European Regulators Navigate Direct-to-Device Satellite Services and Spectrum Challenges
European telecommunications regulators are grappling with complex decisions around enabling direct-to-device (D2D) satellite connectivity while balancing spectrum scarcity, cross-border interference, and environmental sustainability. At Network X 2025, regulators from the UK (Ofcom), France (ARCEP), and Greece (EETT) discussed their divergent approaches to integrating satellite services into existing mobile networks.
Current Coverage Landscape
The three countries report strong terrestrial mobile coverage, with France achieving over 97% population coverage and Greece exceeding 95% 5G population coverage. However, specific challenges remain in mountainous regions, rural areas, and islands. Greece faces particular complexity with 130 inhabited islands and significant seasonal tourism demands, while France's overseas territories, especially French Guiana with its Amazon forests, present unique connectivity obstacles.
Pioneering UK Approach
The UK has taken the most aggressive stance, becoming the first to implement a D2D framework in IMT bands with services expected to launch in 2026. Ofcom successfully conducted the world's first satellite video call to a handset earlier this in the year under innovation licenses. The UK's geographic advantage of having only one land border provided greater flexibility to move ahead of the World Radiocommunication Conference 2027 (WRC-27) decisions, though officials emphasized their commitment to reviewing policies based on WRC outcomes and maintaining cross-border coordination.
Continental Caution and Harmonisation
France and Greece are pursuing more cautious, harmonised approaches. ARCEP is running dual consultations on L-band mobile satellite services (MSS) renewals and terrestrial mobile band licenses expiring between 2027-2045. Greece is incorporating D2D considerations into its 900 MHz and 1800 MHz spectrum consultation, with licenses expiring in 2027, and is considering unprecedented license durations - potentially indefinite terms with 10-year review checkpoints to attract network investment.
Cross-border interference emerged as a critical concern for continental regulators. The European Radio Spectrum Policy Group (RSPG) has recommended launching technical harmonisation processes, with the European Commission expected to implement decisions defining interference management protocols. The upcoming Digital Networks Act, scheduled for draft publication in December, explicitly targets spectrum fragmentation and D2D systems as priorities for EU-wide harmonisation.
Economic and Environmental Considerations
Regulators are increasingly viewing satellite connectivity through a technology-neutral lens aligned with the EU's Digital Decade Policy Program targeting 1 Gbps connectivity and "5G or equivalent" coverage by 2030. An Analysys Mason study revealed potential savings of €20-25 billion in subsidies across seven EU countries by deploying LEO satellites in rural areas instead of fibre, demonstrating the economic viability of hybrid infrastructure approaches.
Environmental sustainability has emerged as a significant regulatory concern, with ARCEP pioneering discussions on space debris, light pollution, and satellite lifecycle impacts. BEREC and ITU have organized workshops addressing these issues, though regulators acknowledge the urgent need for standardized assessment frameworks and measurement tools to evaluate satellite constellation sustainability - particularly given some constellations operate with only two-year satellite lifespans.
Three Key Takeaways
Regulatory Divergence on Timing: The UK is proceeding independently with D2D services in IMT bands (launching 2026), while continental European regulators prioritize cross-border harmonisation through RSPG and await WRC-27 outcomes, reflecting fundamental differences in geographic constraints and regulatory philosophy.
Economic Case for Hybrid Networks: LEO satellites are gaining recognition as cost-effective solutions for rural connectivity, with potential subsidy savings of €20-25 billion across seven EU countries, supporting technology-neutral approaches that combine fibre for dense areas and satellites for remote regions.
Sustainability Framework Gap: Despite growing environmental concerns about space debris, light pollution, and resource consumption, regulators lack standardized tools and criteria to assess satellite constellation sustainability or compare environmental impacts between terrestrial and satellite networks—creating an urgent policy development priority.
From Session:
Fireside chat: Shaping regulatory and spectrum frameworks to enable NTNs and D2D
Moderator: Dario Talmesio, Research Director, Service Provider Strategy & Regulation, Omdia
Panellists:
Nina Percival, Director of Spectrum Management and Authorisation, Ofcom
Franck Tarrier, Mobile and Innovation Director, Arcep
Prof. Kostas Masselos, President, Hellenic Telecommunications & Post Commission (EETT)