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Regulatory spectrum issues concerning GPS receivers

In the United States, GPS receivers are regulated under the Federal Communications Commission 's (FCC) Part 15 rules. As indicated in the manuals of GPS-enabled devices sold in the United States, as a Part 15 device, it "must accept any interference received, including interference that may cause undesired operation". With respect to GPS devices in particular, the FCC states that GPS receiver manufacturers "must use receivers that reasonably discriminate against reception of signals outside their allocated spectrum". For the last 30 years, GPS receivers have operated next to the Mobile Satellite Service band, and have discriminated against reception of mobile satellite services, such as Inmarsat, without any issue.

The spectrum allocated for GPS L1 use by the FCC is 1559 to 1610 MHz, while the spectrum allocated for satellite-to-ground use owned by Lightsquared is the Mobile Satellite Service band. Since 1996, the FCC has authorized licensed use of the spectrum neighboring the GPS band of 1525 to 1559 MHz to the Virginia company LightSquared. On March 1, 2001, the FCC received an application from LightSquared's predecessor, Motient Services, to use their allocated frequencies for an integrated satellite-terrestrial service. In 2002, the U.S. GPS Industry Council came to an out-of-band-emissions (OOBE) agreement with LightSquared to prevent transmissions from LightSquared's ground-based stations from emitting transmissions into the neighboring GPS band of 1559 to 1610 MHz. In 2004, the FCC adopted the OOBE agreement in its authorization for LightSquared to deploy a ground-based network ancillary to their satellite system – known as the Ancillary Tower Components (ATCs) – "We will authorize MSS ATC subject to conditions that ensure that the added terrestrial component remains ancillary to the principal MSS offering. We do not intend, nor will we permit, the terrestrial component to become a stand-alone service." This authorization was reviewed and approved by the U.S. Interdepartment Radio Advisory Committee, which includes the U.S. Department of Agriculture, U.S. Space Force, U.S. Army, U.S. Coast Guard, Federal Aviation Administration, National Aeronautics and Space Administration (NASA), U.S. Department of the Interior, and U.S. Department of Transportation.

In January 2011, the FCC conditionally authorized LightSquared's wholesale customers—such as Best Buy, Sharp, and C Spire —to only purchase an integrated satellite-ground-based service from LightSquared and re-sell that integrated service on devices that are equipped to only use the ground-based signal using LightSquared's allocated frequencies of 1525 to 1559 MHz. In December 2010, GPS receiver manufacturers expressed concerns to the FCC that LightSquared's signal would interfere with GPS receiver devices although the FCC's policy considerations leading up to the January 2011 order did not pertain to any proposed changes to the maximum number of ground-based LightSquared stations or the maximum power at which these stations could operate. The January 2011 order makes final authorization contingent upon studies of GPS interference issues carried out by a LightSquared led working group along with GPS industry and Federal agency participation. On February 14, 2012, the FCC initiated proceedings to vacate LightSquared's Conditional Waiver Order based on the NTIA's conclusion that there was currently no practical way to mitigate potential GPS interference.

GPS receiver manufacturers design GPS receivers to use spectrum beyond the GPS-allocated band. In some cases, GPS receivers are designed to use up to 400 MHz of spectrum in either direction of the L1 frequency of 1575.42 MHz, because mobile satellite services in those regions are broadcasting from space to ground, and at power levels commensurate with mobile satellite services. As regulated under the FCC's Part 15 rules, GPS receivers are not warranted protection from signals outside GPS-allocated spectrum. This is why GPS operates next to the Mobile Satellite Service band, and also why the Mobile Satellite Service band operates next to GPS. The symbiotic relationship of spectrum allocation ensures that users of both bands are able to operate cooperatively and freely.

The FCC adopted rules in February 2003 that allowed Mobile Satellite Service (MSS) licensees such as LightSquared to construct a small number of ancillary ground-based towers in their licensed spectrum to "promote more efficient use of terrestrial wireless spectrum". In those 2003 rules, the FCC stated: "As a preliminary matter, terrestrial and MSS ATC are expected to have different prices, coverage, product acceptance and distribution; therefore, the two services appear, at best, to be imperfect substitutes for one another that would be operating in predominantly different market segments... MSS ATC is unlikely to compete directly with terrestrial CMRS for the same customer base...". In 2004, the FCC clarified that the ground-based towers would be ancillary, noting: "We will authorize MSS ATC subject to conditions that ensure that the added terrestrial component remains ancillary to the principal MSS offering. We do not intend, nor will we permit, the terrestrial component to become a stand-alone service." In July 2010, the FCC stated that it expected LightSquared to use its authority to offer an integrated satellite-terrestrial service to "provide mobile broadband services similar to those provided by terrestrial mobile providers and enhance competition in the mobile broadband sector". GPS receiver manufacturers have argued that LightSquared's licensed spectrum of 1525 to 1559 MHz was never envisioned as being used for high-speed wireless broadband based on the 2003 and 2004 FCC ATC rulings making clear that the Ancillary Tower Component (ATC) would be, in fact, ancillary to the primary satellite component. To build public support of efforts to continue the 2004 FCC authorization of LightSquared's ancillary terrestrial component vs. a simple ground-based LTE service in the Mobile Satellite Service band, GPS receiver manufacturer Trimble Navigation Ltd. formed the "Coalition To Save Our GPS".

The FCC and LightSquared have each made public commitments to solve the GPS interference issue before the network is allowed to operate. According to Chris Dancy of the Aircraft Owners and Pilots Association, airline pilots with the type of systems that would be affected "may go off course and not even realize it". The problems could also affect the Federal Aviation Administration upgrade to the air traffic control system, United States Defense Department guidance, and local emergency services including 911.

On February 14, 2012, the FCC moved to bar LightSquared's planned national broadband network after being informed by the National Telecommunications and Information Administration (NTIA), the federal agency that coordinates spectrum uses for the military and other federal government entities, that "there is no practical way to mitigate potential interference at this time". LightSquared is challenging the FCC's action.