Ofcom expands spectrum access for satellite connectivity on ships and aircraft

On 23 October 2026, Ofcom published its decision to extend the frequencies in which Earth Stations in Motion (ESIMs) on UK-registered ships and aircraft may transmit to satellites in the Ku and Ka bands. The decision largely confirms Ofcom’s June proposals and brings the UK framework more closely into line with international arrangements agreed through the ITU’s World Radiocommunication Conference in 2023 (WRC-23). The new frequencies are expected to become available from early 2027.

The changes are particularly significant for in-flight connectivity. Ofcom estimates that the decision will increase available aeronautical ESIM spectrum by more than 100% for geostationary (“GSO”) systems and more than 400% for non-geostationary (“NGSO”) systems. The increase for maritime ESIMs operating in UK waters is more modest (around 15%) because Ofcom has retained restrictions in parts of the Ka band to protect terrestrial services.

At a glance:

• Significant expansion for aviation: GSO aeronautical ESIMs will be able to use 12.75–13.25 GHz and, overall, the full 27.5–30 GHz Ka band; NGSO aeronautical ESIMs will be able to use 27.5–29.1 GHz and 29.5–30 GHz.
• A more limited expansion for maritime services close to the UK: wider bands may be authorised for international operation, but coastal separation requirements mean that not all of those frequencies can be used in UK territorial waters.
• Existing licences will need attention: Ofcom intends to vary existing Earth Station Network (“ESN”) licences, while existing Aircraft radio and Ship radio licensees wanting to use the additional spectrum will need to request updated licence terms.
• Technical protections remain important: Ofcom has retained power limits, coastal separation requirements and airport coordination obligations.

Further details regarding Ofcom’s decision and next steps are set out in this update.

1. What Ofcom has decided

ESIMs are satellite terminals installed on moving platforms such as aircraft and ships. They are increasingly important for passenger broadband, operational communications, crew connectivity and network resilience.

Ofcom has decided to open additional parts of the Ku and Ka spectrum bands for ESIMs on UK-registered aircraft and ships. Ofcom has largely adopted the international framework established through ITU Resolutions 121, 123 and 156 from WRC-23 and Resolution 169 from WRC-19, while catering for UK-specific requirements. The newly available frequencies differ depending on whether the terminal connects to a GSO or NGSO satellite.

Most notably, NGSO satellite terminals on aircraft were not previously authorised in the Ka band. The decision therefore significantly expands the spectrum available for low Earth orbit operators to provide onboard broadband services. GSO aeronautical ESIMs can now access 12.75–13.25 GHz as well as the full 27.5–30 GHz range, while NGSO aeronautical ESIMs can operate across 27.5–29.1 GHz and 29.5–30 GHz. NGSO access therefore remains excluded from 29.1–29.5 GHz and, for now, from 12.75–13.25 GHz.

The position for ships is more nuanced. The updated Ship radio licence will enable broader use internationally (subject to the applicable international rules and requirements of relevant coastal administrations). But the spectrum that can actually be used within UK territorial waters remains narrower. In particular, the ITU framework requires maritime ESIMs to remain 158 km from the coast in the 12.75–13.25 GHz Ku band and 70 km from the coast in certain Ka band frequencies unless the relevant coastal administration agrees otherwise.

Ofcom has waived the 70 km restriction for some Ka band frequencies where there are no terrestrial services to protect, but has retained it in other frequencies used – or potentially required – for terrestrial fixed services. As a result, operators should not assume that every frequency appearing in an updated Ship radio licence will be available as a vessel approaches UK waters or port.

2. Why this matters

Ofcom points to forecasts of around 10% annual growth in aviation and maritime connectivity, and to recent deals between satellite operators, airlines and cruise lines. The decision provides additional capacity for both NGSO and GSO services.

It also addresses competitive parity. Relevant equipment on visiting foreign-registered ships and aircraft may already operate in the UK under the applicable licence-exemption regime, subject to its conditions. Ofcom considers its decision reduces the risk of UK-registered operators being disadvantaged relative to foreign-registered craft and provides a more consistent framework for UK aircraft and ships operating internationally.

Ofcom chose the ITU framework over the CEPT decisions, which do not cover maritime use in the Ku band. This preference for international consistency echoes its recent proposals on GSO/NGSO spectrum sharing rules ahead of WRC-27, which sought to minimise fragmentation and the operational complexities it entails. Ofcom also relied on the Government’s Statement of Strategic Priorities, which emphasises the value of satellite communications, and on its statutory growth duty.

3. Ofcom has resisted calls for greater flexibility

The final decision illustrates the limits of Ofcom’s willingness to depart from the international coexistence framework.

During the consultation, stakeholders argued that Ofcom could make additional Ka band spectrum available to maritime ESIMs on a temporary basis and could relax certain power flux-density limits applicable to aeronautical ESIMs where there are currently no UK fixed links.

Ofcom rejected both proposals. For maritime services, it considered that temporarily opening spectrum whose longer-term balance between satellite and terrestrial use remains under review would create uncertainty. For aviation, Ofcom considered that retaining the ITU power limits remained necessary because aircraft could otherwise cause interference to terrestrial services in neighbouring countries as they approach the UK boundary.

4. Licensing and operational implications

Ofcom will implement the changes through its existing ESIM licensing framework.

Satellite operators providing terminal networks in the UK are required to hold an ESN licence. Ofcom is proposing to vary all existing ESN licences to include the new frequencies and associated conditions (including requiring compliance with the WRC resolutions). Existing ESN licensees have until 14 December 2026 to make representations on the proposed variations.

Existing Aircraft radio and Ship radio licensees will not automatically receive the expanded authorisations: once the new templates become available in early 2027, they will need to request a variation if they wish to use the additional spectrum. New licensees will receive the updated terms by default.

Ofcom has also retained its expectation that aircraft and ships using ESIMs in the UK do so in conjunction with a satellite operator holding an ESN licence, although it has chosen to express this as a licence note rather than a formal licence condition for the time being. 

5. What does the decision mean for the industry?

For airlines and aviation connectivity providers, the decision should materially increase available capacity and strengthen the ability to procure high-throughput and potentially multi-orbit connectivity. However, spectrum availability does not remove the need to manage applicable power limits and airport coordination requirements.

For shipping and maritime connectivity providers, the benefit is more route-dependent. Operators will need to distinguish between spectrum available on the high seas and spectrum that can be used close to individual coastlines. For the specified frequencies, the same ITU prior-agreement requirements apply when vessels approach other countries’ coastlines, so frequency plans and service commitments should take account of jurisdiction-by-jurisdiction restrictions.

For satellite operators and equipment suppliers, the decision reinforces the importance of dynamic frequency and power management. Updated Interface Requirements IR 2077 and IR 2093 will reflect the new authorisations, while coastal separation requirements and different GSO/NGSO permissions may need to be incorporated into network configuration, geofencing and operational controls.

There is also a wider competition point. FCS asked Ofcom to consider wholesale-access obligations and to undertake a broader review of competition in the satellite market. Ofcom concluded that a comprehensive market review would not be proportionate at this stage, given the market’s continuing dynamism and uncertainty, but said it would continue to monitor developments.

6. What happens next?

Ofcom expects the updated licensing arrangements to be available in early 2027. Operators planning new services or additional capacity should therefore map their intended aircraft or vessel operations against the precise frequencies and geographic restrictions now, identify any necessary licence variations or coordination requirements, and ensure that technical and commercial service assumptions reflect the spectrum that will actually be usable in each operating environment.

The framework is also likely to continue evolving. WRC-27 will consider ESIM access in Q/V bands, while further international work is expected on NGSO ESIM use in 12.75–13.25 GHz ahead of WRC-31. Ofcom has indicated that it intends to keep the UK framework aligned with relevant future ITU developments. Ofcom’s separate consultation on the UK's WRC-27 positions closes on 24 November 2026. With these upcoming developments, the coming months are an important window to engage with Ofcom.