Background
Direct-to-device (D2D) describes connectivity between satellites and mobile handsets. The use of satellite connectivity as part of a mobile network can supplement a terrestrial operator’s network coverage. Providing this broader coverage layer can help mobile reach farther into sparsely populated or inaccessible locations. D2D infrastructure can also provide an added layer of network resilience: signals from satellites can still be received in the event of a terrestrial network outage, including support for emergency services where terrestrial networks fail. D2D can provide connectivity after natural disasters and digitally empower crisis-affected communities during humanitarian interventions.
Today, 58% of the world’s population is connected to mobile broadband. D2D can improve resilience and supplement services when users travel to areas with no connectivity, such as deserts, oceans, mountains or national parks. It can also help connect those who live outside a mobile broadband network – approximately 4% of the global population (the coverage gap).
However, policies on supplemental satellite services should go hand in hand with other policy reforms to connect the 38% of the global population that live in an area covered by a mobile network but who are still not connected (the usage gap). The usage gap is the result of a lack of affordability and digital literacy, among other factors. Regulation that addresses both issues can deliver the mobile industry’s vision of connecting everyone.
D2D can provide a valuable supplemental technology for the mobile industry, new business for the satellite and mobile sectors and improve resilience and extend access to services for end users. Governments should allow mobile operators to deploy D2D services in partnership with satellite operators.
D2D operations can use two spectrum categories: in frequency bands used by mobile services and in bands already allocated for mobile satellite service. Both types of D2D operations are available today. They both provide SOS and SMS capabilities, while D2D using mobile spectrum also offers data. Satellite’s strength lies in its ability to reach remote areas. It cannot provide the capacity that terrestrial mobile networks can deliver, but with the correct regulation, D2D can supplement terrestrial mobile coverage.
Regardless of the spectrum used, D2D’s largest obstacle is its technical limitations. The larger footprint of satellite beams compared to terrestrial cells limits the amount of data that can be delivered in any area. Free space pass loss is also significantly higher and these two factors impact network quality. Therefore, D2D use will be limited in densely populated areas and indoors.
Debate
D2D-capable satellite capacity is already online, and more bandwidth is expected soon. Governments see an immediate need for D2D but have no international guidelines until WRC-27. How can D2D be safely implemented in the short term?
Industry Position
D2D must protect mobile networks, which are used by 5.8 billion unique mobile subscribers. Any approach to introducing D2D should be based on regulatory and technical conditions that ensure coexistence with mobile terrestrial networks.
D2D operating in mobile spectrum bands provides a supplemental service to terrestrial networks and enables mobile operators to collaborate to extend coverage under commercial arrangements with satellite network operators. With the regulator’s permission, this should be done through the spectrum licence of the mobile operators.
Regulator interest in D2D is growing as its use in mobile spectrum has been trialled successfully around the world, and plans have been announced to launch more satellite capacity for D2D. WRC-27 will consider creating an international framework to facilitate the development of D2D services. Where regulators plan to introduce D2D services soon, they may need to define cautious national regulatory frameworks for D2D in mobile spectrum.
Where in-country regulations allow the operation of D2D using satellite spectrum, technical and regulatory provisions to address possible interference already exist in the ITU Radio Regulations. In this case, satellite service providers must meet all eligibility and any other legal requirements of national legislation. Some regulations may need to be updated (e.g. to include low-earth orbit satellite constellations), and “same services, same rules” regulations must always apply. When using mobile satellite spectrum, the licence holder will typically be an entity separate from the mobile operator (e.g. a specialised satellite network operator). The service would then operate under the technical requirements of the satellite spectrum licence.
As a result of this separate licensing regime, it may not be necessary for the satellite operator to enter a partnership with a local mobile provider. However, services may be easier for users to adopt if satellite operators have commercial partnerships with mobile operators at the wholesale level, rather than trying to compete with them in the retail market.
Resources
Spectrum for D2D Policy Position Paper, GSMA, 2025
The Limits of D2D, GSMA, 2026