Consultation on the Technical and Policy Framework for Radio Local Area Network Devices and Intelligent Transportation Systems

1. Through the release of this document, Innovation, Science and Economic Development Canada (ISED), on behalf of the Minister of Innovation, Science and Industry (the Minister), is hereby initiating a consultation on the technical and policy framework for Radio Local Area Network (RLAN) devices in the 5850-5895 MHz frequency band and for Intelligent Transportation Systems (ITS) in the 5895-5925 MHz frequency band (collectively referred to as the 5.9 GHz band).

2. The Minister, through the Department of Industry Act, the Radiocommunication Act and the Radiocommunication Regulations, with due regard to the objectives of the Telecommunications Act, is responsible for spectrum management in Canada. As such, the Minister is responsible for developing national goals and policies for spectrum utilization and for ensuring effective management of the radio frequency spectrum resource.

3. Wireless communication is an important mode of connectivity for Canadian businesses and public institutions, as well as for Canadians. The advances in wireless communications are enabling new high-quality services and technologies to become increasingly integrated into society and leveraged to enable innovative use cases, including safety-related applications.

4. In this context, ISED is committed to the objective that businesses and public institutions have access to the latest, high-quality wireless services and technologies in a competitive market. A robust wireless telecommunications industry not only drives the adoption and use of digital technologies, it also enhances the productivity of the Canadian economy.

5. In making spectrum available, ISED allocates different frequency bands by taking into account factors such as the existing uses of the band and the objective of enhancing services and promoting connectivity in rural and remote areas. ISED also considers international band allocation, the evolution of wireless technology, current and emerging technical standards, and the ecosystem for network and end-user equipment. As a result, Canadians benefit from having access to a much larger global marketplace, economies of scale, high-quality services and innovative applications, and the timely introduction of these services and technologies across the country.

6. Licence-exempt spectrum has witnessed a significant increase in use and innovative applications due to low barriers to entry and the low cost of licence-exempt devices, including RLAN devices. This has become particularly relevant during the COVID-19 pandemic as Canadians have become increasingly reliant on RLANs (e.g. Wi-Fi routers and hotspots) to enable access to the Internet and other applications on their smartphones, tablets and laptops, as well as for data-intensive activities such as video streaming and multi-player gaming.

7. Given the growing demand for data-intensive applications, Wi-Fi technology also plays an important role in supporting Canadian commercial wireless service providers. Commercial wireless providers rely on Wi-Fi technology to offload traffic from their mobile cellular networks, freeing up network capacity while continuing to provide customers with high-capacity and high-speed networks. Rural broadband service providers, namely wireless Internet service providers (WISPs), leverage licence-exempt spectrum to deliver broadband services to residential and business customers in rural areas. Since the beginning of the pandemic, many WISPs have been dependent on additional Wi-Fi spectrum to alleviate pressures on their networks due to an increased number of their subscribers working and/or studying from home. Further, additional spectrum for licence-exempt use has the potential to support the introduction of next-generation licence-exempt wireless technologies delivering increased capacity and improving reliability for existing and emerging use cases.

8. With respect to wireless usage in transportation, other technologies have the potential to impact the evolution of transportation systems in Canada. These technologies include support for ITS, which will connect people, vehicles, roadside infrastructure and wide area networks to ensure safer, more efficient road transport and transportation infrastructure. For example, one feature of safety related ITS applications enables drivers to quickly receive information about imminent obstructions or dangers, thereby allowing drivers to take action to prevent potential accidents.

9. Fifth generation (5G) mobile network technology is expected to enable the creation and expansion of future wireless applications in vertical industries, including ITS applications to support the transportation sector. As wireless equipment manufacturers and their partners in the automotive and transportation industry widely deploy vehicle safety applications, Canadians will be able to benefit from the economies of scale, and from new applications and services that enhance their safety and security on roads. By ensuring that Canadian policies are developed in a timely fashion that reflect global trends, Canadians will be able to access advanced ITS services as they become available.

10. In developing this consultation, ISED was guided by the Spectrum Policy Framework for Canada (SPFC), which states that the spectrum program objective is to maximize the economic and social benefits that Canadians derive from the use of the radio frequency spectrum resource. This objective and the enabling guidelines listed in the SPFC remain relevant for guiding ISED in delivering its spectrum management mandate.

11. In May 2019, the Government of Canada released Canada's Digital Charter: Trust in a digital world . The Digital Charter lists universal access as the first of ten principles that will lay the foundation for a made-in-Canada digital approach, and guide policy thinking and actions towards establishing an innovative, people-centered, inclusive digital and data economy built on trust. Universal access is the principle that all Canadians will have an equal opportunity to participate in the digital world and have the necessary tools to do so, including access, connectivity, literacy and skills.

12. The Government of Canada is also committed to connecting all Canadians to affordable, reliable high-speed Internet and improving access to the latest mobile services. In 2019, High-Speed Access for All: Canada's Connectivity Strategy set a national connectivity target to make broadband speeds of at least 50 megabits per second (Mbps) download and 10 Mbps upload available to all Canadian homes and businesses. As part of this commitment, ISED is considering the need to support and encourage connectivity for rural and remote communities as it develops new policies and licensing processes for the 5.9 GHz band.

13. The proposals set out in this consultation support the objectives of the Telecommunications Act, the SPFC, the Digital Charter and Canada's Connectivity Strategy by positioning Canada at the leading edge of the digital economy through the release of the 5.9 GHz band to support the development and deployment of emerging and innovative technologies, applications and services for all Canadians. Consequently, ISED's policy objectives for the 5.9 GHz band are to:

• support the provision of wireless services and technologies so that businesses and public institutions, and by extension, Canadian consumers, benefit from greater choice
•  enable the evolution of high-quality networks, including for transportation related applications
• enhance innovation by enabling Canadian companies to develop innovative transportation use cases
• facilitate the deployment of wireless services across the country to promote broadband connectivity

14. Licence-exempt operations in the 5150-5850 MHz (5 GHz) frequency band have seen a rapid increase in demand. Wi-Fi is the most widely used RLAN technology to provide high data rate wireless access over a local area and has enabled low-cost Internet connectivity for subscribers via a wide range of licence-exempt consumer devices. Globally, Wi-Fi devices have been used to support various applications including video streaming and multi-player gaming as well as supporting wireless mobile broadband networks. Faced with the growing demands for data-intensive applications, mobile wireless service providers have become increasingly dependent on licence-exempt spectrum to offload their mobile traffic. Advanced Wi-Fi technology takes advantage of wide channel bandwidths to deliver high speed connectivity to support various applications. For example Wi-Fi 6 technology is able to deliver high speed applications using channel bandwidths up to 160 MHz and future Wi-Fi technologies are envisioned to make use of even wider channel bandwidths.  

15. In response to the growing need to support mobile traffic demands, ISED has coordinated its efforts with domestic and international partners to identify and make available common 5 GHz spectrum in a globally consistent fashion to support Internet connectivity. In addition to these efforts, ISED has also recently published its decision (Decision on the Technical and Policy Framework for Licence-Exempt Use in the 6GHz Band) on the use of the 6 GHz band (specifically the 5925-7125 MHz range), for licence-exempt RLANs. In the 6 GHz band, RLANs share the use of the band with other radiocommunication services and operate using different power levels and various interference mitigation techniques (such as automated frequency control) in different portions of the band. The present consultation on the 5.9 GHz range could further enable the deployment of advanced Wi-Fi technology.

16. In 2004, ISED published the Spectrum Utilization Policy SP 3-30 GHz, Revisions to Spectrum Utilization Policies in the 3-30 GHz Frequency Range and Further Consultation. This policy added a co-primary mobile allocation in the Canadian Table of Frequency Allocations (CTFA) to accommodate ITS services in the 5850-5925 MHz band and furthermore included a designation for use by Dedicated Short-Range Communications (DSRC) technology. These DSRC systems were intended to provide wireless links to transfer information between vehicles and between vehicles and roadside systems. Examples of such information transfer include traffic light control, traffic monitoring, travelers' alerts, automatic toll collection, traffic congestion detection, emergency vehicle signal pre-emption of traffic lights and electronic inspection of moving trucks through data transmissions with roadside inspection facilities. Since the designation of 5850-5925 MHz band for DSRC technology in 2004, DSRC deployments have not significantly materialized in Canada. Similarly, DSRC technology has seen limited deployments in the United States (US) and in other countries around the world.

17. In recent years, the 3rd Generation Partnership Project (3GPP) standard development body has standardized cellular-based technology for ITS services, including those operating in the 5 GHz band. Cellular Vehicle-to-Everything (C-V2X) technology uses 4G Long Term Evolution (LTE) and 5G technology implementations to enable vehicular devices with two modes of communication: direct communication and network communication. C-V2X's direct communication will support information exchanges between vehicles and other vehicles, other road users such as pedestrians and roadside infrastructure. The direct communication mode facilitates roadside safety and traffic management applications such as collision avoidance, pedestrian safety, roadside traffic signaling, etc. In the network communication mode (i.e. Vehicle to Network (V2N)), a wireless service provider's existing network will be leveraged to support different wide area coverage based vehicular applications such as road hazard events and road traffic situations occurring well ahead of the driver's current location.

18. To optimize the use of 5.9 GHz spectrum, while enabling both RLAN and the ITS operations to flourish, ISED is seeking comments on enabling both services in different portions of the 5850-5925 MHz band.

19. In October 1999, the Federal Communication Commission (FCC) designated the 5.9 GHz band for DSRC-based ITS applications and adopted technical rules for DSRC operations. Thereafter, in February 2004, the FCC published its Report and Order (FCC 03-324, WT Docket No. 01-90) establishing licensing and service requirements for DSRC systems in the 5850-5925 MHz frequency band.

20. Since then, DSRC developments in the US progressed slowly and deployments were minimal. The FCC also recognized the considerable increase in the need for licence-exempt spectrum, especially for RLAN technology. As a result, in November 2020, the FCC announced its decision (FCC 20-164, ET Docket No. 19-138) to divide and designate the existing 5.9 GHz band as follows: the lower 45 MHz of this band (5850-5895 MHz) for RLAN use, and the upper 30 MHz (5895-5925 MHz) to be used exclusively by C-V2X based ITS applications.

21. As there are some DSRC devices and some federal radar operations currently deployed in the US in the 5850-5895 MHz range, the FCC indicated that, as of July 2, 2021, it will allow only indoor licence-exempt operations, under specific power and other technical limitations, in the 45 MHz of spectrum. Outdoor operations would be permitted at a later time.  Until then, the FCC may consider requests for outdoor operations through their existing regulatory process for temporary access to the spectrum (e.g. via a Special Temporary Authority and/or a waiver).

22. With regard to ITS technology, the FCC noted the limited deployment of DSRC and the shift toward C-V2X. Consequently, it proposed the use of a single technology that would be most capable of rapid developments and deployment to not only support current transportation and vehicular safety-related applications but also achieve a robust and secure network into the future. The FCC thereby indicated in their rules (FCC's Part 90 Rules) that by July 5, 2022, all ITS authorizations may only operate in the 5895-5925 MHz band. Additionally, the FCC adopted the use of C-V2X technology to deliver ITS services in the 5895-5925 MHz band.  The FCC will establish a deadline to transition from DSRC to C-V2X.

23. As per the CTFA shown in table 1 below, the 5850-5925 MHz frequency band is allocated, on a primary basis to the fixed service, fixed-satellite (Earth-to-space) service and mobile service. On a secondary basis, the 5850-5925 MHz band is allocated to the amateur and radiolocation services. In the past, this band was mostly used for fixed backhaul microwave routes that are now primarily supported in other frequency bands or by optical networks.

24. As can be seen from the excerpts of the related footnotes in table 2 below, industrial, scientific and medical (ISM) applications may also operate in a portion of the 5850-5925 MHz range.

25. In 2004, ISED published the policy decision SP 3-30 GHz, Revisions to Spectrum Utilization Policies in the 3-30 GHz Frequency Range and Further Consultation. This policy decision announced the addition of a mobile allocation for the 5850-5925 MHz frequency band to support ITS applications and designated the use of DSRC systems to support ITS applications in the band. Subsequent to this, in 2006, ISED introduced a moratorium on the licensing of any new fixed systems in the band 5850-5925 MHz in the Spectrum Advisory Bulletin, SAB-001-06, Moratorium on Fixed Services in the Band 5850-5925 MHz.

26. In 2007, ISED published DGTP-003-07, Proposed Spectrum Utilization Policy, Technical and Licensing Requirements to Introduce Dedicated Short-range Communications-based Intelligent Transportation Systems Applications in the Band 5850–5925 MHz, which sought comments on proposals to establish spectrum policy and technical and licensing provisions regarding DSRC systems. Very few comments were received. With the lack of a DSRC ecosystem and limited stakeholder interest at the time, ISED deferred publishing a decision.

27. In 2017, ISED published its Consultation on the Spectrum Outlook 2018 to 2022 soliciting comments on its overall approach and planning activities related to the release of spectrum over the years 2018 to 2022.  While ISED did not propose any changes to the 5 GHz band at the time, it received comments suggesting that different portions of the 5 GHz band be made available for licence-exempt devices. ISED was cognizant of the existing incumbent operations in various portions of the 5 GHz band and the international discussions taking place in preparation for the World Radiocommunication Conference 2019 (WRC-19). Noting these activities, in 2018, ISED published the results of the consultation process in the Spectrum Outlook 2018 to 2022 in which it identified the 5 GHz band as Priority 3, given the international uncertainty and the potential challenges for coexistence with other services.

28. Based on recent developments taking place in the US as well as activities related to RLAN and ITS technologies, ISED now considers the 5.9 GHz band as Priority 1.

6.1 Mobile service

29. As noted previously, in 2007, ISED sought comments on establishing the spectrum policy and technical and licensing provisions related to DSRC systems. However, the decision was deferred and no technical nor licensing regime was established for DSRC roadside units (RSUs) which are devices typically mounted along a road or structure such as a building or overpass.

30. As interest for DSRC devices was renewed in recent years, in 2017 ISED published the Spectrum Advisory Bulletin SAB-001-17, Displacement of Existing Fixed Service Assignments in the Frequency Band 5850-5925 MHz to announce that it will allow vehicle-mounted DSRC devices, also known as on-board units (OBUs), to operate on a licence-exempt basis. Subsequently, Radio Standard Specification RSS-252, issue 1, Intelligent Transportation Systems – Dedicated Short Range Communications (DSRC) – On-board Unit (OBU) was also published to establish the certification requirements of licence-exempt DSRC OBUs  operating in the 5850-5925 MHz frequency band on a no-protection, no-interference basis. Since the publication of this standard,  only a limited number of OBUs have been certified for the Canadian market. To ISED's knowledge, only one automotive manufacturer had integrated DSRC OBUs on-board one vehicle model sold in Canada, however, that vehicle model has since been discontinued.

31. Consequently, there are currently no RSUs authorized to commercially operate in Canada. However, there are 11 developmental licences making use of RSU devices. Of these 11 developmental licences, ten are granted for use in the 5850-5895 MHz, and one is for use in the 5895-5925 MHz range.

32. In addition to ITS operations, there are currently 88 stations authorized on a non-standard basis for telemetry use in the underground subway system in Montréal operating in the 5850-5925 MHz range. This system is used exclusively underground for providing information regarding the subway system logistics including monitoring subway train locations. These systems operate on a no-protection, no-interference basis. These systems and any similar systems would operate on that basis with respect to any authorized or licence-exempt uses arising from this consultation.

6.2 Fixed service

33. As mentioned above, in February 2017, renewed interest in DSRC systems prompted ISED to release SAB-001-17, where it announced the displacement of incumbent fixed systems in the 5850-5925 MHz frequency band. SAB-001-17 also provided for a transition process in which licensees of fixed systems could request the continued operation of particular stations on a no-protection, no-interference basis.

34. Since the release of SAB-001-17, approximately 30 fixed stations located mainly in rural areas of Alberta, which are primarily used for backhaul, remain in the 5850-5925 MHz range and operate on a no-protection no-interference basis.

6.3 Fixed-satellite service (Earth-to-space)

35. Fixed-satellite service (FSS) Earth-to-space systems are allowed to operate on a primary basis in the 5850-5925 MHz. To date, there are no licensed FSS (Earth-to-space) operations in this range.

6.4 Amateur service

36. Amateur radio services are permitted to operate on a secondary basis in the 5850-5925 MHz range and must comply with technical standards outlined in the applicable Regulation by Reference RBR-4, Standards for the Operation of Radio Stations in the Amateur Radio Service. Amateur radio services can operate on a no-protection, no-interference basis with regard to other services in the same frequency band, namely fixed, fixed-satellite and mobile services in the 5850-5925 MHz range.

6.5 Radiolocation service

37. Radiolocation services may operate in the 5850-5925 MHz range on a secondary basis. However, there are currently no radiolocation operations in this range, and ISED is unaware of any planned operations.

38. ISED recognizes that sufficient and appropriate spectrum resources should be made available to ensure that Canadians continue to benefit from advancements in wireless technology. ISED also recognizes the prominent role of RLAN and other licence-exempt technologies that support many aspects of the Canadian economy. Further, ITS technology is becoming central to the increasing automation being applied to ground transportation.

39. 5850-5895 MHz band: Many RLANs currently operate in the 5150-5850 MHz (5 GHz) range. The 5850-5895 MHz band under consideration could be a good candidate for extending the spectrum for RLAN technologies, in most cases using existing devices, to facilitate improved RLAN services with higher broadband capacity. ISED is of the view that extending RLAN operation to the 5850-5895 MHz band would facilitate improved RLAN services with higher broadband capacity. When this range is combined with spectrum already available for RLANs in the lower adjacent band (in the 5725-5850 MHz range) wider channels can be formed to support gigabit Wi-Fi and other advanced RLAN technologies with high throughput and low latency.

40. Through this consultation, ISED is proposing to establish a new spectrum policy and technical framework for licence-exempt RLAN operation in the 5850-5895 MHz band. Taking into consideration the benefits of a broader harmonized equipment ecosystem with the US, ISED is proposing that the 5850-5895 MHz band be made available for licence-exempt RLAN use in Canada. Consequently, ISED is proposing that the ITS designation in the band 5850-5925 MHz be rescinded from the 5850-5895 MHz range. As well, ISED is proposing to modify the CTFA to include the following footnote:

ADD Cxx The band 5850-5895 MHz is designated for use by licence-exempt radio local area networks and devices with prescribed technical specifications and based upon not interfering with, or claiming protection from, primary and secondary services in this band.

41. The proposed revision to the CTFA is shown in table 3 below.

42. 5895-5925 MHz band: Taking into consideration the current status of ITS developments in the US, ISED believes there are significant benefits of harmonizing the use of the 5895-5925 MHz band for ITS with the US. Firstly, for the ITS community, collaboration within the Canadian automotive industry and with US automotive partners could enable joint ITS research and development efforts to quickly and efficiently expedite vehicular applications. Secondly, harmonized use could enable more efficient equipment certification processes, thus enabling quick access to markets and economies of scale. Thirdly, interoperable ITS devices facilitate cross-border operation while maintaining vehicle safety benefits. Consequently, ISED is proposing that the ITS designation in the band 5895-5925 MHz be maintained.

43. The following section provides the proposals related to RLANs and incumbent operations.

8.1 Proposed indoor and outdoor RLAN operations

44. ISED is proposing that all indoor and outdoor licence-exempt RLAN devices have immediate access to the 5850-5895 MHz range once appropriate technical standards are in place. Indoor and outdoor licence-exempt RLAN operations are likely to pose minimal interference concerns on incumbent operations, particularly due to the limited incumbent deployments in Canada and the relatively low power operations of RLAN devices, as discussed below.

8.2 Mobile service

45. As mentioned previously, ITS applications operate under the mobile service. To date, in Canada only a very limited number of vehicle-to-vehicle (V2V) ITS operations have been deployed. V2V communication links can only take place when at least two vehicles are equipped with OBUs. With the low number of OBU deployments in vehicles, the transmission and reception of signals between vehicles are consequently very limited. Thus, it is unlikely that there would be interference issues between currently deployed OBUs in Canada and both indoor and outdoor RLAN use in the 5850-5895 MHz band. As a result, ISED is of the view that a transition plan to displace deployed ITS systems out of this range is not necessary. Therefore, ISED is proposing that existing ITS deployments in the band 5850-5895 MHz may continue to operate under a no-protection, no-interference basis. Furthermore, ISED would no longer allow the certification of new ITS OBU devices in the 5850-5895 MHz range and all future ITS deployments would be limited to the 5895-5925 MHz band. This proposal is discussed in more detail in section 9 of this document.

46. As mentioned previously, there are currently 10 annual developmental ITS licences for RSUs in the 5850-5895 MHz band. ISED does not foresee any interference concerns with these deployments as they operate on a no-protection, no-interference basis.

47. In addition to ITS operations, there is currently a telemetry system deployment to support the Montréal subway system. This system operates exclusively underground and their operation is based on no-protection, no-interference.

8.3 Other incumbent services

48. As mentioned in section 6, other incumbent services in the band include the fixed, fixed satellite service, amateur service, and radiolocation service.

49. Given the limited deployments and their operating conditions, the introduction of RLANs in the 5850-5895 MHz range poses minimal constraints on incumbent operations. ISED, therefore, does not foresee the need to impose any interference mitigation measures.

50. The following section provides the proposals related to the 5895-5925 MHz band for ITS.

9.1 Technology for ITS applications

51. ISED generally aims to harmonize spectrum use with international allocations and standards. Equipment interoperability and minimizing barriers to enter the market are key features to ensure quick access and deployment of the latest equipment and technology. ISED has traditionally been technology neutral and generally does not mandate specific technology standards as part of the technical rules. However, in some cases, ISED has mandated that radio apparatus be certified to specific standards to ensure communication interoperability.

52. In the case of ITS devices, a single technology standard could provide automobile and ITS device manufacturers assurance and focus to develop and deploy ITS services. In the US, the FCC has mandated the use of the C-V2X standard to support ITS applications and is moving away from the use of DSRC, as C-V2X will be using advanced cellular-based technologies to broaden existing vehicle communications capabilities. It should be noted that the C-V2X technology is incompatible with the DSRC standard.

53. Based on Statistics Canada data, between 2015 and 2019, approximately 10 million vehicles from the US entered Canada annually while an additional 20 million Canadian vehicles travelled into the US and returned to the Canadian territory annually. Taking into account the large number of daily and annual crossings of vehicles between the Canadian and US border, aligning communication interoperability between vehicles, roadside units and portable units in both countries would be highly beneficial. Therefore, ISED is seeking comments on whether it should mandate specific ITS technology in Canada.

9.2 Licensing of ITS operations

54. ISED considers different forms of authorizations for radio apparatus and systems. ISED is of the view that the potential approaches that would be best suited for ITS devices operating in the 5895-5925 MHz band are licence-exempt and spectrum licensing. The approaches considered for OBU and RSU are described below in sections 9.2.1 and 9.2.2, respectively.

9.2.1 Approach for on-board units

55. OBUs are expected to be ubiquitous and can operate across the country. As noted previously, the OBUs have been authorized on a licence-exempt basis. ISED is of the view that a  licence-exempt approach should continue to be taken in Canada to maximize the ability of users to access the latest technology and applications, and reduce the burden of licensing individual on-board units. A licence-exempt approach for OBUs would minimize barriers to market entry, as devices need only to meet the technical parameters outlined in appropriate technical standards. The individual devices would not need to be licensed through the ISED licensing process, which may be cumbersome for OBUs as they are not limited to specific geographic areas.

56. In the US the OBU transceivers (both vehicle mounted and portable units) are licensed-by-rule which means that they can operate within the assigned spectrum and in accordance with the applicable technical rules, without a requirement to have an individual licence. Therefore, to support the ubiquitous nature of OBU devices and to minimize barriers to entry, ISED proposes to permit OBUs to operate on a licence-exempt basis, contingent on meeting all applicable technical standards.

9.2.2 Approach for roadside units

57. ISED is considering two options for the licensing regime for RSUs, specifically whether the RSUs should be exempt from licensing or if users should be issued spectrum licences.

Option 1: Licence-exempt

58. With this approach, RSUs would be exempt from licensing as long as the devices meet requirements for the Canadian market based on the development of a future technical standard. The technical standard would include requirements such as channeling, power limits, and unwanted emission limits for which a RSU manufacturer would need to demonstrate their equipment complies in order to be certified for use in Canada.

59. A licence-exempt regime minimizes the administrative burden for operators, as they would not be required to apply for licensing, pay fees, or provide operational and technical information to ISED for the operation of RSUs. Operators would also be able to operate anywhere in Canada using certified RSUs.

60. Although the 5895-5925 MHz band would be designated for ITS, users or operators of licence-exempt radio devices may face some challenges such as operating with radio interference resulting from other licensed or licence-exempt radio users within the same general area. Unlike some forms of licensed radio systems that may operate with increased protection from interference, licence-exempt radio devices operate on a no-interference, no-protection basis in relation to all other radio systems.

Option 2: Spectrum licensing

61. Under a spectrum licensing regime (i.e. geographic area licensing), licence holders are authorized to operate assigned frequencies within a defined geographic service area. The licensee may modify, move, or add to its facilities within the specified geographic area without the need for prior approval from ISED, as long as they are in compliance with ISED policies and technical standards.

62. If a spectrum licence model is chosen, it could help to minimize inter-user interference, which may be a consideration for the safety related aspects of ITS services. Furthermore, ISED could require that RSUs are coordinated with other radio services and/or set technical restrictions on RSUs in order to protect other radio services. With a licensed regime, ISED could also impose conditions requiring licensees to provide ISED with operational and technical data on all stations in order for ISED to keep track of all licences and to provide information that allows other licensees to coordinate their stations and manage interference.  

63. If ISED decides to proceed with a licensing regime for roadside units, it will release a separate licensing framework.

64. ISED could consider a licensing framework that restricts the number of licensees that are able to operate in a given area. Urban areas could be impacted by the restricted number of operators as it may, for example, limit the ability of governments (national, provincial, municipal) or agencies (utilities, waste management) to service the areas.

65. ISED could consider different licensing models (e.g. first-come, first-served or shared). First-come, first-served would provide certainty for licensees and allow for consideration of individual interference scenarios.  Whereas a shared use licensing model  may allow more operators into the band, potentially leading to more competition, enhanced innovation, and more ubiquitous service across the country. However, challenges with interference may arise when operating within the same general area as other operators, which may be a consideration for safety related aspects of ITS services.

66. ISED intends to review the comments received and publish its decision on the issues raised in this consultation. Following the publication of a decision, ISED may launch a future licensing framework consultation to address licensing related issues. Furthermore, ISED will develop the applicable technical standards in consultation with stakeholders.

67. Respondents are requested to provide their comments (in Microsoft Word or Adobe PDF) by email to spectrumengineering-genieduspectre@ised-isde.gc.ca.

68. In addition, respondents are asked to specify question numbers for ease of referencing. Respondents are requested to provide supporting arguments and rationale for each response. Additionally, respondents are requested to take the Canadian context into consideration in their response.

69. Paper submissions should be mailed to the following address:

Innovation, Science and Economic Development Canada
Senior Director, Terrestrial Engineering and Standards
Engineering, Planning and Standards Branch
235 Queen Street, (6th Floor, East Tower)
Ottawa ON K1A 0H5

70. All submissions should cite the Canada Gazette, Part I, the publication date, the title and the notice reference number (SMSE-004-22). Parties should submit their comments no later than April 29, 2022, to ensure consideration. Soon after the close of the comment period, all comments received will be posted on ISED's Spectrum Management and Telecommunications.

71. ISED will also provide interested parties with the opportunity to reply to comments from other parties. Reply comments will be accepted until June 3, 2022.

72. Following the initial comment period, ISED may, at its discretion, request additional information if needed to clarify significant positions or new proposals. In such a case, the reply comment deadline may be extended.

73. All ISED publications related to spectrum management and telecommunications are available on the Spectrum Management and Telecommunications website.

74. For further information concerning the process outlined in this consultation or related matters, contact:

Innovation, Science Economic Development Canada
Senior Director Terrestrial Engineering and Standards
Engineering, Planning and Standards Branch
235 Queen Street (6th Floor, East Tower)
Ottawa, Ontario K1A 0H5

Telephone: 613-797-2253
TTY: 1-866-694-8389
Email: spectrumengineering-genieduspectre@ised-isde.gc.ca