October 25, 2018 FCC FACT SHEET* Mitigation of Orbital Debris in the New Space Age Notice of Proposed Rulemaking and Order on Reconsideration, IB Docket No. 18-313 Background: Since 2004, when the Commission first adopted rules regarding orbital debris mitigation for Commission-authorized satellites, there have been numerous developments in technologies and business models that could pose new or additional orbital debris risks. These developments include the proliferation of lower-cost small satellites and proposals to deploy large constellations of non- geostationary satellite orbit (NGSO) systems, some involving thousands of satellites. Prompted by our experience and these developments, we now undertake a comprehensive update of our orbital debris mitigation rules for all Commission-authorized satellites, including experimental and amateur satellites. What the Notice Would Do: • Propose new and revised application disclosures regarding: o deployment and use of deployment devices o risk of collision with large objects o choice of operational orbital altitude o potential impact to operations of manned spacecraft o trackability and maneuvering capabilities of NGSO satellites o probability of human casualty resulting from uncontrolled atmospheric re-entry of a satellite • Seek comment on a design reliability standard for large NGSO satellite constellations. • Make proposals and seek comment related to satellite disposal reliability and methodology, appropriate deployment altitudes in LEO, and on-orbit lifetime. • Propose new rules for geostationary orbit satellite (GSO) license term extension requests. • Propose that NGSO satellite operators maintain ephemeris data for each satellite they operate and share that data with the operators of other systems operating in the same region of space. • Propose new rules and rule updates on additional topics, such as release of persistent liquids, proximity operations, coordination of communications for NGSO orbit-raising maneuvers, and encryption of telemetry, tracking, and command links. • Propose that Commission satellite licensees indemnify the United States against any costs associated with a claim brought against the United States related to the authorized facilities and seek comment on whether to require that licensees have insurance coverage to provide for payment for any costs associated with such a claim. What the Order on Reconsideration Would Do: • Deny a petition for reconsideration of the Commission’s 2004 orbital debris mitigation rules filed by the Radio Amateur Satellite Corporation (AMSAT). * This document is being released as part of a "permit-but-disclose" proceeding. Any presentations or views on the subject expressed to the Commission or its staff, including by email, must be filed in IB Docket No. 18-313, which may be accessed via the Electronic Comment Filing System (https://www.fcc.gov/ecfs/). Before filing, participants should familiarize themselves with the Commission’s ex parte rules, including the general prohibition on presentations (written and oral) on matters listed on the Sunshine Agenda, which is typically released a week prior to the Commission meeting. See 47 CFR § 1.1200 et.seq. Federal Communications Commission FCC-CIRC1811-02 Before the Federal Communications Commission Washington, D.C. 20554 In the Matters of ) ) Mitigation of Orbital Debris in the New Space Age ) IB Docket No. 18-313 ) Mitigation of Orbital Debris ) IB Docket No. 02-54 (Terminated) ) NOTICE OF PROPOSED RULEMAKING AND ORDER ON RECONSIDERATION* Adopted: [ ] Released: [ ] By the Commission: Comment Date: (45 days after date of publication in the Federal Register) Reply Comment Date: (75 days after date of publication in the Federal Register) TABLE OF CONTENTS Heading Paragraph # I. INTRODUCTION .................................................................................................................................. 1 II. BACKGROUND .................................................................................................................................... 3 III. DISCUSSION ........................................................................................................................................ 9 A. Control of Debris Released During Normal Operations ................................................................ 11 B. Minimizing Debris Generated by Release of Persistent Liquids ................................................... 15 C. Safe Flight Profiles ........................................................................................................................ 17 1. Quantifying Collision Risk ...................................................................................................... 19 2. Orbit Selection ......................................................................................................................... 21 3. Tracking and Data Sharing ...................................................................................................... 28 4. Maneuverability....................................................................................................................... 31 5. Multi-Satellite Deployments ................................................................................................... 32 6. Design Reliability .................................................................................................................... 34 D. Post-Mission Disposal ................................................................................................................... 36 1. Probability of Success of Disposal Method ............................................................................. 38 * This document has been circulated for tentative consideration by the Commission at its November 2018 open meeting. The issues referenced in this document and the Commission’s ultimate resolutions of those issues remain under consideration and subject to change. This document does not constitute any official action by the Commission. However, the Chairman has determined that, in the interest of promoting the public’s ability to understand the nature and scope of issues under consideration, the public interest would be served by making this document publicly available. The Commission’s ex parte rules apply and presentations are subject to “permit-but- disclose” ex parte rules. See, e.g., 47 CFR §§ 1.1206, 1.1200(a). Participants in this proceeding should familiarize themselves with the Commission’s ex parte rules, including the general prohibition on presentations (written and oral) on matters listed in the Sunshine Agenda, which is typically released a week prior to the Commission’s meeting. See 47 CFR §§ 1.200(a), 1.1203. Federal Communications Commission FCC-CIRC1811-02 2. Post-Mission Lifetime ............................................................................................................. 49 3. Casualty Risk Assessment ....................................................................................................... 51 4. Part 25 GSO Satellite License Term Extensions ..................................................................... 54 E. Proximity Operations ..................................................................................................................... 59 F. Operational Rules .......................................................................................................................... 60 1. Orbit Raising ........................................................................................................................... 61 2. Maintaining Ephemeris Data ................................................................................................... 63 3. Telemetry, Tracking, and Command Encryption .................................................................... 65 G. Liability Issues, Insurance, and Economic Incentives ................................................................... 67 H. Scope of Rules ............................................................................................................................... 74 1. Amateur and Experimental Operations ................................................................................... 74 2. Non-U.S.-Licensed Satellites .................................................................................................. 77 I. Regulatory Impact Analysis ........................................................................................................... 80 IV. ORDER ON RECONSIDERATION ................................................................................................... 92 V. PROCEDURAL MATTERS .............................................................................................................. 105 VI. ORDERING CLAUSES ..................................................................................................................... 109 APPENDIX A Proposed Rule Changes APPENDIX B Flexibility Analysis I. INTRODUCTION 1. In many respects, we are at a turning point in the history of space development. Driven by innovation from both established commercial enterprises and new entrepreneurial endeavors, a new landscape for the private space industry is emerging, sometimes referred to as “New Space.” Companies have proposed new satellite constellations, some with satellites numbering in the thousands, that would provide broadband and other services worldwide. Relatively inexpensive small satellites, many based on what is known as a “CubeSat”