Socio-technical considerations for Spectrum Access System (SAS) design

Spectrum Access Systems (SAS) are emerging as a principal mechanism for managing the sharing of radio spectrum. The design of the SAS depends on the specification of spectrum property rights and the governance system by which those rights are enforced. Current perspectives on SAS design have been too limited, focusing narrowly on the technical components without adequate consideration of socio-technical factors that will impact the likely success of any SAS design. In this paper, we apply the social science literature on the management of common pool resources (CPR) to the design challenge for the SAS. Heretofore, too much of the discussion has focused on an overly simplistic characterization of the spectrum rights design space as a dichotomous choice between licensed v. unlicensed, markets v. government, and exclusive v. open. The CPR framework forces consideration of a wider class of design options, positioning the specifications of spectrum property rights more appropriately along a multi-dimensional continuum of rights bundles. The CPR framework highlights the importance of considering formal and informal, multi-layered institutional and market-based interactions among SAS stakeholders when designing a resource management system. We will explain how this leads one to view the SAS as a polycentric governance system (using the terminology in the CPR literature). By examining the economic and social context of spectrum sharing, we assert that these emerging systems must be sufficiently flexible to adapt to various forms of resource governance, which refers to the process by which rights are distributed among stakeholders, how those rights are enforced, and how the resource is managed. We illustrate how the insights from the CPR literature might be implemented in a prototype SAS architecture.