Review of Canadian Mobile Satellite Systems Institutional Arrangements Policy

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David Gilvary Telecommunications Policy Branch Department of Communications 300 Slater St., Ottawa, Ontario Canada, KIA 0C8 Phone: 613-998-4328 FAX: 613-952-0567

ABSTRACT services (MSS), principally in vehicle positioning and cargo status

Development of institutional monitoring for the trucking industry. arrangements policy for maritime, land PURPOSE and aeronautical MSS is an integral part of the Canadian telecommunications policy process. 2. This paper reviews the current An ongoing activity in that process status of Canadian MSS institutional is fitting of MSS institutional arrangements policy within the context arrangements policy within the of the more general 1987 Canadian confines of the 1987 Canadian Telecom Telecom Policy Framework and makes Policy Framework. Making sure the fit proposals for MSS institutional is correct is a major task at present arrangements. because technology seems to be driving service demand at rapid growth rates, BACKGROUND particularly in the case of land MSS. This growth is stimulating policy and 3. The events leading to commercially regulatory development efforts to keep viable MSS in Canada have all occurred pace. In Canada, this is happening in within the last thirty years. For four planned MSS aplications areas: example, Canada's Space Program was Canada-U.S. transborder (immediate), initiated in the early 1960's and Teleglobe Canada Inc. international continued on through the 1970's. In aeronautical MSS (1990/91), Telesat 1969, Telesat Canada was founded as Mobile Inc. EMDS via INMARSAT (1990) Canada's commercial fixed satellite and MSAT (1993/94). The need for an service provider. In 1972, the up-to-date MSS policy in these areas Department of Communications developed is emphasized by related developments the concept of the Canadian multi- in the U.S. and elsewhere. It arises purpose mobile communications because of the growing number of satellite called Musat. market initiatives proposing North American rather than Canada-only or 4. In 1971, the World Administrative U.S.-only coverage, such as INMARSAT, Radio Conference (Space WARC-71) first Geostar, OmniTRACS and Starlink. allocated spectrum (in the 1500 MHz L- band) to maritime and aeronautical PREAMBLE MSS. In 1975, the Departments of Communications, Transport and External i. Mobile communications has Affairs, (with the support from the benefitted enormously from the many then Crown Corporation, Teleglobe important technology advances which Canada) participated in the have increased its worldwide public establishment of the first maritime acceptance. Phenomenal market MSS by the International Maritime growth is being observed in the Satellite Organization (INMARSAT). In cellular mobile industry and its spin- 1980 to 1984, working with the U.S. offs, for example, in personal radio National Aeronautics and Space services. Riding this wave of Administration (NASA), the Department popularity are mobile satellite developed its generic MSS concept known as MSAT.

International Mobile Satellite Conference, Ottawa, 1990 468 5. In 1984, the Department from the 1972 and 1982 Canada-United transferred development and States Transborder Agreements through implementation of the MSAT technology the various long-standing to Telesat Canada which, in April international conventions, operating 1987, set up Telesat Mobile Inc. (TMI) agreements and accords to the 1984 for the purpose. TMI was not, agreement between the Department and however, activated until December Telesat on the terms and conditions of 1988. transfer of the MSAT technology.

6. In 1987, the Mobile WARC allocated i0. The 1987 Telecommunications Policy 7MHz of spectrum to MSS in the L-band. Framework distinguished between Also in 1987, the Department carriers which owned and operated introduced its Telecommunications facilities (Type I) and those Policy Framework. providing services by leasing that capacity (Type II). In 1988, in 7. In 1988, INMARSAT moved to provide declaring TMI to be the sole provider aeronautical and land MSS and the of MSS satellite capacity within Government of Canada signed an Canada, the Department excluded other international agreement permitting the Type I carriers from owning and use of INMARSAT in territorial seas operating the MSS satellite facility. and ports. Also in 1988, the Minister of Communications declared TMI the ii. Similarly, in the provision of sole provider of MSS capacity in Canada-overseas space segment Canada. facilities, Teleglobe Canada is the relevant Type I MSS carrier. It is 8. In 1989, a number of entities the sole provider of overseas MSS worldwide, including Teleglobe Canada, satellite capacity. This currently signed aeronautical MSS agreements applies to INMARSAT. Teleglobe's with the Soci_t_ internationale de monopoly on Canada-overseas service is t_l_communications a_ronautiques subject to review in 1992 by the Government of Canada under the terms (SITA) to provide air traffic control of its 1987 privatization. (ATC), air operations (AOC), air administration (AAC) and passenger 12. The policy objectives of TMI and communications services (APC). Also Teleglobe Canada, on entry into the in 1989, two U.S. companies emerged to MSS market in Canada, are consistent provide dedicated radio determination with the DOC Telecom Policy Framework. satellite service (RDSS) and land MSS Hence, if either were to enter each for the North American trucking other's market as a Type II carrier, industry. Subsequently, Canadian that is, in the provision of domestic companies, wishing to extend these or international MSS, it would have to services into Canada, set up lease capacity from the other as the commercial arrangements with the U.S. sole Type I domestic or international operators. They have been licensed in facilities provider. Canada to provide services on an interim basis until Canadian 13. Under authority of the facilities are available. This is of Radiocommunications Act, network particular concern to Canada in that control is the responsibility of the transborder services are also Type I carrier. involved. The two main companies implementing this RDSS in the U.S. and 14. The Department has authorized TMI southern Canada have already moved to to develop a generic MSS system at L- provide similar services in Europe; band with the proviso that any air and one of the companies is planning traffic control (ATC) requirements are to expand to North Africa. fully accomodated within the System. This is in order to make most REVIEW OF ISSUES AND POLICIES effective use of the valuable AFFECTING CANADIAN MSS spectrum-orbit resource allocated to MSS at the Mobile WARC in 1987. It Past MSS Policy Decisions will also allow this new type of service to develop in a way responsive to Canadian requirements in the 9. MSS background in Canada evolved 1990's. in the context of a variety of policy and legal intruments. These ranged

International Mobile Satellite Conference, Ottawa, t990 469 15. Under long-established terminal Foreign-registered aircraft normally attachment and system interconnection operating on international routes rules, land, aeronautical and maritime would use either Canadian or foreign MSS subscribers would be allowed to MSS networks; the question arises in own or lease mobile earth stations. this case as to what carriers and Authorization of these terminals under systems these aircraft would be the Radiocommunications Act would be required to use while in transit done by DOC in accordance with through Canadian airspace or while existing radio regulations. In the terminating flights in Canada. The aeronautical and maritime sectors, Proposals at the end of this paper additional safety regulations might expand on the above notions and deal also have an impact on the relevant with how to handle such situations. radio equipment standardization. 20. American MSS systems (such as the 16. The approach to MSS policy Geostar and Qualcomm systems) are development in Canada recognizes the currently authorized by the FCC to trend towards integrated North provide position determination and American MSS. This trend is being one/two way short duration messaging dictated by market pressures, to, for example, the trucking industry particularly in the case of the in the continental U.S.. While these Canada-U.S. transborder trucking systems do not have the capacity to industry. provide full two-way voice communications, they do have the 17. TMI is not yet in a position to capability of covering southern provide its own MSS satellite Canada. The Canadian company SaTel is facilities. Until then, it will the sales agent for prospective provide interim MSS using alternate Canadian users of the Geostar capacity which it must lease from Positioning Corp's System. Qualcomm's another carrier. For example, for its Canadian subsidiary, Qualcomm "Road KIT" Early Mobile Data Service Communications Canada (QCC), is to (EMDS) it plans to lease capacity from offer service through Telesat Canada Teleglobe Canada on an INMARSAT via a U.S. fixed satellite in eastern satellite. TMI is permitted to offer Canada and via Anik C in western interim MSS in this way on condition Canada. After launch of Telesat's that its subscribers migrate to the Anik E, all-Canada coverage will shift Canadian MSAT when it becomes to these facilities. available. 21. Licensing measures exist to CURRENT MSS ISSUES prevent potential Canadian subscribers to U.S. MSS dealing directly with the 18. Different in some respects from U.S. carriers involved. These WARC Mobile '87 spectrum allocations, licensing measures are based on the the Canadian spectrum policy document, principles of Canadian carriers not SPI530MHz, allocates separate portions being bypassed and MSS being provided of the L-band to generic MSS with an in accordance with the Telecom Policy exclusive aeronautical MSS allocation Framework. (sandwiched between them). The air traffic control portion of the 22. There are agreements on aeronautical MSS has priority access transborder fixed satellite services to the upper portion of the generic with the U.S. Government that can be MSS alocation. TMI must satisfy the used as models to provide for Departments of Communications and transborder MSS. No reason is Transport that the mechanisms exist to foreseen why the spirit of these provide priority ATC, if and when •fixed satellite" agreements should required. Aeronautical public not also apply to transborder MSS. correspondence does not have the same Action to develop transborder MSS priority and can be accomodated agreements are currently underway. anywhere in the generic MSS bands. 23. Two Canadian policy issues of 19. In accordance with the above and importance at present are the 1987 Telecom Policy Framework, "Compatibility between different MSS Canadian-registered aircraft normally systems" and "the extent of equipment operating only on domestic routes standardization'. In regard to the would use Canadian MSS facilities. compatibility issue, there are some

International Mobile Satellite Conference, Ottawa, 1990 470 basic limitations in the extent to land MSS via U.S. satellites, TMI which compatibility may exist in the would have to lease the required future. One limitation relates to the capacity from the U.S. carrier and re- use by terrestrial land mobile systems lease it to Teleglobe Canada. of VHF/UHF spectrum as opposed to the cellular/MSS employment of higher 27. Another facet of the same question frequency bands; this makes it lies in the scenario where Teleglobe extremely improbable that compatibi- is permitted to provide domestic _and lity standardization would ever be MS__SS (as a Type II carrier) using, on attempted between these two types of an interim basis, the INMARSAT System. technology. The question arises as to whether it follows that TMI should be permitted 24. While the notion is accepted today on a quid pro quo basis (as a Type II that migration from foreign service carrier) to provide domestic _eronau- facilities to Canadian facilities is tical MSS using the INMARSAT system. required, the cost of implementation This issue is made more complex of such a policy, when Canadian because of Teleglobe contractual facilities become available, is an arrangements with France, Australia important issue. This could be of and SITA in this regard. It raises the particular concern to fleet users such further question of whether TMI could as in the trucking industry. provide such a service without the permission of ICAO or the other 25. In addition to the "cost" issue parties to the Teleglobe accord, even in migration to Canadian MSS capacity, where there is no international MSS there is the question of satisfacto- involved. It is apparent that, in the rily having to define "equivalence" event that TMI would be permitted to between the new Canadian facilities enter this market, the required and the U.S. (or other) facilities INMARSAT capacity would have to be from which migration must be effected. leased from Teleglobe Canada for the The terms and conditions of evaluating purpose. •equivalence" would also have to be clear and unequivocal. This could MSS INSTITUTIONAL ARRANGEMENTS prove particularly difficult because UNDER CONSIDERATION of differences in features offered on one system relative to another and the 28. On the basis of the many complex value Judgements required in comparing considerations impacting on provision one feature with another. For example of MSS in Canada as enumerated above, the potential of current U.S. MSS to the following institutional provide more accurate position/ arrangements are under consideration location information compared to the by the Department of Communications: proposed 1993/94 MSAT system is one such feature. This would have to be a) General: looked at to determine whether equivalence exists and whether - Authorized carriers in Canada migration in such a case might be (TMI and Teleglobe as Type I reasonable at the time. carriers) to provide satellite capacity to end users and end- 26. A marketing question is the need user service providers for either TMI or Teleglobe Canada to become a Type II carrier when it wants End-users and Type II carriers to enter the market of the other required to obtain access to acting as the Type I carrier of record MSS capacity only from Type I for the particular type of MSS. For carriers example, if Teleglobe wishes to provide domestic land MSS via - In the absence of Canadian INMARSAT, according to the 1987 facilities, use of non- Telecom Policy Framework, it must Canadian MSS facilities to be lease the INMARSAT capacity to TMI permitted. Migration from (the Type I carrier) and then lease it non-Canadian facilities to the back as the end-user service provider equivalent Canadian facility (a Type II carrier). Further, if to be required when the latter Teleglobe wishes to provide domestic becomes available

International Mobile Satellite Conference. Ottawa, 1990 471 - The MSS satellite transmitter/ - Current Canadian MSS SaTel receiver and associated subscribers to be made aware of control transmit/receive earth the possibility of stations to be subject to compatibility problems licensing (including cost and inconvenience) required to Mobile earth station licensing migrate to MSAT at the time it likely to be put in place becomes available. similar to that currently applicable to terrestrial mobile Similarly, for TMI's EMDS stations service versus other MSS via INMARSAT or via U.S. MSS b) Transborder MSS: systems

- Extension of the 1982 Canada- ACKNOWLEDGEMENTS U.S. transborder agreements to cover MSS and associated 29. The author would like to thank satellite services experts in various fields in the Department of Communications for these - Appropriate arrangements to valuable contribution in preparing cover roaming of mobile earth/ this paper. In particular, stations across the Canada-U.S. appreciation is sincerely expressed border in either direction. for the efforts of Parke Davis, Dr. Robert Bowen and Murray Fyfe in institutional arrangements and c) Aeronautical MSS spectrum policy, Demetre Athanassiadis in communications satellite - Canadian aircraft normally technology, Pierre Gagn_, Bob Tritt flying: and Janis Doran in international coordination and, last but not least, on domestic routes to i) Dr. Vena Rawat, Ron Amero, and Garry use the TMI MSAT MSS Rolston in spectrum engineering and System management.

ii) Canada-U.S. routes to use the proposed TMI or AMSC MSAT MSS System with detailed arrangements to be worked out between the two companies

iii) on international (overseas) routes to use the TMI MSAT or alternate (INMARSAT) with the choice of facilities to be on a normal competitive business basis

- Foreign aircraft normally flying between Canadian and overseas points to use the TMI MSAT or alternate (INMARSAT) System with choice of facility to be on a normal competitive business basis

d) Compatibility Standardization:

- Possible establishment of national/regional MSS standards

- Possible TMI MSAT/AMSC standardization

International Mobile Satellite Conference, Ottawa, 1990 472