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The Arctic is rapidly becomingmore accessible due to climate change, bringing with it increased humanactivity in the form of resource exploration, shipping, tourism, and scientificresearch. All of this necessitates adequate connectivity capabilities. However,such communications infrastructure development in the polar regions has largelynot kept pace with this increased demand. The United States should proactivelyclose the connectivity gap in Alaska and across the Arctic more broadly by partneringwith and reducing regulatory barriers for the private sector in developing anddeploying new satellite communications technology and engaging its northernneighbors to leverage space-based solutions for pan-regional connectivity.

Snapshot of Arctic Connectivity

The Arctic’s unique conditions hinder the provision of broad and reliable connectivity in the region. First, mountainous terrain, expansive (and now thawing) permafrost, and harsh climate make installing and maintaining ground-based communications infrastructure difficult and therefore costly. These factors, combined with sparse population density and therefore less demand, mean that fixed-line delivery systems in these remote regions, such as fiber optics and cable, are often not economical. Furthermore, vessels and platforms operating off-shore are not well-served by such infrastructure. Second, while these terrestrial limitations are increasingly being overcome by space-based systems, the latter face their own challenges. Connectivity is dependent on satellite visibility and signal fidelity, which, in the polar regions, are difficult to achieve. Most communications satellites today are placed in geosynchronous equatorial orbits (GEO, also known as geostationary orbits),[1] from which satellite visibility of the polar latitudes is often obstructed by the curvature of the earth. Third, communication links face several potential disruptions: icy antennas, rough seas, as well as the effects of rain fade and other atmospheric phenomena due to their high altitudes (approximately 35,000 km). Moreover, the “ionosphere in Alaska causes problems with high frequency (HF) radio signals and affects radar sensors. That means even the US military’s and Coast Guard’s sophisticated communications systems can be degraded in certain parts of the Arctic.”[2] The confluence of these factors helps explain why the polar regions have long been underserved by communications systems.

In the North American Arctic,in comparison to its European and Eurasian Arctic neighbors, this lack ofconnectivity is particularly acute.[3] Alaskaranks last in the United States in internet download speeds,[4] withthe current average fixed broadband download speed in the state hovering atonly 20.6 Mbps.[5] Thisstands in sharp contrast to the 2018 national average of 96.25 Mbps.[6] Only the southeast portions of the statebreak 25 Mbps,[7] madelargely possible by access to fiber optic and cable line systems. In the outlying areas to the southwest, west,and northwest, satellite internet is often seen as the best solution tobringing undeveloped areas online, since the signal comes from the sky andtherefore requires only local infrastructure be built, rather than expansiveand costly fixed-line systems.[8] However, not only is satellite internet inAlaska patchy and slow, it is also expensive: “zip codes in the bottom 10 percentof population density [in the U.S.] pay up to 37 percent more on average forresidential wired broadband than those in the top 10 percent.”[9] Allof this leaves 42 percent of the state’s population underserved in terms ofreliable internet access.[10]

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Inadequate connectivity posesa number of challenges and risks in the Arctic. On the one hand, connectivityfosters sustainable and resilient communities and enables economic growth. Isolated schools benefit immensely frominternet access, which enables expanded course choices and educational contentthrough distance-learning and online testing. A prolonged lack of access tothese and other services means that future generations of Alaskans will bedisadvantaged in the digital marketplace when it comes to competing for jobs.[11]Telemedicine services, including video appointments, remote consultations, andelectronic patient health record-keeping[12] are also made possible byinternet access, and a lack of it erodes vital healthcare in isolatedcommunities. Furthermore, providingdecent service to the Arctic stands to aid the region economically by openingup “a hugely profitable market with shipping lines and other businessenterprises.”[13] From a safety and security perspective, alack of connectivity jeopardizes positioning, navigation and communication ofmaritime transportation, search and rescue (SAR), and military operations. Importantly,every scenario that happens in the lower latitudes is possible in the Arctic,but many of the communications systems used in the former do not operate aswell or at all in the circumpolar north.[14] Unreliable connectivity canhave dangerous consequences for humans working, researching, and traveling insuch remote and harsh environments.

Advancements in Space-Based Solutions and RemainingChallenges

The Arctic is poised tobenefit from increased private-sector interest in utilizing space-basedsolutions to bring continuous broadband coverage to the entire globe. Advancesin low-earth orbit (LEO) satellite technology, for example, offer workaroundsto some of the main limitations of GEO systems, particularly inadequate polarcoverage and high latency, or communication lag time. Rather than placing onlya few large satellites in GEO, constellations of smaller satellites—spanninglarge swaths or even the entirety of the globe—can be placed closer to theearth’s surface at altitudes of 160 to 2,000 km, reducing the latency inherentin GEO signals having to travel back and forth over tens of thousands of kilometersof space.[15] Fortwo decades, Iridium operated the foremost LEO satellite constellationproviding global communications coverage, but this did not include broadbandand service interruptions were known to occur, at times lasting for severalminutes.[16] Earlier this year, work on replacing thecompany’s legacy satellite constellation with its second-generation fleet,Iridium Next, was completed.[17] Thehigher data rates offered by these new satellites will enable web browsing andhigher bandwidth activities in addition to the phone call and SMS messagingservices standard on the predecessor satellites.[18] Other companies have also joined the fray,with OneWeb (UK/U.S.), TeleSat (Canada) and Space X’s Starlink (U.S.) allputting sprawling constellations of satellites into LEO to provide continuousglobal coverage.

However, the LEO industryfaces economic hurdles, as Elon Musk stated prior to a Starlink launch: “‘Noone has ever succeeded in making a viable low Earth orbit communicationconstellation right off the bat.’”[19] One might recall IridiumSSC, the developer of the original Iridium constellation, which went bankruptin 1999 after a lack of customer uptake failed to compensate for the high costsinvolved with getting all of the satellites up and running in orbit beforelaunching commercial services.[20] The constellation was later purchased in 2001by Iridium Communications, which had identified a niche market wealthy enoughto keep the system running—people like explorers, scientists, reporters, and themilitary who required coverage in remote places where no other communicationssystems could be used.[21] Buteven when expanding this market to include remote communities presentlyunderserved by fixed-line connections, there remains speculation about whetherdemand will be sufficient to support all of these new mega-constellations.[22]

The use of fewer satellites,then, would theoretically bring costs down. Highly elliptical orbits (HEO), forexample, offer similar benefits to GEO in that one or two satellites placedhere have a broad view of the planet, with the added merit of better polarcoverage. The elongated orbital shape has the advantage of a long apogee dwelltime, which enables satellites to remain not only at high altitude but also athigh latitude for long periods of time. Norway is already pursuing initiativesin this direction, with the state-owned Space Norway working to launch atwo-satellite system at HEO to enable full Arctic coverage for Norwegian andAmerican users. By carrying militarypayloads for the U.S. along with those for the Ministry of Defense, and byexpanding to include commercial services, Space Norway aims to defray costs.[23] Russiaalso currently operates HEO satellites and is expanding projects in thisregard. At present, the Russian Express satellite constellation covers about 40percent of the country’s Arctic territory, and the planned addition of five newExpress-RV satellites to the fleet over the next five years will bring coverageof the Russian Arctic to 100 percent.[24] There is the option for the Express-RV systemto provide additional coverage over the entire Arctic as well, and to this endRussia, at last year’s Arctic Council Senior Officials meeting session onconnectivity in Levi, Finland,[25]invited fellow Arctic states to join the project to provide coverage for “thebenefit of all Arctic Council Member states.”[26]

A Proactive US Approach

The U.S. should promoteprivate-public partnerships to overcome economic hurdles associated with thedevelopment and adoption of space-based communications systems in its Arcticterritory. As the Arctic Council’s Task Force on Improved Connectivity in theArctic (TFICA) notes, “public investment often supplements private investmentto increase deployment of connectivity solutions in remote and less denselypopulated areas. In these types of areasin the Arctic, a profitable business case relying exclusively on privateinvestment is difficult to achieve.”[27] On the other side of the equation, thefederal government can work to reduce regulatory barriers to innovation andadoption where possible. Industry feedback received by the TFICA in compilingits report highlighted an interest in a “regulatory environment that allows forpiloting new technologies to facilitate earlier commercial development in theArctic,” as well as regulatory clarity on the requirements that are unique tothe region.[28]

In addition to itsresponsibility to ensure adequate connectivity in Alaska for sustainabledevelopment, resilient communities, economic growth, and national securityimperatives, the U.S., as one of eight Arctic states, also has a responsibilityto work with its northern neighbors in areas of mutual interest, includingpan-Arctic connectivity. Regarding space-based solutions, the United States’cooperation with Norway to achieve full Arctic satellite coverage via an HEOsystem is a promising step toward meeting the military’s growing connectivityneeds in the region. On the civilian side, the U.S. can continue to engage incooperative efforts to boost connectivity in areas of mutual interest to allArctic states, such as in SAR and air traffic control for trans-Arctic flights.In this endeavor, continued cooperation in relevant Arctic Council workinggroups and task forces, as well as with other organizations such as the ArcticEconomic Council, could prove fruitful. By taking such steps, the U.S. will bebetter connected in Alaska and the broader Arctic, and therefore betterpositioned to engage in the region’s future.

Bibliography

[1] Geosynchronous and geostationary orbits are sometimes used interchangeably but there are important differences. A geosynchronous orbit (GSO) can be circular or elliptical, with an orbital period equal to Earth’s rotation time. To keep time with Earth’s movement, GSO satellites must be placed at an altitude of 35,786 km from the planet’s surface. A geostationary, or geosynchronous equatorial orbit (GEO), is a special kind of geosynchronous orbit; in order to be “stationary,” the orbit must have a constant latitude and longitude, therefore it should be circular and, as the name implies, be in the plane of the equator. See: Umair Hussaini, “Geosynchronous vs Geostationary Orbits – Types of Orbits (1/2),” Technobyte, August 18, 2019, https://www.technobyte.org/geosynchronous-geostationary-orbits-types-of-orbits/.

[2] Bill Eidson, “Navigating the Arctic’s Communications Challenges,” MITRE, July 2019, https://www.mitre.org/publications/project-stories/navigating-the-arctics-communications-challenges.

[3] “Telecommunications Infrastructure in the Arctic: A Circumpolar Assessment,” Task Force on Telecommunications Infrastructure in the Arctic (TFTIA) Report, The Arctic Council, 2017, 10, http://library.arcticportal.org/1947/1/2017-04-28-ACS_Telecoms_REPORT_WEB-2.pdf.

[4]“Broadband Providers By State,” Broadband Now, November 20, 2019, https://broadbandnow.com/search.

[5] “Internet Access in Alaska,” Broadband Now, October 16, 2019, https://broadbandnow.com/Alaska.

[6] “United States: Fixed Broadband SpeedtestData,” (Report), Speed Test, December 12, 2018, https://www.speedtest.net/reports/united-states/2018/#fixed.

[7] “Internet Access in Alaska,” October2019.

[8] John Gedmark, “Why We’re Excited AboutAlaska,” Medium, January 16, 2019, https://medium.com/@johngedmark/why-were-excited-about-alaska-5d815ae348ce.

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[9] “Digital Divide: Broadband Pricing by State, Zip Code, and Income Level,” Broadband Now, January 4, 2019, https://broadbandnow.com/research/digital-divide-broadband-pricing-state-zip-income-2019.

[10]“Internet Access in Alaska,” October 2019.

[11] Melodie Bowler, “Overregulating the Internet Would Stall Progress to Connect Alaska,” Alaska Policy Forum, August 12, 2019, https://alaskapolicyforum.org/2019/08/overregulating-the-internet-would-stall-progress-to-connect-alaska/.

[12] Liz Ruskin, “Rural Alaska Clinics Depend on Broadband Internet. What Happens When It Goes Out?” KTOO Public Media, September 12, 2019, https://www.ktoo.org/2019/09/12/rural-alaska-clinics-depend-on-broadband-internet-what-happens-when-it-goes-out/.

[13] Erin Winick, “Why the Future of SatelliteInternet Might be Decided in Rural Alaska,” MITTechnology Review, February 14, 2019, https://www.technologyreview.com/s/612949/why-the-future-of-satellite-internet-might-be-decided-in-rural-alaska/.

[14] Jeremy D. Singer, “Testing Satellite Communications Links on Top of the World,” MITRE, December 2016, https://www.mitre.org/publications/project-stories/testing-satellite-communications-links-on-top-of-the-world.

[15] Daniel Oberhaus, “SpaceX Is Banking onSatellite Internet. Maybe It Shouldn’t,” Wired,May 15, 2019, https://www.wired.com/story/spacex-starlink-satellite-internet/#.

[16] “Arctic Poses Communications Challenges,” European Space Agency, Accessed November 20, 2019, http://www.esa.int/Enabling_Support/Preparing_for_the_Future/Space_for_Earth/Arctic/Arctic_poses_communications_challenges.

[17] Caleb Henry, “Iridium Ends LegacySatellite Service, Switches all Traffic to Next Fleet,” SpaceNews, February 6, 2019, https://spacenews.com/iridium-ends-legacy-satellite-service-switches-all-traffic-to-next-fleet/.

[18] Doris Orman, “What’s Iridium NEXT?” Outfitter Satellite Phones blog, May 4, 2015, https://www.outfittersatellite.com/Whats-Iridium-NEXT_b_159.html.

[19] Oberhaus, 2019.

[20] William Graham, “Iridium NEXT-5satellites ride to orbit on SpaceX Falcon 9,” NASASpaceflight.com, March 29, 2018, https://www.nasaspaceflight.com/2018/03/iridium-next-5-satellites-spacex-falcon-9/.

[21] Doug Millard, “Iridium: Story of aCommunications Solution No One Listened To,” NewScientist, August 3, 2016, https://www.newscientist.com/article/mg23130850-700-iridium-story-of-a-communications-solution-no-one-listened-to/.

[22] Oberhaus, 2019.

[23] Caleb Henry, “Space Norway in FinalProcurement for Two Highly Elliptical Orbit Satellites,” SpaceNews, April 10, 2019, https://spacenews.com/space-norway-in-final-procurement-for-two-highly-elliptical-orbit-satellites/.

[24] “Russia Planning $1bn ArcticCommunication Satellites System,” RussiaBusiness Today, April 25, 2018, https://russiabusinesstoday.com/technology/russia-planning-1bn-arctic-communication-satellites-system/.

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[25] Andrey Kirillovich, “SatelliteConnectivity for Telecommunications Development in the Arctic Regions ofRussia,” (Presentation at the Arctic Council Senior Officials Meeting Sessionon Connectivity, Levi, Finland, March 23, 2018), https://oaarchive.arctic-council.org/bitstream/handle/11374/2163/SAOFI202_2018_LEVI_13-3_Presentation_Connectivity.pdf?sequence=13&isAllowed=y.

[26] Kirillovich, 10.

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[27] “Report: Improving Connectivity in the Arctic,” Task Force on Improved Connectivity in the Arctic (TFICA) Report, The Arctic Council, May 7, 2019, 45, https://research.uarctic.org/media/1599592/saoxfi205_2019_ruka_06_tfica_report-3rd-draft-6-may.pdf.

[28] TFICA Report, 46.