What OFCOM are proposing is the licensing of an on-board system so that SLF mobiles will talk to a box in the cabin which will then use a satellite system to pipe the signals to the usual phone network. This means that the signal transmitted will be much lower power than if it was trying to access the ground based cells.
OFCOM also acknowledge that EASA. CAA. etc. have not bought into this (yet) and that the certification authorities will have the final word, as they should.
They also said that there should be no need to raise charges, OK - tell that to the LoCos!
VnV...