International and domestic regulatory issues which affect the implementation of a mobile satellite system (MSAT) over North America are addressed. WARC-MOB-87, MSAT frequency co-ordination, frequency sharing and key Canadian domestic issues are discussed

Bahman, Azarbar

Frank, Christopher J.

Langlois, Jacques R.

English

NASA Technical Reports Server

N88-25692
INTERNATIONAL AND DOMESTIC REGULATORY ISSUES FACING THE CANADIAN MSAT
SYSTEM
BAHMAN AZARBAR, Communications Systems Engineering, Telesat Canada;
JACQUES R. LANGLOIS, Regulatory Matters and Corporate Policy, Telesat
Canada; CHRISTOPHER J. FRANK, Satellite Services Planning and
Development, Telesat Canada.
TELESAT CANADA
ooo River Road
Vanler, Ontario
KIL 8B9
Canada
ABSTRACT
This paper addresses international and domestic
regulatory issues which affect the implementation of
a mobile satellite system (MSAT) over North America.
It deals with WARC-MOB-87, MSAT frequency co-ordination,
frequency sharing and key Canadian domestic issues.
INTRODUCTION
Introduction of MSAT service is the next logical progression in
satellite communications in Canada and the U.S. The first part of this
paper deals specifically with issues related to frequency/orbit
co-ordination of MSAT within the context of the prevailing international
Radio Regulations. It reviews briefly the results of the 1987 World
Administrative Radio Conference on Mobile Service and its foreseen
effects on the MSAT frequency co-ordinatlon environment. Possible
approaches to frequency sharing between the existing and planned systems
will also be examined. The second part addresses the domestic regulatory
issues surrounding the development of a commercial MSAT service in Canada.
WARC-MOB-87
The 1987 World Administrative Radio Conference on Mobile Services
(WARC-MOB-87), as part of its agenda dealing with the contentious issue
of spectrum re-allocation, finally recognized the need and made specific
provision for land mobile satellite service (LMSS) in the 1.5 - 1.6 GHz
range. Under the new provisions, the full complement of satellite based
mobile services now can be provided in this part of the spectrum, subject
to successful co-ordination under the international Radio Regulations.
The conference, however, chose to preserve the distinction between
various types of services. For a multi-beam mobile satellite system such
as MSAT, this means that the provision of a full complement of services
within each beam now requires multiplexing distinct segments of the
corresponding spectrum allocated to each class of service. Furthermore,
the allocations to LMSS now come in three categories - Exclusive (LMSSE),
Co-primary (LMSSC) with, and SecOndary (imss) to maritime mobile
satellite service (MMSS), depending on location in the band in question.
79
https://ntrs.nasa.gov/search.jsp?R=19880016308 2020-03-20T06:39:02+00:00Z
While the decision of the conference obviously entails changes to the
technical design of the MSAT associated hardware, it is the international
co-ordination aspect of the new provisions which will be dealt with in
the following sections.
MSAT CO-ORDINATION ENVIRONMENT
In order to gauge broadly the co-ordination environment for the
Canadian MSAT system, Figure 1 was prepared to represent graphically the
population and distribution of existing and planned mobile systems in
this band, as identified through the ITU publications. The systems
within the arc 23°E - 150°E are not depicted, as they are not likely to
affect the Canadian MSAT. The service classification under which these
systems have been filed with the ITU as well as the dates of Advance
Publication Information (API) and start of the co-ordination phase are
identified in Table i.
A more detailed consideration of the entries in Table 1 in terms of
their relative orbital positions, the expected In-service dates,
operational life and the intended service area reveals that the systems
subject to detailed co-ordination with the Canadian MSAT are likely to be
reducible to a shorter list as presented in Figure 2. In this figure,
the exact downlink frequencies as identified in the ITU publications are
also shown to indicate the extent of spectrum overlap which may require
detailed frequency co-ordination. It is to be noted, however that some
of these systems are expected to change in the process of realignment
with the outcome of WARC-MOB-87. These changes, along with new entries
which may emerge in the coming years, will no doubt impact the
co-ordination picture just described.
A POSSIBLE APPROACH TO FREQUENCY SHARING
In this section, by way of a simple example, some technical
principles and guidelines which have the potential to facilitate the
co-ordination process are discussed in a qualitative fashion. To better
understand the concept, the following notes are in order. The MSAT
related co-ordination activities can be divided into two broad
categories= i) co-ordination with existing systems or their replacements,
and 2) co-ordination with planned systems. These two groups could
conceivably each be divided into global systems and national or regional
systems. National or regional systems are quite likely to utilize
spot-beams to conserve satellite power over the intended service area, a
fact that greatly enhances their frequency re-use capability and
facilitates the frequency co-ordination process. The global systems on
the other hand, have been traditionally characterized by large beams with
little or no re-use capability. Frequency co-ordination of the spot-beam
based systems amongst themselves is expected to be relatively simple to
achieve. Indeed the models developed for the North American MSAT systems
to date are indicative of the feasibility and efficiency with which such
beam topologies could be implemented. The basic concept has been shown
to be easily extendable to South America and other ITU regions [Ref. i].
Co-ordination with the global systems, however will require special
measures.
8O
Before searching for a solution, we should first understand the
nature of the problem. The primary mode of interference between a
spot-beam system and a global one is uplink interference into the former
case and downlink interference into the latter one simply caused by the
large Inhomogeneity in the associate coverage gains. This observation
suggests that if the intended service areas are to a large extent
mutually exclusive, then sharp roll-off characteristics of the spot-beams
will quickly localize and limit the interference to the overlap
boundaries of the two systems. Once the potential incompatibilities
become localized, then detailed frequency co-ordination becomes a
feasible task. This can be achieved in two principal ways. Either the
mobiles belonging to the global system and roaming in the areas close to
the overlap region will not be assigned common frequencies with those
utilized in the boundary spot-beams, or alternatively, these spot-beams
will use a set of frequencies not used by the global beam.
A PLAUSIBLE SCENARIO
A simplistic example of the application of such a sharing concept is
depicted in Figure 3. Sub-bands from LMSSE allocation are used to
construct the coastal beams for a hypothetical North American system and
the frequency is reused wherever feasible within the intended coverage
area. Noting the fact that WARC-87 resolutions require that the LMSSE
allocation only be used for national or regional coverage, it is
necessary to utilize spot-beam technology for controlling emissions over
adjacent service areas. The entire frequency band used in this fashion
could therefore be reused several times within the remainder of the
Region II outside of North America. The spectrum for central beams could
come from the LMSSC allocation to complete the coverage of the land mass
in North America. The separation of the central spot-beams from coastal
areas would make it feasible for the global maritime systems, which share
this band on a co-primary basis with LMSS, to fully utilize it over their
primary service areas. Similarly, AMSS(R) and Imss allocations could be
used over North America. However in this case, the coastal beams need to
be subjected to detailed frequency co-ordination with global systems over
the interface areas. The fact that AMSS(R) is not currently utilized
could facilitate significantly the process of frequency planning between
the emerging systems.
REGULATORY DEVELOPMENTS IN CANADA
Satellite services and associated tariffs charged by Telesat are
regulated by the Canadian Radio-television and Telecommunications
Commission (CTRC). Rapid changes in the field of telecommunications
technology and service development have prompted the CRTC to re-examine
its approach to regulation. Spurred by increased competition created by
the introduction of new products and services, the CRTC has strived to
find ways and means to ensure a "level playing field" for
facilities-based service providers and non facilities-based service
providers where competition exists. In order to satisfy the pressures of
the marketplace and its statutory responsibilities, the CRTC has used a
process called "forebearance" which exempts certain companies or their
respective services from the requirement to file tariffs.
81
ORIGL_AE PA-G_
OE PO0__ QUALrl_ .°'
"USS4, 0 r / , O
"-:.............. D
, its,. ,_,_. ,,o,
\, Figure 1: Distribution of Existing and Planned L-Band Mobile ,, _
o_x Satel 1 ire Systems
,P \ ."
_s "\ , "%
LMS$
_Ir"ISS
m
m
1530 33
Figure 2:
MMSS. Imps AMSS(R)
MS&T
INMARSAT II
15 - 180.5 WEST
VOLNA 21M
VOLNA
IM,13,IA
ZENON R ,C
PACSTAR
A1 ,AT,
ACS 1,2,3,4,5
44 45 55 1559 MHZ
Systems Most Affecting Coordination of a North
/_erican MSAI System
m_9.
Figure 3: AMERICA
LE3
4. -'=. -',. 4. L. _. I,. L
AZIMUTH {ollgl
AS SEEN FItOM 106.-_ [JEGRE[!S WEST
9.
82
ORBIT SERVICE DATE
POSITION SATELLITE CLASS API COORD
150.OE _AP EIS-5 A N 85 86
156.0E AUSAT B2 A 87
16O.0E AUSAI B1 A 87
161.0E P_ PACSIAR A-I A 86
Ill.OE USA ACS-5 A 87
I16.5E INMARSAI MARISAT M 73 76
117.SE INMARSAT MARECS A 19 BO
180.Sg INMARSAI POR-I A M 86
180.0kl INTELSAT MC5 PAC A M B1 82
175.0W _ PACSTAR A-2 A 86
I/O.OW USSR VOLNA-/ A 77 78
145.0W USSR VOLNA-2IM A M 85
I30.0W USA ACS-3 A 86 87
I_._ MSAT A 86 87
IO0.O_ USA ACS-1 A 86 87
72.0 W USA ACS-2. A 86 87
55.0 W INMARSAT WES1 A M 86
34.0 W INMARSAI CENI IA A M 87
32.0 W INFg_RSAT CENT 2A A M 87
26.5 W USSR VOLNA-13 A 85 87
26.0 W INMARSAI CENI A M 84 86
26.0 W INRARSAI MARECS ATL1 M 79
25.0 W USSR VOLNA-I A 77 78
25.0 W USSR VOLNA-IM M 85
W USSR VOLNA-IA A 86
24.0 W INMARSAI CENT 2 A M 86
23.0 W INMARSAI MARECS ATL2 M 79 80
21.5 W INTELSAT MCS ATL C M B0 Bl
20.0 W USA ADS-4 A 87
18.5 W INTELSAI MCS ATL A M 79 79
15.0 W INMARSAI EASI A M 84 86
W INMARSAT MARISAI AlL M 73 77
14.0 W USSR MORE-I4 M 85
14.0 W USSR VOLNA-2 A 77 lB
B.O W FRA ZENON-A A " 87
B.O E USSR VOLNA-15 A 85 87
15.0 E FRA ZENON-B A 87
19.0 E FRJk 2ENON-C A 87
23.0 E USSR VOLNA-17 A 85 87
lable I: Coordination Status of fxistlrig arid Planned L-Band
Mobile Satellite %yst*.mlS
REGULATORY APPROACH TO MSAT
New mobile services, such as cellular telephone, have been foreborne
from regulation because of effective competition and public interest
arguments. It seems appropriate that a similar regulatory approach be
applied to an analogous service such as MSAT.
There are four main arguments in support of this approach=
(a) Effective Competition from Other Mobile Satellite Services
Other satellite services are being offered as an alternative to
MSAT. Several U.S. companies are currently in business or are
expected to launch mobile satellite services in the near future.
These include two-way messaging, voice and radio determination
service. One U.S.-based company is attempting to offer mobile and
radio-determination satellite services to Canadian users through a
subsidiary established in Canada. Plans are also under way to
develop a public switched aeronautical voice and data service for
major airlines. INMARSAT wants to expand its business to include
land mobile services. From the aforementioned, it is evident that
effective competition will exist in the mobile satellite market.
(b) Terrestrial mobile Radio Competition
MSAT will compete with cellular telephone and other terrestrial-
based service providers. Mobile voice and paging services are
provided in most urban areas. In areas where mobile services are
firmly established, satellite-based mobile services will need to be
priced competitively in order to capture a share of the maturing
mobile market. In more remote areas, appropriate pricing will be
required to attract users to the satellite-based service.
(c) Attraction of Investment Capital for A High Risk Venture
The construction and deployment of mobile satellites is capital-
intensive involving considerable financial and technical risk. The
possibility of either launch or in-orbit failure is a serious
consideration in any satellite venture. In addition, MSAT is a new
service that has no established customer base.
(d) The Public Interest
It generally is recognized that there is a basic social and economic
need to extend cost-effective voice and data communications to
remote and thinly populated areas of Canada. MSAT will play an
important commercial role increasing the demand for fast and
reliable communications for users operating on land, sea or air.
This will stimulate growth in the telecommunications equipment
business, increase the productivity of Canadian manufacturing and
business and create new employment opportunities. The Federal
Government has strongly endorsed the implementation of a domestic
MSAT service and has committed substantial funds to this end.
83
CANADA-U.S FigSTREATY
The question of a formal bilateral arrangement between Canadaand
the U.S. to govern MSATservice is under discussion by the two respective
governments. There is ample precedent for such an agreement beginning
with the 1952 convention re: radio operation by pilot's license holders
to the 1982 Exchangeof Letters, re: FSS transborder satellite usage.
It is likely that an agreement, if one transpires, will address such
issues as transborder satellite usage, provision of coverage in the other
country (for service to that country's subscribers), base and gateway
ownership and the question of licensing (will MSAT equipment operators
require license, especially in the context of operation in the other
country?).
The two governments, in conjunction with MSAT operators on both
sides of the border, will have to determine if such an agreement is
warranted. It may be possible, for instance, to develop a business
agreement that could handle the key financial, technical and reciprocity
issues. Whether or not the political process would be satisfied by such
a business driven agreement is another question. What is clear is that
such negotiations should not impede progress towards the co-operative
development of MSAT in Canada and the U.S.
CONCLUSIONS
A certain amount of pragmatism was necessary on both sides of the
49th parallel in order to achieve a suitable bilateral arrangement which
is conducive to the development and implementation of a North American
MSAT system. It is important that such an attitude be adopted during
international frequency sharing negotiations and by domestic regulators.
The concept of regulatory forebearance is important to ensure sufficient
regulatory flexibility so that MSAT enters the next decade on a sound
technical and financial footing.
REFERENCES
"Information Paper - Frequency Re-use Considerations in Sharing Common
Frequency Allocations by Various Mobile Satellite Services",
WARC-MOB-87, International Telecommunications Union, Geneva;
September-October 1987, Document No. 56, Canada.
84


International and domestic regulator issues facing the Canadian MSAT system

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