Commenters disagreed sharply on what mechanisms the FCC should use to make available unassigned licenses in its inventory absent general auction authority. Comments were posted Tuesday in docket 24-72. The FCC sought comment in March on the first anniversary of the expiration of its general auction authority (see 2403070062). Wireless carriers said grants of special temporary authority (STA) are the best alternative. Unlicensed advocates hailed the benefits of dynamic spectrum sharing.
Wireless Spectrum Auctions
The FCC manages and licenses the electromagnetic spectrum used by wireless, broadcast, satellite and other telecommunications services for government and commercial users. This activity includes organizing specific telecommunications modes to only use specific frequencies and maintaining the licensing systems for each frequency such that communications services and devices using different bands receive as little interference as possible.
What are spectrum auctions?
The FCC will periodically hold auctions of unused or newly available spectrum frequencies, in which potential licensees can bid to acquire the rights to use a specific frequency for a specific purpose. As an example, over the last few years the U.S. government has conducted periodic auctions of different GHz bands to support the growth of 5G services.
DOD on Wednesday released a redacted version of the Emerging Mid-Band Radar Spectrum Sharing Feasibility Assessment (EMBRSS), which DOD and NTIA forwarded to Congress in September (see 2309280087). The report examines military systems located in lower 3 GHz spectrum, with an eye on potential sharing but not on clearing as sought by CTIA and carriers.
Don't expand space operations in the 2110-2120 MHz portion of the AWS-1 band, wireless interests urged the FCC this week in docket 13-115 reply comments. The agency in September adopted a Further NPRM proposing changes to the Table of Frequency Allocations addressing the use of spectrum by manned and unmanned spacecraft during missions, and seeking comment on new spectrum allocations in certain bands for communications with cargo and crew capsules. Wireless providers have relied on the 2110-2120 MHz band for their networks, and the proposed expansion of satellite uplinks in the band ignores that it was auctioned and licensed to commercial wireless operators subject only to interference from one federal user at one location in California, CTIA said. Expanded use outside of NASA's Deep Space Network research facility would undermine wireless licensees' "investment-backed expectations in acquiring [licenses] and foundational network deployment," it said. CTIA said minus the protections that come with exclusive use licenses, consumers could face service-quality disruptions and there would be less confidence in the auction and regulatory process. AT&T said its use of the 2110-2120 MHz spectrum is constrained only by the need to accept interference from those high-power NASA transmitters. It said additional restrictions on AWS-1 A-Block licensees’ use of the 2110-2120 MHz portion of the band would undermine the auction process and put new terms on licensees post auction. Such a move would also put AWS-1 A-Block licensees at a competitive disadvantage to other AWS-1 licensees, it said. More nonfederal spectrum allocations for launch activities will help relieve lower S-band congestion, SpaceX said. It urged streamlined coordination in the upper S band as a way of supporting launch and space operations while protecting incumbent flight-testing services. It pushed for looking beyond the S and L bands for spectrum for launch and space operations, including for commercial crewed and uncrewed spacecraft. In a separate filing, SpaceX and fellow crewed launch capability companies Vast Space, Sierra Space, Voyager Space Holdings and Starlab Space urged the FCC to make an allocation for future crewed space stations and operations not connected to the International Space Station, which is to be retired in 2030. They said additional bands should be considered for space-to-space communications. The Aerospace and Flight Test Radio Coordinating Council said that before there are any changes to the L and upper S bands, the FCC, NTIA, DOD and the space launch industry should get more experience with the lower S bands being available for nationwide licensing on a secondary basis. It said the FCC also should monitor commercial launch operators' use of the L and upper S bands under the existing framework.
Wi-Fi advocates and 6 GHz incumbents clashed on an FCC proposal that would expand parts of the 6 GHz band where new very-low power (VLP) devices can operate without coordination, beyond the initial 850 MHz commissioners approved last year (see 2310190054). The VLP rules took effect March 9. 6 GHz incumbents have lined up in opposition to further changes (see 2403270055).
CTIA is hopeful a legislative vehicle will be found soon that will restore general FCC auction authority, more than a year after it lapsed, CTIA Senior Vice President-Spectrum Umair Javed said Wednesday during a Georgetown Center for Business and Public Policy webcast. “It sort of feels like there’s a lot of smoke, and maybe not fire yet,” Javed said. He hopes a bill floated by Sen. Ted Cruz, R-Texas, will provide the needed “spark.”
The 5G Fund order that FCC Chairwoman Jessica Rosenworcel circulated last week (see 2403200071) is expected to have several gaps that will need addressing with a Further NPRM on a tribal reserve but also through auction public notices, industry officials said. One question that needs answering is how to define open radio access networks, slated to get up to 10% of the $9 billion to be awarded.
Sen. Steve Daines, R-Mont., led filing of the Supporting National Security with Spectrum Act Friday as an alternative vehicle for allocating an additional $3.08 billion for the FCC’s Secure and Trusted Communications Networks Reimbursement Program after congressional leaders didn't agree to include the funding in the Further Consolidated Appropriations Act FY 2024 minibus spending bill (see 2403210067). Congress inched closer Friday to passing the minibus, which also didn't include stopgap funding for the FCC's ailing affordable connectivity program despite a strong push by the initiative's backers (see 2402210073).
Senate Commerce Committee Chair Maria Cantwell, D-Wash., told us Thursday she hopes to soon file legislation on a five-year renewal of the FCC’s lapsed spectrum auction authority without language authorizing sales of specific bands, despite Republican criticism during a Thursday hearing about omitting an airwaves pipeline. Senate Commerce ranking member Ted Cruz, R-Texas, and Communications Subcommittee ranking member John Thune, R-S.D., emphasized their 2024 Spectrum Pipeline Act (S-3909) as an antidote to concerns about the Biden spectrum strategy, as expected (see 2403200001). The hearing also revealed clear divisions among panel Republicans about continuing to explore 5G use of the 3.1-3.45 GHz band, which has drawn opposition from DOD and top Capitol Hill allies (see 2403200061).
Two retired senior military officials on Wednesday urged collaboration between the wireless industry and the DOD on opening the lower 3 GHz and 7/8 GHz bands for licensed use. While the U.S. “has been the established global leader in wireless, a new technology superpower -- China -- is emerging with astonishing speed,” said Mike Rogers, a retired U.S. Navy admiral and former director of the National Security Agency, and Bruce Crawford, retired lieutenant general and former Army chief information officer. “Both our military and commercial sectors need access to spectrum -- but today our national spectrum policies are struggling to keep up with critical needs,” they said in a Stars and Stripes essay. The lower 3 and 7/8 GHz bands align “with our allies around the globe and should be our priority,” they added. “We should explore all opportunities for full-power commercial access to these bands while ensuring that the needs of federal missions are fully met.” In addition, DOD needs clear direction and a schedule of auctions from the FCC, Rogers and Crawford wrote: “Too often our military is forced to respond to band-by-band spectrum access requests without any global view of the policy objective or insight into when or where the next request will be received. That is not how the military works.”
A CTIA executive on Wednesday criticized DOD’s work so far on the potential clearing of parts of the lower 3 GHz band. “We need more spectrum to meet commercial demand” and the federal government holds the most spectrum, said CTIA Senior Vice President-Spectrum Umair Javed during an Information Technology and Innovation Foundation webinar on Wednesday. Other panelists praised the Biden administration for releasing a national spectrum strategy (see 2403120006). The strategy includes a co-led NTIA and DOD study of the lower 3 GHz band.