[Federal Register Volume 91, Number 9 (Wednesday, January 14, 2026)]
[Proposed Rules]
[Pages 1482-1494]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2026-00588]
[[Page 1482]]
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FEDERAL COMMUNICATIONS COMMISSION
47 CFR Part 2
[ET Docket No. 23-121; FCC 25-59; FR ID 325614]
Implementation of the Final Acts of the World Radiocommunication
Conference (Sharm el-Sheikh, 2019) (WRC-19), Revision to Table Mountain
Radio Quiet Zone Field Strength Limits
AGENCY: Federal Communications Commission.
ACTION: Proposed rule.
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SUMMARY: In this document, the Federal Communications Commission
(Commission or FCC) proposes to modify the Commission's rules to
implement certain spectrum allocation decisions from the International
Telecommunication Union's World Radiocommunication Conference's 2019
Final Acts concerning portions of the radio spectrum between 495 kHz
and 50.9 GHz, make other allocation changes, and make related updates
to our service rules in this frequency range. These proposals are
designed to harmonize our spectrum allocations with and conform our
rules to the World Radiocommunication's 2019 Final Acts to the extent
that doing so would better meet domestic requirements.
DATES: Comments are due on or before February 13, 2026 and reply
comments are due on or before March 16, 2026.
ADDRESSES: Pursuant to Sec. Sec. 1.415 and 1.419 of the Commission's
rules, 47 CFR 1.415, 1.419, interested parties may file comments and
reply comments on or before the dates provided in the DATES section of
this document. Comments may be filed using the Commission's Electronic
Comment Filing System (ECFS). See Electronic Filing of Documents in
Rulemaking Proceedings, 63 FR 24121 (1998). You may submit comments,
identified by ET Docket No. 23-121, by any of the following methods:
Electronic Filers: Comments may be filed electronically
using the internet by accessing the ECFS: https://www.fcc.gov/ecfs.
Paper Filers: Parties who choose to file by paper must
file an original and one copy of each filing.
Filings can be sent by hand or messenger delivery, by
commercial courier, or by the U.S. Postal Service. All filings must be
addressed to the Secretary, Federal Communications Commission.
Hand-delivered or messenger-delivered paper filings for
the Commission's Secretary are accepted between 8:00 a.m. and 4:00 p.m.
by the FCC's mailing contractor at 9050 Junction Drive, Annapolis
Junction, MD 20701. All hand deliveries must be held together with
rubber bands or fasteners. Any envelopes and boxes must be disposed of
before entering the building.
Commercial courier deliveries (any deliveries not by the
U.S. Postal Service) must be sent to 9050 Junction Drive, Annapolis
Junction, MD 20701.
Filings sent by U.S. Postal Service First-Class Mail,
Priority Mail, and Priority Mail Express must be sent to 45 L Street
NE, Washington, DC 20554.
People with Disabilities: To request materials in
accessible formats for people with disabilities (braille, large print,
electronic files, audio format), send an email to [email protected] or
call the Consumer & Governmental Affairs Bureau at 202-418-0530.
FOR FURTHER INFORMATION CONTACT: Sebastian Garcia of the Office of
Engineering and Technology, at [email protected] or 202-418-
2932.
SUPPLEMENTARY INFORMATION: This is a summary of the Commission's Notice
of Proposed Rulemaking, in ET Docket No. 23-121; FCC 25-59, adopted on
September 12, 2025, and released on December 9, 2025. The full text of
this document is available for public inspection and can be downloaded
at https://docs.fcc.gov/public/attachments/FCC-25-59A1.pdf. Alternative
formats are available for people with disabilities (Braille, large
print, electronic files, audio format) by sending an email to
[email protected] or calling the Commission's Consumer and Governmental
Affairs Bureau at (202) 418-0530 (voice).
Ex Parte Presentations. The proceeding this document initiates
shall be treated as a ``permit-but-disclose'' proceeding in accordance
with the Commission's ex parte rules. Persons making ex parte
presentations must file a copy of any written presentation or a
memorandum summarizing any oral presentation within two business days
after the presentation (unless a different deadline applicable to the
Sunshine period applies). Persons making oral ex parte presentations
are reminded that memoranda summarizing the presentation must (1) list
all persons attending or otherwise participating in the meeting at
which the ex parte presentation was made, and (2) summarize all data
presented and arguments made during the presentation. If the
presentation consisted in whole or in part of the presentation of data
or arguments already reflected in the presenter's written comments,
memoranda or other filings in the proceeding, the presenter may provide
citations to such data or arguments in his or her prior comments,
memoranda, or other filings (specifying the relevant page and/or
paragraph numbers where such data or arguments can be found) in lieu of
summarizing them in the memorandum. Documents shown or given to
Commission staff during ex parte meetings are deemed to be written ex
parte presentations and must be filed consistent with rule 1.1206(b).
In proceedings governed by rule 1.49(f) or for which the Commission has
made available a method of electronic filing, written ex parte
presentations and memoranda summarizing oral ex parte presentations,
and all attachments thereto, must be filed through the electronic
comment filing system available for that proceeding, and must be filed
in their native format (e.g., .doc, .xml, .ppt, searchable .pdf).
Participants in this proceeding should familiarize themselves with the
Commission's ex parte rules.
Regulatory Flexibility Act. The Regulatory Flexibility Act of 1980,
as amended (RFA), requires that an agency prepare a regulatory
flexibility analysis for notice and comment rulemakings, unless the
agency certifies that ``the rule will not, if promulgated, have a
significant economic impact on a substantial number of small
entities.'' Accordingly, the Commission has prepared an Initial
Regulatory Flexibility Analysis (IRFA) concerning the possible/
potential impact of the rule and policy changes contained in the FCC
document. The IRFA is found in Appendix B of the FCC document, https://www.fcc.gov/document/fcc-adopts-proposals-wrc-19-implementation. The
Commission invites the general public, particularly small businesses,
to comment on the IRFA. Comments must be filed by the deadlines for
comments on the Notice of Proposed Rulemaking indicated on the first
page of this document and must have a separate and distinct heading
designating them as responses to the IRFA.
Initial Paperwork Reduction Act. This document may contain proposed
or modified information collection requirements. Therefore, the
Commission seeks comment on potential new or revised information
collections subject to the Paperwork Reduction Act of 1995. If the
Commission adopts any new or revised information collection
requirements, the Commission will publish a notice in the Federal
Register inviting the general public and the Office of Management
[[Page 1483]]
and Budget to comment on the information collection requirements, as
required by the Paperwork Reduction Act of 1995, Public Law 104-13. In
addition, pursuant to the Small Business Paperwork Relief Act of 2002,
Public Law 107-198, see 44 U.S.C. 3506(c)(4), the Commission seeks
specific comments on how it might further reduce the information
collection burden for small business concerns with fewer than 25
employees.
Providing Accountability Through Transparency Act: Consistent with
the Providing Accountability Through Transparency Act, Public Law 1189-
9, a summary of the Notice of Proposed Rulemaking will be available at
https://www.fcc.gov/proposed-rulemakings.
Synopsis
Introduction
The Notice of Proposed Rulemaking (WRC-19 NPRM) follows the WRC-19
Administrative Order, 88 FR 67514 (September 29, 2023), which made non
substantive, editorial revisions to the U.S. Table of Frequency
Allocations (U.S. Table) and to other related rules to reflect
International Telecommunication Union (ITU) decisions made at the 2019
World Radiocommunication Conference (WRC-19). In the WRC-19 NPRM, the
Commission proposes to amend, as appropriate, parts 2 and 25 of the
Commission's rules to implement in the U.S. Table specific allocation
decisions from the WRC-19 Final Acts concerning portions of the radio
spectrum between 495 kHz and 50.9 GHz, make other allocation changes,
and make related updates to its service rules in this frequency range.
Many of these proposals are based on the National Telecommunications
and Information Administration's (NTIA) recommendations for national
implementation of the WRC-19 Final Acts. Collectively, the Commission's
proposals are designed to harmonize its spectrum allocations with and
conform its rules to the WRC-19 Final Acts to the extent that doing so
would better meet domestic requirements.
Background
The International Telecommunications Union (ITU) convenes a World
Radiocommunication Conference (WRC) typically every three to four years
to address international spectrum use. Specifically, the ITU allocates
frequency bands to various radio services generally on either a
worldwide or regional basis and enters these radio services in its
Table of Frequency Allocations (which is reflected in Sec. 2.106 of
its rules as the International Table) as part of the ITU Radio
Regulations.
The Commission conducted its primary preparations for WRC-19 via
its 2019 World Radiocommunication Conference Advisory Committee (WAC),
which held eight public meetings between August 2, 2016, and March 11,
2019, to evaluate and approve recommendations and preliminary views
that it later submitted for Commission consideration. The ITU held a
conference preparatory meeting (CPM) from February 18, 2019 through
February 28, 2019, to prepare and approve a report on the technical,
operational, and regulatory/procedural matters relevant to the WRC-19
agenda, which the Commission participated in. In addition, the United
States worked with other nations to craft common proposals for Region 2
(North and South America). By August 1, 2019, the United States had
provided its contributions to the Inter-American Telecommunication
Commission (CITEL), which then provided the Region 2 proposals to WRC-
19.
The ITU convened WRC-19 from October 28, 2019 to November 22, 2019,
in Sharm el-Sheikh, Egypt, with 163 Member States, including the United
States, participating. WRC-19 addressed 52 topics related to frequency
allocation and frequency sharing for the efficient use of spectrum and
orbital resources, and adopted allocation changes that affect both
Federal and non-Federal entities. The ITU published the decisions made
at WRC-19 as the WRC-19 Final Acts and subsequently revised the Radio
Regulations to incorporate these decisions. On April 2, 2021, NTIA
submitted its recommendations for national implementation of the WRC-19
Final Acts to the Commission.
On April 21, 2023, the Commission released the WRC-19
Administrative Order, which reflected the WRC-19 changes to the
International Table and made other non-substantive, editorial changes
to the Commission's rules, including revisions to the Federal Table
that did not require notice and comment.
The Commission is only addressing those WRC-19-related proposals
that are specifically discussed in the WRC-19 NPRM. Any additional WRC-
related actions, including those recommended by NTIA, have been or are
anticipated to be addressed in separate proceedings or are no longer
appropriate for further action at this time. The Commission
nevertheless invite commenters to identify alternate ways it could give
effect to those WRC-19 matters discussed in the FCC document.
In the WRC-19 NPRM, the Commission proposes to: (1) implement
certain WRC-19 allocation decisions as discussed herein; (2) revise
parts 2 and 25 of the rules reflect the allocation changes that it is
proposing in the FCC document; and (3) make other allocation changes
that are not related to WRC-19 implementation. The Commission first
addresses satellite issues, followed by terrestrial issues.
Notice of Proposed Rulemaking
A. Satellite Issues
Use of Space Operation Service by Non-Geostationary Satellites Below 1
GHz for Short-Duration Missions
The Commission proposes to make the space operation service in the
137-138 MHz space-to-Earth (downlink) band and the 148 149.9 MHz Earth-
to-space (uplink) band available to space stations in non-geostationary
orbits (NGSO) with short-duration (3 years or less) missions by adding
references to three international footnotes (5.203C, 5.209A, 5.218A) to
particular sub-bands in the Federal and non-Federal Tables of the U.S.
Table of Frequency Allocations.
As background, the 137-138 MHz and 148-149.9 MHz bands are Federal/
non-Federal shared bands. Under the Commission's rules, the 137-138 MHz
band is allocated on a primary basis to the space operation,
meteorological-satellite, and space research services (all space-to-
Earth) for Federal and non-Federal use; the 137-137.025 MHz and
137.175-137.825 MHz sub-band is also allocated on a primary basis to
the mobile-satellite service (MSS) (space-to-Earth) for Federal and
non-Federal use; and the 137.025-137.175 MHz and 137.825-138 MHz sub-
bands are allocated to the MSS (space-to-Earth) on a secondary basis
for Federal and non-Federal use. The 148-149.9 MHz band is allocated to
the fixed and mobile services and the MSS (Earth-to-space) service on a
primary basis for Federal use; and to the MSS (Earth-to-space) service
on a primary basis for non-Federal use. The demand for suitable
spectrum for NGSO satellites with short duration missions is growing
due to the increasing number of these types of satellite missions.
These types of missions provide affordable options for scientific and
commercial space purposes and are increasingly used by new entrants in
the space sector taking advantage of decreasing costs associated with
launch.
The Commission specifically proposes to add the following footnotes
to the Federal and non-Federal portions of the U.S. Table to align it
with the changes made in the WRC-19 Final
[[Page 1484]]
Acts. First, the Commission proposes to add footnote 5.203C to the 137-
137.025 MHz, 137.025-137.175 MHz, 137.175-137.825 MHz, and 137.825-138
MHz sub-bands. Footnote 5.203C states that: (1) the use of the space
operation service (space-to-Earth) with NGSO satellite short duration
mission systems in the 137-138 MHz band is subject to Resolution 660
(WRC-19); (2) Resolution 32 (WRC-19) applies; and (3) these systems
must not cause harmful interference to, or claim protection from, the
existing services to which the band is allocated on a primary basis.
Resolution 660 limits the use of space operation service (space-to-
Earth) NGSO systems with short-duration missions in the 137-138 MHz
frequency range to the 137.025-138 MHz sub-band and limits the power
flux-density at any point on the Earth's surface produced by a space
station of such non-GSO systems used for short-duration missions to -
140 dB(W/(m2 [middot] 4 kHz)). Resolution 32 (WRC-19) states that the
maximum period of operation and validity of frequency assignments of a
NGSO network or system identified as short-duration mission must not
exceed three years from the date of bringing into use of the frequency
assignments, without any possibility of extension, after which the
recorded assignments shall be cancelled; and that the total number of
satellites in a NGSO network or system identified as a short-duration
mission shall not exceed 10 satellites. The Commission seeks comment on
this proposal.
The Commission also proposes to add footnote 5.209A in the 137.175-
137.825 MHz sub-band. Footnote 5.209A overrides the coordination
requirement in much (650 kilohertz) of the spectrum to which footnote
5.203C (above) applies, i.e., it states that the use of the 137.175-
137.825 MHz band by NGSO satellite systems in the space operation
service identified as a short-duration mission in accordance with
Appendix 4 is not subject to No. 9.11A. The Commission seeks comment on
this proposal.
The Commission also proposes to add footnote 5.218A in the 148-
149.9 MHz sub-band. Footnote 5.218A states that, in the 148-149.9 MHz
band, the space operation service (Earth-to-space) may be used by NGSO
systems with short-duration missions; that such systems used in
accordance with Resolution 32 (discussed above) are not subject to
agreement under No. 9.21, that such systems must not cause unacceptable
interference to, or claim protection from, existing primary services
within this frequency band, or impose additional constraints on the
space operation and mobile-satellite services, and that earth stations
in such systems must ensure that the power flux-density does not exceed
-149 dB(W/(m\2\ [middot] 4 kHz)) for more than 1% of time at the border
of the territory of 16 specified countries. Finally, footnote 5.218A
states that, at the stage of coordination with other administrations,
the provisions of Nos. 9.17 and 9.18 also apply. The Commission
requests comment on this proposal.
If the proposed use of the 137-138 MHz and 148-149.9 MHz bands by
the space operation service is adopted, the Commission requests
additional comment on how incumbent services operating in the proposed
bands would be protected from interference due to increased short-
duration NGSO usage of the band, outside of the limits proposed in
Resolution 660. The Commission also seeks comment on whether it should
require applicants in the space operation service operating short-
duration NGSO's below 1 GHz to coordinate with MSS licensees already
operating in those bands. Lastly, the Commission seeks comment on the
general parameters of the application and licensing process applicable
to short-duration NGSO operations in the space operations service in
the 137-138 MHz and 148-149.9 MHz bands.
The Commission notes the Commission's ongoing In-Space Servicing
and Manufacturing Notice of Proposed Rulemaking (ISAM Notice), in which
the Commission reached a tentative conclusion that at least some ISAM
operations could fall within the definition of the space operations
service. The Commission additionally notes the Commission's part 25
Streamlined Small Satellite Process, which could also be applicable to
short-duration NGSO operations in the space operations service. The
Commission reached a tentative conclusion that its existing part 25,
part 5, and part 97 rules are sufficient and give short-duration NGSO
operators in the space operations service the applicable general
parameters of the application and licensing processes for those
operations but seek comment on alternative approaches.
In-Band Power Limits for Earth Stations Transmitting in the 399.9-
400.05 MHz Band
The Commission next proposes to limit in-band power for earth
stations operating in the mobile-satellite service (MSS) in the 399.9-
400.05 MHz band, by adding references to footnotes 5.260A and 5.260B,
to the Federal and non-Federal Tables of the U.S. Table, consistent
with the WRC-19 Final Acts. This proposal would align the band with the
maximum radiated power for mobile-satellite service use (except
telecommand uplinks with the mobile-satellite service in the 400.02-
400.05 MHz band) in the U.S., and state dates for compliance, as
described in the WRC-19 Final Acts. Under the Commission's rules, the
399.9-400.05 MHz band is allocated to the mobile-satellite (Earth-to-
space) and radionavigation-satellite services on a primary basis for
Federal and non-Federal use.
Footnote 5.260A states: (1) in the 399.9-400.05 MHz band, the
maximum EIRP of any emission of MSS earth stations, and the maximum
EIRP of each earth station, must not exceed 5 dBW in any 4 kilohertz
band (5 dBW/4 kHz) and 5 dBW in the 150 kilohertz wide band (5 dBW/150
kHz); (2) until November 22, 2022, these limits do not apply to
satellite systems with complete ITU notifications that were received by
November 22, 2019; and (3) thereafter, these limits apply to all MSS
systems operating in this band. Footnote 5.260B states that, in the
400.02-400.05 MHz segment, the provisions of footnote 5.260A do not
apply to MSS telecommand uplinks. The Commission requests comment on
the addition of these footnotes to the Federal and non-Federal U.S.
Tables and whether it should consider elevation angles in establishing
the maximum EIRP limit. The Commission also seeks comment on whether
these power limits should be added to Sec. 25.204 of the Commission's
rules.
Global Maritime Distress Safety Systems Modernization
The following proposals would align the 1621.35-1626.5 MHz band in
the U.S. Table with the WRC-19 Final Acts by adding a new allocation
for the maritime mobile-satellite service (space-to-Earth) on a primary
basis for Federal and non-Federal shared use subject to the conditions
in four new international footnotes (5.208B, 5.370, 5.373, and 5.373A)
added to the Federal and non-Federal Tables in 1621.35-1626.5 MHz
portion of the 1613.8-1626.5 MHz band with the existing allocations and
footnotes in the 1613.8-1626.5 MHz band. Under the Commission's rules,
the 1613.8-1626.5 MHz band is allocated to the mobile-satellite service
(Earth-to-space), aeronautical radionavigation service,
radiodetermination-satellite service (Earth-to-space), all on a primary
basis for Federal and non-Federal use, and to the mobile-satellite
service (space-to-Earth) on a secondary basis for Federal and non-
Federal use. These proposals
[[Page 1485]]
are meant to provide additional satellite coverage to the Global
Maritime Distress and Safety System (GMDSS) for use in the U.S.
As background, the GMDSS is an internationally recognized distress
and radio communication safety system that has been in place for
several decades. The GMDSS is an automated ship-to-shore and ship-to-
ship system using satellites and/or terrestrial radio systems with
digital selective calling technology. The GMDSS systems provide safety-
of-life information and communication systems that inform vessels of
navigation hazards and weather conditions and enable distress calls
with pertinent location and identification information with the push of
a button. The GMDSS is mandated for ships internationally by the
International Maritime Organization (IMO) Safety of Life at Sea
Convention (SOLAS), 1974, as amended in 1988, which carries the force
of an international treaty. The procedures governing GMDSS use are
contained in the International Telecommunication Union's Radio
Regulations and also carry the force of an international treaty.
The Commission proposes to split the existing 1613.8-1626.5 MHz
band into two bands (1613.8-1621.35 MHz and 1621.35-1626.5 MHz) and add
a primary maritime mobile-satellite service (space-to-Earth) allocation
in the 1621.35-1626.5 MHz band for Federal and non-Federal use subject
to the conditions in four new footnotes (5.208B, 5.370, 5.373, and
5.373A) added to the band. The existing allocations--primary mobile
satellite service (Earth-to-space), aeronautical radionavigation,
radiodetermination satellite (Earth-to-space), and secondary mobile-
satellite (Earth-to-space) and footnotes (5.341, 5.364, 5.365, 5.366,
5.367, 5.368, and 5.372) in the 1613.8-1626.5 MHz band--would be
retained in the 1613.8-1621.35 MHz and 1621.35-1626.5 MHz bands, while
a primary maritime mobile-satellite allocation for Federal and non-
Federal shared use, along with footnotes 5.208B, 5.370, 5.373, and
5.373A, would be added in the 1621.35-1626.5 MHz band.
The Commission seeks comment on the addition of a primary maritime
mobile-satellite service (space-to-Earth) allocation to the 1621.35-
1626.5 MHz band, subject to the conditions in footnotes 5.208B, 5.370,
5.373, and 5.373A.
Footnote 5.208B states that in the frequency bands 137-138 MHz,
157.1875-157.3375 MHz, 161.7875-161.9375 MHz, 387-390 MHz, 400.15-401
MHz, 1452-1492 MHz, 1525-1610 MHz, 1613.8-1626.5 MHz, 2655-2690 MHz,
and 21.4-22 GHz, Resolution 739 (Rev.WRC-19) applies. Resolution 739
recommends unwanted emissions limits to ensure that unwanted emissions
from geostationary and non-geostationary space stations that are
planned to operate in the mobile-satellite service (space-to-Earth) in
the 1613.8-1626.5 MHz band are minimized in order to protect radio
astronomy service stations in the 1610.6-1613.8 MHz band from harmful
interference.
Footnote 5.370 states that in Venezuela, the allocation to the
radiodetermination-satellite service in the 1610-1626.5 MHz frequency
band (Earth-to-space) is on a secondary basis.
Footnote 5.373 states that ``maritime mobile earth stations
receiving in the 1621.35-1626.5 MHz band shall not impose additional
constraints on earth stations operating in the maritime mobile-
satellite service or maritime earth stations of the radiodetermination-
satellite service operating in accordance with the Radio Regulations in
the 1610-1621.35 MHz frequency band or on earth stations in the
maritime mobile-satellite service operating in accordance with the
Radio Regulations in the 1626.5-1660.5 MHz frequency band, unless
otherwise agreed between the notifying administrations.''
Footnote 5.373A states that maritime mobile earth stations
receiving in the 1621.35-1626.5 MHz frequency band shall not impose
constraints on the assignment of earth stations in the mobile-satellite
service (Earth-to-space) and the radiodetermination-satellite service
(Earth-to-space) in the 1621.35-1626.5 MHz frequency band in networks
for which complete coordination information has been received by the
Radiocommunication Bureau before October 28, 2019.
Further, the Commission seeks comment on whether updates are needed
to the service-specific rules in part 80 of the Commission's rules to
implement a primary maritime mobile-satellite service (space-to-earth)
allocation in the 1621.35-1626.5 MHZ Band. Additionally, the Commission
seeks comment on whether any corresponding changes are needed to part
25 of the Commission's rules to reflect this maritime mobile-satellite
service (space-to-earth) allocation. Commenters should identify any
rules that need to be amended and provide specific language to support
their recommendations.
Earth Stations in Motion (ESIMs)
The Commission's next proposal concerns the addition of footnote
5.517A to the 17.7-19.7 GHz (space-to-Earth) and 27.5-29.5 GHz (Earth-
to-space) frequency bands of the U.S. Table. Footnote 5.517A states
that ``the operation of earth stations in motion (ESIMs) communicating
with geostationary orbit fixed-satellite service (GSO FSS) space
stations in the 17.7-19.7 GHz (space-to-Earth) and 27.5-29.5 GHz
(Earth-to-space) frequency bands shall be subject to the application of
Resolution 169 (WRC-23),'' as described in the WRC-23 Final Acts, which
contains the most up-to-date version of Resolution 169. Resolution 169
provides conditions for ESIMs communicating with GSO FSS space stations
in the 17.7-19.7 GHz and 27.5-29.5 GHz frequency bands, or parts
thereof. As background, ESIMs currently serve a wide range of
applications--both on board various modes of transportation, such as
aircraft and ships, and on land--by providing reliable and high-
bandwidth connectivity capabilities to platforms in motion. Advances in
satellite manufacturing and earth station technology have made ESIMs
more widespread and more practical. When ships are at sea or aircraft
cross the oceans, they are out of reach of terrestrial networks. ESIM
systems can provide continuous and consistent service with very wide,
or literally global, geographic coverage as ships and aircraft operate
at or over almost any location. To address the increasing need of ESIMs
for radio-frequency spectrum, while protecting other and existing radio
services, WRC-19 established certain regulatory and technical
conditions under which the 17.7-19.7 GHz (space-to-Earth) and 27.5-29.5
GHz (Earth-to-space) frequency bands can be used by the three types of
ESIMs communicating with geostationary space stations in the fixed-
satellite service.
Section 25.202(10)(ii) of the Commission's rules states the
frequencies that are available for use by ESIMs communicating with GSO
FSS space stations. Under this portion of the Commission's rules, the
19.4-19.6 GHz, 27.5-28.35 GHz, and 29.1-29.25 GHz bands are not
currently listed as available for ESIM operations, however, pursuant to
Sec. 25.202(b) operations are allowed outside of bands that are
expressly listed in 25.202 on a case-by-case basis. The Commission also
notes that the Upper Microwave Flexible Use Service (UMFUS) is primary
in the 27.5-28.35 GHz band and that earth stations in that band are
subject to limits on the number of earth stations in a given area and
the area within which the earth stations may operate without providing
interference protection to UMFUS operations. Point-to-point
[[Page 1486]]
microwave licensed under part 101 of the Commission's rules and
broadcast auxiliary services licensed under part 74 of its rules are
also co-primary with FSS in the 17.7-18.3 GHz band. Additionally,
Resolution 169 prescribes off-axis power limits that differ from those
adopted in the Commission's part 25 rules (i.e., Resolution 169
contains higher EIRP density limits, different off-axis angles, and
specific frequency sub-bands in the conventional Ka-band for the off-
axis EIRP of transmissions from ESIMs). The implementation of
Resolution 169 would therefore essentially subject ESIM operations in
these bands to less restrictive limits than currently apply. The
Commission seeks comment on whether to add footnote 5.517A to the 17.7-
19.7 GHz and 27.5-29.5 GHz bands and on whether this would be
consistent with current Commission rules regarding ESIM operations.
Earth Stations Transmitting in the 49.7-50.2 GHz and 50.4-50.9 GHz
Bands
The Commission proposes an update to its rules to further develop
the regulatory framework for NGSO FSS systems. The Commission
specifically proposes to modify US156 of the Commission's rules to
reflect WRC-19's revision of the limits for unwanted emissions in the
50.2-50.4 GHz passive band (200 megahertz passive band or passive band)
from earth stations in the fixed-satellite service (Earth-to-space)
that transmit in the 49.7 50.2 GHz and 50.4 50.9 GHz bands. Footnote
US156 currently states that in the bands 49.7-50.2 GHz and 50.4-50.9
GHz, for earth stations in the fixed-satellite service (Earth-to-
space), the unwanted emissions power in the band 50.2-50.4 GHz shall
not exceed -20 dBW/200 MHz (measured at the input of the antenna),
except that the maximum unwanted emissions power may be increased to -
10 dBW/200 MHz for earth stations having an antenna gain greater than
or equal to 57 dBi. These limits apply under clear-sky conditions.
During fading conditions, the limits may be exceeded by earth stations
when using uplink power control.
First, the Commission proposes to modify US156 to state that, for
NGSO earth stations brought into use on or after January 1, 2021, that
transmit to space stations in non-geostationary-satellite orbits,
unwanted emission power shall not exceed -42 dBW in the 200 megahertz
passive band (i.e., -42 dBW/200 MHz in the 50.2-50.4 GHz passive band)
for NGSO earth stations not employing uplink power control, and -42
dBW/200 MHz in the passive band at zenith (i.e., at an elevation angle
of 90[deg]) increasing [linearly] to a maximum level of -35 dBW/200 MHz
in the passive band at a minimum elevation angle of 15[deg] for NGSO
earth stations employing uplink power control.
Next, for GSO earth stations brought into use on or after January
1, 2024, that transmit to space stations in the geostationary satellite
orbit, the Commission proposes to require that the unwanted emission
power shall not exceed -45 dBW/200 MHz in the passive band for GSO
earth stations having an elevation angle equal to or above 80[deg]; -30
dBW/200 MHz in the passive band for GSO earth stations having an
elevation angle below 80[deg] and an antenna gain less than 57 dBi; and
-25 dBW/200 MHz in the passive band for GSO earth stations having an
elevation angle below 80[deg] and an antenna gain greater than or equal
to 57 dBi.
Lastly, for NGSO earth stations brought into use prior to January
1, 2021 or GSO earth stations brought into use prior to January 1,
2024, the Commission proposes that unwanted emissions in the 50.2-50.4
GHz band shall not exceed -20 dBW/200 MHz, except that the maximum
unwanted emissions power may be increased to -10 dBW/200 MHz for earth
stations having an antenna gain greater than or equal to 57dBi. The
above limits would apply under clear-sky conditions. During fading
conditions, the limits may be exceeded by earth stations when using
uplink control. The Commission requests comment on these proposed
updates and whether any corresponding updates to its part 25 rules are
necessary to implement these proposals. Additionally, given that the
compliance dates mentioned above have passed, the Commission seeks
comment on whether it should update these dates, along with how any
issues associated with grandfathering should be addressed given that
earth stations authorized before the proposed dates would be subjected
to less restrictive power limits.
B. Terrestrial Issues
International Navigational Data (NAVDAT) System in the 435-472 kHz and
479-510 kHz Bands
The Commission proposes to make the 495-505 kHz band (i.e., the 10
kilohertz band centered on the frequency 500 kHz) available for digital
broadcasting of maritime safety and security related information from
shore-to-ship, i.e., the international Navigational Data (NAVDAT)
system, by adding a reference to footnote 5.82C in the 495-505 kHz band
in the non-Federal portion of the U.S. Table. The Commission also
proposes to revise footnote US79A, which the Commission added in the
WRC-19 Administrative Order to reflect the pre-WRC-19 conditions in
footnote 5.79 in the U.S. Table, by updating its text to generally
reflect WRC-19's changes to footnote 5.79. WRC-19 revised footnote 5.79
by expanding the permitted uses of the maritime mobile service in the
415-495 kHz and 505-526.5 kHz (505-510 kHz in Region 2) bands from
radiotelegraphy by stating that this spectrum ``may also be used for
the NAVDAT system in accordance with the most recent version of
Recommendation ITU-R M.2010, subject to agreement between interested
and affected administrations. NAVDAT transmitting stations are limited
to coast stations.'' In addition, WRC-19 expanded this footnote's
applicability in Region 2 from 505-510 kHz to 505-526.5 kHz.
The 495-505 kHz band is allocated exclusively to the maritime
mobile service on a primary basis in all ITU Regions and under the
Commission's rules, in the U.S. Table, where the band is allocated for
Federal/non Federal shared use. WRC-19 adopted footnote 5.82C, which
states that the 495-505 kHz band is used for the international NAVDAT
system as described in the most recent version of Recommendation ITU-R
M.2010 and that NAVDAT transmitting stations are limited to coast
stations. As discussed in ITU-R Report M.2201, the 495-505 kHz band is
lightly used and thus available for use by the NAVDAT system, and its
coverage range matches the coverage provided by the existing
Navigational Telex (NAVTEX) system operating at 490 kHz and 518 kHz.
The NAVDAT system would provide a greatly improved data throughput from
that currently provided by the NAVTEX system and also would provide
protection to the NAVTEX system.
Under the Commission's rules, in the U.S. Table, the 435-472 kHz,
479-495 kHz, and 505-510 kHz bands are allocated to the maritime mobile
service on a primary basis for Federal/non-Federal shared use and
footnote US79A applies. The Commission tentatively find that the text
of footnote US79A should be replaced by the text of footnote 5.79,
except that the frequency bands that are not currently authorized in
the U.S. Table (the 472 479 kHz and 510-526.5 kHz bands are not
allocated for the maritime mobile service) should not be listed.
Together, these proposals would make the 435-472 kHz and 479-510 kHz
bands available to the international NAVDAT system.
[[Page 1487]]
Footnote 5.82C would make the 495-505 kHz band available for use by the
international NAVDAT system as described in ITU-R M.2010 and limit
NAVDAT transmitting stations to coast stations. The Commission requests
comment on these proposals.
Lastly, the implementation of the NAVDAT system would require
service-specific rules to be added to part 80 of the Commission's
rules. Given the nascency of the NAVDAT system, it is premature to
propose service-specific rules at this time. The Commission may propose
rules for the NAVDAT system at a later date, as the domestic standards
are developed.
Table Mountain Radio Quiet Zone Field Strength Limit
The Commission seeks comment on a proposal from NTIA's Institute
for Telecommunications Sciences (ITS) to make several modifications to
the Table Mountain Radio Quiet Zone field strength limit in the
Commission's rules. As background, the Table Mountain Field Site (TMFS)
is designated in the Commission's rules and in the NTIA Manual as a
``Radio Quiet Zone.'' Federal and State regulations protect the TMFS
from strong external radio signals. Applicants intending to operate a
new or modified station at a permanent fixed location in the vicinity
of Boulder County, Colorado are advised to give consideration, prior to
filing applications, to the necessity of protecting the Table Mountain
Radio Receiving Zone from interference. This rule enables the
Department of Commerce laboratories and research affiliates to study
the characteristics and propagation of electromagnetic radiation, and
of spectrum coexistence between new and legacy (incumbent) radio
systems, in a real-world, open-air environment with minimal
interference from uncontrolled sources of external radio interference.
NTIA's ITS laboratory manages the Quiet Zone's radio frequency (RF)
environment, which includes monitoring interference and overseeing
incident-signal power level compliance.
Section 1.924 of the Commission's rules states that the Department
of Commerce seeks to ensure that the field strengths of any radiated
signals received in the vicinity of the Table Mountain Radio Quiet Zone
near Boulder, Colorado do not exceed the limits given in the section's
table, entitled ``Field Strength Limits for Table Mountain.'' At and
above 890 MHz, that limit is one millivolt per meter (1 mV/m).
According to NTIA, although a fixed-level limit, irrespective of radio
frequency, might appear reasonable at first glance, there is a
technical problem with such a fixed field-strength limit: when radio
signals are held at that limit, their power coupled into receiver
circuits gradually decreases for a given, fixed receive-antenna gain.
Received power, for a fixed field strength limit, decreases in a
receiver with a fixed-gain antenna by a factor of four for every
doubling of frequency. This rapid decrease with increasing frequency
becomes so severe at millimeter-wave frequencies (an area of currently
expanding research and industrial-commercial development) that incident
radio signals at the field strength limit eventually go below the room-
temperature thermal noise limit of receiving antennas, receiver
circuits, scientific electronic instrumentation, and all other room
temperature objects including even human bodies. The problem occurs
because of a technical artifact: the definition of the effective
aperture (the electronic ``size'') of a theoretical construction called
an isotropic antenna.
To address the issue at the TMFS, NTIA requests several
modifications to the Table Mountain Quiet Zone field strength rules
found in Sec. 1.924. Specifically, NTIA requests that the Commission
amend the rules to limit the field strength at the Quiet Zone by
modifying the field strength limit for microwave frequencies at and
above 15.7 GHz, increasing the new limit at the same rate that the
effective aperture of an isotropic antenna changes, and changing the
current total signal power criterion to a per megahertz basis.
First, the Commission seeks comment on modifying the field strength
limits for frequency ranges at and above 15.7 GHz. NTIA suggests its
proposed adjustment begin at 15.7 GHz based on an analysis that
determined 15.7 GHz is the bottom edge of the nearest allocated
frequency band to the frequency where the signal-to-noise ratio (SNR)
of an incident signal at the Table Mountain Quiet Zone limit, received
with an isotropic (0 dBi gain) antenna in a sensitive receiver, is 10
dB in a 1 megahertz bandwidth. Is this rationale sufficient to support
modifying the field strength and power flux density limits for
frequency ranges above 15.7 GHz? Should the Commission consider an
alternative starting point at a higher frequency for the new field
strength limit? The Commission requests that commenters include
technical support for the Commission's consideration.
Second, the Commission seeks comment on NTIA's suggestion to
linearly increase the field strength limits and logarithmically
increase the power flux density (PFD) limits with the transmit
frequency above 15.7 GHz (see Table 1 below). Should the Commission
consider alternative methods for calculating the new field strength and
power flux density limits? Commenters suggesting an alternative method
should provide technical justification for their preferred method.
Third, the Commission seeks comment on defining the new field
strength and power flux density limits above 15.7 GHz on a per
megahertz basis instead of the current total field strength or power
flux density criterion. The Commission has traditionally defined field
strength limits without a reference channel bandwidth in several rule
parts, including for 800 MHz cellular systems along the Cellular
Geographic Service Area (CGSA) boundary (40 dBuV/m) and 1.9 GHz PCS
systems at the border of the PCS service area (47 dBuV/m). Similarly,
the Advanced Wireless Service (AWS) rules specify a field strength
limit without reference to channel bandwidth. In a more recent
proceeding for the Upper Microwave Flexible Use Service (UMFUS), the
Commission adopted a power flux density limit on a per megahertz basis
for base stations operating in the 27.5-28.35 GHz band and 37-40 GHz
band. During the UMFUS proceeding, the Commission sought comment on
whether it should adopt a 47dBuV/m field strength limit, a -86dBm/m2/
MHz PFD limit, or any alternative limit at the market boundary. The
Commission adopted the PFD limit on a per megahertz basis with
overwhelming support from commenters and noted that a scaling factor
should be considered given the wide channel bandwidths and diversity of
potential UMFUS applications. The Commission seeks comment on whether
defining the field strength or power flux density limit on a per
megahertz basis as requested by NTIA includes a sufficient scaling
factor for the wider channel bandwidths of current and planned services
that may be deployed above 15.7 GHz. Commenters are encouraged to
provide technical justification for the channel bandwidth scaling
factor or different field strength/PFD limits and explain any material
differences regarding assumptions used to derive their preferred field
strength/PFD limit.
Finally, the Commission seeks general comment on whether a similar
technical argument for adjusting the field strength limit in the Table
Mountain Radio Quiet Zone should be considered for extremely high
operating frequencies, such as above 1 terahertz. Commenters are
encouraged to provide technical
[[Page 1488]]
justification for designating any additional frequency break points
(such as algorithmic support for a revised field strength limit) as
well as the appropriate reference to signal bandwidth for compliance.
Ordering Clauses
It is ordered that, pursuant to sections 1, 4(i), 4(j), 7, 301,
303(c), 303(f), and 303(r) of the Communications Act of 1934, as
amended, 47 U.S.C. 151, 154(i), 154(j), 157, 301, 303(c), 303(f), and
303(r), that the Notice of Proposed Rulemaking is adopted.
It is further ordered that the Commission's Office of Secretary,
shall send a copy of this Notice of Proposed Rule Making, including the
Initial Regulatory Flexibility Analysis, to the Chief Counsel for
Advocacy of the Small Business Administration.
List of Subjects in 47 CFR Parts 2 and 25
Administrative practice and procedures, Communications,
Communications equipment, Reporting and recordkeeping requirements,
Satellites, Telecommunications, and Wiretapping and electronic
surveillance.
Federal Communications Commission.
Marlene Dortch,
Secretary.
Proposed Rules
For the reasons discussed in the preamble, the Federal
Communications Commission proposes to amend 47 CFR part 2 as follows:
PART 2--FREQUENCY ALLOCATIONS AND RADIO TREATY MATTERS; GENERAL
RULES AND REGULATIONS
0
1. The authority citation for part 2 continues to read as follows:
Authority: 47 U.S.C. 154, 302a, 303, and 336, unless otherwise
noted.
0
2. Amend Sec. 2.106(a) by revising pages 4, 21, 22, 26, and 34 of the
U.S. Table of Frequency Allocations to read as follows:
Sec. 2.106 Table of Frequency Allocations.
(a) * * *
* * * * *
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* * * * *
0
3. Amend Sec. 2.106 by revising paragraphs (c)(79)(iii) and (c)(156)
to read as follows:
* * * * *
(c) * * *
(79) * * *
(iii) US79A The use of the bands 415-472 kHz, 479-495 kHz, and 505-
510 kHz by the maritime mobile service is limited to radiotelegraphy
and may also be used for the NAVDAT system in accordance with the most
recent version of Recommendation ITU-R M.2010, subject to agreement
between interested and affected administrations. NAVDAT transmitting
stations are limited to coast stations.
* * * * *
(156) In the bands 49.7-50.2 GHz and 50.4-50.9 GHz, for earth
stations in the fixed-satellite service (Earth-to-space), the following
limits shall apply to unwanted emissions power (measured at the input
of the antenna) in the band 50.2-50.4 GHz:
(i) For NGSO earth stations brought into use prior to 1 January
2021 or GSO earth stations brought into use prior to 1 January 2024:
emissions shall not exceed -20 dBW/200 MHz, except that the maximum
unwanted emissions power may be increased to -10 dBW/200 MHz for earth
stations having an antenna gain greater than or equal to 57 dBi.
(ii) For NGSO earth stations brought into use on or after 1 January
2021: emissions shall not exceed -42 dBW/200MHz, except that stations
employing uplink power control (free-space path loss compensation) may
increase maximum unwanted emissions power from -42 dBW/200MHz at zenith
to a maximum level of -35 dBW/200MHz at a minimum elevation angle of
15[deg].
(iii) For GSO earth stations brought into use on or after 1 January
2024: emissions shall not exceed -45 dBW/200MHz, except that (i) the
maximum unwanted emissions power may be increased to -30 dBW/200 MHz
for earth stations having an antenna gain less than 57 dBi and an
elevation angle below 80[deg] or (ii) the maximum unwanted emissions
power may be increased to -25 dBW/200 MHz for earth stations having an
antenna gain greater than or equal to 57 dBi and an elevation angle
below 80[deg].
(iv) These limits apply under clear-sky conditions. During fading
conditions, the limits may be exceeded by earth stations when using
uplink power control.
* * * * *
[FR Doc. 2026-00588 Filed 1-13-26; 8:45 am]
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