5G regulation and law in Singapore

5G is being rolled out in phases, with deployment overseen by Singapore’s Infocomm Media Development Authority (IMDA).

5G SASA Networks: All telcos had achieved at least 50% nationwide outdoor coverage as of the start of 2022, ahead of their end-2022 target.  In July 2022, Singtel Mobile Singapore Pte Ltd (Singtel) announced that it had achieved more than 95% SASA 5G coverage, three years ahead of the regulatory target of end-2025. 

Localised mmWave deployments (5G Hotspots): All existing mobile network operators (MNOs) are allocated mmWave spectrum to deploy localised high-capacity 5G hotspots. With this, M1, StarHub, Singtel, TPG Telecom and mobile virtual network operators are able to offer retail 5G services to end users.

5G Non Standalone (NSA) Networks: All MNOs with provisional rights to offer SASA Networks are also offering NSA networks to their customers.

Lots awarded as of January 2024 are:

• SingTel: (i) mmWave Spectrum Right (2020), (ii) 3.5 GHz Spectrum Right (2021), (iii) 2.1 GHz Spectrum Right (2022) 
• StarHub -M1 JVCo: (i) 3.5 GHz Spectrum Right (2021), (ii) 2.1 GHz Spectrum Right (2022)
• StarHub: mmWave Spectrum Right (2020)
• M1: mmWave Spectrum Right (2020)
• TPG: (i) mmWave Spectrum Right (2020), (ii) 2.1 GHz Spectrum Right (2022)

The (i) mmWave and (ii) 3.5 GHz Spectrum Rights were auctioned through the 5G Call for Proposal (CFP).

CFP applicants were asked to submit detailed proposals based on the following criteria: network design and resilience (40%), network rollout and performance (35%), price offered for one lot of 3.5 GHz band (15%) and financial capability (10%). The criteria weighting reflects their relative importance according to IMDA’s 5G policy outcomes.

For the full networks, operators must exceed a base price of SGD 55m (USD 41m) [plus an annual usage fee of SGD 154,000 (USD115,00)])for 100 MHz in the 3.5 GHz spectrum. They will need their SASA networks to reach at least 50% coverage by 2023. The two selected MNOs will also be required to deploy the 3.5 GHz spectrum band on an SASA basis (not using existing 4G infrastructure) to harness 5G capabilities such as network slicing, ultra-reliable low latency communications, and massive machine type communications.

The mmWave networks will attract an annual fee of SGD 1.23m  (USD 0.916m)for 800 MHz in the 26 GHz and 28 GHz bands. The MNOs will be able to deploy the mmWave spectrum on an NSASANSA basis, by leveraging their existing 4G infrastructure to deliver localised 5G services focusing mainly on higher broadband speeds.

IMDA will also require deployment of 5G SASA networks over the 3.5 GHz band from the outset. MNOs that wish to deploy NSA networks in the 3.5 GHz band, over and above their SA networks, must seek IMDA’s prior approval. MNOs must ensure that their NSAA deployments will not compromise IMDA’s policy outcome of achieving two 5G SASA networks and capabilities within the stipulated timeframes. As the roadmap for the mmWave SA equipment ecosystem is still in its early stages, IMDA will allow MNOs the flexibility to choose SA or NSA deployment for the mmWave band in the interim. MNOs that choose to deploy NSA networks must deploy SA networks within 24 months from when the ecosystem is ready.

In relation to 2.1 GHz Spectrum Rights, applicants had by 27 October 2021 to submit a Pre-Auction Submission  that included details on applicants’ proposed 5G system and services to be deployed, business and financial proposal, a disclosure list setting out all persons (including individuals and corporations) to whom confidential information had been disclosed or will or may be disclosed by the applicant.  IMDA would then review the Pre-Auction Submissions and announce the bidders that are pre-qualified to participate in the auction.

Such pre-qualified bidders may then submit an initial offer setting out the number of Spectrum Lots (up to five) that the bidder is submitting for the initial offer, whether it is exercising its First Right of Refusal, and a bank guarantee. 

The conditions of the 3.5 GHz Spectrum Right include:

• A term of 15 years (from 1 January 2021 to 31 December 2035) which may be extended or further renewed for such period as IMDA thinks fit subject to such terms and conditions as may be specified by IMDA in its absolute discretion;
• IMDA approval is needed for any change in the ownership, shareholding and management arrangements of the grantee; 
• The grantee must provide 5G services using all or part of the assigned radio frequency spectrum in accordance with the following based on SA network architecture: (a) in the case of Singtel, 50% outdoor coverage, and in the case of Starhub-M1 JVCo, 75% outdoor coverage, by end of 2022; and (b) 95% outdoor coverage by, in the case of Singtel, end of 2025, and in the case of Starhub-M1 JVCo, end of 2024, 
• Spectrum trading: the grantee shall not assign, transfer, trade, deal with or otherwise dispos of the whole or any part of the rights, privileges, duties and/or obligations under the licence to any person except with prior written approval of IMDA and in accordance with the applicable legislation and guidelines including the conditions of the licence; and
• Spectrum sharing for the purpose of operating a station and/or network may be allowed with the prior written approval of IMDA and subject to such conditions as IMDA may impose and the obtaining of applicable station (spectrum) licence or network (spectrum) licence.

The conditions of the 2.1 GHz Spectrum Right include:

• A term of 15 years (from 1 January 2022 to 31 December 2036), which may be extended or further renewed for such period as IMDA thinks fit subject to such terms and conditions as may be specified by IMDA in its absolute discretion;
• IMDA approval is requireded for any change in the ownership, shareholding and management arrangements of the grantee; 
• The grantee must use all or part of the radio frequency spectrum to augment existing 5G SA networks, by 31 December 2023; 
• Spectrum trading: the grantee shall not assign, transfer, trade, deal in or otherwise dispose of the whole or any part of the rights, privileges, duties and/or obligations under the licence to any person except with prior written approval of IMDA and in accordance with the applicable legislation and guidelines including the conditions of the licence; and
• Spectrum sharing for the purpose of operating a station and/or network may be allowed with the prior written approval of IMDA and subject to such conditions as IMDA may impose and the obtaining of the applicable station (spectrum) licence or network (spectrum) licence.

SingTel and Starhub-M1 JVCo each had to pay the spectrum clearing price of SGD 55,010,000 (USD 41m) for one 100 MHz lot in the 3.5 GHz band.  Singtel also won the assignment bid of SGD 2,100,128 (USD 1.56m) for its preferred 100 MHz lot.

While there was no spectrum premium for the mmWave spectrum, M1, Singtel and StarHub submitted the winning assignment bids of SGD 250,001, SGD 750,128 and SGD 1 respectively for the 400MHz lots. The Spectrum Lot Fee for the 2.1 GHz allocations are as follows: (i) SingTel: SGD 46.5m, (ii) StarHub -M1 JVCo: SGD 46.5m, (iii) TPG: SGD 31m.

Some of the main challenges faced by SingTel in implementing 5G include line-of-sight obstruction, signal attenuation from high-rise buildings, limited space, high-density areas, and rising costs from deploying 5G infrastructure in high-rise buildings. There have not been any decisions regarding non-compliance with 5G obligations as of yet.

In its decision on Policy for 5G Mobile Networks and Services in Singapore released on 17 October 2019, IMDA had noted the possibility of making available other spectrum bands for 5G in the subsequent tranches through 2025. IMDA remains open to making  more 5G spectrum available in subsequent tranches in the near term and will include re-farming and coordinating with neighbouring countries if demand for 5G use increases.

The 700 MHz band is one of the potential bands to support 5G applications requiring wider coverage and ultra-low latency requirements (eg. vehicle-to-vehicle communications). The 4.5 GHz band could also help complement 5G coverage in the 3.5 GHz band, which IMDA will consider for use in subsequent tranches. The 39 GHz band is available for 5G trials, and IMDA will monitor developments before deciding whether to make this available for 5G services.

No 5G-specific rules have been drafted. For the time being, the existing rules will apply to 5G services where applicable.  IMDA intends to impose baseline regulatory requirements to ensure 5G networks are trustworthy and resilient, while providing flexibility in the regulatory framework to enable market growth.  

Based on available public information, there are no network sharing or spectrum sharing agreements in place yet

The general regulations under the Telecommunications (Radio-communication) Regulations on spectrum sharing and spectrum trading apply. Spectrum rights holders must provide 5G wholesale services in accordance with IMDA’s prescribed framework, including the Framework for the Wholesale of Mobile Services. The framework imposes certain requirements onto spectrum right holders, including: 

• To negotiate in good faith and use best efforts to complete negotiations within a reasonable period with requesting parties (RPs);
• Not to impose unreasonable restrictions on (i) the use of the wholesale inputs by RPs, (ii) the RPs’ retail service offerings; and (iii) the RPs retail prices; 
• Not to engage in unreasonable discriminatory traffic management practices in all respects;
• To negotiate in good faith on wholesale prices, and submit to  IMDA intervention if such negotiations continue for at least 90 days. 

According to the Minister for Communications and Information, the government has not excluded any company from being a vendor for the nationwide 5G roll-out.

In practice, SingTel has announced that it will work with Ericsson to build its main 5G infrastructure, while Starhub has said it will work with Nokia on the roll-out of 5G SA Networks. TPG, which won localised mmWave lots, is working with Huawei.

Singapore has signed several Memoranda of Understanding with China to deepen bilateral economic cooperation and has established or is pursuing other strategic partnership arrangements with Chinese companies for 5G-related trials and testbeds. For example, Huawei launched Singapore's first 5G-powered artificial intelligence lab equipped with AI, 5G and cloud technology in November 2019.

The Digital Connectivity Blueprint outlines plans for 6G in Singapore. Singapore is laying the foundation to deploy 6G by 2030 with an initial investment of SGD70m (USD52.12m)for Singapore’s first national Future Communications Research and Development Programme (FCP). This includes the launch of the Future Communications Translation Lab @ Singapore Institute of Technology (FCTLab@SIT) at the end of 2023, a testbed designed to facilitate industry adoption of emerging technologies in future communications tied to commercial applications. Additionally, Singapore will strengthen international collaboration in 6G by forging partnerships with leading research institutions.

Further, in July 2024, Singtel and SK Telecom signed a memorandum of understanding to build communication networks for 6G over the next two years. Singtel and SK Telecom are also putting together a white paper on their advancements in areas such as virtualisation, slicing and network evolution that can help other telcos globally to capitalise on the capabilities of 5G and to prepare for 6G.