Source: http://www.fcc.gov/document/esaa-nprm-and-report-and-order
Timestamp: 2014-08-21 04:54:35
Document Index: 755308198

Matched Legal Cases: ['arts 2', '§ 2', 'art 25', 'art 25', 'art 25', 'arts 2', 'art 22', 'arts 1', '§ 22', 'arts 2', '§ 2', '§ 310', '§ 2', '§ 25', '§ 25', '§ 25', 'art 25', '§ 2', '§ 2', '§ 2', '§ 25', '§ 2', 'art 25', 'art 25', '§ 2', 'arts 2', '§ 25', '§ 25', '§ 25', '§ 25', '§ 25', '§ 2', '§ 25', '§ 25', '§ 2', 'art 25', 'art 25', '§ 2', '§ 2']

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ESAA NPRM and Report and Order
FCC 12-161 Before the
Revisions to Parts 2 and 25 of the Commission’s )
Rules to Govern the Use of Earth Stations Aboard )
Aircraft Communicating with Fixed-Satellite )
IB Docket No. 12-376
Service Geostationary-Orbit Space Stations )
Operating in the 10.95-11.2 GHz, 11.45-11.7 GHz, )11.7-12.2 GHz and 14.0-14.5 GHz Frequency )
Service Rules and Procedures to Govern the Use )
IB Docket No. 05-20
of Aeronautical Mobile Satellite Service Earth )
Stations in Frequency Bands Allocated to the )
NOTICE OF PROPOSED RULEMAKING AND REPORT AND ORDER
Comment Date: [75 days after date of publication in the Federal Register]Reply Comment Date: [105 days after date of publication in the Federal Register]
II. EXECUTIVE SUMMARY .................................................................................................................... 2III. BACKGROUND .................................................................................................................................... 6IV. DISCUSSION....................................................................................................................................... 11
A. ESAA Allocation ........................................................................................................................... 12
1. Operations on a Primary Basis in the 11.7-12.2 GHz (space-to-Earth) Band ......................... 132. Operations on an Unprotected Basis in the 10.95-11.2 GHz and 11.45-11.7 GHz Bands (space-to-Earth) Within the United States.................................................................... 18
3. Operations on a Secondary Basis in the 14.0-14.5 GHz Band (Earth-to-Space)..................... 22
B. Coordination .................................................................................................................................. 25
1. Coordination with the Space Research Service in the 14.0-14.2 GHz Band........................... 252. Coordination with Radioastronomy Service Stations in the 14.47-14.5 GHz Band................ 30
a. Coordination Procedure .................................................................................................... 31b. Relevant RAS Facilities.................................................................................................... 36c. Future RAS Facilities........................................................................................................ 39
C. Technical Rules.............................................................................................................................. 41
FCC 12-161 1. Introduction ............................................................................................................................. 412. Off-Axis EIRP Density Limits Along the GSO Arc ............................................................... 443. Off-Axis EIRP Density in Directions Other than Along the GSO ARC................................. 544. Variations in Antenna Gain Pattern and Transmit EIRP Density............................................ 575. Antenna Pointing Accuracy Requirement Adopted ................................................................ 626. Shut-off Capability .................................................................................................................. 677. Dynamic EIRP Density Systems ............................................................................................. 728. Higher EIRP Density Levels Permitted if Coordinated........................................................... 799. Antenna Performance Standards for Receive Terminals in the 11.7-12.2 GHz (space-
to-Earth) Band ......................................................................................................................... 84
10. Tracking/Data Logging Requirements .................................................................................... 8611. Contention Protocols ............................................................................................................... 9012. Protection of Terrestrial Systems ............................................................................................ 94
a. Power-flux Density Limits to Protect FS.......................................................................... 94b. Minimum Elevation Angle................................................................................................ 99
D. Licensing Considerations............................................................................................................. 101
1. Blanket and Individual Terminal Licensing .......................................................................... 1022. License Term......................................................................................................................... 1053. Network Control and Monitoring Center Requirements ....................................................... 1064. ALSAT and the Permitted List Point of Communication Designations................................ 1095. Information Requirements..................................................................................................... 1136. Procedures for Conforming Amendments/Modification Applications.................................. 114
E. Regulation of ESAA Operations on U.S.-Registered and Non-U.S.-Registered Aircraft ........... 119
1. U.S.-Registered Aircraft........................................................................................................ 120
a. Operations In or Near Foreign Nations........................................................................... 121b. Operations Over International Waters. ........................................................................... 123
2. Non-U.S.-Registered Aircraft Operating in U.S. Airspace ................................................... 125
F. Law Enforcement......................................................................................................................... 132G. Aeronautical Mobile Satellite (Route) Service ............................................................................ 139H. Conclusion ................................................................................................................................... 141
V. NOTICE OF PROPOSED RULEMAKING ...................................................................................... 142
A. Allocations ................................................................................................................................... 142
VI. PROCEDURAL MATTERS.............................................................................................................. 143
A. Regulatory Flexibility Act ........................................................................................................... 143B. Paperwork Reduction Act of 1995............................................................................................... 145C. Congressional Review Act........................................................................................................... 147D. Ex Parte Rules ............................................................................................................................. 148E. Filing Requirements..................................................................................................................... 149
VII. ORDERING CLAUSES.................................................................................................................... 153APPENDIX A – Final Regulatory Flexibility AnalysisAPPENDIX B – Initial Regulatory Flexibility AnalysisAPPENDIX C - Final RulesAPPENDIX D - Proposed RulesAPPENDIX E - List of Commenters
In this Report and Order, we provide for the efficient licensing of two-way in-flight broadband services, including Internet access, to passengers and flight crews aboard commercial airliners and private aircraft. These rules will enhance competition in an important sector of the mobile telecommunications market in the United States and promote the widespread availability of Internet 2
FCC 12-161 access to aircraft passengers. The Report and Order establishes technical and licensing rules for Earth Stations Aboard Aircraft (ESAA), i.e., earth stations on aircraft communicating with Fixed-Satellite Service (FSS) geostationary-orbit (GSO) space stations operating in the 10.95-11.2 GHz, 11.45-11.7 GHz, 11.7-12.2 GHz (space-to-Earth or downlink) and 14.0-14.5 GHz (Earth-to-space or uplink) frequency bands. Installed on the exterior of the aircraft, the earth stations provide a satellite-based communications link between the airborne commercial and private aircraft and terrestrial communications systems. Adopting these rules will reduce the administrative burdens on both applicants and the Commission, should allow the Commission to process ESAA applications up to 50 percent faster, and will speed the deployment of ubiquitous broadband service aboard commercial and private aircraft. II.
● Allocating ESAA on a primary basis in the 11.7-12.2 GHz (space-to-Earth) band,
● Allocating ESAA on an unprotected basis in the 10.95-11.2 GHz and 11.45-11.7 GHz (space-to-Earth) bands,
● Allocating ESAA on a secondary basis in the 14.0-14.5 GHz band (Earth-to-space),
● Requiring ESAA licensees to coordinate their operations with stations in the Space Research Service and the Radioastronomy Service to prevent interference,
● Adopting technical rules for the operation of ESAA systems to ensure that ESAA systems do not interfere with other FSS users or terrestrial Fixed Service (FS) users,
● Adopting licensing requirements and operational requirements for ESAA for both U.S.-registered aircraft and for non-U.S.-registered aircraft operating in U.S. airspace, ● Requiring ESAA licensees to operate consistently with the Communications Assistance to Law Enforcement Act (CALEA), and
● Declining at this time to extend certain requirements concerning 1.5/1.6 GHz safety services to other frequency bands, including those used by ESAA.
This Notice of Proposed Rulemaking requests comment on a proposal to elevate the allocation status of ESAA in the 14.0-14.5 GHz band from secondary to primary, which would make the ESAA allocation equal to the allocations of ESV and VMES. This Notice of Proposed Rulemaking and Report and Order implements ESAA as an application whose allocation status and technical and 3
FCC 12-161 licensing rules are consistent with those of ESV and VMES. ESAA will allow licensees to bring broadband service to an underserved sector: passengers and crew aboard aircraft in flight.
Historically, FSS has been a service involving communications between earth stations at given positions communicating with one or more space stations. Typically, the given positions of an earth station may be specified fixed points or fixed points within a specified area.1 Most FSS services are provided by space stations operating in GSO approximately 22,000 miles above the Earth’s equator maintaining the same position relative to given location on the Earth’s equator. Generally, U.S.-licensed GSO FSS space stations operating in the bands at issue in this proceeding are spaced approximately two degrees apart along the geostationary orbit.2 Two-degree spacing required the adoption of stringent limits on the off-axis gain, or off-axis equivalent isotropically radiated power (EIRP) density, of an earth station antenna pointed toward space stations other than the target space station. Traditionally, to meet the technical constraints necessary in a two-degree orbital spacing environment, earth stations utilized narrow beam transmissions using high gain parabolic antennas sited in a single place and carefully pointed at the space stations with which they are to communicate.
Technological advances have made it feasible for companies to employ antenna configurations and tracking systems that allow the transmissions from an earth station to remain centered on the desired GSO FSS space station, while the platform upon which the transmitting earth station antenna is mounted moves. Recognizing these advances in antenna system design, in 2005, we adopted licensing and technical rules for ESV to communicate with GSO FSS space stations while in motion, and defined ESV as a primary application of the FSS with mobile capabilities.3 In 2009, we similarly adopted licensing and technical rules for VMES.4 Like ESVs, VMES are mobile earth stations that communicate with GSO FSS space stations, and like ESVs, we defined VMES as a mobile application of the FSS. Collectively, although mounted on mobile platforms, the ability of these new antenna systems to satisfy stringent technical criteria allows us to treat these systems, in many respects, as if they were communicating with GSO FSS space stations from a fixed position. This Report and Order completes the land, sea, air triad of satellite mobile broadband services, setting forth the technical and licensing rules 1 FSS also includes satellite-to-satellite links and feeder links for other radiocommunication services. 47 C.F.R. § 2.1(c).
2 See generally Licensing of Space Stations in the Domestic Fixed-Satellite Service and Related Revisions of Part 25 of the Rules and Regulations, CC Docket No. 81-704, Report and Order, 54 Rad. Reg. 2d (P&F) 577 (1983) (Two-Degree Spacing Order) (adopting 2º orbital spacing policy to maximize the number of in-orbit satellites operating in the Ku- and C-bands); on reconsideration, 99 F.C.C. 2d 737 (1985). See also 2000 Biennial Regulatory Review –Streamlining and Other Revisions of Part 25 of the Commission’s Rules Governing the Licensing of, and Spectrum Usage By, Satellite Network Earth Stations and Space Stations; Amendment of Part 25 of the Commission’s Rules and Regulations to Reduce Alien Carrier Interference Between Fixed-Satellites at Reduced Orbital Spacings and to Revise Application Procedures for Satellite Communication Services, IB Docket No. 00-248, CC Docket No. 86-496, Fifth Report and Order in IB Docket No. 00-248 and Third Report and Order in CC Docket No. 86-496, 20 FCC Rcd 5666, 5674, ¶ 17 (2005) (Streamlining Fifth Report and Order). 3 Procedures to Govern the Use of Satellite Earth Stations on Board Vessels in the 5925-6425 MHz/3700-4200 MHz Bands and 14.0-14.5 GHz/11.7-12.2 GHz Bands, IB Docket No. 02-10, Report and Order, FCC 04-286, 20 FCC Rcd 674 (2005) (ESV Order); Order on Reconsideration, 24 FCC Rcd 10369 (2009); Second Order on Reconsideration, 27 FCC Rcd 8555 (2012) (ESV Second Reconsideration Order).
4 Amendment of Parts 2 and 25 of the Commission’s Rules to Allocate Spectrum and Adopt Service Rules and Procedures to Govern the Use of Vehicle-Mounted Earth Stations in Certain Frequency Bands Allocated to the Fixed-Satellite Service, IB Docket No. 07-101, Report and Order, 24 FCC Rcd 10414 (2009) (VMES Order), recon. pending.
FCC 12-161 for satellite delivery of advanced communication services, including two-way broadband data services, to be delivered to passengers in-flight. In today’s decision, we name this air-based mobile application of the FSS “earth stations aboard aircraft (ESAA).”
The three types of mobile platform two-way terminals operating in FSS frequency bands (ESV, VMES, and ESAA) are technically similar to Very Small Aperture Terminals (VSATs). A VSAT uses a transmitter and small antenna, at a fixed location and pointed precisely at its target satellite, to transmit customer information to the satellite. The satellite relays the customer information, through a downlink earth station, to a data center which routes the information to the intended recipient. In a like manner, passengers onboard a mobile platform such as a ship, land vehicle or airplane, will connect their laptop computer, or other broadband device, to an Internet router located within the platform – a connection that is not governed by the rules addressed in this proceeding. The router passes the customer’s information to a transmitter and small antenna located on the outside of the platform. An antenna tracking system compensates for the motion of the platform and keeps the antenna pointed precisely at the target satellite so that potential interference to adjacent satellites is minimized. The target satellite receives the customer information and transmits it, through a downlink earth station, to a Network Control and Monitoring Center (NCMC). The NCMC connects the customer to the Internet.5 In the reverse direction the NCMC relays information from the Internet to an uplink earth station and from there to the target satellite. The signal from the target satellite is received by the tracking antenna on the platform and is passed along to the passenger through the Internet router in the platform. The NCMC is responsible for controlling all aspects of the mobile platform FSS system and for ensuring that any interference to an adjacent satellite is minimized and eliminated. Because of the technical similarity to VSAT systems, the rules governing the operations of mobile FSS applications are similar to those that govern the operation of VSATs. Differences in the operating rules between each of the three mobile FSS applications and VSAT systems are due primarily to the different characteristics of the mobile platforms.
Airborne aircraft in the United States and around the world have installed systems that provide passengers with onboard connectivity for data services.6 There are two satellite-based services that are used to provide such wireless connectivity. Starting in the 1990s, the L-band Mobile Satellite Service (MSS) has been used to provide connectivity to airborne aircraft.7 Since 2001, the Commission also has authorized, on an ad hoc basis, the use of GSO FSS space stations operating in the 10.95-11.2 5 In some ESAA implementations, each ESAA terminal will operate in its own frequency channel. In other implementations, multiple ESAA transmitters will simultaneously transmit on the same frequency. In this latter situation, the NCMC is responsible for controlling the total aggregate power from all of the transmitters to ensure that no interference occurs to adjacent satellites.
6 The most deployed terrestrial-based system used to provide Internet service to passengers on airborne aircraft in the United States is the 800 MHz Radiotelephone Service (Air-Ground). Originally, Air-Ground licensees could provide only a limited range of narrowband voice and data services due to restrictive service rules and the use of 6 kHz narrowband channels. In 2005, the Commission revised its Air-Ground rules and band plan to accommodate the provision of a backhaul link capable of facilitating broadband offerings onboard airborne commercial aircraft. Amendment of Part 22 of the Commission’s Rules to Benefit the Consumers of Air-Ground Telecommunications Services, Biennial Regulatory Review --Amendment of Parts 1, 22, and 90 of the Commission’s Rules, Report and Order and Notice of Proposed Rulemaking, 20 FCC Rcd 4403 (2005), Report and Order, 20 FCC Rcd 19663 (2005) (collectively, the Air-Ground Rulemaking). In addition to the 800 MHz commercial Air-Ground spectrum, there is spectrum in the 454/459 MHz band allocated for general aviation air-ground stations. 47 C.F.R. § 22.805. The 454/459 MHz general aviation air-ground licensees currently provide narrowband (low capacity) voice and data services. We also note that Qualcomm, Inc. has filed a Petition for Rulemaking (RM-11640) proposing that the Commission initiate a proceeding to establish allocation and service rules for an Air-Ground service to be operated on a secondary basis in the 14.0-14.5 GHz band.
7 The “L-Band” is generically denoted as 1 to 2 GHz.
FCC 12-161 GHz, 11.45-11.7 GHz, 11.7-12.2 GHz (space-to-Earth or downlink) and 14.0-14.5 GHz (Earth-to-space or uplink) frequency bands to provide wireless connectivity to airborne aircraft.8 These ad hoc authorizations allow provision of broadband services to passengers on a non-harmful interference basis, and several airlines are operating under the terms of those authorizations.9 The rules we adopt today provide for faster, more efficient licensing of these GSO FSS operations used to provide connectivity to airborne aircraft (as opposed to the ad hoc approach used to date), and set the stage for regulatory finality with regard to the allocation status of these applications.
The Commission released the Notice of Proposed Rulemaking in an earlier phase of the market for ESAA.10 The Notice sought comment on concepts expressed in a Petition for Rulemaking filed by Boeing in 2003 requesting that the Commission adopt licensing and technical rules,11 the ESV Order released a few months prior to the release the Notice, and technical recommendations adopted by the International Telecommunication Union (ITU) for this type of service.12 The Notice recognized the emergence of the new market for GSO FSS satellite services by proposing more flexible use of the 11.7-12.2 GHz and 14.0-14.5 GHz bands while protecting existing terrestrial and satellite services from 8 Panasonic Avionics Corporation, Order and Authorization, 26 FCC Rcd 12557 (Int’l Bur. and OET 2011) (blanket license for a network of up to 50 earth stations aboard foreign-flagged commercial aircraft operated by Lufthansa transmitting in the 14.0 GHz-14.5 GHz and receiving in the 11.7-12.2 GHz band); Row 44, Inc., Order and Authorization, 24 FCC Rcd 10223 (Int’l Bur. and OET 2009) (blanket license for a network with up to 1,000 technically identical earth stations aboard aircraft transmitting in the 14.05-14.47 GHz and receiving in 11.7-12.2 GHz); ViaSat, Inc., Order and Authorization, 22 FCC Rcd 19964 (Int’l Bur. and OET 2007) (blanket license for a network with up to 1,000 technically identical earth stations aboard aircraft transmitting in the 14.0-14.5 GHz and receiving in the 11.7-12.2 GHz); ARINC Incorporated, Order and Authorization, 20 FCC Rcd 7553 (Int’l Bur. and OET 2005) (blanket license for up to 1,000 technically identical earth stations aboard aircraft transmitting in the 14.0-14.5 GHz and receiving in the 11.7-12.2 GHz); and Boeing Company, Order and Authorization, 16 FCC Rcd 5864 (Int’l Bur. and OET 2001) (blanket license for up to 800 technically identical receive only earth stations aboard aircraft); Order and Authorization, 16 FCC Rcd 22645 (Int’l Bur. and OET 2001) (modifying prior receive only authorization to provide blanket license for up to 800 technically identical earth stations aboard aircraft transmitting in the 14.0-14.5 GHz and receiving in the 11.7-12.2 GHz). Most recently, Gogo LLC (Gogo) filed an application on June 19, 2012, for a blanket license for up to 1,000 technically identical earth stations aboard aircraft transmitting in the 14.0-14.5 GHz and receiving in 11.7-12.2 GHz. Gogo LLC, Application for Blanket Authority for Operation of 1,000 Technically Identical Ku-Band Transmit/Receive Earth Stations in the Aeronautical Mobile Satellite Service, IBFS File No. SES-LIC-20120619-00574 (Gogo Application). In its application, Gogo also proposes receiving in other bands. Id., Narrative at 6. Gogo holds an authorization for the terrestrial-based Air-Ground network, Call Sign WQFX728 (granted on October 31, 2006).
9 For example, in the United States, both Southwest Airlines and JetBlue Airways offer satellite-enabled Internet services to passengers. http://www.southwest.com/wifi/ (Southwest Webpage devoted to product) (last visited July 30, 2012); see also “Speedy In-Flight Wi-Fi, Even During a Wild Ride,” New York Times, Oct. 17, 2011. 10 Service Rules and Procedures to Govern the Use of Aeronautical Mobile Satellite Service Earth Stations in Frequency Bands Allocated to the Fixed Satellite Service, IB Docket No. 05-20, Notice of Proposed Rulemaking, 20 FCC Rcd 2906 (2005) (Notice).
11 Amendment of Parts 2 and 25 of the Commission’s Rules to Allocate Spectrum in the 14-14.5 GHz Band to the Aeronautical Mobile-Satellite Service (“AMSS”) and to Adopt Licensing and Service Rules for AMSS Operations in the Ku-band, Petition for Rulemaking, filed on July 21, 2003 by the Boeing Company (Boeing 2003 Petition for Rulemaking). The Boeing 2003 Petition for Rulemaking was placed on public notice as RM-10800. Consumer and Governmental Affairs Bureau, Reference Information Center, Petition for Rulemaking filed, Report No. 2632 (rel. Oct. 2, 2003). The Boeing 2003 Petition for Rulemaking contained detailed proposals and draft rules, the contents of which, along with the comments filed in response, were discussed in detail in the Commission’s Notice in IB Docket 05-20.
12 Notice, 20 FCC Rcd at 2950-56 (Appendix C, reprinting ITU Recommendation ITU-R M.1643).
FCC 12-161 harmful interference.13 The Notice proposed to allocate the 11.7-12.2 GHz (space-to-Earth) frequency band on a primary basis for transmissions to earth stations onboard airborne aircraft from GSO FSS space stations,14 and the 14.0-14.5 GHz (Earth-to-space) frequency band on a secondary basis for transmissions to GSO FSS space stations from earth stations onboard airborne aircraft.15 The Notice also proposed technical and licensing rules for these systems. Eleven parties filed comments in response to the Notice, and eight parties filed reply comments.16
In this Report and Order, we adopt rules to provide for a mobile application of the FSS for communications between earth stations fixed to aircraft communicating with GSO satellites in the FSS in the 10.95-11.2 GHz, 11.45-11.7 GHz, 11.7-12.2 GHz and 14.0-14.5 GHz bands. The Notice refers to what was being proposed as part of the Aeronautical Mobile Satellite Service (AMSS), a mobile application of the MSS. Commenters advocated changing the name of the service to make it consistent with other mobile uses of FSS.17 We concur. Accordingly, we will refer to the mobile application established in this proceeding as Earth Stations Aboard Aircraft or ESAA, and we will discuss all past filings using this term.18 In using the new moniker ESAA, we effectively communicate that this is a mobile application of the FSS, and convey the technical and regulatory similarities to ESV and VMES, analogous mobile applications of the FSS.19
ESAA Allocation
As explained more fully below, in this Report and Order, we adopt three footnotes to the U.S. Table of Frequency Allocations (Table of Allocations) indicating that ESAA is an application of the FSS and may be authorized to communicate with GSO space stations of the FSS on a primary basis in the 13 The Notice also acknowledges the ad hoc authorizations issued at the time of the Notice and then pending applications. Notice, 20 FCC Rcd at 2910-12, ¶¶ 5-6 (discussing the Boeing Connexion System and a pending ARINC application).
14 Notice, 20 FCC Rcd at 2915-16, ¶ 15.15 Id. at 2918-19, ¶ 20. Space stations operating on a primary basis are protected against interference from stations of secondary services. Stations operating in a secondary service cannot cause harmful interference to or claim protection from harmful interference from stations of a primary service. 47 C.F.R. §§ 2.104(d) and 2.105(c). Non-conforming services may be provided only on a non-harmful interference basis to any authorized service and may not claim interference protection from those services.
16 A complete list of parties who have filed in the proceeding is included in Appendix E. The parties to the proceeding include ESAA operators (ARINC, Boeing, ViaSat), operators of FSS space stations (Intelsat, PanAmSat, SES, Telesat Canada), the U.S. Government (Department of Justice), the scientific community (National Radio Astronomy Observatory, National Science Foundation, and the National Research Council’s Committee on Radio Frequencies), and industry public interest groups (Satellite Users Interference Reduction Group, Center for Democracy & Technology and the Electronic Frontier Foundation). 17 Letter from Bruce A. Olcott, Counsel, Boeing, to Mindel De La Torre, Chief, International Bureau, IB Docket No. 05-20 at 5 (dated Apr. 20, 2010) (Boeing Apr. 20, 2010 Ex Parte Letter). Boeing suggested the service name of “aircraft-mounted earth stations (AMES).” Id.
18 Our action here does not affect existing AMSS allocations or the rules governing it, but classifies and regulates ESAA as an application of FSS rather than AMSS. At the same time, to avoid confusion in the future regarding the name of the service, we administratively close out the AMSS docket – IB Docket No. 05-20 – and open a new ESAA docket – IB Docket No. 12-376. 19 The license to be issued to the satellite-based system that is the subject of this rulemaking is not an “aeronautical en route” or “aeronautical fixed radio station” license for purposes of Section 310(b) of the Communications Act. 47 U.S.C. § 310(b).
FCC 12-161 11.7-12.2 GHz band (space-to-Earth), on an unprotected basis in 10.95-11.2 GHz and 11.45-11.7 GHz bands (space-to-Earth), and on a secondary basis in the 14.0-14.5 GHz band (Earth-to-space). In doing so, we consider the following allocation issues.
Operations on a Primary Basis in the 11.7-12.2 GHz (space-to-Earth) Band
Background. GSO FSS systems operate on a primary basis in the 11.7-12.2 GHz (space-
to-Earth) band.20 In the Notice, the Commission proposed to establish a new non-Federal government footnote for the 11.7-12.2 GHz downlink band to indicate that ESAA may receive signals from GSO FSS space stations.21 The Commission also asked whether reception by ESAA terminals in this band should be on a primary basis or on a secondary basis. The Commission explained that the band is used extensively by VSATs.22 The Commission specifically asked whether ESAA terminals can maintain pointing accuracy toward GSO FSS space stations typically expected in a two-degree spacing environment. The Commission noted that if ESAA is allocated primary status in the 11.7-12.2 GHz downlink band, it would enjoy the protection level set forth in Section 25.209(c) of our rules for conforming earth station antennas.23
The Commission also sought comment, in the alternative, on Boeing’s proposal that reception by ESAA terminals in the 11.7-12.2 GHz downlink band continue to be authorized on an unprotected basis as a non-conforming use of the band.24 As explained in the Notice, Boeing argued in its Petition for Rulemaking in favor of conditions typically imposed when a use does not conform to the Table of Allocations, e.g., unprotected, meaning not permitted to cause harmful interference and required to accept interference.25 In its comments in response to the Notice, Boeing ultimately supported primary status for ESAA in the 11.7-12.2 GHz downlink band arguing that because the Commission designated ESV and VMES as applications of FSS allocated on a primary basis, ESAA should have a similar regulatory status.26 ViaSat agrees, stating that ESAA should have the same allocation status as ESV, so long as ESAA neither interferes with other space stations nor is susceptible to interference to a greater extent than ESV.27 ViaSat also argues that ESAA earth stations should receive the protection levels of Section 25.209(c) for conforming earth station antennas.28
20 There are no co-primary users in the 11.7-12.2 GHz band. 47 C.F.R. § 2.106, Table of Frequency Allocations.21 Notice, 20 FCC Rcd at 2915-16, ¶ 15.22 Id. A VSAT network consists of a large number of technically identical small fixed-satellite earth stations that operate in the 11.7-12.2 GHz and 14.0-14.5 GHz band and meet specified technical requirements and communicate only with other earth stations in that network. Routine Licensing of Large Networks of Small Antenna Earth Stations Operating in the 12/14 GHz Frequency Bands, Report and Order, CC Docket No. 90-219, 6 FCC Rcd 7372 (1991). VSAT systems provide video and data communications. Historically, this technology has been used by business customers but more recently VSAT systems are also used to provide Internet service to residential consumers.
23 Section 25.209(c)(1) of our rules states that earth station antennas licensed for reception of transmissions from a space station in the FSS are protected from interference caused by other space stations only to the degree to which harmful interference would not be expected to be caused to an earth station employing an antenna conforming to the referenced patterns defined in Section 25.209(a) and (b). 47 C.F.R. § 25.209(c)(1). In Section IV.C.9. below, we adopt receive antenna performance standards for ESAA aircraft terminals. 24 Notice, 20 FCC Rcd at 2916, ¶ 17 (quoting Boeing 2003 Petition for Rulemaking at 11).25 Id.26 Letter from Boeing, dated April 20, 2010, 1-7; and Letter from Boeing, dated Aug. 17, 2007, 1-2.27 ViaSat Comments at 3.28 ViaSat Reply at 5-6.
FCC 12-161 15.
Other commenters argue that ESAA does not need primary status to operate effectively, and that granting ESAA primary status would have a negative impact on the operations of other FSS licensees. Telesat states that ESAA downlinks in the 11.7-12.2 GHz band should operate on an unprotected, non-harmful interference basis, because there is no reason to grant primary status to earth stations that can operate on a secondary basis.29 PanAmSat argues that granting ESAA primary status in the band would constrain the operations of adjacent space stations.30 Intelsat agrees, arguing that Boeing has stated that ESAA operations can continue on an unprotected, non-harmful interference basis. Intelsat states that taking ESAA into account in future coordination would be an unnecessary burden on satellite operators.31 PanAmSat concurs, and further contends that the technical standards supported by Boeing and ViaSat would be different from the standards for VSATs of the type used in ESV and VMES.32
Discussion. We find a primary allocation for ESAA as an application of the FSS in the 11.7-12.2 GHz (space-to-Earth) band to be in the public interest. We are unaware of any problems that have occurred as a result of the previously licensed operation of ESAA in the 11.7-12.2 GHz downlink band.33 The transmission parameters of the GSO FSS space stations when transmitting in 11.7-12.2 GHz (space-to-Earth) band to ESAA terminals will be similar to the transmission parameters utilized by GSO FSS space stations transmitting to other FSS earth stations including ESV and VMES. This is true because an ESAA terminal on an airborne aircraft would appear almost fixed from the perspective of theGSO FSS space station. Further, under the rules adopted in this Report and Order, transmission to an ESAA terminal will be subject to the same rules that apply to all GSO FSS space station transmissions in the 11.7-12.2 GHz band.34 Accordingly, transmissions from a GSO FSS space station to an earth station fixed to airborne aircraft are not materially different from any other transmission from a GSO FSS space station and would be unlikely to result in interference events to other co-primary services. Further, ESAA operations will be subject to the same limitations on interference protection that apply to typical fixed earth stations with respect to protection against interference. Specifically, ESAA are protected against interference only to the extent that the antenna conforms to established performance standards.35 17.
Concerns that primary status for ESAA operations would constrain operation of adjacent space stations are unfounded. As such, transmissions from GSO FSS space stations in the 11.7-12.2 GHz (space-to-Earth) to earth stations fixed to airborne aircraft should receive comparable regulatory status with other GSO FSS uses. Primary status for ESAA as an application of the FSS also means that ESAA licensees can expect the same level of interference protection from adjacent satellite system operations as other primary FSS operators receive and, for coordination purposes, have the same status as other primary 29 Telesat Comments at 2.30 PanAmSat Reply at 2. PanAmSat and Intelsat were separate entities at the time they filed pleadings in this proceeding, but subsequently Intelsat acquired PanAmSat, and PanAmSat became a wholly-owned subsidiary of Intelsat. Constellation, LLC et al., Transferors, and Intelsat Holdings, Ltd., Transferee, Consolidated Application for Authority to Transfer Control of PanAmSat Licensee Corp. and PanAmSat H-2 Licensee Corp., Memorandum Opinion and Order, FCC 06-85, 21 FCC Rcd 7368 (2006). In this document, we shall continue to refer to them as separate entities for ease of citation reference.
31 Intelsat Comments at 2.32 PanAmSat Comments at 2.33 See supra n.8.34 47 C.F.R. § 25.210 et seq.35 47 C.F.R. § 25.209(c) and infra Section IV.C.9. We also note that treating ESAA operations like other FSS operations is warranted for purposes of interference protection because ESAA is not designed as a safety service meriting priority and preemption. See infra Section IV.G.
FCC 12-161 FSS systems.36 Granting ESAA a definitive level of protection will provide certainty as to the technical requirements for ESAA systems. For these reasons, as the Commission proposed in the Notice, we will add a non-Federal government footnote to the Table of Allocations, providing ESAA primary status as an application of FSS in the 11.7-12.2 GHz downlink band. Specifically, we add the following footnote to the Table of Allocations:
NG55 In the band 11.7-12.2 GHz , Earth Stations Aboard Aircraft (ESAA) as regulated under 47 CFR part 25 are an application of the fixed-satellite service and may be authorized to communicate with geostationary satellites in the fixed-satellite service (space-to-Earth) on a primary basis.
Operations on an Unprotected Basis in the 10.95-11.2 GHz and 11.45-11.7 GHz Bands (space-to-Earth) Within the United States
Background. The 10.7-11.7 GHz band is allocated internationally for FSS on a primary basis.37 Within the United States, FSS use of this band is reserved for international systems by footnote NG104 to the Table of Allocations and Section 25.202(a)(1) of our rules.38 In the United States, these bands are also used by the FS for the Local Television Transmission Service, Microwave Business, Microwave Public Safety, and Common Carrier Fixed Point-to-Point.39 Recognizing that ESAA terminals on U.S.-registered aircraft may operate over international waters (i.e., “high seas,” or regions beyond the territorial limits of any country) and in foreign countries and therefore may need to receive downlink signals in the 10.95-11.2 GHz and 11.45-11.7 GHz bands in certain circumstances, we sought comment on whether ESAA operations in the 10.95-11.2 GHz and 11.45-11.7 GHz bands should be permitted on a non-protected basis. 19.
Commenters broadly support permitting ESAA to receive transmissions in the 10.95-11.2 GHz and 11.45-11.7 GHz bands, stating that it would facilitate ESAA communications and lead to more efficient use of the 10.95-11.2 GHz and 11.45-11.7 GHz downlink bands.40 Commenters also generally support making these bands available to ESAA on an unprotected, non-harmful interference basis.41 Boeing and ViaSat argue that such an allocation would not affect FS, and would benefit those flights over international waters where there may be incidental use of the 10.95-11.2 GHz and 11.45-11.7 GHz bands
36 Co-primary systems generally are obligated to coordinate with each other on a first-come, first-served basis, whereas a system operating under a secondary allocation must not give interference to, and must accept interference from, systems operating with primary status. 47 C.F.R. § 2.105(c).
37 47 C.F.R. § 2.106, Table of Frequency Allocations.38 47 C.F.R. § 2.106 NG 104 (stating that “[t]he use of the bands 10.7-11.7 GHz (Space to Earth)...by the fixed satellite service in the geostationary-satellite orbit shall be limited to international systems, i.e., other than domestic systems”); 47 C.F.R. § 25.202(a)(1) n.2 (stating that “[u]se of this band by geostationary satellite orbit satellite systems in the fixed-satellite service is limited to international systems; i.e., other than domestic systems”). The Commission determined that restricting FSS use in these frequency bands to international systems limits the number of FSS earth stations with which licensees of co-primary fixed stations would need to coordinate. Satellite Services, 26 RR 2d 1257, 1263-65 (1973), and GWARC Inquiry, 70 FCC 2d 1193, 1252 (1978). See also Assignment of Orbital Locations to Space Stations in the Domestic Fixed Satellite Service and the Applications of GE American Communications, Inc., Order and Authorization, 15 FCC Rcd 3385 (Sat. & Radiocomm. Div. 1999). Under this limitation to international use, downlink service into the United States and its insular areas is permissible, if uplink originates outside the United States and its insular areas.
39 47 C.F.R. § 2.106.40 ARINC Comments at 25; PanAmSat Comments at 5; and Boeing Comments at 8.41 Telesat Comments at 2; SES Comments at 4; and Boeing Comments at 8.
FCC 12-161 when flying into or out of the United States.42 Boeing maintains that ESAA downlinks in the 10.95-11.2 GHz and 11.45-11.7 GHz bands should have the same regulatory status as standard FSS downlinks in these bands.43 ViaSat proposes, however, allowing ESAA terminals to receive in the 10.95-11.2 GHz and 11.45-11.7 GHz bands on a co-primary basis with FS where the uplink originates outside of the United States, and limiting the requirement to operate on a non-harmful interference, unprotected basis relative to FS to cases in which the uplink originates in the United States.44 SES recommends waiving the domestic service prohibition in footnote NG104 for this purpose.45 No commenter opposes authorizing ESAA downlinks in the 10.95-11.2 GHz and 11.45-11.7 GHz bands.
Discussion. Our regulatory treatment of ESV and VMES in the 10.95-11.2 GHz and 11.45-11.7 GHz bands requires ESV and VMES operators to accept interference from all current and future FS operations in these bands.46 ESAA, like ESV and VMES, would use these bands for reception only from GSO FSS space stations. As discussed in the Notice, within the United States, we do not anticipate that unprotected receive-only operations in the 10.95-11.2 GHz and 11.45-11.7 GHz bands would interfere with or restrict other authorized operations in the band.47 21.
Designating ESAA as an application of the FSS in the 10.95-11.2 GHz and 11.45-11.7 GHz downlink bands on an unprotected basis within the United States removes regulatory uncertainty regarding its status, and therefore, we do so. Because ESAA downlink operations in these bands will not interfere with or restrict current or future FS operations and because ESAA will not receive protection from the FS in these bands, we find, as we did for ESV and VMES, that the intent of NG104 and Section 25.202(a)(1) will not be undermined by allowing ESAA to operate domestically in these bands. At the same time, we decline to adopt ViaSat’s suggestion that we elevate ESAA receive operations in these bands to co-primary status when the uplink signals originate outside the United States because our experience with ESV and VMES has not demonstrated that there is a need for this allocation status. No ESV or VMES operator has complained of interference or inability to receive in these bands, despite the fact that ESVs and VMES operate in these bands on an unprotected basis. We also note that the Table of Allocations currently contains three non-Federal government footnotes bearing upon mobile applications of FSS: footnotes NG104, limiting the 10.7-11.7 GHz and 12.75-13.25 GHz bands to international satellite systems; NG182, authorizing ESV; and NG186, authorizing VMES. The texts of NG182 and NG186 are effectively identical. Therefore, as a substantive matter, we adopt the following non-Federal government footnote authorizing ESAA operations in the 10.95-11.2 GHz and 11.45-11.7 GHz downlink bands. At the same time, as a ministerial matter of consolidating footnotes without changing their meanings, we replace footnotes NG104, NG182, and NG186 with the following footnote regarding mobile applications of FSS:
42 Boeing Comments at 8 and ViaSat Reply at 7. 43 Boeing Comments at 9. Boeing also mentions use of the 12.2-12.75 GHz band for downlink in its comments. Boeing Comments at 8. We did not seek comment on the use of this spectrum in the Notice. In the United States, the 12.25-12.70 GHz band is allocated to the FS and BSS and the 12.70-12.75 GHz band is allocated to the FS, MS, and FSS (Earth-to-space). Use of this band by ESAA terminals would be to receive communications from space stations whose coverage area is outside the United States or with very limited coverage within the United States. In the event an interest in providing ESAA develops and matures in this band, licensing of such services can be addressed on a case-by-case basis under Part 25 licensing rules, or through further rule making proceedings, as market developments warrant.
44 ViaSat Comments at 7. 45 SES Comments at 4 and SES Reply at 5. 46 ESV Order, 20 FCC Rcd at 710-11, ¶ 86; VMES Order, 24 FCC Rcd at 10424, ¶ 31.47 Notice, 20 FCC Rcd at 2916-17, ¶ 18.
FCC 12-161 NG52 Except as otherwise provided for herein, use of the bands 10.7-11.7 GHz (space-to-Earth) and 12.75-13.25 GHz (Earth-to-space) by geostationary satellites in the fixed-satellite service (FSS) shall be limited to international systems, i.e., other than domestic systems. In the sub-bands 10.95-11.2 GHz and 11.45-11.7 GHz, Earth Stations on Vessels (ESV), Vehicle-Mounted Earth Stations (VMES), and Earth Stations Aboard Aircraft (ESAA) as regulated under 47 CFR part 25 may be authorized for the reception of FSS emissions from geostationary satellites, subject to the condition that these earth stations shall not claim protection from transmissions of non-Federal stations in the fixed service.
We also make changes to Section 25.202 of our rules consistent with the change to the Table of Allocations. Finally, we note that reception in this band by U.S. authorized ESAA operations outside of U.S. airspace over international waters is fully consistent NG104 and is unlikely to cause interference to or restrict current or future FS operations in the United States.48
Operations on a Secondary Basis in the 14.0-14.5 GHz Band (Earth-to-Space)
Background. GSO FSS systems operate on a primary basis in the 14.0-14.5 GHz (Earth-
to-space).49 In the Notice, however, the Commission proposed ESAA operations on a secondary basis.50 The Commission noted that the 14.0-14.5 GHz uplink band is used by VSATs to communicate with GSO FSS satellites, and is also allocated for use by non-GSO (NGSO) earth stations,51 both gateway earth stations and user terminals. The band is also allocated to MSS on a secondary basis, including aeronautical MSS. 23.
Boeing initially argued in favor of a secondary allocation for ESAA in the 14.0-14.5 GHz uplink band, quoting the Conference Preparatory Meeting Report for WRC-03, stating that “it has been demonstrated that it is feasible for appropriately designed . . . [ESAA] networks to be operated on a secondary basis in the band 14.0-14.5 GHz without causing harmful interference to primary services in the band.”52 ESAA operations in the 14.0-14.5 GHz uplink band have been ongoing with no reported instances of interference to other users.53 Telesat agrees, stating that the ITU Radio Regulations provide clarity as to the relative status of primary and secondary services, and that authorizing ESAA to use the band on a secondary basis does not raise any issues.54 In subsequent filings, Boeing changed its position and now favors making ESAA primary in the 14.0-14.5 GHz band, arguing that secondary status is inadequate because of the possibility of harmful interference to ESAA in the 14.0-14.5 GHz band from ESV, VMES, and other services. Boeing also points out that elevating ESAA to primary status in the 14.0-14.5 GHz band would put ESAA on an equal footing with ESV and VMES in coordination negotiations. For these reasons, Boeing requests that we give ESAA primary status in the 14.0-14.5 48 Section IV.E.1. infra addresses regulatory issues relating to U.S.-licensed ESAA operations outside of U.S. airspace. 49 47 C.F.R. § 2.106, Table of Frequency Allocations.50 Notice, 20 FCC Rcd at 2918-19, ¶ 20.51 There are currently no planned NGSO FSS systems in these bands.52 Boeing Comments at 9-10 (quoting WRC-03 Document 03, CPM Report to 2003 World Radiocommunication Conference at 2.4.2). 53 Boeing Comments at 9-10. See Letter from Bruce A. Olcott, Squire Sanders Dempsey (counsel to Boeing) to Marlene H. Dortch, Secretary, Federal Communications Commission, dated Jan. 27, 2011.
54 Telesat Comments at 2.
FCC 12-161 GHz.55 ViaSat contends that we should allocate ESAA on a primary basis in the 14.0-14.5 GHz uplink band, arguing that such an allocation would advance our goals of promoting efficient use of spectrum and meeting growing demand for broadband capability for airline passengers. ViaSat also states that ESAA is no more likely to cause or receive interference than any other VSAT terminal, and that appropriate technical rules and coordination would resolve potential problems, as it does for ESV.56 While some commenters would prefer a primary allocation for reasons of regulatory parity, no party opposes a secondary allocation for ESAA in the 14.0-14.5 GHz uplink band on technical grounds.
Discussion. As commenters have explained, ESAA operations in this band, operating under technical constraints similar to those adopted in this order, have been ongoing for years with no reported instances of interference.57 Thus, the record of ongoing operations coupled with the analysis of the commenters provides support for giving secondary status to ESAA as an application of the FSS, and potentially allocating ESAA on a primary basis in this band. The Notice, however, did not specifically seek comment on allocating the uplink to primary status, and the record, while strongly suggesting that primary status would be appropriate, is not sufficiently developed at this time to make such an allocation. Thus, we believe it would be premature to raise the status of the uplink to primary at this time. For these reasons, we grant ESAA a secondary allocation as an application of FSS in the 14.0-14.5 GHz uplink band, subject to the restrictions in our rules and this Report and Order.58 At the same time, the public interest would be served by quickly developing a more complete record on Boeing’s request for operations on a primary basis in this band. We will, therefore, consider Boeing’s request in the Notice of Proposed Rulemaking, infra.
Coordination with the Space Research Service in the 14.0-14.2 GHz Band
Background. In the Notice, the Commission noted that Space Research Services (SRS) have a secondary allocation in the 14.0-14.2 GHz sub-band. There are currently two authorized SRS facilities in the United States: the National Aeronautics and Space Administration (NASA) space research Tracking and Data Relay Satellite System (TDRSS) receive facilities located in Guam and White Sands, New Mexico, which operate with frequency assignments in the 14.0-14.05 GHz band.59 In addition to the two existing facilities, NASA plans to establish another TDRSS receive facility at Blossom Point on the Eastern Shore of Maryland. In the Notice, the Commission proposed to require that, as a prerequisite to licensing, ESAA operations in the 14.0-14.5 GHz uplink band, in the vicinity (i.e., within the radio line-of-sight) of TDRSS facilities, be coordinated with the National Telecommunications and Information Administration (NTIA) to resolve any potential concerns regarding space research facilities.60 This would 55 Letter from Bruce A. Olcott, Squire Sanders Dempsey (counsel to Boeing) to Marlene H. Dortch, Secretary, Federal Communications Commission, dated Jan. 7, 2011.
56 ViaSat Comments at 3.57 See n.8 supra for list of authorizations granted.58 We also take this opportunity to update the Table of Allocations by removing footnote NG184. This footnote authorizes existing licensees of land mobile stations in the 11.7-12.2 GHz and 14.2-14.4 GHz bands and fixed stations in the 11.7-12.1 GHz band to continue to operate on a secondary basis until their license expired. Because all existing licenses have now expired, we remove footnote NG184 from the Table of Allocations.
59 Amendment of Parts 2, 25 and 73 of the Commission’s Rules to Implement Decisions from the World Radiocommunication Conference (Geneva, 2003) (WRC-03) Concerning Frequency Bands Between 5900 KHz and 27.5 GHz and to Otherwise Update the Rules in this Frequency Range, ET Docket No. 04-139, Notice of Proposed Rulemaking, 19 FCC Rcd 6592, 6609 n.74 (2004).
60 Notice, 20 FCC Rcd at 2919-20, ¶¶ 22-23 & n.72 (“We understand that the ‘vicinity of a TDRSS site’ refers to the area where an [aircraft earth station] is in line-of-sight of the TDRSS site”). But see ARINC Comments at 26 (continued....)
FCC 12-161 parallel requirements for ESV and VMES, where, as a condition of licensing, all ESV and VMES earth stations operating in the 14.0-14.2 GHz sub-band within 125 km of a NASA TDRSS earth station site must coordinate through NTIA before beginning operations.61 26.
Boeing suggests requiring coordination with TDRSS sites as a condition of, rather than a prerequisite to, licensing.62 Boeing also argues that future TDRSS earth stations will probably be designed to reject out-of-band emissions, and that we should therefore require coordination only in the 14.0-14.2 GHz sub-band, rather than in the entire 14.0-14.5 GHz uplink band.63 27.
Discussion. The importance of SRS is such that ensuring their protection from interference cannot wait until after a system is licensed. We note that we have established a licensing condition requiring coordination prior to operations for both ESV64 and VMES.65 We agree with Boeing that future TDRSS sites are likely to be designed to minimize the impact of other operations, but it is not clear that filtering and other measures will be sufficient to obviate the need for coordination with ESAA in the 14.0-14.5 GHz downlink band. We therefore adopt the Commission’s proposal and will require that ESAA stations operating in the entire 14.0-14.2 GHz uplink sub-band within line-of-sight of TDRSS sites coordinate with NTIA as a prerequisite to operation.66 Specifically, we require ESAA licensees proposing to operate in the 14.0-14.2 GHz sub-band within radio line-of-sight of the Guam and White Sands, New Mexico TDRSS receive facilities to coordinate through NTIA before beginning operations.67 ESAA licensees shall notify the International Bureau once they have completed coordination.68 Upon receipt of such notification from a licensee, the International Bureau will issue a public notice stating that (...continued from previous page)(“While ARINC acknowledges the need to protect currently operating TDRSS [ ] sites from interference through coordination with NTIA, a rigid ‘vicinity of,’ or ‘line of sight,’ rule would be too restrictive and should not be imposed”).
61 47 C.F.R. §§ 25.222(c), 25.226(c)(2); ESV Order, 19 FCC Rcd at 712-13, ¶ 90; VMES Order, 24 FCC Rcd at 10422-23, ¶ 25.
62 Boeing Comments at 10.63 Boeing Comments at 11.64 ESV Order, 19 FCC Rcd at 712-13, ¶¶ 90-91.65 VMES Order, 24 FCC Rcd at 10427-28, ¶¶ 41-43 (“We adopt the Commission’s proposal to make SRS coordination a VMES licensing condition. We require VMES licensees proposing to operate in the 14.0-14.2 GHz sub-band within 125 kilometers of the Guam and White Sands, New Mexico TDRSS receive facilities to coordinate through NTIA before beginning operations.”)
66 Determination of the particular radio line-of-sight distance at which terminals must coordinate can be accomplished in a number of ways. For example, Section 25.213 uses a formula for determining the distance (d) at which airborne mobile earth stations in the 1.6/2.4 GHz band must coordinate with radio astronomy sites. That formula is d (km) = 4.1 square root of (h), where h is the altitude of the aircraft in meters above ground level. See47 C.F.R. § 25.213(a)(1)(iv).
67 NASA TDRSS facilities on Guam are at latitude 13°36'55" N, longitude 144°51'22" E, while the White Sands, New Mexico TDRSS facilities are located at latitude 32°20'59" N, longitude 106°36'31" W and latitude 32°32'40" N, longitude 106°36'48" W.
68 Licensees should file these documents electronically via IBFS (http://licensing.fcc.gov/myibfs/). The notifications should be filed in the form of a statement referencing the relevant call signs and file numbers. Filers should upload the coordination notification into IBFS by selecting “Pleadings or Comments” from the IBFS main page. Under “Pleading Type,” filers should select “Statement.” The electronically-filed coordination notification will be reviewed for completeness and placed on the Satellite Division’s SES weekly public notice under the heading “Informative.”
FCC 12-161 the licensee may commence operations within the new coordination zone in 30 days if no party has opposed the operations.69
We observe that the International Bureau has notified ESV and VMES network operators in the 14.0-14.2 GHz sub-band that they will be required to cease operations within 125 kilometers of the new Blossom Point facilities, when these facilities have become operational, unless and until the operator has reached a coordination agreement with NASA that has been approved by both us and NTIA.70 We adopt a similar rule for ESAA operators. Therefore, once NTIA notifies the International Bureau that these facilities are about to become operational, the International Bureau will issue a notice announcing the specific date for the commencement of operations of the Blossom Point facilities and requiring each ESAA operator in the 14.0-14.2 GHz sub-band to cease operations within radio line-of-sight of the new Blossom Point facilities until the ESAA operator has completed a coordination agreement with NASA, acceptable to both NTIA and the Commission, for the new TDRSS site. 29.
We also observe that, in addition to the EIRP density mask requirements,71 both ESVs and VMES must meet specific EIRP density requirements towards the horizon in the 14.0-14.2 GHz sub-band while within the coordination distance of a TRDSS site. These additional EIRP density requirements towards the horizon are intended to control potential interference to NASA’s TDRSS earth stations and must be met regardless of the power transmitted in any other direction.72 We place similar specific EIRP density requirements towards the horizon on ESAA systems.
Coordination with Radioastronomy Service Stations in the 14.47-14.5 GHz Band
As discussed below, we require ESAA licensees proposing to operate in the 14.47-14.5 GHz sub-band within line-of-sight of Radioastronomy Service (RAS) facilities to coordinate with the National Science Foundation (NSF) before beginning operations. a.
Background. RAS operates in the 14.47-14.5 GHz sub-band on a permissive basis within the United States.73 Our rules require ESV and VMES licensees planning to operate within the 14.47-14.5 GHz sub-band to coordinate their proposed operations with RAS facilities.74 In the Notice, the Commission sought comment on the feasibility of similar coordination between ESAA and RAS 69 This mirrors the procedure for ESV and VMES. ESV Order, 20 FCC Rcd at 713, ¶ 91, VMES Order, 24 FCC Rcd at 10427, ¶ 41.
70 International Bureau Announces New NASA TDRSS Earth Station Site, Report No. SPB-221, Public Notice, DA 07-4028, 22 FCC Rcd 17321 (Int’l Bur. 2007) (Blossom Point Notice). See also 47 C.F.R. § 25.222(c) (formerly section 25.222(d), requiring all ESV networks operating in the 14.0-14.2 GHz band within 125 km of a new TDRSS earth station to cease operations upon commencement of the TDRSS operations, unless and until the ESV operator and NASA reach an agreement that both the Commission and NTIA approve).
71 See infra. IV.C.2,3, 7, and 8. 72 47 C.F.R. § 25.204(i) (specific EIRP density requirements towards the horizon in the 14.0-14.2 GHz sub-band for ESV); 47 C.F.R. § 25.204(j) (specific EIRP density requirements towards the horizon in the 14.0-14.2 GHz sub-band for VMES).
73 Internationally, the RAS is allocated on a secondary basis in the 14.47-14.5 GHz band. In the United States, Footnote US203 of the Table of Allocations permits RAS use of the 14.47-14.5 GHz frequencies at certain sites. 47 C.F.R. § 2.106 US203; see also id. US342.
74 ESV Order, 20 FCC Rcd at 748, Appendix B, § 25.222(e); 47 C.F.R. § 25.222(d) (requiring coordination with RAS facilities at St. Croix, Mauna Kea, and Arecibo).
FCC 12-161 operations to preclude harmful interference to the RAS.75 Specifically, the Commission proposed and requested comment on several measures to protect RAS in the 14.47-14.5 GHz sub-band from harmful interference. The Commission proposed to require that, as a prerequisite to licensing, ESAA operations in the 14.0 -14.5 GHz band be coordinated with the NTIA to resolve any potential concerns regarding radio astronomy facilities. The Commission also requested comment on the possibility of changing thestatus of RAS in the Table of Allocations to co-secondary with respect to ESAA only, retaining its permitted status with regard to other services in the 14.47-14.5 GHz sub-band.76 In order to account for future RAS sites, the Commission requested comment on whether and how ESAA licensees should coordinate their operations with future RAS sites, noting that if we require ESAA licensees to coordinate only with sites currently listed in footnote US203 to the Table of Allocations, the addition of new RAS to footnote US203 would require a full rulemaking process. The Commission also requested comment on whether an ad hoc coordination process between future RAS sites and ESAA licensees could be effective in preventing harmful interference to RAS.77 Finally, noting that RAS observations do not occur continually and are usually scheduled in advance, the Commission requested comment on whether we should require RAS observatories to provide advance notice to ESAA operators regarding their observations, where possible.78 In order to implement these proposals and ensure proper coordination between ESAA and other users in the 11.7-12.2 GHz and 14.0-14.5 GHz bands, in the Notice the Commission proposed two footnotes to be added to the Table of Allocations.79 32.
With regard to elevating RAS to secondary allocation status, the National Radio Astronomy Observatory (NRAO) argues that co-secondary status for RAS is unnecessary, provided that the footnote US203 requirement to protect RAS “to the extent practicable” remains in effect.80 NRAO further contends that the necessary protection for RAS is already spelled out in agreements that NSF has with Boeing and ARINC.81 Boeing and the National Research Council’s Committee on Radio Frequencies (CORF) do not object to elevating the regulatory status of RAS to secondary relative to ESAA only,82 but CORF contends that secondary status for RAS would be unnecessary if we adopt rules requiring compliance with ITU-R M.1643, Annex 1, Part C.83
With regard to coordination requirements, CORF supports the proposal to require ESAA to coordinate operations within line-of-sight of RAS sites.84 ARINC disagrees, opposing any requirement for a shut-down of ESAA operations within line-of-sight of RAS sites, and arguing that protection of RAS sites should be coordinated on a case-by-case basis.85
Discussion. We will not change the allocation status of the RAS relative to ESAA. Commenters generally agree that the current allocation priority is appropriate, provided that reasonable 75 Notice, 20 FCC Rcd at 2922-23, ¶¶ 28-29.76 Id. at 2922-23, ¶ 28.77 Id. at 2923, ¶ 29 (citing 47 C.F.R. § 2.106 US203).78 Id. at 2923, ¶ 30.79 Id. at 2923 ¶¶ 31-32.80 NRAO Comments at 3. 81 Id. at 2-3.82 Boeing Comments at 13 and CORF Comments at 10. 83 CORF Comments at 10.84 Id. at 4-5.85 ARINC Comments at 26-27, ARINC Reply at 11.
FCC 12-161 coordination procedures are in place. We will require ESAA licensees to coordinate with RAS sites whenever an ESAA earth station comes within radio line-of-sight of an RAS facility. At the same time, we conclude that a firm requirement that ESAA earth stations must cease transmissions in the 14.47-14.5 GHz sub-band whenever they are within line-of-sight of RAS facilities would be excessively burdensome on ESAA. We find that coordination on a case-by-case basis is both sufficient to protect RAS and consistent with Recommendation ITU-R M.1643, which addresses protection of RAS sites, requiring ESAA in the 14.47-14.5 GHz sub-band to either cease operations or comply with power limits when they are within line-of-sight of an RAS site. Accordingly, we adopt the proposed footnotes NG54 and US133, as modified to reflect the renamed mobile application of the FSS herein, and will add them to the Table of Allocations:
NG54 In the band 14-14.5 GHz, Earth Stations Aboard Aircraft (ESAA) as regulated under 47 CFR part 25 may be authorized to communicate with geostationary satellites in the fixed-satellite service (Earth-to-space), subject to the condition that ESAA shall not claim protection from, nor cause interference to, earth stations at given positions (where the given position may be a specified fixed point or any fixed point within specified areas)..
(a) In the band 14-14.2 GHz, ESAA licensees proposing to operate within radio line-of-sight of the coordinates specified in 47 CFR 25.227(c) are subject to prior coordination with NTIA in order to minimize harmful interference to the ground terminals of NASA’s Tracking and Data Relay Satellite System (TDRSS).
(b) In the band 14.47-14.5 GHz, operations within radio line-of-sight of the radio astronomy stations specified in 47 CFR 25.226(d)(2) are subject to coordination with the National Science Foundation in accordance with 47 CFR 25.227(d).
Licensees currently authorized to provide ESAA shall submit the applicable NSF-
licensee coordination agreement to the Commission by electronic means.86 If an ESAA applicant submits the coordination agreement as part of its ESAA application, the 30-day public notice period for the application will provide opportunity for any public comment on the coordination agreement. Alternatively, upon receipt of coordination agreement from a licensee, the International Bureau will issue an information notice stating that the licensee may commence operations within the new coordination zone in 30 days if no party has opposed the operations.87
Relevant RAS Facilities
Background. In the Notice, the Commission sought comment on ESAA coordination obligations with respect to certain RAS facilities, including those listed in US203. Specifically, the Commission sought comment on requiring ESAA operators proposing operations in the 14.47-14.5 GHz sub-band and planning to travel within line- of-sight of the radio observatories listed in US203 to 86 Amendment of the Commission's Space Station Licensing Rules and Policies, 2000 Biennial Regulatory Review –Streamlining and Other Revisions of Part 25 of the Commission's Rules Governing the Licensing of, and Spectrum Usage by, Satellite Network Earth Stations and Space Stations, Fourth Report and Order, 19 FCC Rcd 7419 (2004) (Fourth Report and Order); Amendment of the Commission’s Space Station Licensing Rules and Policies, Declaratory Order, 19 FCC Rcd 19564 (Int’l Bur. 2004). See also International Bureau Provides Guidance Concerning the Notice Requirement for C-Band Coordination by Earth Stations On Vessels, Public Notice, DA 05-1671, 20 FCC Rcd 10748 (Int’l Bur. 2005).
87 This notification procedure mirrors the procedure for ESV. ESV Order, 20 FCC Rcd at 715, ¶ 96. 17
FCC 12-161 coordinate their proposed operations to resolve any potential interference concerns.88 In this regard, we also observe that footnote US342 of the Table of Allocations states that, in making assignments to stations in the 14.47-14.5 GHz sub-band, among other bands, we shall take all practicable steps to protect RAS from harmful interference.89 37.
Discussion. We will require ESAA licensees to coordinate with the RAS facilities required by the VMES rules. We find that a similar circumstance exists for both ESAA and VMES terminals, which may operate in the vicinity of radio observatories anywhere within the United States. Given the potential ubiquity of ESAA terminals within the United States, we conclude that it is necessary to adopt a new rule section requiring ESAA coordination with certain RAS facilities – the same sites identified for VMES – to protect these important RAS sites from potential interference. 38.
We note that this is not the appropriate proceeding in which to update US203. We do not have a full record on the issue of updating US203. As noted, US342 requires us, in making assignments in the 14.47-14.5 GHz band, among others, to take all practicable steps to protect RAS sites from harmful interference. We take cognizance of recent agreements between NSF and certain Commission licensees that include RAS facilities not listed in US203.90 During the VMES proceeding, NTIA provided in an ex parte letter, the most recent list of RAS facilities making observations in the 14.47-14.5 GHz band and the contact information for initiating coordination with NSF.91 We continue to believe that reliance on the sites listed in the NTIA Letter is a practicable approach to protecting RAS sites from potential ESAA interference. Thus, we will include a condition in ESAA licenses requiring the licensees to coordinate with NSF for the following operational RAS sites, as identified by NTIA: Kitt Peak, Arizona; Owens Valley, California; Mauna Kea, Hawaii; North Liberty, Iowa; Stinchfield Woods, Michigan; Hancock, New Hampshire; Los Alamos, New Mexico; Pie Town, New Mexico; Socorro, New Mexico; Rosman, North Carolina; Arecibo, Puerto Rico; Fort Davis, Texas; St. Croix, U.S. Virgin Islands; Brewster, Washington; and Green Bank, West Virginia.92 This approach will ensure consistency with the mobile applications of the FSS operating in and over the United States.
Future RAS Facilities
Background. With regard to future RAS sites, ARINC recommends that we should limit coordination requirements to RAS sites listed in footnote US203, and that adding future RAS sites to 88 See Notice, 20 FCC Rcd at 2922-23, ¶¶ 28-29.89 47 C.F.R. § 2.106 US342. 90 See, e.g., Raysat LMSS Order, 23 FCC Rcd at 1995-96, ¶¶ 30-31 (discussing coordination agreement between NSF and Raysat); Raysat, Inc., Application for Authority to Operate 4,000 In-Motion Mobile Satellite Antennas in the 14.0-14.5 GHz and 11.7-12.2 GHz Frequency Bands, File Nos. SES-LIC-20060629-01083 et al., Application, Exhibit 3, Technical Operational Coordination Agreement for the Joint Usage of the Band 14.0-14.5 GHz between the National Science Foundation and Land Mobile Satellite Service Earth Stations (LMSS) Operated by Raysat, Inc. (May 25, 2006) (NSF-Raysat Coordination Agreement) available athttp://licensing.fcc.gov/ibfsweb/ib.page.FetchAttachment?attachment_key=-110808. The NSF-Raysat Coordination Agreement lists the following sites: Green Bank, West Virginia; Socorro, New Mexico; Brewster, Washington; Owens Valley, California; Kitt Peak, Arizona; Pie Town, New Mexico; Los Alamos, New Mexico; Fort Davis, Texas; North Liberty, Iowa; and Hancock, New Hampshire. NSF-Raysat Coordination Agreement at 3. Footnote US203 lists Green Bank and Socorro, plus additional sites not listed in the NSF-Raysat Coordination Agreement. 47 C.F.R. § 2.106 US203.
91 Letter from Karl Nebbia, NTIA to Julius Knapp, Chief, Office of Engineering and Technology, IB Docket No. 07-101 (dated Dec. 1, 2008) (NTIA Letter) (listing RAS sites and proposed coordination zones and identifying NSF contact point). 92 NTIA Letter at 1. 18
FCC 12-161 footnote US203 should only be done by a full rulemaking proceeding. ARINC opposes ad hoccoordination requirements, arguing that this could subject ESAA licensees to unreasonable demands from RAS operators.93 NRAO, on the other hand, states that any list of RAS sites in the rules will become obsolete, and recommends creating a registry listing all RAS sites, along with the properties, frequency bands, and regulatory provisions relevant to each site.94 CORF recommends an ad hoc coordination process until footnote US203 can be updated, and recommends that NTIA or NSF notify the Commission six months before a new RAS site becomes operational. The Commission would then issue a public notice informing ESAA licensees of the need to coordinate with the new RAS site prior to the beginning of operations at the RAS site.95
Discussion. We find that a process whereby NTIA would inform us six months before new RAS sites become operational, and ESAA licensees are required to coordinate with those RAS sites, best balances the need to protect future RAS facilities from interference while minimizing the need for the Commission to initiate a new rulemaking proceeding for each RAS facility. We adopted a similar procedure for coordination between ESV and VMES, and new TDRSS sites.96 We also find that NRAO’s suggestion of a publicly available database listing RAS sites along with their properties, frequency bands, and regulations applicable to those frequency bands, would facilitate coordination and make it unnecessary to engage in full rulemaking proceedings to add new RAS sites to our rules. For these reasons, we adopt the procedure used for future TDRSS sites for future RAS sites as well. That is, once NTIA notifies the International Bureau that these facilities are about to become operational, the International Bureau will issue a public notice requiring each ESAA operator in the 14.47-14.5 GHz sub-band to cease operations within line-of-sight of the new RAS facility until the ESAA operator has completed a coordination agreement with NSF for the new RAS site.97 ESAA operators shall notify the International Bureau once they have completed coordination and s