Identifier
Created
Classification
Origin
09MOSCOW1423
2009-06-01 10:46:00
UNCLASSIFIED//FOR OFFICIAL USE ONLY
Embassy Moscow
Cable title:  

GLONASS DEPLOYMENT HAS FULL RUSSIAN GOVERNMENT SUPPORT

Tags:  TSPA TSPL PREL ECON KPAO ECIN TNGD PGOV RS 
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ZNR UUUUU ZZH
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FM AMEMBASSY MOSCOW
TO RUEHC/SECSTATE WASHDC PRIORITY 3561
INFO RUEHXD/MOSCOW POLITICAL COLLECTIVE PRIORITY
RUEHVK/AMCONSUL VLADIVOSTOK PRIORITY 3249
RUEHYG/AMCONSUL YEKATERINBURG PRIORITY 3604
RUCPDOC/DEPT OF COMMERCE WASHDC PRIORITY
RUEHZN/ENVIRONMENT SCIENCE AND TECHNOLOGY COLLECTIVE
RUEANAT/NASA WASHDC
RUEKJCS/SECDEF WASHDC
RUEAHQA/HQ USAF WASHINGTON DC
RUCPDOC/USDOC WASHDC
UNCLAS SECTION 01 OF 05 MOSCOW 001423 

SENSITIVE
SIPDIS

DEPARTMENT FOR EUR/RUS AND OES/SAT (RCLORE)
STATE PLS PASS USTR FOR EHAFNER
COMMERCE FOR ITA/MAC (MEDWARDS, JTHOMPSON, JBROUGHER)

E.O. 12958: N/A
TAGS: TSPA TSPL PREL ECON KPAO ECIN TNGD PGOV RS

SUBJECT: GLONASS DEPLOYMENT HAS FULL RUSSIAN GOVERNMENT SUPPORT

REF: (A) STATE 14881 (B) 08 MOSCOW 1233 (C) 07 MOSCOW 1637

MOSCOW 00001423 001.2 OF 005


-------
Summary
-------

UNCLAS SECTION 01 OF 05 MOSCOW 001423

SENSITIVE
SIPDIS

DEPARTMENT FOR EUR/RUS AND OES/SAT (RCLORE)
STATE PLS PASS USTR FOR EHAFNER
COMMERCE FOR ITA/MAC (MEDWARDS, JTHOMPSON, JBROUGHER)

E.O. 12958: N/A
TAGS: TSPA TSPL PREL ECON KPAO ECIN TNGD PGOV RS

SUBJECT: GLONASS DEPLOYMENT HAS FULL RUSSIAN GOVERNMENT SUPPORT

REF: (A) STATE 14881 (B) 08 MOSCOW 1233 (C) 07 MOSCOW 1637

MOSCOW 00001423 001.2 OF 005


--------------
Summary
--------------


1. (SBU) At the third International Satellite Navigation Forum in
Moscow from May 12-13, Russian officials took pains to demonstrate
high-level government support for the previously behind-schedule
Russian Global Navigation Satellite System (GLONASS). They assured
the thousand plus government and industry attendees from twenty-five
countries of continued Russian government funding, that GLONASS will
have global coverage as planned by 2012, and encouraged the business
community to develop GLONASS-compatible products in order to benefit
Russia's innovative economy. USG speakers urged GLONASS
compatibility and interoperability with the U.S. Global Positioning
System (GPS) and encouraged expanded worldwide cooperation through
the International Committee on Global Navigation Satellite Systems
(ICG),a voluntary United Nations-backed association that will hold
its fourth major meeting in St. Petersburg in September. Russian
government speakers echoed these same points during the forum, in
contrast to the Russian Federal Space Agency Roscosmos's May 13
proposal that the Russian government ban, or raise customs duties,
on imported cars lacking GLONASS. Russian government forum
participants also did not refer to the May 6 recommendation by major
Russian telecom conglomerate Sistema that the government mandate
GLONASS or dual GLONASS-GPS chips in all cellphones. USG officials
also briefed engineering students at Moscow's prestigious Bauman
Institute on U.S. GPS policies. End Summary.

-------------- --------------
BIG RUSSIAN GOVERNMENT NAMES AND CROWDS AT PLENARY
-------------- --------------


2. (SBU) Russia's third International Satellite Navigation Forum,

held in Moscow's Expocenter from May 12-13, 2009, attracted more
than a thousand government and industry representatives from
twenty-five countries and featured a resounding endorsement of the
GLONASS system by Russian leaders. Deputy Prime Minister Sergey
Ivanov attended in person, giving a dynamic keynote address in which
he underscored Russia's commitment to achieving worldwide GLONASS
coverage by 2012. (Embassy note: Ivanov was a disappointing
no-show at last year's forum (Ref B). In January 2009, he publicly
lambasted the "ineffective" management of the GLONASS program,
expressing personal dissatisfaction with the limited availability of
GLONASS services and equipment on the domestic or foreign market.
End Note.) In a clear show of state support, Ivanov determinedly
assuaged concerns that the GLONASS program was falling behind
schedule, and likely to take a financial hit during the budget
crisis. Ivanov pledged repeatedly in his speech that the Russian
government remained committed to "full funding" for the federal
GLONASS program and "full support" for all federal high-tech
manufacturers and Russian manufacturers of high-tech equipment.
Despite the current financial crisis and ensuing budget cutbacks,
Ivanov insisted that 2009 budgeted funds for GLONASS development
would be "fully preserved."


3. (SBU) Anatoliy Perminov, head of Roscosmos, Russia's Federal
Space Agency, described to plenary attendees GLONASS's "special
place" among Russia's significant innovation projects. Its success
remains Russia's highest priority because its implementation is an
important part of the national infrastructure, supporting both
national security and national economic development. He pledged
that GLONASS's basic civilian signal will remain available for
civilian use, free of charge, with no restrictions, and not liable
to "sequestration" (i.e. jamming) by the military.


4. (SBU) Perminov recounted that since Roscosmos launched the first
six non-prototype (Block IIa) satellites in 1985-86, it has improved
time and frequency standards and increased frequency stability.
According to both Ivanov and Perminov, GLONASS's current 20
satellites provide 100 percent navigation coverage for Russian
territory and 98 percent worldwide coverage, with up to ten-meter
accuracy. Only 18 of the 20 satellites need to be operational to
provide continuous service. In 2009, Russia plans to put 6 more
"GLONASS M" model satellites into orbit (Block 40, numbers 30-31-32,
and Block 41, numbers 33-34-35),elevating the GLONASS network above
the 24 satellite minimum needed for full global coverage and making

MOSCOW 00001423 002.2 OF 005


GLONASS service "more precise, accessible and reliable." Perminov
explained that in 2010, Roscosmos will continue testing its new
generation of "GLONASS-K" model satellites that include improved
features, comparable to "the best in the world," such as a
guaranteed 15-year lifespan, a twofold increase in signal accuracy,
and reduced weight. By 2011, the GLONASS network will reach 30
satellites and will be complete.


5. (SBU) Nikolay Testoyedov, Director General of Reshetnev
Informational Satellite System Company, a Roscosmos contractor,
confirmed that two relay satellites will be launched in 2010-2011
that will allow high-precision (greater than one-meter accuracy)
GLONASS signals to be received throughout Russia as of 2011.
(Embassy note: It was not clear whether Testoyedov was referring to
the expected development of a Russian satellite-based augmentation
system similar to the FAA's Wide Area Augmentation System (WAAS)
which provides enhanced accuracy for aircraft users. End Note).
Luch-5A is expected to be launched in December 2010, Luch-5B in
December 2011. Testoyedov mentioned that as of 2013, GLONASS
satellites would be launched from Russia's Plesetsk spaceport,
rather than from Baikonur in Kazakhstan.


6. (SBU) During the May 12 press conference at the forum, Anatoliy
Shilov, a deputy head of Roscosmos, announced that the Russian
government plans to spend an additional 63 billion rubles
(approximately 970 million U.S. dollars) on GLONASS over the next
three years. (Embassy note: The Russian government allocated 4.7
billion rubles (170 million USD) in 2006, 9.9 billion rubles (360
million USD) in 2007, 10.3 billion rubles (322 million USD) in 2008
on the GLONASS program. Putin signed a directive on September 12,
2008 allocating an additional 2.6 billion U.S. dollars to get full
GLONASS deployment back on track. End note.) Addressing industry
concerns about GLONASS's future, Yuriy Urlichich, General Director
of Federal State Unitary Enterprise "Russian Institute of Space
Device Engineering (FSUE RISDE),one of the creators of GLONASS,
proclaimed that the GLONASS signal would continue to be provided to
the international community "free of charge." Now that the crisis
period for GLONASS was over, Urlichich stated that the expected
federally-targeted program for "GLONASS development for 2012-20"
will provide for GLONASS's continued modernization.

--------------
Compatibility with GPS and Galileo
--------------


7. (SBU) At the invitation of the Vladimir Klimov, Chief Executive
Officer of the GLONASS/GNSS Forum Association, Ray Clore from the
State Department's Oceans Environment and Science Bureau spoke to
plenary attendees on "U.S. Space-Based Positioning, Navigation and
Timing (PNT) Policy and International Cooperation. USAF LtCol
Timothy Lewallen, Acting Chief, PNT Operations Division,
Headquarters, Air Force Space Command, described the "Current Status
of GPS." Both Clore and Lewallen emphasized the key U.S. policy
goal of seeking to ensure that international navigation systems such
as GLONASS are compatible with/do not interfere with U.S. civil GPS
signals and that they are completely interoperable with GPS, so that
global civil users get better capabilities than relying on only one
signal or service. Pieter De Smet, from the European Commission,
briefed on the EU's action plan for its Galileo GNSS system.


8. (SBU) Russian government speakers echoed that they seek
compatibility and interoperability. Citing the enormous potential
of Russian technology sector, and over ten years experience in
making the GLONASS satellite system available to the general public,
Ivanov reaffirmed the government's commitment to making GLONASS
"complementary" to GPS, Galileo, and other Global Navigation
Satellite Systems (GNSS)systems under development. Ivanov added
that when GLONASS is combined with GPS, users get more accurate and
more reliable navigation service. Ivanov stressed Russia's
international efforts, noting that Russia is "heavily engaged with
experts from the United States, EC and European Space Agency" and
has ten bilateral agreements with other partner countries to develop
space and space-based navigation agreements. Emphasizing that
Russia was ready to expand its cooperation with all foreign
partners, Ivanov announced that Russia would chair the Fourth
International Committee on Global Navigation Satellite Systems (ICG)
in St. Petersburg in September where he hoped the parties could
achieve a "mutually beneficial" single standard for open accessible

MOSCOW 00001423 003.2 OF 005


signals. Only by working together, Ivanov added, could the
international community improve quality of life in the areas of
transportation, logistics and navigation. Perminov also confirmed
that Russia will continue to expand international cooperation to
achieve interoperability.


9. (SBU) Boasting that "our GLONASS is as good as GPS," Urlichich
warned audience members against relying solely on GPS as "it does
not always work perfectly due to its complicated signal construction
technology." While pointing out that GLONASS had the advantage of a
higher quality signal in densely populated metropolitan areas,
Urlichich praised the "extremely successful" search and rescue
efforts of more than 25,000 individuals using combined GLONASS/GPS
signals. In his view, GPS and GLONASS were intentionally built "not
to interfere with each other." He urged industry to continue to
develop receivers capable of receiving more than one system calling
the combined multisystem approach "much more robust" than just GPS
reliance. Urlichich saw mutual acceptance of the interoperability
of both GLONASS and GPS as the goal of the 4th ICG in St.
Petersburg.

-------------- --------------
Government Progress but Limited Commercial Availability
-------------- --------------


10. (SBU) In January 2009, Deputy Prime Minister Ivanov complained
that the government's success in developing the orbiting cluster of
GLONASS satellites and ground control centers had gotten far ahead
of the consumer's ability to purchase navigation equipment.
Roscosmos chief Perminov echoed these concerns at the forum. He
announced that there are currently only 27 types of GLONASS-related
civilian equipment on the market, as well as 33 "samples or sample
systems" in development. Although Perminov asserted that GLONASS
was launched specifically for consumer use (Embassy note: GLONASS
was originally devised for military use. End note),he lamented
that the breadth of product availability on the domestic or foreign
market was far from sufficient to satisfy need/demand. Dozens of
Russian and international high-tech companies displayed their wares
at the Forum, such as combined GPS-GLONASS receivers, in the two
large exhibition halls.

11. (SBU) Meanwhile, the government was doing its part, under
strong federal navigation laws, to equip all forms of state-owned
transportation in Russia with GLONASS navigation systems by 2011.
Perminov reported that to date the Ministry of Transportation had
equipped 17 percent of government-owned aircraft, 27 percent of
government-owned automobiles, and 35 percent of government-owned
railroad cars with GLONASS devices. Deputy Minister of
Transportation Vyacheslav Zabelin mentioned that 85 percent of
government-owned passenger vehicles, in the Moscow region were
already equipped with GLONASS navigation devices, and that
considerable progress had been made in other urban hubs, such as
Mozhaisk and Special Economic Zone Dubna. The government was also
in the process of implementing remote monitoring of utility and
hazmat vehicles using GLONASS. Roscosmos and the Ministry of
Transportation are actively working together to prepare to use
GLONASS as the main platform for the 2014 Winter Olympics in Sochi.
Perminov urged the business audience to do its part to help make
GLONASS available for all consumers by 2020. (Embassy Note: Russian
Government Directive 641, adopted on August 25, 2008, "recommends"
that all government agencies and local authorities use GLONASS or
dual GLONASS/GPS devices. Deputy PM Ivanov has highlighted the
Russian government's priority to equip all federal means of
transportation with GLONASS by 2010. End Note.)

12. (SBU) Pavel Sozinov, First Deputy General Designer and Deputy
General Director, OJSC "Concern PVO "Almaz-Antey" spoke about the
prospects for future sales of consumer navigation equipment of
system GLONASS. He said that Russia will have spent 341.5 billion
rubles (approximately 10.7 billion USD) cumulatively by the end of
2011 on the research and development for civilian navigation
equipment and next generation components with the goal of opening up
a larger market for sale of a wider variety of personal navigation
devices (phones, compasses, loggers, taggers, watches, etc). Most
of the approximately 30 navigation devices being produced are on a
mass scale for federal aviation and automotive purposes. But he
predicted there would be over 350 products available on the market
by 2011. He attributed this increase in commercial availability to
the law on navigation activities signed by President Medvedev on
February 14, 2009 that mandates the use of navigation systems

MOSCOW 00001423 004.2 OF 005


(unspecified) for some civilian uses as of January 1, 2011,
including for the transportation of passengers, hazardous materials,
and cargo. By 2015, Sozinov hopes to see 8 million navigation
devices worldwide using GLONASS or a combined GLONASS/GPS signal.
To reach this end, Sozinov called on the Russian government to
reduce taxation and increase loan availability for producers of
navigation devices negatively affected by the dynamic and fickle
market in 2009.
-------------- --------------
USG Speakers Well-Received at Forum and Bauman Institute
-------------- --------------


13. (SBU) Experts from more than twenty private firms led smaller,
less formal discussions on the use of satellite navigation in
aviation, space, sea/river transport, surveying and construction,
railway transport, and motor transport. During these sessions, USG
official speakers Clore and Lewallen had the opportunity to exchange
in useful dialogue with Russian counterparts and to hear reactions
and comments on their presentations. Russian governmental reps were
very positive about the need for continued bilateral cooperation and
also expressed interest in learning more about U.S. multilateral
efforts in Asia and Africa. Russian business interlocutors were
very supportive of the need for system interoperability with GPS.
They were also extremely interested in learning more about the U.S.
National Space-Based PNT Organizational Structure, specifically the
existence in the U.S. of an Advisory Board consisting of members of
industry who work closely with the various governmental agencies to
make the GPS system more user-friendly. Russian producers of
satellite navigation equipment are clearly anxious to play a similar
role here influencing policymakers on GLONASS.


14. (SBU) Aleksander Syomkin, president of satellite navigation
company "Navigator" and a forum presenter, privately complimented
Clore and Lewallen on their informative speeches. In his public
address, Syomkin voiced concerns that GLONASS is potentially
vulnerable to hackers, exposing the Russian government to possible
military and economic threats. Syomkin speculated that the Russian
government, particularly the military, might soon feel compelled to
encrypt or limit GLONASS signals to civilians to minimize security
threats. This would hamper business and commercial development of
equipment. Syomkin advocated that Russia's satellite navigation
industry take responsibility of developing and promoting only top
quality GLONASS and dual GLONASS-GPS products that will safeguard
government security.


15. (SBU) On May 13, following the forum, Statement Department GPS
expert Clore addressed a group of university students at the
prestigious Bauman Institute, also known as Moscow State Technical
University, which specializes in training of scientists and
engineers. Echoing his conference themes, Clore spoke on the status
of GPS and U.S. bilateral and international diplomatic efforts. The
audience of Russian engineering students, several of whom expressed
a desire to pursue careers in satellite navigation, was interested
to learn about the non-competitive nature of GPS, the U.S.
commitment to maintaining its free signal, and various U.S.
bilateral and multilateral diplomatic efforts to ensure that other
GNSS systems do not interfere with GPS. The discussion, which also
included Air Force Space Command's Lt. Col. Lewallen, prompted
follow-up questions on GPS funding levels, GPS accuracy, frequency
of GPS navigator updates, and overlapping frequencies for current
and developing GNSS systems. One student asked whether it might
ever be possible to combine the current four major systems into one
global system. He and the other Bauman students were unaware of the
considerable national pride and financial commitments reflected in
the development of the various GNSS systems.

-------------- --------------
Proposed Mandatory GLONASS Use in Car Imports and Phones
-------------- --------------


16. (SBU) Coinciding with the close of the forum, Roscosmos chief
Perminov proposed in a May 13 letter to the government that the
import of automobiles not equipped with GLONASS or combination
GLONASS/GPS receivers should be prohibited, or at a minimum that the
customs duties should be raised several times. "Only that way can
the national market and Russian producers be protected," Perminov
warned. Although GLONASS use is legally required for all
state-owned vehicles by 2011, no government plans have been

MOSCOW 00001423 005.2 OF 005


announced to make the system mandatory for private vehicles.


17. (SBU) In a similarly protectionist recommendation, head of
telecom conglomerate AFK Sistema Vladimir Yevtushenkov, urged the
Russian government on May 6 to require that all mobile phones and
other gadgets sold in Russia contain chips that are compatible with
both GLONASS and GPS. He suggested offering devices which allowed
consumers to switch to GLONASS alone once it becomes fully
operational in 2010. The Russian government has made no public
comment on this specific proposal and its feasibility other than
making its "full support" for Russian satellite navigation industry
evident at the forum.

--------------
Comment
--------------


18. (SBU) Perminov's and Yevtushenkov's protectionist comments seem
out of sync with DPM Sergey Ivanov's more liberal economic vision of
interoperability and enhanced international cooperation in global
navigation systems. Although many Russian government speakers at
the forum paid lip service to U.S. themes of compatibility and
interoperability for GPS and GLONASS, recent circulating proposals
indicate a strong protectionist undercurrent in the domestic telecom
industry and at Roscosmos. It is not clear whether these views will
hold sway with the government where hopes are very high that Russian
GLONASS, now providing full Russian coverage, can compete
internationally with the U.S. GPS, make inroads in developing
markets, and boost Russia's innovative economy.



19. (U) This cable was cleared by OES Ray Clore.