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Impacts from the World Administrative Radio Conference of 1979

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Impacts from the World Administrative Radio Conference of 1979 Radiofrequency Use and Management: Impacts From the World Administrative Radio Conference of 1979 January 1982 NTIS order #PB82-177536 Library of Congress Catalog Card Number 82-600502 For sale by the Superintendent of Documents, U.S. Government Printing Office, Washington, D.C. 20402 Foreword This study responds to a request from the Senate Committee on Commerce, Science, and Transportation to evaluate the impacts on the United States of key decisions taken at the general World Administrative Radio Conference (WARC-79) and to consider options for preparation and participation in future international telecommunication conferences. It reflects congressional concern for the adequacy of existing machinery and procedures for U.S. policymaking and preparation for such conferences. WARC-79 and related international conferences and meetings demonstrate that contention for access to the radio spectrum and its important collateral ele- ment, the geostationary orbit for communication satellites, presents new and urgent challenges to vital U.S. national interests. The growing differences among nations over the use of the radio spectrum and related satellite orbit ca- pacity are reflected in the Final Acts of WARC-79 which will be submitted to the U.S. Senate in January 1982, for advice and consent to ratification. Given the complexities of spectrum management in a changing world envi- ronment and the increased importance of telecommunications to both developed and developing nations, it is unlikely that traditional U.S. approaches to these issues will be sufficient to protect vital U.S. interests in the future. Problems re- quire strategies not yet developed or tested. OTA acknowledges with thanks and appreciation the advice and counsel of the panel members, contractors, other agencies of Government, and individual participants who helped bring the study to completion. JOHN H. GIBBONS Director /// Radiofrequency Use and Management: Impacts From the World Administrative Radio Conference of 1979 Advisory Panel Thomas E. Nelson, Chairman Former Director, Office of International Telecommunications Policy, Department of State Ambassador Jacob Beam Harvey J. Levin Head of the U.S. Delegation to the 1973 Professor, Department of Economics Plenipotentiary Conference of the Hofstra University International Telecommunication Union Edgar T. Martin Nolan Bowie Former Engineering Manager Former Executive Director Broadcasting Service Citizens’ Communications Center U.S. Information Agency Paul Dembling Ithiel De Sola Pool Former General Counsel Professor, Department of Political Science National Aeronautics and Space Massachusetts Institute of Technology Administration Raymond E. Spence Former Chief Engineer John M. Eger Federal Communications Commission Former Acting Director Office of Telecommunication Policy M. Jon Vondracek Director of Communications James C. Fletcher Center for Strategic and International Former Administrator Studies National Aeronautics and Space Georgetown University Administration Grover M. Yowell Walter R. Hinchman Rear Admiral, U.S. Navy (Retired) Former Chief Former Manager Common Carrier Bureau Navy Space Project of Naval Electronic Federal Communications Commission Systems Command NOTE:: The Advisory Panel provided advice and comment throughout the assessment, but the members do not necessarily approve, disapprove, or endorse the report for which OTA assumes full responsibility. Iv Radiofrequency Use and Management: Impacts From the World Administrative Ratio Conference of 1979 Project Staff John Andelin, Assistant Director, OTA Science, Information, and Natural Resources Division Stephen E. Doyle* and Sam Hale,** Program Manager Communication and Information Technologies Program Raymond B. Crowell, Project Director Administrative Staff Jeanette Contee Liz Emanuel Shirley Gayheart Contractors J. D. Barnla Kappa Systems Inc. Philip S. Cook John J. Kelleher Future Systems Inc. Susan Stocker William Hatfield Telecommunications Systems OTA Publishing Staff John C. Holmes, Publishing Officer John Bergling Kathie S. Boss Debra M. Datcher Joe Henson *Program Manager until March 1981. ** program Manager after March 1981. Acknowledgments Many individuals have assisted in various aspects of this study, each making a valuable contribu- tion to the information and analyses assembled and presented here. Participation does not necessarily reflect agreement with the entire report or any particular aspect of the report. Contributors include: Contractor Support Linda Bower Jack W. Herbstreit Leonard R. Raish Robert Tomkins J. Russell Burke Heather E. Hudson John Rheinhardt H. E. Weppler Ronald S. Eward Michael Jeruchim Reinhard Stamminger Richard Gould Nicholas Marzella John A. Stein George Hagn Harley Radin Michael Stoil Reviewers Leo Buss Stephen J. Lukasik Arthur I.. Freeman Richard E. Shrum George Codding Carl Matthews Jonathan Gunter David P. M. Struba William J. Cook Richard Parlow Wendell Harris William R. Torak Robert L. Cutts Samuel E. Probst Edward R. Jacobs Charles K. Watt Arlan K, van Doom A. R. Rasmussen Donald Jansky Lou Feldner Anthony M. Rutkowski David Leive Agencies Providing Information and Reviews Congressional Research Service, Federal Communications National Telecommunications Library of Congress Commission and Information Department of Defense National Aeronautics and Administration Department of State Space Administration U.S. General Accounting Office Participants in the OTA Survey Perry G. Ackerman A. James Ebel Harold Kimball Alvin Reiner William Adams John M. Eger Emmett Jay Kitchen Glen Robinson Allen Anderson Harry A. Feigleson Alex C. Latker John T. Robinson Dexter Anderson Charles D. Ferris Robert E. Lee Anthony Rutkowski Lucian L. Arnone Milford R. Fink Stanley Leinwoll Peter Sawitz Earl S. Barbely Arthur L. Freeman Maury Lisann Kalmann Schaefer Jerome D. Barnla L. S. Gallemore Ray Livesay John Serafin Richard Barth Henry Geller Lloyd G. Ludwig Richard Shrum George Bartlett John Gilsenan Stephen J. Lukasik Hillyer Smith Jacob Bean E. Merle Glunt William A. Luther Neil M. Smith Martin W. Bercovici Abilio Gomez James B. McElroy Raymond E. Spence John Paul Berry Robert E. Greenquisit James C. McKinney Ronald F. Stowe Robert S. Black Wendell Harris Neal McNaughton David P. M. Struba Herbert T. Blaker Mervin L. Harrison George Mansur William R. Torak William Berman William Hatfield Richard B. Marsten Robert Tompkins Nolan Bowie Jack W. Herbstreit Edgar T. Martin Phillip G. Tremper Lewis Bradley Roger Herbstritt Sidney Metzger Calvin G. Tuggle Anne Branscomb Walter R. Hinchman John E. Miller Thomas Tycz Dan Brenner Earl J. Holliman Robert P. Moore Arlan K. van Doom Russell Burke David Honig Sharon Nelson R. J. Van Winegarten Leo Buss Gordon Huffcutt Thomas E. Nelson F. W. Voege Paul E. Carroll Marion Hayes Hull John O’Boyle Constantine Warvariv Anna L. Case Charles L. Hutchinson General James D. O’Connell James C. Warwick William Cooke Karyl A. Irion James E. ogle Walter E. Weaver Anthony M. Corrado Eugene Jackson Lawrence Palmer Hans Weiss Cullen M. Crain Edward Jacobs Vernon Pankonin H. Edward Weppler Robert L. Cutts George Jacobs Edwin Parker Howard A. White Satyendranath Das Donald Jansky Richard Parlow Clay T. Whitehead Wilfred Dean Michael C. Jeruchim Paul Phillips Harold Wigren Thijs DeHaas Raymond Johnson Neal Pike Francis K. Williams Willis D. DeHart Harold Kassens James B. Potts Elizabeth L. Young Ithiel de Sola Pool Wayne Kay Wilbur Pritchard Admiral Grover M. Yowell Wilson Dizard John J. Kelleher Samuel E. Probst Charles Dorian John W. Kiebler Joseph P. Rawley vi Contents Chapter Page 1. Summary . 3 2. The Changing Requirements, Influences, and Motivations Among Nations for Use of the Radiofrequency Spectrum. 25 3. Domestic and International Management of the Radiofrequency Spectrum 37 4. WARC-79 Overview, Actions, and Impacts . 67 5. Alternative Structures, Procedures, and Strategies . ...........107 6. Findings, Conclusions, and Observations . ...129 Acronyms, Abbreviations, and Glossary. ...147 Selected Bibliography. ...............157 vil Chapter 1 Summary Contents — Page Background of Study. 3 Principal Findings. 4 General Observations and Trends . 5 U.S. Policymaking Structure and Processes for Spectrum Management and International Strategies. 6 Need for High-Level Government Policy Coordination and Accountability. 6 Need for New Strategies To Address Spectrum and Related Satellite Orbit Issues . 7 The Impacts of WARC-79. 9 Improving U.S. Spectrum Management and Preparation for International Telecommunications Conferences . 12 U.S. Strategies for Dealing With International Spectrum Issues and ITU. 14 Withdrawal From IT.. 15 Revised ITU Voting Formula . 15 Increased Regionalization of ITU. 16 Better Coordination and Planning. 17 Common-User System . 18 “A Priori" Allotment. 19 U.S. Options Regarding the Final Acts of WARC-79. 20 Chapter 1 Summary Background of Study The Final Acts of the General World Ad- spectrum and geostationary satellite orbit ministrative Radio Conference (WARC-79) locations. are to be submitted to the U.S. Senate for ad- vice and consent to ratification. Issues vital WARC-79 was convened by ITU in an ef- to U.S. interests in continued efficient use of fort to reach global agreement on the revised the radiofrequency spectrum—including sat- international arrangements necessary for ef- ellites operating in geostationary or- ficient and interference-free use of the radio- bit–were addressed at WARC-79 and will be frequency spectrum. The Final Acts of the addressed at
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