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X4 X   7`( X4  #&J\  P6Qx&P#Federal Communications Commission`j(#bFCC 98235 ă   yxdddy 7*` Before the x Federal Communications Commission  X'-Washington, D.C. 20554 ă In the Matter of) ) Redesignation of the 17.719.7 GHz Frequency)  X 4Band, Blanket Licensing of Satellite)IB Docket No. 98172  X4Earth Stations in the 17.720.2 GHz and)RM9005  X427.530.0 GHz Frequency Bands,)RM9118 and the Allocation of Additional Spectrum) in the 17.317.8 GHz and 24.7525.25 GHz ) Frequency Bands for Broadcast) SatelliteService Use)  X'  NOTICE OF PROPOSED RULEMAKING \  X!4X` hp x (#%'0*,.8135@8:"X>">"`> a  " ngso/fss"|Bgso/fss"gso/fss"Hngso/fss >  " "X""`   " 1100 MHz"o500 MHz"400 MHz"N500 MHz n   17.7 18.8 19.3 19.7 20.2 GHz n XC 4 X  As shown above, the current downlink band plan is as follows: the 17.718.8 GHz band is designated for coprimary use by terrestrial fixed service and GSO/FSS; the 18.819.3 GHz band is designated for coprimary use by terrestrial fixed service and NGSO/FSS; the 19.3-19.7GHz band is designated for coprimary use by terrestrial fixed service and MSS/FL; and the 19.720.2 GHz band is designated for primary use by GSO/FSS.  XN48.` ` Terrestrial fixed services currently operating in the 17.719.7 GHz band include Cable Television Relay Service ("CARS"), auxiliary broadcasting, local television  X4transmission, fixed point-to-point, and low power pointtomultipoint.,&X/r {O' "  ԍThe spectrum used for Digital Electronic Message Service ("DEMS") was recently changed. See  xx Amendment of the Commission's Rules to Relocate the Digital Electronic Message Service From the 18 GHz Band  {O' x  to the 24 GHz Band and to Allocate the 24 GHz Band For Fixed Service, Order, 12 FCC Rcd 4990 (1997), aff'd,  {Om'Memorandum Opinion and Order, FCC 98155, ___FCC Rcd ___ (rel. July 17, 1998)., These services meet a variety of important communications needs, including remote monitoring of gas and petroleum pipelines, public safety links, video distribution links, and pointtopoint data links.  X4There are tens of thousands of terrestrial fixed links currently licensed in the 17.719.7 GHz band. Terrestrial fixed service use of this band is expected to increase as a result of migration of users from the congested lower terrestrial fixed service bands to this band, and from the need for new systems to support the introduction of new services such as digital television broadcasting, Personal Communications Services, and other digital communications systems.  X49.` ` Satellite services licensed to operate in the Kaband include GSO/FSS,  X4NGSO/FSS, and MSS/FL.DF/r {O~"'ԍSupra note 3.D The Commission has granted thirteen GSO/FSS licenses and one NGSO/FSS license. The currentlylicensed GSO/FSS and NGSO/FSS systems in this band have the potential to provide global Internet access, twoway digital communications, videoconferencing, interactive multimedia, telemedicine and residential voice and data communications services. Within the next five to ten years, we anticipate that these services will be provided to millions of United States businesses and consumers using small antenna",K(K(<<b" Kaband satellite earth stations.  X4 10.` ` In addition to the existing licensees, on December 22, 1997, the Commission closed the filing window for second round Ka-band FSS systems. The Commission received applications for 17 additional FSS systems during the second round Kaband filing window. These applications included proposals for GSO/FSS, NGSO/FSS, and hybrid GSO and NGSO  X.4satellite systems../r yO'ԍThese second round applications will be addressed in a future licensing proceeding. We note that some applicants requested use of spectrum that is inconsistent in several aspects with the current band plan. Any licenses granted to second round Kaband applicants will be conditioned upon conformance with the final band plan adopted in this proceeding and any service rules that are adopted in the licensing proceeding.  X 4 11.` ` On December 23, 1996, Lockheed Martin Corporation, AT&T Corp., Hughes Communications, Inc., Loral Space & Communications Ltd., and GE American Communications, Inc. ("Petitioners") filed a joint Petition for Rulemaking proposing blanket licensing for GSO/FSS earth stations operating in certain portions of the Kaband. On January 16, 1997, the Commission placed the petition on Public Notice and assigned it  X 4rulemaking number RM9005.u X/r {O'ԍSee Public Notice, Report No. 2173 (rel. Jan. 16, 1997).u Teledesic Corporation, licensee of a NGSO/FSS system in the Kaband, filed comments supporting the petition and proposed that the rulemaking proceeding be expanded to include blanket licensing for all types of satellite earth stations in the Kaband, including NGSO/FSS earth stations. On September 5, 1997, the Commission issued a Public Notice requesting comments on issues raised by the petition and to refresh the  X!4record.$!/r {O' " ԍSee "Commission Requests Comment to Refresh Record on Proposals for Blanket Licensing of Satellite Earth  xY Stations Operating in the 17.720.2 GHz and 27.530.0 GHz Frequency Bands and Sharing Between Fixed Terrestrial  {ON' x* and Satellite Services in the 17.719.7 GHz Frequency Bands", Public Notice, IN Report No. 9727 (rel. Sept. 5, 1997). In response to this Public Notice, twentytwo formal comments were filed.Y!/r yO'ԍThe commenters are listed in Appendix A.Y "f ,K(K(<<s"Ԍ X4 2%S |  2%S  12.` ` In 1997, the Commission issued licenses to 13 GSO/FSS applicantsg/r {Oy' " ԍOn May 9, 1997, the Commission assigned orbital locations to the thirteen GSO/FSS applicants. See  {OC' x Assignment of Orbital Locations to Space Stations in the Kaband, Order, FCC Rcd 13737 (1997). On the same  {O ' x day, the Commission also granted licenses for the thirteen GSO/FSS applicants. See Authorizations of: Comm, Inc.  x (DA 97968); GE American Communications, Inc. (DA 97970); EchoStar Satellite Corporation (DA 97969);  x Hughes Communications Galaxy, Inc. (DA 97971); KaStar Satellite Communications Corp. (DA 97972); Lockheed  xV Martin Corporation (DA 97973); Loral Space & Communications Ltd. (DA 97974); Morning Star Satellite  x Company, L.L.C. (DA 97975); NetSat 28 Company, L.L.C. (DA 97976); Orion Atlantic, L.P. (DA 97979);  x PanAmSat Licensee Corp. (DA 97978); and VisionStar, Inc. (DA 97980); Orion Network Systems, Inc. (DA97-977) (International Bureau May 9, 1997).g and one  X4NGSO/FSSapplicant|\/r {O, ' " ԍThe Teledesic license was granted on March 14, 1997. See Application of Teledesic Corporation for  x Authority to Construct, Launch, and Operate a Low Earth Orbit Satellite System in the Domestic and International  {O 'Fixed Satellite Service, Order, 12 FCC Rcd 3154 (1997).| to launch and operate Kaband FSS systems. 2%S |  2%S  On October 9, 1997, the Commission adopted licensing qualification requirements and service rules for Kaband FSS  X4systems.$ /r {O ' "0 ԍSee Rulemaking to Amend Parts 1, 2, 21, and 25 of the Commission's Rules to Redesignate the  x 27.5-29.5GHz Frequency Band, to Reallocate the 19.530.0 GHz Frequency Band, to Establish Rules and Policies  {O' x for Local Multipoint Distribution Service and for Fixed Satellite Services, Third Report and Order, 12 FCC Rcd 22310 (1997). These service rules impose a strict timetable for the implementation of Kaband  Xt4GSO and NGSO FSS systems.\Bt/r yO' " ԍEach GSO/FSS licensee is required to begin construction of its first satellite within one year of grant, to  x begin construction of the remainder within two years of grant, to launch at least one satellite into each of its assigned  xb orbit locations within five years of grant, and to launch the remainder of its satellites by the date required by the ITU  x to assure international recognition and protection of these satellites. Each NGSO/FSS licensee is required to begin  x construction of its first two satellites within one year of the unconditional grant of its authorization, and complete  xQ the construction of those first two satellites within four years of grant. Construction of the remaining authorized  x operating satellites in the constellation must begin within three years of the initial authorization, and the entire  {OK'authorized system must be operational within six years. See 47 C.F.R.  25.145(f).\ Although these systems are not yet in operation, we expect the deployment of commercial Ka-band FSS systems in the near future.  X.4  X 4 13.` ` On June 5, 1997, DIRECTV Enterprises, Inc., ("DIRECTV") filed a Petition for Rulemaking proposing to reallocate the 24.7525.25 GHz band to FSS for BSS feeder link use and the 17.317.8 GHz band to BSS for its downlinks. In addition, DIRECTV requested that the Commission adopt a 4.5$ orbital spacing policy in licensing BSS space stations to operate in the 17.317.8 GHz and 24.7525.25 GHz bands. On July 1, 1997, the Commission placed  X\ 4this petition on public notice and assigned it rulemaking number RM-9118.z\ /r {O"'ԍSee Public Notice, Report No. 2208 (rel. July 1, 1997).z In response to  X9 4DIRECTV's petition, seven comments and three reply comments were filed.Y9 J/r yO4%'ԍThe commenters are listed in Appendix A.Y We address the DIRECTV petition in this rulemaking due to the potential impact of the proposed band plan on a BSS downlink allocation at 17.717.8 GHz. " ,K(K(<< "Ԍ X' ę.;T III. DISCUSSION Đ\  X' A.The Joint FSS Petition  Xt4 14.` ` Petitioners propose blanket licensing for GSO/FSS earth stations operating in those .portions of the Kaband that are not currently shared with the terrestrial fixed service  X.4(i.e., the 19.7-20.2GHz, 28.3528.6 GHz, and 29.2530.0 GHz bands). ./r yO' " ԍPetitioners also request that a second proceeding be initiated to address sharing between GSO/FSS and  x terrestrial fixed service in the currently shared 17.718.8 GHz band. Because we are proposing a band plan that  xg separates ubiquitous satellite service operations from terrestrial fixed service operations, we believe a second proceeding dealing with interservice sharing issues, as recommended by Petitioners, is not necessary. In support of the blanket licensing proposal, Petitioners state that there will be millions of GSO/FSS earth stations and that individual licensing of these earth stations would result in delay, increased  X4consumer costs, and administrative burdens on the Commission.?!/r yO('ԍPetition at 3.?  X 415.` ` Teledesic argues that similar considerations apply to NGSO/FSS earth stations and that blanket licensing has previously been used in shared bands by issuing blanket  X; 4licenses but requiring the licensees to conduct coordination.S"; @/r yO,'ԍTeledesic initial comments at 35.S Accordingly, Teledesic requests that the proceeding be expanded to include blanket licensing procedures for all FSS earth stations operating in the Kaband, including NGSO/FSS earth stations. Comments submitted  X 4by other Kaband satellite interests also generally stress the need for blanket licensing.w# /r yOS'ԍMotorola comments at 4; PanAmSat comments at 1; TIASat comments at 3.w  X416.` ` Terrestrial fixed service commenters argue that blanket licensing should not be allowed in frequency bands that are shared with the terrestrial fixed service. The Fixed Point-toPoint Communication Section of the Telecommunications Industry Association ("TIAFPTP") contends that sharing of frequencies requires licensees in each service to  X4coordinate their frequency usage.H$` /r yO'ԍTIAFPTP comments at 3.H TIAFPTP states that such coordination is impossible if one of the services is blanket licensed and specific station locations are not identified. TIA-FPTP contends that if a satellite earth station must be protected and its location is unknown, then the entire blanket license area and an additional buffer zone outside of that area must be avoided. This protected area could be over 100 miles wide depending upon the characteristics of the satellite earth stations and the terrestrial system involved. TIAFPTP argues that the inability to coordinate with blanket licensed earth stations at unspecified locations would have a substantial negative impact on terrestrial fixed users, and blanket licensing would in effect close off entire portions of the 18 GHz band to many existing and  X4potential terrestrial fixed services.A% /r {Of''ԍId. at 15.A" %,K(K(<<"Ԍ X4ԙ17.` ` Some terrestrial fixed service commenters argue that frequency sharing with FSS is not feasible even if blanket licensing is not adopted. TIAFPTP states that the integrity of terrestrial fixed service operating areas will be severely and adversely affected by  X4the large "holes" or "exclusion zones" required to protect FSS earth station receivers.@&/r {O'ԍId. at 3.@ GTE asserts that terrestrial fixed service and FSS are not compatible services and should not be  XQ4required to share the same frequency block.C'QZ/r yO\'ԍGTE comments at 6.C Harris states that sharing would only be viable if the number of FSS earth stations is limited or if FSS earth stations are deployed away from  X 4urban areas.F( /r yO 'ԍHarris comments at 3.F   X' B.General Considerations  X 4 18.` ` In the 28 GHz First Report and Order, the Commission recognized that there might be difficulties involved with sharing the 17.719.7 GHz band; however, there was no record to support redesignating the band to separate terrestrial fixed service and FSS at that time. In the present proceeding, we received petitions and comments describing: (1) the ubiquitous nature of the proposed satellite systems; (2) the need for blanket licensing of such systems; (3) the difficulty of blanket licensing in shared bands; and (4) the difficulty of sharing between ubiquitous satellite systems and terrestrial fixed services even without blanket licensing. Given the record in this proceeding, we now realize that there is a clear need to revisit sharing of the 17.719.7 GHz band.  X#419.` ` We agree with satellite interests that given the large numbers of small FSS earth stations expected to be deployed, blanket licensing will probably be necessary to ensure  X4the fast and efficient implementation of these new Kaband services.P)z/r {O'ԍSee infra. Section III.D.P However, it appears that blanket licensing would make it impractical for terrestrial fixed service providers to coordinate new operations to avoid interference in shared frequency bands where blanket licensing is allowed. Furthermore, even without blanket licensing, the presence of large numbers of ubiquitously deployed small antenna earth stations could have a serious adverse effect on the ability of the terrestrial fixed service to start a new operation or expand existing operations in a shared band. After considering these factors, we tentatively conclude that the public interest is best served by redesignating the 17.719.7 GHz band to separate terrestrial fixed services from most satellite earth station operations.  X420.` ` Separating terrestrial fixed service operations from most GSO/FSS and NGSO/FSS operations will benefit the terrestrial fixed service in several ways. First, such separation would eliminate the need for new terrestrial fixed service operations to coordinate with satellite earth station operations. In addition, terrestrial fixed service operators looking to expand their operations would no longer run the risk of being precluded from large" ),K(K(<< " geographic areas by the introduction of a new satellite earth station or from a portion of the band by the presence of millions of satellite earth stations. Furthermore, without satellite earth stations in an area, a denser population of terrestrial fixed service operations would be possible.  XQ421.` ` Separating terrestrial fixed service operations from most GSO/FSS and NGSO/FSS operations will also benefit satellite operators. First, satellite operators would not be required to individually coordinate large numbers of satellite earth stations with terrestrial fixed service operations. We agree with Petitioners that individual coordination of satellite earth stations would be costly, time consuming, and would delay service to the end user. In addition, satellite operators would not need special siting and shielding installations to avoid receiving interference from the operation of a terrestrial fixed service station. Finally, our band proposal would allow the adoption of efficient blanket licensing procedures for GSO/FSS and NGSO/FSS satellite earth stations in the bands earmarked for primary satellite use.  X 422.` ` Although we propose to separate terrestrial fixed service from ubiquitous satellite operations, we do not think that such separation is necessary for all Kaband satellite operations. In this regard, we note that Lockeed has indicated it is planning to use 500 MHz  Xg4in the 17.718.8 GHz band for the operation of "AstrolinkTM" gateway earth stations.G*g/r yO'ԍLockeed comments at 6.G These earth stations are expected to use relatively large diameter antennas and are not expected to be ubiquitously deployed. Sharing between the terrestrial fixed service and such nonubiquitous satellite operations is feasible because the number of satellite earth stations is not large, because we are not proposing blanket licensing in these bands, and because their locations will be known. Therefore, current coordination criteria and sharing principles between satellite earth station and terrestrial fixed service operations can be used. Thus, we propose continued sharing in certain band segments. We anticipate that satellite operators will deploy large antenna diameter earth stations for specialized uses such as gateway terminals in these shared band segments.  X423.` ` Further, while we tentatively conclude that redesignating the 17.719.7 GHz band to separate terrestrial fixed service from ubiquitous satellite operations is the most practical solution, we also request comment on the feasibility of alternative proposals that would involve continued sharing in part or all of the 17.719.7 GHz band. We note that Petitioners and several commenters urge the creation of a joint working group to address  X74interservice sharing and coordination issues,+7X/r yO@"' "l ԍPetition at 8; Motorola comments at 5; PanAmSat comments at 2; ABC comments at 3; GTE comments at 8; UTC comments at 4; NSMA comments at 3. and that such a working group has been  X4formed.,/r {Ou%' " ԍSee Letter from Robert J. Miller, Gardere & Wynne, L.L.P., to Ruth Milkman, Deputy Chief, International Bureau, Federal Communications Commission (Nov. 19, 1997). We support this industry effort and encourage the working group to file comments in this proceeding and to recommend alternative band sharing or separation approaches. We" ,,K(K(<<f " are aware from previous experience that developing a consensus in such a working group can  X4be a lengthy process. Given the need to resolve satellite licensing issues on a timely basis and to protect the operations of existing terrestrial fixed service licensees, we believe the public interest will be served by offering proposals and requesting comments on the issues  Xt4addressed in this NPRM.  X.'C.Band Redesignation Proposals  X424.` ` In developing specific band redesignation proposals for this NPRM, we sought to identify the spectrum requirements of all services authorized to operate in the band and to strike a balance between the requirements of these different services and the public interest. While we recognize the difficulties involved in this process, we tentatively conclude that the band plans proposed below strike the appropriate balance, and will ensure both continued development of terrestrial fixed service and FSS in this band and efficient use of the spectrum. We request comment on whether we have fully identified the requirements of the various services, and whether we have identified band plans that best meet the public interest.  X' 1. ` ` Spectrum Requirements   Xg425.` ` GSO/FSS. Satellite systems have typically been allocated equal blocks of uplink and downlink spectrum. In the United States, GSO/FSS systems are currently designated 1000MHz of spectrum for use in the uplink portion of the Kaband (28.35-28.6GHz, 29.25-29.5 GHz, and 29.5-30.0 GHz) and 1.6 GHz of spectrum for use in the downlink portion of the Kaband (17.7-18.8GHz and 19.720.2 GHz). Of this 1.6 GHz of downlink spectrum, 500 MHz (19.7-20.2GHz) is designated for GSO/FSS use on a primary basis and 1100 MHz (17.7-18.8 GHz) is designated for GSO/FSS and terrestrial fixed service use on a coprimary basis. The Commission made this disparate allocation to uplinks and downlinks in recognition that added flexibility was needed resulting from the requirement  X,4to share and coordinate with terrestrial fixed services in the 17.718.8 GHz band.j-,/r {O'ԍ28 GHz First Report and Order, 11 FCC Rcd at 19036.j We tentatively conclude that if terrestrial fixed service and GSO/FSS sharing and coordination issues were resolved, only 500 MHz of the 1100 MHz in the 17.718.8 GHz band (when coupled with the 500 MHz in 19.720.2 GHz) would be required to match the 1000 MHz of uplink bandwidth allocated to GSO/FSS.  XZ426.` ` NGSO/FSS. In the United States, NGSO/FSS systems are currently designated 500MHz of spectrum for use in the uplink portion of the Kaband (28.629.1 GHz) and 500MHz of spectrum for use in the downlink portion of the Kaband (18.819.3 GHz). Thus, NGSO/FSS has equal amounts of uplink and downlink spectrum. The Ka-band downlink segment, however, is designated for coprimary use with terrestrial fixed services. With the likelihood that more than one NGSO/FSS system will operate in this band, and based on our belief that band redesignation will provide a fast, efficient, and cost effective way to make these services available to the public, we tentatively conclude that designating the existing 500 MHz of downlink spectrum on a primary use basis would be necessary to"B$ Z-,K(K(<<i$" fulfill NGSO/FSS spectrum requirements.  X427.` ` Terrestrial Fixed Service. Terrestrial fixed services operating in the 17.7-19.7GHz band include CARS, auxiliary broadcasting, loc