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July Report and Order: FCC-11-57A1

July Report and Order: FCC-11-57A1

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Federal C
(
mmunicati
(
ns C
(
mmissi
(
nFCC 11-57Bef 
(
retheFederal C
(
mmunicati
(
ns C
(
mmissi
(
nWashingt
(
n, D.C. 20554
In the Matter 
)
Fixed and M
)
 bile Services in the M
)
 bile SatelliteService Bands at 1525-1559 MHz and 1626.5-1660.5 MHz, 1610-1626.5 MHz and 2483.5-2500MHz, and 2000-2020 MHz and 2180-2200 MHz
))))))
ET D
)
cket N
)
. 10-142
REPORT AND ORDER Ad
(
pted: April 5, 2011Released: April 6, 2011
By the C
)
mmissi
)
n:
I.INTRODUCTION
1.In this Rep
)
rt and Order, we take steps t
)
make additi
)
nal spectrum available f 
)
r newinvestment in m
)
 bile br 
)
adband netw
)
rks while als
)
ensuring that the United States maintains r 
)
 bustm
)
 bile satellite service capabilities. In c
)
ntemplati
)
n
)
f M
)
 bile Satellite Service (MSS) spectrum beingused f 
)
r terrestrial wireless services, we als
)
extend the C
)
mmissi
)
n’s sec
)
ndary markets leasing rules t
)
 any MSS spectrum used f 
)
r terrestrial services pursuant t
)
the C
)
mmissi
)
n’s Ancillary TerrestrialC
)
mp
)
nent (ATC) rules. The
 Nati
%
nal Br 
%
adband Plan
rec
)
mmended that 90 megahertz
)
f spectrumall
)
cated t
)
MSS c
)
uld be made available f 
)
r terrestrial m
)
 bile br 
)
adband use, while preservingsufficient MSS capability t
)
serve rural areas, public safety, and
)
ther imp
)
rtant nati
)
nal purp
)
ses.
1
 2.In this Rep
)
rt and Order, we act
)
n the pr 
)
 p
)
sals c
)
ntained in
)
ur July 15, 2010,
MSS  NPRM 
, which built
)
n the rec
)
mmendati
)
ns
)
f the
 Nati
%
nal Br 
%
adband Plan
.
2
 
First, we add c
)
-primary Fixed and M
)
 bile all
)
cati
)
ns t
)
the MSS 2 GHz band,c
)
nsistent with the Internati
)
nal Table
)
f All
)
cati
)
ns. This acti
)
n will lay thegr 
)
undw
)
rk f 
)
r m
)
re flexible use
)
f the band, including f 
)
r terrestrial br 
)
adbandservices, in the future.
Sec
)
nd, in
)
rder t
)
create greater predictability and regulat
)
ry parity with bands licensed
)
r terrestrial m
)
 bile br 
)
adband service, we extend the C
)
mmissi
)
n’s existing sec
)
ndarymarket “spectrum manager” spectrum leasing p
)
licies, pr 
)
cedures, and rules that
1
C
)
nnecting America: The Nati
)
nal Br 
)
adband Plan, Rec
)
mmendati
)
n 5.8.4, p. 87 (2010) (
 Nati
%
nal Br 
%
adband  Plan
). The 90 megahertz figure c
)
nsists
)
f 40 megahertz
)
f the 2 GHz band, 40 megahertz
)
f the L-band, and 10megahertz
)
f the Big LEO band.
2
Fixed and M
)
 bile Services in the M
)
 bile Satellite Service Bands at 1525-1559 MHz and 1626.5-1660.5 MHz,1610-1626.5 MHz and 2483.5-2500 MHz, and 2000-2020 MHz and 2180-2200 MHz,
 N 
%
tice
%
 f Pr 
%
 p
%
 sed  Rulemaking and N 
%
tice
%
 f Inquiry
, ET D
)
cket N
)
. 10-142, 25 FCC Rcd 9481, 9482, at ¶ 2 (2010) (respectively,
MSS NPRM 
and
MSS NOI 
). In resp
)
nse t
)
this pr 
)
ceeding, we received twenty-eight (28) c
)
mments and ten (10)reply c
)
mments. F
)
r a list
)
f all parties wh
)
filed c
)
mments
)
r reply c
)
mments,
 see
Appendix B. We intend t
)
 address the issues raised in the
MSS NOI 
in a subsequent item.
See infra
 para. 13.
 
Federal C
(
mmunicati
(
ns C
(
mmissi
(
nFCC 11-57
2currently apply t
)
wireless terrestrial services t
)
the use
)
f MSS/ATC spectrum f 
)
r the pr 
)
visi
)
n
)
f terrestrial services.
II.BACKGROUND
3.
%
bile Satellite Service Spectrum All 
%
cati
%
n.
MSS is a radi
)
c
)
mmunicati
)
ns serviceinv
)
lving transmissi
)
n between m
)
 bile earth stati
)
ns and
)
ne
)
r m
)
re space stati
)
ns.
3
As we discussedin the
MSS NPRM 
, three MSS frequency bands are capable
)
f supp
)
rting br 
)
adband service: the 2 GHz band (“S-band”) fr 
)
m 2000-2020 MHz and 2180-2200 MHz, the Big LEO Band fr 
)
m 1610-1626.5 MHzand 2483.5-2500 MHz, and the L-band fr 
)
m 1525-1559 MHz and 1626.5-1660.5 MHz.
4
Alth
)
ugh theInternati
)
nal Table
)
f All
)
cati
)
ns includes a primary Fixed and M
)
 bile services all
)
cati
)
n al
)
ng with the primary M
)
 bile-Satellite all
)
cati
)
n in the S-band,
5
such c
)
-all
)
cati
)
ns d
)
n
)
t exist in the U.S. Table. TheBig LEO and L-bands are n
)
t all
)
cated f 
)
r Fixed and M
)
 bile services either in the United States
)
)
naninternati
)
nal basis.4.In additi
)
n, as n
)
ted in the
MSS NOI 
, MSS has the capability t
)
serve imp
)
rtant needs,such as rural access and disaster rec
)
very.
6
MSS has the ability t
)
pr 
)
vide c
)
mmunicati
)
ns t
)
m
)
 bileuser terminals anywhere in the United States, including in rem
)
te areas where pe
)
 ple are with
)
ut basictelec
)
mmunicati
)
ns services. MSS is particularly well suited f 
)
r meeting the needs
)
f the transp
)
rtati
)
n, petr 
)
leum, and
)
ther vital industries. MSS
)
 perat
)
rs have the ability t
)
 
)
 perate when existing terrestrialinfrastructure is n
)
n-existent
)
r has been degraded
)
r destr 
)
yed and theref 
)
re can meet public safety andemergency c
)
mmunicati
)
n needs in times
)
f nati
)
nal crises and natural disasters.
7
F
)
r example, MSSsatellite netw
)
rks were utilized in the aftermath
)
f the terr 
)
rist attacks
)
f September 11, 2001, and duringthe hurricane seas
)
n
)
f 2005. MSS units pr 
)
vide inter 
)
 perable c
)
nnecti
)
ns between emergencyresp
)
nders and
)
ther c
)
mmunicati
)
ns netw
)
rks, and can even link U.S. emergency resp
)
nse pr 
)
viderswith c
)
unterparts in neighb
)
ring c
)
untries.5.
Terrestrial Use
%
 f MSS Spectrum.
At present, use
)
f these MSS bands f 
)
r terrestrialm
)
 bile service is permitted
)
nly under the C
)
mmissi
)
n’s ATC rules in ass
)
ciati
)
n with the existingsatellitesystem auth
)
rity. The C
)
mmissi
)
n ad
)
 pted the rules f 
)
r the licensing and
)
 perati
)
n
)
f ATCfacilities by MSS
)
 perat
)
rs in these bands in 2003.
8
ATC c
)
nsists
)
f terrestrial base stati
)
ns and m
)
 bile
3
See
47 C.F.R. § 2.1(c).
4
See generallyMSS NPR
, 25 FCC Rcd at 9482-85, 9486-87, ¶¶ 4-8, 10-12 (2010) (discussing the all
)
cati
)
n andhist
)
ry
)
f these three MSS bands). The MSS Little LEO band (137-138 MHz, 148-150.05 MHz, and 400.15-401MHz),
 see
47 C.F.R. § 25.202(a)(3), was excluded fr 
)
m the
MSS NPRM 
 because that band is unsuitable f 
)
r the pr 
)
visi
)
n
)
f terrestrial br 
)
adband service.
 Id.
at 9482, ¶ 4 n.5.
5
Currently, the 1980-2010 MHz band is all
)
cated t
)
Fixed, M
)
 bile, and M
)
 bile-Satellite (Earth-t
)
-space)
)
n a primary basis in the Internati
)
nal Table f 
)
r all regi
)
ns and the 2170-2200 MHz band is all
)
cated t
)
Fixed, M
)
 bile,and M
)
 bile-Satellite (space-t
)
-Earth)
)
n a primary basis in the internati
)
nal table f 
)
r all regi
)
ns. The 2010-2025MHz band is all
)
cated t
)
the Fixed, M
)
 bile, and M
)
 bile-Satellite (Earth-t
)
-space) services
)
n a primary basis inRegi
)
n 2 (N
)
rth and S
)
uth America and the Caribbean) and t
)
Fixed and M
)
 bile services
)
n a primary basis in
)
ther regi
)
ns. 47 C.F.R. § 2.106.
6
MSS NOI 
, 25 FCC Rcd at 9482, ¶ 3.
7
See, e.g.
,Use
)
f Returned Spectrum in the 2 GHz M
)
 bile Satellite Service Frequency Bands, IB D
)
cket N
)
s. 05-220 and 05-221,
Order 
, 20 FCC Rcd 19696, 19708-09, ¶ 28 (2005),
rec
%
ns. pending 
.
8
Flexibility f 
)
r Delivery
)
f C
)
mmunicati
)
ns by M
)
 bile Satellite Service Pr 
)
viders in the 2 GHz Band, the L-Band,and the 1.6/2.4 GHz Bands,
 Rep
%
rt and Order and N 
%
tice
%
 f Pr 
%
 p
%
 sed Rulemaking 
, 18 FCC Rcd 1962 (2003) (
 ATC  Rep
%
rt and Order 
), m
)
dified by
Order 
%
n Rec
%
nsiderati
%
n
, 18 FCC Rcd 13590 (2003), rec
)
nsidered in part in
Mem
%
randum Opini
%
n and Order and Sec
%
nd Order 
%
n Rec
%
nsiderati
%
n
, 20 FCC Rcd 4616 (2005) (
 ATC Sec
%
nd  Rec
%
nsiderati
%
n Order 
), further rec
)
nsiderati
)
n pending.
 
Federal C
(
mmunicati
(
ns C
(
mmissi
(
nFCC 11-57
3terminals that re-use frequenciesassigned f 
)
r MSS
)
 perati
)
ns. In the
MSS NPRM 
, we n
)
ted thattechn
)
l
)
gical devel
)
 pments inv
)
lving the use
)
f MSS/ATC spectrum c
)
uld s
))
n lead t
)
the pr 
)
visi
)
n
)
m
)
 bile br 
)
adband services similar t
)
th
)
se pr 
)
vided by terrestrial m
)
 bile pr 
)
viders. In particular, we
)
 bserved thatSkyTerra (n
)
w LightSquared) plans t
)
c
)
nstruct an integrated nati
)
nal satellite/terrestrialm
)
 bile br 
)
adband netw
)
rk, which w
)
uld make use
)
f b
)
th MSS spectrum and terrestrial spectrum that ithas already leased in the sec
)
ndary market, and that the services it w
)
uld
)
ffer have the p
)
tential t
)
 expand services
)
ffered in the
)
verall market
)
f m
)
 bile terrestrial wireless services and t
)
enhancec
)
mpetiti
)
n in this larger m
)
 bile marketplace.
9
In additi
)
n t
)
LightSquared, three
)
ther MSS licenseeshave received ATC auth
)
rity, alth
)
ugh n
)
ne
)
f these currently has c
)
mmercial terrestrial ATC stati
)
ns in
)
 perati
)
n.
10
6.
Sec
%
ndary Market P 
%
licies and MSS Spectrum.
Currently, the C
)
mmissi
)
n’s sec
)
ndarymarkets spectrum leasing framew
)
rk, which applies t
)
terrestrial Wireless Radi
)
Services licenses, d
)
esn
)
t extend t
)
ATC uses
)
f MSS spectrum. In the
Sec
%
ndary Markets First Rep
%
rt and Order 
ad
)
 pted in2003, the C
)
mmissi
)
n established p
)
licies and rules by which terrestrially-based Wireless Radi
)
Servicelicensees c
)
uld lease s
)
me
)
r all
)
f the spectrum usage rights ass
)
ciated with their licenses t
)
third partyspectrum lessees, which c
)
uld then pr 
)
vide wireless services c
)
nsistent with the underlying licenseauth
)
rizati
)
n.
11
The C
)
mmissi
)
n pr 
)
vided f 
)
r tw
)
different types
)
f spectrum leasing arrangements f 
)
Wireless Radi
)
Services: “spectrum manager” leasing arrangements and “
de fact 
%
 
transfer” leasingarrangements.
12
 
In establishing these sec
)
ndary market p
)
licies, the C
)
mmissi
)
n s
)
ught t
)
pr 
)
m
)
te m
)
reefficient, inn
)
vative, and dynamic use
)
f the spectrum, expand the sc
)
 pe
)
f available wireless servicesand devices, enhance ec
)
n
)
mic
)
 pp
)
rtunities f 
)
r accessing spectrum, pr 
)
m
)
te c
)
mpetiti
)
n am
)
ngterrestrial wireless service pr 
)
viders, and eliminate regulat
)
ry uncertainty surr 
)
unding terrestrialspectrum leasing arrangements.
13
At that time, h
)
wever, the C
)
mmissi
)
n decided n
)
t t
)
extend these
9
MSS NPRM 
, 25 FCC Rcd at 9484-85, 9490-91, ¶¶ 7, 21-22.
10
 Id.
at 9484-85, ¶ 7. We n
)
te that Gl
)
 balstar’s ATC auth
)
rity has been suspended f 
)
r failure t
)
c
)
me int
)
 c
)
mpliance with the ATC “gating criteria” as required pursuant t
)
the temp
)
rary waiver granted t
)
Gl
)
 balstar in2008.
See
Gl
)
 balstar Licensee LLC Applicati
)
n f 
)
r M
)
dificati
)
n
)
f License t
)
Extend Dates f 
)
r C
)
ming int
)
 C
)
mpliance with Ancillary Terrestrial C
)
mp
)
nent Rules and Open Range Request f 
)
r Special Temp
)
raryAuth
)
rity, File N
)
. SAT-MOD-20091214-00152, Call Sign: S2115; File N
)
. SAT-STA-20100625-00147,
Order 
, 25FCC Rcd 13114-13115, 13122, at ¶¶ 1, 18 (rel. IB, WTB, OET Sept. 14, 2010).
11
Pr 
)
m
)
ting Efficient Use
)
f Spectrum Thr 
)
ugh Eliminati
)
n
)
f Barriers t
)
the Devel
)
 pment
)
f Sec
)
ndary Markets,WT D
)
cket N
)
. 00-230,
 Rep
%
rt and Order and Further N 
%
tice
%
 f Pr 
%
 p
%
 sed Rulemaking 
, 18 FCC Rcd 20604, 20609,20610-13, 20648-49, at ¶¶ 8-9, 12-13, 91-92 (2003) (
Sec
%
ndary Markets First Rep
%
rt and Order 
),
 Erratum
, 18 FCCRcd 24817 (2003). Wireless Radi
)
Services d
)
n
)
t include satellite services. 47 C.F.R. § 1.907. Under thesesec
)
ndary market p
)
licies and rules, the service rules and p
)
licies applicable t
)
the licensee under its licenseauth
)
rizati
)
n –including all technical, interference, and
)
 perati
)
nal rules –apply t
)
the spectrum lessee as well.
Sec
%
ndary Markets First Rep
%
rt and Order 
, 18 FCC Rcd at 20648-49, ¶¶ 91-92;
 see
47 C.F.R.§§ 1.9020(c)-(d),1.9030 (c)-(d), 1.9035(c)-(d). The rules and pr 
)
cedures f 
)
r spectrum leasing arrangements are set f 
)
rth in Part 1,Subpart
f
 
)
f the C
)
mmissi
)
n’s rules. 47 C.F.R §§ 1.9001
et seq
.
12
“Spectrum manager” leasing arrangements require the licensee t
)
maintain an active r 
)
le in ensuring c
)
mpliancewith applicable C
)
mmissi
)
n p
)
licies and rules but d
)
n
)
t inv
)
lve a transfer 
)
de fact 
%
 
c
)
ntr 
)
l under Secti
)
n 310(d)and s
)
d
)
n
)
t require C
)
mmissi
)
n appr 
)
val, while “
de fact 
%
 
transfer” leasing arrangements inv
)
lve a transfer 
)
de fact 
%
 
c
)
ntr 
)
l and require C
)
mmissi
)
n appr 
)
val.
See generally Sec
%
ndary Markets First Rep
%
rt and Order 
, 18 FCCRcd at 20610-13, 20635-38, 20649-71, ¶¶ 12-13, 64-70, 94-159.
13
 Id.
at 20607, ¶ 2. These sec
)
ndary markets p
)
licies and rules were designed t
)
ensure that the spectrum leasingarrangements w
)
uld be c
)
nsistent with statut
)
ry requirements, including the requirements
)
f Secti
)
n 310(d) withrespect t
)
transfers
)
f spectrum rights t
)
third parties.
 Id.
at 20626-42, ¶¶ 46-81 (revising the C
)
mmissi
)
n’sstandard f 
)
r determining whether spectrum leasing arrangements c
)
nstitute a transfer 
)
de fact 
%
 
c
)
ntr 
)
l under Secti
)
n 310(d) in the c
)
ntext
)
f the Wireless Radi
)
Services);
 see als
%
 
47 C.F.R. § 1.9010. They als
)
pr 
)
vide theC
)
mmissi
)
n the
)
 pp
)
rtunity t
)
evaluate, in a streamlined pr 
)
cess, the vari
)
us public interest c
)
nsiderati
)
ns that(c
)
ntinued….)

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