REPORT OF THE TASK

FORCE ON MIGRATION
OF TERRESTRIAL
TELEVISION FROM
ANALOGUE TO DIGITAL
BROADCASTING IN
KENYA

July 2007

Table of Contents
1. INTRODUCTION ............................................................................................................. 4
1.1 History of Broadcasting in Kenya................................................................................ 4
1.2 Liberalization of Broadcasting Sector in Kenya.......................................................... 4
1.3. History of the Appropriate Legislation for Broadcasting Spectrum........................... 5
1.4. Overview of Current Broadcasting Policy and Regulatory Framework..................... 5
1.5. The Digital Migration Taskforce ................................................................................ 6
2. TRANSITION TO DIGITAL BROADCASTING............................................................ 7
2.1. Conceptual Issues in Digital Broadcasting ................................................................. 7
2.2. Benefits of Digital Broadcasting................................................................................. 8
2.3. Implications of Digital Broadcasting .......................................................................... 8
2.4 Challenges in Implementing Digital Broadcasting ...................................................... 9
3. DIGITAL BROADCASTING STANDARDS .................................................................. 9
3.1 Digital Terrestrial Television....................................................................................... 9
3.2. Digital Terrestrial Radio ........................................................................................... 10
3.3. Digital Mobile Television ......................................................................................... 10
3.4. Other Broadcasting Technologies............................................................................. 11
4.0 SIGNAL DISTRIBUTION............................................................................................ 12
4.1 Introduction of Signal Distribution............................................................................ 12
4.1.1 Current Infrastructure Environment.................................................................... 12
4.1.2 Analogue Vs Digital Transmission..................................................................... 12
4.1.3 FM Signal Distribution ....................................................................................... 12
4.2 Need for Signal Distribution...................................................................................... 12
4.3 Impact of Introducing Signal Distribution................................................................. 13
4.3.1 Impact to the Broadcaster ................................................................................... 13
4.3.2. Impact to the Regulator...................................................................................... 13
4.3.3. Impact to the Public ........................................................................................... 14
4.4. Obligations of Signal Distribution ............................................................................ 14
4.5 The Challenges of Signal Distribution....................................................................... 14
4.6 Strategies for Moving Forward.................................................................................. 15
5. CONTENT ISSUES IN DIGITAL BROADCASTING.................................................. 16
5.1 Content in the Digital Environment........................................................................... 16
5.2 Content Regulation in the Digital Broadcasting Environment .................................. 17
5.3 Production of Content ................................................................................................ 17
5.4 Digital Content........................................................................................................... 17
5.5 Copyright Issues......................................................................................................... 18
5.6 Diversity of Digital Broadcasting Services................................................................ 18
6.0 POLICY AND REGULATORY CONSIDERATIONS IN THE TRANSITION TO
DIGITAL BROADCASTING ............................................................................................. 19
6.1 Frequency Allocation................................................................................................. 19
6.2 Policy Approach to Platform Selection...................................................................... 19
6.3 Policy Approach to Licensing Of Channels............................................................... 20
6.4 Approach to the Transition to Digital Television Broadcasting ................................ 20
6.5 Switch-Off Methods................................................................................................... 22
6.5.1 Phased shut-off of analogue services.................................................................. 22
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6.5.2 Nation-wide shut-off of analogue services ......................................................... 23

6.5.3 Partial shut down of analogue services............................................................... 23
6.6 Digital Receiving apparatus....................................................................................... 23
6.6.1 Set-Top Boxes..................................................................................................... 23
6.7 Signal Distribution ..................................................................................................... 24
6.8 Revocation of allocated frequencies: ......................................................................... 25
6.9 Frequency Spectrum Fees .......................................................................................... 26
7. CONSUMER ISSUES ..................................................................................................... 26
7.1 Implications of Migration on Consumers .................................................................. 26
7.1.1 Consumer Protection........................................................................................... 27
7.1.2 Consumer Awareness and Education.................................................................. 28
7.1.3. Financial Implications to the Consumer ............................................................ 28
7.2 Public Interest Issues.................................................................................................. 29
7.2.1 Vulnerable Groups .............................................................................................. 29
7.2.2 Technological Obsolescence............................................................................... 29
7.2.3. Environmental Concerns.................................................................................... 30
7.3
Role of Stakeholders ............................................................................................ 30
7.3.1 Government......................................................................................................... 31
7.3.2 The Regulator...................................................................................................... 31
7.3.3 Broadcasters........................................................................................................ 31
7.3.4 Retailers and other Suppliers .............................................................................. 32
8. PRINCIPAL RECOMMENDATIONS .......................................................................... 33
8.1
Digital Broadcasting Standards .............................................................................. 33
8.2
Signal Distribution................................................................................................... 33
8.3
Content Issues in Broadcasting ............................................................................... 34
8.4
Policy and Regulatory Considerations in the Transition to Digital Broadcasting . 34
8.5
Consumer issues....................................................................................................... 35
9. GLOSSARY OF TERMS ............................................................................................... 37

1. INTRODUCTION
1.1 History of Broadcasting in Kenya
Broadcasting in Kenya started in 1928 as monopoly run by the government. The
broadcasts targeted white settlers who monitored news from their original homes
and other parts of the world. It was only during the 2nd World War that there were
radio broadcasts targeting Africans mainly to inform relatives of African soldiers
about the developments of the war.
The evolution of broadcasting in Kenya is summarized below:

In 1953, the first Radio broadcast service was created for Africans. African
Broadcasting Services carried programmes in Kiswahili, Dholuo, Kikuyu,
Kinandi, Kiluhya, Kikamba and Arabic.

In 1954, the Kenya Broadcasting Services (KBS) was established. Regional

stations were set up in Mombasa (Sauti ya Mvita), Nyeri (Mount Kenya
Station) and Kisumu (Lake Station).

In 1961, the Kenya Broadcasting Corporation (KBC) was formed to succeed

the government controlled Kenya Broadcasting Services

In 1962, Television was introduced in Kenya. The first transmitting station

was set up in a farm house in Limuru. The station covered a radius of 15
miles.

On 1st July 1964, Kenya Broadcasting Corporation was nationalized into the
Voice of Kenya (VOK); a department of the previous Ministry of Information
and Broadcasting.

In 1970, a new television station opened in Mombasa to produce local

dramas, music, cultural and other programmes in general.

In 1989, the Voice of Kenya was changed back to the Kenya Broadcasting
Corporation (KBC) through the KBC Act,Cap.221, Laws of Kenya

1.2 Liberalization of Broadcasting Sector in Kenya

Gradual liberalization of broadcasting sector began in late 1989 when the
government licenced the privately owned Kenya Television Network (KTN) to
broadcast television services in Nairobi. Later on in July 1990, Stellagraphics Ltd
(STV) were licenced to broadcast television signals in Nairobi. In 1995, Capital FM

became the first private FM station to be licenced by the government. The

following year in 1996 KBC established Metro FM; an FM entertainment station
operated on commercial basis.
From mid 1990s to date, the government has fully liberalized the airwaves by
issuing broadcasting permits and licences to many private entities. Permits issued
by the Ministry of Information and Communications to prospective broadcasters
specify the type of broadcasting service (TV and/or sound) and the
permitted coverage areas (region, province or nationwide). The government has
also authorized foreign radio stations to operate in Kenya.
The liberalization has resulted in a very vibrant broadcasting industry in Kenya,
especially FM sound and TV broadcasting, with the demand for broadcasting
frequencies outstripping the supply especially in urban areas. Currently, over 110
television channels and 264 FM frequencies have been assigned countrywide to
23 TV and 62 FM sound broadcasters. The Kenya Broadcasting Corporation also
operates a national network on AM Medium Wave sound broadcasting. By 30th
April 2007, there were 140 Radio and 54 TV stations on air. Despite these
assignments, the demand for broadcast frequencies has not been met fully.
1.3. History of the Appropriate Legislation for Broadcasting Spectrum
The Kenya Posts and Telecommunications Corporation (KP&TC) Act, Cap 411,
Laws of Kenya, Section 86, vested authority to the defunct KP&TC to manage the
entire radio frequency resource and issue radio communication licences. Thus
broadcasting service providers who wanted to use the radio frequency resource
were subject to KPTC in terms of assignment of frequencies.
Following the repeal of the KP&TC Act and enactment of the Kenya
Communications Act of 1998 (KCA 1998), the Communications Commission of
Kenya (CCK) was created. CCK took over the mandate of management of radio
frequency spectrum as well as assignment of the frequencies, including
broadcasting.
On 31 March 2006, the government gazetted the ICT Sector Policy Guidelines that
proposed CCK as the converged regulator for the ICT sector. This will be realized
when the Kenya Communications (Amendment) Bill 2007 is passed by parliament
and is enacted into law. It includes legal provisions to make CCK a broadcasting
regulator.
1.4. Overview of Current Broadcasting Policy and Regulatory Framework

The current broadcasting licensing mechanism is a two stage process involving the
Ministry of Information and Communications and the Communications Commission
of Kenya (CCK).
The Ministry issues broadcasting permits whereas CCKs role is confined to the
technical role of assigning broadcast frequencies based on these permits and
availability of spare broadcasting channels
Currently, TV broadcasting services are offered in VHF and UHF frequency bands
(46-68 MHz, 174-230 MHz and 470-862 MHz). This is done in accordance with the
Geneva 1989 (GE 89) Agreement. FM sound broadcasting is offered in the
frequency band 87.5-108 MHz in accordance with the Geneva 1984 (GE 84)
Agreement. These agreements are international treaties which offer international
protection to broadcasters against any interference from other users of the radio
spectrum.
The table below shows the bands that are available for various broadcasting
services.
Band

Frequency

LF/MF

148.5-283.5
KHz
526.51606.5KHz
525-1605 KHz
1605-1705 KHz
HF
596026100
KHz
Tropical 2300-2498 KHz
Zone
3200-3400 KHz
4750-4990 KHz
VHF/U
47 - 68 MHz
HF
87.5 - 108 MHz
174 - 230 MHz
470 - 806 MHz
806 862 MHz

Current Service
LW Radio

Planned
Digital Service
DRM

Affected By switchOver activities

NO

MW Radio

DRM

NO

MW Radio
MW Radio
SW Radio

DRM
DRM
DRM

NO
NO
NO

SW Radio
SW Radio
SW Radio
VHF TV Band I
FM Radio Band
II
VHF TV Band
III
UHF TV
UHF TV

DRM
DRM
DRM
DRM
DRM

NO
NO
NO
NO
NO

DAB

YES

DVB-T

YES
NO

1.5. The Digital Migration Taskforce

A digital broadcasting plan for Europe, the Middle East, the former Soviet Union
Republics, Iran and Africa was established following the conclusion of the 2006
Regional Radiocommunications Conference in Geneva (RRC-06). The conference
discussed planning of digital broadcasting and Kenya participated actively in the
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planning process. The plan required that countries start preparation to migrate
from analogue broadcasting technologies to the new digital broadcasting
technologies which are gradually being introduced in many countries.
In order to prepare the country for a smooth transition from analogue to digital
broadcasting, the Ministry of Information & Communications decided to establish a
Taskforce on the Migration from Analogue to Digital Broadcasting. The Taskforce
was launched by the Minister for Information and Communications, Hon. Mutahi
Kagwe on 14 March 2007. The taskforce is composed of broadcasting experts and
representatives drawn from the following key stakeholders:

Ministry of Information & Communications

National Communications Secretariat
Communications Commission of Kenya
Media Owners Association
Kenya Broadcasting Corporation
Media Council of Kenya
Association of Practitioners in Advertising (APA)
ICT Consultants

The Minister mandated the Task Force to assist government by giving their
recommendations on the required policy and regulatory frameworks to address the
introduction of digital broadcasting. He urged the Task Force to develop a Kenyan
approach for transition to digital broadcasting and establish a transition timeframe
including a firm programme for analogue switch-off. The Taskforce was asked to
make concrete proposals on how Kenyans could be encouraged to adopt digital
broadcasting. In summary, the scope of work of the Task Force was to give
recommendations and contribute towards the development of a national strategy
for the switchover of broadcasting systems from analogue to digital broadcasting in
Kenya.

2. TRANSITION TO DIGITAL BROADCASTING

2.1. Conceptual Issues in Digital Broadcasting
Digital broadcasting uses digital rather than analogue waveforms to carry
broadcasts over assigned radio frequency bands. Sound and pictures are
processed electronically and converted into digital format. This code is then
transmitted as a bit stream and reconverted by appropriate receivers or set-top
boxes into sound or TV programmes. This improves the reception quality, allows
more program channels and also promotes efficient use of the spectrum.
The RRC-06 established a digital broadcasting Plan in the 174-230 MHz and 470862 MHz band. However, the implementation of transition to digital broadcasting

will be limited to the 470-806 MHz band. As the existing analogue television
services in the 174-230 MHz band move to digital broadcasting in the 470-806
MHz frequency band, the 174-230 MHz frequency band will be available for the
introduction of T-DAB services. It was agreed that 17 June 2015 would be the
deadline for the transition from analogue to digital.
2.2. Benefits of Digital Broadcasting
The RRC-06 developed a digital broadcasting plan whose implementation may
only be fully realized after the end of the transition period. This is due to the fact
that the new digital plan has been developed in the same frequency bands
occupied by the existing analogue television plan.
The benefits for moving from analogue to digital terrestrial broadcasting include:
additional services;
higher video and audio quality;
greater spectrum efficiency due to associated digital coding techniques and the
additional number of frequencies; and
more programming channels that can be accommodated in one frequency.
Digital broadcasting uses the radio-frequency spectrum more efficiently than
analogue broadcasting. For digital television and Digital Radio Mondiale, more
than one programming channels will be accommodated in the same amount of
frequency spectrum currently required to transmit a single analogue programme.
The switch off of analogue terrestrial broadcasting will release some frequency
spectrum in the VHF and UHF frequency bands which could be reassigned to
other services such as mobile telephony, fixed wireless access, and mobile
datacasting. The released frequency spectrum is known as the digital dividend.
The digital dividend will only be realized when analogue has been switched off,
hence the need to keep the simulcast period (the period when analogue and digital
signals will be broadcasting simultaneously) as short as possible.
Competition and innovation is expected to increase due to new entrants, such as,
new broadcasters and developers of interactive applications. Therefore consumers
will have a wider choice of enhanced broadcasting applications, multimedia data
and entertainment services.
Digital broadcasting offers specific benefits for market players by reducing
transmission costs and providing better technology for storage and processing of
content.
2.3. Implications of Digital Broadcasting
Frequency spectrum is a scarce public resource whose assignment/allocation
neither confers ownership nor a continued right to a particular radio frequency.

Since digital technology makes it possible for one frequency channel to

accommodate more than one programming channel, it is in public interest to
ensure that the radio spectrum is used efficiently by sharing frequencies. In the
case of digital broadcasting this is achieved by creating separate market segments
for signal distribution providers and content service providers. In this regard, an
investor does not have to be assigned a frequency and/or develop infrastructure
before becoming a broadcaster. It is envisaged that the broadcaster of the future
will concentrate only on content as the broadcasting infrastructure will be provided
by the signal distributors.
2.4 Challenges in Implementing Digital Broadcasting
The implementation of the new digital broadcasting plan during the transition
period will be constrained due to the following reasons:
Most of the proposed digital channels can only be used after the existing
analogue channels have been converted to digital or switched off. During
the planning process, it was envisaged that a number of existing analogue
channels will be converted to digital hence most of these were incorporated
in the digital plan. In addition, most of the channels in the digital plan will be
incompatible with the existing analogue assignments.
The GE06 agreement requires that agreement of neighbouring countries be
obtained before a number of Kenyas digital channels can be utliized
because they will affect these countries existing analogue stations.
There will be need to replace or upgrade the analogue receivers for the
reception of digital broadcasting. This can be done with a set-top box
connected to an analogue TV set or integrated digital television receivers.

3. DIGITAL BROADCASTING STANDARDS

3.1 Digital Terrestrial Television
Digital Terrestrial Television (DTT or DTV) is the implementation of digital
technology to provide a greater number of channels, especially when using
Standard Definition Television (SDTV); and/or better quality of picture when using
Enhanced Definition Television (EDTV) or High Definition Television (HDTV). The
main technology standards used are Advanced Television Systems Committee
(ATSC) standard in North America; Integrated Services Digital Broadcasting
(ISDB-T) standard in Japan; and Digital Video Broadcasting (DVB-T).
The RRC-06 adopted the Digital Video Broadcasting (DVB-T) standard.
Digital television is capable of providing new features and services such as high
definition television (HDTV) programmes, interactive services and mobile
9

reception, wide-screen pictures, surround sound audios, multiple viewing angles,

multi-channeling, closed-captioning and electronic programme guides (EPG).
Digital television may be transmitted via radio-communications i.e. terrestrial,
satellite, cable and broadband telecommunications network. Digital Television
improves picture quality and reduces problems such as ghosting and interference.
Based on current compression standards it would not be advisable to implement
HDTV terrestrially during the digital switchover, as one HDTV channel would
significantly reduce the number of channels that could be accommodated on a
single frequency. HDTV can be rolled out terrestrially after the switch-off of
analogue services.
Recommendations:
The Taskforce recommends that the DVB family of standards will be
adopted for digital television broadcasting in accordance with the decisions
taken at RRC-06.

The introduction of DVB-T service in Kenya to be made through licenced

signal distributors.

3.2. Digital Terrestrial Radio

Digital Terrestrial Radio is commonly known as digital audio broadcasting, The
technology used includes Digital Radio Mondiale (DRM) globally in the medium
wave (MW) and short wave (SW) bands, In-Band On-Channel (IBOC) in North
America, Integrated Services Digital Broadcasting (ISDB-TSB) in Japan and
Eureka 147 in Europe, Canada and parts of Asia.
The RRC-06 adopted the T-DAB standard and its introduction is not considered as
a transition but as an introduction of a new service as it is planned and designed to
use 174 230 MHz frequency band.
Recommendations:

T-DAB standard be adopted as the standard for digital sound broadcasting

in accordance with the decisions taken at RRC-06

The introduction of T-DAB service in Kenya to be made through licenced

signal distributors.

3.3. Digital Mobile Television

10

Digital Mobile Television is a new television broadcasting service that has become
possible due to convergence, where the content is broadcast or streamed not to
traditional television sets but to mobile phones or other portable devices. There are
three main radio technology families for delivering broadcast content to mobile
phones or devices:

In-band cellular broadcast techniques

Terrestrial digital broadcast networks and their extensions
Hybrid satellite/terrestrial systems,

It is important to note that these technologies all offer varying degrees of mobility
and reception performance versus cost of deploying a network for mobile
reception.
The principle of technology neutrality in regulation should prevail and mobile
services could be allowed on any of the multitude of mobile digital broadcast
platforms available.
There is also a possibility that DVB-H and DVB-T could be broadcast from the
same transmitters in a digital terrestrial broadcasting network. However, such a
choice by the broadcasting and/or electronic service would introduce some
limitation in terms of coverage and number of services, as DVB-H requires denser
coverage.
Recommendation:
The introduction of DVB-H service to be made through licenced signal
distributors.

3.4. Other Broadcasting Technologies

Due to absence of global standards, market forces will be left to determine the
uptake of other broadcasting technologies such as digital satellite broadcasting,
IPTV and Cable.

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4.0 SIGNAL DISTRIBUTION

4.1 Introduction of Signal Distribution
4.1.1 Current Infrastructure Environment
Broadcasting in Kenya has historically been a straight forward process. Once a
broadcaster obtained the frequency assigned to them, they would setup their own
infrastructure or enter into co-locating agreements with the other existing
broadcasters that had infrastructure to host their transmission systems. Through
this transmission site they would deliver their programmes to their audience via
conventional radio and TV platforms. It is common to find several towers or masts
within the same designated site housing different broadcasters.
4.1.2 Analogue Vs Digital Transmission
Broadcasters constantly faced with technological and commercial challenges. The
advent of digital broadcasting is fundamentally changing the transmission
component of broadcasting. In analogue transmission each broadcasting
frequency can accommodate only one programming channel and requires its own
transmitter, whereas in digital transmission each broadcasting frequency can
transmit several programming channels using only one transmitter. This is part of
the digital dividend that allows for maximization of infrastructure usage thus
lowering transmission costs.
4.1.3 FM Signal Distribution
In view of the simultaneous introduction of digital transmission and signal
distribution, it is imperative that FM broadcasters take advantage and also be
accommodated within the common infrastructure.
4.2 Need for Signal Distribution
The investment in a transmitting station includes access roads, electricity,
buildings, security, ventilation, air conditioning, generators, tower/mast with
common transmitting antennas, and satellite uplink and receiving facilities as well
as technical staff. This is a huge investment that calls for these resources to be
shared by broadcasting service providers. In this regard, the ICT Sector Policy
Guidelines of 2006 states among others that the Government will licence signal
distribution services to ensure that the use of broadcasting infrastructure is
maximized and supports the development of modern broadcasting facilities to
minimize the environmental impact.

12

In digital broadcasting a signal distributor is beneficial for the following reasons:

Lower transmission costs per broadcaster.

Better efficiency in spectrum management.
Lower set up costs for new broadcasters.
Reduce the environmental impact.
Lower costs to the consumer in receiving equipment.
Uniform coverage of the broadcast signal.
Less signal interference.

The signal distributor will provide:

Carriage of the signal from the studio to the distribution site.
Distribution of the signal to designated transmission sites.
Broadcast of the signal within the service area.
4.3 Impact of Introducing Signal Distribution
4.3.1 Impact to the Broadcaster
Broadcasters have had to invest heavily in infrastructure in an effort to distribute
their signal; and employ technical and non technical staff to take care of their
facilities in the field. With the introduction of a signal distributor, the broadcaster will
concentrate on content development and leave the responsibility of signal
distribution, infrastructure development and operation. Broadcasters will be freed
from the difficulties in site acquisition, infrastructure development, operational and
maintenance costs.
During the simulcast period, there will be additional costs to the broadcasters.
However, it is expected that after the switch over to digital there will be no more
costs incurred for analogue transmission.
After the switch over period the analogue transmission equipment will be rendered
obsolete. The existing broadcasters will be allowed to expend the depreciated
value of the analogue transmitters from the books of accounts.
4.3.2. Impact to the Regulator
The regulator will find it easier to enforce licence conditions as the signal distributor
will be required to ensure compliance to parameters in the licences as well as
declare what has been installed on site. This will facilitate the use of authorised
transmitter powers and location of transmitters in designated broadcast sites hence
minimizing incidences of interference.

13

4.3.3. Impact to the Public

Currently, most homes have installed several receiving antennas for broadcast
channels from different transmission sites. With a signal distributor in place, a
single antenna will suffice since the transmitters will be radiating from one location.
However, consumers will be required to purchase Set Top Boxes (STB) or digital
TV sets to receive digital terrestrial transmission.
4.4. Obligations of Signal Distribution
The signal distributor will have the following obligations:
i. Provide services to broadcasters on an equitable, reasonable, non-preferential
and non-discriminatory basis.
ii. Adhere to licence conditions as provided by the Regulator.
iii. Provide quality delivery of broadcasting services as per contract between the
signal distributor and the broadcaster.
iv. Ensure that the digital transmission coverage is similar to or better than the
existing analogue transmission coverage.
v. Appraise the Regulator on a regular basis, on the utilization of frequency
channels and broadcasters database.
vi. Make available to the regulator all the network configurations.
vii. In determining its tariffs, the signal distributor will be required to take into
account the different categories of broadcasting licencees and the nature and
technical parameters of the service provided to each licencee with a view to
ensuring that the different tariffs are appropriate to and commensurate with the
various broadcasting services to which they relate.

Recommendation
The signal distributors will provide services to broadcasters on an equitable,
reasonable, non-preferential and non-discriminatory basis.

4.5 The Challenges of Signal Distribution

There are several potential challenges for the signal distributor, such as:

14

i. The functions of a signal distributor were previously carried out by the

broadcasters and a number of challenges come into focus since the existing
broadcasters have already made significant investments in infrastructure. There
has to be a mechanism to ensure that this investment is not wasted.
ii. Where the existing infrastructure may not be adequate, there will be need for
upgrading it to accommodate digital transmission during simulcast period and
after.
iii. The high setup costs will limit the number of signal distributors. Furthermore,
signal distribution services may not penetrate to areas that are not
commercially viable.
iv. The evolution of Handheld Digital Video Broadcasting (DVB-H) allows the
broadcast of TV signals directly to handheld, portable and other devices. DVBH receivers are built upon portable and mobile capabilities of DTT technology
and hence the need to include them in the signal distribution framework in the
development of infrastructure.
4.6 Strategies for Moving Forward
i. In accordance with the ICT Sector Policy Guidelines of March 2006, practical
measures will be taken by the government to licence signal distribution
providers in Kenya.
ii. The multiplexing and signal distribution shall be done by the signal distributor.
iii. Content service provision and signal distribution shall be separate market
segments.
iv. In order to reduce the cost of migration, the existing designated transmitting
analogue sites and infrastructure will be used for digital transmission.
v. Existing infrastructure owners will enter into agreements with signal distributors
and future infrastructure investors regarding integration of their facilities into the
signal distribution network.
vi. Broadcasters will be encouraged to migrate from analogue to digital technology
in the studio facilities for the public to appreciate the difference in quality
between analogue and digital signal.
Recommendations
Based on the government decision to licence KBC as a signal distributor,
KBC shall form an independent company to run the signal distribution
services in order to avoid conflict of interests or cross subsidies.

15

The current broadcasters will be allowed to form an independent company

to run the signal distribution services in order to utilize their existing
infrastructure. This company should be independent to avoid conflict of
interests or cross subsidies. This company will be given the first preference
to a signal distribution licence.

Existing broadcasters who own infrastructure will negotiate commercial

terms with the licenced signal distribution provider for transfer of ownership
of the infrastructure.

A time limit be set after which broadcasters will not be allowed to operate
unlicenced signal distribution services

5. CONTENT ISSUES IN DIGITAL BROADCASTING

Content is an important part of broadcasting and therefore must be included in any
discussion on migration from analogue to digital broadcasting. In the analogue
environment the viewer has a limited number of programme channels. The
additional channels created by digitization, provide an opportunity for Kenyan
viewers and listeners to have avenues through which their own stories, concerns
and lifestyles are reflected.
5.1 Content in the Digital Environment
In the digital broadcasting environment the viewer has access to a many channels.
These channels require the audience to use an electronic programming guide
(EPG) in order to navigate through the available programmes. Broadcasters will
need to produce high quality programmes and develop strategic approaches to
deal with workforce transition issues in the digital environment. Government will
need to work with the industry on capacity building in this area.
Content production can be an important industry for Kenya with regard to job
creation, conservation, promotion and export. The broadcasting industry will be
encouraged to:

Establish training programmes which incorporate digital broadcasting

techniques.

Ensure training takes the form of apprenticeship programmes in cooperation

with manufacturers and producers. The latter may be given incentives to
accommodate such programmes.

16

Explore the possibility of providing training scholarships for special

graduates of media institutions to attend training programmes at specialized
digital broadcasting training programmes abroad.

The transition to digital broadcasting will stimulate an increase in quality Kenyan

drama and documentaries, in addition to increased broadcasting of sports. Digital
broadcasting will enable on-demand delivery of personalized content to the
audience.

5.2 Content Regulation in the Digital Broadcasting Environment

The impact of multi-channel viewing and on-demand services means that
regulations cannot be very specific in terms of setting requirements at the level of
types of programming on a specific channel. Instead the regulatory focus is
expected to shift from specific channels to the bouquet (multi-channel) operator in
terms of carriage requirements. In addition, the ability of the user to control the
content viewed through features on the STB, or in some cases to request the
content viewed, will most likely result in more self-regulation and a light touch
regulatory approach.
The multiplicity of channels will create some challenges, such as inappropriate
content from international sources, among others.
5.3 Production of Content
Relevant content is an important determinant in the uptake of digital broadcasting
services. One of the weaknesses in the broadcasting industry in Kenya is the low
investment in content production. This weakness may be exacerbated rather than
alleviated in the digital environment if it is not addressed. Broadcasters will face
enormous pressure to generate extra content for the additional channels.
Therefore, more government intervention is needed for content development and
should be a core part of the migration strategy.

5.4 Digital Content

It is not essential that programmes be produced in a digital format; once
transmission is digital, broadcasters will be able to convert from analogue to a
digital format. Therefore, digital production studios or facilities are not a major
requirement for migration initially.

17

5.5 Copyright Issues

The digital platform enables a significant improvement in the quality, quantity and
accessibility of content. New mechanisms are required to compensate content
creators and distributors in an environment where it is easy to replicate perfect
copies. It raises questions about the adequacy of the existing legal apparatus for
the communications industry at large.
Digital simulcast of a copyright protected service results in a right to additional
copyright payments even though few or no additional viewers are involved. Such
demands may be perceived as a disincentive to provide or extend digital services.
Developments in digital broadcasting can be constrained by right holders, given
the territorial nature of copyright. Legal issues on protection of electronic pay
services often encrypted to ensure remuneration and/or to limit viewing to a
specific territory need to be resolved.
5.6 Diversity of Digital Broadcasting Services
Digital broadcasting will incorporate different consumer segments, such as,
portable and mobile reception; data and interactive services. Maximizing digital
service diversity will help ensure differentiation from analogue and serve the needs
of population segments and markets that are interested in other types of digital
services. The following are some proposed actions to facilitate investment and
stimulate consumer uptake of digital broadcasting and related services:
clarifying the regulation applicable to digital broadcasting services and those
responsible for its implementation by ensuring that those providing such
services to the public will be subject to the same regulation as broadcasters;
ensuring standardization, compatibility and interoperability of equipment that
will allow many players to thrive;
encourage the availability of value-added content on digital networks in
different ways;
Entrenching special technological benefits not necessarily unique to digital
but that may have matured recently to stimulate DVB-T demand by
increasing appeal.
Recommendations:

The Government should put in place appropriate policies on the access, use
and distribution of content in the diverse digital service environment.

The Government should establish a body entrusted with the responsibility of

promoting diverse content development by providing financial and other
support to the local content development industry.

18

The Government should streamline the development and supervision of

curriculum used in the media training institutions.

6.0 POLICY AND REGULATORY CONSIDERATIONS IN

THE TRANSITION TO DIGITAL BROADCASTING
6.1 Frequency Allocation
Digital television requires the same frequency bands used by the analogue
television Therefore, full introduction of digital television broadcasting services, will
necessitate an eventual switch-off of the existing analogue television broadcasting
services in the UHF/VHF Frequency Bands.
The main benefit of implementing the digital switchover for television as planned at
RRC-06 is that after analogue switch-off there will be more spectrum to
accommodate not only the planned digital terrestrial television transmission
networks and digital radio transmission networks in Band III, but also the freeingup a significant amount of radio frequency spectrum (sometimes referred to as
Digital Dividend) for new broadcasting services and potentially other
communication services.
Digital Radio, in contrast to Digital Television can co-exist with traditional analogue
radio transmissions, uses a different Band, namely Band III and not the
frequencies traditionally associated with AM and FM. Digital Radio when
implemented in Band III will require shifting of, or the switch-off the existing
analogue television broadcasting services occupying frequencies in that band.
Based on the above considerations, a process involving the switchover of existing
broadcasters from analogue transmission networks to digital transmission
networks as contemplated for television is not required for digital radio in Kenya.
There is however need to develop a licensing framework for introduction of digital
radio.

6.2 Policy Approach to Platform Selection

In the switchover to digital television, in most parts of the world, terrestrial
commercial television broadcasting services have been allowed to choose to be on
a terrestrial, satellite or cable digital transmission network based on their own
economic considerations. However, when it comes to free-to-air television
19

broadcasting services that choice because of universal service obligations and the
public interest has been to a large extent determined by the national government,
leading to a continued policy emphasis on a terrestrial transmission network.
.
Digital terrestrial television network has the following advantages:
it enables a higher level of localised content broadcasts;
it provides greater robustness than satellite, where there is a risk of
catastrophic satellite failure;
Easy portable and indoor television reception.
Easy installation of set-top boxes
Recommendation:

Existing analogue terrestrial broadcasting service should migrate to digital

transmission network based on their own commercial strategy and
economic considerations.

6.3 Policy Approach to Licensing Of Channels

Broadcasting is an important component of the current information infrastructure
and is an industry whose operations are guided by a strong public interest
requirement. Due to the uniqueness of broadcasting and the importance of the
service it provides, broadcasters have a special obligation to serve the needs and
interests of their communities, one that has historically distinguished them from
telecommunications service providers.
Scarcity of frequency spectrum has to some extent prevented the broadcasting
sector from expanding in terms of ownership, diversity and the ability to address
the needs of all Kenyan languages. In the digital era there will be opportunities for
television and radio to grow in relevance and diversity of services in order to
promote social, cultural and national economic goals since there will be additional
amount of spectrum. However, even with digital technology, spectrum is still a finite
resource and cannot support infinite number of broadcasters. Adequate capacity
will be available for the existing programmes during the transition period.

6.4 Approach to the Transition to Digital Television Broadcasting

The transition from analogue to digital broadcasting should cause minimal
disruption to viewers. The transition will affect consumers, policy makers and
broadcasters, and involves much more than a technical migration. Considering the

20

role of TV and radio in our society, that impact also has economic, social and
political angles. The transition will affect content production, transmission and
reception. Accordingly, the plan would need to be carried out cautiously and
gradually.
The two possible approaches to the transition to digital broadcasting are firstly; a
market driven-technological transition where a progressive replacement of
analogue technology with the better digital technology takes place; and secondly a
policy driven transition primarily focused on free-to-air terrestrial broadcasting
services. Due to the advantages associated with early switchover date, Kenya may
adopt the policy driven transition with a firm switch-off date.
The transition timeframe will need to be made in a way that mitigates the effects of
the costs involved, develops attractive service to derive demand, and overcomes
resistance from citizens and industry players who may see risks in changing the
status quo in the broadcasting sector.
The migration to digital can be divided into three distinct phases:
Digital Switch-on: the introduction of digital broadcasting services
involving the development of the digital broadcasting infrastructure
including introduction of a signal distributor, availability of set-top
boxes and/or integrated receivers.
Simulcast Period: In order to ensure that television viewers without
set-top boxes are not deprived of services, analogue and digital will
have to be broadcast in tandem for some period the simulcast
period [the actual digital migration process, involving a gradual
replacement of analogue broadcasting equipment by digital
broadcasting equipment].
Analogue Switch-off: termination of analogue transmission which
assumes the completion of the switchover process, so that it will not
occur, before almost all households can receive digital signals and
have digital receivers.
Consumer awareness is a cross-cutting issue which will be undertaken in all three
phases.
In the case of digital television, a switchover process is required from analogue to
digital transmission networks with a firm switch-off date for the analogue
transmissions. In order to ensure that television viewers without set-top boxes are
not deprived of services, analogue and digital will have to be broadcast
simultaneously for a period of time the simulcast period.

21

The signal distribution providers should be obliged to promote the take-up rate of
digital terrestrial television so that the frequency spectrum currently used for
analogue broadcast could be released as soon as possible. One digital programme
channel will be made available for each of the existing broadcasters during the
transition period, and will be provided free of charge of any frequency licence fees
until the analogue switch off date.

Recommendations:

The Government should establish a Multi-stakeholder Working Group to coordinate the migration process and set aside funds to cater for the process.

Adequate funds should be allocated for marketing to create awareness of

the migration and its implications.

6.5 Switch-Off Methods

Several approaches to analogue switch-off are possible. However, the approach
will usually be predicated on the approach used for launching digital broadcasting
services. In launching these new services, the duration of the simulcast period
when analogue and digital terrestrial television services are simultaneously
transmitted will need to be determined.
Although the cost of simulcast is high, its duration will be determined by the
number of households that depend on the analogue transmissions and how quickly
these households can be converted to the digital television service.

6.5.1 Phased shut-off of analogue services

In a phased approach, analogue switch-off takes place by region. A digital
broadcasting timetable detailing when analogue transmitters will be shut off in the
different regions is prepared. This approach provides several benefits. Firstly, the
lessons learnt in one region can be applied to improve the process in another
region. Secondly, the released frequencies can be re-used in a neighbouring
region in order to increase its digital coverage and expand the digital service
offering. Finally, this approach allows the cost and effort of digitalization to be
spread across a significant period of time.

22

6.5.2 Nation-wide shut-off of analogue services

In a national approach, analogue terrestrial television services are ended at the
same time over the whole country. Such an approach allows all viewers to
simultaneously benefit from the advantages of digital switchover, ensuring that all
viewers are treated equally and given the same access to all services.
6.5.3 Partial shut down of analogue services
In a partial approach, some analogue terrestrial television services are ended in
order to make frequencies available for a subsequent digital broadcasting launch.
This eliminates the need for prolonged analogue/digital simulcasting period.
However, because the digital launch is preceded by analogue switch-off, viewers
will temporarily lose access to some terrestrial services until they are restored on
the digital platform. This approach is effectively used where a small percentage of
households are terrestrially dependent.

Recommendation:

Kenya should adopt either a policy driven approach on transition to digital

broadcasting with a firm nationwide switch-off date or a phased switch-off of
analogue services within a period of 3 years.

6.6 Digital Receiving apparatus

Availability of digital receiving apparatus at affordable prices is crucial to early
uptake of digital broadcasting technology by the mass market. Pricing of such
receiving equipment could be the biggest single obstacle or enabler to introduction
of digital broadcasting in Kenya.
6.6.1 Set-Top Boxes
Digital broadcasting systems can be operated in three basic modes: free-to air
(FTA), free-access and fully encrypted:

FTA services do not cater for any encryption system and typically any set
top box that complies with the DVB-T standard should be able to receive the
signal. The advantage of such a system is that set-top-boxes are
reasonably priced and can reduce the barrier to entry when set top boxes
are to be funded or subsidized. The disadvantage is that one has no control
over the viewer base, will not know exactly how many viewers are watching
and it only offers limited value added services. No software control or
managing of the set-top box will be possible. No value-added applications
can be provided on the set-top box, and no over the air upgrades will be
possible. In order to ensure that the market is not flooded with low quality
23

equipment, it is proposed that set top boxes should be subject to some form
of quality control to ensure that the quality of set top boxes is reasonable. A
minimum standard for the equipment will have to be set.

Free-access systems use more advanced set top boxes which provide the
option of implementing conditional access. The basis of this option is that
viewers will have to acquire a set top box as well as a smart card to be able
to watch the programmes at no additional cost. Although more expensive
initially, this option offers broadcasters full control over their viewers as well
as the introduction of advanced value added services.

Fully encrypted services can be used to ensure monthly payments for

programmes viewed, for example. This model is based purely on
commercial principles and full control of subscribers is essential. Once one
provides full encryption services on a DTT platform, the same platform can
be used for free-access as well as FTA services. Activation of Conditional
Access (CA) for fully encrypted services would require the same support
infrastructure as in free access systems with the addition of subscriber
management systems.

The cost of the set top box poses the most critical barrier to entry in terms of
getting the viewers to accept a digital switchover process. The entry level set top
box has to be affordable. However, it is also necessary to ensure that more
sophisticated set top boxes are available which are flexible enough to provide
value added services. It will be necessary to define minimum set-top box
specifications for the entry level set top box to ensure technical compatibility.

Recommendations:

The Government should ensure availability of affordable digital receivers

and set top boxes through fiscal measures.

The Kenya Bureau of Standards and CCK should define the minimum
standards for set top boxes to be used in Kenya.

Importation of analogue only TV receivers should not be allowed after 2012

in preparation for the analogue switch off deadline of 2015.

6.7 Signal Distribution

24

In accordance with the ICT Sector Policy Guidelines of March 2006, practical
measures will be taken by the government to licence signal distribution providers in
Kenya.

Recommendations
Based on the government decision to licence KBC as a signal distributor,
KBC shall form an independent company to run the signal distribution
services in order to avoid conflict of interests or cross subsidies.

The current broadcasters will be allowed to form an independent company

to run the signal distribution services in order to utilize their existing
infrastructure. This company should be independent to avoid conflict of
interests or cross subsidies. This company will be given the first preference
to a signal distribution licence.

Existing broadcasters who own infrastructure will negotiate commercial

terms with the licenced signal distribution provider for transfer of ownership
of the infrastructure

A time limit be set after which broadcasters will not be allowed to operate
unlicenced signal distribution services

6.8 Revocation of allocated frequencies:

After the expiry of the simulcast period, broadcasters will be required to switch off
their television broadcasting transmitters and operate only on digital broadcast
channels provided by the signal distribution provider.
Recommendations:

Upon switch-off of television broadcasting transmitters, the frequency

assignments to broadcasters shall be revoked by CCK.

Frequencies will no longer be assigned to broadcasters once signal

distributors are in place.

The broadcasters will enter into commercial arrangements with signal

distribution providers who will have set up infrastructure at the site in
question.

The regulator will ensure that signal distributors provide services to

broadcasters promptly on request.

25

6.9 Frequency Spectrum Fees

CCK will develop appropriate frequency fees and create incentives towards
implementation of digital broadcasting.

7. CONSUMER ISSUES
Kenya is faced with the challenge of finding a balance between the need to foster
commercial development of the broadcasting industry and to make sure
broadcasting serves the national public interest.
Television and radio remain a significant source of information even in developing
countries like Kenya. As the government plans the migration from analogue to
digital broadcasting, it is important to note that most consumers do not know the
difference between the two, yet they are the key target audience. It is imperative
that consumer awareness and education be prioritized for effective implementation
of digital broadcasting. Education is important as there is little to be gained from
access to the digital technology if skills to utilize them are absent or obscure.
It is critical to ensure that there are strategies to diffuse relevant information to
consumers to enable them to understand the need and benefits of the migration to
digital broadcasting. In the context of digital broadcasting, the challenge will not be
in convincing the public on the need for televisions and radios but rather the need
for appropriate technology to receive digital programming. This could be televisions
and radios that can receive digital programs or set-top boxes to change the digital
broadcasts into analogue format. . The challenge for the government, therefore, is
to raise awareness on this migration and ensure consumer buy-in as outlined
below.
7.1 Implications of Migration on Consumers
Digital broadcasting will include multi-faceted services through satellite, terrestrial
TV, cable, broadband among other forms. The switchover from analogue to digital
will have major implications on all service providers; some will be in a rush to profit
from the change. The consumer will have no option to go back to analogue
services after the switch-off. They will be confronted with a range of multichanneled services, new costs and the pressure to change quickly to services they
may not be familiar with.
The government must prioritize consumer protection to guard against exploitation
through unfair market practices.

26

7.1.1 Consumer Protection

The priorities of government in the migration process must revolve around those
parties that will be greatly affected and those whose decisions equally have an
implication on the success of the migration; the consumers. Consumer protection
will be a priority area, the key aspects of this will include:

a) Provision of adequate time for change:

The proposed migration period must be adequate and the new medium attractive
enough to encourage people to buy new digital equipment. This will also increase
the take-up rate. Consumers who do not wish to abandon their analogue receivers
immediately will have set-top boxes which will allow them to receive digital signals
on the analogue receivers.
Recommendation:

Government must institute measures that protect the end-user against

instant crash of service that leaves them with no option at the end of the
migration process.

b) Relevant regulations
Regulations will be put in place to ensure that consumers are protected. Such
regulations will contain intervention mechanisms for complaints raised by
consumers; and enforcement and consequences for those found flouting the
regulations.
c) Addressing Consumer concerns
A key strategy would be to ensure that consumers understand that switchover is
definite and have information on how they can make informed purchases and be
given adequate notice. This will enable those intending to invest in new equipment
to make choices informed by the Governments switchover commitment.
Recommendations:

The consumers should be protected through a phased strategy which

includes a voluntary switching phase, agreed upon for implementation.

The Multi-stakeholder Working Group established by the Government will

have the responsibility of responding to public concerns even beyond the
27

switchover as all concerns may not be anticipated in time.

7.1.2 Consumer Awareness and Education

Public understanding and acceptance are crucial to the success of the migration
from analogue to digital broadcasting. The consumers need well-designed, welltimed and well-funded information on the need for, and the benefits of the
migration.
The content of consumer education must include: the period of migration, switchover dates, policy issues, financial implications, quality of service, conversion,
reception problems, coverage and recording alternatives. Education must also
emphasize the benefits to the consumer. The campaign should begin as soon as
the implementing body is established as this is also a significant part of the
migration process.
Recommendations:

There should be an effective strategy to inform consumers that covers all

areas of concern including the migration process and switch-over dates.

The strategy must integrate all the market players in the broadcasting value
chain in order to yield the expected benefits.

Government should provide incentives to the industry for them to promote

and explain the services to customers.

Government should monitor and evaluate the awareness, take-up and use
of the new services, and adjust the campaign accordingly.

Government should provide the financial resources for the consumer

campaign and education.

Broadcasters should contribute by airing the campaigns regularly.

7.1.3. Financial Implications to the Consumer

One of the greatest fears for consumers is the financial implications of the
switchover from analogue to digital broadcasting. Questions abound from how
much various services and equipment will cost to whether it will be within the
purchasing power for most consumers. If the cost is maintained at an affordable
level, it will hasten the migration process.

28

Recommendation:

There should be standard fiscal measures to ensure affordability of the set

top boxes.

Imported equipment for digital broadcasting should be zero-rated to lessen

the tax burden.

7.2 Public Interest Issues

Migration to digital broadcasting must take into account public interest issues, such
as concerns about obsolete technology. Most of the issues are cross-cutting but
ultimately concern consumers.
7.2.1 Vulnerable Groups
The migration strategy must take cognizant of the consumers, so as to encourage
the uptake by users with disparate needs. This requires the collaboration of all
stakeholders to improve usability and accessibility to digital broadcasting.
The demands of the vulnerable groups must be evaluated and addressed in the
migration strategy. There are many demands imposed on people with disabilities
both with equipment and content. The impairments range from visual, hearing and
dexterity. Therefore, efforts must be directed to:
Creating awareness and understanding nationally;
Identifying products suitable for the vulnerable groups, particularly those
with disabilities;
Ensure the accessibility of ancillary services and their availability on the
digital television platform.
Recommendation:
The implementation strategy must specifically target the vulnerable groups,
people with disabilities and the poor to ensure they are included in the
digital migration.

7.2.2 Technological Obsolescence

29

Consumers need to be assured that their television sets will continue to work and
the need for set-top boxes. The government should discourage the importation of
analogue receivers after switchover date.
A receiver system must not exclude any broadcaster from the Electronic Program
Guide (EPG). It may be defined as a simple right of the consumers to have access
to all service providers through an EPG. There should be free and equal access to
the basic program guide for all broadcasters.
7.2.3. Environmental Concerns
Lack of understanding may cause consumers to discard analogue TVs, VCRs and
DVDs. This may not only generate a crisis in waste disposal but cause
environmental hazards. Therefore, a waste management strategy must be
considered early in the migration process.
Given that quite a number of countries are in the process of implementing the
digital switchover there is real danger of the old TV sets being shipped out of these
countries in large quantities. Kenya should tighten regulations to prevent this kind
of incident occurring by reviewing regulations relating to controls on shipments and
disposal of e-waste.
Recommendations:

7.3

Development of a migration strategy that includes a waste management and

environmental safety plan that will guard against the hazards is
recommended.

The consumer campaign must include issues of equipment that can be

retained for use.

Policies that discourage dumping of obsolete technologies and equipment

must be put in place simultaneously with the information campaigns.

Measures be instituted to curtail the importation of obsolete equipment into

the country

Role of Stakeholders

The involvement of all relevant stakeholders in the migration from digital to

analogue broadcasting is crucial for the success of the process. However,
government remains the focal point of the process to provide direction. The
following are the roles of key stakeholders.
30

7.3.1 Government
Education and awareness of consumers are critical in the digital migration process
and, government will take the lead in informing the public about the migration and
its benefits. While efforts should be drawn from all the involved stakeholders
including the consumers themselves, information release and deliberate campaign
commitments must be made by government to alleviate consumer confusion;
provide guidance on various aspects including:

purchase of equipment;
the requirements for set-top-boxes;
responding to critical questions that may arise from the migration
process; and
Reaffirmation on handling any possible risks envisaged by consumers.

The relevant legislation on consumer protection should cover the following areas:

Right of access to information for instance the tariff guides where

subscription to service is applicable.
Quality of service that should be expected.
Handling of complaints from consumers.

The introduction and implementation of digital broadcasting requires the necessary

infrastructure to be in place. Government will therefore need to drive this aspect
by determining the need and rationale for government intervention in facilitating
national infrastructure. The Government should adopt an all-inclusive strategy to
alleviate any inequalities in the digital revolution.
7.3.2 The Regulator
The Communications Commission of Kenya (CCK) is designated as the sector
regulator for broadcasting; therefore, they should equally be mandated to
implement policies in the sector including the protection of the interests of all users
of broadcasting services. The regulation must promote competition in the sector so
that the consumer can have a range of choices, lower prices and a wider range of
services.
7.3.3 Broadcasters
There will be need for broadcasters to carry out education and awareness over
and above what is funded by government.

31

Broadcasters should be encouraged to set aside airtime for consumer education.

7.3.4 Retailers and other Suppliers
The buying decision of the consumer is mainly determined by information
availability at various points of purchase.
Retailers comprise an important segment of communication channel to
consumers. Consumers can seek clarification on the significance of switchover for
equipment they are about to buy and so make wise purchases.
Buying decisions are therefore likely to be influenced by the retailers who may
want to maximize their sales either by disposing off the dead stock of analogue
receivers or cheap equipment that do not meet the specified standards. It is
therefore imperative that government enlists the support of retailers in
communicating relevant messages to consumers.
To equip retailers with the requisite information, there must be an awareness
program targeted at them to ensure that they pass accurate information to the
consumer.
Retailers will be required to sell only type approved set-top boxes.
Recommendations:

Retailers will be required to have a switchover logo or any other mechanism

that can be used as a certification mark. This will give consumers the
assurance and confidence in purchasing receivers, antennae, and other
equipment necessary to receive over-the-air signals after the switch over.

The government should create a platform for hearing the consumer opinions
which may be channeled through consumer organizations/interest groups.

32

8. PRINCIPAL RECOMMENDATIONS
8.1

Digital Broadcasting Standards

It is recommended that the DVB family of standards will be adopted in

Kenya for digital television broadcasting in accordance with the decisions
taken at RRC-06.

It is recommended that the T-DAB standard be adopted as the standard for

digital sound broadcasting in Kenya in accordance with the decisions taken
at RRC-06.

The introduction of DVB-T service in Kenya to be made through licenced

signal distributors.

The introduction of T-DAB service in Kenya to be made through the licenced

signal distributors for DVB-T.

The introduction of DVB-H service in Kenya to be made through the

licenced signal distributors for DVB-T.

8.2

Signal Distribution

The signal distributors shall be required to provide services to broadcasters

on an equitable, reasonable, non-preferential and non-discriminatory basis.

Based on the government decision to licence KBC as a signal distributor,

KBC shall form an independent company to run the signal distribution
services in order to avoid conflict of interests or cross subsidies.

The current broadcasters will be allowed to form an independent company

to run the signal distribution services in order to utilize their existing
infrastructure. This company should be independent to avoid conflict of
interests or cross subsidies. This company will be given the first preference
to a signal distribution licence.

Existing broadcasters who own infrastructure will negotiate commercial

terms with the licenced signal distribution provider for transfer of ownership
of the infrastructure

33

8.3

A time limit be set after which broadcasters will not be allowed to operate
unlicenced signal distribution services

Content Issues in Broadcasting

The Government should put in place appropriate policies on the access, use
and distribution of content in the diverse digital service environment.

The Government should establish a body entrusted with the responsibility of

promoting diverse content development by providing financial and other
support to the local content development industry.

The Government should streamline the development and supervision of

curriculum used in the media training institutions.

8.4

Policy and Regulatory Considerations in the Transition to Digital

Broadcasting

Existing analogue terrestrial broadcasting service should migrate to digital

transmission network based on their own commercial strategy and
economic considerations.

The Government should establish a Multi-stakeholder Working Group to coordinate the migration process and set aside funds to cater for the process.

Adequate funds should be allocated for marketing to create awareness of

the migration and its implications.

Kenya should adopt either a policy driven approach on transition to digital

broadcasting with a firm nationwide switch-off date or a phased switch-off of
analogue services within a period of 3 years.

The Government should ensure availability of affordable digital receivers

and set top boxes through fiscal measures.

The Kenya Bureau of Standards and CCK should define the minimum
standards for set top boxes to be used in Kenya.

Importation of analogue only TV receivers should not be allowed after 2012

in preparation for the analogue switch off deadline of 2015.

Upon switch-off of television broadcasting transmitters, the frequency

assignments to broadcasters shall be revoked by CCK.
34

Frequencies will no longer be assigned to broadcasters once signal

distributors are in place.

The broadcasters will enter into commercial arrangements with signal

distribution providers who will have set up infrastructure at the site in
question.

The regulator will ensure that signal distributors provide services to

broadcasters promptly on request.

8.5

Consumer issues

Government must institute measures that protect the end-user against

instant crash of service that leaves them with no option at the end of the
migration process.

The consumers should be protected through a phased strategy which

includes a voluntary switching phase, agreed upon for implementation.

The Multi-stakeholder Working Group established by the Government will

have the responsibility of responding to public concerns even beyond the
switchover as all concerns may not be anticipated in time.

There should be an effective strategy to inform consumers that covers all

areas of concern including the migration process and switch-over dates.

The strategy must integrate all the market players in the broadcasting value
chain in order to yield the expected benefits.

Government should provide incentives to the industry for them to promote

and explain the services to customers.

Government should monitor and evaluate the awareness, take-up and use
of the new services, and adjust the campaign accordingly.

Government should provide the financial resources for the consumer

campaign and education.

Broadcasters should contribute by airing the campaigns regularly.

There should be standard fiscal measures to ensure affordability of the set

top boxes;

35

Imported equipment for digital broadcasting should be zero-rated to lessen

the tax burden;

The implementation strategy must specifically target the vulnerable groups,

people with disabilities and the poor to ensure they are included in the
digital migration.

Policies that discourage dumping of obsolete technologies and equipment

must be put in place simultaneously with the information campaigns.

The consumer campaign must include issues of equipment that can be

retained for use.

Measures be instituted to curtail the importation of obsolete equipment into

the country

Development of a migration strategy should include a waste management

and environmental safety plan.

Retailers will be required to have a switchover logo or any other mechanism

that can be used as a certification mark. This will give consumers the
assurance and confidence in purchasing receivers, antennae, and other
equipment necessary to receive over-the-air signals after the switch over.

The government should create a platform for hearing the consumer opinions
which may be channeled through consumer organizations/interest groups.

36

9. GLOSSARY OF TERMS
AM

Amplitude Modulation; often used to refer to medium wave

broadcasting

API

Application Programme Interface

ATSC

Advanced Television Systems Committee

CA

Conditional Access

CAM

Conditional Access Module

CODEC

Encoder/Decoder

COFDM

Coded Orthogonal Frequency Division Multiplex

COMMISSION
DAB

Communications Commission of Kenya

Digital Audio Broadcasting (usually applied to Eureka 147)

DR

Digital Radio

DRM

Digital Radio Mondiale

DSB

Digital Sound Broadcasting

DTH

Direct to Home satellite delivery of content

DTT

Digital Terrestrial Television

DTV

Digital Television

DVB

Digital Video Broadcasting, is a suite of

internationally accepted open standards for digital
television broadcasting. DVB systems use
transmission systems to distribute data using a
variety of approaches, including by Satellite (DVBS), Cable (DVB-C), Terrestrial television (DVB-T)
and terrestrial television for handheld (DVB-H).
Although the modulation method for each of the
DVB family members differs, they have common
features that allow the transfer of programmes from
one bearer to another.

DVB-C

Digital Video Broadcasting Cable

DVB-T

Digital video broadcasting Terrestrial and it is in

the DVB European consortium standard for the

37

broadcast transmission of digital terrestrial

television. Digital signals are transmitted using
terrestrial methods using compressed digital audiovideo streams. The signal transmitted using DVB-T
does not travel via cable, they go from aerial
antenna to aerial antenna of home receiver.
DVB-H:

Digital Video Broadcasting for Handheld and is basically an

extension to older DVB-T standard. It is a terrestrial digital TV
standard that uses less power in receiving signals and allows
the receiving device to move freely while receiving the
transmission, thus making it ideal for mobile phones and
handheld computers to receive digital TV broadcasting. It uses
IP Data cast (IPDC) to define end-to-end system. The radio
transmission is based on OFDM and can be described as TV
on the mobile phone. DVB-H has ability to interface with
mobile cellular networks enabling the reuse of existing mobile
infrastructure

DVB-S

Digital Video Broadcasting Satellite

DVB-S2

Digital Video Broadcasting Satellite version 2

DVB-T

Digital Video BroadcastingTerrestrial

DVD

Digital Versatile Disk

EDTV

Enhanced Definition Television

EPG

Electronic Programming Guide

ETSI

European Telecommunications Standards Institute

FCC

Federal Communications Commission

FM

Frequency Modulation; sound broadcasting system in VHFband

FTA

Free-to-air

HD

High Definition

HDTV

High Definition Television

IBOC

In-Band On-Channel

CCK

Communications Commission of Kenya

ICT

Information & Communication Technology

IPTV

Internet Protocol Television

ISDB-T

Integrated Services Digital Broadcasting for Terrestrial

38

ITU

International Telecommunication Union

ITU RRC-06

ITU Regional Radiocommunication Conference for the

planning of digital broadcasting

MediaFlo

Media Forward Link Only

MFN

Multi-frequency Network

MHP

Multimedia Home Platform

MOA

Media Owners Association

MPEG

Moving Picture Experts Group

MPEG-2

Compression technology developed by MPEG currently in

use for digital broadcasting

MPEG-4

Improved compression technology developed by MPEG

currently being introduced globally for digital broadcasting

MW

Medium Wave

OS

Operating System

PDA

Personal Digital Assistants

PPV

Pay-Per-View

PVR

Personal Video Recorder

QAM
RCT

Quadrature Amplitude Modulation

Return Channel- Terrestrial return path from viewer to
broadcaster in interactive broadcasting

QPSK

Quadrature Phase Shift Keying

RDS

Radio Data System

RF

Radio Frequency

RRC06

Regional Radiocommunication Conference for the planning

of digital broadcasting services

KBC

Kenya Broadcasting Corporation

SDTV

Standard Definition Television

SFN

Single Frequency Network

SMS

Subscriber Management Service

STB

Set Top Box

SW

Short Wave

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TV

Television

VHF

Very High Frequency; sound and television broadcasting

services in the band 88- 254 MHz

VOD

Video on Demand

VOIP

Voice Over Internet Protocol

UMTS

Universal Mobile Telecommunications System

UHF

Ultra High Frequency; broadcasting services in the band

470-3000 MHz

Annexure

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