Interesting, my theory was a bit out there: The 23 dBm outdoor UNII-3 limit set by OFCOM would be the EIRP value Meraki's 'Target power' values are set at the radio, not taking cable and antenna gain/loss in to account, so this value is not a target EIRP range you are setting The Omnidirectional and the patch antennas for the 9163E are 8/9 dBi gain each @ 5 GHz. Your target min. radio TxPower is 17dBm. Assuming 0dB loss from internal cabling to the antenna + 8/9 dBi gain from the antenna, your minimum EIRP would be 25 dBm - 2dB above the max. permitted EIRP (although I'm fairly sure the APs always limit max. power to never exceed regulatory limits so the theory is probably moot!) Theory: AP radio TxPower being set to some default low value given min. EIRP from target power range > max. EIRP permitted Are these lab APs? The power ranges set on all of APs listed seem really high to me personally!
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