# Presentation: 198807

## GPS Spectrum Policy Update

**GPS Spectrum Policy Update**

**45****th**** CGSIC Meeting**
**Long Beach, CA**
**September 12, 2005**
- 
- 
**James J. Miller**
**DOT Office of the Secretary**

## Overview

**GNSS Spectrum Management Challenges**
**U.S.**** Spectrum Management Reform**
**Update on President’s Spectrum Policy Task Force**
**GNSS Spectrum Protection Issues**
**International**** RNSS Spectrum Allocations**
**World Radiocommunication Conference (WRC)**

## SPECTRUM DEFINED

**The ****“Invisible Infrastructure”**
**A ****“Public Good”**** that needs to be Protected**
**A ****Critical Enabler**** of all things Radio**
**A ****finite resource**** generating urgent demand**

**Spectrum**** ****– What is it and Why does DOT Care?**

** ****Prime “Beach Front” Property!**

** ****21****ST**** Century Gold!**

**RADIO FREQUENCY SPECTRUM IS THE ENABLER**
** ****FOR GNSS**

**FOR SALE!   GOOD PRICE! **

**Notes:**
SPECTRUM ENCROACHMENT
Harmful interference to safety-of-life signals  forces constraints on critical operations
Spectrum encroachment could force costly upgrades to current user and service provider equipment
Limits infrastructure and equipage options
Reduces ROI for legacy systems
Complicates future certification processes
Rise of electromagnetic “Noise Floor” could prevent GPS applications from maturing 
Wireless E911, Precision approach and landing, etc.,.
DOT MISSION REQUIREMENTS
As a matter of U.S. national policy and law, radionavigation services DOT provides are protected from interference and disruption as vital national assets for both civil and military use.
Presidential Decision Directive (PDD) announcing comprehensive national policy on GPS (NSTC-6 on March 29, 1996).
National Defense Authorization Act, Pub. L. No. 105-85, § 2281, 111 Stat. 1910 (1997) (“PL 105-85”). 
Commercial Space Act of 1998, Pub. L. 105-303, § 104(b), 112 Stat. 2852 (1998). 
Department of Defense Appropriation Act, Pub. L. No. 105-262, § 8137, 112 Stat. 2337 (1999) (“PL 105-262”).   

## NATIONAL SPECTRUM MANAGEMENT 

**Notes:**
Federal Communications Commission is independent U.S. government agency, overseen by the U.S. Congress.
TWO SEPARATE, BUT VITAL  NATIONAL AGENDAS...
DOT is a U.S. Safety Regulator, responsible for ensuring that transportation modes are secure
“The Department’s top priorities are to keep the traveling public safe, increase their mobility, and ensure that our transportation system enables the Nation’s economic growth and development.”

FCC is a Market Facilitator, responsible for managing private sector, state, and local air waves
“Our mission is to manage the spectrum and provide leadership to create new opportunities for competitive technologies and services for the American public.”

AMENDED 1934 TELECOM ACT
FCC is charged with facilitating introduction of new telecommunications technologies, which shifted  burden of proof from new radio band entrants to established users, providing no express exemption to those who provide public safety, national security, or other such critical public services.[1]  
[1] SEC. 7 [47 U.S.C. 157] NEW TECHNOLOGIES AND SERVICES: (a) Any person or party (other than the Commission) who opposes a new technology or service proposed to be permitted under this Act shall have the burden to demonstrate that such proposal is inconsistent with the public interest.

## SPECTRUM REFORM NEEDED

_**PROBLEMS:**_
-  **United States General Accounting Office (GAO)**
***(now known as the Government Accountability Office)***
**TELECOMMUNICATIONS (January 2003) *****Comprehensive Review of U.S. Spectrum Management with ******Broad Stakeholder Involvement Is Needed***
**TELECOMMUNICATIONS (September 2002)  *****Better Coordination and Enhanced Accountability Needed****** to Improve Spectrum Management***

-  *“***Existing legal and policy framework for spectrum management has **_**not**_** kept pace with the dramatic changes in technology and spectrum use.”**

## FCC SPECTRUM TASK FORCE

**FCC Spectrum Task Force is a “roadmap” for potential spectrum management in the future – recommendations, **_**not**_** U.S. policy**
**Task Force supports ****unlicensed spectrum overlays**** on existing services**
**Task Force supports ****“spectrum commons”**** & ****“commodity trading”**
**Task Force supports ****“burden shift”**** from new entrants to incumbents **
**“****Market Model”**** of spectrum management must be used with caution.  Lower entry barriers and private sector competition does not support public safety missions.****  **

**ONE TRANSLATION OF “SHARING”:  **
**“****Not enough spectrum to go around, so we want yours...”**

**Notes:**
New technologies must be introduced with care.  Public safety services cannot become the collateral damage for the last man standing commercial market win of the latest, hottest, new killer app.  

## SPECTRUM POLICY INITIATIVE 

**Presidential Memo on Spectrum Policy **Memorandum for the Heads of Executive Departments and AgenciesSubject: Spectrum Policy for the 21st Century

**For Immediate Release****Office of the Press Secretary****June 5, 2003**

**The Initiative shall undertake a comprehensive review of spectrum management policies with the objective of identifying recommendations for revising policies and procedures to ****promote more efficient and beneficial use of spectrum **_**without harmful interference to critical incumbent users**_**.**

**Notes:**
THE DEPARTMENT OF COMMERCE SHALL PREPARE
 LEGISLATIVE AND OTHER RECOMMENDATIONS TO: 

(a)   facilitate a modernized and improved spectrum management system; 

(b)   facilitate policy changes to create incentives for more efficient and beneficial use of spectrum and to provide a higher degree of predictability and certainty in the spectrum management process as it applies to incumbent users; 

(c)   develop policy tools to streamline the deployment of new and expanded services and technologies, while preserving national security, homeland security, and public safety, and encouraging scientific research; and 

develop means to address the critical spectrum needs of national security, homeland security, public safety, Federal transportation infrastructure, and science. 

Chaired by Deputy Secretary of Commerce

	  	Agriculture	            Homeland Security
	 	Commerce	            Transportation
	  	Defense	            Treasury
	  	Energy	            NASA
	 	State 	 Office of Management and Budget
	  	Justice	 Office of Project SAFECOM
	  	Interior               Office of Science & Technology Policy
Department of Transportation Team
Spectrum Task Force:     Jeff Shane, Under Secretary for Policy
Spectrum Work Group:   Tyler Duvall, Deputy Asst. Secretary

## DELIVERABLES

**www.ntia.doc.gov/reports.html**

**  ****No. 13  Policy and Plans Steering Group (PPSG)**
- 	Establish a Policy and Plans Steering Group (PPSG) to formalize the coordination process and to ensure national security, homeland security, _public safety, federal transportation infrastructure_, scientific research, and economic opportunity are taken fully into consideration
**  ****No. 14  Policy Coordinating Committee (PCC)**
- 	As needed, the existing White House Policy Coordinating Committee (PCC) should be used to address spectrum-based radiocommunication issues that have not been resolved by the PPSG
-    **No. 15  Formalize Arrangement With the FCC Defense Commissioner**
- 	Work closely with the FCC’s Defense Commissioner to ensure the concerns of the agencies affected by national security, homeland security, public safety, and federal transportation infrastructure issues are considered fully in the course of NTIA and FCC proceedings
** **

**Meet Critical Spectrum Needs:**** **

**Notes:**
...that national security, homeland security, scientific research, and economic opportunity...the Assistant Secretary for Communications and Information should... 

The PPSG would provide advice to the Assistant Secretary on spectrum-dependent telecommunication policies, strategic plans, planned or revised positions on spectrum issues nationally and internationally, and help re  National Security, Homeland Security, Public Safety, Federal Transportation Infrastructure, and Science 
solve major contentious spectrum policy issues that affect the use of spectrum by federal and non-federal users. 

As needed, the existing Policy Coordinating Committee (PCC) of the White House should be used to address spectrum-based radiocommunication issues that have not been resolved by the PPSG.  Such issues would include only those having a potentially significant impact on national security, homeland security, public safety, federal transportation infrastructure, scientific research, or economic opportunity.  

Further, NTIA should work with the FCC to revise Section IV (3) of their Memorandum of Understanding to append the following sentence, “For cases in which a White House Policy Coordinating Committee is convened, the Commission shall provide an additional minimum 15 business days for White House review.” 

The Assistant Secretary for Communications and Information should.  

Further, this arrangement should be formalized by modifying the provisions of 47 C.F.R. § 0.181 to include the coordination of public safety activities as well as “national security, homeland security, and federal transportation infrastructure activities” as being within the purview of the Defense Commissioner.

Meet Critical Spectrum Needs: 
National Security, Homeland Security, Public Safety, Federal Transportation Infrastructure, and Science 

## Task Force Action Implementation 

**Presidential Memo on Spectrum Policy **Memorandum for the Heads of Executive Departments and AgenciesSubject: Spectrum Policy for the 21st Century

**For Immediate Release****Office of the Press Secretary****November 30, 2004**

**I hereby direct the heads of executive departments and agencies  to implement the recommendations in the Reports. **
**This order shall be implemented in a manner consistent with existing statutes, treaties, Executive Agreements, and Executive Orders affecting the operation of any of the departments, agencies, or instrumentalities of the Federal Government. **

## NTIA Projects – WLGs

- A. Domestic Policies
- B. International Policies
- C. Public Safety
- D. Information Technology
- E. Engineering Analyses
-     & Technology
-     Assessment
- F. System Review &
-     Spectrum Authorization
- G. Spectrum Planning &
-      Reform

**2 NTIA Reports – Jun 04**
**24 Recommendations**

**Presidents Direction ****–**** Nov 04**

**Implementation Plan **
**    ****(6 months)**
**Annual Progress **
**    ****Report (12 months****)**

**PPSG**
**(IRAC)**

**Secretary**

**President**

**Assistant**
**Secretary**

**President’s Spectrum **
**Policy Initiative/Direction ****– ****Jun 03**

***Implementation***
***Direction/Guidance***

***Advise***

***Guidance***

***Guidance***

- President's
- Spectrum Policy
- Initiative Implementation
- APPROACH

##  Spectrum Reform is Progressing

** ****-  RECOMMENDATIONS COMPLETE   -**
_**Spectrum Report 1**_**:****  Recommendations of the Federal  Government ****	****	****	****         Task Force**
_**Spectrum Report 2**_**:****  Recommendations from State and Local ****	****	****	****          Governments and the Private Sector**
**  ****IMPLEMENTATION ONGOING  –**
** ****1.  Develop Federal Departments’ Spectrum Strategic Plans**
** ****To NTIA by November 30, 2005**
** ****2.  NTIA will compile a comprehensive Federal Government         ****	****	****Strategic Spectrum Plan.  **

**PNT Executive Committee Departments will ensure this includes **
**regulatory protections for GPS/GNSS**

##     GNSS SPECTRUM ISSUES

**MISSION:  **
**PROTECT SENSITIVE RNSS BANDS FROM ADDITIONAL ELECTROMAGNETIC “NOISE” TO MINIMIZE RADIO FREQUENCY INTERFERENCE (RFI)**

-  **3 Examples to watch out for:**** **
**In-Band, Spurious, Out-of-Band Emissions (OOBE)**
**  ****Ultra-Wideband (UWB)**
**  ****Mobile Satellite Service **
**Ancillary Terrestrial Component (MSS ATC)**
**  ****GPS Re-radiators**

## WHAT IS ULTRA-WIDEBAND?

**Ultra-Wideband (UWB)** is a method of transmitting data over very wide bandwidths using a variety of modulation techniques (pulses, direct sequence spread spectrum).
**UWB is an “old technology’ being taught new tricks**; In the 1920s, Marconi’s spark-gap radio was a form of UWB transmission.  Today, UWB is being commercialized to access spectrum on an unlicensed basis.
**FCC rules constrain UWB emission limits in GNSS bands** to mitigate radio frequency interference (RFI).  Testing indicates emission limits should not be relaxed further  –  (intentional emissions should remain above 3.1GHz).
**UWB responsibly integrated** with current and planned systems & services offers new opportunities and benefits.  DOT firmly supports technological innovation and modernization.

**Notes:**
PREP FOR FUTURE WRCS
International Telecommunications Union - Radiocommunications Sector (ITU-R)
DOT Has A US Delegate On Task Group 1/8
Developing International UWB Spectrum Standards
Provides Guidance For Other Country's Domestic UWB Regulations

RNSS Community Seeking Draft New  Recommendations For ITU/R Containing:
Publication of US Domestic UWB Limits
Language Assuring That RNSS Protection Is Considered

 RNSS Spectrum Protection - UWB       Spectrum Standards Task Group 1/8     
DOT Seeking 4 International UWB Recommendations For ITU-R
Framework – How to set up rules and regulations for UWB
Characteristics – Compiled UWB technical characteristics
Impact – UWB Compatibility with authorized / licensed radio services
Measurements – Performing compliance checks

## WHAT IS MSS ATC?

- MSS ATC:
- Mobile Satellite Service Ancillary Terrestrial Component
- MSS ATC is building out a ground infrastructure to expand the reach of satellite communications
- Injects Out-of-Band Emissions (OOBE) in primary GNSS radio band  (1559 – 1610 MHz)
- MSS ATC impacts upon GNSS services is unknown
- High-density “network” of Mobile Terminals and Base Stations
- Mature MSS ATC infrastructure does not yet exist
- FCC regulatory ruling based on assumptions using one emitter in 1994

## International RNSS Spectrum Allocations

-   **World Radiocommunication Conference (WRC)**
**United Nations**** forum where global spectrum allocations are determined every 3-4 years**
**Final WRC Acts have ****Treaty Status**
**Stage now set for ****GPS Modernization****;  ****Coordination with Galileo****, other emerging constellations**
**  ****Future GNSS**
**Goal now is to ensure ****worldwide stability****, ****interoperability**** for a ****“seamless”**** GNSS  --  GPS remains a “free” utility**
**U.S. opposes forced mandates – fully supports ****open, benefit- driven transitions**

## WRC AGENDA ITEM 1.1

**HARMONIZED GPS/GNSS SPECTRUM USAGE**
**	**_**OVERVIEW**_**:  The title of this agenda item is ****“Deletion of Country Footnotes”****.  In order to maintain worldwide radio frequency protections, nations ****must cease allowing interference sources**** in the primary GPS/GNSS band (1559 – 1610 MHz).  **
**	****In about 40 countries, mainly European, Middle Eastern, and African, GPS radio spectrum is also used for fixed links (microwave links).  At WRC-2000,  these nations**** agreed to remove these fixed links****, or**** use on a non-interfering basis****, by 2015.****  **
**STATUS: **
**Nations are beginning to ****cease use of fixed links**** in the GPS bands.**
**U.S. will continue to encourage countries to adopt ****spectrum controls**** in their respective nations ****to promote safe and reliable GPS/GNSS use**** worldwide.**

**Notes:**
Many Foreign Administrations have not moved to protect GPS 
E.g., in 54 countries, including Germany and France, the Fixed Service is secondary in the GPS L1 band until 2015 (5.362B (WRC-03), 5.362C (WRC-2000))
Primary Fixed Service allocation in 11 others

U.S. commercial carriers experience interference to GPS navigation over Europe
Reported by IATA and ARINC
RFI over Italy from Fixed Microwave
RFI over Southern France

## WRC-2003  AGENDA ITEM 1.15

**SPECTRUM FOR GPS & GALILEO**
**	**_**OVERVIEW**_**:  WRC-2000 ****allocated radio spectrum**** to support ****GPS modernization**** including the new ****GPS L5**** as well as planned European ****Galileo**** and other satellite navigation systems.  **
**	****New spectrum for RNSS signals was allocated in bands used by ****long range radars****.  New spectrum for GPS L5 was allocated in the band used by ****DME’s****.  WRC-2003 reviewed the technical sharing arrangements for these allocations.**
**STATUS:  **
**1240 – 1300 MHZ  is Federal Spectrum under NTIA Regulation**
**Currently Radiolocation / ARNS Primary**
**ARNS / RNSS compatibility w/ FAA/DoD Long Range RADARS**
**U.S. Table of Allocations will be updated after Interagency Studies**

**Notes:**
Resolution 605 (RNSS vs. DME):  Aggregate equivalent power flux density (epfd) from RNSS satellites and potential interference to DMEs to be managed by RNSS satellite operator consultation group.

Resolution 606 (RNSS vs. long range ATC radars):  No RNSS power satellite power flux density limits.  Potential interference to radars managed through  regulatory provisions. 

Radio Navigation Satellite Service (RNSS) Issues 

  The GALILEO allocation between 1260 and 1300 MHz (approved at WRC 2000).
Spectrum users such as airborne and ground based radars are more concerned.
The issue to be settled at this conference was, what limits or constraints, if any, should be placed on GPS and GALILEO satellites to protect the other services?
It was agreed that existing GPS systems put into operation before 2000 would not be subject to constraints, but that limits would be imposed on all new systems filed at the ITU after 1 January 2005.

US Spectrum Support of Galileo       
Actions Needed for US Reallocation of 1260 - 1300  
                                       Megahertz

U.S. Studies needed / in process
ARNS / RNSS compatibility studies
Interagency Effort

Project a timeline for completion
Studies Complete
Formal Letter to NTIA Requesting Reallocation
NTIA / FCC Reallocation Actions Complete

Other issues for consideration
Timeline for GPS International protection
GPS L1 secondary in until 2015 in other countries

  U.S. Table of Allocations

1240 – 1300 MHZ  is Federal Spectrum under NTIA Regulation
Currently Radiolocation/ARNS Primary
FAA/DoD Long Range RADARS
No US RNSS systems planned for 1240-1300 MHz

An update of the US Table of Allocations to reflect the new RNSS allocation in 1260 – 1300 MHz has not been made.
Not unusual, e.g., US Table also does not reflect decades-old 1240-1260 MHz RNSS allocation

 Additional Technical Issues
Interference from Radiolocation / Radionavigation to RNSS has not been studied

Federal Aviation Administration
E5b Compatibility with DME Study Ongoing
DME reassignment needed?
Results depend on E5b receiver design -- Design does not exist yet

ICAO Initiatives – NSP / WG1
Development of SARPS for future GNSS elements / signals including Galileo
Update SARPS Part B, Appendix B, Resistance to Interference of GNSS Signals

WAAS exploiting Galileo capabilities
When Galileo becomes available
When Galileo is authorized for use in U.S.

## SUMMARY

**DOT firmly supports spectrum innovation and creativity, however...****  ****maintaining a safe and effective infrastructure**** for the traveling public ****is our first priority**
**Consensus Recommendations**** of the President’s Spectrum Policy Initiative**** ****will improve Executive Branch spectrum management, coordination, transparency, and accountability**
**U.S. and International spectrum positions and regulatory actions **_**must**_** reflect a sensible balance**** between security, public safety, and economic growth** **for GNSS to continue evolving**

## POINT OF CONTACT INFO.

**James J. Miller, Deputy Director**
**U.S. Department of Transportation, Office of the Secretary**
**Navigation & Spectrum Policy,  Nassif Bldg.,  Rm. 10223E**
**400 Seventh Street, S.W.,  Washington, D.C.  20590**
**Wk:        (202) 366-5918**
**Fx:          (202) 366-3393****	****	****	**
**E-mail:   jj.miller@dot.gov**
- _[www.dot.gov](http://www.dot.gov/)_