International Telecommunications and Space Law Syllabus Rev. 4

Module One: Balancing Government Regulation and Marketplace Resource Allocation in International Telecommunications and Space: An Introduction to Global Telecommunications Technologies,

TELECOMMUNICATIONS & SPACE LAW (Rev Four)

I have designed this course to present, investigate and debate ongoing or evolving

conflicts in international telecommunications and space law, with emphasis on actions taken in U.S and intergovernmental policy making and adjudication forums The resulting confrontationsmay stem from technological innovation, real or perceived changes in the marketplace, or the imperatives of prevailing regulatory, political or economic philosophies Conflict resolution often results from persuasive advocacy, coalition building and accommodation of outsiders with new perspectives or entrepreneurial visions, rather than applying legal precedent or treaty

interpretations In other instances, a nation may act unilaterally with little regard for treaty-level commitments

The course also will examine how various nations, collectively and individually, have regulated international telecommunications transmitted via fiber optic submarine cables and satellites We will get acquainted with treaties and agreements creating binding national

commitments, but also voluntary consensus decisions reached at the United Nations,

International Telecommunication Union and the World Trade Organization We will concentrate

on the ITU’s management of radio spectrum and satellite orbital parking places, and how nationsimplement consensus decisions, or pursue unilateral actions

Additionally, we will examine both the potential for market-driven regulation in lieu of

“command and control” government oversight, but also countervailing factors such as market failure, equity, national security and trade policy In the latter part of the course, we will

examine commercialization of telecommunications and space with a review of the current blend

of regulatory requirements, such as licensing and cable landing licenses, and market-driven auctioning of spectrum

We will wrap up the course with consideration of current regulatory and marketplace challenges presented by new technologies, such as low earth orbiting satellite constellations,

non-governmental launch options, fifth generation wireless technologies and the Internet of Things.

As this course will have a small enrollment in a seminar format, you must commit to active participation in the discussion, particularly because the course will take place via

broadband (Zoom) I strongly recommend that you turn on the video feature on Zoom so

that we can make eye contact.

Ten percent of your grade will factor in your class participation.

Module One: Balancing Government Regulation and Marketplace Resource Allocation in International Telecommunications and Space: An Introduction to Global

Telecommunications Technologies, Inter-governmental Forums and Domestic Regulation (Jan 20, 25, 27, Feb 2)

In this first module, we will consider how sovereign nations address key issues such as sharing and accessing global resources, e.g., radio spectrum and satellite orbital slots This process balances national sovereignty and security concerns with the benefits of reaching global consensus The nations of the world seek to harmonize the use of shared resources, but

invariably conflicts arise Intergovernmental forums, such as the International

Telecommunication Union (“ITU”) seek to anticipate and resolve conflicts, optimize the use of technology and promote world peace and understanding

Careers in international telecommunications, space and cybersecurity law require an understanding of both business, law and public policy, as they are inextricably linked The assigned readings provide a review of how nations have structured the ITU to address spectrum, satellite, technical standards and development issues Reliance on treaties between sovereign nations and a United Nations affiliated intergovernmental organization underscores the shared view that telecommunications global resources are not the same thing as generic “widgets,” meaning that procompetitive, marketplace-oriented policies are not completely viable Matters

of market failure, equity, national security, cybersecurity and trade policy directly impact how the international telecommunications ecosystem is organized and managed

Assignments:

Patrick S Ryan, The ITU and the Internet’s Titanic Moment, 2012 STAN TECH L.REV 8;

available in Canvas

Sabine von Schorlemer, Telecommunications, International Regulation, OXFORD PUBLIC

INTERNATIONAL LAW, skim ¶¶ 1-61; available at:

https://opil.ouplaw.com/view/10.1093/law:epil/9780199231690/law-9780199231690-e998

Elina Morozova & Yaroslav Vasyanin, International Space Law and Satellite

Telecommunications, OXFORD RESEARCH ENCYLOPEDIA; available at:

Rob Frieden, How the Internet Works; (available in Canvas)

Computerphile, How YouTube Works (2013); available at: https://www.youtube.com/watch?

Muhammad Rashid Shafi, Serving Underserved Segments of Society Using ICT Infrastructure

(2020); (available in Canvas and:

https://www.ptc.org/PTC20/Proceedings/RWS_DEV_19_Shafi_Muhammad%20Rashid.pdf

Isabelle Paradis, The digital age is changing the rules of the money game (2020); (available in

Canvas and: https://www.ptc.org/PTC20/Proceedings/WK_PITA_19_Paradis_Isabelle.pdf

Technology/Economic Concepts Addressed

throughput measurement of output, which can be measured digitally in bytes

frequency band—the range of radio spectrum allocated for a particular service, e.g., 88.1-107.9 MHz for FM radio

kilo/mega/giga hertz thousand, million and billion cycles per second

propagation—nature of signal transmission; typically, the higher up in spectrum, the more the signal operates like light, i.e., thin beams Also, the higher the frequency, the more likely

foliage, buildings and terrain will attenuate or block the signal Line of sight refers to the need for a transmitter/receiver (transceiver) antenna to have a direct, unobscured invisible link to the antenna that transmits and receives content used by the consumer

frequency reuse—the ability to operate two or more transmitters on the same frequency if the transmissions are geographically separated; the higher the frequency the faster a signal attenuates(weakens) making it possible to reuse it at a nearby locale

co-channel and adjacent channel interference—two transmissions on the same frequency, or on anearby channel

causes for spectrum scarcity/glut; spectrum value—high demand translates into high cost, e.g., auctions for cellphone spectrum vs zero cost for some spectrum, e.g., Wi-Fi, baby monitors and garage door openers Note that some unlicensed spectrum may trigger high demand leading to congestion and “the tragedy of the commons”

analog vs digital—two primary transmission formats; humans are analog creatures (with eyes, ears, larynxes, fingers) thereby requiring analog devices to reproduce sounds, vibrations and pictures (speakers, visible lines of video)

multiplexing function—channel multiplication as occurs with FM stereo creation of right and leftsound channels

spectrum conservation strategies, e.g., frequency division; frequency reuse; sharing spectrum (including White Spaces) using low power and “smart” radios with digital signal processing

INTERNET TECHNOLOGY AND BUSINESS BASICS

the mantra of “Faster, Better, Smarter, Cheaper and More Convenient”

Internet as a “Network of Networks” as visually outlined in two of the assignments, as well as trace route reports

ICE: convergence of Information Communications and Entertainment

the culture and folkways of Netheads, Bellheads and Cableheads—3 different tribes having different characteristics, strengths and weaknesses, as well as the possibility of inconsistent legal philosophies

technological convergence—merger of previously discrete technologies that now can provide multiple functions

market convergence—merger of previously separate markets; an IP-centric Internet can offer access to previously separate markets; what are the opportunities and risks in such “one stop shopping” available as a “Triple Play”?

distance insensitivity—technologies whose costs don’t vary with distance from sender and receiver; may also be a price averaging strategy

stickiness—length of time spent at a single web site

Metcalfe’s Law—positive network externalities

Moore’s Law—doubling of capacity every 18 months

point-to-point vs point-to-multipoint

TCP/IP Transmission Control Protocol—the Internet traffic management standard; Internet Protocol—Internet addressing system

packet switching vs circuit switching impact on quality of service and efficiency

multimedia; multi-casting; multi-tasking; multi-plexing

simplex/duplex—one way versus two-way transmission

latency—delay in receiving content

scalability—ability to add capacity on an incremental basis as demand grows

streaming—real time delivery, processing and display of content

routers and “best efforts” routing

hierarchical structure of the Internet

cacheing/buffering

proxy servers/mirror sites; how to anonymize, or establish a virtual presence in another countryasymmetrical traffic volume—unequal throughout requirements for downloading and uploading traffic

how the Internet appears on a chart as a cloud

equipment inside the cloud: broadband telecommunications links, servers and routers

Internet 2.0 emphasis on social networking, interactivity, collaboration, and new sources of content, e.g., through podcasts, wikis, online communities and social networks

proliferation of sensors, and a growing “Internet of Things;” machine-to-machine links

ECONOMIC/BUSINESS PRINCIPLES

economies of scale; economies of scope

natural monopoly

vertical integration; horizontal integration

externalities; positive networking externalities/Metcalfe’s Law

All You Can Eat pricing; metering and other pricing strategies

International Telecommunication Union, Collection of the basic texts of the International

Telecommunication Union adopted by the Plenipotentiary Conference Edition 2019; available at:

http://handle.itu.int/11.1004/020.1000/5.22.61.en.100

Paul B Larsen , Outer Space: How Shall the World's Governments Establish Order Among Competing Interests?, 29 WASH INT’L L.J 1 (Dec 2019); available at:

https://digitalcommons.law.uw.edu/cgi/viewcontent.cgi?article=1825&context=wilj

Hao Liu & Fabio Tronchetti, The Exclusive Utilization Space: A New Approach to the

Management and Utilization of the Near Space, 40 U PA J INT’L L 537 (2019).

available at: https://scholarship.law.upenn.edu/jil/vol40/iss3/1

Hao Liu & Fabio Tronchetti, The Great Unknown of the Outer Space Treaty: Interpreting The Term Outer Space, 46 DENV J INT'L L & POL’Y 349 (Summer, 2018)

Jonathan Lim, The Future of the Outer Space Treaty – Peace and Security in the 21st Century,

4 GLOBAL POLITICS REV No 2, 72-112 (October 2018); available at:

http://www.globalpoliticsreview.com/publications/2464-9929_v04_i02_p072.pdf

Module Two: The International Telecommunication Union Spectrum Planning and

Management Process (Feb 3, 8, 10)

This module closely examines spectrum planning, allocation and registration by the ITU and national regulators, a process which increasingly triggers frustration over its methodical, comprehensive and time consuming nature The ITU seeks to harmonize spectrum use, optimize technology, anticipate and resolve conflict and provide a forum for consensus building even as some stakeholders would prefer a faster acting, market-driven process We will compare and contrast both ex ante and ex post models with an eye toward identifying legal limitations based

on such countervailing concepts as sovereignty, global resources that must be shared (“res communes”), (cyber)libertarianism and the view that access to exploit spectrum, satellite orbital slots and even mineral rich asteroids can apply property law constructs

https://www.nesdis.noaa.gov/CRSRA/pdf/ITU_SPECTRUM_REGULATION.pdf (split

coverage with Module Four)

Rob Frieden, The International Telecommunication Union: A Brief Introduction (available in

Canvas)

Rob Frieden, Spectrum Management Basics (available in Canvas)

Recommended Reading:

International Telecommunication Union, About International Telecommunication Union (ITU);

available at: https://www.itu.int/en/about/Pages/default.aspx

Patrick S Ryan, European Spectrum Management Principles, 23 J MARSHALL J

COMPUTER & INFO L 277 (2005); available at: https://repository.jmls.edu/jitpl/vol23/iss2/3/

William Lehr, Spectrum License Design, Sharing, and Exclusion Rights, 2016 U ILL J.L

TECH & POL’Y 1; available at:

http://illinoisjltp.com/journal/wp-content/uploads/2016/06/Lehr.pdf

Jens Hinricher, The LawMaking of the International Telecommunication Union (ITU)

-Providing a New Source of International Law?, 64 ZEITSCHRIFT FÜR AUSLÄNDISCHES

ÖFFENTLICHES RECHT UND VÖLKERRECHT, 489 (2004); available at:

https://www.zaoerv.de/64_2004/64_2004_2_b_489_502.pdf

Jason Gerson, A Grand Bargain Among the International Telecommunication Union’s Skeptics and Proponents: Building a Third Way Toward Internet Freedom, 47 GEO J INT’L L 1459

(2016)

Module Three: Submarine Cable Law and Policy (Feb 15, 17)

This module we will concentrate on the interplay of technology, law and policy as it relates to international cable and facilities competition, loading and authorization No

government relies solely on marketplace resource allocation for international

telecommunications transmission facilities, but the allure of enormous monetary payoffs from spectrum auctions creates a major incentive for “pay to play” arrangements Later in the course,

we will consider how national security and trade concerns can motivate nations to prevent a company even from participating in this key sector of the global economy

Typically, carriers must apply for authority to construct transmission facilities, and many governments oversee how circuits in such facilities are activated Such regulation, of facilities planning and activation, tends to blunt comparative advantages between transmission

technologies It purports to protect the public from carrier investment in unneeded facilities and

safeguard the availability of a disfavored medium for national security, redundancy and diverse routing purposes.

Assignments:

A basic understanding of how international telecommunications technologies work will help you integrate law with business and technology management issues Throughout the course

we will learn from technology primers

Carter L., Burnett et al, Submarine Cables and the Oceans – Connecting the World,

UNEP-WCMC Biodiversity Series No 31 ICPC/UNEP/UNEP-UNEP-WCMC (2009); available at:

https://www.iscpc.org/documents/?id=132; Read Chapter Four; skim the other chapters

Optica Cloud Infra, Subsea Cable System 101 (2017); available at: http://opticalcloudinfra.com/

Federal Communications Commission, Submarine Cable Landing Licenses, Background;

available at: https://www.fcc.gov/research-reports/guides/submarine-cable-landing-licenses

www.hwglaw.com/wp-content/uploads/2016/04/Bressie-SubOptic-Master-Class-Jurisdiction-Broadband Now, Fiber-Optic Internet In the United States (2020); available at:

https://broadbandnow.com/Fiber

Fiona Beck, Submarine Protection Zones: “The New Gold Standard” (2020); available in

Canvas and at: https://www.ptc.org/PTC20/Proceedings/TS_SC_20_Beck_Fiona.pdf

In Class Assessment of China Mobile’s legal options after rejection of its Sec 214 application

for licensing by the FCC See China Mobile International (USA) Inc., Application for Global Facilities-Based and Global Resale International Telecommunications Authority Pursuant to

Section 214 of the Communications Act of 1934, as Amended, Memorandum Opinion and Order,

2019 WL 2098511 (2019); available at:

https://docs.fcc.gov/public/attachments/FCC-19-38A1_Rcd.pdf; short, edited version available in Canvas

Recommended Reading:

China Mobile International (USA) Inc., Application for Global Facilities-Based and Global Resale International Telecommunications Authority Pursuant to Section 214 of the

Communications Act of 1934, as Amended, Memorandum Opinion and Order, 2019 WL

2098511 (2019); available at: https://docs.fcc.gov/public/attachments/FCC-19-38A1_Rcd.pdf

United States Department of Homeland Security, Public-Private Analytic Exchange Program,

Threats to Undersea Cable Communications (Sep 28, 2017); available at:

https://www.dni.gov/files/PE/Documents/1 -2017-AEP-Threats-to-Undersea-Cable-Communications.pdf

International Telecommunication Union, Establishment of Harmonized Policies for the ICT

Market in the ACP Countries, Access to Submarine Cables: Assessment Report (2013); available

at: https://www.itu.int/en/ITU-D/Projects/ITU-EC-ACP/HIPSSA/Documents/FINAL

%20DOCUMENTS/FINAL%20DOCS%20ENGLISH/submarine_cables_assessment_wa.pdf

Anup Changaroth, Chasing Shannon’s limit – submarine cable fibre optic communications,

APNIC blog site (Aug 13, 2018); available at:

https://blog.apnic.net/2018/08/13/chasing-shannons-limit-submarine-cable-fibre-optic-communications/

Alan Mauldin, Frequently Asked Questions: Submarine Cables 101, TELEGEOGRAPHY (Feb

14, 2017); available at:

https://blog.telegeography.com/frequently-asked-questions-about-undersea-submarine-cables and slightly different version at:

https://www2.telegeography.com/submarine-cable-faqs-frequently-asked-questions

FCC, Submarine Cables, available at: https://www.fcc.gov/international/submarine-cables

Zoe Scanlon, Addressing the Pitfalls of Exclusive Flag State Jurisdiction: Improving the Legal Regime for the Protection of Submarine Cables, 48 J MAR L & COM 295 (2017)

Federal Communications Commission, Pending Applications For Submarine Cable Landing License, Pacific Light Cable Network (PLCN), Report No SCL-00204S (2017); available at:

Module Four: Space and Satellite Law, Technology, Orbital Slot Registration and

Licensing (Feb 22, Satellite Technology Overview) (Feb 24, Space Law Primer) (March 1, ITU Procedures) (March 3, Dispute Resolution)

We will assess the comparative advantages of international cables and satellites, and consider what actions governments should take to ensure that the cheapest service is provided over the most efficient routes With the onset of privatization, the FCC's “private” (as compared

to “common”) carrier concept and commercial firms’ profit maximizing goals, we will consider whether governments should abandon their involvement in facilities planning and loading

This module also will consider international telecommunications technologies, networks and markets It also will identify who provides facilities and services, and what they must do to secure both a complete link and authority to operate Throughout the course, we will pay

particular attention to the concept of scarcity and whether it exists as a function of technological limitations, e.g., orbital or frequency limitations, or government decisions This module will introduce the technological and financial limitations in international telecommunications

facilities and services

Assignments:

Intelsat, Satellite Basics; available at: https://www.intelsat.com/resources/tools/satellite-101

Intelsat, A Practical Introductory Guide on Using Satellite Technology for Communications

(2012); available at primer-whitepaper.pdf

https://www.intelsat.com/wp-content/uploads/2020/10/intelsat-satellite-James G Alver & Michael P Gleason, Space Policy Primer, Key Concepts, Issues, and Actors

(2018); available at:

https://aerospace.org/sites/default/files/2018-11/Gleason-Alver_SpacePolicy_11162018.pdf

Scan: Outer Space Treaty: http://www.unoosa.org/oosa/en/SpaceLaw/outerspt.html

Skip Smith, A Space Law Primer for Colorado Lawyers, Part 1: International Space Law, CO LAWYER (March, 2018)(available in Canvas); Part 2: U.S Space Law (May, 2018)(available in

Canvas)

Louis de Gouyon Matignon, Orbital Slots and Space Congestion, Space Legal Issues Web Site

(June 8, 2019); available at:

https://www.spacelegalissues.com/orbital-slots-and-space-congestion/

Michael J Listner & Joshua T Smith, A Litigator’s Guide to the Galaxy: A Look at the

Pragmatic Questions for Adjudicating Future Outer Space Disputes, 23 VAND J ENT &

TECH L 53 (Fall, 2020)(available in Canvas)

coverage with Module Two)

Alexandre Vallet, Orbit-Spectrum International Regulatory Framework (Dec 4 2018); available

in Canvas and at: https://www.itu.int/dms_pub/itu-r/md/15/wrs18/sp/R15-WRS18-SP-0016!!PDF-E.pdf

Chuen Chern Loo, ITU Regulatory procedures for small satellite filings (2018); available at: https://www.itu.int/en/ITU-R/space/WRS18space/WRS15-small%20satellites-06122018.pdfNikolai Vassiliev, ITU Preparatory process towards WRC-19 (2017); available at:

WRC19Wrkshp13_WRC-19_Preparations_NikolaiVassiliev.pptx

https://www.icao.int/safety/FSMP/MeetingDocs/FSMP%20WG5/Presentations/FSMP-WG05-Technology/Economic Concepts

Arthur C Clarke’s science fiction scenario: satellites as a “bent pipe” relay

parabolic antenna signal concentration into a feed horn; like the optic nerve function in the brain and eye and solar energy concentration provided by a magnifying lens; concept of natural gain from the antenna and electronic “gain” from a low noise amplifier

geostationary orbit/ geosynchronous orbit

other orbit types: elliptical; low earth; middle earth; apogee; perigee

transponder as a relay and as a unit of capacity, typically 36 MHz

signal attenuation

look angle; line of sight; azimuth; station keeping

location of communication satellites

uplink; downlink; footprint; beam sizes: global, hemispheric, zone, spot

comparative strengths and weaknesses of satellites vis a vis terrestrial options

point-to-multipoint services have low incremental costs to serve an additional point of

communication: positive network externalities/Metcalfe’s law

bandwidth limitations and conservation tactics: frequency reuse; geographical discrimination of beams, both vertical and horizontal polarization

role of satellites in video program delivery: cable television, direct broadcast satellite service

“superstations”

Recommended Reading:

Joanne Wheeler, THE SPACE LAW REV (2019); available at: content/uploads/2020/01/United-States.pdf

http://shermanhoward.com/wp-Nicolas Giacomin, The Bogotá Declaration and Space Law, SPACE LEGAL ISSUES (Dec 4,

2019); available at: https://www.spacelegalissues.com/the-bogota-declaration-and-space-law/

GSMA, An Introduction to the WRC, A beginner’s guide to the World Radiocommunication Conference (2017); available at: https://www.gsma.com/spectrum/wp-content/uploads/2017/02/

Chuen Chern Loo, Frequency Registration for Small Satellite Missions (Dec 2017); available at:

Liability Convention: http://www.unoosa.org/oosa/en/SpaceLaw/liability.html

Registration Convention: http://www.unoosa.org/oosa/en/SORegister/regist.html

Guilhem Penent, Coordinator, Governing the Geostationary Orbit Orbital Slots and Spectrum Use in an Era of Interference, Institut Français des Relations Internationales (Jan 2014);

available at: https://www.ifri.org/sites/default/files/atoms/files/noteespacegpenent.pdf

Audrey L Allison, The ITU and Managing Satellite Orbital and Spectrum Resources

in the 21st Century, International Space University (2014); available at:

https://link.springer.com/content/pdf/10.1007%2F978-3-319-05314-1.pdf

Kenneth Katkin, The Global Broadband Satellite Infrastructure Initiative, 48 U LOUISVILLE

L REV 977 (2010); available at: http://hn3.giga-lib.com/HOL/Page?

public=true&handle=hein.journals/

branlaj48&div=36&start_page=977&collection=journals&set_as_cursor=10&men_tab=srchresults

Aamir Riaz, ITU Structure and preparation on WRC-19 Agenda Items (2018); available at: https://www.itu.int/en/ITU-D/Regional-Presence/AsiaPacific/Documents/Events/2018/PRW-18/Presentations/Day%202%20-%20WRC.pdf

International Telecommunication Union, World Radiocommunication

Conference 2019 (WRC-19), Final Acts (2019);

available at: https://www.itu.int/dms_pub/itu-r/opb/act/R-ACT-WRC.14-2019-PDF-E.pdf

Inter-American Telecommunication Commission, CITEL Preparation for WRC-19 (2019); available at: https://www.citel.oas.org/en/Pages/PCCII/WRC.aspx

Examples of “Working the Refs” Ex Parte presentations:

https://cdn.geekwire.com/wp-content/uploads/2020/01/amazon-response.pdf;

Commercialization advocates have gained support as most national governments have privatized their monopoly Post Telephone and Telegraph carrier Additionally, satellite and submarine cable telecommunications services are competitively provided and recently, large bandwidth users, such as Facebook and Google, have sought regulatory authority to install their own international submarine cables.

Additionally, the INTELSAT and INMARSAT global satellite cooperatives, owned by a combination of national governments and commercial operators, have privatized A small, residual, non-profit organization serves as the carrier of last (and only) resort by residents in remote areas unserved by submarine cables and unable to support commercial ventures

This module will consider how the length and breadth of viable international

telecommunications commercialization

Assignments:

Sabine von Schorlemer, Telecommunications, International Regulation, OXFORD PUBLIC

INTERNATIONAL LAW, skim ¶¶ 62-136; available at:

https://opil.ouplaw.com/view/10.1093/law:epil/9780199231690/law-9780199231690-e998

Marco Bronckers & Pierre Larouche, A Review of the WTO Regime for Telecommunications Services (Dec 2011); available at:

https://www.researchgate.net/publication/228246340_A_Review_of_the_WTO_Regime_for_Telecommunications_Services