ETSI TR 122 926 V19.0.1 (2026-02)

5G; Guidelines for extraterritorial 5G Systems (5GS) (3GPP TR 22.926 version 19.0.1 Release 19)

RTR/TSGS-0122926vj01

General Information

• Status: Not Published
• Technical Committee: 3GPP SA 1 - Services
• Current Stage: 12 - Citation in the OJ (auto-insert)
• Completion Date: 17-Feb-2026

Standards Content (Sample)

TECHNICAL REPORT
5G;
Guidelines for extraterritorial 5G Systems (5GS)
(3GPP TR 22.926 version 19.0.1 Release 19)

3GPP TR 22.926 version 19.0.1 Release 19 1 ETSI TR 122 926 V19.0.1 (2026-02)

Reference
RTR/TSGS-0122926vj01
Keywords
5G
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Contents
Intellectual Property Rights . 2
Legal Notice . 2
Modal verbs terminology . 2
Foreword . 5
1 Scope . 6
2 References . 6
3 Definitions and abbreviations . 7
3.1 Definitions . 7
3.2 Abbreviations . 7
4 Overview . 7
5 Overview of territories affected by regulatory requirements on communication . 8
5.1 Introduction . 8
5.2 Country . 8
5.3 Exclusion areas . 8
5.4 Maritime Areas . 9
5.5 Aeronautical Areas . 9
5.6 Extraterritorial Areas . 9
6 3GPP Services/features affected by extraterritoriality . 10
6.1 Introduction . 10
6.2 Public Warning System . 10
6.3 Charging and Billing . 11
6.4 Emergency calls . 11
6.5 Lawful Intercept . 11
6.6 Data Retention Policy in cross-border scenarios and international regions. 12
6.7 Network access . 12
7 5G ET UE location related used use cases . 13
7.1 Introduction . 13
7.2 Regulatory implications for UEs in border regions . 13
7.2.1 Description . 13
7.2.2 Identified applicable regulatory requirements . 14
7.2.3 Potential 3GPP approach . 14
7.3 Regulatory implications for UEs in Vessels . 14
7.3.1 Description . 14
7.3.2 Identified applicable regulatory requirements . 15
7.3.3 Potential 3GPP approach . 15
7.4 Regulatory implications for UEs in Exclusion Areas . 16
7.4.1 Description . 16
7.4.2 Identified applicable regulatory requirements . 16
7.4.3 Potential 3GPP approach . 16
7.5 Regulatory implications for UEs in Extraterritorial Areas . 16
7.5.1 Description . 16
7.5.2 Identified applicable regulatory requirements . 16
7.5.3 Potential 3GPP approach . 17
7.6 Regulatory implications for UEs Migrating between Areas . 17
7.6.1 Description . 17
7.6.2 Identified applicable regulatory requirements . 17
7.6.3 Potential 3GPP approach . 17
8 5G ET Network location related use cases . 17
8.1 Introduction . 17
8.2 Network selection with extra territorialit y . 18
8.2.1 Description . 18
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8.2.2 Identified applicable regulatory requirements . 18
8.2.3 Potential 3GPP approach . 18
8.3 Network access and Exclusion Areas . 19
8.3.1 Description . 19
8.3.2 Identified applicable regulatory requirements . 19
8.3.3 Potential 3GPP approach . 19
9 Guidelines . 20
9.1 Introduction . 20
9.2 Guidelines for handling extraterritoriality in the 3GPP system . 21
Annex A: Change history . 22
History . 23

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Foreword
This Technical Report has been produced by the 3rd Generation Partnership Project (3GPP).
The contents of the present document are subject to continuing work within the TSG and may change following formal
TSG approval. Should the TSG modify the contents of the present document, it will be re-released by the TSG with an
identifying change of release date and an increase in version number as follows:
Version x.y.z
where:
x the first digit:
1 presented to TSG for information;
2 presented to TSG for approval;
3 or greater indicates TSG approved document under change control.
y the second digit is incremented for all changes of substance, i.e. technical enhancements, corrections,
updates, etc.
z the third digit is incremented when editorial only changes have been incorporated in the document.
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1 Scope
The present document identifies use cases and associated guidelines for the provision of services when a 5G public
network has an extraterritoriality access component.
This Technical Report (TR) addresses:
- Use cases and associated conditions generating extraterritoriality of public 5G systems (e.g. HAPS covering
multiple countries, satellite access covering international waters, aeronautical networks),
- 3GPP features (e.g. emergency calls, PWS, LI, charging) and technical aspects (e.g. MCC/MNC, location of
UE/NW) for which extraterritoriality may be relevant, and types of regulations that may be applicable.
- Guidelines on the fulfilment of relevant regulatory requirements (e.g. routing to a core network in a specific
country, use of MCC).
This 900 series TR is meant to serve as the basis for technical work in other 3GPP Working Groups when considering
the above topics. This TR is not normative. It has been developed by SA1 to capture relevant high-level considerations
associated with of the provision of 5G public network and access services in extraterritorial contexts, and provide
corresponding guidelines.
2 References
The following documents contain provisions which, through reference in this text, constitute provisions of the present
document.
- References are either specific (identified by date of publication, edition number, version number, etc.) or
non-specific.
- For a specific reference, subsequent revisions do not apply.
- For a non-specific reference, the latest version applies. In the case of a reference to a 3GPP document (including
a GSM document), a non-specific reference implicitly refers to the latest version of that document in the same
Release as the present document.
[1] 3GPP TR 21.905: "Vocabulary for 3GPP Specifications".
[2] 3GPP TS 22.011: Service accessibility
[3] https://www.un.org/depts/los/convention_agreements/texts/unclos/part7.htm
[4] 3GPP TS 22.268: "Public Warning System (PWS) requirements"
[5] 3GPP TS 22.101: Service aspects; Service principles
[6] Global Maritime Distress and Safety System Manual, 2015 Edition, UN IMO, ISBN 978-92-801-
1624-3.
[7] SOLAS Consolidated Edition, 2020, UN IMO, ISBN 978-92-801-1690-8.
[8] 3GPP TS 33.126: "Lawful interception requirements"
[9] Data Protection & Privacy Laws, https://unctad.org/page/data-protection-and-privacy-legislation-
worldwide, Accessed: 19.10.20.
[10] ITU RADIO REGULATORY FRAMEWORK FOR SPACE SERVICES;
https://www.itu.int/en/ITU-R/space/snl/Documents/ITU-Space_reg.pdf
[11] UN Convention No. 10106 , "Convention on Offences and Certain Other Acts Committed on
Board Aircraft", Tokyo, 14 September 1963, english.pdf> Accessed 11.02.21.
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[12] UN Convention No. 6456, "CONVENTION ON THE HIGH SEAS", Geneva, 1958.
https://sedac.ciesin.columbia.edu/entri/texts/high.seas.1958.html> Accessed 11.02.21[13]
Brisibe, T. C. "International law and regulation of aeronautical public correspondence by satellite",
Doctoral Thesis, Faculty of Law, Leiden University, 2006.
[13] Title 47, Chapter I, Subchapter B, Part 22, Subpart H, §22.925 “ Prohibition on airborne operation
of cellular telephones.” United States Federal Communications Commission.
[14] “Impact of exclusion zone policies on siting base stations: Australian case study analysis”. GSMA,
August 2012.
[15] 3GPP TS 22.119: "Maritime Communication Services over 3GPP system"
[16] HCM Agreement: "Agreement between the Administrations of Austria, Belgium, the Czech
Republic, Germany, France, Hungary, the Netherlands, Croatia, Italy, Liechtenstein, Lithuania,
Luxembourg, Poland, Romania, the Slovak Republic, Slovenia and Switzerland on the co-
ordination of frequencies between 29.7 MHz and 43.5 GHz for the fixed service and the land
mobile service.", agreed by correspondence in 2020, http://www.hcm-agreement.eu/
[17] General Data Protection Regulation: "REGULATION (EU) 2016/679 OF THE EUROPEAN
PARLIAMENT AND OF THE COUNCIL on the protection of natural persons with regard to the
processing of personal data and on the free movement of such data", 27 April 2016
3 Definitions and abbreviations
3.1 Definitions
For the purposes of the present document, the terms and definitions given in 3GPP TR 21.905 [1] and the following
apply. A term defined in the present document takes precedence over the definition of the same term, if any, in 3GPP
TR 21.905 [1].
example: text used to clarify abstract rules by applying them literally.
3.2 Abbreviations
For the purposes of the present document, the abbreviations given in 3GPP TR 21.905 [1] and the following apply. An
abbreviation defined in the present document takes precedence over the definition of the same abbreviation, if any, in
3GPP TR 21.905 [1].
RPOA Recognized Private Operating Agency
NTN Non Terrestrial Network
4 Overview
In some cases, PLMN access can be offered through radio access technologies whose coverage could extend well
beyond the political borders of countries. This is the case for instance with satellite access, and this could also be the
case with High Altitude Platforms. Another example of extraterritorial access is where a PLMN ID is used for a local
network on e.g. a ship or plane travelling in/over international waters. When considering RAN sharing on a satellite
network or High-Altitude Platform, PLMN IDs as authorised by one administration in one country, could also be
transmitted by a RAN another country. A further scenario could be the transmission of an international PLMN ID (as
authorised by ITU according to ITU Rec E.212) over a number of countries territories.
When dealing with services over international waters, aeronautical communications, or terrestrial mobile networks, the
question of which requirements apply to the design and operation of the corresponding 5G system ?.
Extraterritoriality is considered in this document as either:
- the location of the UE and its access to the 5G network;
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- the location of the 5G network for the services to be delivered.
Guidelines have been developed on this basis for 3GPP specified services of 5G public networks.
5 Overview of territories affected by regulatory
requirements on communication
5.1 Introduction
This clause describes different types of territories that are relevant in the discussion of extraterritoriality
5.2 Country
Within the context of the document, a country is defined as the area embedded within a set of borders and for a which a
unique set of regulations applies for the provision of communication services through mobile networks.
For instance, in 3GPP TS 22.011 [2], A Public Land Mobile Network is defined as follows:
"
PLMN
A Public Land Mobile Network (PLMN) is a network established and operated by an Administration or RPOA for
the specific purpose of providing land mobile communication services to the public. It provides communication
possibilities for mobile users. For communications between mobile and fixed users, interworking with a fixed network
is necessary.
A PLMN may provide service in one, or a combination, of frequency bands.
As a rule, a PLMN is limited by the borders of a country. Depending on national regulations there may be more than
one PLMN per country.
"
NOTE: Regulations can apply beyond the land borders of a country. Generally the regulations that apply within
the land borders of a country also apply to the territorial waters (12 nautical miles). Furthermore also
Exclusive Economic Zones (200 nautical miles) should be considered as areas where telecommunication
regulations can apply. Overseas areas can sometimes have the same regulations, but sometimes will have
to be considered as areas with different regulations.
5.3 Exclusion areas
Within a country, some specific areas may be excluded from the general regime which is generally enforced for mobile
communication networks. This exclusion regime may be temporary or not, and may be related to some security or
safety requirements for instance.
Within a country, some specific areas may be excluded from the general regulatory regime which applies to and is
enforced for mobile communications. This exclusion regime may be temporary or not, and may be related to some
national security, heterogeneous use of frequency resources (that is, for policies that do not apply uniformly throughout
a territory), research or safety requirements for instance. An exclusion area has a well-defined extent within a national
territory.
Consideration of Electromagnetic Field regulations for public health are out of scope of this Technical Report. It is
assumed that all deployed equipment, whether UE or base station, will comply with all relevant regulations and
therefore emissions are not a relevant regulatory consideration for 3GPP standards with respect to Exclusion Areas.
Though there are some local governments that pursue exclusion area regulation of this kind, it is a concern both for
users (whose service suffers from lack of nearby deployment of base stations) and service providers (whose planning is
made more complicated.) [14]
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5.4 Maritime Areas
In maritime areas, different regulatory regimes may be applicable according to the type of communication services
considered in Maritime Areas:
- Passenger communications
- Operations (including IoT)
- Maritime Traffic Management
o Surveillance and Tracking
o Bridge voice communication
o Search & Rescue communications
High seas are defined in Reference [3] as a maritime area where no sovereignty can be claimed by any state. (see
Article 89).
Article 94 stipulates further that the duties of a Flag State is to effectively exercise its jurisdiction and control in
administrative, technical and social matters over ships flying its flag. In particular this shall include that the master,
officers .….are fully conversant …with the applicable international regulations concerning … the maintenance of
communications by radio.
5.5 Aeronautical Areas
As for maritime areas, different regulatory regimes may be applicable according to the type of communication services
considered in Aeronautical Areas:
- Passenger communications
- Operations (including IoT)
- Air Traffic Management
- Surveillance and Tracking
- Cockpit voice communication
- Emergency communications
International regulations and standards apply to all but the first category. It is the first category "Passenger
communications" that directly applies to 3GPP standards.
There are two scenarios for Aeronautical areas:
1) Sovereign Airspace
2) International Airspace
The distinction is relevant as different regulations apply.
5.6 Extraterritorial Areas
There are regions that have no territorial claims, e.g. the Antarctic. In these regions, as in the Maritime Areas, no
sovereignty is claimed.
Where territorial boundaries are ambiguous, as in disputed or territorial regions, the regulatory implications are
described in clause 7.2.
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6 3GPP Services/features affected by extraterritoriality
6.1 Introduction
This clause identifies 3GPP services and features that are affected by extraterritoriality and that are considered in the
use cases in this Technical Report (see clause 7 and 8).
6.2 Public Warning System
PWS as described in [4] provides the public with alerts, warnings and critical information regarding disasters and other
emergencies. The general PWS requirements in [4] are supplemented with regional specific requirements for the
Earthquake and Tsunami Warning System (ETWS), the Commercial Mobile Alert System (CMAS), EU-ALERT, and
the Korean Public Alert System (KPAS). There is also an Extended PWS, with additional requirements for UEs with no
user interface or with a user interface that is incapable of displaying text-based Warning Notifications. In addition,
enhancements of Public Warning System (ePWS) is intended to improve the comprehension of a Warning Notification
for users with disabilities or for user who are not fluent in the language of the Warning Notifications.
PWS and its different regional variants are generally covered by regulatory requirements (e.g. laws or other
regulations). These regulatory requirements can take the form of regulations on operators to support PWS and/or in the
form of regulations on devices that are sold in a particular country/region to support PWS. Issues with extraterritoriality
can appear when it is not clear which of the national or regional regulatory requirements apply, e.g. in maritime or
aeronautical areas. This can include that it is unclear whether PWS should be supported and/or which of the regional
versions of PWS must be supported by the operator.
With PWS, Warning Notifications are provided by a Warning Notification Provider. In each country where PWS
services are provided, there are procedures in place to determine who (e.g. which agencies or local authorities) can be a
Warning Notification Provider. It is unclear whether there will be an organisation with responsibility for coordinating
Warning Notifications in extraterritorial areas (e.g. maritime or aeronautical authorities). An alternative is that the
network operator selects which Warning Notifications Provider(s) to use for extraterritorial areas. It is clear that a
satellite operator with a satellite network covering multiple countries and/or extraterritorial areas will have to interface
with multiple Warning Notification Providers.
The Warning Notifications likely include the following five elements:
- Event Description
- Area Affected
- Recommended Action
- Expiration Time (with time zone)
- Sending Agency
The Warning Notification Provider will provide information determining in which area the Warning Notifications
should be distributed. Based on the geographical information indicated by the Warning Notification Provider, it shall be
possible for the operators to define the Notification Area based on their network configuration of the area coverage such
as distribution of cells.
With satellite networks, it is possible that the area covered by a single cell is much larger than a cell area in the
terrestrial network. This can become a problem when satellite coverage and terrestrial coverage overlap. The difference
in coverage areas may cause confusion between users of different types of access that get different messages even
though they are in the same location. Furthermore, satellite users may receive information that is not targeted at the area
they are in. A possible way of addressing these issues is by filtering Warning Notifications on the UE based on Area
Affected information within the Warning Notification and location information available on the UE.
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6.3 Charging and Billing
Several countries have concluded that income deriving from satellite services is income generated within their territory.
This implies that the satellite operator may be subject to paying value added and income tax for the services provided to
customers in that country.
It is therefore important that the charging and billing system of the satellite operator can identify in which country a UE
was located when it was receiving services from the satellite network.
6.4 Emergency calls
Requirements for emergency calls are listed in [5].
Different countries and regions can have different types of emergency calls. Furthermore, similar types of emergency
calls may use different numbers in different countries. [5] provides the following examples:
19  Police (Albania)
100 Police and Fire Brigade (Greek cities)
100 Ambulance and Fire Brigade (Belgium)
112 Police and Ambulance (Italy)
112 General emergency call, all categories (Sweden)
115 Fire Brigade (Italy)
144 Ambulance (Austria)
An issue with extraterritoriality may therefore be that it is not clear which emergency call numbers need to be
supported. Fortunately, the UE will be able to recognize many of the emergency call numbers and translate a call to an
emergency number to an emergency number request. That way on most phones you can either use 911 or 112 to make
an emergency call, irrespective of where you are. Note that this is not the case for all emergency call numbers. A non-
terrestrial network operators will have to take the location of the UE into account to determine which emergency call
numbers apply for which purposes in case the UE has not recognised the emergency call number as a general
emergency call.
One of the main aspects related to extraterritoriality is that emergency calls need to be routed to the correct Public
Safety Answering Point (PSAP). Routing to the right PSAP may be done based on the basis of UE determined location;
it is assumed it is in the best interest also of the UE owner to route to the right PSAP.
A specific issue is to determine what kind of emergency call support should be provided in extraterritorial areas (e.g. at
sea outside territorial waters). Users may expect support for emergency calls in areas where there is no clear PSAP that
would be able to organise an emergency response. For maritime users the GMDSS (Gross Maritime Distress Safety
System) [6] in the context of SOLAS (Saving of Lives at Sea) [7] provides a communication system for emergency
response. Satellite operators may provide both GMDSS and/or terrestrial emergency calls. Note that SOLAS regulations
impose requirements on maritime users but does not impose regulatory requirements on satellite operators to provide
GMDSS and/or emergency calls.
6.5 Lawful Intercept
Interception requirements are subject to national law and international treaties and should be interpreted in accordance
with applicable national policies.
Lawful Intercept requirements may apply both on the HPLMN and the VPLMN. In both the HPLMN and the VPLMN,
the operator will have to provide Intercept Related Information and Content of Communication.
Requirements universally called out in regional interception regulatory requirements are supported by the system
defined in [8]. There may also be requirements unique to a specific region or country.
In many cases, national regulation will require that LI activity is performed entirely within a particular legal
jurisdiction. Specifically information indicating the target of interception, is often not allowed to be provided to
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networks outside the jurisdiction of the particular country of the law enforcement agency that request interception. This
may e.g. imply that the satellite ground station and/or base station and the core network all have to be in the same
country as the UE, unless countries have made specific agreements. It should therefore be possible to route satellite
communication to the right core network based on UE location.
Location Dependent Interception, (LDI) allows a 3GPP network to service multiple interception jurisdictions within its
service area. Multiple law enforcement agencies with their own interception areas can be served by the 3GPP network.
All the information or rules given for interception within a 3GPP network apply to interception within an Interception
Area (IA) when LDI is invoked. A target may be marked in one or more different IAs within the same 3GPP network.
Depending on national requirements, the network operator may be required to report the location of a LI target at the
beginning and end of a call and/or session. It may also be a national requirement for the CSP to report the location:
- during on-going communications;
- for any mobility management event detected in the 3GPP core network which includes a target’s location change
or update.
The location information associated with target communication reported to the law enforcement agency shall be at least
location information trusted by the 3GPP network (i.e. the location information is either 3GPP network derived or
verified).
NOTE: Country-specific regulations may include further requirements on location (e.g. on the frequency of
reporting)
6.6 Data Retention Policy in cross-border scenarios and
international regions
Data protection laws, and in particular data retention policies vary between countries [9]. While many of these laws
refer to financial transactions, use of a mobile telecommunication system in some sense involves charging records
which are directly related to commercial transactions.
Regulations for data retention as part of data privacy and trade law exists for different sovereign states. In some cases
there are negotiated treaties between bordering sovereign states regarding the law applicable in cross-border regions.
The NTN access provider and PLMN operator identify the location of the UE. If the location is ambiguous with respect
to the sovereign state territory in which the UE operates, then a cross-border condition arises. The NTN access provider
and PLMN operator apply the regulations according to the regulations, treaties and conventions that apply to that
particular cross border region. This means, in effect, retaining data according to a specific (single) set of regulations.
Data associated with the UE’s activity, such as charging records and other operational information is maintained
according to international regulations (where no national regulation exists, e.g. on the high seas,) and according to
sovereign state law, where this law applies. Where there is ambiguity, the data retention regulation to apply depends on
international treaties between the neighbouring sovereign states.
6.7 Network access
Countries provide frequency licenses for terrestrial networks. Non-terrestrial networks can cover multiple countries and
extraterritorial areas. When a non-terrestrial network uses spectrum that is subject to licensing in a specific country or
region the non-terrestrial network will have to ensure it has permission from the countries or regions that are covered
[10]. Note furthermore it may be possible that a non-terrestrial network cannot get the same frequency bands in all
countries or regions it covers. Non-terrestrial networks will have to ensure that their use of radio spectrum in each
country or region complies with the frequency license they have in that country or region and the frequency regulation
of the sovereign territories which border that country or region.
Regional/national regulators may also define exclusion areas where non-terrestrial communication is not allowed.
Operators of non-terrestrial network should ensure that their networks do not provide service in exclusion areas. Further
consideration of this is given in clause 7.4 when UEs are in an exclusion area and in clause 8.3 for non-terrestrial
networks operation with respect to exclusion areas.
National regulators can assign numbers and identifiers to the network operator (e.g. Mobile Network Code, IMSI/SUPI
ranges, E.164 numbers). Also the ITU can provide MNCs (with the Mobile Country Code 901) and E.164 numbers
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(country code 88x). Mobile and satellite networks broadcast one (or more in case of network sharing) Mobile Country
Code (MCC) and Mobile Network Code (MNC) combinations. Broadcast of the MCC for one country in another
country should be avoided. This may be a challenge for satellite operators that have large radio cells. An option is to use
the international MCC 901. Using the international MCC is also a good choice for extra-territorial areas.
7 5G ET UE location related used use cases
7.1 Introduction
This clause describes use cases for which Extraterritoriality is expressed with respect to the UE and its access to the 5G
network.
7.2 Regulatory implications for UEs in border regions
7.2.1 Description
This use case considers a common scenario in which the UE operates in a location not definitively within one sovereign
territory. There are regulations that apply to each sovereign territory. How should the UE and network behave in this
situation?
There are two aspects of this use case – frequency regulation and operational regulation (e.g. lawful interception.)
Where there are frequency emissions aspects, there are pre-existing regulations as a result of bilateral or multilateral
negotiations between sovereignties. Where this is not successful, the ITU may be involved. It is therefore assumed that
there are radio emissions restrictions across borders.
Examples of border regions include:
- Along a river or natural feature defining a border
- In disputed territory
- In a border region which is too complex to entirely control all radio transmissions
In ITU regulations this is termed a ‘cross-border’ scenario.
In cross-border scenarios where there is ambiguity (or impossibility to adequately restrict emissions across the borders)
there may be special arrangements, e.g. an exclusionary zone. In a specific example, there are frequencies that are of
concern to Russia, so a treaty with Finland restricts use of these within a number of km of the border it shares with
Russia.
For a UE operating in a cross-border scenario, especially with access provided by a NTN network operator, the situation
is more complex and is treated below.

Figure 7.2.1-1 Ambiguous territory served by NTN access
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Figure 7.2.1-1 depicts an ambiguous strip of territory between two sovereign territories T1 and T2. A UE whose
subscriber is ‘Amalia’ is currently in this cross-border location, between T1 and T2. The NTN network operator
‘BigSky’ provides access to Amalia’s UE. The PLMN that Amalia’s UE will register with is PLMN A. The CN of
PLMN A may be in T1, T2, on the NTN platform or located in a third sovereign territory.
Amalia turns on her UE. The UE registers with access provided by BigSky to PLMN A.
The access, as it straddles T1 and T2, must use frequency that is already in compliance with regulations of T1 and T2.
PLMN A determines Amalia’s UE’s location and determines that it is an ambiguous cross-border region.
In T1, the regulatory regime of T1 applies (e.g. for Lawful Interception.) In T2, the regulatory regime of T2 applies. In
the ambiguous zone it is not clear whose regulations applies. This requires specific consideration, as in some cases,
where there are access restrictions, data retention and privacy laws, mandatory encryption of traffic, etc. the regulations
may not be compatib
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