Source: http://www.fcc.gov/print/node/49462
Timestamp: 2014-04-17 08:58:37
Document Index: 421194529

Matched Legal Cases: ['art 2', 'art 5', '§ 301', '§ 305', '§ 902', '§2', '§2', '§ 2', '§ 2', 'arts 2', 'arts 2', '§ 2', 'art 25', 'art 25', 'art 5', '§ 2', 'arth\n5850', '§ 2', '§ 2', '§ 25', 'art 25', 'art 25', '§ 2', '§ 2', '§ 74', '§ 2', 'arts 2', '§ 2', 'arts 1', '§ 25', '§ 1', 'arts 1']

FCC Proposes to Support Commercial Space Launches
Word Document [1]PDF Document [2]Text Document [3]	Released: May 9, 2013
FCC 13-65
Amendment of Part 2 of the Commission’s Rules )
for Federal Earth Stations Communicating with )
ET Docket No. 13-115
Non-Federal Fixed Satellite Service Space )
Stations; )
RM-11341
Federal Space Station Use of the 399.9-400.05 )
MHz Band; and ))
Allocation of Spectrum for Non-Federal Space )
AND NOTICE OF INQUIRY
Comment Date: (60 days after date of publication in the Federal Register)Reply Date: (90 days after date of publication in the Federal Register)
By the Commission: Chairman Genachowski , Commissioners Clyburn, Rosenworcel, and Pai issuing separate statements. Commissioner McDowell not participating,
I. INTRODUCTION.................................................................................................................................. 1II. BACKGROUND.................................................................................................................................... 8
A. Expanded Federal Use of the non-Federal FSS and MSS Bands..................................................... 8B. Spectrum Access for Commercial Space Operators ...................................................................... 16
III. NOTICE OF PROPOSED RULEMAKING ........................................................................................ 19
A. Expanded Federal Use of the non-Federal FSS and MSS bands ................................................... 19
1. Frequency Band Allocation..................................................................................................... 252. Rule Changes........................................................................................................................... 35
B. Federal Space Stations in 399.9-400.05 MHz MSS Band ............................................................. 59C. Spectrum Access for Commercial Space Operators ...................................................................... 65
IV. NOTICE OF INQUIRY........................................................................................................................ 88V. PROCEDURAL MATTERS................................................................................................................ 91VI. ORDERING CLAUSES....................................................................................................................... 96APPENDIX A - Proposed RulesAPPENDIX B - Initial Regulatory Flexibility Analysis
The National Space Policy recognizes that “[a] robust and competitive commercial space sector is vital to continued progress in space.”1 In the Notice of Proposed Rulemaking (NPRM) we address the spectrum needs of two separate, but closely related portions of the commercial space sector: the commercial communications satellite industry and the commercial space launch industry. It is our expectation that, if adopted, these proposals would advance the commercial space industry and the important role it will play in our nation’s economy and technological innovation now and in the future.
The communications satellite industry has grown from a handful of communications satellites in the 1960s to a vibrant industry that today provides a variety of communications services to consumers, businesses, and governments around the world. The technological breakthroughs that enabled the growth of the communication satellite industry have been made in partnership between the United States government and the private sector. The National Aeronautics and Space Administration (NASA); the Advanced Research Projects Agency; and companies such as AT&T, Hughes, and RCA developed the early communications satellites.2 The satellite technology developed from this collaboration between government and the private sector led to the emergence of a vibrant commercial communications satellite industry in the 1970s and 1980s. Later, in 1993 NASA, in the Advanced Communications Technology Satellite (ACTS) program, developed advanced satellite technologies such as dynamic hopping spot beams and advanced onboard switching and processing that are now commonly used in communication satellites.3 The elaborate spot beam technology has increased the spectral efficiency of communication satellites and facilitated the development of a Mobile-Satellite Service (MSS) capable of serving handheld radios. To promote a robust domestic commercial space industry, the National Space Policy directs that federal departments and agencies purchase and use commercial space capabilities and services to the maximum practical extent possible when they are available in the marketplace and meet United States Government requirements.4 The National Space Policy also provides that the United States Government shall seek appropriate regulatory approval under U.S. domestic regulations for United States Government earth stations operating with commercially owned satellites, consistent with the regulatory approval granted to analogous commercial earth stations.5 In the NPRM we propose to take steps that will facilitatethe use of commercial satellite networks by government agencies on an equal basis with the private sector.
The United States space launch industry is in a transformational stage. The end of NASA’s space shuttle program has required the development of a new era of cargo delivery and manned space travel initiatives that promise to continue the U.S. legacy of exploration, education and discovery. Several private companies are competing to take cargo and, in the future, people into space to support the International Space Station (ISS) and other NASA initiatives. Space Exploration Technologies (SpaceX) has recently accomplished three successful missions to the ISS and Orbital Sciences Corporation (Orbital Sciences) is expected to undertake a mission to the ISS in 2013. Other companies are developing the 1 National Space Policy of the United States of America (June 28, 2010) at 3, available athttp://www.whitehouse.gov/sites/default/files/national_space_policy_6-28-10.pdf [4]. The National Space Policy expresses the President’s direction for the nation’s space activities. 2 Scientific and Technical Information Division, National Aeronautics and Space Administration, Significant Achievement in Space Communications and Navigation 1958-1964, 15-29 (1966), available athttp://ntrs.nasa.gov/archive/nasa/casi.ntrs.nasa.gov/19660009169_1966009169.pdf [5]; Stephen J. Lukasik, DARPA, The Froehlich/Kent Encyclopedia of Telecommunications, Vol. 5, 75-77 (Fritz Froehlich and Allen Kent Marcel eds. 1993). 3 About ACTS, NASA, available at https://acts.grc.nasa.gov/about/index.shtml [6].4 National Space Policy at 10.5 Id. at 9.
capability to take tourists on suborbital forays into space. To support the nascent private launch industry, a number of non-Federal government owned space ports have been established. The Commission’s allocation and service rules must evolve to support the communications needs of the developing private space launch industry.6 In the NPRM we consider several options to provide spectrum for communications during commercial space launches. The Notice of Inquiry (NOI) explores how the FCC can support the future communications needs of the commercial space industry.
To advance the goals of the National Space Policy, we present two alternative proposals in the NPRM to provide Federal earth stations that communicate with non-Federal Fixed-Satellite Service (FSS) and Mobile-Satellite Service (MSS) space stations interference protection identical to that afforded to non-Federal earth stations communicating with the same FSS and MSS space stations. Under the first proposal we propose to modify the Allocation Table in Section 2.106 of our rules to add a Federal allocation for the FSS bands, along with a footnote restricting Federal use to earth stations communicating with non-Federal space stations. In the second proposal we propose to place a footnote in the Allocation Table in the FSS bands that provides that Federal earth stations that communicate with non-Federal FSS and MSS space stations would receive interference protection identical to that afforded to non-Federal earth stations communicating with the same FSS and MSS space stations.
We also propose in the NPRM to amend a footnote to the Allocation Table to permit a Federal MSS system to operate in the 399.9-400.05 MHz MSS band. This action would allow traffic to be migrated from Argos, the existing Federal MSS system, to a new Federal satellite, thereby resulting in less interference and improved service and reliability for users of both the existing and new Federal MSS systems. No Federal or non-Federal MSS systems have been deployed in this band since it was allocated for MSS in 1993, and this proposed Federal allocation will permit long-vacant spectrum to be put to an important use.
Finally, in the NPRM we propose several alternatives for providing spectrum for use during commercial space launches, thereby providing launch vehicles7 with interference protection. During launches, spectrum in the 420-430 MHz, 2200-2290 MHz, and 5650-5925 MHz bands is typically used to send a self-destruct signal to the launch vehicle (if needed) and information from the launch vehicle to controllers on ground, as well as to track the launch vehicle by radar. Because these frequency bands are allocated only to Federal use for these purposes, the Commission may not issue licenses for these bands that provide interference protection to commercial space launch operators.8 We seek comment on two possible options to support commercial space launches by either adding a co-primary non-Federal allocation to these bands or by providing an Allocation Table footnote to allow non-Federal use of these bands to provide commercial entities access to these important spectrum resources. We also seek comment on ways to ensure the long term sustainability of the commercial launch industry by exploring other alternatives to use of these bands as more commercial launches are conducted and more private spaceports are established.
In the NOI we seek comment broadly on the future spectrum needs of the commercial space sector. We ask whether access to other frequency bands will be required and whether amendments to the Commission’s rules will be needed. We also inquire into the communication needs of suborbital space flights and commercial space stations.
6 See infra paragraph 71.7 A launch vehicle is a rocket used to send a payload, such as a communications satellite, into space. See infra paragraph 67.8 The Commission has granted special temporary authority under the Part 5 experimental licensing rules to allow non-interference operation in the 2200-2290 MHz and 5650-5925MHz bands for commercial launches. See infraparagraph 70.
Expanded Federal Use of the non-Federal FSS and MSS Bands
Section 301 of the Communications Act gives the Commission licensing authority over non-Federal stations,9 and Section 305(a) of the Communications Act authorizes the President to assign frequencies to Federal stations.10 The authority under Section 305(a) has been delegated to the Assistant Secretary of Commerce for Communications and Information, who also serves as the Administrator of the NTIA.11 9.
The Allocation Table in the Commission’s rules12 is divided into the International Table of Frequency Allocations (International Table) and the United States Table of Frequency Allocations (U.S. Table). The U.S. Table is the roadmap by which the Commission and the NTIA share responsibilities for managing the nation’s spectrum resources. The U.S. Table allocates specific frequency bands for use by one or more radio services13 on either a primary or secondary basis.14 Because both NTIA and the Commission have the authority to authorize spectrum use within the United States — NTIA authorizes Federal stations and the Commission issues licenses to non-Federal stations —the U.S. Table is further divided into the Federal Table of Frequency Allocations (Federal Table) and the non-Federal Table of Frequency Allocations (non-Federal Table). This subdivision creates three categories of allocations: frequency bands allocated for exclusive Federal use, frequency bands allocated for exclusive non-Federal use, and frequency bands allocated for shared Federal/non-Federal use.15 These categories guide how NTIA and the Commission regulate radio services and authorize frequency use in this shared national resource.
Generally, under established policies of particular relevance to this proceeding, if there is no radio service allocation for a frequency band in the non-Federal Table, non-Federal stations may not operate in that band. The same holds true for Federal stations when there is no radio service allocation for a frequency band in the Federal Table. Nonetheless, the Commission and NTIA can accommodate non-allocated uses in other ways. For example, in frequency bands allocated for non-Federal use, Federal agencies may apply to NTIA to receive authority to operate a station in the band on a non-interference basis—that is, they may not cause interference to and must accept interference from non-Federal stations in the band. If a Federal station operating in one of these bands causes interference to a non-Federal station, the Federal station must correct the interference or cease operating. In addition, the rule applies even if the Federal station was in operation before the non-Federal station began operations. As an alternative to non-interference operation, a Federal agency can enter into a contractual agreement with an FCC licensee whose station is entitled to interference protection. In effect, the Federal agency would lease communications services from a Commission licensee in the same way that non-Federal entities would, and that service would be protected from interference.
9 47 U.S.C. § 301.10 47 U.S.C. § 305(a).11 See 47 U.S.C. § 902(b)(2)(A).12 47 C.F.R. §2.106.13 The U.S. Table also includes various footnotes which denote “stipulations” applicable to radio services provided by Federal and non-Federal operators (“US” designations), non-Federal operators (“NG” designations), and Federal operators (“G” designations).14 Secondary service cannot cause interference to and must accept interference from primary services, even if the primary service station commences operation after the secondary service station has begun operation. 47 C.F.R. §2.105(c)(2).15 In the case of shared use, the type of service(s) permitted need not be the same. 47 C.F.R. § 2.105(b).
For many decades, the FCC and NTIA (and predecessor organizations) have worked together to ensure that spectrum policy and management decisions promote efficient use of the spectrum consistent with both commercial economic interests and national security. This cooperative relationship has been formalized in interagency agreements dating back to October 1940 and is supported and enhanced through regular meetings, staff-level interactions and other joint coordination procedures.16 In frequency bands allocated for shared Federal/non-Federal use, the Commission develops regulations for those services in which it may license non-Federal stations, and NTIA develops regulations for those services in which it may authorize Federal stations to prevent interference between Commission-licensed stations and Federal stations.17 An established set of procedures guides this interaction both for developing regulations for the radio services in the shared bands and for authorizing frequency use by Federal agencies and Commission licensees. Under the Memorandum of Understanding (MOU) between NTIA and the Commission, the Commission and NTIA endeavor to give notice to each other of “all proposed actions that could potentially cause interference” to non-Federal and Federal operations, respectively.18
In August 2006, NTIA filed a petition requesting that the Commission initiate a rulemaking to permit Federal earth stations that are authorized by NTIA and that operate with non-Federal satellites to have primary status in a number of frequency bands currently allocated for non-Federal FSS and non-Federal MSS on a primary basis.19 Earth stations authorized by NTIA must now operate on a non-interference basis. Alternatively, Federal agencies may lease services from a licensee of an FCC-authorized earth station to operate with interference protection. NTIA requests that the Federal Table be modified to add a primary FSS allocation along with a footnote that would restrict primary Federal use of these bands to Federal earth stations accessing non-Federal satellites.20 The NTIA petition outlines a means for Federal agencies to deploy their own earth stations to overcome the uncertainties associated with operating on a non-interference basis and the limitations of leasing services through a third party operator. Such a modification would turn certain exclusive non-Federal use frequency bands into shared Federal/non-Federal spectrum, although use of these bands by Federal agencies would be limited by the terms of the footnote. The allocation and footnote that NTIA requests would mirror an existing Federal allocation for a number of MSS bands. These MSS bands have co-primary Federal and non-Federal 16 See, e.g., “Memorandum of Understanding between the Federal Communications Commission and the National Telecommunications and Information Administration, January 31, 2003 (MOU), available athttp://hraunfoss.fcc.gov/edocs_public/attachmatch/DOC-230835A2.pdf [7]; see also FCC News Release, “FCC and NTIA Sign New Memorandum of Understanding on Spectrum Coordination,” (Jan. 31, 2003), available athttp://hraunfoss.fcc.gov/edocs_public/attachmatch/DOC-230835A1.pdf [8].17 The “Manual of Regulations and Procedures for Federal Radio Frequency Management,” May 2012 Revision of the January 2008 Edition (NTIA Manual) describes technical requirements for Federal radio services. The NTIA Manual is available at http://www.ntia.doc.gov/osmhome/redbook/redbook.html [9].18 MOU at 2-3.19 Petition for Rulemaking of the National Telecommunications and Information Administration, RM-11341, filed Aug. 4, 2006 (NTIA Petition). On August 17, 2006, the Commission sought comment on the petition. Consumer and Government Affairs Bureau Reference Information Center Petition for Rulemaking Filed, Public Notice, Report No. 2789, RM-11341, Aug. 17, 2006.20 NTIA seeks an allocation status for Federal users that is equal to the primary status held by non-Federal earth station licensees. Accordingly, its petition is couched as seeking a “primary” or “co-primary” allocation. NTIA suggests that the footnote simply state that in certain specified bands, “…Government stations operating in the fixed-satellite service shall be limited to earth stations operating with non-Government satellites.” See NTIA Petition at Appendix A.
allocations along with footnote US319, which restricts Federal MSS earth stations in the bands to operating with non-Federal space stations.21
NTIA’s petition identifies 13.275 gigahertz of spectrum in ten frequency bands for which it seeks primary status. As background, spectrum used for satellite communications is divided into different frequency bands which are referred to with letter designations, such as the C-band, Ku-band, or Ka-band.The spectrum which the NTIA petition identifies falls into parts of four of these lettered satellite bands:3.6-4.2 GHz and 5.85-6.725 GHz (in the C-band); 10.7-12.2 GHz, 12.7-13.25 GHz, and 13.75-14.5 GHz (in the Ku-band); 18.3-19.3 GHz, 19.7-20.2 GHz, and 27.5-30 GHz (in the Ka-band); and 37.5-39.5 GHz and 47.2-50.2 GHz (in the V-band). While we analyze these bands in greater detail below, we note that all of the bands addressed in the NTIA petition are allocated for the FSS. In the FSS, earth stations in stationary locations communicate with space stations (i.e. satellites).22 In addition, a portion of the Ka-band from 19.7-20.2 GHz and 29.5-30.0 GHz is also allocated on a primary basis to the MSS with MSS use for most of this spectrum restricted to satellite systems that are also in the FSS.23 In the MSS mobile earth stations communicate with space stations. In most of the NTIA-listed FSS spectrum bands, the satellites are in a geostationary orbit (GSO) with a separation of 2 degrees.24 The earth stations and satellites use directional antennas which, along with the separation between the satellites, prevent interference with earth stations communicating with adjacent satellites. In this way, multiple commercial satellite licensees can share the same spectrum band.25 21 47 C.F.R. § 2.106 footnote US319. These MSS bands are 137-138 MHz, 148-150.05 MHz, 399.9-400.05 MHz, 400.15-401 MHz, 1610-1626.5 MHz, and 2483.5-2500 MHz.22 While the great majority of FSS earth stations are in stationary locations, there are three exceptions. FSS earth stations can be licensed for use on board ships, on moving vehicles, and on aircraft. In all of these cases, directional antennas or lower power operations are used to avoid causing interference to other satellites. 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, 20 FCC Rcd 674 (2004); 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); 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, IB Docket Nos. 05-20, 12-376, Notice of Proposed Rulemaking and Report and Order,27 FCC Rcd 16510 (2012).23 47 C.F.R. § 2.106 footnote 5.529. The use of the bands 19.7-20.1 MHz and 29.5-29.9 by the MSS is limited to satellite networks that are in both the FSS and MSS.24 See 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, FCC 83-184, 54 Rad. Reg. 2d (P & F) 577 paras. 43, 49 (1983); summary printed in Licensing of Space Stations in the Domestic Fixed-Satellite Service and Related Revisions, 48 Fed. Reg. 40,233 (Sept. 6, 1983), on reconsideration, 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, Memorandum Opinion and Order, FCC 84-487, 99 FCC 2d 737 (1984). While certain FSS spectrum has been designated for non-geostationary orbit (NGSO) satellites, the use of such spectrum is currently limited to feeder links for MSS NGSO systems.25 This is in contrast to the MSS, where the spectrum is generally licensed exclusively to a single licensee. The earth stations in the MSS often use omni-directional antennas on portable devices which makes it extremely difficult to avoid causing interference to other satellites sharing the same spectrum. Stations operating in the FSS are able to reuse frequencies by using highly directional antennas and orbital separation between space stations.
Comments received in response to NTIA’s petition were generally supportive but did express a number of specific reservations.26 For example, the Satellite Industry Association (SIA) stated that non-Federal commercial and experimental license applicants should not face delays because of the need for the Commission to coordinate applications with NTIA.27 The Fixed Wireless Communications Coalition commented that Federal earth stations should be required to conduct coordination with terrestrial stations sharing the same band prior to applying for a license as is required for non-Federal earth station applicants.28 SIA, Hispasat, and Lockheed Martin believe that Federal earth stations should be subject to the Commission’s technical and enforcement rules, which is not normally the case for Federal agencies.29
More recently, NTIA also requested a change to a footnote in the Allocation Table to allow Federal space stations to operate in the 399.9-400.05 MHz MSS bands.30 As mentioned above, footnote US319 restricts Federal earth stations in a number of MSS bands to communicate only with non-Federal space stations. NTIA requests that this restriction be removed for the 399.9-400.05 MHz MSS band. According to NTIA, the allocation change will allow some applications to be shifted from the Argos satellite system operated by the National Oceanic and Atmospheric Administration (NOAA) to the 399.9-400.05 MHz band. NTIA claims that this will result in lower interference, higher capacity, and improved reliability and service for both the applications that continue to use Argos as well as the applications on the new satellite network to be deployed in the 399.9-400.05 MHz spectrum. NTIA notes that the Commission has never licensed any operations in this MSS band so there should be no impact to non-Federal licensees.
Spectrum Access for Commercial Space Operators
Federal agencies such as the Department of Defense (DoD) and NASA undertook the early development of launch vehicles capable of reaching outer space. The first commercial GSO communications satellite was launched in 1965.31 While numerous commercial launches have occurred since then, most launches in the United States have been conducted from government owned spaceports such as Cape Canaveral or Vandenberg Air Force Base. In addition, both government and the private sector have been actively involved in the development of space technology, including the International Space Station (ISS) and the Space Shuttle. In recent years there has been increased development of space technology by private companies. The U.S. National Space Policy requires that Federal agencies purchase space services from commercial enterprises to the maximum practical extent.32 With the end of the space shuttle program in 2011, NASA awarded contracts to two companies, Space Exploration Technologies (SpaceX) and Orbital Sciences Corporation (Orbital Sciences), for cargo services to support 26 Comments on NTIA’s petition were filed by the Satellite Industry Association (SIA), Hispasat, Lockheed Martin Corp. (Lockheed), and the Fixed Wireless Communications Coalition (FWCC).27 SIA Comments, RM-11341, filed Sept. 18, 2006, at 5-6.28 FWCC Reply Comments, RM-11341, filed Oct. 3, 2006, at 2.29 SIA Comments, RM-11341, filed Sept. 18, 2006, at 4-5; Hispasat Comments, RM-11341, filed Sept. 15, 2006, at 4-5; Lockheed Comments, RM-11341, filed Sept. 18, 2006, at 3. The Commission’s rules apply only to Commission licensed stations and not to Federal stations. NTIA adopts spectrum use policies that apply solely to Federal agencies.30 See Letter from Karl B. Nebbia, Associate Administrator, Office of Spectrum Management, NTIA, U.S. Department of Commerce, to Julius P. Knapp, Chief, Office of Engineering and Technology, July 10, 2012, ET Docket 13-115 (NTIA US319 Letter).31 See Harold A. Rosen, Syncom and its Successors, 72 Proceedings of the IEEE 1429, 1431 (1984); Bruno Pattan, Satellite Systems: Principles and Technologies, 12 (1993).32 See National Space Policy at 10.
the ISS.33 In May 2012, October 2012, and March 2013, SpaceX successfully launched spacecraft34 that docked with the ISS.35 A number of companies such as Virgin Galactic and XCOR Aerospace are developing craft that will take paying commercial customers on suborbital spaceflights.36 The Federal Aviation Administration (FAA) has licensed a number of non-Federal spaceports from which commercial launches can be made.37
A number of frequency bands are needed to connect the space launch vehicle with the controllers on the ground and to track the launch vehicle. The 420-430 MHz band is used for sending self-destruct commands to the launch vehicle if necessary during the launch. The 2200-2290 MHz band is used to send performance data from the launch vehicle to the controllers on the ground. The 5650-5925 MHz band is used for radar transponders that track the launch vehicle. The 420-430 MHz and 2200-2290 MHz frequency bands are allocated on a primary basis for Federal use only. The 420-430 MHz band is also allocated to the Amateur Radio Service on a secondary basis. The 5650-5935 MHz band is allocated on a primary basis for Federal use only except for a portion that has non-Federal FSS and mobile service allocations. Because these frequency bands have no non-Federal allocation for space launch purposes, the Commission does not license commercial entities to use these bands on an interference protected basis.
The Commission recently granted SpaceX and Orbital Sciences special temporary authority (STA) under the Part 5 experimental licensing rules to use the 2200-2290 MHz and 5650-5925 MHz bands during launches on a non-interference basis.38 Because 2200-2290 MHz and 5650-5925 MHz are Federal bands, the Commission coordinated the grant of these experimental STAs with the NTIA. Each of these experimental STAs was limited to a single launch. Each experimental STA contained the condition that future launches would be considered on a case-by-case basis and that there shall be no expectation that spectrum for future launches will be approved. SpaceX used STAs for successful launches on May 22, 2012, October 7, 2012, and March 1, 2013.39
33 NASA Awards Space Station Commercial Resupply Services Contracts, (Dec. 23, 2008), available athttp://www.nasa.gov/home/hqnews/2008/dec/HQ_C08-069_ISS_Resupply.html [10].34 A spacecraft is a vehicle that travels through space. It is usually launched into space using a launch vehicle.35 SpaceX Dragon Attached to Space Station in Spaceflight First (May 25, 2012), available athttp://www.nasa.gov/exploration/commercial/cargo/spacex_attach.html [11]; Station Welcomes First Commercial Resupply Mission (Oct. 10, 2012), available athttp://www.nasa.gov/mission_pages/station/expeditions/expedition33/dragon_arrives.html [12]; Dragon Arrives With Treasure Trove of Science (March 3, 2013), http://www.nasa.gov/mission_pages/station/expeditions/expedition34/dragon_arrives.html [13].36 See Virgin Galactic, http://www.virgingalactic.com [14]; XCOR Aerospace, http://www.xcor.com/ [15].37 See Launch Data and Information, FAA Office of Commercial Space Transportation, available athttp://www.faa.gov/about/office_org/headquarters_offices/ast/launch_license/active_licenses/ [16].38 See infra note 141. An experimental STA allows operation only on a non-interference basis. Stations operating on a non-interference basis have no protection from and must not cause interference to stations operating under a primary or secondary allocation. See Guidance on Obtaining Experimental Authorizations for Commercial Space Launch Activities, Public Notice, DA 13-446 (rel. March 15, 2013). 39 Kenneth Chang, Big Day for Entrepreneur Who Promises More, N.Y. Times, May 23, 2012, at A13; Kenneth Chang, Group Sends First Rocket Under Deal with NASA, N.Y. Times, October 8, 2012, at A16; Marcia Dunn, Enter the Dragon, After Glitch in Orbit, Wash. Post, March 4, 2013, at A4. 8
The FSS is the backbone of the U.S. commercial satellite industry and is widely used to provide a variety of commercial services domestically and internationally. For example, the FSS supports video distribution both on a point-to-point basis (e.g., transmission of media content from point of origination to point of production by teleport operators, broadcast networks, and news reporting organizations) and on a point-to-multipoint basis (e.g., transmission from point of production to affiliated broadcast stations and cable headends).40 The FSS also provides network services consisting of “backbone” capacity for point-to-point trunking for voice, data or Internet traffic; “backhaul” of communications services; communications to ships; and redundancy and restoration of communications services when other primary technologies fail.41 Further, the FSS is used to provide corporate, government, and military voice and data communications, as well as broadband and video services directly to the home.
Satellite communications also are vital for Federal agencies to accomplish their missions —
both for critical public safety, military, and emergency response communications, and for day-to-day operations. For example, the Federal Bureau of Investigation uses commercial satellites to link field offices,42 the FAA uses commercial satellites to provide safety of flight communication services in Alaska,43 and the Department of Defense uses commercial satellites for more than 80 percent of its satellite communication bandwidth.44 Under existing policy, Federal agencies are required to use commercial satellite systems unless specific mission requirements cannot be met.45 However, the current allocation scheme for the FSS—which is primary non-Federal in many frequency bands—and the current system under which the Commission and the NTIA authorize earth stations pose challenges for Federal agencies in meeting this objective and satisfying their mission requirements.
We seek comments generally on the benefits of greater Federal use of commercial satellite networks. For example, would Federal agencies increase their use of commercial satellite networks toaccomplish their missions with greater efficiency and reduced costs while meeting the national policy objective requiring the use of commercial satellite systems? Would increased Federal use of commercial satellites serve to strengthen the commercial satellite industry — a vital component of the economy and an important driver of United States productivity?
The FSS has operated under a regulatory framework in which the Commission establishes the technical and licensing rules for space stations and earth stations operating as integrated systems, thereby enabling many earth stations to be authorized and operate independently of each other with little risk of interference even if they communicate with the same space station. NTIA requests that Federal 40 See Second Annual Report and Analysis of Competitive Market Conditions with Respect to Domestic and International Satellite Communications Services, IB Docket No. 07-252, FCC 08-247, Second Report, 23 FCC Rcd 15170, 15174-75 paras. 15-17 (2008).41 Id. at 15175 para. 18. We define “backbone” as referring to use on major routes with large volumes of traffic in regions, such as East Coast to West Coast. We define “backhaul” as transmitting from a remote site or network to a central or main site, usually over a high capacity line and for purposes of efficient network management.42 Letter from Vance E. Hitch, U.S. Department of Justice, to Michael Gallagher, NTIA, Appendix B of NTIA Petition.43 Letter from Steve Zaidman, FAA, to Michael Gallagher, NTIA, Appendix B of NTIA Petition.44 Keith Norton, Commercial Satcom Remains Vital to Military Ops, Defense Systems, Aug. 22, 2011, available athttp://defensesystems.com/articles/2011/08/08/industry-perspective-commercial-satellite-communications.aspx [17].45 See NTIA Manual, § 2.3.3.
earth stations it authorizes be allowed to operate with the same regulatory status as non-Federal earth stations in the same frequency band. In order to accomplish this objective, it requests a modification of the Federal Table to include a co-primary FSS allocation in certain frequency bands for Federal earth stations communicating with commercial satellites. This allocation approach would increase uncertainty over who is the regulator of the satellite systems that operate in these bands. NTIA states that the Commission would not be required to consult with NTIA or other Federal agencies regarding these bands any more than they currently coordinate, NTIA would utilize the current FCC processes as much as possible, and the current FCC process would remain as it is today for non-Federal earth station applications.46
Based on our experience in spectrum management in conjunction with NTIA, and in consideration of the goals of the National Space Policy as well as the comments we received in response to the Public Notice that the Commission issued subsequent to receiving NTIA’s petition,47 we recognize that a policy guiding Federal use of commercial satellite networks can be successful only if it provides a clear method for establishing and enforcing operational rights and responsibilities that can be applied consistently regardless of whether the user is licensed by the Commission or authorized by NTIA. We identify and seek comment on the following four key objectives, which we believe best express this intent:
 To ensure parity between Federal and non-Federal earth stations; To provide certainty that the Commission retains regulatory oversight of the satellite network and the FSS even though the Commission would license non-Federal earth stations, and NTIA would authorize Federal earth stations;
 To ensure that the rules and procedures do not hinder the Commission’s rulemaking processes or delay the issuance of Commission licenses and coordination in the affected bands; and
 To establish procedures to ensure that both Federal and non-Federal earth stations comply with the Commission’s rules for operating in the frequency bands.
We seek comment on the means by which we can provide interference protection to Federal earth stations used to access commercial satellite networks. First, we address the commercial satellite frequency bands where NTIA has requested that we should place Federal earth stations on an equal footing with non-Federal earth stations. We then outline two proposals for providing Federal agencies with interference-protected access to these frequency bands. The first proposal follows NTIA’s suggested approach by adding a co-primary Federal FSS and MSS allocation to the Federal Table as well as a footnote that limits primary Federal use of the bands to earth stations communicating with non-Federal satellites. The second approach retains the existing non-Federal allocation structure in those satellite bands, but adds a footnote to the U.S. Table that recognizes the interference protection status for certain Federal earth stations in communication with non-Federal space stations.
Frequency Band Allocation
As discussed above, the NTIA petition addresses spectrum in parts of four distinct satellite bands: the C-band, the Ku-band, the Ka-band and the V-band. These bands are summarized in the following table: 46 See Letter from Lawrence E. Strickling, Assistant Secretary for Communications and Information and Administrator, NTIA, U.S. Department of Commerce, to Julius Genachowski, Chairman, Federal Communications Commission, May 3, 2013, ET Docket 13-115.47 Consumer and Government Affairs Bureau Reference Information Center Petition for Rulemaking Filed, Public Notice, Report No. 2789 (Aug. 7, 2006).
Table 1: NTIA Requests Primary Status in 13.275 MHz of Non-Federal Spectrum
Amount of Spectrum
3600-4200 MHz
space-to-Earth
5850-6725 MHz
Earth-to-space
10.7-12.2 GHz
12.7-13.25 GHz
13.75-14.5 GHz
18.3-19.3 GHz
19.7-20.2 GHz
27.5-30.0 GHz
37.5-39.5 GHz
47.2-50.2 GHz
The C-band is divided into a heavily-used “conventional” segment (3700-4200 MHz downlink and 5925-6425 MHz uplink) and a lightly-used “extended” segment (3600-3700 MHz downlink and 5850-5925 MHz + 6425-7075 MHz uplink). Similarly, the Ku-band is split between a heavily-used “conventional” segment (11.7-12.2 GHz downlink and 14-14.5 GHz uplink) and a lightly-used “extended” segment (10.7-11.7 GHz downlink and 12.7-13.25 GHz + 13.75-14.0 GHz uplink). As described below, certain of these bands are heavily used by commercial satellite providers while other bands currently have seen little FSS usage. Similarly, the degree to which Federal agencies make use of satellite services varies among the different frequency bands.
The conventional C-band FSS allocation is heavily used for commercial satellite operations. Services available from C-band satellite operators include delivery of television programming to cable headends and corporate data networks. The Fixed Service (terrestrial) is also allocated on a co-primary basis in the conventional C-band. FCC staff surveys of available records in the Government Master File (GMF), an NTIA-administered database that lists Federal frequency use authorizations, found that Federal use of the C-band is overwhelmingly concentrated in the conventional C-band.
The conventional Ku-band FSS allocation is also heavily used by many satellite operators and commercial service providers.48 Blanket licenses are available for large networks of small antenna earth stations operating in this band.49 These earth station networks, commonly called VSAT (very small aperture terminals) networks, do not share primary allocation status with other services, do not need to be 48 Within the conventional Ku-band, the 14.0-14.2 GHz band is shared with the Federal space research service, which operates on a secondary basis; and the 14.4-14.5 GHz band is shared with the Federal fixed and mobile services, which operate on a secondary basis. 47 C.F.R. § 2.106. Radio astronomy observations are conductedwithin the 14.47-14.5 GHz band, even though there is no allocation for the radio astronomy service. 47 C.F.R. § 2.106 footnotes US203 and US342.49 47 C.F.R. § 25.134; Routine Licensing of Large Networks of Small Antenna Earth Stations Operating in the 12/14 GHz Frequency Bands, Declaratory Order, 1986 WL 291567 para. 6 (CCB Released April 9, 1986); CC Docket No. 90-219, Report and Order, 6 FCC Rcd. 7372 (1991); 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, 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 (2005); 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, IB Docket No. 00-248, Sixth Report and Order and Third Further Notice of Proposed Rulemaking, 20 FCC Rcd 5593, 5614-21 paras. 51-70 (2005). Blanket licensing is feasible in the conventional Ku-band because no other services are co-primary with the FSS and the VSAT technical specifications are designed to prevent interference from occurring.
coordinated, and do not require individual licenses. As long as VSATs operate under a blanket license and comply with the technical rules, such as for transmitted power density and antenna size, they may be placed anywhere within the area of operations specified in the license.50 Authorized Federal earth stations51 are already able to operate with what effectively amounts to equal status to non-Federal earth stations because the only primary services in the band are FSS and those operations are coordinated by satellite operators, without distinguishing between customers based on whether the ultimate end user is Federal or non-Federal.52 However, we also recognize that the Commission licenses non-standard earth stations in the Ku-band that do not comply with the VSAT technical specifications. We grant such licenses after a determination that the earth stations will not cause interference. FCC staff surveys of available records in the GMF found that Federal use of the Ku-band is overwhelmingly concentrated in the conventional Ku-band.
The extended C-band is shared with other services on a co-primary basis and is used for commercial satellite services to a lesser extent than the conventional C-band. This is because terrestrial services make heavier use of this spectrum than the conventional C-band. Moreover, the 3650-3700 MHz portion of the extended C-band has been reallocated for terrestrial fixed services.53 Because 3650-3700 MHz has been allocated for terrestrial services, we do not propose changes to the Allocation Table to provide interference protection for Federal earth stations in this portion of the extended C-band. In 2011 NTIA recommended that the Commission make the 3600-3650 MHz portion of the extended C-band available for wireless broadband and the Commission has recently initiated a proceeding to make this band available for wireless broadband.54 Consequently, we tentatively conclude to not change the Allocation Table for the 3600-3650 MHz portion of the extended C-band. Given that the Commission is considering the transition of the extended C-band downlink away from satellite use, we expect that future Federal use of the C-band will continue to be overwhelmingly in the conventional C-band. 30.
The extended Ku-band is used to a lesser extent than the conventional Ku-band for satellite communications. The non-Federal Table limits use of a majority of the uplink and the entire downlink 50 A typical VSAT network consists of a main earth station that communicates via satellite with a large number of identical VSAT terminals at remote locations. 51 Section 7.23 of the NTIA Manual permits Federal agencies to use radio devices with commercial systems licensed by the Commission such as cellular phones, pagers, MSS radios, and FSS earth stations that are operating under a blanket license in the Ku-band without applying for authorization from NTIA. The NTIA Manual permits this when the operation of the radio device is under the control of the Commission licensee and in accordance with the Commission’s rules governing the specific service. In effect, Federal agencies make use of these radio devices in the same manner as non-Federal entities by contracting with a Commission licensee for the frequency band.52 The non-interference basis status of Federal VSAT stations does not alter this outcome.53 Amendment of the Commission’s Rules With Regard to the 3650-3700 MHz Government Transfer Band, ET Docket No. 98-237, WT Docket No. 00-32, First Report and Order and Second Notice of Proposed Rulemaking,15 FCC Rcd 20488, 20495, 20497 paras. 13, 18 (2000). Preexisting earth stations continue to have primary status. Id. at 20500 para. 24.54 Letter from Karl B. Nebbia, Associate Administrator, Office of Spectrum Management, NTIA, U.S. Department of Commerce, to Julius P. Knapp, Chief, Office of Engineering and Technology, Jan 19, 2011, available athttp://www.ntia.doc.gov/legacy/filings/2011/NTIA_FCC_Letter_115%20MHz_01192011.pdf [18]; See “Plan and Timetable to Make Available 500 MHz of Spectrum for Wireless Broadband, U.S. Department of Commerce, Oct. 29, 2010, available at http://www.ntia.doc.gov/files/ntia/publications/tenyearplan_11152010.pdf [19]; An Assessment of the Near-Term Viability of Accommodating Wireless Broadband Systems in the 1675-1710 MHz, 1755-1780 MHz, 3500-3650 MHz, 4200-4220 MHz, and 4380-4400 MHz Bands, U.S. Department of Commerce, Oct. 15, 2010, available at http://www.ntia.doc.gov/reports/2010/FastTrackEvaluation_11152010.pdf [20]. Amendment of the Commission’s Rules with Regard to Commercial Operations in the 3550-3650 MHz Band, GN Docket No. 12-354, Notice of Proposed Rulemaking and Order, 27 FCC Rcd 15594 (2012).
band to international satellite systems.55 There is extensive terrestrial use within the extended Ku-band. The 10.7-11.7 GHz extended Ku-band downlink is heavily used for terrestrial services such as fixed point-to-point microwave links.56 The 12.7-13.25 GHz extended Ku-band uplink is used by the Broadcast Auxiliary Service (BAS) for electronic news gathering and point-to-point transmission of television signals as well as by fixed point-to-point microwave links.57 The 13.75-14.0 GHz extended Ku-band uplink is shared with Federal radars,58 and NASA’s Tracking and Data Relay Satellite System.59 Because the terrestrial services heavily use the extended Ku-band and because of the international satellite system limitation, we do not anticipate that the band will be heavily used by Federal agencies.
The Ka-band (18.3-19.3 GHz and 19.7-20.2 GHz downlink, and 27.5-30.0 GHz uplink) is moderately used for commercial satellite service, supporting mostly consumer-oriented applications (e.g.home Internet and television).60 Several companies are also proposing more extensive use of these bands for broadband services.61 There are overlapping FSS, MSS, Mobile Service (MS), and FS allocations in the Ka-band.62 The Commission has designated the 18.3-18.8 GHz and 19.7-20.2 GHz portions of the Ka-band downlink and the 28.35-28.6 GHz and 29.25-30 GHz portions of the Ka-band uplink for use with GSO satellites with blanket licensing available in most of the spectrum.63 The 18.8-19.3 GHz 55 47 C.F.R. § 2.106 footnote NG52.56 See generally 47 C.F.R. § 2.106. A search of the Commission’s licensing database shows over 21,000 Fixed Service (FS) call signs in the 10.7-11.7 GHz band.57 47 C.F.R. § 74.602(a).58 The Table includes additional limitations on FSS antenna size and power levels in this band. 47 C.F.R. § 2.106 footnote US356.59 See Reply Comments of NASA, RM-11351, filed Jan. 17, 2007, 4-5; Amendment of Parts 2 and 25 of the Commission's Rules to Permit Operation of NGSO FSS Systems Co-Frequency with GSO and Terrestrial Systems in the Ku-Band Frequency Range and Amendment of the Commission's Rules to Authorize Subsidiary Terrestrial Use of the 12.2-12.7 GHz Band by Direct Broadcast Satellite Licensees and Their Affiliates, ET Docket No. 98-206, Notice of Proposed Rulemaking, 14 FCC Rcd 1131, 1151-52 para. 38 (1998).60 Companies such as ViaSat have satellites in the Ka-band. See High-Capacity Satellite System and ViaSat-1, available at http://www.viasat.com/broadband-satellite-networks/high-capacity-satellite-system [21]. 61 See, e.g., O3B US Market Access Application, IBFS File No. SES-LIC-20100723-00952. Inmarsat plans to offer commercial satellite service in the Ka-band in 2014. Inmarsat Group Ltd. Condensed Consolidated Financial Results for Three and Nine Months Ended 30 Sept. 1012 (unaudited), 1 available athttp://www.inmarsat.com/cs/groups/inmarsat/documents/assets/018494.pdf [22].62 47 C.F.R. § 2.106. The Commission has designated discrete sub-bands within the Ka-band uplink for particular types of terrestrial and satellite services. Rulemaking to Amend Parts 1, 2, 21 and 25 of the Commission’s Rules to Redesignate the 27.5-29.5 GHz Frequency Band, to Reallocate the 29.5-30.0 GHz Frequency Band, to Establish Rules and Policies for Local Multipoint Distribution Service and for Fixed Satellite Services, CC Docket No. 92-297, First Report and Order and Fourth Notice of Proposed Rulemaking, 11 FCC Rcd 19005, 19024 paras. 42-44 (1996) (28 GHz R&O). The designated services will have licensing priority in the portion of the Ka-band uplink that is designated for their use over other allocated services.63 Redesignation of the 17.7-19.7 GHz Frequency Band, Blanket Licensing of Satellite Earth Stations in the 17.7-20.2 GHz and 27.5-30.0 GHz Frequency Bands, and the Allocation of Additional Spectrum in the 17.3-17.8 GHz and 24.75-25.25 GHz Frequency Bands for Broadcast Satellite-Service Use, IB Docket No. 98-172, Report and Order, 15 FCC Rcd 13430, 13443-44, 13471 paras. 28-30, 87 (2000) (18 GHz R&O); Second Order on Reconsideration, 17 FCC Rcd 24248, 24251-56 paras. 9-19 (2002); 28 GHz R&O at 19029 para. 57; 47 C.F.R. §§ 25.115(e), 25.138, 25.145(b). Note that the 29.25-29.5 GHz portion of the spectrum designated for GSO use is also designated for MSS feederlinks. The Federal Earth Exploration-Satellite Service and Space Research Service are co-primary with the FSS in the 18.6-18.8 GHz band. NGSO FSS may operate on a secondary basis in the 28.35-28.6 GHz and 29.5-30.0 GHz GSO designated spectrum. The 27.5-28.35 GHz band is designated for the Local (continued….)
portion of the Ka-band downlink and the 28.6-29.1 GHz portion of the Ka-band uplink are designated for non-NGSO (NGSO) satellites, but there are no active NGSO commercial systems in this band and several GSO systems are authorized to operate on a non-interference basis using this spectrum.64 The MSS and FSS share Federal primary allocations in the 19.7-20.2 GHz downlink and 29.5-30.0 GHz uplink of the Ka-band, but MSS use of most of this spectrum is limited to satellite systems that are in the FSS.65 The entire Ka-band downlink (18.3-20.2 GHz) also has a Federal co-primary FSS allocation, with Federal FSS use of the band restricted to earth stations in three locations.66 An FCC staff analysis indicates that Federal agencies make limited use of the Ka-band for communication with commercial satellite services. Moreover, the prevalence of blanket licensing in the band — where earth stations that meet the criteria for blanket licensing are specifically designed not to cause interference — means that Federal agencies are already able to engage in communications with these commercial satellites on what effectively amounts to an equal basis with Commission licensees under our current rules. Because a Federal user operating under the blanket licensing rules would use equipment that is designed not to cause interference, including the Ka-band in the footnote would serve no practical benefit. This is evidenced by the fact that NTIA already allows federal agencies to use commercial satellite services operating under FCC blanket licenses without any specific authorization by NTIA.67
While there are currently no commercial satellites operating in the V-band (37-42 GHz downlink and 45.5-50.5 GHz uplink), Hughes Network Systems has been authorized to operate two satellites using V-band spectrum.68 Moreover, the Commission has designated portions of the V-band for wireless terrestrial use.69 In addition, primary Federal FSS allocations already exist in portions of the V-band at 40-41 GHz and 48.2-50.2 GHz.
(Continued from previous page) Multipoint Distribution Service (LMDS) on a primary basis with FSS licensees permitted to operate on a non-interference basis to LMDS licensees. 28 GHz R&O at 19025 para. 45.64 28 GHz R&O at 19030 para. 59; 18 GHz R&O at 13455-56 para. 52. The Commission has received one application for a NGSO Ka-band license from O3B. While the Commission has decided in general to allow blanket licensing in the NGSO designated sub-band, it has not adopted specific rules for blanket licensing earth stations. 18 GHz R&O at 13475 para. 95. GSO satellites are able to use the 28.6-29.1 GHz NGSO designated spectrum on a secondary basis.65 See supra note 23.66 47 C.F.R. §§ 1.924(e), 2.106 footnote US334, 74.32, 78.19(f). The restriction of Federal FSS earth stations to three locations is per an agreement with NTIA and is not included in the Table. We recently proposed to amend footnote US334. Amendment of Parts 1, 2, 15, 74, 78, 87, 90, and 97 of the Commission’s Rules Regarding Implementation of the Final Acts of the World Radiocommunication Conference (Geneva, 2007) (WRC-07), Other Allocation Issues, and Related Rule Updates, ET Docket No. 12-338, Notice of Proposed Rulemaking and Order, 27 FCC Rcd 14598 ( 2012).67 See NTIA Manual at 7.23. This section authorizes agencies to operate various commercial telecommunication systems without an allocation or even a specific authorization by NTIA. Other examples of such systems are cellular, personal communication service (PCS), wireless communications service (WCS), etc.68 Application of Hughes Network Systems, IBFS File No. SAT-LOI-20111220-00242, Call Sign S2849, Grant; Application of Hughes Network Systems, IBFS File No. SAT-LOI-20111223-00248, Call Sign S2852, Grant.69 See Allocation and Designation of Spectrum for Fixed-Satellite Services in the 37.5-38.5 GHz, 40.5-41.5 GHz and 48.2-50.2 GHz Frequency Bands; Allocation of Spectrum to Upgrade Fixed and Mobile Allocations in the 40.5-42.5 GHz Frequency Band; Allocation of Spectrum in the 46.9-47.0 GHz Frequency Band for Wireless Services; and Allocation of Spectrum in the 37.0-38.0 GHz and 40.0-40.5 GHz for Government Operations, IB Docket No. 97-95, Second Report and Order, 18 FCC Rcd 25428, 25434 para. 14 (2003); Report and Order, 13 FCC Rcd 24649, 24668 para. 35 (1998) (designating the 37-40 GHz, 42-42.5 GHz, 46.9-47.0 GHz, 47.2-48.2 GHz, and 50.4-51.4 GHz bands for terrestrial wireless services).
We propose to modify the U.S. Table using one of the approaches discussed below to provide Federal earth stations interference protection in the frequency bands proposed by NTIA with the exception of 3600-3700 MHz as discussed above. We seek comment generally on this proposal. We recognize that use of some of these bands for commercial satellite services has evolved since the NTIA petition was filed, that Federal agency use of the commercial satellite services may vary among the different frequency bands, and that in some bands Federal access may not be needed at all. We thus seek comment on whether Federal access should be added for those frequency bands discussed above that are most likely to meet the needs of Federal earth station users. 34.
In a number of the NTIA requested bands, the FSS shares spectrum with terrestrial services. These include the C-band and the extended Ku-band. In bands shared between terrestrial and satellite users, coordination between terrestrial licensees and earth stations is required to prevent interference. Should the complexity that this coordination adds to licensing of earth stations in these bands affect our decision to add a co-primary Federal allocation to these bands? In addition, portions of the Ka-band and V-band have been designated for terrestrial use.70 Should we consider modifying the Allocation Table to provide protection to Federal earth stations in the portions of these bands designated for terrestrial services?
Below we propose two approaches, either of which would achieve the purpose of providing interference protection to Federal earth stations operating with commercial fixed satellites. We first describe a proposal to add a co-primary Federal FSS and/or MSS allocation entry to the Federal Table for the selected bands. We then describe an alternate proposal to add a footnote to the Allocation Table that provides that Federal earth stations receive interference protection equivalent to non-Federal earth stations in