- WRC-23
Partial Revision of the 2019 Radio Regulations, as incorporated into the Final Acts of the World Radiocommunication Conference 2023
3.1The Partial Revision of the 2019 Radio Regulations, as incorporated into the Final Acts of the World Radiocommunication Conference 2023 was re-referred to the Committee on 29 July 2025.
Overview
3.2The proposed Partial Revision of the 2019 Radio Regulations, as incorporated into the Final Acts of the World Radiocommunication Conference 2023 (WRC-23), supports continued equitable, rational, and efficient use of the natural resources of the radiofrequency spectrum and satellite orbits. This revision responds to changing technologies and practices.
3.3The Radio Regulations set out mandatory technical, operational, and regulatory parameters alongside conditions of use for radiofrequency spectrum and satellite orbits by communications technologies. The Partial Revision of the Radio Regulations, adopted at the World Radiocommunication Conference 2023 (WRC-23), introduces key changes including the identification of upper 6 GHz spectrum for 5G/6G mobile services, enhanced allocations for maritime and aviation safety, and improved satellite broadband capabilities. It also updates regulatory frameworks for satellite coordination, introduces new provisions for space-based aviation communications, and strengthens protections for scientific services like Earth observation and space weather monitoring.
Background
3.4The Radio Regulations are a binding international treaty framework established under the International Telecommunication Union (ITU) to manage the equitable and efficient use of the radiofrequency spectrum and satellite orbits, which is essential for global communications infrastructure. These regulations are periodically revised at World Radiocommunication Conferences (WRCs) to reflect technological advancements and evolving communication needs.
3.5Australia, a longstanding ITU member state, signed the Final Acts of WRC-23 in December 2023 and intends to ratify the Partial Revision of the 2019 Radio Regulations, aligning its domestic spectrum management with international standards.
Justifications
3.6The Partial Revision reflects ongoing technological advancements and evolving industry practices in radiocommunication services. They ensure the continued rational and efficient use of the radiofrequency spectrum and satellite orbits, particularly the prevention of harmful interference to any ITU member state’s use of them. Australia supports regular multilateral updates to the international legal framework to maintain compatibility and prevent harmful interference across services.
3.7Benefits to Australia from the Partial Revision include:
- The identification of a specific part of the airwaves, called the upper 6 GHz band, for use by new mobile technologies like 5G and the future 6G, which will support faster and more reliable internet services.
- Increased availability of spectrum which will support maritime and aviation safety.
- The allocation of additional spectrum to support better weather forecasting and climate monitoring.
- Allocation of spectrum to support broadband satellite services, such as those used for in-flight Wi-Fi.
- The Partial Revision strengthens Australia’s cooperation with the international community by aligning its domestic spectrum management with globally agreed arrangements. The Partial Revision allows for flexibility with the three Radio Regulations regions (Region 1 Europe/Africa, Region 2 Americas and Region 3 Asia‑Pacific, including Australia) being able to adopt region-specific frequency arrangements that reflect local priorities and usage patterns.
Obligations
3.9The Radio Regulations obliges Australia to assign or change frequency assignments in a manner that avoids causing harmful interference to stations using radiofrequencies, in accordance with the Table of Frequency Allocations and other provisions of the Radio Regulations (Article 4.3). There is flexibility for Australia to make spectrum allocations and rules, provided they do not cause harmful interference to and claim protection from stations operating in accordance with the Radio Regulations (Article 4.4).
3.10The following provides an outline of the key changes arising from the WRC-23 revision of the Radio Regulations.
Fixed, mobile and broadcasting
3.11At WRC-23, the International Telecommunication Union considered a range of frequency bands for future mobile broadband services, including 5G and 6G, known as International Mobile Telecommunications (IMT).
3.12Of particular relevance to Australia were the 7025–7125 MHz and 6425–7025 MHz bands. In Region 1 (Europe/Africa), both bands were identified for IMT, while in Region 3 (Asia-Pacific, including Australia), only the upper 100 MHz (7025–7125 MHz) was identified. Some countries in Regions 2 and 3 also identified both bands for IMT through country-specific footnotes in the Table of Frequency Allocations. The conference recognised these bands are used for Wi-Fi, which supports global device compatibility and cost-effective equipment development.
3.13WRC-23 agreed to retain existing provisions for the 4.8–4.99 GHz band, allowing its continued use for IMT while maintaining protections for aviation and maritime communications (WRC Resolution 223). Although some countries had previously shown interest in formally identifying this band for IMT, many, including several African nations, chose not to do so. However, since the band is already allocated to mobile services on a primary basis, countries can still use it for IMT-like systems without additional regulatory constraints.
3.14Minor changes made to the Radio Regulations now require countries to provide additional technical data, such as modulation type, when notifying the ITU of new broadcasting stations in the medium frequency bands (Appendix 4). For Australia, this requirement is not expected to be burdensome, as the necessary data is readily available.
Satellite
3.15WRC-23 introduced several changes to the Radio Regulations that will affect satellite communications globally and in Australia.
3.16The Conference agreed to harmonise international rules for using Ku- and Ka-band frequencies for satellite communications with aircraft and ships in motion, including low earth orbit (LEO) satellite networks (WRC Resolution 121 and 123). These changes will improve in-flight connectivity and encourage more competition in satellite broadband services, such as those used for onboard Wi-Fi.
3.17New regulations were also agreed to allow Ka-band spectrum to be used for inter-satellite links, enabling data from LEO satellites to be relayed through satellites in higher orbits (WRC Resolution 679). This will support faster transmission of satellite imagery and could enable communications with crewed space stations via commercial satellite systems.
3.18The procedures for publishing, coordinating, and recording satellite frequency assignments were updated to improve transparency and efficiency (Articles 9 and 11). In particular, new rules for non-geostationary satellite constellations were introduced to ensure they meet deployment milestones and orbital tolerances, helping to prevent spectrum hoarding and ensure fair access for all ITU Member States. Planned bands were also revised to promote equitable access to satellite spectrum (Appendix 30B).
3.19A new resolution was agreed to address harmful interference affecting GPS and other radionavigation-satellite services, especially in areas near armed conflict zones (WRC Resolution 676). Administrations are encouraged to take steps to prevent such interference, including from national defence and amateur radio sources.
3.20WRC-23 agreed on arrangements to support High-Altitude Platform Stations (HAPS), such as long-endurance drones and balloons, as mobile base stations (WRC Resolution 213 and 221). These platforms could provide mobile coverage in remote and disaster-affected areas in Australia where traditional infrastructure is unavailable or damaged.
Maritime
3.21WRC-23 introduced measures that will enhance maritime safety and modernise global distress communication systems.
3.22The Conference agreed to modernise the Global Maritime Distress and Safety System (GMDSS), including the removal of outdated provisions and the identification of new frequencies for search and rescue transmitters and maritime safety broadcasts (Appendix 15). These changes will improve the reliability and effectiveness of emergency communications at sea.
3.23WRC-23 also considered a revised regulatory framework to support the potential recognition of the Chinese BeiDou Message Service System (BMDSS) as an additional satellite provider for GMDSS services (WRC Resolution 365). Recognition of BMDSS is subject to strict conditions, including the elimination of any reported interference and successful coordination with other systems before it can begin operations. These safeguards are designed to ensure that new satellite services do not disrupt existing maritime safety systems. The International Maritime Organization (IMO) and the International Mobile Satellite Organisation (IMSO) will assess the outcomes of WRC-23 before BMDSS can be formally recognised.
Aeronautical
3.24WRC-23 introduced a series of updates to the Radio Regulations that will improve aviation safety and support emerging aeronautical technologies.
3.25A new service, that will allow aircraft to communicate via satellite using the Very High Frequency (VHF) aviation band, particularly through low earth orbit satellites (LEOSats), will be introduced (WRC Resolution 406). This will enhance aviation safety in remote and oceanic areas by enabling pilots and air traffic controllers to maintain contact using existing aviation frequencies. The International Civil Aviation Organization (ICAO) will develop standards and recommended practices to support the rollout of space-based air traffic management using this spectrum.
3.26Flexibility has been retained for communications with sub-orbital vehicles, which operate at altitudes higher than conventional aircraft. These vehicles, used for scientific research and transport, will continue to access both space and terrestrial service frequencies.
3.27WRC-23 also confirmed that regulatory work will continue on the use of fixed-satellite service (FSS) networks for control and non-payload communications (CNPC) of unmanned aircraft systems (UAS) (WRC Resolution 155). CNPC links allow remote pilots to control UAS and relay critical information such as air traffic control communications. ICAO will develop standards and recommended practices for CNPC via FSS, which will inform future ITU regulatory decisions.
3.28The Conference agreed to accommodate new digital technologies in existing High Frequency (HF) bands allocated to the aeronautical mobile (route) service (Appendix 27). These changes will support improved aviation safety and enable non-safety applications such as surveillance, mapping, and data transfer, while ensuring protection for existing radionavigation services.
Science
3.29WRC-23 introduced a series of amendments to the Radio Regulations that will enhance scientific research and environmental monitoring through satellite services.
3.30The Conference agreed to allocate additional frequencies to the Earth exploration-satellite service (EESS), enabling improved remote sensing of the Earth’s subsurface by spaceborne sensors. These changes will enhance data collection on polar ice sheets and other climate indicators, supporting global efforts to monitor environmental change. The same frequency bands will also support wind profiler radars, of which Australia operates the largest known number globally.
3.31The space research service was upgraded from a secondary to a primary allocation in specific frequencies, recognising the importance of scientific data transmitted in the Ku band. This change will allow space research satellites to transmit data at higher speeds while maintaining protection for existing services.
3.32The passive earth exploration-satellite service (EESS (passive)) was granted a primary allocation in parts of the millimetre wave bands, supporting meteorological satellites in collecting advanced ice cloud measurements for improved weather forecasting and climate monitoring. Additional protections were also agreed to shield EESS (passive) from interference caused by non-geostationary fixed-satellite service (FSS) systems.
3.33The Conference agreed to recognise the importance of space weather observation in the Radio Regulations (WRC Resolution 675) as well as the operation of space weather sensors as part of the meteorological aids service (Article 29B). These provisions will help monitor solar flares, radiation, and geomagnetic storms, which can disrupt satellite communications, mobile networks, and navigation systems like GPS.
Other obligations with minimal impact for Australia
3.34WRC-23 introduced a small number of regulatory changes that are expected to have limited or no impact on Australia’s spectrum management or operations.
3.35The Conference agreed to extend existing power limits on IMT (mobile broadband) stations to protect EESS from interference (Article 21). These protections already applied in Region 3, which includes Australia, and have now been extended to Regions 1 and 2.
3.36WRC-23 endorsed the decision by the International Bureau of Weights and Measures (BIPM) to adopt Coordinated Universal Time (UTC) as the de-facto time standard by 2035 (Article 1 and WRC Resolution 655). This decision includes the cessation of leap seconds, which is supported by Australia’s National Measurement Institute due to the risk leap seconds pose to critical infrastructure reliant on precise timekeeping, such as navigation systems and financial markets.
3.37The Final Acts also include minor updates to previous WRC resolutions and footnotes, none of which are expected to materially affect Australia’s spectrum resources.
Consultation
3.38Australia undertook a four-year consultation process led by the Department of Infrastructure, Transport, Regional Development, Communications and the Arts (DITRDCA), with technical support from the Australian Communications and Media Authority (ACMA). This process included both in-person and online engagement with a wide range of stakeholders, such as mobile network operators, satellite and aerospace companies, broadcasters, equipment manufacturers, amateur radio groups, and government agencies including the Department of Defence.
3.39Stakeholders provided technical advice and feedback on draft briefs and contributed to Australia’s input at international meetings. Some also joined the Australian delegation at WRC-23. The consultation helped shape Australia’s negotiating positions, which were published and updated throughout the preparatory cycle. DITRDCA balanced commercial interests with national priorities when finalising positions.
3.40Australia’s positions were also tested and refined through participation in regional and international preparatory meetings, including six sessions of the Asia-Pacific Telecommunity Conference Preparatory Group for WRC-23 (APG-23), where Australia worked to influence regional outcomes.
Implementation and costs
3.41Australia’s responsibilities under the revised Radio Regulations will be managed by the ACMA, which acts as the notifying body to the ITU. These changes will be incorporated into Australia’s domestic framework through updates to the Australian Radiofrequency Spectrum Plan (ARSP), as required under section 30 of theRadiocommunications Act 1992.There are no direct costs identified for Commonwealth, State, or Territory governments resulting from the proposed treaty action.
Withdrawal
3.42Australia may withdraw from the Radio Regulations by denouncing both the ITU Constitution and Convention, which would also terminate its obligations under the Administrative Regulations. This would require formal notification to the ITU Secretary-General and would take effect one year after receipt of the notification, subject to Australia’s domestic treaty-making processes.
Future treaty action
3.43The next World Radiocommunication Conference will be held in 2027. It will consider further changes to the Radio Regulations, informed by technical studies conducted by experts, including Australian delegates, through ITU study groups between 2024 and 2027. Any resulting revisions would be subject to Australia’s agreement and domestic treaty-making requirements.
Issues
3.44The Treaty introduces new spectrum allocations for mobile broadband (IMT), particularly in the upper 6 GHz band, which supports 5G and future 6G technologies. However, only part of the band was identified for IMT in Region 3 (including Australia), which may limit harmonisation and equipment compatibility compared to other regions.While flexibility exists for countries to deploy IMT-like systems without formal identification, this could lead to inconsistencies in spectrum use and regulatory complexity. Minor changes to broadcasting station notifications are manageable but may require additional administrative effort.
3.45Satellite-related revisions aim to improve broadband services and inter-satellite communications, but the updated coordination procedures for non-GSO constellations introduce stricter compliance requirements. The new resolution addressing GPS interference highlights growing risks in conflict zones, requiring national authorities to take action, potentially raising defence and security sensitivities.
3.46Aeronautical and maritime provisions are expanded to support safety and connectivity, including satellite-based VHF communications and unmanned aircraft systems (UAS) control links. These developments are positive but depend on future standards from ICAO and ITU, which may delay implementation. The inclusion of suborbital vehicles and high-altitude platform stations (HAPS) reflects technological innovation, but regulatory clarity and operational coordination will be essential to avoid interference.
3.47Scientific services benefit from new allocations for Earth observation and space weather monitoring, but protections against interference from commercial services must be enforced. Finally, the adoption of Coordinated Universal Time (UTC) as the global standard is broadly supported but requires system updates to avoid disruption. Overall, while the Treaty supports technological progress, its implementation will require careful coordination, regulatory updates, and ongoing international engagement.
Conclusion
3.48The Committee recognises the importance of Australia’s participation in the revision of the Radio Regulations adopted at WRC-23, which supports national interests across telecommunications, satellite services, aviation, maritime safety, and scientific research. Ratifying the Final Acts will ensure Australia’s continued access to globally harmonised spectrum arrangements and emerging technologies such as 5G, 6G, and satellite broadband.
3.49Ratification will enable Australia to implement new allocations and protections for critical services, including aviation communications, unmanned aircraft systems, and Earth observation satellites. It will also support Australia’s regulatory flexibility in Region 3, while aligning with international standards and reducing the risk of harmful interference to essential services such as GPS and meteorological systems.
3.50The Committee notes that the revisions reflect Australia’s active engagement in shaping regional and global outcomes, including through the Asia-Pacific Telecommunity and multi-stakeholder consultations. No concerns were raised regarding the Treaty, and the Committee understands that it imposes no significant additional obligations or costs on Australia.
3.51The Committee concludes that ratifying the Treaty will strengthen Australia’s international cooperation in spectrum management, support innovation and connectivity, and ensure the continued development of spectrum-dependent services vital to Australia’s economic, scientific, and strategic interests.
3.52The Committee supports the Partial Revision of the 2019 Radio Regulations, as incorporated into the Final Acts of the World Radiocommunication Conference 2023 and recommends that binding treaty action be taken.