Number of data suppliers: n/a

Obligation: Yes, all of them.
Data suppliers:
ISPs
Telecoms
Population (e.g. crowdsourcing)

Access to infrastructure data

n/a

Access to service data

n/a

Infrastructure mapping costs

n/a

Service mapping costs

n/a

Employees

n/a

Relevance of INSPIRE

n/a

Page 209 / 280

8.1.1.10

France

ARCEP, the French telecoms NRA, is in charge of broadband mapping. ARCEP

mainly collects geographical data on a six-month basis from the incumbent
France Telecom but also from relevant alternative operators. The data collection
is based on a legal act.68
The data collected is published on static maps in reports.69 The data represents
the roll-out level of NGA infrastructure as well as the copper local loop
unbundling. In addition, ARCEP publishes the quarterly HD/THD observatory.70
The Mission France Trs Haut Dbit department, which is attached to the
Ministry of Economics and Finances, is running a broadband market analysis
project. The project includes service and investment mapping and results are
published with dynamic maps.
The commercial initiative Ariase constitutes an additional source of information
targeting potential customers of broadband services. It covers a comprehensive,
publicly available data collection programme about broadband service providers,
regional/local broadband initiatives and the respective deployed broadband
infrastructure. Ariase publishes this information in the form of online statistics.
By enabling users to search for a specific broadband service in a geographic
area, Ariase may be able to collect information regarding consumer demand for
broadband service. In addition, Ariase offers a speed test tool.71
Table 8-14: Overview of public broadband mapping initiatives in France

Country

France

Name

Les Cartes De Couverture

Carto Radio France

Kind of mapping

Broadband infrastructure mapping

Broadband infrastructure mapping

Operated by

ARCEP (Autorit de rgulation des

communication s lectroniques
et des postes)

ARCEP (Autorit de rgulation des

communication s lectroniques
et des postes)

Short description Information about 2G and 3G coverage in

France are shown on a static map.

Locations for all French

telecommunication base stations.

Main objectives

2G and 3G coverage
provider

Location of:
mobile phone base stations
radio towers
TV stations
other stations

Results

interactive maps

interactive maps

Access

public/restricted

public

68
69
70
71

http://www.arcep.fr/uploads/tx_gsavis/12-1503.pdf.
http://www.arcep.fr/fileadmin/reprise/observatoire/hd-thd-gros/t4-2012/Obs-hd-thd-GROS-T4_2012.pdf.
http://www.arcep.fr/index.php?id=10292.
http://www.ariase.com/fr/vitesse/index.html.
Page 210 / 280

Country

France

Web address

http://www.arcep.fr/index.php?id=11557&L=0 http://www.cartoradio.fr/cartoradio/web/

Table 8-15: Overview of questionnaire results for France (ARCEP)

Category

Questionnaire response

Country

France

Organisation

ARCEP

Website

www.arcep.fr

Contracting authority

NRA

Organisational outfit

Public authority

Kind of mapping

Infrastructure

Collected infrastructure data

Network elements (Central offices, FDIs)

Updates: More than twice a year.
Radio towers
Updates: Once a year.

Collected service data

n/a

Infrastructure data suppliers

Number of data suppliers: 125

Obligation: Some are obliged, others are not.
Data suppliers:
ISPs
Telecoms

Service data suppliers

Number of data suppliers: n/a

Obligation: n/a
Data suppliers: n/a

Access to infrastructure data

Public
Restricted
Not available

Access to service data

n/a

Infrastructure mapping costs

n/a

Service mapping costs

n/a

Employees

1 (full-time equivalent)

Relevance of INSPIRE

n/a

Page 211 / 280

Table 8-16: Overview of questionnaire results for France (Mission France

Trs Haut Dbit)

Category

Questionnaire response

Country

France

Organisation

Mission France Trs Haut Dbit

Website

http://www.redressement-productif.gouv.fr/

Contracting authority

Federal Ministry

Organisational outfit

Public authority

Kind of mapping

Services
Investment

Collected infrastructure data

n/a

Collected service data

Coverage/availability
Take-up
Speed (bandwidth)
Updates: Semi-annual

Infrastructure data suppliers

Number of data suppliers: n/a

Obligation: n/a
Data suppliers: n/a

Service data suppliers

Number of data suppliers: 11

Obligation: Some are obliged, others are not.
Data suppliers:
ISPs
Telecoms

Access to infrastructure data

n/a

Access to service data

Public
Restricted
Not available

Infrastructure mapping costs

n/a

Service mapping costs

80 % fixed costs
20 % operational costs
72

Employees

7 (full-time equivalent)

Relevance of INSPIRE

Yes. The central issues of INSPIRE (e.g. interoperability of spatial

data, trans-border access) are also major aspects of our
initiative.

72

Number of employees in the organisation (number of employees working on broadband mapping: 0.5).
Page 212 / 280

8.1.1.11

Germany

In Germany there are two main broadband mapping initiatives in terms of

service and infrastructure mapping commissioned by the Ministry of Economics
and the NRA.
The Broadband Atlas was published in 2010 by the Federal Ministry of Economics
(BMWI). The information is presented in detailed maps where information about
available speed, technologies and providers are presented. The data is based on
different vector and raster datasets. It is possible to download maps. The data is
primarily intended to inform national and local policymakers and consumers. The
maps are accessible to the public. The spatial resolution is based on a grid with a
detailed resolution from 250 metres. The data can be aggregated for all possible
different administrative regions. The data is based on the provision of the most
significant telecommunication operators (more than 230). The collection of data
and the processing and presentation of it are handled by an external service
provider (TV Rheinland).
The German Infrastructure Atlas illustrates telecom-relevant infrastructure. The
detailed information is vector based and access is restricted, i.e. not public. The
Infrastructure Atlas is based on data provided by infrastructure owners. The
Federal Network Agency is in charge of the whole project.
The broadband internet quality initiative is collecting user information on the
quality of internet access using data from online speed tests as well as router
data. Results are presented within a report giving a comprehensive overview
about the quality of service delivered by the providers. Actual broadband speed
at the customers premises is compared with the speeds mentioned by providers.
There are georeferenced analyses and statistics.
Last but not least, the German NRA is running the EMF Database, which gathers
information about the location of radio towers and EMF measurement points in
Germany.

Page 213 / 280

Table 8-17: Overview of public broadband mapping initiatives in

Germany

Country

Germany

Name

Breitbandatlas

Infrastrukturatlas

Initiative
Netzqualitt

EMF Database

Kind of
mapping

Broadband service
mapping

Broadband
infrastructure
mapping

Broadband demand
mapping

Broadband
infrastructure
mapping

Operated
by

BMWi (Federal
Ministry of
Economics and
Technology)

BNetzA (Federal
Network Agency)

BNetzA (Federal
Network Agency)

BNetzA (Federal
Network Agency)

Short
description

Breitbandatlas
monitors
broadband
coverage in
Germany. The
system is raster
based.

The German
Infrastructure Atlas
gathers relevant
telecommunication
infrastructure.

The broadband
internet quality
initiative is
collecting user
information on the
quality of internet
access using data
from online speed
tests as well as
router data.

The EMF Database

gathers information
about the location of
radio towers and
EMF measurement
points in Germany.

Main
objectives

coverage
technologies
speed
provider

telecommunicationrelated
infrastructure

user speed test

quality of service

Location of:
radio towers
EMF
measurement
points

Results

interactive maps;
static maps;
statistics
reports

interactive maps

statistics/reports

interactive maps

Access

public

restricted

public/restricted

public/restricted

Web
address

http://www.zukunftbreitband.de/DE/Br
eitbandatlas/breitba
nd-vor-ort.html

http://www.bundesn
etzagentur.de/DE/S
achgebiete/Telekom
munikation/Unterne
hmen_Institutionen/
Breitband/Infrastrukt
uratlas/infrastruktur
atlas-node.html

http://www.initiativenetzqualitaet.de/abs
chlussbericht/

http://www.bundesn
etzagentur.de/DE/S
achgebiete/Telekom
munikation/Unterne
hmen_Institutionen/
Breitband/Infrastrukt
uratlas/infrastruktur
atlas-node.html

Page 214 / 280

Table 8-18: Overview of questionnaire results for Germany

(Infrastructure Mapping)

Category

Questionnaire response

Country

Germany

Organisation

Bundesnetzagentur

Website

http://www.bundesnetzagentur.de

Contracting authority

NRA

Organisational outfit

Public authority

Kind of mapping

Infrastructure

Collected infrastructure data

Ductwork
Cables (Fibre, copper, TV)
Network elements (Central offices, FDIs)
Radio towers
Non-TC-Infrastructure
Updates for all: Once a year

Collected service data

n/a

Infrastructure data suppliers

Number of data suppliers: 380

Obligation: Yes, all of them
Data suppliers:
Government
Local municipalities
ISPs
Telecoms
Utilities

Service data suppliers

Number of data suppliers: n/a

Obligation: n/a
Data suppliers: n/a
73

Access to infrastructure data

Restricted

Access to service data

n/a

Infrastructure mapping costs

60 % fixed costs
40 % operational costs

Service mapping costs

n/a

Employees

9 (full-time equivalent)

Relevance of INSPIRE

Yes. The central issues of INSPIRE (e.g. interoperability of spatial

data, trans-border access) are also major aspects of our
initiative.

73

Access may be granted on request.

Page 215 / 280

Table 8-19: Overview of questionnaire results for Germany (BMWi)

Category

Questionnaire response

Country

Germany

Organisation

BMWi

Website

www.breitbandatlas.de

Contracting authority

Federal Ministry

Organisational outfit

Private company

Kind of mapping

Service

Collected infrastructure data

n/a

Collected service data

Coverage/availability
Speed (bandwidth)
Updates: semi-annual

Infrastructure data suppliers

n/a

Service data suppliers

Number of data suppliers: 270

Obligation: no, all provide data voluntarily
Data suppliers: ISPs, Telecoms

Access to infrastructure data

n/a

Access to service data

Public & restricted

Infrastructure mapping costs

n/a

Service mapping costs

40 % fixed costs
60 % operational costs

Employees

Relevance of INSPIRE

No. The INSPIRE directive is not an issue for our initiative.

Page 216 / 280

8.1.1.12

Greece

In Greece, a public tool has been initiated by the Hellenic Telecommunications

and Post Commission (EETT). Information on broadband availability in Greece is
shown by means of vector-based maps providing information about broadband
infrastructure and the respective providers. Furthermore, the EETT is publishing
annual reports on broadband coverage on their website.74
The Computer Technology Institute (CTI) developed an interactive broadband
mapping application based on Google maps publishing information on broadband
investments. The information is linked to municipalities and contains city,
operator/provider, network length and budget details.75
In 2013, the Information Society (IS SA) in Greece launched a tender for the
development of a digital mapping system for broadband infrastructure. The total
net budget is about 350,000. The project is designed to develop a digital
interactive web application, through which the status of all available network
infrastructure can be mapped and monitored. Providers and operators will update
the central database via appropriate interfaces to be implemented within the
project. Users of the ministry and other relevant state bodies will have access to
classified data. Furthermore, interested users will have the opportunity to view
information on broadband coverage and services.
Table 8-20: Overview of public broadband mapping initiative in Greece

Country

Greece

Name

EETT

Kind of mapping

Broadband service mapping

Operated by

Hellenic Telecommunications & Post Commission

Short description

Broadband availability in Greece is provided. The current infrastructure

and the provider are also monitored.

Main objectives

infrastructure
availability
provider

Results

Interactive maps

Access

public

Web address

http://mapsrv1.terra.gr/eettutilities/mapnew.aspx

74

http://www.eett.gr/opencms/opencms/EETT_EN/Electronic_Communications/
Electr_Comms_Market/broadband.html.
75
http://gaia.cti.gr/gmaps/.
Page 217 / 280

8.1.1.13

Hungary

In Hungary, the new national broadband strategy (National Infocommunications

Strategy) is under public consultation. It might enter into force by end of 2013.
This new strategy document has an action point regarding mapping, which states
that a mapping system has to be introduced by the end of 2015. No decision has
been made yet as to who will operate the broadband mapping activities (either
the NRA or the Ministry).

Page 218 / 280

Table 8-21: Overview of questionnaire results for Hungary

Category

Questionnaire response

Country

Hungary

Organisation

Ministry of National Development

Website

http://www.kormany.hu/hu/nemzeti-fejlesztesi-miniszterium

Contracting authority

NRA

Organisational outfit

Public authority

Kind of mapping

Infrastructure
Services

Collected infrastructure data

Ductwork
Cables (Fibre, copper, TV)
Radio towers
Microwave
Updates: Once a year.

Collected service data

Coverage/availability
Speed (bandwidth)
Data traffic (volume)
Quality of service
Other
Updates: Annual.

Infrastructure data suppliers

Number of data suppliers: 65

Obligation: Some are obliged, others are not.
Data suppliers:
Local municipalities
ISPs
Telecoms
Utilities

Service data suppliers

Number of data suppliers: 32

Obligation: Some are obliged, others are not.
Data suppliers:
ISPs
Telecoms

Access to infrastructure data

Public
Restricted
Not available

Access to service data

Restricted
Not available

Infrastructure mapping costs

35 % fixed costs
65 % operational costs

Service mapping costs

25 % fixed costs
65 % operational costs

Employees

2 (full-time equivalent)

Relevance of INSPIRE

No. The INSPIRE Directive is not an issue for our initiative.

Page 219 / 280

8.1.1.14

Ireland

The objective of the national broadband strategy (NBS) is to deliver broadband

to certain target areas in Ireland in which broadband services have been deemed
to be insufficient. The broadband mapping activities are carried out by the
Department of Communications, Energy and Natural Resources Ireland. The
mapping exercise focuses on the service areas served and not on the access
infrastructure. All broadband technologies are considered and the technologies
are broken down into categories of fixed and mobile.
The fixed network is subdivided into cable, copper, fixed and wireless and for
each of these networks the coverage areas are mapped into a geographic
mapping tool. In the case of fixed wireless, the coverage is verified using a
terrain database and secondly with a local cluster database.
The coverage from networks serving mobile customers is also mapped taking
into account the results of a terrain database scan. The coverage from all
operators using each of the technologies is collectively put together and a
composite map produced.
The department is currently starting a new mapping process for next-generation
networks. The initiative is aiming to map all networks including basic broadband
coverage areas, next-generation broadband networks as well as backhaul
networks. Currently the operators are being consulted regarding the new
approach.
Table 8-22: Overview of public broadband mapping initiative

Country

Ireland

Name

National Broadband Scheme

Kind of mapping

Broadband service mapping

Operated by

Communications (Development) Division

Department of Communications, Energy and Natural Resources
Ireland

Short description

The mapping exercise focuses on the service areas served and not on
the access infrastructure. All broadband technologies are considered
and the technologies are broken down into fixed and mobile.

Main objectives

coverage
speed
provider

Results

statistics
static maps

Access

public/restricted

Web address

http://www.dcenr.gov.ie/Communications/Communications+Developm
ent/National+Broadband+Scheme/National+Broadband+Scheme.htm

Page 220 / 280

8.1.1.15

Italy

Infratel Italia assesses fixed, mobile and wireless telecommunication operators

basic broadband coverage (ADSL, BWA, 3G/4G) and maps their service
availability. The initiative aims to identify areas with missing or insufficient
access to broadband services (defined as less than 2 Mbps) and where there is
lack of private investment in the long run.
Infratel Italia runs the National Broadband Plan to address digital divide in rural
areas and to identify market failure. More than 30,000 areas were investigated
and classified during a consultation in 2012. The consultation was executed
according to the EU Community guidelines for the application of state aid rules.
The Ministry of Economic Development issues a public consultation twice a year.
This consultation aims to assess coverage of UltraBroadband (NGAN-FTTC-FTTH)
in urban areas. UltraBroadband access, infrastructure and service availability is
mapped to identify areas with missing or insufficient access to broadband
services (defined as less than 30 Mbps) and where there is lack of private
investment in the long run. More than 10,300 areas were investigated and
classified in the consultation of 2012 (executed according to the EU Community
guidelines for the application of state aid rules).
Moreover, AGCOM (Italian Communication Authority) runs a speed measuring
tool. The tool is publicly available76 as a web application.

76

https://www.misurainternet.it/.
Page 221 / 280

Table 8-23: Overview of questionnaire results for Italy (Ministry)

Category

Questionnaire response

Country

Italy

Organisation

Economic Development Ministry

Website

http://www.mise.gov.it/

Contracting authority

Private company

Organisational outfit

Public authority

Kind of mapping

Infrastructure
Services

Collected infrastructure data

Network elements (Central offices, FDIs)

Radio towers
Updates: Twice a year.

Collected service data

Coverage/availability
Speed (bandwidth)
Other
Updates: n/a

Infrastructure data suppliers

Number of data suppliers: 15

Obligation: Some are obliged, others are not.
Data suppliers:
ISPs
Telecoms

Service data suppliers

Number of data suppliers: n/a

Obligation: n/a
Data suppliers:
ISPs
Telecoms

Access to infrastructure data

Restricted

Access to service data

Public
Restricted
Not available

Infrastructure mapping costs

8 % fixed costs
92 % operational costs

Service mapping costs

24 % fixed costs
76 % operational costs

Employees

2 (full-time equivalent)

Relevance of INSPIRE

No. The INSPIRE Directive is not an issue for our initiative.

Page 222 / 280

Table 8-24: Overview of questionnaire results for Italy (Infratel)

Category

Questionnaire response

Country

Italy

Organisation

Infratel Italia

Website

www.infratelitalia.it
(infrastructure)
http://www.infratelitalia.it/site/infratel/home/attivita/reterealizzata-e-infrastrutture.html
(service)
http://www.sviluppoeconomico.gov.it/index.php?option=com_conte
nt&view=article&viewType=0&id=2019463&idmenu=2517&idarea1
=1699&idarea2=0&idarea3=0&idarea4=0&andor=AND&sectionid=
0&andorcat=AND&partebassaType=0&idareaCalendario1=0&Mve
diT=1&showMenu=1&showCat=1&showArchiveNewsBotton=0&dir
ectionidUser=0

Contracting authority

Public authority

Organisational outfit

Public authority

Kind of mapping

Infrastructure and Services

Collected infrastructure data

Ductwork;
Backhaul network infrastructure availability;
Exchange/site routing equipment availability;
Network elements;
Cables (Fibre, copper, TV);
Radio towers.
Updates: Once a year.

Collected service data

Service Coverage;
Speed (bandwidth);
Operators specific technical roll-out plans;
Updates: Annual

Infrastructure data suppliers

Number of data suppliers: 13

Obligation: No, all provide data voluntarily
Data suppliers:
Government
Telecoms
Utilities

Service data suppliers

Number of data suppliers: 36

Obligation: No, all provide data voluntarily
Data suppliers:
Government
Telecoms

Access to infrastructure data

Restricted

Access to service data

Restricted

Infrastructure mapping costs

20 % fixed costs
80 % operational costs

Service mapping costs

35 % fixed costs

Page 223 / 280

Category

Questionnaire response
65 % operational costs

Employees

3 (full-time equivalent)

Relevance of INSPIRE

Yes. We explicitly use existing framework and standards for

data collection, processing and publication.

8.1.1.16

Latvia

SPRK (Public Utilities Commission NRA) is currently in the process of analysing

a framework for infrastructure mapping. In parallel, the Ministry of Transport is
in the process of implementation of middle mile as a wholesale dark fibre
product. Mapping is required for this purpose and will be considered.
SPRK

conducts

internet

speed

measurements

at

regular

intervals.

The

measurement system uses server infrastructure that is connected to national

internet exchange points. Its engine is a Java application with a system core
from Visualware.77 It features an interactive web interface developed by a
Latvian company. The measurement system considers download and upload
speeds, latency, jitter and lost packets. Measurements are performed from the
respective network termination point to Latvian internet exchange points.

77

http://www.visualware.com (MyConnection Server BusinessCenter).

Page 224 / 280

Table 8-25: Overview of questionnaire results for Latvia

Category

Questionnaire response

Country

Latvia

Organisation

Public Utilities Commission (NRA)

Website

http://www.sprk.gov.lv
Mapping website: www.geolatvija.lv (the deadline for this web
application is 2014)

Contracting authority

Federal Ministry

Organisational outfit

Cooperation (e.g. public authority and private company)

Kind of mapping

Infrastructure

Collected infrastructure data

Ductwork
Cables (Fibre, copper, TV)
Network elements (Central offices, FDIs)
Radio towers
Microwave
Non-TC-Infrastructure
Road works
Updates: Update has to be done after acceptance of each
construction work within 12 days

Collected service data

n/a

Infrastructure data suppliers

Number of data suppliers: n/a

Obligation: Yes, all of them.
Data suppliers:
Government
Local municipalities
ISPs
Telecoms
Utilities

Service data suppliers

Number of data suppliers: n/a

Obligation: n/a
Data suppliers: n/a

Access to infrastructure data

Public

Access to service data

n/a

Infrastructure mapping costs

n/a

Service mapping costs

n/a

Employees

n/a (full-time equivalent)

Relevance of INSPIRE

Yes. The central issues of INSPIRE (e.g. interoperability of spatial

data, trans-border access) are also major aspects of our initiative.

Page 225 / 280

8.1.1.17

Lithuania

In Lithuania, three initiatives are engaged in broadband mapping. The NRA RRT
is running a broadband infrastructure mapping project. The public establishment
Placiajuostis internetas78 is active in infrastructure and investment mapping.
The Information Society Development Committee under the Ministry of Transport
and Communications (ISDC) is in charge of a broadband infrastructure
development research project in Lithuania.
RRTs mapping initiative is infrastructure-oriented. Its primary target is to avoid
duplicated infrastructure and to promote co-usage. Ducts are therefore a primary
focus in the initiative, including the availability of space/capacity in some
regions. Infrastructure sharing is fostered by RRT legislation. RRT has plans to
extend its activities in the near future into broadband service mapping.
ISDC is implementing a mapping initiative in order to prepare for public
investments during the period from 2014 to 2020. The initiative aims to assess
all broadband infrastructure built in Lithuania as well as coverage of broadband
services. It is a one-time initiative, designed and executed for this specific
purpose, and thus will not create any sustained and continuously updated
system. Digital maps have been prepared. These maps will be publicly available
online in the very near future on the Committee website.79
There are multiple speed test measurement tools in Lithuania. Matuok80 is an
example.

78
79
80

http://www.placiajuostis.lt.
http://www.ivpk.lt/.
http://www.matuok.lt/.
Page 226 / 280

Table 8-26: Overview of questionnaire results for Lithuania

Category

Questionnaire response

Country

Lithuania

Organisation

RRT (NRA)

Website

http://www.rrt.lt
http://e-infrastruktura.lt

Contracting authority

NRA

Organisational outfit

Public authority

Kind of mapping

Infrastructure

Collected infrastructure data

Ductwork
Other (Location of ducts)
Updates: More than twice a year.

Collected service data

n/a

Infrastructure data suppliers

Number of data suppliers: 2

(At the moment there are 3 data suppliers)
Obligation: No, all provide data voluntarily
Data suppliers:
Local municipalities

Service data suppliers

Number of data suppliers: n/a

Obligation: n/a
Data suppliers: n/a

Access to infrastructure data

Public

Access to service data

n/a

Infrastructure mapping costs

100 % fixed costs (one-time fee)

Service mapping costs

n/a

Employees

1 (full-time equivalent)

Relevance of INSPIRE

No. The INSPIRE Directive is not an issue for our initiative.

Page 227 / 280

8.1.1.18

Luxembourg

The Service des Mdias et des Communications (Ministry of State), in close

cooperation with the Ministry of Economy, is conducting a study, via an external
consultant, with a view to mapping NGA broadband coverage and penetration in
Luxembourg.
The aims are to:

get trustworthy data on effective NGA coverage (i.e. taking into account
overlap of different technologies);

identify white, grey and black areas in order to get a coherent view on
where additional actions might be needed;

follow up on coverage targets set out in national broadband strategy.

Moreover, the Ministry of Economy, in close cooperation with the Ministry of

State, is conducting a study, via an external consultant, with a view to mapping
NGA coverage of economic activity zones. The national broadband strategy
foresees the creation of economic activity zones connected to very high-speed
broadband which are equipped with redundant infrastructure including at least
one optical fibre ring to secure business access to telecommunications services.
The aim of the mapping exercise is to identify those activity zones that respond
to the above criteria in order to be able to label them accordingly.
Table 8-27: Overview of public broadband mapping initiative in
Luxembourg

Country

Luxembourg

Name

Mapping of NGA coverage and

penetration

Mapping of NGA coverage of economic

activity zones

Kind of
mapping

Service mapping

Service mapping

Operated by

Media and Communications Department

(Ministry of State)

Ministry of Economy

Short
description

Mapping of NGA coverage based on

network operator's data.

Mapping of NGA coverage of economic

activity zones according to the criteria set
out in the national broadband strategy
(redundant access) in order to label very
high-speed broadband economic activity
zones.

Main
objectives

- Coverage
- Penetration
- Technologies
- Advertised speeds

- Coverage
- Technologies
- Infrastructure operators
- Identification of very high-speed
broadband economic activity zones

Results

Static maps (expected 2014)

Static maps (expected 2014)

Page 228 / 280

Country

Luxembourg

Access

Public (expected 2014)

Public (expected 2014)

Web
address

n/a

n/a

8.1.1.19

Malta

At the time of writing, no information has been provided on the usage of or plans
for broadband mapping systems in Malta.
8.1.1.20

Netherlands

The Dutch NRA ACM, in close cooperation with the Ministry of Economic Affairs
and TNO, is running a broadband infrastructure mapping initiative. The aim of
the initiative is to speed up state aid issues by identifying white areas, and to
monitor the roll-out of NGA in the Netherlands in light of the broadband goals
from the DAE.
The web application Breedbandkaart presents information on broadband
availability in the Netherlands including information about the provider, speed,
technologies and availability. It is a private project initiated by Nederland
Breedbandland and open to the public.
The private initiative Breedbandwinkel.nl81 provides an online service that may
allow the website operator to draw conclusions on consumer broadband service
demand. Breedbandwinkel targets consumers. It allows them to search for fixed
or mobile internet access, digital TV or bundled internet/content services. For
each search, an address needs to be given. By evaluating search requests,
Breedbandwinkel is able to see what consumer demand exists for any given
region provided there have been a large enough number of previous requests.
In addition, Breedbandwinkel offers an online speed test tool.82
Various studies related to broadband in the Netherlands have been published
recently. Stratix83 and Telecompaper are active in this area. Telecompaper
primarily monitors84 market developments. In addition, two speed monitoring
tools are popular in the Netherlands, SamKnows and www.nuria.nl by iPing.

81
82
83

84

http://www.breedbandwinkel.nl/.
http://www.breedbandwinkel.nl/snelheidstest.
http://www.stratix.nl/academy/publicaties/category/1-download-reports?download=94:ftth-monitor-2013q3,
http://www.stratix.nl/academy/publicaties/category/1-download-reports?download=90:opties-enalternatieven-voor-breedbandontsluiting-witte-gebieden-in-fryslan,
http://www.stratix.nl/academy/publicaties/category/1-download-reports?download=88:glasmonitor-2013.
For instance, http://www.telecompaper.com/research/dutch-broadband-q3-2013--925511.
Page 229 / 280

In terms of infrastructure mapping (not necessarily only broadband infrastructure

mapping), the initiative Het Kadaster85 (cadastre or land registry) should be
mentioned. The initiative provides information on infrastructure above ground as
well as underground. A special desk, called KLIC LOKET,86 is made available for
undertakings to post notifications on digging works. When an undertaking
indicates that it needs information, it will receive a map of the relevant
underground infrastructure. The map also includes information on the owner and
purpose of the infrastructure.
Table 8-28: Overview of public broadband mapping initiative in the
Netherlands

Country

The Netherlands

Name

Breedbandkaart

Kind of mapping

Broadband infrastructure mapping

Operated by

Nederland BreedbandLand (NBL)

Short description

Breedbandkaart provides overview information shown on an interactive map

regarding broadband infrastructure (typically at the network level, not the
individual network element level) as well as on applications that profit from
broadband.

Main objectives

infrastructure

Results

interactive maps

Access

public

Web address

http://www.nederlandbreedbandland.nl/page/Breedbandkaart

85
86

http://www.kadaster.nl/web/english.htm.
http://www.kadaster.nl/web/Themas/Registraties/KLIC.htm. The service may be accessed by a dedicated app:
http://klic-app.nl/.
Page 230 / 280

Table 8-29: Overview of questionnaire results for the Netherlands

Category

Questionnaire response

Country

Netherlands

Organisation

ACM

Website

Contracting authority

NRA

Organisational outfit

Public authority

Kind of mapping

Infrastructure

Collected infrastructure data

Cables (Fibre, copper, TV)

Updates: Once a year.

Collected service data

Coverage/availability

Infrastructure data suppliers

Number of data suppliers: 9

Obligation: No, all provide data voluntarily
Data suppliers:
Telecoms

Service data suppliers

Number of data suppliers: n/a

Obligation: n/a
Data suppliers: n/a

Access to infrastructure data

Public
Not available

Access to service data

n/a

Infrastructure mapping costs

n/a

Service mapping costs

n/a

Employees

0.1 (full-time equivalent)

Relevance of INSPIRE

No. The INSPIRE Directive is not an issue for our initiative.

Page 231 / 280

8.1.1.21

Poland

Broadband mapping in Poland is conducted by the Office of Electronic

Communications, Department of Infrastructure Development. The initiative is
collecting data on broadband infrastructure and service mapping.
Data is collected as nodes of broadband networks in terms of geographical
coordinates. Nodes are differentiated on three levels: backbone, distribution and
access networks. At the access level, the buildings connected to the node are
also collected. Data on physical lines of infrastructure is not collected. This is due
to the fact that the majority of network operators do not have digital information
on geographical routes of their infrastructure.
UKE publishes comprehensive reports on the methodologies of mapping as well
as the results. Infrastructure data is presented on a public website. Currently,
only general information on the location of nodes differentiated for the three
mentioned levels as well as the theoretical connection between nodes can be
seen. Every operator has a personal login to the website to see infrastructure
data.
Table 8-30: Overview of public broadband mapping initiative in Poland
Country

Poland

Name

Kind of mapping

Broadband infrastructure mapping

Operated by

Urzad Komunikacji Elektroniczenj (UKE)

Short description

The broadband mapping initiative is collecting the exact location of nodes

and further information.

Main objectives

infrastructure nodes
coverage

Results

interactive maps/report

Access

public/restricted

Web address

http://www.uke.gov.pl/mapa/?map_tab=1
http://en.uke.gov.pl/report-on-the-coverage-of-poland-withtelecommunications-infrastructure-751

Page 232 / 280

8.1.1.22

Portugal

The Portuguese NRA, ANACOM, is about to set up a broadband infrastructure

mapping

initiative

to

avoid

inefficient

infrastructure

duplication

and

inconvenience caused to citizens and business by frequent and extensive

underground works. Implementation of a centralised information system (SIC) is
planned.
The SIC will contain information deemed to be relevant to ensure not only the
right of use of public domain, but also the right to access ducts and other
infrastructure suitable for the accommodation of electronic communications
networks.
Through SIC, it is possible to access information on procedures and conditions
for the:

allocation of rights of way;

information on advertisements of construction of new ducts;

other

infrastructure

suitable

for

the

accommodation

of

electronic

communications networks;

comprehensive

and

georeferenced

information

on

all

infrastructure

suitable for the accommodation of electronic communications networks

held by public bodies or by electronic communications companies;

information on procedures and conditions that apply to the access to and

use of the referred infrastructure.

In parallel, both public bodies and electronic communications companies are

required to draw up records of the infrastructure they hold that are suitable for
the accommodation of electronic communications networks. Bodies that are
obliged to provide access to their infrastructure must also implement a procedure
for replying swiftly and in a non-discriminatory manner to information requests
on such infrastructure made by electronic communications companies.
Despite the existence of the described regulatory framework, the implementation
of services for the collection of mapping data (SIC) has had a few drawbacks.
Portugal foresees that the infrastructure mapping project will be concluded
during 2014 and the project implemented.
All details related to the model of the services to be provided, type of platform,
quality of data collected and to be provided, software to be used and access
conditions have been included in the public tender launched in 2014.
Moreover, the broadband speed test tool Netmed provides a service that
consumers can use to test the speed of their internet connection. With this tool,
internet users can compare the actual speed obtained over their connection with
Page 233 / 280

the maximum speed contracted from their service provider. The test gives
information about download and upload speeds and about the delay in the users
connection.
Table 8-31: Overview of questionnaire results for Portugal

Category

Questionnaire response

Country

Portugal

Organisation

ANACOM

Website

www.anacom.pt

Contracting authority

NRA

Organisational outfit

Cooperation (e.g. public authority and private company)

Kind of mapping

Infrastructure

Collected infrastructure data

Ductwork
Network elements (Central offices, FDIs)
Radio towers
Non-TC-Infrastructure
Road works
Updates: More than twice a year.

Collected service data

n/a

Infrastructure data suppliers

Number of data suppliers: n/a

Obligation: Yes, all of them.
Data suppliers:
Government
Local municipalities
Telecoms
Utilities

Service data suppliers

Number of data suppliers: n/a

Obligation: n/a
Data suppliers: n/a

Access to infrastructure data

Public

Access to service data

n/a

Infrastructure mapping costs

n/a

Service mapping costs

n/a

Employees

n/a (full-time equivalent)

Relevance of INSPIRE

n/a

Page 234 / 280

8.1.1.23

Romania

In Romania, the electronic communications network infrastructure law is in force.

It provides a series of new duties for the Romanian NRA, ANCOM, offering the
regulatory authority the necessary tools to create a regulatory framework with
an inventory of public electronic communications networks and associated
infrastructure elements.
Providers of electronic communications networks will be obliged to send ANCOM
complete information on the development and geographical location of the public
electronic communications they operate and to update this information on an
annual basis.
According to the law, ANCOM must establish the modality in which these
provisions shall apply and the format under which the information is to be
transmitted. Romania is planning to start the implementation of the inventory
project at the end of 2014.
8.1.1.24

Slovak Republic

The topic of broadband is covered in a draft of the Operational Program

Integrated Infrastructure for the next programming period as part of a priority
axis. For the time being, the Ministry of Transport (Telecommunications Division)
and Ministry of Finance (Information Society Division) have joint responsibility
for broadband and infrastructure mapping. At the point of writing, no information
on further existing broadband mapping activities is available. There are a few
speed measuring tools in place in the Slovak Republic, e.g. Rychlost.87 These
tools work on a voluntary (i.e. non-mandatory) basis.

87

http://www.rychlost.sk/.
Page 235 / 280

Table 8-32: Overview of questionnaire results for Slovak Republic

Category

Questionnaire response

Country

Slovak Republic

Organisation

Vyskumny ustav spojov, n. o.

Website

http://www.vus.sk/standardy/broadband/technology.htm

Contracting authority

Other

Organisational outfit

Other

Kind of mapping

Services

Collected infrastructure data

Under consideration

Collected service data

Coverage/availability
Updates: Twice a year

Infrastructure data suppliers

Number of data suppliers: n/a

Obligation: n/a
Data suppliers: n/a

Service data suppliers

Number of data suppliers: approx. 600

Obligation: No, all provide data voluntarily
Data suppliers:
ISPs

Access to infrastructure data

n/a

Access to service data

Public

Infrastructure mapping costs

n/a

Service mapping costs

15 % fixed costs
85 % operational costs

Employees

1 (full-time equivalent)

Relevance of INSPIRE

No. The INSPIRE Directive is not an issue for our initiative.

8.1.1.25

Slovenia

The Ministry of Education, Science and Sport, Directorate for the Information
Society is in charge of broadband mapping. On the basis of the previous
electronic communication act, in 2004 Slovenia started to collect data on the
presence of physical infrastructure of electronic communications in a cadastre of
public infrastructure, such as telecommunication pipes, cables and base stations.
In 2012, the department also started a project for the extension of existing
mapping of all fixed broadband household access. The requirement is defined in
a new electronic communication act issued in January 2013.
In 2013, the initiative started to collect data on existing access networks and
Page 236 / 280

planned construction for the next 3 years from all operators and which bandwidth
will be available for every household. This data will also be part of the cadastre
of public infrastructure and will be available for regulator market analysis. The
aim is to analyse white and grey spots as a basis for co-financing the
construction of broadband networks using public funds in the future.
All data will also be available in a graphic mode on maps. The cadastre platform
is already prepared. Ongoing work in late 2013 includes the online operator user
interfaces for data entry and user interfaces for different users to retrieve data
on bandwidth available for each household.
Table 8-33: Overview of public broadband mapping initiative in Slovenia

Country

Slovenia

Name

Zbirni kataster gospodarske javne

infrastrukture (ZK GJI) Elektronske
komunikacije Consolidated Cadastre
of Public Infrastructure Electronic
Communications

GIS za podporo OPT (OPT-GIS) GIS for

supporting network termination points (OPTGIS)

Kind of
mapping

Infrastructure mapping

Service mapping

Operated
by

Geodetska uprava Republike Slovenije

(GURS) The Surveying and Mapping
Authority of the Republic of Slovenia

Geodetska uprava Republike Slovenije

(GURS) The Surveying and Mapping
Authority of the Republic of Slovenia

Short
description

Mapping system for gathering and

presenting graphical form of the data on
ducts, cables (fibre, twisted pairs, coax),
nodes, base stations, etc.

Mapping system for gathering, analysing and

presenting information on broadband service
provision including the available bandwidths
(speed), technologies, operators/service
providers in each household in every
settlement in all Slovenian municipalities.

Main
objectives

To gather electronic communication

operators facility data with the main
information on location and network
type used for. It enables electronic
communications facilities data to be
found within the Consolidated Cadastre
of Public Infrastructure and to be
presented in graphical form.

To gather all broadband access in each

household in every settlement in all
Slovenian municipalities. The data is
available for analysis by various criteria and
presenting results in data and/or in graphical
form.
This serves as a basis for the analysis of
commercial interest in broadband access and
for determining white and grey spots as a
basis for co-financing the construction of
broadband networks using public funds in the
future.

Results

Electronic communication operators

facilities database.
Presentation of networks and their parts
in graphical form for public access.

Broadband access database.

Presentation of broadband access and their
analysis by various criteria in data and/or in
graphical form.

Access

Public/restricted

Restricted

Web
address

http://prostor3.gov.si/javni/login.jsp?jezi
k=en

n/a

Page 237 / 280

Slovenia is an interesting case with respect to INSPIRE. The data model

underlying the Cadastre of Public Infrastructure is not yet compliant with the
INSPIRE Directives data specifications. The Surveying and Mapping Authority
(SMA) is preparing an upgrade of common spatial data infrastructure used for
SMAs distribution system. Existing SMA spatial datasets will be transformed into
an INSPIRE-compliant data model (as much as possible new data will not be
created). INSPIRE-compliant services for search, view and download will be
implemented. Within this upgrade of common spatial data infrastructure,
INSPIREs utility and governmental theme will be implemented as well.
A comparison of the data model used for the Cadastre of Public Utilities and
INSPIREs application schema for telecommunication networks shows that the
implementation of INSPIRE services will be partially compliant with the INSPIRE
data specifications. Feature types for TelecommunicationsCable, Appurtenance
and UtilityNetwork can be implemented. One of the must be present attributes
will not be fully compliant, namely the appurtenanceType attribute. Some
voidable

attributes

do

not

exist:

utilityDeliveryType,

warningType

and

telecommunicationsCableMaterialType.
Implementation of the INSPIRE-compliant infrastructure for SMA is planned for
mid-2014.
8.1.1.26

Spain

In Spain, there are two broadband mapping initiatives. The Secretary of State for
Telecommunications and Information Society (SETSI) is collecting statistics and
publishes reports with aggregated information as well as identified areas which
were excluded in an NGA aid scheme. Technologies and speeds by operator are
collected at the local level with individual information for 77,000 households.
Data aggregation takes place by municipality or region.
The Comisin Nacional de los Mercados y la Competencia (CNMC)88 carries out
another initiative focusing on the supply side with a broadband coverage map
and take-up.

88

In the beginning of October 2013, the predecessor organisation CMT disappeared with the creation of the
National Commission for the Markets and Competition (Comisin Nacional de los Mercados y la
Competencia, CNMC). CNMC combines functions of the National Energy Commission, the Commission for
the Telecommunications Market, the National Competition Commission and other national authorities.
Page 238 / 280

Bandaancha.eu is an independent initiative that targets consumers and their

demand for broadband internet service. It offers a platform for exchange (forums
and wiki) and it constitutes a broadband service information and comparison
tool. This includes a mapping exercise89 for which users can either search for
broadband service by provider, technology (types of DSL, cable, FTTH, mobile,
and WiMAX) and speed, or by searching all offers for a given town. The service
therefore has information from multiple providers. The portal also links to a
speed test90 tool. By evaluating user search requests for broadband service and
by considering collected speed test measurements, the operator of this platform
may be able to draw conclusions on consumer demand for broadband services.
Table 8-34: Overview of public broadband mapping initiatives in Spain
Country

Spain

Name

Cobertura de Banda Ancha en Espaa

Informe de penetracin de servicios

finales y de infraestructuras
de Telecomunicacin

Kind of mapping

Broadband service mapping

Broadband service mapping

Operated by

SETSI

CNMC

Short description

At this stage, the only deliverables

published are a report with aggregated
information, and the identification of
areas excluded in an NGA aid scheme
(non-white areas).

The report gives information about

the broadband penetration in every
province.

Main objectives

technologies
coverage

coverage
take-up

Results

statistics/report

statistics/report

Access

public/restricted

public/restricted

Web address

http://www.minetur.gob.es/TELECOM
UNICACIONES/ESES/NOVEDADES/Documents/Cobertu
ra_de_Banda_Ancha_Espana_primer_
semestre_2012.pdf

http://www.cmt.es/c/document_library
/get_file?uuid=064ab8a7-ec21-4229aafc-5591b8ba09cb&groupId=10138

89
90

http://bandaancha.eu/analisis/mapa.
http://testvelocidad.eu/.
Page 239 / 280

Table 8-35: Overview of questionnaire results for Spain (CNMC)

Category

Questionnaire response

Country

Spain

Organisation

CNMC

Website

www.cnmc.es

Contracting authority

NRA

Organisational outfit

Public authority

Kind of mapping

Services

Collected infrastructure data

n/a

Collected service data

Coverage/availability
Take-up
Updates: annual.

Infrastructure data suppliers

Number of data suppliers: n/a

Obligation: n/a
Data suppliers: n/a

Service data suppliers

Number of data suppliers: 75 (depending on the collected service

data)
Obligation: Yes, all of them
Data suppliers:
ISPs

Access to infrastructure data

n/a

Access to service data

Public
Restricted

Infrastructure mapping costs

n/a

Service mapping costs

n/a

Employees

2 (full-time equivalent)

Relevance of INSPIRE

Yes. We explicitly use existing framework and standards for data

collection, processing and publication.

Page 240 / 280

Table 8-36: Overview of questionnaire results for Spain (SETSI)

Category

Questionnaire response

Country

Spain

Organisation

Secretara de Estado de Telecomunicaciones y para la Sociedad

de la Informacin

Website

www.minetur.gob.es

Contracting authority

Federal Ministry

Organisational outfit

Public authority

Kind of mapping

Services

Collected infrastructure data

n/a

Collected service data

Coverage/availability
Speed (bandwidth)
Updates: Annual.

Infrastructure data suppliers

Number of data suppliers: n/a

Obligation: n/a
Data suppliers: n/a

Service data suppliers

Number of data suppliers: 20

Obligation: Yes, all of them
Data suppliers:
Telecoms

Access to infrastructure data

n/a

Access to service data

Public

Infrastructure mapping costs

n/a

Service mapping costs

n/a

Employees

2 (full-time equivalent)

Relevance of INSPIRE

No. The INSPIRE Directive is not an issue for our initiative.

Page 241 / 280

8.1.1.27

Sweden

PTS (Swedish NRA) is assigned by the government to broadband mapping. The

general focus of the initiative is market analysis and information on broadband
coverage and speeds as a service for national authorities, local authorities as well
as consumers. It is built to share information on existing infrastructure to enable
synergies in broadband deployment. The initiative is also collecting demand for
broadband if there is no broadband with a minimum of 1 Mbit/s.
The key outcome of the mapping initiative is statistics rather than georeferenced
data in terms of lines and points. This is due to the background and resources of
the department running the initiative. Mapping of infrastructure is not the
primary task of the market analysis department at PTS.
Besides infrastructure, services and broadband demand in unserved areas, the
initiative is mapping co-funded regions. The mapping comprises all co-funded
regions by the PTS which are either planned or built already.
Data is gathered via a yearly survey. A website/portal is used for the survey.
Companies are able to upload spreadsheets with addresses representing the
coverage of their network. Addresses are geocoded by an external consultant.
Addresses also contain IDs for buildings in case there is no exact house number.
The results of the mapping are published on an interactive website. The map
shows broadband coverage for technologies as well as broadband speeds. The
initiative is using grid cells with 250 x 25 m like Germany and Switzerland. Cofunded projects are illustrated within the map as a single point with information
about the associated telecommunications company. Contact details are provided
via the PTS.
The initiative .SE91 developed an app92 (for Android and iOS) which measures
mobile broadband speeds on end-user devices. Detailed results are published as
a public heat map. The map is updated in real time and can be accessed from
within the app.

91
92

https://www.iis.se/.
http://www.bredbandskollen.se/mobile.php.
Page 242 / 280

Table 8-37: Overview of public broadband mapping initiative in Sweden

Country

Sweden

Name

Bredbandskartan

Kind of mapping

Broadband service mapping

Broadband demand mapping

Operated by

PTS
Swedish Post and Telecom Authority

Short description

With the help of a grid, broadband coverage is mapped. Coverage is

mapped on an address basis

Main objectives

technologies
coverage
speed
demand

Results

interactive maps

Access

public/restricted

Web address

http://bredbandskartan.pts.se/

Page 243 / 280

Table 8-38: Overview of questionnaire results for Sweden

Category

Questionnaire response

Country

Sweden

Organisation

Swedish Post and Telecom Authority

Website

www.pts.se

Contracting authority

NRA

Organisational outfit

Public authority

Kind of mapping

Infrastructure
Services

Collected infrastructure data

Cables (Fibre, copper, TV)

Radio towers
Update: Once a year.

Collected service data

Coverage/availability
Take-up
Updates: Annual

Infrastructure data suppliers

Number of data suppliers: > 500

Obligation: Yes, all of them.
Data suppliers:
Local municipalities
ISPs
Telecoms

Service data suppliers

Number of data suppliers: ca. 450

Obligation: Yes, all of them
Data suppliers:
Local municipalities
ISPs
Telecoms

Access to infrastructure data

Public

Access to service data

Public

Infrastructure mapping costs

10 % fixed costs
90 % operational costs

Service mapping costs

n/a

Employees

1 (full-time equivalent)

Relevance of INSPIRE

n/a

Page 244 / 280

8.1.1.28

United Kingdom

The UK NRA Ofcom is in charge of broadband mapping from a market analysis

perspective and conducts service and infrastructure mapping. Ofcom has to
deliver an infrastructure report every year. This formal process helps support
data collection from operators, while experience shows that operators are
typically open to providing data. The initiative focuses on residential areas and
small businesses.
Data is delivered by operators for each postal address. The data is georeferenced
to the according postcode. A postcode in the UK usually comprises 10 to 15
premises (there are approximately 1.5 million postcodes in the UK). The initiative
is gathering very detailed data from operators, even noise margins, and real
broadband speeds at premises are provided.
Mobile coverage data is collected with coverage maps provided by operators. The
maps have a resolution of 200 m cells. The initiative is also collecting information
on used data volumes within grid cells of 200 m.
The information is reported on NUTS 3 level on the initiatives website using an
interactive map. Data can also be downloaded. This comprises, for instance,
information on broadband speeds, coverage of NGA and white spots for every
postcode. To protect privacy regulations, postcodes with fewer than three
premises are not reported. Company names are not mentioned. Information on
coverage of mobile broadband is shown on a NUTS 3 basis in the interactive map
because operators do not want the coverage maps to be published on a more
detailed level.
There are no plans to map location of telecommunication infrastructure; as there
are mainly just two big players in terms of infrastructure-owning companies,
there might be no need for a single-point information system. BT Openreach and
Virgin Media typically know about infrastructure lines they might be able to use.
Moreover, Ofcom started a project in 2010 to collect actual residential UK
broadband speeds. The research looked at 14 packages provided by the 7 largest
ISPs in the market, representing over 75 % of residential broadband subscribers
in the UK. Some 455 million separate performance tests were carried out in May
2011 in 1,767 homes. Maps and statistical information are available about the
respective provider, speed and technologies of broadband in the United Kingdom.
Maps are accessible to the public. The UK broadband mapping was operated by
the private company SamKnows.com.
Further notable broadband mapping activities in the UK include the commercial

Page 245 / 280

initiative Point Topic93 and speed test measuring tools. Speedtest.net is a popular
example for such a tool.
Table 8-39: Overview of public broadband mapping initiatives in the
United Kingdom

Country

United Kingdom

Name

UK Fixed Broadband Map 2013

UK Broadband Availability

Kind of mapping

Broadband service mapping

Broadband demand mapping

Broadband infrastructure mapping

operated by

Ofcom
(Federal Office of Communication)

SamKnows

Short description

The map shows information by

administrative authority and also
accurate information on broadband
take-up and speeds.

The system measures the broadband

performance in spot tests across the
UK and Europe.

Main objectives

coverage
speed
take-up

provider
speed
technologies

Results

interactive maps

interactive maps

Access

public

public/restricted

Web address

http://maps.ofcom.org.uk/broadband/

http://www.samknows.com/broadban
d/exchange_mapping

93

http://point-topic.com/services/broadband-geography-uk/.
Page 246 / 280

Table 8-40: Overview of questionnaire results for the United Kingdom

Category

Questionnaire response

Country

UK

Organisation

Ofcom

Website

http://www.ofcom.org.uk
http://maps.ofcom.org.uk/broadband

Contracting authority

NRA

Organisational outfit

Public authority

Kind of mapping

Services

Collected infrastructure data

n/a

Collected service data

Coverage/availability
Take-up
Speed (bandwidth)
Data traffic (volume)
Updates: Annual

Infrastructure data suppliers

Number of data suppliers: n/a

Obligation: n/a
Data suppliers: n/a

Service data suppliers

Number of data suppliers: 9

Obligation: Some are obliged, others are not.
Data suppliers:
ISPs
Telecoms

Access to infrastructure data

n/a

Access to service data

Public

Infrastructure mapping costs

n/a

Service mapping costs

60 % fixed costs
40 % operational costs

Employees

0.2 (full-time equivalent)

Relevance of INSPIRE

No. The INSPIRE Directive is not an issue for our initiative.

Page 247 / 280

8.1.2

Selected regional broadband mapping initiatives in EU Member

States

Some regional broadband mapping initiatives provide services that are superior
at least in some respects to the public national mapping initiatives presented in
the previous section. This section therefore briefly presents selected regional
broadband mapping initiatives.
8.1.2.1

Regional mapping in Czech Republic

A presentation94 compiled and published in 2009 reports on a mapping exercise

that was completed for two regions in Southern Moravia (ROP south-east, NUTS
II).
8.1.2.2

Regional mapping in Germany

Several local broadband mapping initiatives have been commissioned by the

federal states. Those initiatives focus on infrastructure mapping including
construction works as well as service mapping. Also, state aid projects are often
mapped via federal state initiatives.

94

http://www.jihovychod.cz/download/seminare/NGA_Vysocina_2012_v1.ppt.
Page 248 / 280

Table 8-41: Local broadband mapping initiatives in Germany

Name

Region

Kind of mapping

Objectives

Short description

Party
responsible

operated by

DigitalerAtlasNord

SchleswigHolstein

broadband
mapping,
infrastructure
mapping

speeds, technologies,
availability, building sites

The DigitalerAtlasNord is a special broadband mapping tool

for Schleswig-Holstein. Here you get information about
broadband speeds, technologies, availability and building
sites that are possible to use for coordinated installation of
fibre or empty conduit.

public

Breitbandatlas
Niedersachsen

Niedersachs
en

broadband
mapping,
infrastructure
mapping

providers, technologies,
extraction areas, speeds,
availability

The Breitbandatlas Niedersachsen is a special broadband

mapping tool for Niedersachsen. Here you get information
about broadband speeds, technologies, availability and
extraction areas.
Also it is possible to use an NGA map and a building/ empty
conduit map.

Breitbandinfrastrukturatlas
M-V

Mecklenburg
Vorpommern

infrastructure
mapping

infrastructure

Breitbandatlas
Brandenburg

Brandenburg

mapping of
broadband needs

Breitbandatlas SachsenAnhalt

SachsenAnhalt

Bedarfsatlas/Angebotsatla
s/
Mobilfunkversorgungsatla
s

Access

Results

Web address

BKZSH
vector based
BreitbandKompetenzze
ntrum SchleswigHolstein

public

maps

http://www.bkzsh.de/de/Breitba
ndatlas.htm

public

Breitband Kompetenz
Zentrum
Niedersachsen

vector based

public

maps

http://www.breitbandniedersachsen.de/index.php?id
=402

The Ego-MV collects infrastructure information from the

BNetzA and publishes it for Mecklenburg-Vorpommern.

private

Zweckverband
Elektronische
Verwaltung in M-V

vector based

private

maps,
statistics

http://www.egomv.de/index.php?id=142

broadband needs

Via the Breitbandatlas Brandenburg it is possible to register

need for broadband.
Also you can see all submitted broadband needs.

public

IHK Potsdam,
IHK Cottbus

public

maps,
statistics

https://breitbandatlasbrandenburg.de/

broadband
mapping

speeds, technologies,
availability, infrastructure

The Breitbandatlas Sachsen-Anhalt is a special broadband

mapping tool for Sachsen-Anhalt. Here you get information
about broadband speeds, technologies and availability.

public

Staatskanzlei Sachsen- raster based

Anhalt

public, private

maps

http://www.sachsenanhalt.de/index.php?id=57243

Thringen

mapping of
broadband needs,
broadband
mapping

broadband needs,
WLAN Hotspots,
mobile coverage

The broadband mapping tool for Thringen is divided into

three tools. The Bedarfsatlas allows you to register your
need for broadband. With the Angebotsatlas it is possible to
see speeds of broadband < 2 Mbit/s and >2 Mbit/s. The
Mobilfunkversorgungsatlas looks at mobile coverage.

public

Breitband
Kompetenzzentrum
Thringen

vector based

public

maps,
statistics

http://www.thringenonline.de/index.php?id=977

Breitbandatlas Saarland

Saarland

broadband
mapping,
infrastructure
mapping

speeds, technologies,
availability, infrastructure

The Breitbandatlas Saarland is a special broadband

mapping tool for Saarland. Here you will get information
about broadband speeds, technologies, availability and
infrastructure.

public

Zweckverband eGoSaar

raster based

private

maps

Breitbandnavigator
Rheinland-Pfalz

RheinlandPfalz

broadband
mapping,
infrastructure
mapping

speeds, technologies,
availability, infrastructure

The Breitbandnavigator Rheinland-Pfalz is a special

broadband mapping tool for Rheinland-Pfalz. Here you get
information about broadband speeds, technologies,
availability and infrastructure.

public

Ministerium des Innern,

fr Sport und
Infrastrukturen

raster based

public, private

maps

http://breitband.rlp.de/breitbandnavigator/

Hesbis

Hessen

broadband
mapping,
infrastructure
mapping

speeds, technologies,
availability, infrastructure,
building sites, extraction
areas

Hesbis is a special broadband mapping tool for Hessen. Here public

you get information about broadband speeds, technologies,
availability, extraction areas and building sites, which are
possible to use for coordinated installation of fibre or empty
conduit.

Hessisches
vector based
Ministerium fr
Wirtschaft, Verkehr und
Landesentwicklung

public

maps

http://www.breitband-inhessen.de/dynasite.cfm?dssid=
456

Breitbandfrderung BW

BadenWrttemberg

infrastructure
mapping

routes of ducts and

cables

With the WMS viewer it is possible to get information about

the routes of ducts and cables, funded with state aid.

Landesamt fr
Geoinformation und
Landentwicklung
Baden-Wrttemberg

public

maps

http://www.geoportal.lvbw.de/mapbender/http/frames/i
ndex.php?PHPSESSID=c35f52
ad0b3ae0397fbf03994cdc759d
&gui_id=gui_Clearingstelle

public

Data

vector based

Page 249 / 280

8.1.2.3

Regional mapping in France

There are several regional broadband initiatives in France, all of which want to
foster the deployment of broadband infrastructure in their region. In order to
create transparency, and for purposes of progress monitoring, the initiatives
publish plans and deployment reports. These reports typically include overview
maps showing broadband deployment status, usually on a district or municipality
level. Languedoc-Roussillon Haut Dbit is an example of an initiative that
publishes such an overview map in a dedicated section of its website.95 The
Auvergne Haut Dbit initiative is another example of a regional broadband
initiative with an interactive map showing in this case DSL deployment per
municipality.
While nearly all regional broadband initiatives publish overview maps regarding
plans or deployment, AVICCA (Association des Villes et Collectivits pour les
Communications lectroniques et lAudiovisuel) collects and publishes frequently
updated information about local and regional broadband initiatives and their
progress. These statistics provide information about the nature of an initiative,
its overall progress, amount of investment and technical characteristics as well
as planned services.
8.1.2.4

Regional mapping in Italy

The Underground Network Laboratory is a regional mapping initiative for the

Lombardy region in Italy. It is being executed with a view towards the Expo 2015
in Milan. The initiative aims for a more effective use of underground
infrastructure. In a paper96 describing the initiative, the following topics are
highlighted as especially important:

development of a coherent framework to help local authorities in rational

management of the underground space;

transfer of best techniques and practices;

publication

of

handbooks,

atlases

and

technical

reports

to

assist

municipalities and utility providers in their operations;

offer of training modules on the topic of public underground space

management;

supply of online geodatabase of underground technological networks in

Lombardy.

95
96

http://www.languedocroussillonhautdebit.fr/carte_de_deploiement.php.
http://www.ors.regione.lombardia.it/resources/news/N13a2ff52ba77a13db12/N13a2ff52ba77a13db12/RP097-P343.pdf.
Page 250 / 280

It is important to note that this initiative relates closely to INSPIRE. It is driven

by the Italian Legislative Decree 32/2010. The decree implements the scope and
general principles of the INSPIRE Directive.
8.1.2.5

Regional mapping in Spain

ITELAZPI is a public network operator wholly owned by the Basque Government,

which provides communication services to the different public administrations in
the Basque region. To go about this task, it has a public infrastructure of over
220

communication

locations

at

key

points

in

the

region.

This

public

infrastructure, managed and operated by ITELAZPI, is the basis for the services
offered to its client entities.
ITELAZPI operates a mapping initiative for the Basque region in Spain. This
initiative is commissioned by the Department of Justice and Public Administration
of the Basque Government. It focuses on broadband infrastructure mapping. The
initiatives website is publicly available and provides interactive maps. It is
important to note that broadband infrastructure refers to WiMAX only. Maps
show WiMAX transmitters and the (theoretical) coverage areas. Other types of
broadband infrastructure are not covered at this point. Maps are zoomable down
to street and house level. Users can either navigate in maps directly or they can
search for a specific address. The service which is made available in three
languages (Basque, Spanish and English) allows users to download a viewed
area in KMZ format.
IDEAndaluca is a mapping initiative for the region of Andalusia in Spain. It
aggregates data supplied by various departments of the government of Andalusia
and further associations. This mapping initiative currently does not cover
broadband mapping but it is mentioned here as it refers to the INSPIRE Directive
in terms of relevant regulation. The publicly available mapping portal97 provides
information on multiple types of civil infrastructure.
The National Commission for the Markets and Competition (CNMC) is engaged in
a regional initiative for broadband service mapping entitled Anlisis geogrfico
de los servicios de banda ancha y despliegue de NGA.98 Collected service data in
this study includes coverage/availability and take-up of broadband service.
Updates take place every half a year. Four institutions act as data suppliers
(incumbent operator, one national cable operator, three regional operators). The
study analyses two different geographical units, namely municipality and
Telefnicas local exchanges.
97
98

http://www.ideandalucia.es/IDEAvisor/.
http://www.cmt.es/c/document_library/get_file?uuid=274775c0-156d-4044-b073f462df73899f&groupId=10138.
Page 251 / 280

Table 8-42: Overview of public broadband mapping initiative in the

Basque region in Spain

Country

Spain Basque region

Name

ITELAZPI

Kind of mapping

Broadband service mapping

Infrastructure mapping

Operated by

Department of Justice and Public Administration of the Basque Government

Short description

Interactive online maps presenting broadband service and infrastructure in the

Basque Region.
coverage

Main objectives
Results

Interactive online maps

Access

public

Web address

http://www.itelazpi.net/

8.1.3

Selected broadband mapping initiatives worldwide

8.1.3.1

Norway

At the time of writing, no information on the usage or plan of broadband

mapping systems is available.
Table 8-43: Overview of public broadband mapping initiative in Norway

Country

Norway

Name

Bredbandsdekning 2012

Kind of mapping

Broadband service mapping

Operated by

Ministry of Government, Administration, Reform and Church Affairs

Short description

It is possible to check the coverage of different broadband technologies via the

report

Main objectives

technologies
coverage

Results

statistics/report

Access

public/restricted

Web address

http://www.regjeringen.no/en/dep/fad/documents/Reports-andplans/Reports/2012/bredbandsdekning-2012.html

Page 252 / 280

8.1.3.2

Switzerland

In the beginning of 2013, the Federal Office of Communications (Ofcom) in

Switzerland launched an interactive broadband map. The project is a cooperation
between Ofcom and network operators. The aim of the initiative is to provide an
overview of the current fast data network coverage for the population, telecom
operators and authorities at local, regional and federal level.
The map shows where telecommunications networks and services are available
at the municipality level. This includes information on network operators,
technologies and services available at a given location. Further information is
presented with links to network operators websites.
Furthermore, the mapping uses zooming functionality with a resolution down to
250 x 250 metres. Switzerland is the third country after Germany and Sweden
using this grid cell structure to display and gather data.
Operators provide coverage data for their connections (copper, cable networks,
CATV, fibre) for each building. Ofcom collects the data regularly further
updates with data from additional network operators are planned in the course of
the year.
Table 8-44: Overview of public broadband mapping initiatives in
Switzerland

Country

Switzerland

Name

Broadband Mapping Switzerland

Location of radio transmitters

Kind of mapping

Broadband service mapping

Broadband infrastructure mapping

Operated by

Federal Ministry of Communication

Confederation Switzerland

Federal Ministry of Communication

Confederation Switzerland

Short description

The aim of the initiative is to provide an

overview of data network coverage.
The operators provide coverage data
for each building.

The application provides information

about the locations of radio towers in
Switzerland.

Main objectives

technologies
coverage
number of providers

Location of:
mobile phone base stations
broadcasting stations

Results

interactive maps

interactive maps

Access

public

public/restricted

Web address

http://broadbandmap.ch

http://map.geo.admin.ch/?topic=funk
sender&lang=en

Page 253 / 280

Table 8-45: Overview of questionnaire results for Switzerland

(broadband map)

Category

Questionnaire response

Country

Switzerland

Organisation

Ofcom CH

Website

www.broadbandmap.ch

Contracting authority

NRA

Organisational outfit

Voluntary Initiative

Kind of mapping

Services

Collected infrastructure data

n/a

Collected service data

Coverage/availability
Speed (bandwidth)
TV-type (SD, HD)
Fixed networks (Fibre, Coax, Copper)
Updates: Semi-annual

Infrastructure data suppliers

Number of data suppliers: n/a

Obligation: n/a
Data suppliers: n/a

Service data suppliers

Number of data suppliers: 118

Obligation: No, all provide data voluntarily
Data suppliers:
ISPs
Telecoms
Utilities

Access to infrastructure data

n/a

Access to service data

Public

Infrastructure mapping costs

n/a

Service mapping costs

80 % fixed costs
20 % operational costs

Employees

1 (full-time equivalent)

Relevance of INSPIRE

No. The INSPIRE Directive is not an issue for our initiative.

Page 254 / 280

Table 8-46: Overview of questionnaire results for Switzerland (radio

base stations)

Category

Questionnaire response

Country

Switzerland

Organisation

Ofcom CH

Website

http://map.funksender.admin.ch/bakom.php?lang=en

Contracting authority

NRA

Organisational outfit

Mandatory initiative

Kind of mapping

Infrastructure and technology

Collected infrastructure data

Site of radio base stations; site of broadcast antenna stations

Collected service data

Mobile generation (4G, 3G, GSM), Radio/TV

Infrastructure data suppliers

Number of data suppliers: n/a

Obligation: n/a
Data suppliers: n/a

Service data suppliers

Number of data suppliers: n/a

Obligation: n/a
Data suppliers:
Mobile operators, Broadcast operators

Access to infrastructure data

Public/restricted

Access to service data

Public

Infrastructure mapping costs

n/a

Service mapping costs

n/a

Employees

n/a

Relevance of INSPIRE

n/a

8.1.3.3

National Broadband Map of the United States

The National Broadband Map99 initiative in the USA began as a result of the
American Recovery and Reinvestment Act, which was passed in February 2009.
Within two years the initiative collected broadband availability data for the nation
and published it in an interactive and searchable map. Two federal groups
created a partnership to execute the National Broadband Map: NTIA and the
Federal Communications Commission (FCC).
The programme was authorised to spend up to $350m, but only a portion was
used to collect the broadband data and publish the map.
Data is collected by census block. A census block is the smallest unit of
99

http://www.broadbandmap.gov/.
Page 255 / 280

geography for which population or other data is available in the United States,
and on average it represents about 28 people. There are approximately 11
million census blocks in the US.

(Public) broadband availability data, for each census block or road

segment, covers every unique combination of:

census block;

provider name;

type of technology;

maximum advertised speed;

typical speed (optional).

(Public)

broadband

subscription

data,

for

each

Community

Anchor

Institution (e.g. schools, libraries, hospitals, public safety, etc.) includes:

name of organisation;

location;

type of technology to which they subscribe;

maximum advertised speed of service.

(Non-public

and

only

partially

complete)

middle

and

last

mile

interconnection points include:

o

antenna height;

spectrum;

capacity;

type of technology.

Most broadband operators were willing to participate; however, many were not
interested in providing data at the level of granularity the initiative specified. The
federal government undertook significant negotiation to get the buy-in of
providers to provide data at the census block/road segment levels. Many
providers had never evaluated their coverage at this level of granularity.
Data is used by many different groups, including all levels of government
(federal, state, local and tribal). The data, for example, is used to determine
funding opportunities available through the FCC Connect America Fund. A
number of private firms use the data to conduct analysis. The government and
researchers use the data to find correlations between broadband availability and
other factors, such as rural/urban location, job type and real estate.
Moreover, FCC recently extended its efforts by releasing a dedicated speed test
tool for Android-based mobile devices. The mobile app, called FCC Speed Test, is
intended to collect speed measurements from mobile users. These collected
Page 256 / 280

measurements will form the database for an interactive mapping exercise

showing actual performance of different operators for a given location. As a
secondary information outlet, FCC envisages infographics.
Figure 8-1: Screenshot of US National Broadband Map

8.1.3.4

National

Broadband

Network

(NBN)

roll-out

map

for

Australia
This map100 initiated by NBN Co is accessible for all user groups and provides
information on the roll-out of broadband networks in Australia. The NBN is a
national wholesale-only, open-access data network in Australia. NBN Co is a
government-owned corporation, which was established to design, build and
operate the NBN. It is planned to build fibre to the premises (FTTP) networks and
the roll-out will reach approximately 93 % of premises in Australia by June 2021.
The network will gradually replace the copper network currently used for most
telephony and data services.
As the broadband deployment is done via a state-owned company, centralised
information about the investment plans is available and there are no issues in
terms of critical company data. This facilitates the publication of detailed
broadband investment mapping. The tool provides information about the roll-out
of broadband internet for the next three years and the different technologies and
speeds. The broadband mapping fits into the category of broadband investment
mapping. The mapping shows areas with:

100

construction works planned within the next three years;

http://nbnco.com.au/rollout/rollout-map.html.
Page 257 / 280

construction works planned within the next year;

construction commenced;

service available.

The information is split into fibre and fixed wireless access technologies. For
realised and commenced construction works, the areas are shown in detailed
layers at the street level. By contrast, planned investments are shown in a
gradual transparent layer.
Figure 8-2: Screenshot of broadband mapping in Australia (investment
mapping)

8.1.3.5

Broadband mapping in New Zealand

Broadband mapping in New Zealand is done by the Ministry of Economic

Development. In New Zealand network suppliers voluntarily provide the State
Services Commission with their network coverage. The data is generally provided
in a GIS file format and is uploaded to the National Broadband Map. The use of
standard file formats means there is no need to remap or re-estimate network
coverage. The National Broadband Map has recently been upgraded and is
hosted by the geographic data company, Koordinates.com.
The initiative provides detailed georeferenced information on

broadband coverage both wireless and fixed;

rural broadband coverage;

fibre networks.
Page 258 / 280

Figure 8-3: Screenshot of broadband mapping in New Zealand

8.1.3.6

Broadband internet coverage in Canada

Industry Canada, as part of the Broadband Canada Program, undertook a

mapping exercise101 with the objective of analysing unserved or underserved
areas.
The National Broadband Maps use publicly available data, input from provincial
and territorial partners, other federal departments and agencies, and Canadian
ISPs.
In 2009, the maps were posted online and individual Canadians and ISPs were
invited to provide feedback. Over 2,100 Canadians and more than 80 ISPs across
the country responded to the request for feedback regarding broadband
coverage and availability.
Canada is combining service mapping with demand mapping to further check and
validate the broadband data. The information is presented on static maps as
PDFs as well as on an interactive map.

8.1.4

101

Summary of contacted authorities and mapping initiatives

http://www.ic.gc.ca/eic/site/720.nsf/eng/h_50010.html.
Page 259 / 280

Table 8-47: Contacted Member State departments (telecommunications)

Country name

Organisation

Title

First name

Austria
Belgium
Bulgaria
Cyprus
Czech Republic
Denmark
Estonia
Finland
France
Germany
Germany
Greece
Hungary
Ireland
Italy
Latvia
Lithuania
Luxembourg
Malta
Netherlands
Poland
Portugal

NRA/Ministry/EURepresentation
NRA
NRA
MIN
MIN
MIN
NRA
MIN
MIN
MIN
MIN
NRA
MIN
MIN
MIN
MIN
NRA
MIN
MIN
NRA
MIN
NRA
NRA

RTR
BIPT
Ministry of Transport, Information Technology and Communication
Ministry of Communications and Works
Telecommunications Office
Danish Business Authority
Ministry of Economic Affairs and Communications
Ministry of Transport and Communications
Ministre de lEconomie, de lIndustrie et de lEmploi
Federal Ministry of Economy and Technology
Federal Network Agency (Bundesnetzagentur)
Ministry of Infrastructure, Transport and Networks
Ministry of National Development, Hungary
Department of Communications, Energy and Natural Resources
Ministero delle Sviluppo Economico Comunicazioni
Sabiedrisko pakalpojumu regulanas komisija
Ministry of Transport and Communications
Service des Mdias et des Communications, Ministre dEtat
Malta Communications Authority (MCA)
Ministry of Economic Affairs, Agriculture and Innovation
UKE
ANACOM

Mrs
Mrs
Mr
Mr
Mrs
Mr
Mr
Mr
Mrs

Romania
Slovakia
Slovenia

MIN
MIN
MIN

Spain
Sweden

MIN
MIN

Ministry for Information Society

Ministry of Transport, Construction and Regional Development
Directorate for Information Society, Ministry of Education, Science and
Sport
Ministerio de Industria, Energa y Turismo
Regeringskansliet

Aleksandra
Ptaszynska
Hilde
Verdickt
Krasimir
Simonski
Kyriaki
Pantziarou
Nada
Pclov
Morten Eeg Ejrns Nielsen
Mart
Laas
Antti
Kohtala
Angelique
Rocher-Bedjoudjou
Frank
Krger
Steffen
Schmitt
Theofanis
Anagnostopoulos
Mate
Mester
Aidan
Ryan
Sabrina
Cioffi
Edmunds
Salna
Saulius
Starolis
Pierre
Goerens
Roderick
Gusman
Marieke
Pondman
Ostanek
Marek
Jos Manuel
da Costa de Sousa
Barros
Corneliu
Manescu
Pavol
Gerhat
Zvonimir
Unijat

Page 260 / 280

Mr
Dr
Mr
Mrs
Mr
Mr
Mr
Ms

Mr

ngel
Christian

Family name

Len Alcalde
Berger

Country name
UK
UK

NRA/Ministry/EURepresentation
NRA
MIN

Organisation

Title

Ofcom
Foreign & Commonwealth Office

Page 261 / 280

First name

Family name

Camilla
Stephen

Bustani
Clark-Foulquier

Table 8-48: Contacted broadband mapping initiatives (online questionnaire sent)

Country

Name

Operated by

Kind of mapping

Email

Austria

senderkataster.at

bmv it

Mobile phone base station

and radio tower mapping
Broadband mapping

[email protected]

Belgium
Cyprus
Czech
Republic
Denmark
Denmark

Denmark radio tower

database
Broadband mapping
Denmark

Denmark
Estonia
Finland
Finland
Germany
Germany
Greece
Hungary
Ireland
Italy
Latvia
Lithuania

FICORA

Belgium Institute for Postal Services and

Telecommunication
Office of the Commissioner for Electronic
Communications and Postal Regulation
CZECH TELECOMMUNICATION OFFICE
Department of Communications and Postal
Services Regulation
Erhvervsstyelsen

[email protected]

GIS maps and broadband

[email protected]
mapping
Broadband and infrastructure [email protected]
mapping
Radio tower mapping

[email protected]

The Danish Business Authority

Broadband mapping

[email protected]

Estonian Ministry of Economic Affairs and

Communications
Ministry of Transport and Communications

Broadband and infrastructure

mapping
Broadband and infrastructure
mapping
Infrastructure mapping

[email protected]
[email protected]
[email protected]

Broadband service mapping

Broadband mapping
Infrastructure mapping
Broadband mapping

[email protected]
[email protected]
[email protected]
[email protected]

Finnish Communications Regulatory Authority

(FICORA )
Agence Nationale des Frequences
Breitbandatlas
Bundesnetzagentur - Federal Network Agency
Infrastrukturatlas
EETT
EETT Broadband mapping Ministry of National Development
Greece
Department of Communications, Energy and
Natural Resources
National Broadband
Scheme

Broadband and infrastructure

mapping
Broadband and infrastructure
mapping
Broadband and infrastructure
mapping
Public Company Plaiajuostis internetas
Broadband and infrastructure
mapping
The Communications Regulatory Authority of the Public broadband

Page 262 / 280

[email protected]

[email protected]
[email protected]
[email protected]
[email protected]
[email protected]
[email protected]
[email protected]

Country
Lithuania
Lithuania

Name

Operated by
Republic of Lithuania

Information Society Development Committee

under the Ministry of Transport and
Communications
Luxembourg Mapping of NGA coverage Service des medias et des communications
and penetration
Luxembourg Mapping of NGA coverage Ministry of Economy
of economic activity zones
Malta
Malta Communications Authority

Kind of mapping
infrastructure
Broadband infrastructure
Research (study) about
broadband infrastructure
development in Lithuania
Broadband mapping

Email

Broadband mapping

[email protected]

[email protected]
[email protected]

[email protected]

Broadband and infrastructure [email protected]

mapping
Netherlands
ACM (Dutch NRA), in close cooperation with the Broadband mapping
[email protected]
Ministry of Economic Affairs and TNO
Norway
Study on broadband
Ministry of Government Administration, Reform Fixed and wireless
[email protected]
coverage 2012
and Church Affairs
Poland
Polska Szerokopasmowa - Office of Electronic Communications Polska
Infrastructure mapping
[email protected]
infrastructure mapping
Szerokopasmowa
Poland
Infrastructure mapping
SIPS
Infrastructure mapping
[email protected]
Poland
Poland
Broadband mapping
Urzad Komunikacji Elektroniczenj
Broadband mapping
[email protected]
Poland
Portugal
Broadband and infrastructure [email protected]
mapping
Slovakia
Research Institute of Post and
Broadband coverage mapping [email protected]
Telecommunications
Spain
Secretary of State for Telecommunications and Broadband coverage mapping [email protected]
Information Society (Ministry of Industry, Energy
and Tourism)
Spain
CMT, the Independent NRA
Broadband mapping related to [email protected]
take-up
Sweden
Bredbandskartan
PTS
Infrastructure and broadband [email protected]
Swedish Post and Telecom Authority
mapping
Switzerland Breitbandatlas Schweiz
Bundesamt fr Kommunikation
Broadband mapping
[email protected]
Schweizer Eidgenossenschaft
United
UK Fixed
Ofcom
Broadband mapping
[email protected]

Page 263 / 280

Country
Kingdom
United
Kingdom

Name
Broadband Map 2011
UK broadband mapping

Operated by

Kind of mapping

Samknows.com

Broadband mapping

Table 8-49: Collected information on bandwidth speeds

3.1.2. Please indicate the bandwidth differentiations you monitor / record in your data.
[ 384
[ 1
[ 2
[ 6
[ 16
kbit/s]
Mbit/s]
Mbit/s]
Mbit/s]
Mbit/s]
Belgium
Croatia

Cyprus

x
x

x
x

Germany
Hungary
Italy
Lithuania
Slovak
Republic

x
x

[ 30
Mbit/s]

[ 50
Mbit/s]

x
x

x
x

x
x

x
x
x

x
x
x

[ 100
Mbit/s]

Czech Republic
Denmark
Finland
Finland
France

x
x

[ 25
Mbit/s]

Email
[email protected]
[email protected]

x
x

x
x
x

x
x

x
x

x
x

Spain
Sweden

x
x

Switzerland

Page 264 / 280

x
x

x
x

Table 8-50: Matrix Mapping Initiatives Profile

Page 265 / 280

Table 8-51: What technologies are used to collect the data

3.1.3. Please specify the technologies used to collect the data
Belgium Croatia Cyprus Czech Republic Denmark Finland France Germany Hungary Italy Slovak Republic Spain Sweden Switzerland UK
DSL / VDSL

FTTH / B

Cable TV
UMTS /
HSDPA
LTE
WLAN /
WiMAX
Satellite

Page 266 / 280

Table 8-52: Costs for broadband mapping initiatives (based on Review)

Premise: First 3 years since foundation; Software + Hardware + Human resources
Country
Cyprus

Costs Infrastructure
Mapping

Costs Service
Mapping
20.000

Denmark
Estonia

20.000

20.000

France
Germany (NRA)

1.500.000

Germany
Hungary*

0 - 30.000

70.000 - 100.000

Italy (Ministry)

84.000

128.000

Italy (Infratel)

80.000

80.000

Lithuania**

44.000

Poland

Slovak Republic

300.000

Sweden

100.000

U.K.
* depending on data supplier

15.000
-

** human resources for

programming of data only

Page 267 / 280

Table 8-53: Broadband mapping initiatives in the EU

Country

Name

Austria

Short description

Main
objectives

senderkataster broadband
bmv it
.at
infrastructure (Federal Ministry of
mapping
Transport,
Innovation and
Technology)
Economic
broadband
Belgian Institute for
situation of the service
Postal services and
telecoms
mapping
Telecommunication
sector 2012
s
broadband
infrastructure
mapping

With the
senderkartaster.at you
can find the locations of
the mobile and radio
stations
BIPT estimated the
availability of broadband
per distinguished bit rate
via different
complementary
technologies on the
Belgian territory and in
homes

Location of:
interactive maps
mobile
phone
base stations
radio towers
coverage
report/statistics
speeds
technologies

infrastructure
of local
municipalities

Denmark

Broadband
Mapping 2012

broadband
service
mapping

speed
report/statistics
coverage
technologies

Denmark

Mastedatabas
en

broadband
Erhvervsstyrelsen
infrastructure Danish Business
mapping
Authority

In a report the DBA

presents results about
the broadband coverage
in Denmark
The application provides
information about the
locations of the radio
towers in Denmark

public/re http://dba.erhvervss
stricted tyrelsen.dk/file/3481
60/broadband_map
ping_2012.pdf
Location of:
interactive maps public/re http://mastedatabas
radio towers
stricted en.dk/VisKort/Page
Map.aspx

Estonia

elakaart

Mapping of Estonias
existing broadband
backbone

backbone
interactive maps public/re http://ela12.elasa.ee
infrastructure
stricted /elakaart/

Finland

Availability of
high-speed
broadband

broadband
ELA (Estonia
infrastructure Broadband
mapping
Development
Foundation)
broadband
FICORA
service
mapping

FICORA presents the

availability of high-speed
broadband lines by
province as of the
beginning of 2013

speed
statistics/report
coverage
technologies

Belgium

Kind of
mapping

Operated by

DBA

Page 268 / 280

Results

Access

Web address

public/re http://www.senderk
stricted ataster.at/

public/re http://www.bipt.be/S
stricted howDoc.aspx?objec
tID=3967&lang=en

public/re http://www.ficora.fi/a
stricted ttachments/englanti
av/6HdjnUV00/Toim
ialakatsaus_2012_E
N.pdf

Country

Name

France

Les Cartes De broadband

ARCEP
Couverture
infrastructure (Autorit de
mapping
rgulation des
communications
lectroniques
et des postes)
Carto Radio
broadband
ARCEP
France
infrastructure (Autorit de
mapping
rgulation des
communications
lectroniques et
des postes)

Static map shows

2G and 3G
information about 2G and
coverage
3G coverage in France
provider

ARCEP locates the

telecommunication base
stations for all French
member states

Location of:
interactive maps public
mobile
phone
base stations
radio towers
TV stations
other
stations

http://www.cartoradi
o.fr/cartoradio/web/

Germany

Breitbandatlas broadband
service
mapping

The Breitbandatlas
should monitor the
broadband coverage in
Germany. The system is
raster based

coverage
technologies
speed
provider

http://www.zukunftbreitband.de/DE/Br
eitbandatlas/breitba
nd-vor-ort.html

Germany

EMF Database broadband

BNetzA (Federal
infrastructure Network Agency)
mapping

The EMF Database

gathers information about
the location of radio
towers and EMF
measurement points in
Germany

Location of:
interactive maps public/re http://www.bundesn
radio towers
stricted etzagentur.de/DE/S
EMF
achgebiete/Telekom
munikation/Unterne
measurement
hmen_Institutionen/
points
Breitband/Infrastrukt
uratlas/infrastruktur
atlas-node.html

Germany

Infrastrukturatla broadband
BNetzA (Federal
s
infrastructure Network Agency)
mapping

The German
Infrastructure Atlas
gathers relevant
telecommunication
infrastructure

interactive maps restricte

telecommunica
d
tion-related
infrastructure

France

Kind of
mapping

Operated by

BMWi (Federal
Ministry of
Economics and
Technology)

Short description

Main
objectives

Page 269 / 280

Results

Access

interactive
maps

public/re http://www.arcep.fr/i
stricted ndex.php?id=11557
&L=0

interactive
maps;
static maps;
statistics
report

public

Web address

http://www.bundesn
etzagentur.de/DE/S
achgebiete/Telekom
munikation/Unterne
hmen_Institutionen/
Breitband/Infrastrukt

Country

Name

Kind of
mapping

Operated by

Short description

Main
objectives

Results

Access

Web address
uratlas/infrastruktur
atlas-node.html

Greece

EETT

broadband
service
mapping

Hellenic
Telecommunication
s & Post
Commission

An interactive map shows

the broadband availability
in Greece. Also the
current infrastructure and
the provider are
monitored

infrastructure
availability
provider

Hungary

National
Broadband
Strategy

broadband
service
mapping

Informatikai es
Hirkzlesi
Miniszterium
(Federal Ministry
for Information)

The Federal Ministry for

Information is collecting
data on technologies and
coverage for broadband
mapping

technologies statistics/report
coverage

public/re http://www.vus.sk/br
stricted oadband/nbbs/hu_n
bbs.pdf

Ireland

National
Broadband
Scheme

broadband
service
mapping

Communications
(Development)
Division
Department of
Communications,
Energy and Natural
Resources
Ireland

The mapping exercise

focuses on the service
areas served and not on
the access infrastructure.
All broadband
technologies are
considered and the
technologies are broken
down into fixed and
mobile categories

coverage
speed
provider

statistics
static maps

public/re http://www.dcenr.go
stricted v.ie/Communication
s/Communications+
Development/Natio
nal+Broadband+Sc
heme/National+Bro
adband+Scheme.ht
m

broadband
ACM (Dutch NRA),
infrastructure in close
mapping
cooperation with
the Ministry of
Economic Affairs
and TNO

The aim of the initiative is

to speed up state aid
issues by identifying
white areas, and to
monitor the roll-out of
NGA in the Netherlands
in light of the broadband
goals from the DAE

ductworks

static
maps/report/
statistics

restricte
d

Netherland NBL
s

Page 270 / 280

interactive
maps

public

http://mapsrv1.terra.
gr/eettutilities/mapn
ew.aspx

Country

Name

Kind of
mapping

Operated by

Short description

Main
objectives

Norway

Bredbandsdekning 2012

broadband
service
mapping

Ministry of
Government,
Administration,
Reform and Church
Affairs

The report enables you to technologies statistics/report

check the coverage of
coverage
different broadband
technologies

Poland

Broadband
Mapping
Poland

broadband
Urzad Komunikacji
infrastructure Elektroniczenj
mapping

The broadband mapping

initiative collects the
exact location of nodes
and further information

infrastructure
nodes
coverage

Results

interactive
maps/report

broadband
service
mapping

Spain

Cobertura de
Banda Ancha
en Espaa

broadband
service
mapping

SETSI
Secretary of State
for
Telecommunication
s and Information
Society

At this stage, the only

deliverables published
are a report with
aggregated information,
and the identification of
areas excluded in an
NGA aid scheme (nonwhite areas)

technologies statistics/report
coverage

Spain

Informe de
broadband
penetracin de service
servicios
mapping
finales y de
infraestructura
s
de
Telecomunicacin

CMT
(Comision del
Mercado de las
Telecomunicaciones
)

The report gives

information about
broadband penetration in
every province

coverage
take-up

Page 271 / 280

statistics/report

Access

Web address

public/re http://www.regjering
stricted en.no/en/dep/fad/do
cuments/Reportsandplans/Reports/2012/
bredbandsdekning2012.html
public/re http://www.uke.gov.
stricted pl/mapa/?map_tab=
1
http://en.uke.gov.pl/
report-on-thecoverage-of-polandwithtelecommunications
-infrastructure-751
public/re http://www.minetur.
stricted gob.es/TELECOMU
NICACIONES/ESES/NOVEDADES/D
ocuments/Cobertur
a_de_Banda_Anch
a_Espana_primer_s
emestre_2012.pdf
public/re http://www.cmt.es/c/
stricted document_library/g
et_file?uuid=064ab
8a7-ec21-4229aafc5591b8ba09cb&gro
upId=10138

Country

Name

Kind of
mapping

Operated by

Short description

Main
objectives

Sweden

Bredbandskartan

broadband
service
mapping

PTS
Swedish Post and
Telecom Authority

With the help of a grid the

broadband coverage is
mapped. The coverage is
mapped on an address
basis

technologies interactive maps public/re http://bredbandskart

coverage
stricted an.pts.se/
speed
demand

Federal Ministry of
Communication
Confederation
Switzerland

The aim of the initiative is technologies interactive maps public/re

to provide an overview of coverage
stricted
the data network
number of
coverage. The operators
providers
provided the coverage
data for each building
The application provides Location of:
interactive maps public/re
information about the
mobile
stricted
locations of the radio
phone
towers in Switzerland
base stations
radio towers

broadband
demand
mapping
Switzerlan
d

Broadband
Mapping
Switzerland

broadband
service
mapping

Switzerlan
d

Sendeanlagen broadband
Federal Ministry of
Schweiz
infrastructure Communication
mapping
Confederation
Switzerland

United
Kingdom

UK Fixed
Broadband
Map 2012

broadband
service
mapping

UK Broadband broadband
Availability
demand
mapping

Access

Web address

http://map.geo.admi
n.ch/?topic=nga

http://map.geo.admi
n.ch/?topic=funksen
der&lang=de

Ofcom
(Federal Office of
Communication)

The map shows

information by
administrative authority
and also accurate
information on broadband
take-up speeds

coverage
speed
provider
take-up
quality of
service

SamKnows

The system measures

the broadband
performance in spot tests
across the UK and
Europe

provider
interactive maps public/re http://www.samkno
speed
stricted ws.com/broadband/
technologies
exchange_mapping

broadband
infrastructure
mapping
United
Kingdom

Results

Page 272 / 280

interactive maps public/re http://maps.ofcom.o

stricted rg.uk/broadband/

8.2 Effort related to broadband mapping

Relevant options

Sub-action

Action

Phase

Table 8-54: Excel file for effort estimation

Description of action

Market Scenario 1

Market Scenario 2

Market Scenario 3

Estimated person
weeks

Estimated person weeks

Estimated person weeks

2. Setup/dev. 3.
1st
collection

2. Testing
3.
Updates

2. Setup/dev. 3.
1st
collection

2. Testing
3. Updates

2. Setup/dev. 3.
1st
collection

2. Testing
3.
Updates

Project management and communication (meetings,

workshops, etc.) including travel costs, etc.

0
1

Project management and communication

Fix

Project preparation
1

Becoming acquainted with the topic (study, existing

initiatives...)

Fix

Definition of responsibilities

Fix

Definitions of aims of mapping

Fix

Estimation of available budget and timeframe

Fix

Development
1

Concept development
A

Internal deliberations, contacting existing initiatives

Fix

Consultation of major operators

Fix

1.5

0.5

0.5

Preparation and execution of tenders

A

External consultancy

B&C

Development of software tools

Selection

Page 273 / 280

Development. implementation and testing of tools and

methods

3
A

Organisational requirements on data collection

Set up documentation process for contacts with data sources

Fix

1.5

0.5

0.5

Set up information material on the mapping

Selection

A&B

Fix

Fix

Fix

0.2

0.2

0.2

Researching and processing of existing address databases

A&B

0.2

0.2

0.2

Researching and processing of existing templates or development

of new ones for approximate or aggregated data collection

C&D

0.2

0.2

0.2

Obligation
Framework and legal basis for obligation

0.2

Choice of information
Set up data models and consolidation processes

0.2

Data sources
Identification of data sources and market players

Confidentiality
Setting up of contracts on data usage

0.2

Spatial resolution

Data supply process

Set up upload server (FTP. SFTP or SCP)

B1

0.5

0.2

0.5

0.2

0.5

0.2

Set up/develop upload website (https)

B2

0.2

0.2

0.2

Set up/develop website for alphanumeric data entry

C1

0.2

0.2

0.2

Set up/develop website for spatial data entry (WebGIS)

C2

12

0.2

12

0.2

12

0.2

Set up/develop backup process (web application)

B&C

0.2

0.2

0.2

Concept and software for generation and processing of web

services

0.4

0.2

0.2

Page 274 / 280

Data conversion
Set up process for format conversion

Selection

0.2

0.2

0.2

Set up process for address geocoding

Selection

0.2

0.2

0.2

Research commercial address geocoding services

Selection

0.5

Set up processes for spatial conversions

Selection

0.2

0.2

0.2

Set up processes for determination of DSL speeds concentric

Selection

0.2

0.2

0.2

Set up processes for determination of DSL speeds routing

Selection

0.2

0.2

0.2

Researching and processing background maps

Selection

Researching and processing statistical figures per household

Selection

0.2

0.2

0.2

Researching and processing vector streets

Selection

0.2

0.2

0.2

Researching and processing aerial pictures

Selection

0.5

0.5

0.5

Set up methods for plausibility and manual checks

A&B

0.5

0.5

0.5

Set up/develop feedback function website

0.2

0.2

0.2

Set up/develop technical measures for restricted access (web

application)

0.2

0.2

0.2

Set up a process for access granting

0.5

Set up structure of a report

0.2

0.2

0.2

Set up template for data provision as tables or as geodata

B1

0.5

0.2

0.5

0.2

0.5

0.2

Set up template/process for data provision as web services

B2

0.2

0.2

0.2

Set up/develop basic website

0.2

0.2

0.2

Set up/develop advanced website

12

0.2

10

0.2

10

0.2

Set up/develop mobile app

0.2

0.2

0.2

0.5

0.5

Additional spatial data

1

Quality Checks

Access to data

0.5

0.5

Publication format

Page 275 / 280

Set up/develop backup process

M

0.2

0.2

0.2

Set up a database for structured data storage

Fix

0.2

0.2

0.2

Set up/develop backup process

Fix

0.2

0.2

0.2

Mailing requesting data supply

Fix

0.6

0.2

0.6

0.2

0.6

0.2

Telephone/email support on demand

Fix

1.5

0.4

0.2

0.8

0.4

Data storage

Operation
1

Data collection, processing, publication

A

Organisational requirements on data collection

Obligation
Possible litigation efforts

Possible litigation efforts

Confidentiality
Signing and administration of contracts on data usage

Fix

0.5

0.5

Data sources

Choice of information

Spatial resolution

Data supply process

Effort for the data supplier (supply without web services)

A, B & C

4.01

1.31

0.42

0.24

0.72

0.36

Effort for the data supplier (supply of web services)

334.00

1.31

35.00

0.24

60.00

0.36

Generation of access data for each user/user management

B&C

0.4

0.1

0.4

0.1

0.4

0.1

Data transfer to central database

Fix

0.4

0.1

0.1

0.1

0.1

0.1

136.60

9.80

10.00

1.50

28.50

3.00

Data conversion
Exact points and lines

Page 276 / 280

Exact points

51.20

4.98

3.40

0.80

10.50

1.40

Approximation

65.20

4.98

4.40

0.80

13.50

1.40

Aggregation

14.28

2.48

1.10

0.40

2.90

0.70

Determination of DSL speeds concentric

Selection

5.02

1.72

0.15

0.07

1.08

0.37

Determination of DSL speeds routing

Selection

5.02

1.72

0.15

0.07

1.08

0.37

Plausibility checks

2.92

0.74

0.20

0.08

0.78

0.28

Manual checks

2.92

0.74

0.20

0.08

0.78

0.28

Analysis feedback function

0.5

0.2

0.1

0.4

0.2

12.5

6.25

1.75

0.875

3.75

1.875

Generation of a report

Data provision as tables or as geodata

B1

0.4

0.2

0.4

0.2

0.4

0.2

Data provision as web services

B2

0.5

0.5

0.5

Publishing results on a basic website

Publishing results on an advanced website

Manual backup requirements

Selection

0.5

0.5

0.5

System maintenance low

Selection

2.4

2.4

2.4

2.4

2.4

2.4

System maintenance high

Selection

7.2

7.2

7.2

7.2

7.2

7.2

Additional spatial data

Quality checks

Access to data

Management of access to data

L

Publication format

Data storage

Page 277 / 280

No of data suppliers/company size fixed

Small
First time

Medium
Update

No of data suppliers/company size wireless

Large

Updat
e
1.0

First
time
10.0

Small

Update

Medium

Large

Exact points and lines

1.0

0.2

First
time
5.0

1.0

First
time
0.5

Updat
e
0.1

First
time
1.0

Updat
e
0.2

First
time
2.0

0.5

Exact points

0.5

0.1

2.0

0.5

4.0

0.5

0.1

0.1

0.1

0.1

0.5

0.1

Approximation

0.5

0.1

3.0

0.5

5.0

0.5

0.1

0.1

0.1

0.1

0.5

0.1

Aggregation

0.1

0.1

0.5

0.1

1.0

0.2

0.1

0.1

0.1

0.1

0.1

0.1

Estimation DSL speeds

concentric
Estimation DSL speeds
routing
Plausibility checks

0.06

0.06

0.15

0.06

1.00

0.50

0.0

0.0

0.0

0.0

0.0

0.0

0.06

0.06

0.15

0.06

1.00

0.50

0.0

0.0

0.0

0.0

0.0

0.0

0.02

0.02

0.04

0.02

0.25

0.10

0.02

0.02

0.04

0.02

0.25

0.10

Manual checks

0.02

0.02

0.04

0.02

0.25

0.10

0.02

0.02

0.04

0.02

0.25

0.10

Page 278 / 280

Update

European Commission
Broadband and infrastructure mapping study
Luxembourg, Publications Office of the European Union
2014 number of pages: 280

ISBN 978-92-79-44529-3
DOI: 10.2759/488313

Page 279 / 280

KK-05-14-141-EN-N

DOI: 10.2759/488313

ISBN 978-92-79-44529-3