Preliminary consultation on Mobile Satellite Service Developments and the Use of L and S Band Spectrum

2. The Minister, through the Department of Industry Act, the Radiocommunication Act and the Radiocommunication Regulations, with due regard to the objectives of the Telecommunications Act, is responsible for spectrum management in Canada. As such, the Minister is responsible for developing goals and national policies for spectrum resource use and for ensuring effective management of the radio frequency spectrum resource.

3. Canada has a long history of leadership in space, beginning with the launch of the first commercial communications satellite in 1962. Satellites are an integral part of daily life, and Canadians rely on them for many essential services, from weather forecasting to internet connectivity. The integration of space-based data now supports nearly every sector of Canada's economy, including transportation and logistics, precision agriculture, and nearly all financial transactions. Canada's space sector itself is highly innovative and evolving quickly, with satellite communications representing about 80% of sector revenue. The presence of a robust domestic space sector is increasingly linked to Canada's economic resilience and defence capabilities, as reflected in recent federal investment announcements, including in the Defence Industrial Strategy.

4. ISED believes that spectrum policies can support broader government objectives of economic resilience and national sovereignty, while pursuing ISED's longstanding objective that all Canadians have access to the latest wireless telecommunications services at affordable prices where they live, work, and travel. Satellite connectivity will continue to play a vital role in meeting this objective, particularly for Canadians in widely dispersed, rural, and remote communities. Furthermore, ubiquitous space-based connectivity has the potential to enhance public safety by providing emergency connectivity along remote roadways, and to support resilience in telecommunications by providing alternative means of connectivity during natural disasters.

5. This preliminary consultation considers the evolving MSS landscape, which has changed significantly over the past few decades from niche applications such as satellite phones to more recent Internet of Things (IoT) uses, including asset tracking, utilities monitoring, and smart farming. In recent years, Direct-to-Device (D2D) has emerged as a key MSS application which could see spectrum provide even greater benefits to by helping to close Canada's connectivity gaps.

6. In developing this preliminary consultation, ISED was also motivated by the policy objectives in Section 7 of the Telecommunications Act, and the Spectrum Policy Framework for Canada (SPFC) which guides ISED in delivering its spectrum management mandate. Taking all of the above into account, ISED's aim for this preliminary consultation is to seek comments on the latest MSS developments with a view to:

• consider the best use of the spectrum for Canadians;
• expand services particularly in unserved and underserved areas, including rural, remote, and Indigenous communities;
• foster investment and the evolution of wireless networks by enabling the development of innovative and emerging applications and supporting increased reliability and resiliency of telecommunications services;
• support sustained competition in the provision of wireless services so that consumers and businesses benefit from greater choice and competitive prices; and
• make spectrum available to support Canadian security, public safety, and sovereignty.

7. MSS refers to telecommunication services provided directly between satellites and mobile user terminals (terminals that operate while in motion). MSS can operate through either geostationary (GSO) or non-geostationary (NGSO) satellites, with both having the ability to offer global coverage.

8. For decades, the primary application of MSS has been to provide connectivity to satellite phones or other dedicated/bespoke/custom terminals in areas where no other options are available, and for tracking (e.g. ships, aircraft) and safety-of-life applications. While these traditional uses remain important today, especially in the rural and remote areas across Canada, the service has evolved over the years to include IoT data applications such as asset tracking, utilities monitoring, smart metering, smart farming, etc. More recently, with technology enabling connectivity directly to everyday smart phones, D2D has emerged as a key application of MSS, both in terrestrial bands and satellite bands. According to a recent report by Fortune Business Insights, the global MSS market size is predicted to have a compound annual growth rate of approximately 6.5% between 2026 and 2034, driven by the increasing demand for high-speed broadband connectivity in areas lacking terrestrial infrastructure.

9. With this significant evolution, renewed interest and anticipated growth, there has been an increase in plans to launch new MSS satellites, particularly low-earth orbit (LEO) constellations using mid-band MSS spectrum (L and S bands). In addition, new MSS operators have entered the market, with a view to accessing spectrum to provide various new services around the world. With the emergence of new D2D services and their potential benefits, there has also been a recent rise in spectrum transactions in parts of the world, with access to large portions of MSS spectrum being exchanged between companies. The growing MSS demand presents a key opportunity for Canadian satellite operators and to support the provision of high quality, innovative, and competitively priced wireless services to Canadians.

10. Since 2017, the 3rd Generation Partnership Project (3GPP) has been working to integrate non-terrestrial networks (NTN) into its the standards for mobile services. The 3GPP has implemented frameworks to allow for standardized low-power satellite support for narrowband Internet-of-things (NB-IoT) and long term evolution category M1 (LTE-M) devices, and to allow handheld devices to connect directly to LEO and GSO satellites. In recent 3GPP 5^th generation (5G) standards, a number of mid-band NTN satellite band classes have been identified:

• n250 for 1668-1675 MHz (for uplink which allows satellite access node receive and user equipment transmit) paired with 1518-1559 MHz (for downlink which allows satellite access node transmit and user equipment receive);
• n251 for 1626.5-1660.5 MHz paired with 1518-1559 MHz;
• n252 for 2000-2020 MHz paired with 2180-2200 MHz;
• n253 for 1668-1675 MHz paired with 1518-1525 MHz;
• n254 for 1610-1626.5 MHz paired with 2483.5-2500 MHz;
• n255 for 1626.5-1660.5 MHz paired with 1525-1559 MHz; and
• n256 for 1980-2010 MHz paired with 2170-2200 MHz.

11. In addition, there are terrestrial 5G band classes which overlap or encompass MSS bands including:

• n24 for 1626.5-1660.5 MHz paired with 1525-1559 MHz;
• n54 for 2483.5-2495 MHz;
• n65 for 1920-2010 MHz paired with 2110-2200 MHz;
• n66 for 1710-1780 MHz paired with 2110-2200 MHz;
• n70 for 1695-1710 MHz paired with 1995-2020 MHz; and
• n99 for 1626.5-1660.5 MHz.

12. Some of these band classes are being used for ancillary terrestrial services or stand alone mobile services, as well as for supplemental uplink or downlink for mobile services. These developments have significantly changed the outlook on the availability of consumer and industrial user terminals for MSS systems.

13. ISED's regulatory frameworks for MSS have not undergone significant changes for many years. In light of the developments described above, ISED is of the view that these frameworks need to be reviewed. Through this preliminary consultation, ISED is seeking views on the current and future landscape of mid-band MSS spectrum to determine whether a further consultation may be required to update the MSS policy, technical and licensing framework.

14. ISED notes that within each segment of the MSS L and S bands, different policies and conditions of licences (e.g. exclusivity, coordination agreements, etc.) have been applied to-date. While there are other MSS bands, the focus of this preliminary consultation will be on the following mid-band segments where ISED has seen the most interest and developments in recent years:

• the bands 1525–1559 MHz and 1626.5–1660.5 MHz (the "L-band");
• the bands 1610–1626.5 MHz and 2483.5–2500 MHz (the "Big LEO bands");
• the bands 2000-2020 MHz and 2180-2200 MHz (the "2 GHz band"); and
• the band 2020-2025 MHz.

15. Commercial MSS system: While ISED’s consultation process on MSS developments is ongoing, ISED is placing a moratorium on the licensing of satellite spectrum for commercial MSS systems, including transfers, in the bands 1525–1559 MHz and 1626.5–1660.5 MHz; 1610–1626.5 MHz and 2483.5–2500 MHz; and 2000-2020 MHz and 2180-2200 MHz, effective the date of publication of this preliminary consultation. The moratorium will be in place, pending ISED’s review of the MSS licensing framework. The moratorium does not apply to the licensing of satellite spectrum used by government or academic institutions, or for developmental licensing.

16. Licence applications for spectrum to be used by commercial MSS systems in the above-listed bands that were under consideration by ISED prior to the implementation of the moratorium have been placed on hold, with their order of consideration maintained until the current review is completed. These applications will be considered under the MSS framework in effect following the review.

17. ISED will not accept new licence applications for the above-listed bands to be used by commercial MSS systems during the moratorium.

18. Ancillary terrestrial mobile services: In addition to the moratorium on licensing for the satellite component of commercial MSS systems, ISED is placing a moratorium on the licensing of ancillary terrestrial component (ATC) mobile service in the bands 1525–1559 MHz and 1626.5–1660.5 MHz; 1610–1626.5 MHz and 2483.5–2500 MHz; and 2000-2020 MHz and 2180-2200 MHz. This moratorium also applies to any applications for the transfer or subordination of ATC licences.

19. This section examines the evolving MSS landscape and provides a review of the history and current uses of the bands, as well as the corresponding MSS spectrum policy and licensing considerations. ISED is seeking comments on these considerations, as outlined below, with a view to informing its future proposals for a new MSS policy, technical and licensing framework.

6.1 Existing and future MSS use cases

20. A number of key developments in the MSS space are redefining the landscape and raising important regulatory questions regarding current dynamics, the future of applications, spectrum requirements, and most efficient use of spectrum.

21. Traditional satellite phones and terminals: As mentioned in section 4, traditionally, MSS has been used to provide connectivity directly to satellite phones or other dedicated/bespoke/custom terminals. Deployments of this application have been largely successful across Canada to date and continue to be essential for communication in rural and remote areas of Canada where terrestrial networks are not available. Currently, traditional MSS acts as a vital link for industries like marine, aviation, and emergency services. With interest in other MSS applications on the rise, including new D2D services offering similar connectivity in these rural and remote areas without the need for dedicated terminals, ISED is seeking to understand the long term demand for traditional MSS applications and its implications on the amount of spectrum required for these applications.

22. Internet-of-things: IoT continues to be a growth area for MSS, with a large number of critical use cases emerging across many sectors including logistics, utilities, agriculture, asset tracking, defense, etc. For example, with the recent advances in technology, IoT sensors can monitor all sorts of things, including measurements of crop health and water levels in agriculture, providing dimensions, weight, location and other features of cargo in logistics, surveillance of specific areas and locating people in emergency and disaster relief efforts, collection of real-time data to enhance processes and improve productivity, and much more. The IoT ecosystem and business case has benefited from satellite-terrestrial integration to ensure seamless coverage across wider areas to enable a growing number of applications. This provides opportunities for ISED to consider an MSS framework that will support IoT applications for Canadian industries, particularly those in rural and remote areas like mines, farms and energy facilities.

23. ISED is of the view that new entrants providing IoT applications can bring innovative solutions to Canada but recognizes that they currently have difficulty accessing spectrum in which to operate. The amount of spectrum needed to serve MSS IoT applications is low compared to other voice and data applications since the 3GPP standards require bandwidths of 200 kHz for NB IoT and 1.4 MHz for LTE-M equipment. However, as discussed below in section 5.2, to date the majority of mid-band MSS spectrum has been licensed to long-standing satellite operators, with few options for new satellite operators to find MSS spectrum, even for small amounts required to support IoT applications. Consequently, the International Telecommunication Union (ITU) has been studying the potential identification of new MSS allocations since 2019, with an agenda item at the last World Radio Conference (WRC-23), and another one at the upcoming 2027 World Radio Conference (WRC-27). ISED is seeking comments on interest for MSS IoT applications, the amount of spectrum required to support these applications and which mid-band MSS bands are expected to be used for IoT applications.

24. Direct-to-device: D2D has emerged as a key application of MSS in the last few years, with some satellite operators working with terrestrial mobile service providers to deploy D2D services in their existing terrestrial spectrum holdings and some satellite operators planning to offer D2D services within MSS spectrum, or both. However, there is significant variance in the nature of D2D services being planned, from basic emergency and texting services to voice calling and basic data services in initial stages, and broadband data services more comparable to those received through terrestrial base stations in the future.

25. D2D operations in terrestrial spectrum are referred to as supplemental mobile coverage by satellite (SMCS) in Canada and covered by SMSE-001-25 - Decision on a Policy, Licensing and Technical Framework for Supplemental Mobile Coverage by Satellite, while those within MSS spectrum are covered by ISED's existing regulatory framework for MSS.

26. Internationally, there is currently no framework for SMCS and terrestrial frequencies used by the satellite constellations planned for SMCS have been filed under No. 4.4 of the ITU Radio Regulations, which is expected to continue until ITU discussions on agenda item 1.13 conclude at WRC-27.

27. Although there continues to be interest in enabling D2D operations using both terrestrial and MSS spectrum, each approach presents challenges. Recent indications suggest that D2D operations using terrestrial spectrum require that spectrum be carved out of existing mobile service providers’ holdings and that services beyond texting, voice and limited data would require more spectrum than mobile service providers can free up for satellite use without impacting their existing and future operations. For MSS spectrum, the user equipment ecosystem that connects to satellites is still growing and will take time to be available on the majority of mobile devices in use in Canada and in other countries.

28. Other countries are also examining their MSS frameworks or licences. In the United States, there have been a number of applications to access MSS spectrum and a series of significant MSS and terrestrial spectrum transactions, with large amounts spectrum being exchanged between companies to support MSS use cases. On April 23, 2026, the Federal Communications Commission (FCC) released a decision to reaffirm licensees' exclusive rights to use certain MSS bands, while rejecting pending requests for licences or U.S. market access in certain MSS bands that are already licensed to another entity. The FCC's stated objective for issuing the decision is to support the renaissance in D2D through a predictable regulatory environment for existing licensees.

29. ISED continues to be interested in supporting and expanding the availability of D2D services with a view to closing coverage gaps in the terrestrial network. However, ISED also recognizes that stand-alone MSS 5G services could have an impact on the structure of the telecommunications market in Canada. As such ISED, is seeking comments on plans for D2D operations, the amount of spectrum needed for D2D operations and the types of applications that Canadians are seeking from a D2D service.

30. Ancillary Terrestrial Component (ATC): In 2004, ISED concluded that providing flexibility for the development of the ATC mobile service as an integral component of MSS would encourage the development of advanced mobile satellites and serve the public interest. As such, it published RP-023 — Spectrum and Licensing Policy to Permit Ancillary Terrestrial Mobile Services as Part of Mobile-Satellite Service Offerings, establishing a set of spectrum and licensing policy principles to oversee the implementation of ATC in conjunction with any MSS network operating in the 1525-1559 MHz and/ 1626.5-1660.5 MHz, 1610-1626.5 MHz/ and 2483.5-2500 MHz and 2000-2020 MHz/ and 2180-2200 MHz bands.

31. Under the current version of RP-023, ATC systems are required to be offered as an integral part of the MSS and within the assigned spectrum and satellite coverage of the MSS network. RP-023 also requires ATC operators to offer only dual-mode handsets that can communicate with both the mobile satellite network and the terrestrial ATC system.

32. In 2014, RP-023 was updated to remove the 2 GHz band, reflecting the publication of SLPB-008-14, Decision on a Policy, Technical and Licensing Framework for Mobile Satellite Service and Advanced Wireless Service (AWS-4) in the Bands 2000-2020 MHz and 2180-2200 MHz (the 2 GHz Decision). In the 2 GHz Decision, ISED removed the requirement for dual-mode handsets and allowed ATC systems in the 2 GHz band to operate as stand-alone systems, provided that ATC systems not constrain the deployment of the associated MSS operating in the same band. The 2014 revision of RP-023 did not update the ATC policy for the remaining bands.

33. In 2020, following consultation on a request received by Globalstar, ISED published SMSE-009-20 - Decision on Globalstar Canada's Application for Ancillary Terrestrial Component (ATC) Authority in the 2.4 GHz Band (2483.5-2500 MHz). In this decision, ISED recognized that ATC applications have evolved significantly since the development of RP-023 and allowed Globalstar Canada to deploy standalone, low-power ATC systems in the 2483.5-2500 MHz band in non-forward-band mode, without the dual-mode requirement. ISED also indicated that as the developments in the other bands in RP-023 mature, ISED would consult more comprehensively on the ATC policy.

34. ISED notes that there have been varying levels of ATC deployment and significant changes in MSS business cases, particularly with respect to D2D. ISED is therefore seeking comments on whether there continues to be interest in ATC services.

35. Need for additional MSS spectrum: As discussed above, there are a variety of MSS use cases emerging with a limited supply of MSS spectrum available for new applications. Noting that there are agenda items for WRC-27 that may result in more MSS spectrum being made available, ISED is seeking comments on the need for MSS spectrum.

6.2 Spectrum policy considerations

36. In the following section, ISED explores any general policy changes that it should consider for MSS spectrum, as well as the current and evolving context in each of the mid-band MSS segments that have seen the most interest and developments in recent years. As noted in section 4, within each segment of the MSS L and S bands, different policies and conditions of licence (e.g. exclusivity, coordination agreements, etc.) exist as outlined below.

6.2.1 Expanding Canadian coverage

37. As discussed in sections 3 and 4, MSS can help to provide services to Canadians in hard to reach places and can support Canadian sovereignty and security. ISED is considering how it can expand the availability of MSS to all areas of the country and seeking to understand whether MSS spectrum is needed for all the use cases discussed in section 6.1.

38. ISED has specific Canadian coverage requirements for fixed-satellite services (FSS) and broadcasting-satellite services (BSS) space station spectrum licences. As detailed in CPC-2-6-02 — Procedure for the Submission of Applications for Spectrum Licences for Space Stations, these requirements are as follows:

• for any GSO satellite to be positioned between and including 70°W and 130°W (the Canadian FSS arc), operators are required to cover the entire Canadian territory visible from the satellite. Operators must reserve 50% of the satellite capacity for Canadian use for a minimum period of six months from licence issuance, during which time ISED will expect a reasonable effort to be made to market the capacity to Canadian users.
• for all commercial NGSO BSS and FSS constellations designed for the provision of real-time services to end users, systems must be capable of providing uninterrupted service (24 hours per day, 7 days per week) throughout the Canadian territory. These systems must also locate at least one gateway in Canada to support the provision of service.

39. Given that the MSS landscape has shifted dramatically in recent years, along with the increasing convergence and blurred lines between the different satellite services, and the integration of satellite into the terrestrial network, ISED is considering whether to apply a Canadian coverage requirement to MSS space station licences. ISED notes that not all the use cases described in section 6.1 have the same need for ubiquitous and uninterrupted coverage. ISED is seeking comment on the approach to Canadian coverage for MSS, including whether it should be different for each use case.

40. In light of significant shifts in the MSS landscape and the renewed interest from Canadian satellite operators in providing services, another approach to meeting ISED's objective of expanding MSS coverage over all of Canada and to support sovereignty and security is to reserve spectrum for Canadian system(s) and/or prioritize Canadian networks.

41. Over the last few years, there have been significant geopolitical shifts around the world. The increasing uncertainty in this area has illustrated the importance of national sovereignty, including the development of sovereign networks. In addition, there is significant interest and increasing focus on strengthening defence and security in support of national resilience. Accordingly, ISED is seeking comments on reserving spectrum for Canadian system(s) and/or prioritizing Canadian networks.

6.2.2 Coexistence

42. ISED recognizes that coexistence between different MSS systems and between MSS and terrestrial components of MSS systems is difficult. Currently, in order to manage interference between MSS systems, the frequencies assigned to an MSS operator have generally been exclusive and not assigned to another operator in the same geographic area. With the increasing demand for MSS spectrum and the mix of expected use cases, ISED is seeking comments on the need for exclusive MSS frequencies.

43. ISED notes that MSS devices generally use omnidirectional antennas, which makes sharing of geographic areas difficult. However, ISED notes that there have been extensive advances in MSS technology in the past decade and that the current interest in MSS will drive further technological improvements (e.g. use of advanced multiplexing schemes, smaller beams, improved traffic management). ISED anticipates that these technology advances and standardized equipment may facilitate sharing of the same band in the same geographic area. ISED’s current general NGSO licensing framework is all-come, all-served, subject to standard coordination practices, and there is no limit imposed on the number of licences issued per frequency band for NGSO systems. Similarly, NGSO and GSO systems can be licensed in the same frequencies, subject to coordination. ISED is seeking to understand the extent to which MSS systems can coexist when using the same frequencies in the same geographic area, and whether there are any considerations on coexistence between new and legacy MSS systems. ISED is also seeking comments on the ability of the different use cases to share the existing MSS spectrum and whether the band plans of existing MSS bands need to be reviewed to allow for different MSS use cases.

6.2.3 Terrestrial use of MSS bands

44. As discussed in section 4, there has been significant work at 3GPP to integrate MSS bands into mobile networks in the long term. As discussed in section 6.1, ATC service is allowed in all the existing mid-band MSS spectrum, however, the provision of MSS is a requirement that must be continuously met to be allowed to provide terrestrial services. ISED has sought to prioritize MSS in this spectrum through these ATC policies. Given the likelihood that MSS bands will increasingly be built into consumer devices, ISED is seeking comments on how it should treat terrestrial use in MSS bands in the future.

45. Terrestrial flexible-use licences comprise a set of conditions of licence, including specific licence terms, commercial mobile service fees, deployment requirements, licence transferability, divisibility and subordinate licensing rules, lawful access requirements, and tower sharing and roaming requirements. These conditions of licence are designed to support ISED's policy objectives for the use of the spectrum, to provide regulatory certainty to licensees, to have the same set of conditions for a frequency band and to apply generally the same policy framework for similar use of the spectrum. ISED notes that there is currently a mix of conditions of licence for ATC, and through its review of the MSS framework, may seek to revise its rules related to terrestrial use of MSS bands. As such, ISED is seeking comments on what conditions of licence should be applied to terrestrial use of MSS bands.

6.2.4 The 1525–1559/1626.5–1660.5 MHz bands

46. In Canada and internationally, the 1626.5-1660.5 MHz band is allocated to MSS (Earth-to-space) on a primary basis, with a small portion from 1660-1660.5 MHz also allocated to the radio astronomy service on a primary basis. Internationally, the 1525-1559 MHz band is allocated to MSS (space-to-Earth) on a primary basis, as well as to the space operation service. The portion from 1525-1535 MHz is also allocated to the fixed service on a primary basis in Regions 1 and 3. In Region 2 and in Canada, the entire 1525-1559 MHz band is allocated only to MSS (space-to-Earth) on a primary basis. As noted in section 5.1, ATC is also permitted in these bands in accordance with RP-023.

47. In ISED's Spectrum Outlook 2023 to 2027 ("Spectrum Outlook"), these bands were identified as having 'priority 3' status, with ISED essentially monitoring developments as they occur and assessing its approach to these bands as new information becomes available.

48. As the majority of this spectrum is only allocated to MSS on a primary basis, the 68 MHz of paired spectrum from 1525-1559/1626.5-1660.5 MHz bands is considered one of the key mid-band spectrum options for MSS around the world.

49. Within this spectrum, there have been different iterations of GSO MSS coordination agreements put in place over the years that segment the spectrum to different satellite operators, with a single MSS operator having access to a large portion of the spectrum in North America. Beginning in the late 1980s, numerous companies have negotiated coordinated access to this spectrum for various generations of licensed GSO MSS satellites. Although ISED has been involved in some of these discussions over the years and has recognized various stages of these agreements, the Department has not been involved in recent years. There are currently a number of Canadian licences and foreign satellite approvals in various portions of this spectrum that align with the corresponding coordination agreements, and there is currently some use in the bands. There has also been growing interest in the development of NGSO LEO constellations using this band, both in Canada and around the world.

50. Given that the long-standing coordination agreements were originally established with GSO MSS systems in mind, and that technology, services and the overall MSS landscape have shifted significantly over the last few decades, including the emergence of LEO constellations for the provision of MSS D2D and other applications, ISED is seeking comments on L-band considerations related to this evolution.

6.2.5 The 1610–1626.5/2483.5–2500 MHz bands

51. In Canada and internationally, the 1610-1626.5 MHz band is allocated to MSS (Earth-to-space) on a co-primary basis with a range of other services in different segments of the band. In Canada the 2483.5-2500 MHz band is allocated to MSS (space-to-Earth) on a co-primary basis with fixed, mobile, and radiolocation and radio-determination satellite services. These allocations are the same internationally, with the exception of the radiolocation allocation, which is secondary in Region 1. ISED notes that the 1610-1626.5/2483.5-2500 MHz bands were originally planned on the basis that MSS systems could share the same spectrum using code division multiple access (CDMA). Any new MSS operator wishing to operate in these bands would need to also employ CDMA to share with existing MSS operators in accordance with standard coordination procedures.

52. In the Spectrum Outlook, these bands were identified as having 'priority 3' status, with ISED essentially monitoring developments as they occur and assessing its approach to these bands as new information becomes available.

53. A single MSS operator has been providing traditional MSS in these bands for decades with a large subscriber base. More recently, it is also using the bands for D2D services through newer models of certain phones.

54. As discussed in section 5.1, in 2020, ISED made a decision to allow, in the 2483.5-2500 MHz band, the deployment of stand-alone, low-power ATC systems in non-forward-band mode without the dual-mode requirement. As of the date of publication of this preliminary consultation, ATC systems have yet to be deployed in this band.

6.2.6 The 2000-2020 MHz/2180-2200 MHz bands (S-band)

55. In Canada, the 2000-2020 MHz and 2180-2000 MHz bands, also known as the S-/2 GHz/Advanced Wireless Services (AWS-4) band, are allocated to the MSS and mobile services on a co-primary basis. Internationally, the bands are globally allocated to the MSS, mobile and fixed services on a primary basis. Both in Canada and globally, the MSS allocation in the 2000-2020 MHz band is in the Earth-to-space direction, and in the space-to-Earth direction in the 2180-2000 MHz band.

56. In 2014, ISED designated these bands for MSS and ATC service use through the Decision on a Policy, Technical and Licensing Framework for Mobile Satellite Service and Advanced Wireless Service (AWS-4) in the Bands 2000-2020 MHz and 2180-2200 MHz ("AWS-4 Policy"). The AWS-4 Policy provided a single MSS licensee with access to the bands, based on only two GSO satellites then in orbit that had the capability to provide MSS in the AWS-4 bands in Canada and the United States. Although there is no allocation to the fixed service in these bands in Canada, Canadian Footnote C36 of the Canadian Table of Frequency Allocations (CTFA) was subsequently introduced to permit fixed systems, provided they adhere to the technical requirements set out for ATC and as long as they are operated by the MSS/ATC licensee or by other operators with agreement from the relevant MSS/ATC licensee.

57. Since 2014, there has been limited GSO MSS use in the bands. Given changes in the equipment ecosystem and the demand for the use of both MSS and commercial mobile services in these bands, in 2023 they were identified as having 'priority 2' status in the Spectrum Outlook, with ISED indicating that it would consult on the future use of these bands including potential changes to the allocations, the use and transitioning existing users. More recently, there has been interest expressed by multiple companies to use this band for the provision of various MSS applications through NGSO systems.

58. Other countries are also examining use in these bands. In the United Kingdom, in July 2025, Ofcom issued a call for input on the exclusive use of the 1980-2010 MHz and 2170-2200 MHz bands beyond the end of the current term of licences of May 2027, seeking views on the types of services that could be authorised in the future, considering efficient use of spectrum, commercial viability of services, competition in each sector, and innovation and growth. In Australia, in July 2025, ACMA released a consultation on a proposed approach to allocation design and technical considerations for the 1980–2005 MHz and 2170–2195 MHz bands for MSS, seeking views on licensing approach, allocation methodology and auction format, and demand and use-cases.

59. Given that the AWS-4 Policy was put in place with GSO MSS in mind, and that technology, services and the overall MSS landscape have shifted significantly since that policy was developed, including the emergence of LEO constellations for the provision of MSS D2D and other applications, ISED is seeking comments on S-band considerations related to this evolution.

6.2.7 The 2020-2025 MHz band

60. Internationally, the 2020-2025 MHz band is allocated to the fixed and mobile services in all three Regions and is also allocated to MSS (Earth-to-space) in Region 2. In Canada, this band is currently allocated to the fixed and mobile services and is designated for advanced wireless services (AWS), with Canadian footnote C37 of the CTFA indicating that the designation may be the subject to a future public consultation. To date, the ecosystem for AWS in this band has not yet evolved, and ISED does not currently have plans to consult on this band for AWS. The band remains largely unused at this time and there has been interest in using this band, both in Region 2 and globally, for MSS in both the space-to-Earth and Earth-to-space directions. At the ITU, the band has been the subject of study for narrowband MSS in WRC-23, and again in preparation for WRC-27.

61. In the Spectrum Outlook, the 2020-2025 MHz band was designated as Priority 3, with ISED monitoring the Canadian and international developments for future satellite use of this band, with potential consultation on its use as necessary.

62. As mentioned above, the MSS landscape has changed significantly in recent years and continues to evolve. As such, ISED will continue to monitor both international and domestic developments related to MSS and factor any new considerations. ISED welcomes comments related to any other MSS considerations that may be relevant to the regulatory framework, including whether any recent policies should be reflected in the MSS framework, e.g. the SMCS rules.

63. ISED will review the comments received for this preliminary consultation to determine whether a further consultation may be required to update the policy, technical and licensing framework for MSS, which could include band plan changes, updates to existing policies, new conditions of licence, and/or new coexistence requirements.

64. Respondents are requested to provide their comments in electronic format (Microsoft Word or Adobe PDF) by email to satelliteplanning-planificationsatellite@ised-isde.gc.ca.

65. In addition, respondents are asked to specify the paragraph or proposal number for ease of referencing and to provide a supporting rationale and arguments for each response.

66. All submissions should cite the Canada Gazette, Part I, the publication date, the title and the notice reference number (SMSE-008-26). Respondents should submit their comments no later than June 29, 2026, to ensure consideration. Soon after the close of the comment period, all comments received will be posted on ISED's Spectrum management and telecommunications website.

67. Following the initial comment period, ISED may, at its discretion, request additional information if needed. In such a case, a new comment period could be applied.

68. All ISED publications related to spectrum management and telecommunications are available on the Spectrum management and telecommunications website.

69. For further information concerning the process outlined in this document or related matters, contact:

Innovation, Science and Economic Development Canada
Engineering, Planning and Standards Branch
Senior Director, Space Services and International
6th Floor, East Tower
235 Queen Street
Ottawa ON   K1A 0H5

Email: satelliteplanning-planificationsatellite@ised-isde.gc.ca