FCC批准亚马逊以115.7亿美元收购Globalstar，清除关键监管障碍

Federal Communications Commission DA 26-1160

Before the
FEDERAL COMMUNICATIONS COMMISSION
WASHINGTON, D.C. 20554

In the Matter of

Applications of Globalstar, Inc., and Amazon.com, Inc., for Consent to Assign and Transfer Control of Authorizations
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GN Docket No. 26-134

ORDER

Adopted: October 27, 2026 Released: October 27, 2026

By the Chiefs, Space Bureau, Office of Engineering and Technology, and Office of International Affairs:

I. INTRODUCTION
1. In this Order, the Space Bureau, Office of Engineering and Technology, and Office of International Affairs approve the applications filed by Globalstar, Inc. (Globalstar) and Amazon.com, Inc. (Amazon, and together with Globalstar, the Applicants), pursuant to sections 214(a) and 310(d) of the Communications Act of 1934, as amended, 47 U.S.C. §§ 214(a), 310(d); 47 CFR §§ 5.79, 63.04, 63.18, 63.24, 25.119.
for consent to the assignment and transfer of control of the Commission authorizations held by Globalstar and its subsidiaries to Amazon (the Application). Application for Consent to Assign and Transfer Control of Licenses and Authorizations, ICFS File Nos. ITC-T/C-20260417-00114 (filed May 26, 2026), SAT-T/C-20260426-00174, SES-T/C-20260426-00137, SES-T/C-20260426-00138; ELS File Nos. 0080-EX-TU-2026, 0069-EX-TC-2026; see also Letter from Michael J. Carlson, Senior Counsel, Amazon Leo to Marlene Dortch, Secretary, Federal Communications Commission, ICFS File No. ITC-T/C-20260417-00114 (Jul. 9, 2026) (Supplement).
Based on our review of the record, we find that the proposed transaction is likely to benefit the public by enhancing data coverage to areas that are currently unserved or underserved by telecommunications carriers, strengthening emergency communications capabilities, and fostering additional growth in industrial and enterprise data services. We also find that no material public interest harms are likely to arise from the proposed transfer of control. Accordingly, we find that granting the Application will serve the public interest, convenience, and necessity.
II. BACKGROUND
A. Description of the Applicants
2. Globalstar is a publicly traded Delaware corporation and a provider of mobile-satellite service (MSS) worldwide. Application, Public Interest Statement at 6.
Globalstar serves more than 780,000 end-user devices in more than 120 countries, utilizing the 1.6/2.4 GHz bands for emergency communications, asset tracking, and maritime and aviation connectivity. Id. at 6, 25-27. Two of Globalstar’s wholly-owned U.S. subsidiaries—GUSA Licensee LLC and Globalstar Licensee LLC—hold Commission authorizations. Id. at 9, Exh. A, Globalstar, Inc. Licenses and Authorizations. GUSA Licensee LLC holds a blanket license to operate mobile earth stations, as well as three international section 214 authorizations for global facilities-based and resold telecommunications services. See Application, Public Interest Statement at 9, n.21. Globalstar Licensee LLC holds a space station license to operate service links in the 1.6/2.4 GHz bands (1610-1626.5 MHz (Earth-to-space) and 2483.5-2500 MHz (space-to-Earth)) and feeder links in the 5091-5250 MHz (Earth-to-space) and 6875-7055 MHz (space-to-Earth) bands, several fixed feeder link earth station licenses at six different gateway sites in the United States, and a domestic section 214 authorization. Application, Public Interest Statement at 9-10. Globalstar Licensee LLC also holds a U.S. market access grant to allow its fixed and mobile earth stations in the U.S. and U.S. territories to communicate with the HIBLEO-X satellites, licensed by France. Globalstar’s MSS system is comprised of both its U.S.-licensed HIBLEO-4 satellites and HIBLEO-X satellites, operating as one system. See Globalstar Licensee LLC, Application for Modification of Non-Geostationary Mobile Satellite Service System Authorization, Order and Authorization, 39 FCC Rcd 9346, ICFS File No. SAT-MOD-20230804-00192 (Aug. 16, 2024). Globalstar Inc., the parent company, holds an experimental license. See Globalstar, Inc., File No. 0334-EX-CN-2026 (granted Apr. 13, 2026). In addition, the Space Bureau recently granted Globalstar’s petition for U.S. market access for a constellation of 48 non-geostationary orbit (NGSO) satellites, called the C-3 System, licensed by France. Grant Stamp, Globalstar Licensee LLC, ICFS File Nos. SAT-PDR-20250214-00047 and SAT-APL-20260521-00205, Call Sign S3223 (SB, rel. Oct. 8, 2026). Transfer of control of this grant of market access is also approved, as requested by the Applicants. See Application, Public Interest Statement at 1 n.2 (requesting that approval be extended to any authorizations issued to Globalstar while the transaction is pending).
In addition, Globalstar provides satellite connectivity for certain Apple devices (e.g., iPhone 14 and newer), enabling consumers to send and receive texts, contact emergency services, and share their location even when outside cellular and Wi-Fi coverage. Application, Public Interest Statement at 8.

3. Amazon, a publicly traded Delaware corporation, through its wholly-owned subsidiary, Kuiper Systems LLC, and operating under the brand name Amazon Leo, is deploying a satellite constellation to provide satellite communications and data services to residential customers, enterprises, and government users. It aims to offer high-speed, low-latency broadband services through its non-geostationary satellite orbit, fixed-satellite service (NGSO FSS) space station authorizations in bands between 10.7 GHz and 52.4 GHz and earth station authorizations to connect to the Amazon Leo systems. Id. at 4, n. 8 (listing Amazon Leo earth station authorizations). See Kuiper Systems LLC Application for Authority to Deploy and Operate a Ka-band Non-Geostationary Satellite Orbit System, Order and Authorization, 35 FCC Rcd 8324 (2020) (Gen1 Authorization); Kuiper Systems LLC, ICFS File Nos. SAT-LOA-20211104-00145, SAT-AMD-20250311-00068 (granted, in part, Feb. 10, 2026) (authorizing Amazon Leo’s Gen2 and Polar systems). Amazon Leo is authorized to launch, operate, and deploy 3,232 NGSO satellites.
Amazon has committed to invest more than $10 billion in Amazon Leo, has launched over 300 satellites since April 2025, and anticipates providing commercial services by the end of 2026. Id. at 3.
Amazon further states that it has invested significant resources and capital into its satellite and equipment manufacturing and processing capacities in the U.S., which it contends will further support and upgrade Globalstar’s existing systems and infrastructure while simultaneously launching its Amazon Leo systems. See id. at 4-5, 18. Amazon’s satellite manufacturing facility in Kirkland, Washington can produce up to 30 LEO orbit satellites per week. Application at 5.
Amazon also has a pending license application to operate a global direct-to-device (D2D) satellite system for MSS connectivity designed to complement Amazon Leo’s FSS capabilities. See Space Bureau Accepts for Filing Application of Amazon LEO for NGSO D2D System, Public Notice, DA 26-866 (SB rel. Aug. 18, 2026). D2D enables standard mobile user equipment (such as mass-market smartphones) to communicate directly with satellites.

B. Description of the Transaction
4. Under the proposed transaction, Amazon will acquire 100% control of Globalstar, its subsidiaries, and their Commission authorizations. Application, Public Interest Statement at 11. The transaction is a $11.57 billion deal. Deborah Mary Sophia and Akash Sriram, Amazon to Buy Satellite Firm Globalstar in $11.57 Billion Deal to Take on Musk’s Starlink, (Apr. 14, 2026), https://www.reuters.com/business/media-telecom/amazon-signs-1157-billion-deal-satellite-firm-globalstar-challenge-starlink-2026-04-14/. Globalstar stockholders are entitled to receive, for each Globalstar share, either $90.00 in cash or 0.3210 shares of Amazon stock. Globalstar, Globalstar Enters Into Definitive Agreement to be Acquired by Amazon, https://investors.globalstar.com/static-files/42cc5b2a-fa2a-49af-8120-751c5819cbcd (last visited Jul. 23, 2026).
Globalstar will become a wholly-owned subsidiary of Amazon and operate as an affiliate to Kuiper Systems LLC and the Globalstar U.S. subsidiaries will retain their corporate identities and authorizations. Application, Public Interest Statement at 10, 11.

5. The Applicants assert that the proposed transaction will produce significant public interest benefits with no accompanying competitive harms. Id. at 14, 25-26.
The Applicants state that granting the proposed transaction will bring enhanced data coverage to areas that are unserved or underserved, strengthen emergency communications capabilities, and fuel growth in industrial and enterprise data services to drive innovation and job creation in the space sector. Id. at 2, 20-23.
The Applicants claim that their combination will accelerate competition in the provision of a ubiquitous D2D satellite service by augmenting Globalstar’s existing and planned services with new Amazon Leo D2D satellites. Id. at 2, 17-20.
Additionally, they contend that the transaction would enhance and accelerate competition by introducing a new entrant to compete in the MSS market and expanding consumer choice and access through a multi-carrier, multi-vendor architecture on a global basis. Id. at 14-15.

C. Transaction Review Process
6. The Application and its related applications were accepted for filing in a public notice released June 4, 2026. Globalstar, Inc. and Amazon.com, Inc. Seek FCC Consent and Approval of the Proposed Assignment and Transfer of Control of Licenses and Authorizations Held by Globalstar to Amazon, Public Notice, DA 26-550 (SB/OET/OIA/WCB rel. June 4, 2026).
Four comments, Comments of Public Knowledge and Open Technology Institute at New America (PK/OTI Comments). Three brief comments submitted were unrelated to the public notice or proposed transaction. See Comments of 26-115; Comments of Cheryl Bergren; Comments of Joan Staszak.
one petition to dismiss, Petition to Dismiss, or, in the Alternative, Petition to Require Applicants to Supplement the Record and to Condition the Grant of Yippy, Inc. (Yippy Petition).
one opposition to the petition, Opposition of Globalstar, Inc. and Amazon.com, Inc. (Opposition).
one reply to the opposition, Reply of Yippy, Inc. to the Opposition of Globalstar, Inc. and Amazon.com, Inc. (Reply).
and several other filings were submitted in response. This includes a filing made after the close of the comment period which claims that the Commission lacks jurisdiction to grant the Application. Objection to Jurisdiction and Motion to Dismiss Application of Dana Scioli (filed July 31, 2026) (Scioli Filing). The same filer made a submission on September 4, 2026, unrelated to the public notice or proposed transaction.

7. Public Knowledge and Open Technology Institute at New America (PK/OTI) and the Information Technology & Innovation Foundation (ITIF) support grant of the Application. See PK/OTI Comments; Comments of Information Technology and Innovation Foundation (filed Jul. 21, 2026) (ITIF Filing).
PK/OTI argue that Globalstar and Amazon offer different services based on their different mix of satellite assets and spectrum authorizations and that, combined, this mix of assets will create a more effective competitor for both satellite and terrestrial wireless services. PK/OTI Comments at 2.
They further argue that Amazon possesses the substantial capital necessary to combine these assets into a better competitor in broadband, terrestrial wireless, and especially D2D services with SpaceX/T-Mobile and AST SpaceMobile/AT&T. Id. at 2-3. AST also partners with Verizon and FirstNet to provide SCS, in addition to AT&T. See AST & Science, LLC, Authorization and Order, DA 26-391 (SB/WTB/OET/PSHSB rel. Apr. 21, 2026).
ITIF similarly argues that the merger will enable productive use of Globalstar’s MSS 1.6/2.4 GHz spectrum, strengthen competition in D2D markets, and expand connection to underserved areas, ITIF Filing at 2.
and cites to Amazon’s institutional knowledge and satellite production capabilities as complementary to Globalstar’s licensed MSS operations. Id. at 2-4.

8. Yippy, Inc., a former customer of Globalstar, submitted a petition to dismiss the Application, or, alternatively, to require Applicants to supplement the record and to condition any grant. Yippy is involved in a contractual dispute with Globalstar and seeks to ensure its claimed contractual rights with Globalstar are upheld after the merger. Yippy Petition.
In opposition to the Yippy Petition, the Applicants argue that Yippy is inappropriately attempting to use the Commission’s merger-review process to pursue unrelated contractual disputes. The Applicants state that Globalstar ceased operations with Yippy in 2021, and Yippy initiated a now-dismissed lawsuit against Globalstar in 2026. Opposition at 2; see also Yippy, Inc. v. Globalstar, Inc., No. 1:26-cv-573 (S.D.N.Y. Mar. 11, 2026), Dkt. No. 25 (dismissing for lack of personal jurisdiction). Yippy subsequently submitted a letter stating that active arbitration is ongoing regarding Yippy’s stated contractual and operational rights. Letter from Anne Cortez, Counsel for Yippy, Inc., to Marlene H. Dortch, Secretary, FCC (dated Oct. 12, 2026).

III. STANDARD OF REVIEW AND PUBLIC INTEREST FRAMEWORK
9. The Commission has authority to review the Application under sections 214(a) and 310(d) of the Communications Act of 1934, as amended (the Act). 47 U.S.C. §§ 214(a), 310(d). Claims by one filer that the Commission lacks jurisdiction to act upon the Application are without merit. See Scioli Filing. Contrary to the assertions of the filer, the Application does not involve foreign ownership issues under the Act and, pursuant to our procedures, has not been referred to the Executive Branch agencies. The filer provides no basis for its claims that the transaction is being reviewed by the Committee on Foreign Investment in the United States, or that the Commission would have to await the outcome of any such review; that the Application is subject to the National Environmental Policy Act; or that other Federal interests or requirements mandate dismissal or deferral of the Application. The filer also has not demonstrated any interest in the Application or transaction. Accordingly, we deny the requested relief based on these claims.
Pursuant to section 310(d) of the Act, 47 U.S.C. § 310(d). Section 310(d) of the Act requires that the Commission consider applications for transfer or assignment of Title III licenses under the same standard as if the proposed transferee or assignee were applying for licenses directly under section 308 of the Act, 47 U.S.C. § 308. See, e.g., Applications of T-Mobile US, Inc. and United States Cellular Corporation for Consent to Transfer Control of Licenses, Authorizations, and Leases, GN Docket No. 24-286, Memorandum Opinion and Order, 40 FCC Rcd 4776, 4783-84, para. 13 & n.43 (WTB/OIA July 11, 2025) (T-Mobile-UScellular Order); Applications of Level 3 Communications, Inc. and CenturyLink, Inc. for Consent to Transfer Control of Licenses and Authorizations, WC Docket No. 16-403, Memorandum Opinion and Order, 32 FCC Rcd 9581, 9585, para. 8 & n.26 (2017) (CenturyLink-Level 3 Order); Applications of GCI Communication Corp., ACS Wireless License Sub, Inc., ACS of Anchorage License Sub, Inc., and Unicom, Inc. for Consent to Assign Licenses to the Alaska Wireless Network, LLC, WT Docket No. 12-187, WC Docket No. 09-197, Memorandum Opinion and Order and Declaratory Ruling, 28 FCC Rcd 10433, 10442, para. 23 & n.71 (2013) (Alaska Wireless-GCI Order).
we must determine whether the proposed transfer of control of licenses held and controlled by Globalstar to Amazon will serve the public interest, convenience, and necessity. In making this determination, we first assess whether the proposed transaction complies with the specific provisions of the Act, other applicable statutes, and the Commission’s rules. 47 U.S.C. § 310(d); T-Mobile-UScellular Order, 40 FCC Rcd at 4784, para. 13; CenturyLink-Level 3 Order, 32 FCC Rcd at 9585, para. 8; Alaska Wireless-GCI Order, 28 FCC Rcd at 10442, para. 23.

10. If the proposed transaction does not violate a statute or rule, we then consider whether the transaction could result in public interest harms by substantially frustrating or impairing the objectives or implementation of the Act or related statutes. See, e.g., T-Mobile-UScellular Order, 40 FCC Rcd at 4784, para. 14; CenturyLink-Level 3 Order, 32 FCC Rcd at 9585, para. 9; Alaska Wireless-GCI Order, 28 FCC Rcd at 10442, para. 23.
Our competitive analysis, which forms an important part of the public interest evaluation, is informed by, but not limited to, traditional antitrust principles. See, e.g., T-Mobile-UScellular Order, 40 FCC Rcd at 4784, para. 14; CenturyLink-Level 3 Order, 32 FCC Rcd at 9585, para. 9; Alaska Wireless-GCI Order, 28 FCC Rcd at 10443, para. 25; see also Northeast Utils. Serv. Co. v. Fed. Energy Regulatory Comm’n, 993 F.2d 937, 947 (1st Cir. 1993) (public interest standard does not require agencies “to analyze proposed mergers under the same standards that the Department of Justice . . . must apply”).
The United States Department of Justice has independent authority to examine the competitive impacts of proposed mergers and transactions involving transfers of Commission licenses, but the Commission’s competitive analysis under the public interest standard is somewhat broader, and often takes a more extensive view of potential and future competition and its impact on the relevant markets. See, e.g., T-Mobile-UScellular Order, 40 FCC Rcd at 4784, para. 14; Applications for Consent to the Transfer of Control of Licenses, XM Satellite Radio Holdings Inc., Transferor to Sirius Satellite Radio Inc., Transferee, MB Docket No. 07-57, Memorandum Opinion and Order and Report and Order, 23 FCC Rcd 12348, 12365-66, para. 32 (2008); AT&T Inc. and BellSouth Corporation Application for Transfer of Control, WC Docket No. 06-74, Memorandum Opinion and Order, 22 FCC Rcd 5662, 5673-74, para. 21 (2007) (AT&T-BellSouth Order); Application of EchoStar Communications Corp., (A Nevada Corp.), General Motors Corp., and Hughes Electronics Corp. (Delaware Corps.) (Transferors) and EchoStar Communications Corp. (A Delaware Corp.) (Transferee), CS Docket No. 01-348, Hearing Designation Order, 17 FCC Rcd 20559, 20575, para. 27 (2002).
The Commission has determined it may impose and enforce transaction-related conditions to ensure that the public interest is served by the transaction. See, e.g., T-Mobile-UScellular Order, 40 FCC Rcd at 4784, para. 14; Applications of AT&T Inc. and DIRECTV for Consent to Assign or Transfer Control of Licenses and Authorizations, MB Docket No. 14-90, Memorandum Opinion and Order, 30 FCC Rcd 9131, 9141, para. 22 (2015) (AT&T-DIRECTV Order); Applications of Comcast Corp., General Electric Co. and NBC Universal, Inc. for Consent to Assign Licenses and Transfer Control of Licenses, MB Docket No. 10-56, Memorandum Opinion and Order, 26 FCC Rcd 4238, 4249, para. 25 (2011); see also Application of WorldCom, Inc. and MCI Commc’ns Corp. for Transfer of Control of MCI Commc’ns Corp. to WorldCom, Inc., CC Docket No. 97-211, Memorandum Opinion and Order, 13 FCC Rcd 18025, 18032, para. 10 (1998) (stating that the Commission may attach conditions to the transfers); Applications of T-Mobile US, Inc., and Sprint Corp., for Consent to Transfer Control of Licenses and Authorizations, Applications of American H Block Wireless L.L.C., DBSD Corp., Gamma Acquisition L.L.C., and Manifest Wireless L.L.C. for Extension of Time, WT Docket No. 18-197, Memorandum Opinion and Order, Declaratory Ruling, and Order of Proposed Modification, 34 FCC Rcd 10578, 10596, para. 42 (2019) (T-Mobile-Sprint Order).

11. If we determine that a transaction raises no public interest harms or that any such harms have been ameliorated by the Commission-imposed conditions or voluntary commitments, we next consider a transaction’s public interest benefits. Applicants bear the burden of proving those benefits by a preponderance of the evidence. 47 U.S.C. § 309(e); T-Mobile-UScellular Order, 40 FCC Rcd at 4785, para. 15; CenturyLink-Level 3 Order, 32 FCC Rcd at 9586, para. 10; Alaska Wireless-GCI Order, 28 FCC Rcd at 10442, para. 23.
As part of our public interest authority, we may impose conditions to ensure for the public the transaction-related benefits claimed by the applicants. See, e.g., T-Mobile-UScellular Order, 40 FCC Rcd at 4785, para. 15; Alaska Wireless-GCI Order, 28 FCC Rcd at 10443, para. 26; Applications of AT&T Inc. and Centennial Communications Corp. for Consent to Transfer Control of Licenses, Authorizations, and Spectrum Leasing Arrangements, WT Docket No. 08-246, Memorandum Opinion and Order, 24 FCC Rcd 13915, 13929, para. 30 (2009) (AT&T-Centennial Order).

12. Finally, if we are able to find that the transaction is in the public interest, we may approve the transaction. See, e.g., T-Mobile-UScellular Order, 40 FCC Rcd at 4785, para. 16; CenturyLink-Level 3 Order, 32 FCC Rcd at 9586, para. 11.
In contrast, if we are unable to find that a proposed serves the public interest or if the record presents a substantial and material question of fact, then we must designate the application for hearing. 47 U.S.C. § 309(e); T-Mobile-UScellular Order, 40 FCC Rcd at 4785, para. 16; CenturyLink-Level 3 Order, 32 FCC Rcd at 9586-87, para. 11; Alaska Wireless-GCI Order, 28 FCC Rcd at 10444, para. 27.

IV. QUALIFICATIONS OF THE APPLICANTS AND COMPLIANCE WITH COMMUNICATIONS ACT AND FCC RULES AND POLICIES
13. Section 310(d) of the Act requires that we determine whether the Applicants have the requisite qualifications to hold Commission licenses. 47 U.S.C. § 310(d).
Among the factors the Commission considers in its public interest review is whether the applicant for a license has the requisite “citizenship, character, financial, technical, and other qualifications.” Id. §§ 308, 310(d); T-Mobile-UScellular Order, 40 FCC Rcd at 4785, para. 17; T-Mobile-Sprint Order, 34 FCC Rcd at 10596-97, para. 43; Century Link-Level 3 Order, 32 FCC Rcd at 9587, para. 12.
Therefore, as a threshold matter, the Commission must determine whether the applicants to a proposed transaction meet the requisite qualification requirements to hold and transfer licenses under section 310(d) of the Act and the Commission’s rules. See, e.g., T-Mobile-Sprint Order, 34 FCC Rcd 10596-97, para. 43; CenturyLink-Level-3 Order, 32 FCC Rcd at 9587, para. 12.

14. No issues have been raised regarding the basic qualifications of Amazon or Globalstar, which are both current Commission licensees. We find that Amazon and Globalstar are qualified to hold the authorizations that are being transferred in the proposed transaction. We also find that the transaction will not violate any statutory provision or Commission rule.
V. POTENTIAL PUBLIC INTEREST HARMS
15. In reviewing applications seeking approval for assignment of licenses or authorizations, the Commission, among other things, evaluates the potential public interest harms, including potential competitive harms, that may result from the proposed transaction. See, e.g., Applications of Spectrum Business Trust 2025-1, Space Exploration Technologies Corp., and EchoStar Corporation for Consent to Assign Spectrum and Earth Station Licenses, GN Docket No. 25-302, Memorandum Opinion and Order, DA 26-471 at 13 (SB May 12, 2026) (SpaceX-EchoStar Order); Applications of AT&T Mobility II LLC and EchoStar Corporation for Consent to Assign Licenses, WT Docket No. 25-303, Memorandum Opinion and Order, DA 26-470 at 9 (WTB May 12, 2026) (AT&T-EchoStar Order); Applications of SES S.A. and Intelsat S.A. For Consent to Transfer Control of Licenses and Authorizations, SB Docket No. 24-267, et al., Memorandum Opinion and Order, 40 FCC Rcd 4919, 4925, para. 15 (SB/WTB/OET July 11, 2025) (SES-Intelsat Order); T-Mobile-UScellular Order, 40 FCC Rcd at 4793, para. 28.
Amazon and Globalstar provide different services to their customers. Application, Public Interest Statement at 2-10; FCC, Approved Space Station List, https://www.fcc.gov/approved-space-station-list (last visited Aug. 31, 2026); see also PK/OTI Comments at 2.
The lack of head-to-head competition between the Applicants implies that potential transaction-specific harms are unlikely. By contrast, as we discuss in section VI, we anticipate that the Applicants will be able to use their complementary assets to facilitate greater competition by offering services that neither firm would be likely to offer absent this transaction.
A. Competitive Effects of the Proposed Transaction
16. This transaction does not implicate either horizontal or vertical harms. Horizontal transactions involve the merger of actual or potential competitors. Vertical transactions involve the merger of a supplier of an input with a buyer or potential buyer of the input. These transactions raise potential competitive concerns when the newly combined entity would have the incentive and the ability, either unilaterally or in coordination with other service providers, to raise prices, lower quality, or otherwise harm competition. See, e.g., SES-Intelsat Order 40 FCC Rcd at 4926, paras. 16-17; Application of Verizon Communications Inc. and América Móvil, S.A.B. de C.V. For Consent to Transfer Control of International Section 214 Authorization, GN Docket No. 21-112, IBFS File No. ITC-T/C-20200930-00173, Memorandum Opinion and Order, 36 FCC Rcd 16994, at 17006-07, 17017-18, paras. 34, 56 (Verizon-Tracfone Order); Applications of Comcast Corp., General Electric Co. and NBC Universal, Inc. for Consent to Assign Licenses and Transfer Control of Licenses, MB Docket No. 10-56, Memorandum Opinion and Order, 26 FCC Rcd 4238, 4250, para. 27 (2011) (Comcast-NBC Universal Order).
Because the Applicants do not compete for each other’s customers, the merger does not lead to loss of existing or potential competitors. Moreover, we are not aware of any material arrangement by which either Amazon or Globalstar presently supply services to one another, which limits the potential for harms associated with vertical mergers. A vertical transaction may cause anticompetitive harms by increasing a merged firm’s incentive to raise rivals’ costs, either by foreclosing supply of the input it sells to downstream competitors or by raising the price at which it sells the input to competitors. See, e.g., SES-Intelsat Order 40 FCC Rcd at 4943, para. 54; Verizon-TracFone Order, 36 FCC Rcd at 17017-18, para. 56; see also Comcast-NBC Universal Order, 26 FCC Rcd at 4250-51, para. 29

17. Amazon is currently deploying its Amazon Leo NGSO FSS system to provide broadband service and other communications and data services to residential, business, and government customers, including customers in areas unserved or underserved by terrestrial broadband networks. See Amazon Leo, A New Era of Internet is Coming, https://leo.amazon.com/ (Sep. 2, 2026).
Amazon is authorized to operate Amazon Leo in the Ka-, Ku-, and V-bands, with authorizations for gateway earth stations, fixed earth stations and earth stations in motion (ESIMs). Application, Public Interest Statement at 4, 25. See also Amazon Leo D2D Application, Legal Narrative Statement, July 24, 2026. https://fccprod.servicenowservices.com/icfs?id=ibfs_application_summary&number=SAT-LOA-20260601-00224.
Amazon’s satellite offerings are thus principally broadband FSS services delivered to fixed terminals and ESIMs. Amazon also plans to operate a global D2D satellite system providing MSS connectivity for which it has filed a license application, but it would not have access to MSS spectrum needed to operate that system absent this transaction. Application, Public Interest Statement at 6. See also, Space Exploration Holdings LLC, et al., ICFS File No. SAT-LOA-20200526-00055, et al., Order, DA 26-398 (SB Apr. 23, 2026) (reaffirming existing MSS licensees’ exclusive rights to use MSS direct-to-device spectrum bands).
In addition, Amazon owns and operates U.S. satellite manufacturing and payload processing facilities that support the production, testing, and launch preparation of NGSO satellites. See Press Release, Amazon News, Inside Amazon Leo’s Florida Hub: Preparing Satellites for Amazon’s Space Network (July 24, 2025), https://www.aboutamazon.com/news/innovation-at-amazon/project-kuiper-florida-satellite-facility

18. Globalstar provides MSS voice and data connectivity to consumers, businesses, and government customers, including in areas unserved or underserved by terrestrial wireless networks. Application, Public Interest Statement at 6-7.
Its services include satellite Internet of Things (IoT) services for tracking and monitoring assets, satellite messaging and location services, and voice and data communications. See Globalstar, Inc., Annual Report (Form 10-K) at 3, 5-7 (Feb. 27, 2026).
Globalstar also provides wholesale satellite capacity to Apple to support D2D connectivity on certain Apple devices. Application, Public Interest Statement at at 8. Globalstar identifies Apple as its wholesale satellite capacity customer and largest customer. In 2025, revenue attributable to Apple accounted for approximately 63% of Globalstar’s total revenue. Globalstar, Inc., Annual Report (Form 10-K) at 6 (Feb. 27, 2026). Apple also owns a 20% equity stake in Globalstar, which Amazon claims it will acquire following the completion of this transaction. See Application, Public Interest Statement at 10-11. Amazon states that it anticipates providing service to Apple, with more features and improved service. Id. at 23-24.
As of June 30, 2026, Globalstar had approximately 811,000 MSS subscribers worldwide. See Globalstar, Inc., Quarterly Report (Form 10-Q) at 30 (Aug. 6, 2026).

19. Although Globalstar and Amazon may serve overlapping geographic areas, we find that, consistent with the Applicants’ own characterization, they do not currently compete to provide the same satellite services. Globalstar principally provides MSS-based connectivity and wholesale satellite capacity for IoT, messaging, and tracking, while Amazon Leo principally markets FSS-based high speed data connectivity. Although Amazon has an authorization for earth stations in motion (ESIMs) and holds some high-band shared spectrum licenses, it does not provide consumer-facing MSS service and holds no L-band, S-band, or other spectrum with the propagation characteristics to allow a satellite to close a link to a smartphone without specialized hardware. See Application, Public Interest Statement at 29. Amazon’s high-band MSS feeder link authorization supports gateway infrastructure operations, not end-user mobile connectivity, and those spectrum resources do not position Amazon as a competitor to Globalstar’s MSS or D2D offerings. Id.
Therefore, we find that the risk of potential public interest harms to be low.
VI. POTENTIAL PUBLIC INTEREST BENEFITS
20. Having determined that the likelihood of public interest harms associated with the transaction is low, we next discuss the public interest benefits of the transaction. SpaceX-EchoStar Order at 22-23, para. 38; AT&T-EchoStar Order at 17, para. 42; SES-Intelsat Order 40 FCC Rcd at 4943, para. 56; T-Mobile-UScellular Order, 40 FCC Rcd at 4822, para. 89.
We find the transaction is likely to result in several transaction-specific public interest benefits. In particular, the transaction would facilitate Amazon’s entry into D2D services and create a vigorous satellite-based operator capable of offering fixed and mobile services to both residential and business customers. In doing so, the transaction will permit entry into new markets and spur investment and innovation, allowing the combined company to offer higher quality services to an increasing number of consumers.
21. The Commission finds a claimed benefit to be cognizable when it arises as a result of the transaction, likely could not be accomplished in the absence of the transaction, Id.
and is verifiable. Id.
Because much of the information relating to the potential benefits of a transaction is in the sole possession of the applicants, they are required to provide sufficient evidence supporting each claimed benefit so that the Commission can verify its likelihood and magnitude. Id.
Further, the Commission is “more likely to find marginal cost reductions to be cognizable than reductions in fixed cost” as, in general, reductions in marginal cost are more likely to result in lower prices for consumers. Id.
And benefits expected to occur only in the distant future may be discounted or dismissed because, among other things, predictions about the distant future are inherently more speculative than predictions that are expected to occur closer to the present. Id.

22. Increased Enhanced D2D Connectivity. Amazon plans to use Globalstar’s MSS spectrum and satellite infrastructure to deploy a global D2D system that would augment Globalstar’s existing services with additional capacity and new capabilities. Application, Public Interest Statement at 14.
Globalstar currently provides specialized MSS services and wholesale satellite capacity supporting certain Apple devices, Id. at 7-8.
but it does not offer a broadly available D2D mobile service across multiple mobile service providers and device manufacturers. The Applicants claim that Amazon’s D2D constellation will extend satellite connectivity beyond the reach of existing Globalstar systems and provide a robust, higher quality D2D service with a global reach. Id. at 15-17.
The Applicants also claim that the transaction will enable Amazon Leo to expand and extend communications offerings, to support reliable communications for first responders and government users, and support growth and innovation in IoT. Id. at 20-23.

23. We credit the Applicants’ claims that the transaction would enable a well-financed operator to provide enhanced D2D service offerings to mobile service customers. The Wireless Telecommunications Bureau and Space Bureau have previously found that D2D service has the potential to improve connectivity for mobile users throughout the United States, leading to more effective use of valuable MSS spectrum. SpaceX-EchoStar Order at 24, para. 40.
We also recognize the actions that Amazon has taken to date, including substantial investments in its satellite network and its pending license application for a D2D satellite system, indicate a high likelihood that Amazon would put the MSS spectrum to intensive use. Application, Public Interest Statement at 3; Application of Kuiper Systems LLC for Authority to Launch and Operate a Non-Geostationary Satellite Orbit System, SAT-LOA-20260601-00224, at 1-2 (filed July 24, 2026); see also Kuiper Systems LLC, Application for Extension or Waiver of the Milestone Deadline, ICFS File No. SAT-MOD-20260129-00065, Call Sign S3051/3105, Order, DA 26-553 at 14 (SB June 5, 2026) (acknowledging the investments Amazon has made to meet its commitments).
Commenters agree, noting that the transaction would strengthen competition by offering Amazon the most practical path to being able to offer D2D connectivity. ITIF Comments at 3; PK/OTI Comments at 2-3.
The transaction would thus put Amazon on the path to introducing a broader mobile satellite service-based offering to a variety of customers.
24. Efficient Use of Spectrum. The Applicants claim that Amazon would be able to make more efficient use of Globalstar’s valuable L-band spectrum through spatial reuse via a larger fleet of technologically advanced satellites while preserving Globalstar’s existing use cases. Application, Public Interest Statement at 17-18.
In doing so, the Applicants claim that they will ensure continuity of service to existing customers throughout the transition, while also improving these service using Amazon’s capital, infrastructure, and operational capabilities. Id. at 23-24.

25. We likewise credit Applicants’ claims concerning more efficient use of spectrum and enhanced service quality. As the Applicants note, Amazon has already established satellite manufacturing and processing capabilities, procured substantial launch capacity through agreements with existing launch providers, and developed an existing ground infrastructure network that would enable it to more efficiently use the Globalstar MSS spectrum. Id. at 18-19.
We expect that these capabilities will build on and further the network investments that Globalstar has already made to its own systems. Globalstar’s spending on network investments increased by approximately 111% in 2025, driven by satellite construction and launch costs and expansion of its ground network. See Globalstar, Inc., Annual Report (Form 10-K), at 37-38 (Feb. 27, 2026) (reporting that net cash used in investing activities increased from $260.6 million in 2024 to $550.4 million in 2025, with a substantial portion of the increase reflecting milestone payments associated with the Extended MSS Network).
We acknowledge that a larger constellation of modern NGSO satellites could more intensively use the spectrum and expect that this transaction would lead to such an outcome for MSS spectrum because the number of satellites that Amazon is presently authorized to deploy is orders of magnitude larger than the number of satellites that the Commission has authorized for Globalstar. To date, the Commission has approved 7,736 Amazon satellites. By comparison, the Commission has only authorized Globalstar to launch up to 26 satellites (with 9 of these subject to submission of a debris mitigation plan), albeit at an altitude more than double that of Amazon. Kuiper Systems LLC, Grant Stamp, ICFS File Nos. SAT-LOA-20211104-00145, SAT-AMD-20250311-00068 (granted Feb. 10, 2026); Globalstar Licensee LLC, Application for Modification of Non-Geostationary Mobile Satellite Service System Authorization, ICFS File No. SAT-MOD-20230804-00192 Call Sign: S2115, Order and Authorization, 39 FCC Rcd 9346, 9355 paras. 1, 21 (SB 2024).
Amazon’s constellation would further benefit from the added efficiency of its inter-satellite mesh network relative to Globalstar’s bent-pipe network architecture. Press Release, Amazon News, Amazon’s Project Kuiper Completes Successful Tests of Optical Mesh Network in Low Earth Orbit (Dec. 14, 2023), https://www.aboutamazon.com/news/innovation-at-amazon/amazon-project-kuiper-oisl-space-laser-december-2023-update; Globalstar, Satellite Technology powered by The Globalstar Satellite Network, https://www.globalstar.com/en-us/about/our-technology (last visited Sept. 11, 2026) (explaining that Globalstar satellites transmit customer signals via CDMA technology to antennas at the appropriate terrestrial gateway and then routed through local networks); see also Application, Public Interest Statement at 17 (“A large, technologically advanced low-Earth orbit fleet with hundreds or thousands of satellites equipped with modern phased-array antennas capable of forming narrow, high-gain spot beams can deliver services to far more devices from the same allocation than a small fleet of older satellites using broad coverage beams”).

26. For these reasons, we find that the transaction has the potential to provide several public interest benefits including facilitating Amazon’s entry into D2D services, supporting additional investment in and integration of Globalstar’s existing MSS network, and improving the quality and reliability of services available to consumers, particularly in areas that are unserved or underserved.
VII. OTHER ISSUES
27. In contrast to the Commission’s general public interest analysis, a transfer of control proceeding is not the proper forum for resolving private contract disputes. See, e.g., Application Filed for the Transfer of Control of Axia NGNetworks USA, Inc. to Axia NGNetworks Trust, Order on Reconsideration, 31 FCC Rcd 12590, 12594, para. 11 (2016); BIU, LLC v. FCC, No. 24-1189, 2025 WL 719819, at *2 (D.C. Cir. Mar. 6, 2025) (“As we previously recognized, the Commission has a ‘longstanding policy of refusing to adjudicate private contract law questions for which a forum exists in the state courts.’”) (quoting Listeners’ Guild, Inc. v. FCC, 813 F.2d 465, 469 (D.C. Cir. 1987)); Spectrum Five, LLC Petition for Enforcement of Operational Limits and for Expedited Proceedings to Revoke Satellite Licenses, Memorandum Opinion and Order, 38 FCC Rcd 10472, 10474, para. 7 (2023) (“The Commission has long held that it is not the proper forum for adjudicating such private contractual disputes.”); WEST Corp. v. AT&T Corp., No. 8:05CV88, 2007 WL 14564, at *1 (D. Neb. Jan. 2, 2007) (“It is the practice of the FCC not to interpret private contracts.”).
No Commission rule or policy required the Applicants to disclose in the Application the ongoing dispute with Yippy or Globalstar’s minority investment in Yippy. Yippy’s contractual dispute is currently being pursued in arbitration, Yippy Reply at 12.
which is an appropriate venue for the private concerns Yippy raises. We find no basis for the relief requested in the Yippy Petition and accordingly deny the Petition.
VIII. NATIONAL SECURITY, LAW ENFORCEMENT, FOREIGN POLICY, AND TRADE POLICY
28. The Commission determined in the Executive Branch Review Process Order that it would generally refer applications with reportable foreign ownership to the Executive Branch for review for national security, law enforcement, foreign policy, and trade policy issues. 47 CFR § 1.40001(a); Process Reform for Executive Branch Review of Certain FCC Applications and Petitions Involving Foreign Ownership, IB Docket No. 16-155, Report and Order, 35 FCC Rcd 10927, 10934-36, paras. 17, 24 (2020) (Executive Branch Review Process Order).
The Applicants acknowledge the terms of two pre-existing letters of agreement between the Globalstar entities and the U.S. Department of War, Department of Justice, and the Federal Bureau of Investigation. Application at 9 n.21; see International Authorizations Granted, IB Docket No. 04-4, Public Notice, 19 FCC Rcd 4079 (2004) (referencing 2004 Assumption Agreement between New Operating Globalstar LLC, Globalstar USA, LLC, Globalstar Corporation, Thermo Capital Partners, L.L.C., the United States Department of Defense, the United States Department of Justice, and the Federal Bureau of Investigation (2004 Agreement); International Authorizations Granted, IB Docket No. 04-4, Public Notice, 15 FCC Rcd 4281 (2000) (referencing confidential 1999 Transition Agreement between Globalstar USA, Inc., Vodafone AirTouch plc, the United States Department of Defense, the United States Department of Justice, and the Federal Bureau of Investigation (1999 Agreement) (collectively 1999/2004 LoAs)).
The Applicants also state that Amazon does not have reportable foreign ownership and is 100% direct and indirect US-owned. Application, Public Interest Statement at Exhibit C. On June 9, 2026, we provided a courtesy copy to the Committee for the Assessment of Foreign Participation in the United States Telecommunications Services Sector. Executive Branch Review Process Order, 35 FCC Rcd at 10938-39, para. 30 and n.81.
On July 9, 2026, the Applicants requested that the Commission condition the grant of the Applications on Amazon’s continued compliance with the Letters of Agreement (LoAs) entered into in 1999 and 2004 (1999/2004 LoAs). Supplement at 3 (requesting grant of transfer of control be conditioned on Amazon’s continued compliance with the agreements and amendments referenced in footnote 21 of the Application); see also Application, Public Interest Statement at 9, n.2.
We agree and explicitly condition the grant of the Applications on Amazon’s continued compliance with the 1999/2004 LoAs.
IX. ORDERING CLAUSES
29. ACCORDINGLY, having reviewed the Application and record in this matter, IT IS ORDERED that, pursuant to sections 4(i) and (j), 5(c), 303(r), 309, and 310(d) of the Communications Act of 1934, as amended, 47 U.S.C. §§ 154(i), 154(j), 155(c) 303(r), 309, 310(d), the applications for consent to assignment and transfer of control filed by Amazon and Globalstar ARE GRANTED.
30. IT IS FURTHER ORDERED that, pursuant to sections 4(i) and (j), 303(r), 309, and 310(d) of the Communications Act of 1934, as amended, 47 U.S.C. §§ 154(i), (j), 303(r), 309, 310(d), the Petition filed by Yippy, Inc., and informal request filed by Dana Scioli ARE DENIED.
31. IT IS FURTHER ORDERED that Amazon shall comply with the obligations under the 1999/2004 LoAs.
32. IT IS FURTHER ORDERED that this Memorandum Opinion and Order SHALL BE EFFECTIVE upon adoption. Petitions for Reconsideration under section 1.106 of the Commission’s Rules, 47 CFR § 1.106, may be filed within thirty days of the date of adoption of this Memorandum Opinion and Order.

33. This action is taken under delegated authority pursuant to sections 0.204, 0.241, 0.261, 0.291 and 0.351 of the Commission’s rules, 47 CFR §§ 0.204, 0.241, 0.261, 0.291, 0.351.

FEDERAL COMMUNICATIONS COMMISSION

Courtney Reinhard
Chief, Space Bureau

Andrew Hendrickson
Chief, Office of Engineering and Technology

Thomas Sullivan
Chief, Office of International Affairs

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