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From satellite experiments to operational applications Canadian experiences and plans
Acta Astronautica Vol. 8, pp. 87-99 Pergamon Press Ltd., 1981. Printed in Great Britain
0094-5765/81/0101-0087/$02.00/0
From satellite experiments to operational applications: Canadian experiences and planst ANNA CASEY-STAHMER Government of Canada, Department of Communication, Space Program Planning, 300 Slater Street, Ottawa, Ontario, Canada
(Received 7 December 1979; in revised form 19 August 1980) Abstract--The paper outlines the public service experiments conducted in Canada with the Hermes and Anik-B satellites. It examines factors which will facilitate the transition from experiments to operational applications, including policy and institutional factors, the role of government, the carriers and the users.
Introduction THF. PAST 15 years have witnessed an impressive list of achievements in research and development of communications satellite technologies. In the non-Communist world alone, eleven experimental communications satellites have been launched successfully since 1966. These communications satellites were not only tested in regard to space technology performance, but were accompanied by experimental programs testing technical and scientific objectives. In addition, hundreds of experiments and demonstrations have explored the application of communications satellite technology to support health care delivery systems, the provision of educational opportunities, the socio-economic development of remote communities and government or business administration and management. The size of the experimental programs can be illustrated by the fact that in the joint Canadian-United States Hermes Communications Technology Satellite Project alone (NASA, 1979) a minimum of 77 satellite experiments were undertaken between 1976 and April 1979. Roughly half of these experiments and demonstrations were in the area of public service applications. The other half were technically oriented projects. In the Canadian Anik-B program 14 projects were approved in June 1978, half of these being public service projects. However, the era of experimental satellites has come to an end, and with it terminate the opportunities of the public services sectors for access, free-ofcharge, to a flexible communications satellite system. Major problems present themselves in introducing these experimental services into operational systems. First, the technologies commercially available at present are not as flexible as were those of the experimental satellite systems. Whereas the experimental communications systems were designed to respond to the specific requirements of the applications experiments, the operational systems are designed to satisfy a tPaper presented at the XXXth Congress of the International Astronautical Federation, Munich, F.R.G., 17-22 September 1979. 87
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much larger body of communications traffic, i.e. long distance telephony, national TV broadcast coverage, business and data services. Second, the use of the experimental satellites was free-of-charge. Most operational satellite systems are commercially operated and their use will have to be paid for. Third, the present structures and delivery systems of the public services sector are often not easily adaptable to the use of satellites. The efficient use of communications systems by the public services requires a rethinking within these sectors of their present method of providing their services to make optimum use of the advantages of the communications system. This paper will use the Canadian experimental and pilot projects (Table 1) as a basis for discussion exploring the institutional, policy and economic implications of making the transition to operational systems. It will outline a set of recommendations for future action, aimed at the use of operational commercial Table 1. Experimental satellites and application experiments LaLLnch
Satellite
Country
Date
ATS-I ATS-3
USA
1966 1967
Service Provided
Experiments de~nonstrating new appIications(interactive voice only) and providing experience in the applied use of satellites. Examples: i) University of the South Pacific-University Extension courses; 2) Alaska--telehealth care to remote villages; 3) PEACESAT--international conferencin~. ATS-6 USA 1974 Test feasibility of public service delivery and improving instructional broadcasting in developing and developed regions of the world. (video and voice) Examples: SITE-Project, continuing and in-school education, telemedicine. Symphonie I Germany/ 1974 Make available transponder capacity France for interested countries for educational television experiments, and II develop familiarity in the use of satellites for economic and social development. Terminals deployed in over 15 countries. Hermes/ Canada/ 1976 Test feasibility of public service apCTS USA plications and improvement of educational services, community development, administrative conferencin~. SIRIO Italy 1977 Test television transmissions and interactive video conferencin@. CS Japan 1977 Test satellite technology for emergency and disaster communication BS Japan 1978 Facilitate nationwide broadcasts of educational programs, i.e., University of the Air and public service broadcasting. OTS-2 European 1978 Test applications of direct television Space distribution, document transfer, ccmAgency munication with oil platforms, and newspaper transfer. Anik-B* Canada 1978 Test viability of public service applications on a pre-operational but continuing basis. *Anik-B is dual purpose satellite, owned and operated by Telesat Canada as part of the operational DOMSAT system. The Department of Communications has leased satellite capacity on Anik-B to facilitate transition from the Hermes experiments to operational a~lications.
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systems for public service applications. These recommendations, although based on the Canadian institutional environment, are of broader value. They are applicable to many other countries which are adopting communications satellite technology to expand their telecommunications and brodcasting networks in the interest of national and rural development. Communications satellites in Canada The Canadian Space Program has achieved a great deal in the past decade and a half not only in terms of space technology research and development, but also in terms of operating domestic communications satellite systems (DOMSAT). Communications satellite capacity Prior to the decision of the government in 1969 to emphasize applications of space research specifically in the communications satellite area, Canada had already gained significant experience in scientific research satellites through the development of the Alouette and ISIS programs. Anik-A-I, launched in 1972, was the first DOMSAT in synchronous orbit. Anik-A-II and A-III have since completed the availability of a national communications satellite system operating in the 6/4 GHz frequency band. Anik-B was launched in 1978 to provide back-up to the Anik-A series. Anik-B, in addition to providing services in the 6/4 GHz frequency, also carries six channels in the 14/12 GHz frequency ranges. These have been leased by the Department of Communications for pilot projects. The experimental Hermes satellite was launched in 1976 and has proven Canadian capability in designing, building and operating satellite systems. Hermes is a joint U.S.-Canadian venture. Hermes is a valuable step in the development of Canadian industrial capabilities in the space sector. Many of the technologies developed in the Hermes project are being applied in the Anik-B satellite as well as in the Anik-C series, scheduled for service in 1981. Anik-C will operate in the 14/12GHz frequency and will provide regional beams, covering the southern parts of the country. Particularly of note are the use of the 14/12 GHz frequency band, the use of light-weight extendable solar arrays, the 3 axis stabilization system as well as the development of ground terminals in the 12 and 14GHz bands. With these industrial technological advances Canadian industry was in a position to gain the prime contract to build the Anik-D satellite, scheduled for launch in 1982. Anik-D-1 will replace the 6/4 channel capacity on Anik-B which, by then, will be reaching the end of its service life. Institutional and policy issues The introduction of communications satellites into the existing communications environment has not been an easy task. The use of satellite communications to link a large country like Canada, with dispersed and isolated settlements and often adverse terrain, was not seriously questioned. Opposition and differences focused in the past--and still do today--on the institutional and policy context within which the new technology was introduced. The overall objective was to maintain a viable carrier operated telecommunications system,
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to ensure that all Canadians have access to modern telecommunications services at affordable costs, as well as to create and maintain a space systems manufacturing industry which can satisfy the market requirements. A 1968 government White Paper set the foundation for the creation in 1969 of Telesat Canada. Telesat's share capital was to be divided between the government, the carriers and the public. Telesat would own and operate the complete system, comprised of the space and ground segment. The carriers, the Trans Canada Telephone System (TCTS) and Canadian National-Canadian Pacific (CNCP) had earlier proposed a carrier owned system which would "operate in conjunction with radio relay and other terrestrial facilities to meet present and foreseeable Canadian domestic telecommunications needs". (Dohoo, 1979). The carriers became somewhat reluctant partners in the Telesat venture. The Telesat system achieved its major service goal, i.e. to provide telephone, radio and television services to the Canadian North and the remote areas. Use of the system in the southern parts of the country and use of the system in rural areas was limited. However, a viable satellite system in Canada was not possible without its use in the South by the carriers for telephone services. Only with Telesat's membership in 1977 in the TCTS, did the carriers achieve the degree of involvement and of control of the system which satisfied them to cooperate more fully in its use and development. They have undertaken to make extensive use of Anik-C in the South. The issue of competition vs complementarity between the satellite system and terrestrial facilities has been a central theme of Canadian communications policy since the White Paper. Government policy makers (Chapman, 1979) are of the opinion that the Canadian market is too small for healthy competition between providers of satellite services and terrestrial carriers. Government critics (Melody, 1979) argue that competition could be healthy. Their arguments focus particularly on Telesat's pricing policy, which asks for rate increases on the basis of substantial unused capacity. They suggest that prices should be reduced to attract more business. Critics also argue that Telesat ownership of all earth stations prevents effective marketing of satellite services to non-traditional communications users and with it prevents increased satellite utilization, which would bring down the costs. Further, Telesat's policy of marketing only full transponders is seen as another obstacle to the increased use of satellite capacity. Full transponders on a continuing basis will only be required by large users such as the TCTS or the Canadian Broadcasting Corporation. Users with more limited requirements have to lease their services from TCTS, whose rates do not necessarily reflect the characteristics or etticiencies of satellite services. Over the past year many actions have been taken or are under study which will alter the use of satellite communication in Canada. In agreeing to Telesat's membership in the TCTS, the government has assessed and acted upon several of the past criticisms, including a liberalization of the earth section ownership, which allows user ownership of receive only earth stations as well as carrier ownership of transmit earth stations in the 14/12 GHz frequency bands. Also, Telesat is reviewing its pricing policy, including the requirements for the leasing of full transponders.
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In most of the on-going activities and discussions, the special requirements of the public service sectors are largely absent. The present decisions, shaping the future of satellite communications in Canada are being made by the established sectors without a strong voice of those innovative users who participated in the social applications projects of the experimental satellite programs. This does not mean that the decisions are necessarily detrimental to the transition from experiments to operational systems. The chances exist, however, that this may be. The reason for the absence of a strong input from this sector is largely based on the fact that there is no single voice speaking for them. Furthermore, the users have been so busy in testing and trying the application of satellites to their programs that they have not been able to concern themselves with the more mundane world of satellite policies and regulations. Also, the experimental users are in general not technically sophisticated enough to be able to analyze the systems, plans and policies for Anik-C and Anik-D or to assess their adequacy for public service applications. The main obstacle, however, to the integration of the public services requirements into the communications satellite systems is a lack of needs analysis and projections of requirements by the sector. The lack of a single body which could analyze the requirements and represent the sector is making itself felt.
The experimental programs In the past six years a large number of individuals and institutions in health care, education, community development, administration, etc. became involved with experimental communications satellites. Participants and participating organizations include hospitals, physicians, and nurses, university professors and administrators, government planners and managers as well as native peoples and private interest groups. Physical distances, adverse terrain or unpredictable weather conditions are the common denominators for this varied group to participate in the program. Generally, the participants are innovative, forward looking and lured by the promise that space technology may offer a solution to their unique problems. They obtained free satellite time, free access to ground stations and the use of a communications system which is very flexible and advanced. Further, they often can obtain funding to test their innovative programs from sources which would not be available for operational programs. The primary government agencies or ministries sponsoring experimental satellite applications programs in Canada and worldwide are Space Research and Development organizations whose objectives are technological research. By making their advanced technologies and systems available to the public service sectors these programs contributed a great deal of knowledge about the utility of communications systems in improving methods of service delivery. The inclusion of social objectives in technological research and development programs also has aided the technological sector in successfully competing for government funds and resources. In the following pages two Canadian satellite applications programs will be
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described. A discussion of major issues affecting the transition from experiments to commercial systems will follow.
The Hermes communications technology satellite project In the Canadian Hermes project 41 experiments and a minimum of 35 demonstrations were conducted since 1976 (Table 2). A main purpose of the Hermes program was to establish the feasibility and utility of using satellite communications in support of public services, as well as to act as a catalyst for the interest of non-participating agencies and individuals. Both purposes were achieved. However, early in the experimental program it was also recognized that the transition from experimental to operational system would require more than demonstrations of feasibility and utility. Underlying complex institutional and policy issues would have to be sorted out, both in the areas of communication as well as of applications, e.g. health, education. The Hermes program taught the following lessons: • A pre-operational program or pilot project is necessary to give public
Table 2. Main Hermes satellite experiments Subject Area
Groups Involved
Description
Tele-education
Public Service Commission
Staff training and development Multi-purpose network for teaching, scientific exchanges, administration Summer academy and conferencin@ Non-formal and continuin@ education Curriculu~n exchange
University of Quebec
Ontario Education Communications Authority British Columbia Distance Education Group Carleton University/ Stanford University University of Montreal Tele-medicine
University of Western Ontario Memorial University of Newfoundland
Administration
Government of Ontario
Community Development
Regina University, Sasketchewan Alberta Native communications Authority Tagra~uit Nipingat (Eskimo Association of Northern Quebec)
Broadcasting
Wa Wa Ta (Indian Coramthnications Society of Northern Ontario) Canadian Broadcasting Corporation
Continuing Nursing Education Medical consultation: in-service training, administration Continuing medical and nursing education, medical consultation Teleconferencing for government administration Exchanges between franeophone communities Broadcasting and teleconferencing among Native Indian ~eo~le Teleconferencing and radio program exchanges among Eskimo communities Radio program exchanges among Indian cor~aunities Special events breadcasting to small TV receive earth stations in urban environments
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service program planners the opportunity to test in long-term projects the implications of telecommunications based service delivery systems. • The economics of telecommunications systems and particularly satellite systems require coordination and communications systems sharing among a variety of public service users and commercial systems. Sharing could take the form of bulk rental of satellite capacity or joint use of earth stations. Sharing of systems facilities is not only economical, but also logical since no single sector, i.e. health, agriculture, requires 24 hr system availability. • The common carrier should be part of the project development. Many of the public service requirements, i.e. telephone conferencing could be served with the commercial telecommunications system. More information exchange between educators, health care planners, etc. and telecommunications managers will be of mutual benefit. • Health care and educational planners need to review their own delivery systems and goals in view of the economic and technical implications of a satellite system. Satellite communication will not yield major economic advantages, if it is used as a mere back-up to existing small scale, relatively localized activities.
The Anik-B pilot project program In order to bring the Hermes experiments a step closer to the operational system, the government has leased from Telesat capacity on the Anik-B satellite. The following selection guidelines summarize the basis for the Anik-B applications program, which is essentially of pre-operational nature. • Institutional issues: the user agency should have an identified mandate to provide the service on a larger than local scale; the user agency should have the basic institutional structure to implement the project; and resources (financial, technical and human) should be available, or easily obtained: • Needs: in-depth needs assessment of the types of services to be provided. The specification and development of the technical system should be based on the needs assessment. • Economics: pilot projects should be developed with the view that technical operational costs do not consume the major portion of the overall program costs. Mechanisms for joint use of ground stations by several user agencies should be developed. • Policy development: the premise that the Anik-B program provides a bridge between experimental and operational services establishes the requirements for policy analysis to identify mechanisms and structures within which social services can be provided operationally at reasonable costs via satellite. Following these guidelines the Department of Communications, with assistance from specialist groups in education, health care and native affairs, selected pilot projects for the Anik-B program (Table 3). These projects will be carried out over the next 2-5 yr. One significant advance made in the Anik-B program is reflected in the fact that all experiments are sponsored or have attracted significant program funding from agencies and institutions which have respon-
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Table 3. Anik-B pilot projects (1978) Subject Area
Tele-education
Group Involved
British Columbia (BC) Ministry of Education
Ontario Educational Communications Authority (OECA) Ministry of Education of Quebec Tele-health
Universit6 de Montreal
Memorial University of Newfoundland
TV Program Distribution
Participating groups, trial services, locations etc. being developed
Co~mmunity Communications
Alberta Native Communications Society, provincial universities and other agencies Inuit Tapirisat of Canada (National Eskimo Brotherhood)
Taqramuit Nipingat Inc. (Northern Quebec Inuit Association)
Description of Trial Services
An interactive educational satellite communications network to link a central studio in Vancouver with six cc~mmunities, for the purpose of improving access to academic, technical, vocational, adult education programs. Emphasis on community college involv~ent. Extension of a video network to refine delivery of educational programming to remote Ontario communities. Delivery of educational material to both native and non-native people in remote regions of Northern Quebec. Audio and visual teleconferencing involving both the health care and education fields in extension of services from central points to remote re~ions. Continuation of a program thrust begun with Hermes in the provision of interactive satellite communications between a health education center and various remote c cm~nunities in Newfoundland and Labrador for educational health programs, upgrading of professionals, etc. Demonstrations of semi-direct satellite broadcasting, using the Anik-B satellite, to stimulate Canadian manufacturers to develop a domestic production capability in satellite earth stations for individual reception. A programming center is connected via one-way TV with several remote communities for educational and community services. Teleconferencing via twoway voice. Service for native and non-native ~eo~le. Interactive communications and teleconferencing links to meet the special needs of Inuit communities. Native people themselves to determine content and to ~roduce ~ro~rams. Project to establish a video and telephony network linking four Inuit communities in Northern Quebec.
sibility over the financial and policy matters of continued operational services. The carriers are not as much involved as is desirable. Discussion
Technical scenarios of public service requirements The Hermes experiments and Anik-B pilot projects can be used to project technical systems scenarios and requirements which hopefully the Anik-C and Anik-D commercial systems will be able to satisfy without causing major financial strains on the public service user community. First priority requirements exist for good quality interactive audio teleconferencing systems. This requirement is evident in the health, education,
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administration as well as community development sectors. It stems from the difficulties, costs and delays in travel which are particularly pressing in remote and rural areas. Geographically, these requirements roughly conform to the boundaries of the provinces, with the main administrative and service communities as the points to be linked. In the Northern parts of the provinces and in the two northern Territories of the country, teleconferencing requirements are to link the health centers of the different health care zones to the regional hospitals and from there to tertiary care institutions in the South. For administrative, or native affairs and community development the points to be linked would more or less encompass several of the health care zones, according to the areas of responsibility of the different major organizations. Although most northern communities are likely to be served by Anik-A or Anik-D, the linkage of these communities into effective teleconferencing systems may still be difficult, since not all locations will necessarily link into the same satellite or the same transponders, thus requiring double hop. Further, present billing procedures require all calls to go through a southern central switch before being routed to the destination. For northern teleconferencing it would be desirable if flat fees could be paid to avoid the southern central switch. In addition, the fact that Anik-C and -D will operate on different frequencies will create technical complexities if sites in the South are to be included in the conferencing networks. The link between the northern network and the South is necessary for such tasks as medical consultation or special training courses, for which expert resources can only be found in the South. TV broadcasting requirements include regional uplink and reception capabilities in the provinces as well in the North. For southern Canada coverage, Anik-C down-link antenna converage is divided into four regions. Onboard switching also allows serving of all beams simultaneously. Thus the system appears flexible enough to satisfy educational broadcasters whose requirements in Canada are largely of regional nature (Daniel and Robin, 1977). The interconnection of satellite with cable seems to be a requirement in the South for educational users in order to reach house bound learners with continuing education or training programs. This capability is likely to exist with Anik-C. Again, in regard to the North and the northern parts of the provinces, the technical possibilities look less encouraging, particularly where programming is desirable that is of interest to northern people. Even the extension of the Anik-C regional beams to the North would not be satisfactory. The experiences gained in the Hermes program and projects planned for Anik-B indicate a requirement for beams that unite people of related cultural interests, particularly the native people. To fulfill this requirement beams for regional coverage of the North would be necessary. A particular requirement are northern uplink capabilities to provide the opportunity to mix national TV feed with regional northern feed for balanced programming, including in-school programs as well as cultural and political affairs programming. Facilitating the transition
At this time it appears that the main thrust of government funding for
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experimental communications satellites is over. The technology research and development now has to prove itself in applications in operational satellite systems. For the public services sector this means that access no longer exists to free experimental satellite time or earth stations. In Canada it is anticipated that "a host of new social services, telemedicine, tele-education, community interaction and direct-to-home television (will come) into being, eventually on a commercial basis" (Chapman, 1979). As previously mentioned, with Anik-C, technology pioneered with Hermes will find its first commercial application. But, as we have seen, institutional changes and new policies were necessary to encourage extensive use of Anik-C by the carriers. It cannot be expected that the public (or social) services sector will be able to make the transition from an experimental to an operational status without preceding institutional and policy developments. The role of government. In Canada, the conditions to accomplish this transition are favored by the fact that the space research and development activities, i.e. the Hermes and Anik-B programs, are part of the Ministry of Communications, which has the mandate to develop and implement national communications policies. Therefore, the communications policy makers were informed of or participated in various ways in the development and assessment of the experimental applications programs. It is to them that many of the participants of the Hermes and Anik-B applications projects will look for guidance. Several analyses are underway to identify the requirements these sectors may have, the obstacles being faced in using the commercial system as well as the role the federal government should play to facilitate transition (Perusse and Stolovitch, 1979; Daniel and Robin, 1977). Federal government analysis should particularly explore issues of rates, access to satellite channels by public service users and availability of appropriate satellite coverage. The role of the telecommunications industry. Among the carriers and Telesat, the requirements of the public service sectors do not figure in systems planning. Primary, not to say exclusive, concern is with the requirements of the established carriers, the broadcasters and the new ventures in cable-satellite networks. Government policies can assist the cause of the public service sectors, for example, by stipulating that one satellite channel must be made available for educational broadcasting. However, without a more innovative marketing policy, particularly on the part of Telesat, not much will be accomplished. Telesat could, for example, take a cue from Intelsat's approach to marketing unused satellite capacity on a pre-emptible basis, leased at a lower cost. Many public service users would be interested. The role of the users. The main burden is on the public service users themselves. They must gear themselves up to quantify the potential market they represent, they must analyze their communications requirements and specify in broad strokes the kinds of systems they require. The Hermes and Anik-B programs have given and are giving valuable background upon which such future projections can be based. A prime need at present is for the public services sector to jointly analyze their requirements and speak with one voice, not as small separate entities. In the U.S., the Public Service Satellite Consortium
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(PSSC) represents such an attempt. It is of interest that PSSC started with government funding and still today relies heavily on government contracts for operations. In Canada, a small group, the Forum of Canadian Users of Satellites (FOCUS) represents the public service community. The objectives of FOCUS (Bowers, 1979) are: "to exchange information on applications of satellites; to encourage experimentation and participation in the development of satellite applications; to provide a forum for the discussion of telecommunications in Canada". It would be in the interest of all people concerned, if FOCUS, or a similar organization, were given funding from governments, the carriers and Telesat to undertake the necessary systems studies and policy analysis as well as to continue its information dissemination activities. FOCUS' role could develop into that of a network manager or broker between the end users and Telesat. It could provide input into government policy development, e.g. regarding rate structures on behalf of the public service users, it could assist the carriers' and Telesat's communications systems planning. It could also provide much needed technical assistance to user organizations in planning, implementing, operating and evaluating satellite projects and programs. With the transfer of responsibility for public satellite applications to the commercial sector at the time of the Anik-C program, this function, presently carried out by a team in the space program, would also logically be transferred outside government. Lastly, FOCUS could on behalf of its members, negotiate for access and rates with the commercial satellite system; it could facilitate bulk rental of satellite capacity; design appropriate systems; purchase earth stations on behalf of its members and develop and implement cost effective systems, e.g. by promoting sharing of facilities. Without such central technical assistance, individual users would have to duplicate expensive technical and planning resources, diverting their attention from their chief concern, i.e. to provide a public service. The task of the public service users wishing to analyze the utility of satellite communications for their purposes is difficult enough. The difficulty stems largely from the fact that in most areas there already exist different methods of delivering a health service or providing an educational opportunity. However inadequate, expensive or cumbersome existing methods are, they have been proven. The introduction of satellite communications will require an analysis and re-orientation of the existing delivery systems. For example, even the most appropriate telemedicine system will be resource inefficient, if physicians, specialists, nurses, patients as well as medical documentation travel back and forth as before. In the education area the present proliferation and duplication of course offerings by a multitude of institutions is also not conducive to the efficient use of satellite communications. As an example, in one province three institutions may provide continuing education for nurses. Communication satellite systems will only be efficiently used if the three institutions arrive at a compromise for sharing the teaching load and students to arrive at an acceptable cost per learner. This could be done in a consortium arrangement of educational institutions, as is being developed in the province of British Columbia for various areas of continuing and adult education (Province of British Columbia, 1980).
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Experience to date of successful transitions. Today only very few success stories (Clearinghouse, 1979) exist of experiments that have made the transition to a commercial satellite system. In all, the sponsoring organization undertook a thorough analysis of the costs involved, of the number of participants/learners required to arrive at a reasonable cost per participant. They expanded the size of the experimental project considerably to aggregate a sufficiently large interested clientele group. They also share program production responsibility among various organizations. Also, they are benefiting largely from piggybacking onto the communications systems developed by established carriers and broadcasters. Unfortunately for the Canadian users, these projects are all in the U.S. However, in Canada, the present Anik-B program allows users, the government, Telesat and the carriers to gather further experience and information to ready themselves for the step to the commercial system. Conclusions The success of the Hermes and Anik-B applications programs will ultimately be measured by the degree of effect they had on making the DOMSAT system responsive to the needs of the public services sector. The Hermes and Anik-B programs will have achieved their objectives of providing a necessary test ground, even though the public services sectors may decline to use the DOMSAT system as part of their delivery system because other methods are considered as more effective, e.g. face-to-face meetings. However, if the users wish to continue the use of communications satellites, but are prevented from it by institutional barriers or by the fact that the services are out of reach for their budgets, then the programs have not achieved their goals. The question then is: was it a wise investment to expand millions of dollars in program development, communications systems procurement, project coordination and evaluation of the applications programs using the experimental satellites? Or, would it have been better to spend the money on application programs with the commercial system? The best indications are that the investments were wise and that the next few years will see commercial satellites being used for innovative public service applications for which the basis was developed in the experimental programs. Joint efforts of all sectors concerned will bring about this transition in an orderly fashion. It appears that the carriers and Telesat are still reluctant to believe that the public service sector can represent a real market. An infusion of innovative marketing ideas into their thinking could best be achieved by an infusion of entrepreneurship into the public services sectors. Both sectors would benefit. References Bowers P. (1979) Letter announcing the establishment of the Forum of Canadian Users of Satellites, Toronto. Chapman J. (1979) Why satellite communications in Canada? In Search, Department of Communication, Ottawa. Clearinghouse on Development Communication (1979) Satellite Applications for Public Services, Project Summaries, Washington. Daniel L and Robin M. (1977) Enqu~te sur les Besoins; L'Utilisation de Syst~me de Satellite en
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Education au Canada, 3 Volumes, contract number OSU 76-00136, Department of Communication, Ottawa. Dohoo R. (1979) Canada's satellite policies and how they grew. In Search, Department of Communication, Ottawa. Melody W. (1979) Are satellites the pyramids of the 20th century. In Search, Department of Communication, Ottawa. NASA-Lewis (1979) Report of the 22nd U.S. CTS Users Meeting, Denver, Colorado. Telesat Canada (1979) A Technical Description of the Canadian Domestic Satellite Communication System, Ottawa. P6russe P. and Stolovitch H. (1979) A Study of Economic, Policy and Institutional Issues Influencing the Use of Satellite Based Telecommunication Facilities for Public Services, Contract Number OSU 78-00218, Department of Communication, Ottawa. Province of British Columbia, (1980) Knowledge Network of the West Communication Authority Established, News Release, Ministry of Universities, Science and Communication, Vancouver.
0094-5765/81/0101-0087/$02.00/0
From satellite experiments to operational applications: Canadian experiences and planst ANNA CASEY-STAHMER Government of Canada, Department of Communication, Space Program Planning, 300 Slater Street, Ottawa, Ontario, Canada
(Received 7 December 1979; in revised form 19 August 1980) Abstract--The paper outlines the public service experiments conducted in Canada with the Hermes and Anik-B satellites. It examines factors which will facilitate the transition from experiments to operational applications, including policy and institutional factors, the role of government, the carriers and the users.
Introduction THF. PAST 15 years have witnessed an impressive list of achievements in research and development of communications satellite technologies. In the non-Communist world alone, eleven experimental communications satellites have been launched successfully since 1966. These communications satellites were not only tested in regard to space technology performance, but were accompanied by experimental programs testing technical and scientific objectives. In addition, hundreds of experiments and demonstrations have explored the application of communications satellite technology to support health care delivery systems, the provision of educational opportunities, the socio-economic development of remote communities and government or business administration and management. The size of the experimental programs can be illustrated by the fact that in the joint Canadian-United States Hermes Communications Technology Satellite Project alone (NASA, 1979) a minimum of 77 satellite experiments were undertaken between 1976 and April 1979. Roughly half of these experiments and demonstrations were in the area of public service applications. The other half were technically oriented projects. In the Canadian Anik-B program 14 projects were approved in June 1978, half of these being public service projects. However, the era of experimental satellites has come to an end, and with it terminate the opportunities of the public services sectors for access, free-ofcharge, to a flexible communications satellite system. Major problems present themselves in introducing these experimental services into operational systems. First, the technologies commercially available at present are not as flexible as were those of the experimental satellite systems. Whereas the experimental communications systems were designed to respond to the specific requirements of the applications experiments, the operational systems are designed to satisfy a tPaper presented at the XXXth Congress of the International Astronautical Federation, Munich, F.R.G., 17-22 September 1979. 87
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much larger body of communications traffic, i.e. long distance telephony, national TV broadcast coverage, business and data services. Second, the use of the experimental satellites was free-of-charge. Most operational satellite systems are commercially operated and their use will have to be paid for. Third, the present structures and delivery systems of the public services sector are often not easily adaptable to the use of satellites. The efficient use of communications systems by the public services requires a rethinking within these sectors of their present method of providing their services to make optimum use of the advantages of the communications system. This paper will use the Canadian experimental and pilot projects (Table 1) as a basis for discussion exploring the institutional, policy and economic implications of making the transition to operational systems. It will outline a set of recommendations for future action, aimed at the use of operational commercial Table 1. Experimental satellites and application experiments LaLLnch
Satellite
Country
Date
ATS-I ATS-3
USA
1966 1967
Service Provided
Experiments de~nonstrating new appIications(interactive voice only) and providing experience in the applied use of satellites. Examples: i) University of the South Pacific-University Extension courses; 2) Alaska--telehealth care to remote villages; 3) PEACESAT--international conferencin~. ATS-6 USA 1974 Test feasibility of public service delivery and improving instructional broadcasting in developing and developed regions of the world. (video and voice) Examples: SITE-Project, continuing and in-school education, telemedicine. Symphonie I Germany/ 1974 Make available transponder capacity France for interested countries for educational television experiments, and II develop familiarity in the use of satellites for economic and social development. Terminals deployed in over 15 countries. Hermes/ Canada/ 1976 Test feasibility of public service apCTS USA plications and improvement of educational services, community development, administrative conferencin~. SIRIO Italy 1977 Test television transmissions and interactive video conferencin@. CS Japan 1977 Test satellite technology for emergency and disaster communication BS Japan 1978 Facilitate nationwide broadcasts of educational programs, i.e., University of the Air and public service broadcasting. OTS-2 European 1978 Test applications of direct television Space distribution, document transfer, ccmAgency munication with oil platforms, and newspaper transfer. Anik-B* Canada 1978 Test viability of public service applications on a pre-operational but continuing basis. *Anik-B is dual purpose satellite, owned and operated by Telesat Canada as part of the operational DOMSAT system. The Department of Communications has leased satellite capacity on Anik-B to facilitate transition from the Hermes experiments to operational a~lications.
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systems for public service applications. These recommendations, although based on the Canadian institutional environment, are of broader value. They are applicable to many other countries which are adopting communications satellite technology to expand their telecommunications and brodcasting networks in the interest of national and rural development. Communications satellites in Canada The Canadian Space Program has achieved a great deal in the past decade and a half not only in terms of space technology research and development, but also in terms of operating domestic communications satellite systems (DOMSAT). Communications satellite capacity Prior to the decision of the government in 1969 to emphasize applications of space research specifically in the communications satellite area, Canada had already gained significant experience in scientific research satellites through the development of the Alouette and ISIS programs. Anik-A-I, launched in 1972, was the first DOMSAT in synchronous orbit. Anik-A-II and A-III have since completed the availability of a national communications satellite system operating in the 6/4 GHz frequency band. Anik-B was launched in 1978 to provide back-up to the Anik-A series. Anik-B, in addition to providing services in the 6/4 GHz frequency, also carries six channels in the 14/12 GHz frequency ranges. These have been leased by the Department of Communications for pilot projects. The experimental Hermes satellite was launched in 1976 and has proven Canadian capability in designing, building and operating satellite systems. Hermes is a joint U.S.-Canadian venture. Hermes is a valuable step in the development of Canadian industrial capabilities in the space sector. Many of the technologies developed in the Hermes project are being applied in the Anik-B satellite as well as in the Anik-C series, scheduled for service in 1981. Anik-C will operate in the 14/12GHz frequency and will provide regional beams, covering the southern parts of the country. Particularly of note are the use of the 14/12 GHz frequency band, the use of light-weight extendable solar arrays, the 3 axis stabilization system as well as the development of ground terminals in the 12 and 14GHz bands. With these industrial technological advances Canadian industry was in a position to gain the prime contract to build the Anik-D satellite, scheduled for launch in 1982. Anik-D-1 will replace the 6/4 channel capacity on Anik-B which, by then, will be reaching the end of its service life. Institutional and policy issues The introduction of communications satellites into the existing communications environment has not been an easy task. The use of satellite communications to link a large country like Canada, with dispersed and isolated settlements and often adverse terrain, was not seriously questioned. Opposition and differences focused in the past--and still do today--on the institutional and policy context within which the new technology was introduced. The overall objective was to maintain a viable carrier operated telecommunications system,
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to ensure that all Canadians have access to modern telecommunications services at affordable costs, as well as to create and maintain a space systems manufacturing industry which can satisfy the market requirements. A 1968 government White Paper set the foundation for the creation in 1969 of Telesat Canada. Telesat's share capital was to be divided between the government, the carriers and the public. Telesat would own and operate the complete system, comprised of the space and ground segment. The carriers, the Trans Canada Telephone System (TCTS) and Canadian National-Canadian Pacific (CNCP) had earlier proposed a carrier owned system which would "operate in conjunction with radio relay and other terrestrial facilities to meet present and foreseeable Canadian domestic telecommunications needs". (Dohoo, 1979). The carriers became somewhat reluctant partners in the Telesat venture. The Telesat system achieved its major service goal, i.e. to provide telephone, radio and television services to the Canadian North and the remote areas. Use of the system in the southern parts of the country and use of the system in rural areas was limited. However, a viable satellite system in Canada was not possible without its use in the South by the carriers for telephone services. Only with Telesat's membership in 1977 in the TCTS, did the carriers achieve the degree of involvement and of control of the system which satisfied them to cooperate more fully in its use and development. They have undertaken to make extensive use of Anik-C in the South. The issue of competition vs complementarity between the satellite system and terrestrial facilities has been a central theme of Canadian communications policy since the White Paper. Government policy makers (Chapman, 1979) are of the opinion that the Canadian market is too small for healthy competition between providers of satellite services and terrestrial carriers. Government critics (Melody, 1979) argue that competition could be healthy. Their arguments focus particularly on Telesat's pricing policy, which asks for rate increases on the basis of substantial unused capacity. They suggest that prices should be reduced to attract more business. Critics also argue that Telesat ownership of all earth stations prevents effective marketing of satellite services to non-traditional communications users and with it prevents increased satellite utilization, which would bring down the costs. Further, Telesat's policy of marketing only full transponders is seen as another obstacle to the increased use of satellite capacity. Full transponders on a continuing basis will only be required by large users such as the TCTS or the Canadian Broadcasting Corporation. Users with more limited requirements have to lease their services from TCTS, whose rates do not necessarily reflect the characteristics or etticiencies of satellite services. Over the past year many actions have been taken or are under study which will alter the use of satellite communication in Canada. In agreeing to Telesat's membership in the TCTS, the government has assessed and acted upon several of the past criticisms, including a liberalization of the earth section ownership, which allows user ownership of receive only earth stations as well as carrier ownership of transmit earth stations in the 14/12 GHz frequency bands. Also, Telesat is reviewing its pricing policy, including the requirements for the leasing of full transponders.
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In most of the on-going activities and discussions, the special requirements of the public service sectors are largely absent. The present decisions, shaping the future of satellite communications in Canada are being made by the established sectors without a strong voice of those innovative users who participated in the social applications projects of the experimental satellite programs. This does not mean that the decisions are necessarily detrimental to the transition from experiments to operational systems. The chances exist, however, that this may be. The reason for the absence of a strong input from this sector is largely based on the fact that there is no single voice speaking for them. Furthermore, the users have been so busy in testing and trying the application of satellites to their programs that they have not been able to concern themselves with the more mundane world of satellite policies and regulations. Also, the experimental users are in general not technically sophisticated enough to be able to analyze the systems, plans and policies for Anik-C and Anik-D or to assess their adequacy for public service applications. The main obstacle, however, to the integration of the public services requirements into the communications satellite systems is a lack of needs analysis and projections of requirements by the sector. The lack of a single body which could analyze the requirements and represent the sector is making itself felt.
The experimental programs In the past six years a large number of individuals and institutions in health care, education, community development, administration, etc. became involved with experimental communications satellites. Participants and participating organizations include hospitals, physicians, and nurses, university professors and administrators, government planners and managers as well as native peoples and private interest groups. Physical distances, adverse terrain or unpredictable weather conditions are the common denominators for this varied group to participate in the program. Generally, the participants are innovative, forward looking and lured by the promise that space technology may offer a solution to their unique problems. They obtained free satellite time, free access to ground stations and the use of a communications system which is very flexible and advanced. Further, they often can obtain funding to test their innovative programs from sources which would not be available for operational programs. The primary government agencies or ministries sponsoring experimental satellite applications programs in Canada and worldwide are Space Research and Development organizations whose objectives are technological research. By making their advanced technologies and systems available to the public service sectors these programs contributed a great deal of knowledge about the utility of communications systems in improving methods of service delivery. The inclusion of social objectives in technological research and development programs also has aided the technological sector in successfully competing for government funds and resources. In the following pages two Canadian satellite applications programs will be
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described. A discussion of major issues affecting the transition from experiments to commercial systems will follow.
The Hermes communications technology satellite project In the Canadian Hermes project 41 experiments and a minimum of 35 demonstrations were conducted since 1976 (Table 2). A main purpose of the Hermes program was to establish the feasibility and utility of using satellite communications in support of public services, as well as to act as a catalyst for the interest of non-participating agencies and individuals. Both purposes were achieved. However, early in the experimental program it was also recognized that the transition from experimental to operational system would require more than demonstrations of feasibility and utility. Underlying complex institutional and policy issues would have to be sorted out, both in the areas of communication as well as of applications, e.g. health, education. The Hermes program taught the following lessons: • A pre-operational program or pilot project is necessary to give public
Table 2. Main Hermes satellite experiments Subject Area
Groups Involved
Description
Tele-education
Public Service Commission
Staff training and development Multi-purpose network for teaching, scientific exchanges, administration Summer academy and conferencin@ Non-formal and continuin@ education Curriculu~n exchange
University of Quebec
Ontario Education Communications Authority British Columbia Distance Education Group Carleton University/ Stanford University University of Montreal Tele-medicine
University of Western Ontario Memorial University of Newfoundland
Administration
Government of Ontario
Community Development
Regina University, Sasketchewan Alberta Native communications Authority Tagra~uit Nipingat (Eskimo Association of Northern Quebec)
Broadcasting
Wa Wa Ta (Indian Coramthnications Society of Northern Ontario) Canadian Broadcasting Corporation
Continuing Nursing Education Medical consultation: in-service training, administration Continuing medical and nursing education, medical consultation Teleconferencing for government administration Exchanges between franeophone communities Broadcasting and teleconferencing among Native Indian ~eo~le Teleconferencing and radio program exchanges among Eskimo communities Radio program exchanges among Indian cor~aunities Special events breadcasting to small TV receive earth stations in urban environments
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93
service program planners the opportunity to test in long-term projects the implications of telecommunications based service delivery systems. • The economics of telecommunications systems and particularly satellite systems require coordination and communications systems sharing among a variety of public service users and commercial systems. Sharing could take the form of bulk rental of satellite capacity or joint use of earth stations. Sharing of systems facilities is not only economical, but also logical since no single sector, i.e. health, agriculture, requires 24 hr system availability. • The common carrier should be part of the project development. Many of the public service requirements, i.e. telephone conferencing could be served with the commercial telecommunications system. More information exchange between educators, health care planners, etc. and telecommunications managers will be of mutual benefit. • Health care and educational planners need to review their own delivery systems and goals in view of the economic and technical implications of a satellite system. Satellite communication will not yield major economic advantages, if it is used as a mere back-up to existing small scale, relatively localized activities.
The Anik-B pilot project program In order to bring the Hermes experiments a step closer to the operational system, the government has leased from Telesat capacity on the Anik-B satellite. The following selection guidelines summarize the basis for the Anik-B applications program, which is essentially of pre-operational nature. • Institutional issues: the user agency should have an identified mandate to provide the service on a larger than local scale; the user agency should have the basic institutional structure to implement the project; and resources (financial, technical and human) should be available, or easily obtained: • Needs: in-depth needs assessment of the types of services to be provided. The specification and development of the technical system should be based on the needs assessment. • Economics: pilot projects should be developed with the view that technical operational costs do not consume the major portion of the overall program costs. Mechanisms for joint use of ground stations by several user agencies should be developed. • Policy development: the premise that the Anik-B program provides a bridge between experimental and operational services establishes the requirements for policy analysis to identify mechanisms and structures within which social services can be provided operationally at reasonable costs via satellite. Following these guidelines the Department of Communications, with assistance from specialist groups in education, health care and native affairs, selected pilot projects for the Anik-B program (Table 3). These projects will be carried out over the next 2-5 yr. One significant advance made in the Anik-B program is reflected in the fact that all experiments are sponsored or have attracted significant program funding from agencies and institutions which have respon-
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Table 3. Anik-B pilot projects (1978) Subject Area
Tele-education
Group Involved
British Columbia (BC) Ministry of Education
Ontario Educational Communications Authority (OECA) Ministry of Education of Quebec Tele-health
Universit6 de Montreal
Memorial University of Newfoundland
TV Program Distribution
Participating groups, trial services, locations etc. being developed
Co~mmunity Communications
Alberta Native Communications Society, provincial universities and other agencies Inuit Tapirisat of Canada (National Eskimo Brotherhood)
Taqramuit Nipingat Inc. (Northern Quebec Inuit Association)
Description of Trial Services
An interactive educational satellite communications network to link a central studio in Vancouver with six cc~mmunities, for the purpose of improving access to academic, technical, vocational, adult education programs. Emphasis on community college involv~ent. Extension of a video network to refine delivery of educational programming to remote Ontario communities. Delivery of educational material to both native and non-native people in remote regions of Northern Quebec. Audio and visual teleconferencing involving both the health care and education fields in extension of services from central points to remote re~ions. Continuation of a program thrust begun with Hermes in the provision of interactive satellite communications between a health education center and various remote c cm~nunities in Newfoundland and Labrador for educational health programs, upgrading of professionals, etc. Demonstrations of semi-direct satellite broadcasting, using the Anik-B satellite, to stimulate Canadian manufacturers to develop a domestic production capability in satellite earth stations for individual reception. A programming center is connected via one-way TV with several remote communities for educational and community services. Teleconferencing via twoway voice. Service for native and non-native ~eo~le. Interactive communications and teleconferencing links to meet the special needs of Inuit communities. Native people themselves to determine content and to ~roduce ~ro~rams. Project to establish a video and telephony network linking four Inuit communities in Northern Quebec.
sibility over the financial and policy matters of continued operational services. The carriers are not as much involved as is desirable. Discussion
Technical scenarios of public service requirements The Hermes experiments and Anik-B pilot projects can be used to project technical systems scenarios and requirements which hopefully the Anik-C and Anik-D commercial systems will be able to satisfy without causing major financial strains on the public service user community. First priority requirements exist for good quality interactive audio teleconferencing systems. This requirement is evident in the health, education,
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administration as well as community development sectors. It stems from the difficulties, costs and delays in travel which are particularly pressing in remote and rural areas. Geographically, these requirements roughly conform to the boundaries of the provinces, with the main administrative and service communities as the points to be linked. In the Northern parts of the provinces and in the two northern Territories of the country, teleconferencing requirements are to link the health centers of the different health care zones to the regional hospitals and from there to tertiary care institutions in the South. For administrative, or native affairs and community development the points to be linked would more or less encompass several of the health care zones, according to the areas of responsibility of the different major organizations. Although most northern communities are likely to be served by Anik-A or Anik-D, the linkage of these communities into effective teleconferencing systems may still be difficult, since not all locations will necessarily link into the same satellite or the same transponders, thus requiring double hop. Further, present billing procedures require all calls to go through a southern central switch before being routed to the destination. For northern teleconferencing it would be desirable if flat fees could be paid to avoid the southern central switch. In addition, the fact that Anik-C and -D will operate on different frequencies will create technical complexities if sites in the South are to be included in the conferencing networks. The link between the northern network and the South is necessary for such tasks as medical consultation or special training courses, for which expert resources can only be found in the South. TV broadcasting requirements include regional uplink and reception capabilities in the provinces as well in the North. For southern Canada coverage, Anik-C down-link antenna converage is divided into four regions. Onboard switching also allows serving of all beams simultaneously. Thus the system appears flexible enough to satisfy educational broadcasters whose requirements in Canada are largely of regional nature (Daniel and Robin, 1977). The interconnection of satellite with cable seems to be a requirement in the South for educational users in order to reach house bound learners with continuing education or training programs. This capability is likely to exist with Anik-C. Again, in regard to the North and the northern parts of the provinces, the technical possibilities look less encouraging, particularly where programming is desirable that is of interest to northern people. Even the extension of the Anik-C regional beams to the North would not be satisfactory. The experiences gained in the Hermes program and projects planned for Anik-B indicate a requirement for beams that unite people of related cultural interests, particularly the native people. To fulfill this requirement beams for regional coverage of the North would be necessary. A particular requirement are northern uplink capabilities to provide the opportunity to mix national TV feed with regional northern feed for balanced programming, including in-school programs as well as cultural and political affairs programming. Facilitating the transition
At this time it appears that the main thrust of government funding for
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experimental communications satellites is over. The technology research and development now has to prove itself in applications in operational satellite systems. For the public services sector this means that access no longer exists to free experimental satellite time or earth stations. In Canada it is anticipated that "a host of new social services, telemedicine, tele-education, community interaction and direct-to-home television (will come) into being, eventually on a commercial basis" (Chapman, 1979). As previously mentioned, with Anik-C, technology pioneered with Hermes will find its first commercial application. But, as we have seen, institutional changes and new policies were necessary to encourage extensive use of Anik-C by the carriers. It cannot be expected that the public (or social) services sector will be able to make the transition from an experimental to an operational status without preceding institutional and policy developments. The role of government. In Canada, the conditions to accomplish this transition are favored by the fact that the space research and development activities, i.e. the Hermes and Anik-B programs, are part of the Ministry of Communications, which has the mandate to develop and implement national communications policies. Therefore, the communications policy makers were informed of or participated in various ways in the development and assessment of the experimental applications programs. It is to them that many of the participants of the Hermes and Anik-B applications projects will look for guidance. Several analyses are underway to identify the requirements these sectors may have, the obstacles being faced in using the commercial system as well as the role the federal government should play to facilitate transition (Perusse and Stolovitch, 1979; Daniel and Robin, 1977). Federal government analysis should particularly explore issues of rates, access to satellite channels by public service users and availability of appropriate satellite coverage. The role of the telecommunications industry. Among the carriers and Telesat, the requirements of the public service sectors do not figure in systems planning. Primary, not to say exclusive, concern is with the requirements of the established carriers, the broadcasters and the new ventures in cable-satellite networks. Government policies can assist the cause of the public service sectors, for example, by stipulating that one satellite channel must be made available for educational broadcasting. However, without a more innovative marketing policy, particularly on the part of Telesat, not much will be accomplished. Telesat could, for example, take a cue from Intelsat's approach to marketing unused satellite capacity on a pre-emptible basis, leased at a lower cost. Many public service users would be interested. The role of the users. The main burden is on the public service users themselves. They must gear themselves up to quantify the potential market they represent, they must analyze their communications requirements and specify in broad strokes the kinds of systems they require. The Hermes and Anik-B programs have given and are giving valuable background upon which such future projections can be based. A prime need at present is for the public services sector to jointly analyze their requirements and speak with one voice, not as small separate entities. In the U.S., the Public Service Satellite Consortium
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(PSSC) represents such an attempt. It is of interest that PSSC started with government funding and still today relies heavily on government contracts for operations. In Canada, a small group, the Forum of Canadian Users of Satellites (FOCUS) represents the public service community. The objectives of FOCUS (Bowers, 1979) are: "to exchange information on applications of satellites; to encourage experimentation and participation in the development of satellite applications; to provide a forum for the discussion of telecommunications in Canada". It would be in the interest of all people concerned, if FOCUS, or a similar organization, were given funding from governments, the carriers and Telesat to undertake the necessary systems studies and policy analysis as well as to continue its information dissemination activities. FOCUS' role could develop into that of a network manager or broker between the end users and Telesat. It could provide input into government policy development, e.g. regarding rate structures on behalf of the public service users, it could assist the carriers' and Telesat's communications systems planning. It could also provide much needed technical assistance to user organizations in planning, implementing, operating and evaluating satellite projects and programs. With the transfer of responsibility for public satellite applications to the commercial sector at the time of the Anik-C program, this function, presently carried out by a team in the space program, would also logically be transferred outside government. Lastly, FOCUS could on behalf of its members, negotiate for access and rates with the commercial satellite system; it could facilitate bulk rental of satellite capacity; design appropriate systems; purchase earth stations on behalf of its members and develop and implement cost effective systems, e.g. by promoting sharing of facilities. Without such central technical assistance, individual users would have to duplicate expensive technical and planning resources, diverting their attention from their chief concern, i.e. to provide a public service. The task of the public service users wishing to analyze the utility of satellite communications for their purposes is difficult enough. The difficulty stems largely from the fact that in most areas there already exist different methods of delivering a health service or providing an educational opportunity. However inadequate, expensive or cumbersome existing methods are, they have been proven. The introduction of satellite communications will require an analysis and re-orientation of the existing delivery systems. For example, even the most appropriate telemedicine system will be resource inefficient, if physicians, specialists, nurses, patients as well as medical documentation travel back and forth as before. In the education area the present proliferation and duplication of course offerings by a multitude of institutions is also not conducive to the efficient use of satellite communications. As an example, in one province three institutions may provide continuing education for nurses. Communication satellite systems will only be efficiently used if the three institutions arrive at a compromise for sharing the teaching load and students to arrive at an acceptable cost per learner. This could be done in a consortium arrangement of educational institutions, as is being developed in the province of British Columbia for various areas of continuing and adult education (Province of British Columbia, 1980).
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Experience to date of successful transitions. Today only very few success stories (Clearinghouse, 1979) exist of experiments that have made the transition to a commercial satellite system. In all, the sponsoring organization undertook a thorough analysis of the costs involved, of the number of participants/learners required to arrive at a reasonable cost per participant. They expanded the size of the experimental project considerably to aggregate a sufficiently large interested clientele group. They also share program production responsibility among various organizations. Also, they are benefiting largely from piggybacking onto the communications systems developed by established carriers and broadcasters. Unfortunately for the Canadian users, these projects are all in the U.S. However, in Canada, the present Anik-B program allows users, the government, Telesat and the carriers to gather further experience and information to ready themselves for the step to the commercial system. Conclusions The success of the Hermes and Anik-B applications programs will ultimately be measured by the degree of effect they had on making the DOMSAT system responsive to the needs of the public services sector. The Hermes and Anik-B programs will have achieved their objectives of providing a necessary test ground, even though the public services sectors may decline to use the DOMSAT system as part of their delivery system because other methods are considered as more effective, e.g. face-to-face meetings. However, if the users wish to continue the use of communications satellites, but are prevented from it by institutional barriers or by the fact that the services are out of reach for their budgets, then the programs have not achieved their goals. The question then is: was it a wise investment to expand millions of dollars in program development, communications systems procurement, project coordination and evaluation of the applications programs using the experimental satellites? Or, would it have been better to spend the money on application programs with the commercial system? The best indications are that the investments were wise and that the next few years will see commercial satellites being used for innovative public service applications for which the basis was developed in the experimental programs. Joint efforts of all sectors concerned will bring about this transition in an orderly fashion. It appears that the carriers and Telesat are still reluctant to believe that the public service sector can represent a real market. An infusion of innovative marketing ideas into their thinking could best be achieved by an infusion of entrepreneurship into the public services sectors. Both sectors would benefit. References Bowers P. (1979) Letter announcing the establishment of the Forum of Canadian Users of Satellites, Toronto. Chapman J. (1979) Why satellite communications in Canada? In Search, Department of Communication, Ottawa. Clearinghouse on Development Communication (1979) Satellite Applications for Public Services, Project Summaries, Washington. Daniel L and Robin M. (1977) Enqu~te sur les Besoins; L'Utilisation de Syst~me de Satellite en
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Education au Canada, 3 Volumes, contract number OSU 76-00136, Department of Communication, Ottawa. Dohoo R. (1979) Canada's satellite policies and how they grew. In Search, Department of Communication, Ottawa. Melody W. (1979) Are satellites the pyramids of the 20th century. In Search, Department of Communication, Ottawa. NASA-Lewis (1979) Report of the 22nd U.S. CTS Users Meeting, Denver, Colorado. Telesat Canada (1979) A Technical Description of the Canadian Domestic Satellite Communication System, Ottawa. P6russe P. and Stolovitch H. (1979) A Study of Economic, Policy and Institutional Issues Influencing the Use of Satellite Based Telecommunication Facilities for Public Services, Contract Number OSU 78-00218, Department of Communication, Ottawa. Province of British Columbia, (1980) Knowledge Network of the West Communication Authority Established, News Release, Ministry of Universities, Science and Communication, Vancouver.