FCC Report & Order - Modernizing Spectrum Sharing for Satellite Broadband (summary)
A "major overhaul"
Source: https://www.fcc.gov/document/fcc-poised-empower-super-fast-space-based-broadband
The Federal Communications Commission has proposed a major overhaul of satellite spectrum sharing rules, replacing decades-old constraints with a modern, performance-based framework designed to unlock faster, more affordable broadband from space.
This decision targets the longstanding limitations imposed on Non-Geostationary Orbit (NGSO) systems—such as low Earth orbit constellations—by rules originally developed in the 1990s to protect Geostationary Orbit (GSO) satellites. The FCC concludes that these legacy constraints now significantly restrict the capacity, speed, and efficiency of satellite broadband services, particularly in rural and underserved areas.
From EPFD Limits to Performance-Based Rules
At the core of the reform is the elimination of the rigid Equivalent Power Flux Density (EPFD) limits, which capped how much signal NGSO systems could emit to avoid interfering with GSO satellites.
These limits are replaced with a performance-based approach focused on real-world impact rather than theoretical interference. Instead of prescribing how systems must operate, the new framework evaluates whether they degrade GSO service beyond defined thresholds.
Operators are now expected to engage in good-faith coordination to manage interference, with regulatory backstops applied only when agreements cannot be reached.
New Technical Protection Criteria
The FCC establishes clear thresholds to protect GSO systems:
Long-term: no more than 3% average throughput degradation
Short-term: no more than 0.1% increase in link unavailability
For non-adaptive systems: –10.5 dB interference-to-noise ratio for 80% of the time
Spatial safeguard: a minimum 3-degree avoidance angle from the GSO arc
These replace blanket restrictions with measurable service-level protections.
Unlocking Capacity and Performance
The FCC finds that current EPFD limits force NGSO operators to:
Restrict the number of satellites serving a location
Reduce transmission power
Avoid large portions of the sky
Together, these constraints significantly reduce system efficiency.
Under the new framework, NGSO systems could:
Increase capacity by 100% to 700% in a given area
Use multiple satellites simultaneously (e.g., up to eight instead of one)
Improve speeds and reduce latency to levels approaching terrestrial broadband
The result is a step-change in performance without requiring additional spectrum.
Evidence from Real-World Testing
A key feature of this proceeding is the reliance on extensive real-world testing, rather than purely theoretical models.
Field measurements showed that NGSO systems operating beyond current EPFD limits could:
Increase simultaneous satellite usage dramatically
Maintain interference within acceptable thresholds
Cause less than 3% throughput degradation and less than 0.1% increase in unavailability
These findings suggest that existing rules are far more conservative than necessary.
Economic and Market Impact
The FCC estimates that the reforms could generate more than $2 billion in benefits in the United States alone, with global gains potentially reaching $10 billion to $100 billion if similar approaches are adopted internationally.
By increasing capacity and reducing costs, the new rules are expected to:
Lower the price of satellite broadband
Improve service quality
Enable new entrants to compete in the market
Satellite providers may increasingly rival fiber and fixed wireless offerings, particularly in areas where terrestrial infrastructure is limited.
Bridging the Digital Divide
Satellite broadband plays a critical role in extending connectivity to rural and remote regions where traditional networks are difficult or uneconomical to deploy.
The FCC highlights that a significant portion of Americans still lack competitive broadband options. By enabling more efficient use of satellite systems, the new framework aims to expand access and improve service quality for these communities.
A Shift in Regulatory Approach
Beyond the technical changes, the Order reflects a broader shift in regulatory philosophy.
Instead of relying on static, worst-case assumptions, the FCC moves toward a flexible model based on:
Real-world performance
Industry coordination
Technological adaptability
This approach prioritizes outcomes—such as service quality and user experience—over prescriptive engineering constraints.
Scope of the Order
Applies to NGSO and GSO Fixed-Satellite Service (FSS) systems
Covers frequency bands including:
10.7–12.7 GHz
17.3–18.6 GHz
19.7–20.2 GHz
Maintains existing protections for:
Terrestrial services
Radio astronomy sites
Replacement of EPFD Framework
The Order removes EPFD-based compliance requirements and introduces:
Performance-based protection criteria for GSO systems
A framework based on:
Good-faith coordination between operators
Regulatory backstops where coordination is not achieved
Technical Protection Criteria
The FCC adopts the following limits:
Long-term:
3% time-weighted average throughput degradation (for systems using adaptive coding and modulation)
Short-term:
0.1% absolute increase in link unavailability
For GSO systems without adaptive coding and modulation:
–10.5 dB interference-to-noise ratio (I/N) for 80% of the time
Additional requirement:
Minimum 3-degree avoidance angle from the GSO arc
Use of defined GSO reference links for evaluation
Operational Changes
Under the new framework:
NGSO and GSO operators may negotiate interference protections
NGSO systems are no longer required to meet EPFD limits regardless of agreements
Compliance is based on meeting performance thresholds rather than fixed power limits
Supporting Record
The Order relies on:
Technical studies and simulations
Real-world measurement campaigns of NGSO systems
Data submitted by multiple stakeholders
Testing cited in the record indicates:
NGSO systems operating with multiple satellites in the same area
Reduced avoidance angles
Measured impacts on GSO links within proposed thresholds
Expected System-Level Effects (as cited in the record)
Capacity increases estimated at 100% to 700% for NGSO systems
Ability to use multiple co-frequency satellites in a given area
Potential reduction in the number of satellites required for coverage
Procedural Context
Proceeding initiated in April 2025
Includes:
38 comments
23 reply comments
Multiple ex parte submissions
Document released for consideration at the FCC’s April 30, 2026 open meeting
Subject to “permit-but-disclose” ex parte rules
Additional Elements
No aggregate interference limits adopted at this time
Transition to new rules addressed in implementation section
International coordination (ITU processes) continues separately
RESOURCES
FCC Report and Order: Modernizing Spectrum Sharing for Satellite Broadband — the primary rulemaking document replacing EPFD limits with performance-based criteria
Federal Communications Commission (FCC) — U.S. regulator adopting the new NGSO/GSO spectrum sharing framework at its April 30, 2026 open meeting
International Telecommunication Union (ITU) — Space Services — established the original 1990s EPFD limits now being superseded by U.S. domestic rules
Starlink (SpaceX) — NGSO LEO constellation whose petition for rulemaking initiated this proceeding; received early EPFD waiver in January 2026
Amazon Kuiper — NGSO system granted a similar EPFD waiver in February 2026 ahead of the new rules
Information Technology and Innovation Foundation (ITIF) — filed comments supporting the degraded-throughput methodology as an EPFD alternative
International Center for Law & Economics (ICLE) — filed comments urging a flexible, performance-based spectrum sharing regime
FCC Space Bureau — the bureau administering the new satellite licensing and spectrum framework
World Radiocommunication Conference 2027 (WRC-27) — international forum where studies on EPFD reform are expected to continue through 2027
FCC Fact Sheet: SB Docket No. 25-157 — the underlying proceeding document with technical criteria and stakeholder record