Source: http://www.fcc.gov/print/node/60059
Timestamp: 2014-09-20 17:11:16
Document Index: 68843576

Matched Legal Cases: ['art 87', 'art 87', '§ 22', 'art 87', 'art 22', '§ 87', '§ 22', '§ 22', 'art 22', 'art 90', 'art 90', 'art 22', 'art 90', '§ 90', 'arts 89', 'art 22', 'art 24', 'Art. 2', 'art 22', 'arts 2', '§ 22', '§ 22', 'arts 22', 'art 87']

Review of Rules for Wireless Services Onboard Aircraft NPRM
FCC Initiates Review of Rules for Wireless Services Onboard Aircraft [6]	Download Options
Word Document [7]PDF Document [8]Text Document [9]	Released: December 13, 2013
Expanding Access to Mobile Wireless Services )
Adopted: December 12, 2013
By the Commission: Chairman Wheeler and Commissioner Clyburn issuing separate statements; Commissioner Rosenworcel concurring and issuing a statement; Commissioners Pai and O’Rielly dissenting and issuing separate statements.
I. INTRODUCTION AND SUMMARY................................................................................................... 1II. BACKGROUND.................................................................................................................................... 5
A. FCC Regulations Limiting Airborne Mobile Use............................................................................ 5B. 2004 Airborne Mobile NPRM ......................................................................................................... 8C. International Developments........................................................................................................... 11D. Current FCC Authorization of Airborne Broadband Access ......................................................... 16E. Other Federal Government Actions ............................................................................................... 20
III. DISCUSSION ...................................................................................................................................... 22
A. Changes to Current Rules Restricting Airborne Mobile Broadband Use ...................................... 27B. Airborne Access Systems .............................................................................................................. 29
1. Potential Harmful Interference from Uncontrolled Airborne Mobile Devices ....................... 292. Benefits of Airborne Access Systems ..................................................................................... 303. Technical Requirements .......................................................................................................... 32
a. Mobile Device................................................................................................................... 34b. Aircraft Picocell................................................................................................................ 36c. Network Control Unit ....................................................................................................... 37
C. Airborne Commercial Mobile Use................................................................................................. 42
Part 87 Authorization Methodology........................................................................................ 43a. Part 87 Aircraft License Modification .............................................................................. 43b. Alternative Authorization Methods .................................................................................. 48
2. Scope of the Authorization...................................................................................................... 543. Other Authorization and Licensing Issues .............................................................................. 57
4. Applicability to Non-U.S.-Registered Aircraft Operating in U.S. Airspace ........................... 64
D. Other issues.................................................................................................................................... 70
1. Service below 3,048 meters (10,000 feet) ............................................................................... 702. Voice Service Onboard Aircraft.............................................................................................. 723. Agreements with Canada and Mexico..................................................................................... 744. Law Enforcement and Public Safety ....................................................................................... 75
IV. CONCLUSION .................................................................................................................................... 78V. PROCEDURAL MATTERS................................................................................................................ 79
A. Filing Requirements....................................................................................................................... 79B. Ex Parte Rules ............................................................................................................................... 81C. Initial Regulatory Flexibility Analysis........................................................................................... 82D. Paperwork Reduction Act of 1995................................................................................................. 83
VI. ORDERING CLAUSES....................................................................................................................... 84APPENDICESAPPENDIX A - Proposed RulesAPPENDIX B - Initial Regulatory Flexibility Analysis
By this Notice of Proposed Rulemaking (Notice), we propose to revise outdated rules and adopt consistent new rules governing mobile communications services aboard airborne aircraft. Theserule changes would give airlines, subject to applicable Federal Aviation Administration (FAA) and Department of Transportation (DoT) rules, the choice of whether to enable mobile communications services using an Airborne Access System and, if so, which specific services to enable. The draft rules would also replace an existing patchwork of regulatory prohibitions on airborne use of mobile services in some, but not all, of the heavily used mobile bands with a consistent regulatory framework that explicitly forbids airborne use of mobile services in those bands unless they are operating on an aircraft equipped with an Airborne Access System. If adopted, the rule changes would reduce consumer confusion, increase protection against harmful interference, improve administrative efficiency, and facilitate expanded access to broadband services in flight. Additionally, while many airlines offer in-flight Wi-Fi broadband services, the proposals in this Notice would give airlines the option to allow consumers to access broadband services when airborne through their existing wireless service providers, just as they would on the ground. The Notice does not propose to mandate that airlines permit any new airborne mobile services. It does, however, provide a path for interested airlines to authorize increased consumeraccess to airborne mobile broadband services across licensed commercial mobile spectrum bands in a safe, non-interfering manner.
In recent years, air carriers have been enhancing their in-flight communications service offerings to meet the increasing consumer demand for broadband connectivity on aircraft. One study predicts that the number of aircraft offering wireless connectivity will reach 4,048 by the end of 2013 (representing 21 percent of the global fleet), and will rise to 14,000 by 2022 (a 50 percent connectivity penetration in commercial aircraft).1 This study also projects that approximately 5,000 of these aircraftwill offer both Wi-Fi and cellular options.2 According to one survey of adult airline passengers, 69 percent of airline passengers that brought a portable electronic device (PED) – such as a tablet or 1 News Release, IHS, In-Flight Wireless Installations Take Off; Change in FAA Rules Gives Airlines Opportunity to Promote Services (Nov. 1, 2013), http://press.ihs.com/press-release/design-supply-chain-media/flight-wireless [10]-installations-take-change-faa-rules-gives-ai. This penetration of wireless is up from 15 percent in 2012 and 12 percent in 2011. Id.2 Id.
smartphone – onto an aircraft in the past 12 months reported that they used their devices during flight.3 The report did not distinguish between transmitting PEDs and non-transmitting PEDs. Also, notably, in October 2013, the FAA announced that, after performing recommended assessments and tests, airlines could safely expand passenger use of PEDs during all phases of flight.4
Internationally, more than forty jurisdictions, including the European Union (EU), Asia,
and Australia, have authorized the use of mobile communications services on aircraft. To the best of our knowledge, these services have successfully operated without causing harmful interference to terrestrial commercial wireless networks.5 Given the rapidly expanding demand for mobile broadband services, our recent efforts to improve consumers’ access to broadband services on aircraft,6 and the successfuldeployment of mobile communications services on aircraft in numerous other countries, we find that it is in the public interest to bring the benefits of mobile communications services on aircraft to domestic consumers. Specifically, we propose to: (1) Remove existing, narrow restrictions on airborne use of mobile devices in the 800 MHz cellular and Specialized Mobile Radio (SMR) bands, replacing them with a more comprehensive framework encompassing access to mobile communications services in all mobile wireless bands;7
(2) Harmonize regulations governing the operation of mobile devices on airborne aircraft across all commercial mobile spectrum bands;8
(3) Add the authority to provide mobile communications services on airborne aircraft across all 3 Airline Passenger Experience Association (APEX) and the Consumer Electronics Association (CEA), Portable Electronic Devices on Aircraft, at 4, 7 (2013), available at: Appendix H of A Report from the Portable Electronics Devices Aviation Rulemaking Committee to the Federal Aviation Administration, Recommendations on Expending the Use of Portable Electronic Devices During Flight, available at: http://www.faa.gov/about/initiatives/ped/media/PED_ARC_FINAL_REPORT.pdf [11] (APEX/CEA Report). See also Press Release, APEX, APEX/CEA Study Reveals Importance, Use of Devices In-Flight (May 9, 2013), http://apex.aero/News/PressRelease/Details/tabid/466/ArticleId/22/APEX-CEA-study-reveals-importance-use-of [12]-devices-in-flight.aspx; Press Release, CEA, Most U.S. Flyers Brought Portable Electronic Devices on Planes in the Last Year, Nearly 30 Percent Accidently Left Them Turned On (May 9, 2013), http://www.ce.org/News/News [13]-Releases/Press-Releases/2013-Press-Releases/Most-U-S-Flyers-Brought-Portable-Electronic-Device.aspx.4 See Press Release, FAA, FAA to Allow Airlines to Expand Use of Personal Electronics (Oct. 31, 2013), http://www.faa.gov/news/press_releases/news_story.cfm?newsId=15254 [14] (FAA PED Press Release); See also A Report from the Portable Electronics Devices Aviation Rulemaking Committee to the Federal Aviation Administration, Recommendations on Expending the Use of Portable Electronic Devices During Flight, at ix (Sept. 30, 2013), available at: http://www.faa.gov/about/initiatives/ped/media/PED_ARC_FINAL_REPORT.pdf [11] (ARC Report). 5 Throughout the Notice we refer to networks primarily providing ground-based network services as “terrestrial” networks or licensees. This colloquial usage is not intended to invoke technical meanings of the term “terrestrial” that may be familiar in other regulatory (e.g., FCC or International Telecommunication Union (ITU)) contexts.6 See infra Section II.D.7 See 47 C.F.R. §§ 22.925 and 90.423.8 For purposes of this Notice, “commercial mobile spectrum bands” include: (1) the 800 MHz cellular band (824-849 and 869-894 MHz); (2) SMR spectrum within the bands (806-821 and 851-866 MHz and 896-901 and 935-940 MHz); (3) the Broadband Personal Communications Service (PCS) band (1850-1915 and 1930-1995 MHz); (4) 700 MHz band (698-757 and 775-787 MHz); (5) the Advanced Wireless Services (AWS) band (1710-1755 and 2110-2155 MHz); (6) the Wireless Communications Service (WCS) band (2305-2320 and 2345-2360 MHz); and AWS-4 (2000-2020 MHz and 2180-2200 MHz). We would expect to add other spectrum bands if and when they are allocated for commercial mobile broadband use. 3
commercial mobile spectrum bands to existing Part 87 aircraft station licenses;9 (4) Allow mobile communications services on airborne aircraft only if managed by an Airborne Access System certified by the FAA, which would control the emissions of onboard PEDs by requiring them to remain at or near their lowest transmitting power level;10
Consistent with our continued efforts to increase consumer access to broadband and the FAA’s recent actions, this proposal would provide airlines with the technological tools to offer additional in-cabin communications services to their passengers at their discretion. Our proposal is focused on data services, but it is technology-neutral; we do not propose to limit the use of mobile communications services on airborne aircraft to non-voice applications. Deployment of such services, including etiquette and other rules, would be at the discretion of individual airlines, within the context of any rules or guidelines established by the FAA or DoT.11
FCC Regulations Limiting Airborne Mobile Use
Commission rules governing the use of airborne mobile devices vary significantly among
services. Specifically, airborne use of the 800 MHz cellular band is prohibited and airborne use of the 800 MHz SMR band is prohibited on aircraft that typically fly at altitudes over one mile.12 There are no such restrictions on airborne use of the AWS, PCS, WCS, 700 MHz, or AWS-4 bands.13 As noted aboveresolving these inconsistencies is one of the primary goals of this proceeding.
Part 22 of the Commission’s rules prohibits the airborne use of 800 MHz cellular telephones, including the use of such phones on commercial and private aircraft.14 This prohibition was adopted in 1991 to guard against the threat of harmful interference from airborne use of cellular phones to terrestrial cellular networks.15 The Commission’s prohibition was not to ensure interference-free 9 See 47 C.F.R. § 87.18.10 A description of the components and capabilities of the most common type of Airborne Access System in use can be found in Section III.B.2 infra.11 The FAA has oversight of all aspects of U.S. civil aviation, with responsibilities that include ensuring civil aviation safety. The DoT has oversight over aviation consumer protection issues.12 See 47 C.F.R. §§ 22.925 and 90.423.13 Wi-Fi on aircraft, as anywhere, uses unlicensed spectrum and therefore has no such restrictions.14 See 47 C.F.R. § 22.925 (“Cellular telephones installed in or carried aboard airplanes, balloons or any other type of aircraft must not be operated while such aircraft are airborne (not touching the ground). When any aircraft leaves the ground, all cellular telephones onboard that aircraft must be turned off.”).15 Amendment of Sections of Part 22 of the Commission’s Rules in the Matter of Airborne Use of Cellular Telephones and the Use of Cell Enhancers in the Domestic Public Cellular Radio Service, Report and Order, CC Docket No. 88–411, 7 FCC Rcd 23 (1991) (Airborne Use of Cellular Telephones Report and Order). An exception to section 22.925’s strict prohibition against airborne cellular use was made when AirCell, Inc. demonstrated that its equipment would not cause harmful interference to terrestrial cellular systems. See AirCell, Inc. Petition, Pursuant to Section 7 of the Act, For a Waiver of the Airborne Cellular Rule, or in the Alternative, For a Declaratory Ruling, Order, 14 FCC Rcd 806 (1998), recon. granted in part, denied in part, Order on Reconsideration, 14 FCC Rcd 18430 (1999), app. for rev. denied, Memorandum Opinion and Order, 15 FCC Rcd 9622 (2000), pet. for rev. granted in part, denied in part sub nom; AT&T Wireless Svcs., Inc. v. FCC, 270 F.3d 959 (D.C. Cir. 2001), pet. for (continued….)
operation of avionics equipment. When the prohibition was adopted, the Commission noted that a cellular telephone used onboard an airborne aircraft would have greater range than a land-based handset,and its signal would be received by multiple terrestrial cell sites in a given market, causing harmful interference.16 Moreover, the Commission found that because a cellular telephone can transmit on all assigned 800 MHz cellular frequencies, a single handset could interfere with cellular systems in multiple cellular market areas simultaneously.17 Thus, the Commission concluded that “the need for noninterference in all cellular transmissions outweighs the benefits that would be realized by allowing the public to use cellular service in airborne aircraft.”18
Similarly, the Part 90 rules restrict the use of SMR handsets while airborne in certain circumstances.19 The altitude restriction in section 90.423 prohibits operations on aircraft that are regularly flown at altitudes at one mile or above and, consequently, essentially bans Part 90 land mobile radio use on commercial airline flights.20 These rules were enacted to prevent harmful interference with land-based operations by the use of land mobile frequencies aboard high-flying aircraft, especially aircraft operated by scheduled passenger airlines.21 The rules governing all other commercial mobile spectrum bands are silent with regard to airborne operations.
2004 Airborne Mobile NPRM
On December 15, 2004, the Commission adopted the Airborne Mobile NPRM, in which it
proposed to relax or replace the Part 22 and Part 90 restrictions on airborne use of cellular mobile handsets.22 The Airborne Mobile NPRM also included several proposals to facilitate the use of wireless devices onboard airborne aircraft, including those used for broadband applications.23 Overall, the proposals were intended “to minimize the potential for harmful interference to terrestrial systems while providing maximum flexibility to wireless telecommunications carriers seeking to address consumer demand for air-ground connectivity.”24
Notably, the Airborne Mobile NPRM proposed to require onboard use of picocells to prevent harmful interference to terrestrial mobile networks.25 Under this proposal, airborne picocells would have been used to manage the power levels of mobile handsets onboard aircraft to ensure that they operated at or near their minimum power levels.26 The Airborne Mobile NPRM also sought comment on whether this proposal should be applied to only the 800 MHz cellular spectrum covered by the current (Continued from previous page) reh’g denied Jan. 29, 2002, Order on Remand, 18 FCC Rcd 1926 (2003), pet. for rev. denied sub nom; AT&T Wireless Svcs., Inc. v. FCC, 365 F.3d 1095 (D.C. Cir. 2004). 16 See Airborne Use of Cellular Telephones Report and Order, 7 FCC Rcd at 23 ¶ 5.17 See id.18 See id.19 See 47 C.F.R. § 90.423.20 See id.21 See Amendment of Parts 89, 91, and 93 of the Commission’s Rules Concerning Use of Land Mobile Frequencies Aboard Aircraft, Report and Order, Docket No. 19545, 42 F.C.C.2d 505, 505 ¶ 2 (1973) (Airborne Land Mobile Order).22 See Amendment of the Commission’s Rules to Facilitate the Use of Cellular Telephones and Other Wireless Devices Aboard Airborne Aircraft, Notice of Proposed Rulemaking, WT Docket No. 04-435, 20 FCC Rcd 3753 (2004) (Airborne Mobile NPRM).23 See id. at 3754 ¶ 2.24 See id. at 3755 ¶ 3.25 See id. at 3755 ¶ 4, 3761-64 ¶¶ 13-21.26 See id. at 3762 ¶¶ 14-16.
Part 22 rule, or whether the picocell requirement should be expanded to include handsets and devices operating on spectrum bands under Part 24, 27, or 90.27 10.
The Commission received more than 8,000 submissions in the docket.28 However, few of the commenters provided requested technical analyses. Citing the insufficiency of the technical recordand finding that it would be premature to decide the issues presented in the Airborne Mobile NPRM without additional information, the Commission terminated the proceeding on March 28, 2007.29 The Commission, however, left open the possibility of revisiting the issues raised in this proceeding, should new technical information become available.30
Since the Commission issued the Airborne Mobile Termination Order in 2007, numerous foreign communications administrations have issued regulations that have successfully allowed the non-interfering use of mobile communications services on airborne aircraft utilizing Airborne Access Systems.31 12.
Most notably, in 2008, the European Commission (EC) mandated that EU member countries allocate the 1800 MHz band, which utilizes Global System for Mobile Communications (GSM)32 technology, above 3,000 meters for mobile communications onboard aircraft (MCA).33 The EC issued its Decision following a Report34 and a Decision35 from the Electronic Communications Committee 27 See id. at 3764 ¶¶ 20-21.28 See generally Comments in WT Docket No. 04-435.29 See Amendment of the Commission’s Rules to Facilitate the Use of Cellular Telephones and Other Wireless Devices Aboard Airborne Aircraft, Memorandum Opinion and Order, WT Docket No. 04-435, 22 FCC Rcd 7156, 7156-57 ¶¶ 2-3 (2007) (Airborne Mobile Termination Order).30 id. at 7157 ¶ 3.31 Among these nations are Azerbaijan, Egypt, Jordan, Malaysia, Qatar, Russia, Saudi Arabia, Singapore, Thailand, and the United Arab Emirates. In addition, the Asia Pacific Telecommunity (APT) has adopted non-mandatory Guidelines on Technical Conditions for the Use of Mobile Phones Onboard Aircraft. No. APT/AWG/OP-02 (Rev.2) (2008, rev. 2011), available at: http://www.apt.int/AWF-RECREP [15] (APT Guidelines). APT members include Australia, the Democratic Republic of Korea, India, Japan, New Zealand, the People’s Republic of China, Philippines, the Republic of Malaysia, Singapore, Thailand, and Vietnam.32 See, e.g., Recommendation ITU-R M.1224-1 (03/2012), Vocabulary of terms for International Mobile Telecommunications (IMT), at 62, available at: http://www.itu.int/rec/R-REC-M.1224-1-201203-I/en [16] (posted May 11, 2012); Report from CEPT to the European Commission in response to the Second Mandate to CEPT on mobile communication services on board aircraft (MCA), CEPT Report 48, at 6 (Mar. 8, 2013), available at: http://www.erodocdb.dk/Docs/doc98/official/pdf/CEPTREP048.PDF [17] (CEPT MCA Report 48). The 1800 MHz band is comprised of frequencies 1710-1785 MHz for uplink and 1805-1880 MHz for downlink. See, e.g.,Commission Decision 2008/294/EC, 2008 O.J. (L 98/19), at Annex, Table 1 (EC), available at: http://eur [18]-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2008:098:0019:0023:EN:PDF (EC Decision).33 See EC Decision. Specifically, a “mobile communications service on aircraft” service is an “electronic communications service[] . . . provided by an undertaking to enable airline passengers to use public communication networks during flight without establishing direct connections with terrestrial mobile networks.” Id. at Art. 2. In the United States, the 1710-1785 and 1805-1880 MHz bands are allocated for various uses, including commercial wireless, federal use, fixed microwave, cable antenna relay service, and other uses. 34 Report from CEPT to the European Commission in response to the EC Mandate on Mobile Communication Services on board aircraft (MCA), CEPT Report 016 (Mar. 30, 2007), available at: http://www.erodocdb.dk/Docs/doc98/official/pdf/CEPTREP016.PDF [19] (CEPT MCA Report 16).35 ECC Decision of 1st December 2006 on the harmonised use of airborne GSM systems in the frequency bands 1710-1785 and 1805-1880 MHz, ECC/DEC/(06)07 (amended Mar. 13, 2009), available at: http://www.erodocdb.dk/Docs/doc98/Official/Pdf/ECCDec0607.pdf [20] (ECC Decision).
(ECC) of the EU’s European Conference of Postal and Telecommunications Administrations (CEPT).36 CEPT MCA Report 16 found that operating an Airborne Access System-based mobile communications system above 3,000 meters above ground level37 prevents harmful interference to ground-based mobile networks (in all studied bands38 in which the onboard mobile terminals would be capable of transmitting).39
Pursuant to the EC Decision, the communications administrations of all twenty-seven EU member states subsequently created licensing mechanisms for airborne mobile services in their individual jurisdictions.40 On November 14, 2013, the EC issued a new decision modifying the existing EC
36 The ECC is one of three business committees of CEPT. CEPT MCA Report 16 and the ECC Decision both were created pursuant to a Mandate given by the EC to CEPT in 2006. CEPT MCA Report 16 at Annex 1. Pursuant to the EU’s Radio Spectrum Decision (Decision No 676/2002/EC of the European Parliament and of the Council of 7 March 2002 on a regulatory framework for radio spectrum policy in the European Community), CEPT is mandated to undertake the work required to identify the most appropriate technical criteria for the timely and harmonized introduction of mobile communications service on aircraft applications in the EU. 37 CEPT MCA Report 16 assumes an interference criterion of I/N < -6dB (equivalent to a 1 dB increase of the noise floor) to terrestrial systems. 38 While CEPT Report 16 only addressed the operation of Airborne Access Systems in the 1800 MHz band, the report did study potential harmful interference from such systems into terrestrial operations in the 460-470 MHz, 921-960 MHz, 1805-1880 MHz, and 2110-2170 MHz bands.39 See generally CEPT MCA Report 16. The ECC Decision covers the free circulation and harmonized usage of mobile communications service on aircraft systems and sets out the technical limits that should be observed to ensure that such systems do not cause any harmful interference. See generally ECC Decision. See also Ofcom, Mobile Communications on board Aircraft, Ofcom Statement on Authorising MCA Services, at 33(Mar. 26, 2008), available at: http://stakeholders.ofcom.org.uk/binaries/consultations/mca/statement/mca.pdf [21] (Ofcom Statement). It found that EU administrations must allow the use of mobile communications services on aircraft within the 1800 MHz band, provided that the system does not cause harmful interference to, or claim protection from, any other authorized system and that the use of the system complies with the technical and operational requirements set out in the ECC Decision. ECC Decision at 5. ECC Decisions are regulatory texts providing measures on significant harmonization matters, which CEPT member national regulatory authorities are strongly urged, but not required, to follow. ECC reports and decisions and CEPT reports inform EC decisions; EC decisions are binding on EU Member States, but CEPT – and ECC – reports and decisions are not. See CEPT, All About Our Organisation, The European Conference of Postal and Telecommunications Administrations, at 1, http://www.cept.org/files/1047/CEPT_about_us.pdf [22]; Ofcom Statement at 33.40 See European Commission, Implementation of Decision 2008/294/EC, https://ec.europa.eu/digital [23]-agenda/sites/digital-agenda/files/2008_294_100915impl.pdf; see also Ofcom Statement. The nations that allow mobile communications services on aircraft authorize the service in various ways. For example, in the United Kingdom, the Office of Communications (Ofcom) authorizes the installation and use of airborne systems by varying the aircraft radio license of aircraft registered in the United Kingdom through a Notice of Variation. See Ofcom Statement at 23; Ofcom, Notice of Proposal to Make the Wireless Telegraphy (Mobile Communication Services on Aircraft) (Exemption) Regulations 2008, Annex 7, Draft Notice of Variation (NoV) to Aircraft Licence (2008),available at: http://stakeholders.ofcom.org.uk/binaries/consultations/mca08/summary/mca.pdf [24]. Pursuant to a Notice of Variance, the Airborne Access System is authorized in the relevant aircraft radio license for certain frequencies, with certain technical requirements. In Australia, for frequencies that are not licensed, use of the radiofrequency spectrum for airborne mobile services may be authorized by an apparatus license for the onboard base station and by a class license for user devices. See Australian Communications and Media Authority, Proposed amendments to radiocommunications licensing instruments for mobile communication services on aircraft radiocommunications licensing policy discussion paper at 11 (2009), available at: http://www.acma.gov.au/webwr/_assets/main/lib311255/mobile_svces_on_aircraft-disc_paper.pdf [25]; Press Release, Australian Communications and Media Authority, ACMA green lights new licensing arrangements for mobile communication services on aircraft (July 30, 2010), http://www.acma.gov.au/theACMA/acma-media-release [26]-952010-30-july-2010-acma-green-lights-new-licensing-arrangements-for-mobile-communication-services-on-aircraft. However, in licensed spectrum bands, mobile communications services on aircraft must be authorized by (continued….)
Decision in order to allow for additional frequency ranges and technologies, such as UMTS and LTE, to be used in aircraft.41 Prior to this Decision, CEPT issued a Report on the technical aspects of adding these new frequencies and technologies.42
Outside of the United States, two third-party providers, OnAir and AeroMobile
Communications Ltd. (AeroMobile), currently offer mobile communications services on airborne aircraft.43 OnAir provides such third-party services to airlines including British Airways, Emirates, and Royal Jordanian,44 while AeroMobile provides such third-party services to airlines including Emirates, SAS, and Virgin Atlantic.45 According to OnAir, approximately eighty countries across Europe, the Middle East, North Africa, Asia Pacific, North America, and Latin America have authorized the use of its service.46 As of May 2012, at least one foreign air carrier, Virgin Atlantic, has installed and is operating a system to provide mobile communications services on some aircraft on transatlantic flights from the United Kingdom to the United States.47
We are not aware of any reported cases of harmful interference to terrestrial systems stemming from the use of Airborne Access Systems since airlines began offering mobile communications (Continued from previous page) agreement with the spectrum license holder. Id. 41 See Commission Implementing Decision 2013/654/EU, 2013 O.J. (L 303/48) (EC), available at: https://ec.europa.eu/digital-agenda/en/news/commission-implementing-decision-c-2013-7491-mca-services [27]-adopted-12112013 (Updated EC Decision). The decision authorized the use of Long Term Evolution (LTE) technology in the 1800 MHz band and Universal Mobile Telecommunications System (UMTS) technology in the1920-1980 / 2110-2170 MHz band consistent with the recommendations set forth in CEPT MCA Report 48. See also Press Release, European Commission, Surfing in the sky: Commission gives airlines green-light for 3G and 4G broadband services on board aircraft (Nov. 14, 2013), http://europa.eu/rapid/press-release_IP-13-1066_en.htm [28]. UMTS and LTE are technologies based on the GSM standard.42 CEPT MCA Report 48.43 See, e.g., Press Release, European Union, First European airlines offering in-flight use of mobile phones thanks to EU-wide ground rules (Apr. 2, 2009), http://europa.eu/rapid/press-release_IP-09-526_en.htm?locale=en [29]. See alsoTodd Shields, Yes, You Can Use Your Phone on a Plane. Just Not to Talk., BLOOMBERG, Nov. 12, 2013, http://www.bloomberg.com/news/2013-11-12/airlines-run-from-onboard-gabfests-as-gadget-use-embraced.html [30]; Bart Jansen, Should U.S. airlines allow cell calls during flight?, USA TODAY, Oct. 8, 2012, http://www.usatoday.com/story/travel/flights/2012/10/07/airline-cellphones/1611079/ [31]; Kent German, Cell phones in the sky: Airlines that allow mobile use, CNET, Jan. 31, 2011, http://www.cnet.com/8301-17918_1-20030100 [32]-85.html#ixzz2NLo7c2UZ; FAQs, AeroMobile, http://www.aeromobile.net/passengers/faqs [33] (AeroMobile FAQs); Mobile OnAir, OnAir, http://www.onair.aero/en/commercial-airlines-products-mobile-onair [34].44 Who Flies With Us, OnAir, http://www.onair.aero/en/commercial-airlines-customers [35] (Who Flies with OnAir). See also Shields, supra note 40; Jansen, supra note 40. OnAir provides service to a total of sixteen air carriers: Aeroflot, Azerbaijan Airlines, British Airways, Cebu Pacific Air, Egyptair, Emirates Airlines, Etihad Airways, Hong Kong Airlines, Libyan Airlines, Oman Air, Philippine Airlines, Qatar Airways, Royal Jordanian, Saudia, Singapore Airlines, and TAM Airlines. See also Shields, supra note 43; Jansen, supra note 43. 45 About Us, AeroMobile, http://www.aeromobile.net/about-us [36] (About AeroMobile). See also Jansen, supra note 40. AeroMobile provides service to a total of nine air carriers: Aer Lingus, Air France, Emirates Airlines, Etihad Airways, KLM Airlines, SAS Scandinavian Airlines, Singapore Airlines, Transaero Airlines, and Virgin Atlantic. About AeroMobile. See also Jansen, supra note 43. 46 Regulatory Bodies, OnAir, http://www.onair.aero/en/partners-regulatory-bodies [37].47 See, e.g., Jansen, supra note 43; Rachel Sang-hee Han, Virgin Atlantic offers in-flight mobile service. Annoyed yet?, CNN, May 18, 2012; Virgin Atlantic allows in-flight calls - six at a time, BBC, May 16, 2012. Virgin Atlantic disables the service within 250 miles of U.S. airspace. Jansen, supra note 43. Airborne Access Systems on board Virgin Atlantic flights automatically switch off once they enter U.S. air space. Aeromobile - Where does it work?, Virgin Atlantic, http://virginatlantic.custhelp.com/app/answers/detail/a_id/675 [38]. 8
services on airborne aircraft. In response to an FAA inquiry regarding the use of PEDs during flight,48Panasonic stated that since deployment of the eXPhone system49 – a system for providing mobile communications services on aircraft – there has been no harmful interference to aircraft systems or terrestrial networks, nor have there been any system failures.50 In comments filed by AeroMobile in the same proceeding, AeroMobile stated that it has operated its Airborne Access Systems since 2008 “without any reported instances of harmful interference to avionics or other aircraft systems, or to terrestrial mobile networks.”51
Current FCC Authorization of Airborne Broadband Access
The Commission first paved the way for in-flight voice and data services in 1990 when it
allocated four megahertz of spectrum for commercial Air-Ground Radiotelephone Service.52 This led to the deployment of service offered via seat-back phones in many commercial aircraft. Additionally, in 1998, the Commission granted to AirCell, Inc. (AirCell) a waiver of section 22.925’s airborne cellular prohibition to allow AirCell to use cellular frequencies for in-flight communication using specially designed equipment.53 In 2005, the Commission reconfigured the 800 MHz Air-Ground Radiotelephone Service to facilitate the provision of broadband service to passengers aboard aircraft.54 After that, companies began to offer Wi-Fi using unlicensed spectrum on aircraft along with an air-to-ground link.55 48 This proceeding is discussed in more detail in Section II.E, infra.49 Panasonic is a part owner of AeroMobile. AeroMobile comments, Passenger Use of Portable Electronic Devices on Board Aircraft, Docket No. FAA-2012-0752, at 1 (2012) (AeroMobile Comments to FAA). The companies partner to provide the "eXPhone" system, which provides mobile communications services on aircraft. Id.50 Panasonic Comments, Passenger Use of Portable Electronic Devices on Board Aircraft, Docket No. FAA-2012-0752 at 2 (2012).51 AeroMobile Comments to FAA at 1. In that same proceeding, AIRBUS stated that “[d]ue to the high robustness of safety relevant equipment against EMI [electromagnetic interference], the number of proven EMI influence caused by PED is negligible today.” AIRBUS comments, Passenger Use of Portable Electronic Devices on Board Aircraft, Docket No. FAA-2012-0752 at 3 (2012).52 See Amendment of the Commission's Rules Relative to Allocation of the 849-851/894-896 MHz Bands, Report and Order, GN Docket No. 88-96, 5 FCC Rcd 3861 (1990), recon. granted in part, Amendment of the Commission's Rules Relative to Allocation of the 849-851/894-896 MHz Bands, Memorandum Opinion and Order, 6 FCC Rcd 4582 (1991). The Commission authorized this operation at 849-851 MHz (ground stations) and 894-896 MHz (airborne mobile stations).53AirCell, Inc., Petition, Pursuant to Section 7 of the Act, For a Waiver of the Airborne Cellular Rule, or in the Alternative, For a Declaratory Ruling, Order, 14 FCC Rcd 806 (1998). Though AirCell operated in the cellular spectrum (825 to 894 MHz), AirCell did not provide service to conventional cellular handsets. See id. at 807 ¶ 3. Instead, AirCell used “modified cellular telephones” and specially-designed “airborne mobile terminals installed on board general aviation aircraft” that incorporated a “specially designed aircraft antenna.” See id. at 806 ¶ 1, 807 ¶ 3. 54 See Amendment of Part 22 of the Commission’s Rules to Benefit the Consumers of Air-Ground Telecommunications Services, Report and Order, WT Docket No. 03-103, 20 FCC Rcd 4403 (2005).55 For example, Gogo Inc. (Gogo), formerly AirCell, acquired three megahertz of 800 MHz Air-Ground spectrum and began offering Wi-Fi services on board aircraft in 2008. See Company info, History, Gogo, http://gogoair.mediaroom.com/history [39]. Gogo has installed Wi-Fi service on approximately 2,000 commercial aircraft. See News Release, Gogo, Gogo Surpasses 2,000 Aircraft Installed with Its In-flight Internet Service (Sept. 26, 2013), http://ir.gogoair.com/phoenix.zhtml?c=251827&p=irol-newsArticle&ID=1859111&highlight [40]=. In addition, Gogo recently introduced a new “Text & Talk” technology, which leverages Gogo's in-flight Wi-Fi system to allow passengers to send text messages and make phone calls using their smartphone while airborne. See Press Release, Gogo, Gogo Unveils Its Next In-Air Technological Innovation: Gogo Text & Talk, http://gogoair.mediaroom.com/2013-11-08-Gogo-Unveils-Its-Next-In-Air-Technological-Innovation-Gogo-Text [41]-Talk.
In addition to the 800 MHz Air-Ground band, satellite spectrum also has been used as an air-to-ground link. The L-band Mobile Satellite Service (MSS) has been used to provide data service to and from aircraft since the 1990s. Beginning in 2001, the Commission authorized, on an ad hoc basis, the use of earth stations aboard aircraft (ESAA) communicating with Ku-band geosynchronous orbit (GSO) Fixed Satellite Service (FSS) space stations to provide connectivity to airborne aircraft.56 In December 2012, the Commission adopted service and technical rules for ESAA operations to formalize ESAA as a means of providing in-flight broadband services to passengers and flight crews aboard commercial airliners and private aircraft (in conjunction with in-cabin Wi-Fi).57
The Commission recently has taken further action to expand access to broadband services onboard aircraft and improve the quality of services offered. Notably, on March 29, 2013, the Wireless Telecommunications Bureau (WTB) granted Gogo’s request of a waiver of section 22.85358 of the Commission’s rules to allow the assignment of one megahertz of LiveTV Inc.’s licensed nationwide 800 MHz Air-Ground Radiotelephone Service license to Gogo.59 Gogo now has access to all four megahertz of nationwide 800 MHz Air-Ground spectrum, which Gogo asserts is necessary to provide the full array of high-speed wireless communications services that consumers expect.60
The Commission also has released a Notice of Proposed Rulemaking that proposes to establish a new air-ground mobile broadband service in the 14.0-14.5 GHz band.61 The new service will operate on a secondary, non-interference basis with FSS Earth-to-space communications.62 If the rules proposed in that proceeding are adopted, the new service would significantly increase the capacity available to aircraft for broadband backhaul. E.
Other Federal Government Actions
In January 2013, the FAA Administrator established the PED Aviation Rulemaking Committee (ARC) in order to provide a forum for the U.S. aviation community and PED manufacturers to review comments received from the FAA’s Notice of Policy/Request for Comments regarding PED policy and guidance.63 The ARC was tasked to make recommendations to further clarify and provide 56 See, e.g., Panasonic Avionics Corporation, Order and Authorization, 26 FCC Rcd 12557 (2011); Row 44, Inc., Order and Authorization, 24 FCC Rcd 10223 (2009); ViaSat, Inc., Order and Authorization, 22 FCC Rcd 19964 (2007); ARINC Incorporated, Order and Authorization, 20 FCC Rcd 7553 (2005); and Boeing Company, Order and Authorization, 16 FCC Rcd 5864 (2001), Order and Authorization, 16 FCC Rcd 22645 (2001). Gogo also was recently granted an authorization to operate earth stations aboard aircraft transmitting in the Ku-band. 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 Nos. SES-LIC-20120619-00574, SES-AMD-20120731-00709, SES-AFS-20121008-00902, granted May 1, 2013. 57 Revisions to Parts 2 and 25 of the Commission’s Rules to Govern the Use of Earth Stations Aboard Aircraft Communicating with Fixed-Satellite 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 Bands, Notice of Proposed Rulemaking and Order, IB Docket No. 12-376, 27 FCC Rcd 16510 (2012) (ESAA Order). For example, Southwest Airline offers satellite enabled Wi-Fi internet access. http://www.southwest.com/wifi/ [42].58 47 C.F.R. § 22.853.59 See Application of AC BidCo, LLC, Gogo Inc., and LiveTV, LLC For Consent To Assign Commercial Aviation Air-Ground Radiotelephone (800 MHz band) License, Call Sign WQFX729, Memorandum Opinion and Order, WT Docket No. 12-155, 28 FCC Rcd 3362 (WTB 2013).60 Id.at 3366-67 ¶¶ 13-14.61 Expanding Access to Broadband and Encouraging Innovation through Establishment of an Air-Ground Mobile Broadband Secondary Service for Passengers Aboard Aircraft in the 14.0-14.5 GHz Band, Notice of Proposed Rulemaking, GN Docket No. 13-114, 28 FCC Rcd 6765 (2013) (14 GHz NPRM).62 See generally id.63 See ARC Report; See also Press Release, FAA, supra note 4. 10
guidance on allowing additional passenger PED usage without compromising the continued safe operation of the aircraft.64 The ARC transmitted its report to the FAA Administrator on September 30, 2013, and the FAA released the report publicly on October 31, 2013.65 21.
The ARC concluded that most commercial airplanes can tolerate radio interference signals from PEDs. However, PEDs with cellular capabilities must disable those capabilities during flight. The ARC recommended that, subject to this condition, PEDs be permitted to operate “gate-to-gate” provided that the airline operators and aircraft manufacturers certify their aircraft to demonstrate “tolerance” of emissions from PEDs.66 While cell phones were excluded from the scope of the ARC Report, the ARC did recommend that the FAA consult with the Commission to review our current rules.67 On October 31, 2013, the FAA announced that, based on the ARC Report, it had determined that airlines can safely expand passenger use of PEDs during all phases of flight and provided airlines with implementation guidelines.68
In the six years since the Commission issued the Airborne Mobile Termination Order, the mobile communications landscape has undergone a series of dramatic changes. Global mobile data traffic increased by 70 percent from 2011 to 201269 and, driven by widespread adoption of smartphones, tablets, and other high data use devices, it is projected to increase thirteen-fold by 2017.70 Consumers are ever more dependent on reliable high speed connectivity for these devices for personal communications, business, and entertainment. Moreover, as noted, numerous international administrations have adopted rules for the safe, non-interfering use of mobile services on airborne aircraft utilizing Airborne Access Systems.71 The successful widespread international adoption of these systems demonstrates the technical viability of mobile communications services on airborne aircraft today.
In light of the increasing demand for mobile communications services on airborne aircraft
and widespread confirmation of its technical viability, we propose to revise our rules to enable domesticand international travelers to access mobile services onboard aircraft flying in U.S. airspace. To that end, we propose to: (1) remove existing Commission restrictions on airborne use of mobile devices in the 800 MHz cellular and 800 MHz SMR bands;72 (2) harmonize regulations governing the operation of mobile 64 ARC Report at ix. See also Press Release, FAA, supra note 4.65 See ARC Report at ix. See also Press Release, FAA, supra note 4.66 See generally ARC Report.67 See id. at 5, 34.68 See Press Release, FAA, supra note 4; FAA, Expanding Use of Passenger Portable Electronic Devices (PED), InFO Information for Operators, InFO 13010 (Oct. 31, 2013), available at:http://www.faa.gov/other_visit/aviation_industry/airline_operators/airline_safety/info/all_infos/media/2013/InFO13 [43]010.pdf; FAA, FAA Aid to Operators for the Expanded Use of PEDs, FAA, InFO Information for Operators, InFO 13010 SUP (Oct. 31, 2013), available at:http://www.faa.gov/other_visit/aviation_industry/airline_operators/airline_safety/info/all_infos/media/2013/InFO13 [43]010SUP.pdf; FAA, Expanded Use of Passenger Portable Electronic Devices (PED), Notice 8900.240 (Oct. 31, 2013), available at: http://www.faa.gov/documentLibrary/media/Notice/N8900.240.pdf [44] (collectively, FAA Guidance).69 Global mobile data traffic was 885 petabytes per month at the end of 2012 as compared to 520 petabytes per month at the end of 2011. See Cisco, Visual Networking Index: Global Mobile Data Traffic Forecast Update, 2012–2017 at 1 (rel. February 6, 2013), available at: http://www.cisco.com/en/US/solutions/collateral/ns341/ns525/ns537/ns705/ns827/white_paper_c11-520862.pdf [45].70 See id. at 5-8.71 See supra Section II.C.72 See 47 C.F.R. §§ 22.925 and 90.423.
devices on airborne aircraft across all commercial mobile spectrum bands; and (3) implement a comprehensive licensing and regulatory framework to facilitate access to mobile communications services on aircraft. These proposals are consistent with our longstanding commitment to facilitateuniversal broadband access, promote investment and innovation, and encourage efficient, flexible use of spectrum. We seek comment on these proposals.
The proposals in this Notice would also require airlines to install Airborne Access Systems if they choose to provide mobile communications services on airborne aircraft. As described below, the Airborne Access System incorporates hardware and software to enable the provision of service and to manage services onboard the aircraft. In practice, the system would connect wireless devices on the aircraft operating on licensed wireless frequencies to a terrestrial network via satellite or air-ground links. While business models may vary, under one model, passengers on a flight with an Airborne Access System would be able to access the wireless service to which they subscribe when above 3,048 meters (10,000 feet) through the Airborne Access System, and would be billed for the service directly by their service provider.73 25.
In this Notice, we also seek comment on the alternative licensing and regulatory frameworks for the provision of mobile communications services on airborne aircraft, the potential impact of these proposals on public safety and national security, and any potential operational issues related to the use of mobile services, including voice, onboard aircraft. We are committed to working closely with other federal agencies that have expertise and may have more appropriate jurisdiction over some of these operational areas.
Throughout the Notice, where we seek comment on the costs and benefits of a proposal, we ask that commenters take into account costs and benefits that result from the implementation of the particular rules that could be adopted, including any proposed requirement or potential alternative requirement. Further, to the extent possible, commenters should provide specific data and information, such as actual or estimated dollar figures for each specific cost or benefit addressed, including a description of how the data or information was calculated or obtained, and any supporting documentation or other evidentiary support.
Changes to Current Rules Restricting Airborne Mobile Broadband Use
As an initial matter, we propose to remove or modify the current restrictions on airborne mobile operations in Parts 22 and 90 of the Commission’s rules.74 We propose to replace these restrictions with references to a revised authorization regime under Part 87 of the Commission’s rules that would allow aircraft station licensees to provide mobile communications services using an Airborne Access System.75 We seek comment on whether, in light of the proposals set forth herein and recent technological advances, these restrictions remain necessary to prevent harmful interference to terrestrial mobile networks. 73 As an example of how this type of service ha