WRC-23: International regulation of satellite services

By Victor Strelets, Chairman, ITU-R Study Group 4

At the Plenipotentiary Conference (PP-22) held in Bucharest in September and October last year, Member States of the International Telecommunication Union (ITU) raised important issues related to enhancing ITU’s role in regulating the use of satellite communications.

New resolution

The resolves part of PP‑22 New Resolution 219, “Sustainability of the radio-frequency spectrum and associated satellite orbit resources used by space services,” instructs the Radiocommunication Assembly, as a matter of urgency, to undertake studies through ITU Radiocommunication Sector (ITU‑R) study groups on the increasing use of radio-frequency spectrum and associated orbit resources in non‑geostationary (non‑GSO) orbits and the long-term sustainability of these resources.

It also calls for ITU-R studies on equitable access to, and rational and compatible use of, GSO and non‑GSO orbit and spectrum resources, consistent with the objectives of Article 44 of ITU’s Constitution.

Sharing spectrum and orbital resources on an equal footing, and without unacceptable interference, is key to the ability of all ITU Member States to meet the world’s growing demand for all types of satellite services.

Within ITU‑R, efficient use of the radio‑frequency spectrum and associated satellite orbits is considered by Study Group 4, both as part of ongoing activities and when considering agenda items for World Radiocommunication Conferences (WRCs).

Under COVID‑19 restrictions, the task of preparing materials for WRC‑23 agenda items and conducting the studies was assigned to correspondence groups that worked diligently between working party meetings.

Satellite broadband communication on platforms in motion

Two agenda items for the upcoming WRC‑23 relate to the global demand for satellite broadband communication on aircraft and ships while in motion, with a growing requirement for bandwidth to meet the increasing need for continuous connectivity along travel routes:

• Under agenda item 1.15, studies were conducted on the deployment of earth stations in motion (ESIM) communicating with GSO fixed-satellite service space stations, following a similar approach to that of previous conferences, notably WRC‑19 and WRC‑15, on agenda items that considered the operation of ESIM. However, since the 12.75‑13.25 gigahertz (GHz) band is subject to a worldwide plan (Appendix 30B of the Radio Regulations), it was necessary to develop regulatory and technical measures to ensure its protection. The results of the studies suggest the possible adoption of a resolution specifying the regulatory, technical, and operational conditions for the operation of ESIM on aircraft and ships.
• Under agenda item 1.16, studies were performed to establish a regulatory framework for Ka‑band ESIM communicating with non‑GSO fixed-satellite service space stations. Studies expected to be concluded in time for WRC‑23 under this agenda item aim to develop appropriate regulatory, technical and operational provisions for ESIM to co-exist efficiently with other spectrum users, including GSO systems and other services. These provisions are expected to be included in a resolution that allows national administrations to authorize non-GSO ESIM effectively on a global basis.

Satellite-to-satellite transmissions

Agenda item 1.17 proposes investigating the possibility of allowing satellite-to-satellite transmissions within the current fixed-satellite service allocation in the 11.7-12.7 GHz, 18.1-18.6 GHz, 18.8-20.2 GHz and 27.5-30 GHz frequency bands. This is meant to ensure efficient, fast, and cost-effective transmission to Earth of data received on-board a satellite in low-earth orbit (LEO) via space relay.

Studies indicate no impact for most incumbent services, although a potential impact could be observed in some specific configurations. There is general consensus that compatibility can be achieved in the considered frequency bands, or in portions of them, that would allow satellite-to-satellite operations while safeguarding existing services.

Addressing deficiencies or improvements

One standing WRC issue is agenda item 7, focused on addressing deficiencies or making improvements in current procedures for advance publication, coordination, registration, and recording procedures for satellites.

During ITU‑R’s current, 2019‑2023 study period, 13 topics related to this agenda item were identified for discussion at WRC‑23. Some of these remained from WRC‑19, where ITU-R requested urgent follow-on study, while others were brought forward by the ITU‑R membership.

During WRC‑19, held in Egypt in 2019, one of the main issues discussed under agenda item 7 was the development of a milestone procedure for non‑GSO satellite systems. While WRC‑19 largely resolved this, two sub-issues emerged.

The first was the requirement for non‑GSO satellites to be deployed on a “notified orbital plane,” defined by four specific orbital parameters. The second was how to accurately reflect in the Master International Frequency Register (MIFR) any changes to non‑GSO system deployment over time.

A third topic that also arose from WRC‑19 is the protection of geostationary networks of the mobile satellite service from non‑GSO satellite systems in specified portions of the 7/8 GHz and 20/30 GHz bands. The problem stems from some potential gaps in the current Radio Regulations in terms of the protection of such networks from non‑GSO systems in the frequency bands being studied.

Improving access to planned bands

The other area of significant focus during the study cycle was potential improvement to planned band procedures in the Appendices 30/30A/30B.

Four topics were agreed for studies in this area:

1) improved Appendix 30B procedures for new ITU Member States;

2) excluding the territory of one administration from the uplink service area of another administration’s planned band network;

3) enhanced protection of the planned bands in Appendices 30/30A/30B; and

4) the possibility for special agreements for Appendix 30B between administrations with an additional use network and administrations with Appendix 30B allotments.

All four topics were driven by the same underlying goal − to improve ITU Member State access to planned bands.

While WRC‑23’s agenda item 7 includes other important topics, those mentioned took up the greatest share of time and attention to find possible solutions. Through incremental improvement, satellite processing procedures will continue to become more efficient, enabling more effective regulation of the scarce orbit and spectrum resources available to all.

SG 4 working parties were also responsible for preparing the following WRC-23 agenda items:

• 1.11, considering possible regulatory actions to support the modernization of the Global Maritime Distress and Safety System and the implementation of e-navigation.
• 1.18, focused on making available spectrum for low-power narrowband mobile satellite service non-geostationary satellite systems for Internet-of-Things and related uses.
• 1.19, regarding new primary allocation to the fixed-satellite service in the space-to-Earth direction in the frequency band 17.3-17.7 GHz in Region 2, while protecting existing primary services in the band.

New engineering solutions outpacing regulations

New engineering solutions and their associated services, especially in the field of satellite communications, continually outpace the enhancement of the international regulatory framework.

For example, satellite terminals operating with global non‑GSO systems are already widely implemented on aircraft, ships and other vehicles. Yet the relevant regulatory decisions for such applications are still to be discussed and adopted at WRC‑23 under agenda item 1.16.

This gives rise to situations where spectrum use for new technologies happens in the absence of the relevant Radio Regulations provisions, creating obvious difficulties for administrations. Yet ITU‑R continues its work to ensure smooth, interference-free operation and global harmonization for the growing range of uses worldwide.

Investors, developers, and operators of the systems and networks for terrestrial and space services need to be confident in the transparency, predictability, and sustainability of international regulation, regardless of the timing of the change of various radio technologies.

This article first appeared in the ITU News Magazine, which outlines key technical and regional perspectives on topics to be discussed at the World Radiocommunication Conference (WRC-23) taking place in Dubai, UAE, between 20 November and 15 December 2023.

Header image credit: Adobe Stock