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COMOR 

18 December 1962 

MEMORANDUM FOR: Committee on Overhead Reconnaissance 

SUBJECT: SIGINT Satellite Capabilities 

and Requirements 

1. In pursuance of the action of the COMOR at its 

meeting of 13 December 1962 (COMOR-M-124, paragraph 5), 

the COMOR Working Group met and agreed to the following: 

a. To disseminate the attached excerpts 

from the report prepared for the +3+ NRO by the Electronic 

Reconnaissance Task Group (ERTG) dated 27 July 1962. 

It is requested that this document be carefully studied 

prior to the meeting of 27 December at which time Colonel 

Istvan of the-(-5-)-NRO will be present to brief COMOR. 

b. To recommend the addition of three tenta, 

tive collection categories to those originally specified by 

the ERTG. These categories are located in Section III 

as b, e, and f. 

c. To initiate a. SIGINT targeting system 

analogous to that currently applicable for photography 

with appropriate adjustments. To permit time for the 

military agencies to consult theater ccmmands with 

regard to their SIGINT requirements, .a meeting of the 

Working Group for the purpose of establishing specific 

targets will be held on 21 January. 

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2, It is proposed that, in the light of the briefing on 

27 December and any relevant discussion that meeting, the 

COMOR-SIGINT Working Group be requested to re-examine the 

attached document and submit its recommendation to the COMOR 

as soon as feasible. 

044 

mes Q. Reber 

Chairman 

Committ e pn Overhead Reconnaissance 

1 Attachment 

Subject paper 

Copies 2, 3--State TCO 

4- -DIA (Col. May) 

5,6,7,8- -DIA TCO 

9--OACSI TOO 

10--ONI TCO 

11, 12--AFCIN TCO 

13,14--NSA TCO 

15,16--NRO TCO 

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I SAT ET,T,ITE. SLCILN GENERAL, XONSI DERV IONS 

The Satellite as an SIGINT Platform 

SIQINT satellites have advantages over other means of SIGINT 

collection, as follows: 

a. They provide access to areas normally denied 

to most other collection techniques. Other techniques such as the 

intercept of signals reflected from the moon or from magnetid fieldaligned ions in the E layer can be used to extendSIGINT coverage 

beyond the line of sight; but at present, none of these techniques has 

matched the greater probability of intercept: or accuracy cif measurement afforded by the satellite. 

b. They are less vulnerable to physical enemy 

counteraction than overflight conducted with aircraft or drones. This 

situation cannot be counted on for the indefinite future, however, the 

present and potential capability to conduct multiple passes over 

denied areas free from the risk of capture of personnel or equipment 

is significant, 

c. Continuous and repetitive collection by multiple 

orbital passes can provide a basis for the determination of significant 

variations in the ambient electronic environment. 

d. If the purpose of the satellite is unknown, it is 

not likely that target emitters will be shut down for security during the 

pet*:iods in which the collection attempt is being made. The shutting 

down of emitters is a more likely occurrence in the case of nonsatellite reconnaissance operations. It must be noted, however, that 

for the intercept of some types of emitters, such as GCI and SAM 

radars, the non-satellite reconnaissance methods have the advantage 

of exciting an increased signal activity against which to collect. 

SIGINT satellites have disadvantages as follow: 

a. Space and weight limits place severe restrictions 

on satellite programs. These limits restrict the number of functions 

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and the accuracy with which these functions can be performed. 

Measurement of radio frequency, pulse repetition frequency, pulse 

width, the location of a target emitter, as well as the length of the 

operating life and system reliability are all influenced by the space 

and weight available for the collection payloads. 

b. Reliability is difficult to achieve. The more 

complex the task placed on a Satellite SICrINT system, the more 

complex the collection system must be with resultant penalties in 

reliability. The reliability of the collection system may also be 

reduced as a consequence of making theSP: INT system an., adjunct 

to another operation. Fundamental to a satellite program is the need 

for reliable boost into proper orbit. 

c. SIGINTsatellites are relatively inflexible 

systems, The time required to mount an orbital collection mission 

is relatively long, Once in orbit, satellites cannot readily be redirected 

to a ' specific area at a particular time in order to operate against 

a target of opportunity, This circumstance is compensated for only 

in part by the greater area of coverage which can be provided by the 

satellite. 

To intercept aSIGINTsignal, a satellite, like other intercept 

"Qiairie platforms, must: (1) be essentially within the line of sight of the 

emitter; (2) be present at the time the emitter is radiating; (3) have 

its receiver covering the frequency of the emitter; and (4) have a 

receiving system sensitivity great enough to detect that electromagnetic 

energy (main lobe or side lobe) which is being radiated in its direction. 

Satellites can readily intercept rotating and search type radars which 

form the major defensive network of the Soviet'Union and which 

operate a high percentage of the time, They are much more limited 

in their ability to intercept some of the specializedSICINT systems 

such as the ABM detection systems and others having a narrow 

sector scan. This latter category includes emitters inwhich highest 

interest currently exists. It should be noted, however, that the 

intercept of such emitters poses equally difficult problems for other 

type intercept platforms. 

SIGINT satellites are expensive, primarily in terms of cost to 

achieve proper orbit. it is difficult to determine a basis for valid 

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comparison of the costs of Satellite SIGINT programs against costs 

of other type SIGINT programs. SIGINT satellites employ different 

concepts; their development and employment costs as well as their 

potential return, are correspondingly different. Overall, their 

expense may not be greater than that of other collection means. 

Probability of Intercept 

Probability of intercept is the most fundamental element of a 

sound satellite signal collection program. Not until a sufficiently 

high confidence level for the probability of obtaining a useful number 

of intercepts has been achieved can the determination of parameters 

such as location, measurement of signal characteristics, etc. , be 

given consideration. 

Meaningful criteria have not heretofore been established which 

would aid in determining the minimum acceptable probability of intercept needed for a useful. collection effort. While such criteria are 

lacking, certain generalized approaches can be of use. For example, 

it appears reasonable to expect that in fulfilling a requirement for 

Radar Order of Battle (ROB) there should be a high probability of 

intercepting a large percentage of particular emitters per program 

period (i. e. , per month, or per quarter). On the other hand, in 

fulfilling a requirement to determine the activity pattern of a given 

type of radar, it seems reasonable that a high probability of intercept 

per orbit must be assured. The significant: fact is that "reasonable 

probability" is different depending upon the nature of the requirement. 

Achieving reasonable probability of intercept to satisfy any 

given requirement has a fundamental influence on the design and 

employment approach required. To intercept, with reasonable probability, a high powered, circularly scanning radar with a high frequency of usage, call.s for a quite different receiver design and orbital 

employment mode than is needed to intercept a signal estimated to 

have a limited angular beam coverage, and to be radiating only a 

small percentage of the time. 

Frequency Limits 

Many factors, 

sensitivity, receiving 

such as space loss, satellite altitude, receiver 

antenna gain, radio interference, galactic noise, 

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emitter power, beam Aructure, and nature of modulation contribute 

to the establishment of practical limits (upper and lower) for the 

frequency regime in which Satellite SIGINT can be employed effectively. Because these factors are variable, no exact limits can be 

set. 

It; appears reasonable that the lower limit should, in general, 

be about mu Below this frequency ionoshperic reflections permit beyond line of sight intercepts to be made by ground stations. 

The upper limit of the frequency band in which Satellite SIGINT 

can be expected to be effective is somewhat harder to define. This 

limit appears to be just above X band. The probability of intercept 

for the type of signals found at X band and higher is greatly diminished 

as a consequence of the following: 

a. The higher frequencies are employed to gain more 

directivity, and to be able to utilize a broader band width of the 

spectrum. 

b. Peak and average powers are greatly reduced 

at the higher frequencies. 

To provide a reasonable probability of detecting directional 

signals in the X band or higher frequencies by Satellite SIGINT, side 

lobe radiations must be detected, and a fairly large portion of the 

spectrum must be searched. The lower peak power and the use of 

greater transmission band widths (narrow radar pulses) contribute 

to making side lobe detection at these frequencies difficult. There 

appears to be little to be,gained at this time or in the near future in 

attempting SatelliteSIGINT operations above about t

. 

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II. EVALUATION OF PRESENT PROGRAMS 

Three SIGINTsatellite programs, POPPY, and 

are currently in operation and have provided significant 

information to intelligence users. The successful payloads of these 

programs have demonstrated their capability to measure signals 

with sufficient accuracy to identify new types of radars, to locate 

radars of importance for incorporation in the SIOP, and to measure 

changes in signal characteristics such as PRF jitter and variations 

in scan rate. Though none of the three has approached the optimum 

capability to meet intelligence requirements, each has contributed 

substantially to the art of Satellite SIC1INT collection. The capability 

of each is complementary to the others. The three provide a good 

basis for development of a sound program. 

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c. 

POPPY 

a. POPPY, by using a simple real time retransmitter 

of high reliability on an unstable platform, provides a useful orbital 

life of many months. The use of a unit probability receiver insures 

the intercept of main lobes of high power radars within a selected frequency band. Although the receiver does not measure the discrete 

frequency of a radar, it does respond to the other usual parameters 

of a signal except pulse width. Project POPPY is commendable for 

its simplicity, and long operating life. It is limited in its effectiveness by the relatively low sensitivity required for the designed mode 

of operation. 

b. POPPY provides the basis for an FLINT satellite 

capable of effectively and continuously monitibring the radar environment 

over many bands of the frequency spectrum. 

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c. The current disadvantages of POPPY area 

(1) Its effectiveness decreases against signals 

at frequencies above about 5000 MCS because of the low peak 

effective radiated power and the general nature of employment 

of such emitters. In some cases, such as for signal§ from 

its sensitivity is so low as to preclude intercept 

even at 3000 MCS. 

(2) The narrow band width of the channel over 

which it relays collected signal data limits the amount of 

signal data that it can furnish. 

(3) It does not generally provide, in single 

package deployment, emitter locations for other than V-beam 

and nodding height finder type radars. For these radar types, 

location can be determined to an accuracy of about 

d. Intelligence Capability - POPPY has a reasonable 

probability of intercepting some signals of current highest priority, 

such as however in its 

present configuration and usage it has limited ability to provide the 

technical details needed to meet the requirements. 

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COMOR 

III. SATELLITE ELINT REQUIREMENTS 

As a general and basic rule, the capability of a collection 

system should not inhibit the requirer from expressing his needs 

fully and emphatically. Valid requirements may and do include those 

beyond the present capability of satellite collection systems, but 

such requirements must be viewed as indicating the direction toward 

which basid R &D and new techniques and concepts should be oriented, 

and not as a basis for defining the near term collection effort. Requirements which have little or no chance of being met by employment of 

satellite collection methods should not be levied against satellite 

collection programs for fulfillment. 

Satellite ELINT, though having much in common with other 

ELINT collection efforts, has many inherent limitations which set 

it apart from other ELINT operations. Some of the requirements, 

as currently expressed, have virtually no chance of being fulfilled 

by Satellite ELINT. In particular, those requirements pertaining 

to active ECM, earth to space command transmissions, frequencies 

and emitters employing relatively fixed scan with very 

narrow beams, are not likely to be fulfilled in the near term by 

Satellite ELINT. Therefore, only those requirements of the very 

highest priority, for which the Satellite ELINT system is suited, and 

for which a satellite uniquely can provide coverage, should constitute 

the basis for development of the Satellite ELINT collection program. 

The current limitations of Satbllite ELINT collection techniques 

require that the number of parameters to be measured, and the 

accuracies to which these measurements are made, be held to the 

very minimum needed to fulfill the need constituting the basis of the 

requirement. 

Requirements and capabilities have been translated into 

Collection Goals for CY 1963. by the Electronic Reconnaissance Task 

Group of the-69)-NRO (a, c, and d) and tentatively amended by the COMOR 

SIGINT 'Working Group (b, e, and f):.- Theibrgoal'aencompaes the:foIlowing: 

Detect and,petermine She Characteristics of New and, 

Unusual Signals in the Sind-Soviet -Bloc. Such signals are not predictable 

as to employment, deployment, or characteristics. Accord7 

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ingly, collection against this goal must be as general and as continuous 

as is practical to achieve, Coverage of the frequency spectrum from 

40 to 12,000 MC is desired. 

Falling within this goal is the following special case of current 

highest priority: 

Determine the Character of the ABM Systems, Little is known 

of these syitems Due to the apparent infrequent use of these systems 

at this time, repetitive coverage of suspect areas is indicated. The 

present need is for extensive general and specific search -.Within 

selected bands of the frequency spectrum. Many estimates as to the 

best frequencies for search have been proposed. A composite list of 

these estimates arranged according to the priority in which satellite 

collection effort should be assigned is as follows: 

500 - 650 MC and 160 - 250 MC 

160 - 1500 MC 

160 - 4000 MC 

40 - 12, 000 MC 

b. Determine Location and Characteristics of ICBM and 

IRBM/IRBM Associated. Radars. Little is known of these radars. Due 

to apparent infrequent use of these radars at this time, repetitive 

coverage of known site deployment areas is required. The following 

frequencies are recommended for search: 

60 - 230 MC 

550 - 650 MC 

730 - 745 MC 

1800 - 2200 MC 

2700 - 3200 MC 

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c. Determine the Characteristics and Locations of 

Guidance Radars Associated with SAM Sites within the Sino-Soviet Bloc. 

Particular interest exists in the 100 - 900 MC and 2900 - 10,000 MC 

bands. Location of these radars to a degree of accuracy permitting 

their association with known SAM site locations is desired. The 

infrequent use and high directivity of SAM related guidance radars 

indicate a need for both sensitive and repetitive coverage. 

d. Determine Radar Order of Battle (ROB) for EW/GCI 

Emitters within the Sino.Soviet Bloc. Particular interest exists in 

radars operating within the 60 - 90 MC, 200 - 220 MC, 150 - 180 MC, 

560 - 580 MC, 800 - 900 MC, and 2600 - 3200 MC bands. Of some 

interest, but apparently of declining importance, are radars in the 

70 - 90 MC band. Coverage providing locational information is desired. 

As a minimum, the cumulative collection by the end of the year should 

provide high confidence that comprehensive coverag% has been attained. 

e. Determine characteristics of Electronic Equipment 

Associated with the Soviet Space Program. Particular interest exists 

in the 60 76 MC, 100 - 400 MC and 2760 - 2840 MC bands. The 

infrequent use and high directivity of some of the equipment indicate 

a need for both sensitive and repetitive coverage. 

f. Determine Characteristics of Submarine Launched 

Missile Telemetry. Particular interest exists in the 55 - 90 MC, 

130 - 170 MC, ZOO - 250 MC and 2500 - 3000 MC bands. The infrequent 

use of the equipment indicates a need for repetitive coverage. 

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Tab A 

SUGGESTED CRITERIA FOR SPECIFYING REQUIREMENTS 

FOR SATELLITE .SIGINT 

The SIGINT satellite should be configured in response to the 

requirements of the intelligence community.. Inasmuch as satellites 

are expensive and once in orbit been me cquite inflexible as to the tasks 

they might do, it is necessary that the program planners make every 

effort to insure that the maximum number of requirements are being 

satisfied with each successful launch. I If the program planners are to 

achieve this goal and maximize the usefulness of the product of Satellite 

SIC:1NT, they must havell (a) as much pertinent background friformation 

on each requirements target as possible; (b) a clear understanding of 

that which is actually wanted (1. e. , what is absolutely essential in 

comparison to that which would be Iice to knoiV); and (c) the allowable 

tolerances to which parameters must be measured. 

As an aid to the program planners i.n obtaining this type.of 

information, the following guide for specifying collection requirements 

for satellite SIGINT reconnaiSsaride ' is proposed. The guide consists 

of a requirement format comprising four major subdivisions: 

General Statement Requirements 

Background Information 

III, Specific Search Parameters 

VI. Parameter Tolerances 

A brief explanation of these subdivisions along with a sample format 

follows: 

I. General Statement of Requirements. A statement to tell the 

collector the basic job to be done. This may be as specific as: 

"Determine the location of radars in the 

vicinity of OMSK " or as general as: 

"Determine the employment of the 2000-2500 me band 

for radars in the Soviet Union" 

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Tab A 

II. Background Information. This should include a concise 

statement of known facts about the target Ond those estimates that 

have been made about it. 

III. Search Parameters. These parameters will determine what the 

collection operation is to encompass. These vary with the technical 

demands of the requirement. For example, a requirement expressing 

interest only in a radar 'with'a particular nickname or IBM code designation immediately delimits the collection parameters to the signal of 

interest while a broad coverage requirement may only delimit a particular frequency band. Some parameters listed in the format may be 

neither known nor applicable to a particular requirement. Only those 

that are clearly pertinent should be included. A discussion of various 

types of parameters follows: 

a. Frequency Frequency may be the sole signal parameter to be specified. It can be stated as a band throughout which 

search is required, or it. may be indicated by the use of a nickname or 

IBM code designation of a radar. 

b. Ranges of PRF, PW, Antenna Scan Rate and Beam 

Width and Kind of Modulation or Type of Polarization. These are 

necessary to indicate the capabilities the collection systems should 

possess. Such parameters are also useful in establishing limits which 

would be satisfactory to enable the rejection of unwanted signals. 

c. Estimated Power and Beam Pattern. The estimated 

power of the emitters for which search is to be conducted is necessary 

to determine the required sensitivity of the system. The estimated 

power of the side and back lobes as well as the main beam of the signal 

are also pertinent. This factor, along with frequency, perhaps most 

greatly influences the design of the satellite receiving system. Of 

similar nature, because these also affect the probability of intercept, 

are the estimated beam width and the size of the sector scanned. 

d. Geographical Area. A satellite can collect selectively 

by being told when and for how long to collect. This control can often 

be reprogrammed from the ground, but once launched, significant 

increases in "on" time may not be feasible due to data storage and 

transmission, or power limitations. A geographical requirement should 

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Tab A 

NNW 

specify areas that are normally impractical to cover by other types 

of collection platforms. The satellite must be integrated into the 

overall collection program, thus periphery collection that can be done 

by less exotic means should only be assigned to the satellite as 

extensions of collections over more inaccessible areas. Such extensions 

could, however, conc:eivably reduce the need for other collection efforts. 

The geographical area in which search is desired may be as large as a 

country or as small as the metropolitan area of a particular city, but 

different requirements may require different collection and transmission 

techniques . 

e. Periodicity of Cover. As it is anticipated that electronic 

signal environments will continue to change constantly, the collector 

must be told the desired periodicity with which repetitive data must be 

collected. On a signal of high interest, a collection effort on every 

available orbit, or even a special mission, would well be required; while 

an up-dating of data once every few months may be adequate for other 

requirements. A periodic requirement might be indicated for Radar 

Order of Battle (ROB) statistical studies to determine radar usage by 

hour/day. 

f. Collateral and Miscellaneous Requirements. These 

take many forms and further Serve to define the collection effort desired. 

An example might be that in addition to a. routine periodic up-dating as 

indicated in the preceding subparagraph, it may be desired that a special 

collection effort should be conducted during a period of unusual interest 

such as a launch or recovery of a space vehicle. 

Parameter Tolerances. These should be provided 

(1) "desired" parameters accuracy, (2) "minimal" parameters 

accuracy, without which requirement cannot be satisfied, and (3) "nice 

to know" or "of interest" parameters. For example, if TOKEN radars 

are simply to be identified from S-band data, exact frequency, PRF 

and scan rate might be "desired" but PRE and scan rate would be 

"minimal", while PW and similar data would fall in the "nice to know" 

catagory. The parameters listed under the three categories or 

priorities may be any combination of emitter parameters with the 

minimum acceptable accuracy needed to satisfy the requirement. 

It should be noted that the accuracy with which intercepted signal 

parameters need to be measured varies according to the purpose for 

which the intercept is intended, (i. e., identification of known types of 

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Tab A 

radar, location of specific emitters, detection of new and unusual 

emitters, evaluation of capability of a given type of radar or for 

giving targeting information to another collection facility). Though the 

responsibility for designating desired accuracy of parameter measurements rests with the levier of the requirement, analysis experience 

with various collection systems has shown that the degree of the accur.wy of intercept does not need to be as great as normally specified by 

the consumer. 

The following is a suggested guide as to the needed accuracy:for 

such measurements. 

a. For identifying known types of radars: 

1. Freq. 10% 

2. PRF 

3. Scan rate 5% 

4. P. W. 1100% (if needed at all) 

b. For locating specific radars: 

1. PRF 1% or better ) Depending upon signal 

2. Frequency 1% or better ) density and lapse of 

3. Scan rate 1% or better ) time betweeninterc epts 

4. Mean real time of intercept i 1 sec. 

For identifying a new and unusual type of radar: 

1. Freq 10 - 20% 

2. PRF 10 - 20% 

3. Scan rate 10% 

4. P. -W. 100% (if needed at all) 

d. For evaluation of radar capability of an isolated radar: 

(The listed variations in each parameter will give a 10% variation in 

radar range.) 

1. Freq (not jump type) 20% 

2. PRF 40% 

3. Scan rate 20% 

4. Pulse width 40% 

5. Peak power 40% 

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Tab A 

For all requirements, there is a need for a statement as to 

the accuracy ineeded for the determination of the location of a 

particular emitter, even if merely to state that only the general 

geographical area need be determined. Although the satellites 

themselves do not now compute the Location of a signal, the collection 

effort must make sufficient measurements to permit computation on 

the ground to the accuracy specified. 

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Tab B 

SAMPLE REQUIREMENT 

General: A requirement exists for technical intelligence 

data on the signal designated as SAIEto determine electronic 

characteristics and performance capabilities of the emitter and 

system associated with this signal: 

Background Information: The signal was first intercepted 

emanating from the Soviet Zone of Germany in September 1961. 

To date, all intercepts of this signal have emanated from this area. 

There are four probable locations asscciated with this signal. The 

locations are reported to be in the area of Jena, Lothen, Rathenow 

and Wereneuchen, Soviet Zone of Germany. No known emitter has 

been associated with this signal. 

Specific. SEARCH Requirements:: 

A. Emitter Nickname: 

B. Signal Parameters 

1. Frequency: 1770-1800 me 

2. PRF: 

a. 715-725 PPS 

b. 835-845 PPS 

c. 280 PPS 

d. 560 PPS 

3. P. W. . 5-1.0 sec. 

4. Beam Characteristics: Complex at 26-28 cps. 

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Tab t 

5. Additional Information: Signal is keyed ON and 

OFF with an ON period 3. 6-4, 0 seconds and an OFF period 

1. 0-2.6 seconds. 

C. Periodicity of Coverage. Daily coverage desired,' 

minimum coverage of once a week. For coverage outside of Sovi'et 

Zone of Germany, once a month is sufficient. 

D. Geographical Coverage. Primary coverage Soviet Zone 

of Germany. Secondary interest is all of Sino-Soviet Bloc. 

III. Specific Collection Parameters. 

A. Desired 

Parameters Accuracy 

RF 10% 

PRF 

PW 10% 

Scan Rate 

Beam Width 

Pulse Modulation Character 

B. Minimal 

Parameters Accuracy 

RF 10% 

PRF 1% 

Sca,n Rate .1% 

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Tab B 

C. Of Interest 

Parameters 

1. Polarization 

2. Nature of Scan 

Accuracy 

3. Simultanebus operation -- 

on two or more PRFEI 

D. Location 

1. Desired 1 25 miles 

2. Minimum / 100 miles 

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