SPECTRUM MANAGEMENT POLICIES: CANADA

UNCLAS SECTION 01 OF 06 OTTAWA 000617 SIPDIS SIPDIS E.O. 12958: N/A TAGS: ECPS CA SUBJECT: SPECTRUM MANAGEMENT POLICIES: CANADA REF: SECSTATE 225777 ¶1. The GOC's response to the questions posed in SECSTATE 225777 has been sent as an email attachment, with formatting to make the GOC points clearer, to Mr. Frederick Matos, Office of Spectrum Management, National Telecommunications and Information Administration. We recommend that others interested in the GOC response view the formatted document (email madere@state.gov to request formatted version.) Question 1: Responsible Authority: Which organizations are involved in spectrum management in your country? To whom are they responsible - executive branch, legislative branch, military - or are they autonomous? Organization involved in spectrum management: -------------- In Canada, the federal government's Department of Industry (Industry Canada (IC)) is responsible for all aspects of spectrum management. The powers of the Minister of Industry with regard to spectrum management are mainly set out in the following Acts and applicable regulations: the Department of Industry Act, the Radiocommunication Act and the Radiocommunication Regulations, and the Telecommunications Act and the Canadian Telecommunications Common Carrier and Ownership and Control Regulations. The Minister of Industry also acquires a lead role with regard to electronic communications under the Emergency Communications Act. Within Industry Canada, the following branches are involved in delivering spectrum management activities: --the Radiocommunications and Broadcasting Regulatory Branch (DGRB),(headquarter organization) is responsible for licensing, fee setting, regulatory policy, spectrum auctions, spectrum management operations, regional relationships and broadcast certification; --the Spectrum Engineering Branch (DGSE) (headquarter organization) is responsible for the establishment of the technical and engineering basis for the provision and use of the radio frequency spectrum and telecommunication equipment in Canada; --the Telecommunications Policy Branch (DGTP) (headquarter organization) is responsible for developing policies dealing with radio frequency spectrum usage and services in accordance with the objectives of telecommunications as set out in Section 7 of the Telecommunications Act. --Regional and District Offices across the following five regions covering the whole of Canada: Atlantic, Quebec, Ontario, Prairies/Northern, and Pacific, are involved in making a full range of spectrum-related services available to a diverse client base. Other organizations involved in spectrum management: -------------- -- The Canadian Radio-television and Telecommunications Commission (CRTC) is an independent federal agency (regulatory body) governed by the Broadcasting Act and the Telecommunications Act. The CRTC assigns broadcasting licenses (e.g., for radio and television) under the Broadcasting Act following a consultation with Industry Canada which issues the concomitant broadcasting certificates dealing with the technical aspects of the assignment (e.g., antenna specifications, output power limits) under the Radiocommunication Act. Under the Telecommunications Act, the CRTC also oversees the operation of telecommunications carriers and promotes the telecommunications objectives that are set out in Section 7 of the Act. -- The Department of National Defense (DND) is the federal government department having the overall responsibility for the defense requirements of Canada. Industry Canada has an agreement with DND whereby DND is authorized to centrally manage the allocation and use of the 225-400 MHz frequency Qmanage the allocation and use of the 225-400 MHz frequency band. DND must obtain Industry Canada approval for the use of all radiocommunications facilities and must pay license fees. DND uses a large number of shared bands with the private sector. -- The Department of Transport (TC) is the federal government department responsible for maintaining a safe and secure Canadian transportation system. Among its many activities, TC carries out certain frequency coordination activities, e.g., instances involving aeronautical obstruction clearances under the Air Regulations. -- NAV CANADA (NAVCAN) is a not-for-profit private corporation established to ensure a safe and reliable civil air navigations service. Industry Canada and NAVCAN entered into an agreement authorizing NAVCAN to carry out certain frequency management requirements within certain radio bands allocated for aeronautical purposes, e.g., frequency coordination and engineering activities such as compatibility studies. Accountability of organizations involved in spectrum management OTTAWA 00000617 002 OF 006 -------------- Canada is an independent sovereign democracy governed by a constitution which defines a federal system of government; the powers and limits of powers that can be exercised by the different levels of government (i.e., federal and provincial); and the powers of the executive, legislative and judicial branches of government. Canada is governed in accordance to a parliamentary system. The following are the main branches of Canada's Parliamentary System: the Executive Branch consisting of the Prime Minister and Cabinet; the Legislative Branch consisting of the Senate and House of Commons; and the Judicial Branch consisting of the Supreme Court of Canada, the Federal Court of Canada and the Superior courts in the provinces. Executive Branch: The Prime Minister and the Cabinet form the Executive Branch of Parliament. The Executive Branch carries out actions authorized by Parliament and governs the country. Most Cabinet Ministers are responsible for the administration of one or more government departments and report to Parliament on their departments' activities. The Governor in Council acts on advice of the Privy Council and is the formal executive body which gives legal effect to those decisions of Cabinet that are to have the force of law. Within Canada's parliamentary system, the Minister of Industry is a Cabinet Minister of the Executive Branch and reports to Parliament on the activities of the Department. The Minister of Industry is responsible for Industry Portfolio initiatives which aim at fostering the creation and growth of a thriving and innovative economy. As part of these initiatives, IC is responsible for various Marketplace Service Organizations including the Spectrum/Telecom Program. ¶2. Assignment Process: Please describe the mechanism(s) your country uses to assign spectrum (for example, auctions, lotteries, comparative hearings). To what services and/or bands are such mechanisms applied? The following describes the various assignment mechanisms used in Canada and the service and/or bands to which the mechanisms apply: First-Come, First-Served (FCFS) -------------- The FCFS assignment process accounts for more than 95% of the radio licenses currently issued. The FCFS approach is used in instances where there is sufficient spectrum to meet the demand in a given frequency band and where there is no additional measure required to advance particular telecommunications policy objectives. The FCFS assignment process is not automatic and in certain circumstances due to substantial spectrum demand, IC may determine that a competitive licensing process is the preferred assignment mechanism. The FCFS generally applies to: --most point-to-point microwave systems and conventional land mobile systems where a --modest amount of spectrum is required; --individual land mobile frequency assignments; --some point-to-multipoint applications; --all satellite earth stations. Competitive Licensing Processes -------------- Competitive licensing processes (both comparative review and auctioning) have been used to license the following spectrum resources: --most frequency bands for Multipoint Communications Systems (MCS) in urban areas; --spectrum for public mobile telephone service; --spectrum for broadband wireless access applications; --fixed-satellite orbital positions. Comparative Review -------------- A comparative review process is used when the demand for spectrum is expected to exceed the supply or where there is a Qspectrum is expected to exceed the supply or where there is a need to pursue certain telecommunications policy objectives. Comparative review processes were previously used to license Local Multipoint Communications Systems (LMCS) in the 28 GHz range, Multipoint Communications Systems at 2500 MHz and to authorize the development of the Canadian satellite orbital position at 118.7 degrees orbital position. Auction -------------- An auction is used when the demand for spectrum is expected to exceed the supply; when government policy objectives can be fully met through the various means available (e.g. OTTAWA 00000617 003 OF 006 measures such as regulations, conditions of license, utilization policies, standards, and auction rules); and where reliance on market forces to select licensees is deemed to be in the public interest. To date, the following 4 auctions have been held: --Wireless Broadband Communications in the 24 and 38 GHz bands --Additional Personal Communications Services (PCS) spectrum in the 2 GHz frequency range --2300 MHz (Wireless Communications Services - WCS) and 3500 MHz (Fixed Wireless Access - FWA) --2nd Phase - 2300 MHz and 3500 MHz ¶3. Licensing Regime: Please describe your spectrum licensing regime. Are licenses awarded for the provision of a specific service, or a specified technology or standard? Are licenses subject to renewal? Industry Canada issues 2 types of licenses: radio licenses and spectrum licenses. Radio Licenses -------------- Radio licenses are awarded to users, service providers or carriers, based on the type of station used and type of radio service to be provided. In certain cases, the amount of radio frequency spectrum required, or the number of frequencies assigned, and the location of operations are also taken into account. For the most part, radio licenses expire on March 31 of each year and are renewable for a period of 12 months. Radio licenses issued for less than 30 days expire on the day indicated on the licenses and are not renewable. Spectrum Licenses -------------- Spectrum licenses are awarded based on the utilization of specified radio frequencies within a defined geographic area. With spectrum licenses, IC generally provides licensees with the maximum possible flexibility in determining the services they will offer and the technologies they will employ. i) Spectrum licenses assigned by auction: Spectrum licenses issued through auctioning are generally valid for a 10 year period with expectancy of renewal for a further 10 years. (Spectrum licenses would not be renewed on the basis of a breach of license condition, a fundamental re-allocation of spectrum to a new service, or an overriding policy.) ii) Spectrum licenses that are not assigned by auction, but by other mechanisms: With regard to spectrum licenses that are not assigned through auctioning, the licensing term is determined on a case-by-case basis. For example, some point-to-multipoint frequencies providing local network distribution may be licensed on a FCFS basis. ¶4. Licensee Privileges: What flexibility do licensees have (e.g., secondary markets) to transfer their spectrum rights to other parties? May licensees aggregate licenses or subdivide them? May licensees make all or part of their spectrum available to other entities based on geography or time? May licensees accept payment in exchange for spectrum access? Transfer of spectrum licenses assigned on the basis of an auction -------------- The spectrum licensee may transfer its license(s) in whole or in part (divisibility),in both the bandwidth and geographic dimensions to a qualified recipient. Generally, the area transferred may be no smaller than a single spectrum grid cell. (Grid system: For purposes of measuring coverage area, a geographic grid has been developed to standardize the units of measurement for a system's coverage area. A spectrum grid cell is an hexagonal figure with an area of 25 square kilometers. The grid cells fit together in an interlocking pattern over the geography of Canada.) Generally, no minimum limit will be imposed on the Q Generally, no minimum limit will be imposed on the amount of spectrum that can be transferred in the bandwidth dimension. However, limits may be required on the amount of spectrum that can be transferred in the spectrum dimension in order to respect international band channeling plans or other OTTAWA 00000617 004 OF 006 policy needs. The transferee will only receive a license term equal to that remaining on the original license, but will be eligible for the same license renewal provision granted to the original licensee. Under certain circumstances, Industry Canada allows for the desegregation and divisibility of spectrum licenses. Where desegregation of a spectrum license is being considered, a portion of the specified radio frequency block may only be transferred/returned and desegregated when the discrete spectrum portions may be divided, such that the resulting portions remain as assignable blocks of spectrum. Desegregation must be concluded in a manner which allows for the portion(s) of spectrum transferred/returned and remaining to respect the spectrum assignment plans as defined in the applicable policy or Standard Radio System Plan. A notification of transfer is required by Industry Canada for all proposed license transfers including a declaration from all interested parties that the transfer is in compliance with the eligibility criteria and other conditions of license. Licensees accept payments for transfers. Transfer of spectrum licenses -------------- The following conditions with regard to transferability generally apply in cases where a spectrum license is assigned through a licensing mechanism other than auctions. In most cases, the spectrum licensee does not have the enhanced transferability and divisibility rights. However, in view of the fact that one of Industry Canada's objectives is to have the spectrum fully utilized in the market place, an application may be made to the Minister to transfer spectrum licenses to a third party in circumstances where the objective is not met. While the licensee (or trustee) cannot sell the licenses outright, consideration will be given to a request for transfer of the license where the license accompanies other business assets and is being used as part of a going concern. Non-assignability of radio licenses -------------- A radio license cannot be transferred or assigned without the authorization of the Minister. ¶5. Spectrum Fees: What types of fees are imposed on spectrum users? How are fees calculated? Which, if any, spectrum users are exempt from fees? Fees for spectrum licenses assigned through auctioning -------------- Spectrum fees for licenses assigned through auctioning are established by competitive bidding. Fees for spectrum licenses assigned through other mechanisms -------------- Under the Department of Industry Act, the Minister may fix spectrum license fees in respect of the rights and privileges provided. Common to all spectrum licenses is authorization by geographical area(s) and frequency(ies) or frequency block(s),rather than authority for the installation and operation of an individual radio apparatus. Prior to fixing a fee, Industry Canada normally holds a public consultation with all interested parties and the general public to enable a review and discussion of the proposed fee. License fees are based on spectrum management costs where resource rents do not exist. When resource rents do exist, fees will ensure a fair economic return to the public in addition to recovering spectrum management costs. In 2003, Industry Canada established spectrum fees for cellular or PCS spectrum usage as follows: --the fee rate of $0.03512361 per MHz per person over the geographic area of their spectrum license. --The minimum yearly fee for a spectrum license is set at Q--The minimum yearly fee for a spectrum license is set at $1,000. This fee is charged on an annual basis and is payable in full by March 31 of each year. Fees for radio licenses in respect of radio apparatus installed in a station and that authorize the use of certain frequencies: Under the Radiocommunication Regulations, fees for radio licenses are set by the Governor in Council and are determined by the type of station licensed and the type of service used. In certain cases, the amount of radio frequency spectrum required or number of frequencies assigned and the location of operations are also taken into account. OTTAWA 00000617 005 OF 006 The following are the various fees that may be applicable to a radio license: ---an issuance fee (the initial issuance of a radio license) the issuance fee and the monthly fee (see below) are calculated from the month the license is issued to March 31 ---a monthly fee - for the continuance in force of a radio license until the radio license has expired --a renewal fee - the annual fee for the renewal of a radio license (before expiry on March 31 - and renewable for a period of 12 months) --a reinstatement fee - for the reinstatement of a radio license after the license has expired on March 31 (where the fee is paid during the period beginning on Apr. 1 and ending Apr. 30 of the following year; and where the fee is paid during the period beginning on May 1 and ending on Mar. 31 of the following year) --a short-term fee - for the issuance and continuance in force of a radio license for a term of not more than 30 days - not renewable Spectrum users exempted from licensing fees -------------- All radio apparatus must be licensed under the Radiocommunication Act except if only capable of receiving broadcasting or if exempted by the Governor in Council under the Radiocommunication Regulations. For example: --apparatus that is exempted from licensing and no licensing fees apply, e.g.: --radio apparatus that is set out in and meets a standard set out in the License Exempt Radio Apparatus Standards List, as amended from time to time --radio apparatus on board an aircraft --radio apparatus on board a ship or vessel --radio apparatus operated in the amateur radio service at a mobile or fixed station --all radio apparatus that is licensed but exempt from licensing fees must be prescribed by Governor in Council regulation, e.g.: foreign governments that grant a reciprocal radio license fee exemption. ¶6. Treatment of Government versus Commercial Users: Are government or other non-commercial users subject to different rules from commercial users with respect to questions 1-5 above? If yes, please describe. The radio frequency spectrum is allocated and planned to advance public policy objectives while ensuring a balance between public and private radiocommunication use to benefit Canadians. Industry Canada designates spectrum by type of use rather than type of user. This means that various users, including government, can access many bands. In our view, this allows for a more efficient use of the spectrum than portioning it for specific users or groups of users. However, Industry Canada established priorities in the use of frequencies for various radio services. Safety services involve protection of life and property and take precedence over the following. Generally, safety services benefit from non-shared, exclusive use assignments. Preferred services are those established for industrial or business communications purposes, e.g., federal and provincial civil defense systems, provincial and municipal hydro electric power, highways and transportation systems, systems essential to the distribution and maintenance of electrical, oil and gas services, etc. However, under the current regulations, radio license fees are set for classes of radio stations independent from the nature of the licensees. Therefore all users, regardless of their line of business or the nature of the service they provide, are charged the same fee. ¶7. Other Incentives: Please describe what other means (not already identified) are used to encourage more efficient use of spectrum through market-based incentives or other Qof spectrum through market-based incentives or other mechanisms. In recent years Industry Canada has introduced new approaches and policies for the effective management of spectrum: Market-based mechanisms (mentioned above); Spectrum licensing (mentioned above); Other mechanisms (apart from market-based incentives) to encourage more efficient use of spectrum: Spectrum sharing: is employed among services in particular allocations and geographical areas to increase the usage of the spectrum. (Examples of spectrum sharing arrangements: --Sharing by two or more often dissimilar services, that can coexist in the spectrum space in a manner that they derive virtually unencumbered use providing that certain technical sharing parameters are applied, e.g., power limitations, antenna pointing ranges. OTTAWA 00000617 006 OF 006 --Time sharing of the spectrum, e.g., a number of lower usage mobile radio users sharing the same frequency channel; traffic engineering by grouping a large number of users together on multi-channel systems. --Spread spectrum. New technologies: often augment the efficiency and flexibility of the use of spectrum. E.g.: --They are often optimized to meet communication service demands and, as such, they often offer the additional benefit of increasing spectrum utilization. --Software-defined and cognitive radio offer the prospect of increasing flexible spectrum management practices. --The adoption of narrowband technology through spectrum refarming. Certain approaches (efficient techniques): --Under laying radio services using the noise temperature concept to move regulation of interference from transmitters to receivers; --Re-introduction of radio receiver standards. Conditions of licenses: --In certain situations, require research and development (R&D) commitments, i.e., R&D role in bringing new technology to marketplace. --Requirement to implement within a certain timeframe to ensure radio frequencies are utilized efficiently. ¶8. Government Spectrum: If not already addressed above, do the provisions identified above (market-based assignment mechanisms, secondary markets, fees) apply to the management of spectrum used by government agencies or other non-profit entities? Please describe and identify any lessons learned. As mentioned in Question 6, under the current regulations, radio license fees are set for classes of radio stations independent from the nature of the licensees. Therefore all users, regardless of their line of business or the nature of the service they provide, are charged the same fee. However, Priority Users do not have to participate in market-based approaches (e.g., auctions) to ensure that they have the frequencies in the bands designated for priority services. Such users include those whose radiocommunications services are vital to national sovereignty and defense, law enforcement, public safety, and emergency services. Furthermore, Industry Canada will continue to facilitate access to spectrum for certain societal needs which would not be achieved by economic factors alone. Industry Canada endeavors to ensure that spectrum is available for rural and remote areas, e.g., broadband services. ¶9. In-Country Contacts and Studies: Please provide several in-country contacts that are willing to discuss these issues in more detail with us. For each of these contacts, supply his or her name, title, organization, postal address, email address, telephone, and fax numbers. Also, please provide all publicly available spectrum studies of market-based economic mechanisms (such as incentives). Peter Hill, Director, Spectrum Management Operations (613) 980-7176 Fern Lger, Director, Spectrum and Radio Policy (613) 998-4470 Bill Graham, Director, International Telecommunications Policy and Coordination, (613) 998-4478 Visit Canada's Classified Web Site at http://www.state.sgov.gov/p/wha/ottawa WILKINS