Decision on Repurposing the 26 GHz Band

1. Through the release of this document, Innovation, Science and Economic Development Canada (ISED), on behalf of the Minister of Industry (the Minister), announces the decisions on repurposing the lower 26 GHz band (24.25-26.5 GHz) resulting from the consultation undertaken in Canada Gazette notice SPB-002-25, Consultation on the 26 GHz and 38 GHz Bands (the 2025 Consultation).

2. All comments and reply comments received in response to the 2025 Consultation are available on ISED’s Spectrum Management and Telecommunications website. Comments and/or reply comments were received from:

• AST & Science, LLC (AST SpaceMobile)
• Bell Mobility (Bell)
• Canadian Space Agency (CSA)
• Cogeco Communications Inc. (Cogeco)
• Eastlink
• Environment and Climate Change Canada (ECCC)
• Environmental Health Association of Manitoba (EHA-MB)
• Kris Joseph and Michael B. McNally
• Kuiper Systems LLC (Kuiper)
• Natural Resources Canada (NRCan)
• Nokia
• Peel Regional Police (Peel Police)
• Planet Labs PBC (Planet)
• Prevent Cancer Now (PCN)
• Qualcomm Incorporated (Qualcomm)
• Québecor Média Inc. (Québecor)
• Rogers Communications (Rogers)
• Saskatchewan Telecommunications (SaskTel)
• Space Exploration Technologies Corp. (SpaceX)
• TELUS Communications Inc. (TELUS)
• TERAGO Networks Inc. (TERAGO)
• Terrestar Solutions Inc. (Terrestar)
• Transport Canada Civil Aviation (TCCA) and NAV Canada
• Xplore Inc. (Xplore)

3. 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 policies for spectrum utilization and ensuring effective management of the radio frequency spectrum resource.

4. Wireless services are an important part of Canadians' lives, and now more than ever, Canadians expect them to be high quality, available in every region of the country and competitively priced. Additionally, a robust wireless telecommunications industry drives the adoption and use of digital technologies, facilitates innovation, and enhances the productivity of the Canadian economy.

5. Spectrum is a critical input for wireless service providers. The release of additional spectrum for flexible use (mobile and fixed services) will enable providers to increase network capacity, address growing traffic demands and support the provision of fifth-generation (5G) wireless technologies. Further, preparations are underway for the sixth-generation (6G) of wireless technology, with international developments led by the International Telecommunication Union (ITU) and 3rd Generation Partnership Project (3GPP) shaping its standards. 6G is expected to build on the capabilities of 5G, enabling new applications such as ultra-reliable low-latency services and advanced automation across industries. The development and deployment of millimetre wave (mmWave) 5G and 6G technologies will position Canada to become a global centre for innovation and bring the country to the forefront of digital adoption. This technology presents a key opportunity to support competition and the provision of high quality, innovative, and competitively priced wireless services to Canadians.

6. Beyond improvements to mobile and fixed wireless networks, mmWave 5G and 6G could support the creation and expansion of future wireless applications in industry verticals such as agriculture, manufacturing, healthcare, public safety and transportation. With more spectrum available, Canadians will be able to embrace new applications and services in these industry verticals as they are developed. However, it is still to be determined which business cases will drive ongoing investment in mmWave 5G and 6G networks, and which services and applications will deliver the greatest benefit to Canadians.

7. Testing and demonstrations of different use cases are underway domestically and internationally. Initial international mmWave 5G deployments have mainly been focused on mobile capacity expansions that offer significantly larger bandwidths that can be used to offload demand in areas with a high-density of users and fixed wireless access (FWA) to expand broadband coverage to underserved areas. Additionally, mmWave spectrum is expected to play a key role in delivering ultra-high-speed connectivity and supporting the densification of networks.

8. The release of mmWave spectrum is an opportunity to support investment and improvement of wireless services. Access to large blocks of mmWave spectrum will enable service providers to offer high-speed and high-capacity 5G, and eventually 6G, services to consumers. Additionally, mmWave spectrum presents a key opportunity to continue to facilitate competition at the regional and national levels, furthering a mobile wireless market that has greater choice and competitively-priced offerings for consumers.

9. In addition to mobile and fixed wireless services, satellite services are vital to Canada's telecommunication and broadcasting services. They are currently the only means of reaching some communities in rural and remote areas, where demand for high-quality broadband continues to grow. Further, satellites are being used for Earth observation, including the collection of information to support critical applications such as climate change research, disaster management and environmental protection. Generally, satellite services are expanding their operations in mmWave frequencies to accommodate these growing demands for data-intensive applications that require larger bandwidth. ISED recognizes that this trend will continue with next-generation technologies, helping to bridge the digital divide between rural and urban areas. ISED is of the view that sharing between satellite and flexible use services in the mmWave bands can be facilitated, which will allow Canadians to benefit from innovations delivered by both services.

10. There is significant potential offered by mmWave spectrum to industry verticals through enabling specialized applications such as private networks in small areas. For example, mmWave spectrum may be well-suited for manufacturing sites that use automated operations and robotics, which require large bandwidths, very high data rates and low latency. Private networks would also enable operators to manage their own connectivity and coverage, support a multitude of devices and improve quality of services. Industries may be able to use private mmWave 5G networks in order to develop new business opportunities or facilitate the use of innovative technology.

11. Canadian consumers have the opportunity to benefit from advanced technologies and from the economies of scale that can come when manufacturers produce equipment for many markets. By ensuring that the spectrum available aligns with global trends, emerging 5G standards, future 6G developments, and the continued evolution of the equipment ecosystem, Canada will continue to gain access to the next generation of smartphones and other advanced wireless devices.

12. In developing this Framework, ISED was guided by the Spectrum Policy Framework for Canada (SPFC), which states that the objective of the spectrum program is to maximize the economic and social benefits that Canadians derive from the use of 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.

13. The decisions outlined in this document support the objectives of the Telecommunications Act and the SPFC, positioning Canada at the leading edge of the digital economy through the release of mmWave bands to support 5G and 6G technologies, introducing new applications and services for all Canadians. As a result, ISED's policy objectives for the release of mmWave bands are to:

• enhance innovation by enabling Canadian companies to develop innovative use cases that put Canada at the leading edge of the digital economy
• foster investment and the evolution of wireless networks by enabling the development of high-quality 5G, and expected 6G, networks and technology
• support sustained competition in the provision of wireless services so that consumers and businesses benefit from greater choice, innovative services and competitive prices
• facilitate the deployment and timely availability of services across the country to promote connectivity in rural, remote and northern regions
• facilitate low-barrier access to spectrum to support the needs of new users, including industry verticals
• provide increased flexibility of spectrum use to support a variety of use cases
• ensure areas without active spectrum use are quickly made available to others

14. Different frequencies possess unique propagation characteristics and can be used to offer applications and services that make use of these different characteristics and benefits. In the Spectrum Outlook 2023 to 2027 (the Outlook), ISED noted that the new applications and services that are expected to be made available through the latest 5G technologies will likely require spectrum in different frequency ranges.

15. Releasing spectrum in high-frequency bands will enable service providers to obtain large blocks of spectrum, enhancing the capacity and quality of their networks. To facilitate innovative uses in the mmWave bands, in 2019, ISED published SLPB-003-19, Decision on Releasing Millimetre Wave Spectrum to Support 5G (the 2019 Decision), which outlined the changes to the upper 26 GHz (26.5-27.5 GHz), 28 GHz (27.5-28.35 GHz), and 38 GHz (37.6-40.0 GHz) band plans to accommodate flexible use in the bands and the treatment of existing users.

16. In 2022, ISED published subsequent mmWave consultation SPB-001-22, Consultation on a Policy and Licensing Framework for Spectrum in the 26, 28 and 38 GHz Bands (the 2022 Consultation). In this consultation, ISED proposed to use an auction process to assign 3.2 GHz of spectrum in the 26.7-28.3 GHz and 38.4-40.0 GHz frequency ranges, as well as total of 1050 MHz for a future non-competitive local licensing (NCLL) process in the 26.5-26.7 GHz, 28.3-28.35 GHz, and 37.6-38.4 GHz frequency ranges.

17. ISED has also published policies regarding satellite services in the mmWave bands. The 2019 Decision resulted in interim guideline GL-10, Interim Guideline for Licensing of Earth Stations in the Fixed-Satellite, Earth Exploration-Satellite and Space Research Services in the Frequency Bands 26.5-28.35 GHz and 37.5-40 GHz (GL-10), which set out certain provisions for licensing of satellite earth stations. In April 2021, ISED released SAB-002-21, Moratorium on the Licensing of Earth Stations in the Frequency Bands 26.5-28.35 GHz and 37.5-40.0 GHz in Certain Areas, which placed new geographic restrictions on the location of new satellite earth stations in the mmWave bands. Additionally, in 2024, ISED released SPB-004-24, Decision on the Licensing Process for Existing Licensees in the 24 and 38 GHz Bands and Considerations Related to the mmWave Auction (the 2024 Decision), which implemented an interim moratorium on the issuance of new fixed satellite service transmit earth stations licences in the 25.05-25.25 GHz range, until the lower 26 GHz band (24.25-26.5 GHz) could be repurposed. This moratorium was expanded to cover the 24.75-25.25 GHz range in the 2025 Consultation.

18. In the 2024 Decision, ISED decided to issue new fixed Tier 3 licences to existing fixed licensees in the 24.25-24.45 GHz, 25.05-25.25 GHz, and 38 GHz bands for one-year licence terms, that will be renewed annually until a new licensing process is established for these bands.

19. As part of SPB-002-23, Consultation on the Licence Renewal Process for the 24 GHz and 38 GHz Bands and Preliminary Consultation on Changes to the 24.25-26.5 GHz Band (24 GHz Renewal Consultation), ISED sought initial comments on the repurposing of the lower 26 GHz band as well as additional considerations for the band. Comments received from this earlier consultation will be considered in this decision where appropriate.

20. In March 2025, ISED published SPB-001-25, Addendum to the Non-Competitive Local Licensing Framework to include Spectrum in the 27.5-28.35 GHz Band (2025 NCLL Addendum Decision). This framework provides a broad range of users, including businesses and industry verticals, with the opportunity to acquire licences in localized areas across Canada through an NCLL process. As such, the 28 GHz band is no longer being considered for the upcoming mmWave auction as was initially proposed in the 2022 Consultation.

21. In March 2025, ISED also released the 2025 Consultation which sought comment on proposals related to the repurposing of the 26 GHz band, the auction of mmWave spectrum in the 26 GHz and 38 GHz bands, and the implementation of a future NCLL process in the lower portion of the 26 GHz band. Decisions resulting from the 2025 Consultation will be released through multiple documents, with decisions related to the repurposing of the 26 GHz band found in this decision paper. Decisions related to the future mmWave auction in the 26 GHz and 38 GHz bands can be found in SPB-004-26, Policy and Licensing Framework for Spectrum in the 26 and 38 GHz Bands (mmWave Auction Decision), while decisions on a future NCLL process in the 26 GHz band will be released at a later date.

22. As mentioned in the 2025 Consultation, 3GPP has defined specifications for three 5G New Radio (NR) bands in the 26 GHz and 28 GHz bands: n257 (26.5-29.5 GHz), n258 (24.25-27.5 GHz) and n261 (27.5-28.35 GHz). ISED noted that equipment is available for deployment in the 26 GHz and 28 GHz bands, however, this equipment could only access one of the three aforementioned 3GPP bands. For the 38 GHz band, a single 5G NR band has been defined: n260 (37-40 GHz).

23. 3GPP standards currently support both standalone (SA) and non-standalone (NSA) deployments on mmWave frequencies. ISED recognized in the 2025 Consultation that SA mmWave deployments did not appear to be practical in the short-term owing to a lack of device support and propagation challenges associated with mmWave frequencies. As a result, operators would have to leverage low- and mid-band frequencies as part of their initial deployments in mmWave frequencies.

24. Further, as noted in the 2025 Consultation, 3GPP has specified several advanced 5G features such as ultra-reliable low latency communications, machine-to-machine communications and network slicing in recent years. These advanced technologies could enable industry verticals in areas beyond manufacturing, healthcare, public safety and transportation. ISED stated that it expects that a mix of low-, mid- and high-band spectrum might be needed to take full advantage of these use cases. ISED noted that it also expects that the availability of 5G equipment for industry verticals would be demand driven and determined in part by business cases and investment plans. However, the timelines for widespread availability of equipment enabling these use cases remained unclear.

25. In light of the above, ISED sought comments regarding the maturity and level of readiness of 5G equipment that can be used in the Canadian market, the availability of equipment that can operate across the entire 26 GHz and 28 GHz range, whether low- and mid-band frequencies are expected to enable 5G mmWave deployments, the timeline to achieve SA mmWave deployments, the expected timelines for realization of different advanced 5G use cases, and the role of mmWave frequencies in 6G technology.

Summary of comments

26. Maturity and readiness of 5G equipment ecosystem: Bell, Cogeco, Eastlink, Québecor, Rogers, SaskTel and TERAGO indicated that a limited but evolving mmWave equipment ecosystem supporting the 26 GHz, 28 GHz and 38 GHz bands currently exists. Bell, Cogeco, Eastlink, Rogers and SaskTel cited limited use cases and smartphone support globally – highlighting challenges with propagation, high implementation cost, and a current international focus on deployment in mid-band.

27. Nokia, Qualcomm and TELUS indicated that a relatively mature mmWave equipment ecosystem has developed to support the 26 GHz, 28 GHz and 38 GHz bands. Qualcomm, Québecor, Rogers and TELUS stated that ISED should make the spectrum available for flexible use, arguing that ecosystem readiness is not an issue and that Canadian operators should be able to make use of existing products available in the U.S. and in other jurisdictions.

28. Cogeco, Nokia and Rogers indicated that in terms of equipment availability and user equipment support for band class n257 is slightly more advanced than band class n258 and n260, due to early investments in the U.S., Japan and South Korea. Rogers asserted that the 28 GHz band has the most robust ecosystem globally including in Canada, and suggested that ISED should reverse its decision on allocating 28 GHz for NCLL. Bell indicated that it expects the 26 GHz band to grow faster and be less costly than the 38 GHz band due to the economies of scale related to global adoption of the 26 GHz band.

29. Cogeco, Rogers, TELUS and TERAGO indicated that although user equipment and base stations supporting multiple bands exist, such equipment is limited. Rogers noted that existing equipment is not capable of operating across 26 GHz and 28 GHz simultaneously, however, Rogers predicted that band class n257 will become more widely used in the future and that simultaneous operation across 26.5-28.35 GHz will be possible. Bell, Québecor, Rogers, SaskTel and TELUS indicated the release of regulatory standards is required to foster the growth of a mmWave ecosystem for the Canadian market.

30. SA and NSA deployments in mmWave: Bell, Nokia, Qualcomm, Québecor, Rogers and TELUS indicated that 3GPP standards allow operators to deploy NSA mmWave networks leveraging several combinations of low- and mid-band frequencies (e.g., 600 MHz and 3500 MHz) using dual connectivity. Nokia and TELUS indicated that early deployments in mmWave have been NSA, but that SA deployments will emerge as 5G SA networks are deployed in low- and mid-band spectrum. TERAGO indicated that NSA equipment is deployed by operators in the U.S and Japan, and noted that 5G SA equipment supporting mmWave bands is currently commercially available. Bell and Nokia explained that operating a network using only mmWave frequencies is more likely in FWA applications, and that mobile applications will require dual connectivity with low- or mid-band frequencies due to propagation characteristics in mmWave.

31. Timelines for the realization of 5G use cases: Nokia, Qualcomm, Québecor, Rogers, TELUS and TERAGO indicated that existing and near-term mmWave 5G use cases are focused on user services. In particular, they identified enhanced mobile broadband applications that provide very high speeds in areas with a high density of user devices (e.g., dense urban areas, stadiums, malls, event centres and transportation hubs); and FWA that provide fibre-like speeds in urban, suburban and rural areas. TELUS and TERAGO indicated deployments and trials of mobile and FWA networks in the U.S., Europe, South Korea, the Middle East and Australia. TERAGO also identified private enterprise networks and the industrial internet of things (IoT) as near-term use cases, pointing to trials in the U.S., Europe and Singapore.

32. Nokia, Qualcomm, Rogers, TELUS and TERAGO indicated several long-term use cases for 5G in mmWave spectrum that would be focused on industry verticals, network optimization and enhancing consumer experiences. Some examples included private networks for manufacturing, health care, transportation and logistics; the IoT and vehicle-to-everything; integrated access backhaul; network optimization using artificial intelligence and machine learning; virtual reality, augmented reality and holographic communications; remote video surveillance; and 4K video streaming.

33. Conversely, Bell, Cogeco, Eastlink, SaskTel and SpaceX indicated uncertainty surrounding mmWave use cases, stating that existing deployments for mmWave spectrum are limited globally. Bell, Cogeco, Eastlink and SaskTel stated that mmWave is currently used primarily for FWA and adding capacity in densely populated settings (e.g., stadiums and event venues). Cogeco, Eastlink and SaskTel provided examples of mobile operators in the U.S., Japan and South Korea returning spectrum due to an inability to meet deployment conditions, which they linked to limited mmWave use cases. Bell, Cogeco, Eastlink and SaskTel indicated that both Canadian and international operators are currently focused on mid-band deployment, which will limit the growth of new mmWave deployments.

34. The role of mmWave in 6G technology: Eastlink, Québecor and SaskTel noted that 3GPP has not yet developed 6G standards. Bell indicated that 6G is in early stages of standards development, and TELUS stated that initial 6G standards are expected to be released in 2028 and initial deployments could take place in 2030. Bell, Rogers, TELUS and TERAGO noted that they expect mmWave frequencies to play a crucial role in enabling 6G use cases that are immersive and data-intensive (e.g., extended reality, holography, massive IoT and artificial intelligence driven networks).

35. Bell, Nokia, Qualcomm, Rogers and TELUS noted that all bands utilized for 5G, including mmWave spectrum, will evolve to 6G in the future. However, they also indicated that more spectrum will be necessary to enable new 6G use cases.

Discussion

36. ISED recognizes that there is a limited but evolving mmWave equipment ecosystem that is already available in other jurisdictions such as the U.S. that could be immediately utilized in Canada with the release of appropriate regulatory standards. The availability of this equipment in Canada would allow Canadians to benefit from economies of scale.

37. ISED considers that to project long-term trends on ecosystem and use case development in any particular band is too speculative. Most commenters indicated some uncertainty on timelines and use cases for 5G in mmWave frequencies. While early adoption in the U.S., South Korea and Japan have established a slightly larger ecosystem in the 28 GHz and 38 GHz bands, it is likely that the 26 GHz band will also see growth as more use cases develop due to its wider global harmonization.

38. ISED recognizes that most existing and near-term mmWave deployments will use low- and mid-band spectrum to connect to existing 4G and 5G deployments using dual connectivity owing to propagation challenges that exist in mmWave. ISED also recognizes that current mmWave base stations are not currently able to operate in multiple bands simultaneously (e.g., 26 GHz and 28 GHz). However, ISED notes that such equipment may become available as mmWave deployments grow internationally and the equipment ecosystem matures.

39. This section discusses the changes to the spectrum utilization in the 26 GHz band, including flexible use and changes to the frequency allocation in the Canadian Table of Frequency Allocation (CTFA) in the 24.25–27.5 GHz range.

6.1 Flexible use in the 26 GHz band

40. ISED previously sought comments on repurposing the lower 26 GHz band (24.25-26.5 GHz) for flexible use and its relationship with the other mmWave bands as part of the 24 GHz Renewal Consultation. Multiple stakeholders advocated for ISED to combine the lower 26 GHz band with portions of the upper 26 GHz (26.5-27.5 GHz), 28 GHz (27.5-28.35 GHz) and 38 GHz (37.6-40.0 GHz) bands, which had already been proposed for auction in the 2022 Consultation. In addition, ISED received comments seeking access to the lower 26 GHz band for NCLL. ISED noted in the 2024 Decision that comments received on these issues would be considered as part of a future consultation on the repurposing of the lower 26 GHz band for flexible use prior to finalizing the mmWave licensing framework.

41. As such, in the 2025 Consultation, ISED sought comments on its proposal to adopt a flexible use licensing model for fixed and mobile services in the 24.25-26.5 GHz band.

Summary of comments

42. Most respondents including Bell, Kris Joseph and Michael B. McNally, Peel Police, Qualcomm, Québecor, Rogers, SaskTel, TELUS, TERAGO and Xplore supported the proposal to adopt a flexible use licensing model in the 24.25-26.5 GHz band.

43. Opposition was raised by CSA and ECCC, citing potential impact on satellite users in the bands. In particular, CSA noted that satellites used for Earth observation and scientific data provide significant value to Canadians and suggested that there should be safeguards in place to ensure their ongoing use. CSA further noted that coordinating satellite uses with mobile services is generally more challenging than coordinating with fixed services and that at present, there are additional existing and planned Earth exploration-satellite service (EESS) and Space Research Service (SRS) earth stations in the 25.5-27 GHz range that could be impacted. ECCC was similarly concerned with the potential impact of the transition to flexible use on future development of EESS, particularly in the 25.5-26.5 GHz range. ECCC noted that combined with recent moratoria, the 2025 Consultation’s proposals to prioritize flexible use and place new geographic restrictions on earth station deployments would further restrict the use of EESS from the entire 25.5-27 GHz range. This would impact planned EESS expansions by NRCan, which would be used by ECCC and NRCan, among other users. Given these concerns, ECCC suggested that the stations currently under development should be protected to ensure they can be used in the long-term.

Discussion

44. As discussed in section 5, 5G is expected to include a mix of fixed and mobile services and a variety of use cases in the mmWave bands, ISED previously decided to adopt a flexible use licensing model in the upper 26 GHz, 28 GHz and 38 GHz bands, allowing for the deployment of fixed systems, mobile systems or a combination of the two to meet the demands of Canadians. Additionally, in the 2025 Consultation, ISED implemented a moratorium on the issuance of new fixed, first-come, first-served (FCFS) licences in the lower 26 GHz band.

45. ISED acknowledges the concerns raised by satellite users regarding the impact of flexible use systems on its operations. However, ISED is seeking to maximize the use of the mmWave bands by facilitating sharing among multiple services wherever possible. ISED maintains that sharing between terrestrial and satellite services is feasible in the 26 GHz. To help address these concerns, ISED has outlined specific measures to manage the impact between mobile and satellite operators. These measures are detailed in sections 6 and 9 of this decision.

46. Given ISED's decision to facilitate sharing between terrestrial fixed and mobile services and the relevant satellite services in the mmWave spectrum, ISED maintains that repurposing the lower 26 GHz band (24.25-26.5 GHz) to enable flexible use services and aligning with the other mmWave bands would foster more efficient and intensive use of mmWave spectrum. Notably, this proposal was supported by most stakeholders. As such, ISED is adopting a flexible use licensing model for the lower 26 GHz band, combining with the upper 26 GHz band, which is also assigned for flexible use, to be collectively known as the 26 GHz band (24.25-27.5 GHz).

Decision:

6.2 Use of the 24.25-24.65 GHz band by the radionavigation and radiolocation services

47. In the 2025 Consultation, ISED noted that within the 24.25-24.65 GHz frequency range, fixed, mobile and radionavigation services are co-primary in Canada. It also noted that the inter-satellite service (ISS) is allocated on a primary basis in the 24.45-24.65 GHz frequency range and there is no allocation for radiolocation services.

48. Noting that the current U.S. radionavigation equipment ecosystem does not support the 24.25-24.45 GHz range and that Canadian radionavigation and radiolocation developmental licence users mainly operate within the 24.45-24.65 GHz frequency range, ISED proposed to remove the primary allocation to the radionavigation service in the 24.25-24.45 GHz band and maintain the co-primary allocation to the radionavigation service in 24.45-24.65 GHz.

49. Additionally, in response to stakeholder feedback from the 24 GHz Renewal Consultation about growing requirements for radionavigation and radiolocation services and evolving applications such as security surveillance, critical infrastructure monitoring, law enforcement and drone intruder detection in the 24.45-24.65 GHz band, ISED sought comments on:

• adding a secondary allocation for radiolocation services in this band, to allow for systems that support both radionavigation and radiolocation functions (e.g., dual-purpose radars for drone detection and navigation), while maintaining protection for primary radionavigation operations
• introducing a Canadian footnote to provide radionavigation services with priority over fixed and mobile services sharing the 24.45-24.65 GHz band on a co-primary basis, as follows:
  • ADD Czz: In the frequency band 24.45-24.65 GHz, use of spectrum for radionavigation services will be given priority over the fixed and mobile services sharing this spectrum on a co-primary basis

Summary of comments

50. Primary allocation to radionavigation service: Bell, Québecor, Rogers and TELUS supported ISED's proposal to remove the primary allocation to the radionavigation service in the 24.25-24.45 GHz frequency range, aligning with the U.S. and promoting more efficient use of the spectrum for fixed and mobile services.

51. Québecor, Rogers and TELUS also supported ISED’s proposal to maintain the co-primary allocation of the radionavigation service in 24.45-24.65 GHz. TELUS noted that maintaining the co-primary radionavigation allocation in 24.45-24.65 GHz could help promote the development of innovative Unmanned Aerial Vehicle (UAV or drone) applications. In addition, aligning spectrum allocations and policies with the U.S. can help in developing economies of scale around innovative applications.

52. Secondary allocation to the radiolocation service in 24.45-24.65 GHz: TCCA and NAV Canada highlighted the critical safety role of Airport Surface Detection Equipment (ASDE) in managing ground operations at airports, noting its importance in preventing runway incursions and collisions. They emphasized that, within the International Telecommunication Union Radiocommunication Sector (ITU-R) framework, services supporting safety of life are afforded the highest priority. They also pointed to the International Civil Aviation Organization’s (ICAO) ongoing evaluation of the 24.45-24.65 GHz band for potential use by Detect-and-Avoid (DAA) ground radar systems to support unmanned aircraft and air traffic control situational awareness. To uphold international safety standards, TCCA and NAV Canada recommended a primary allocation for the radiolocation service within the 24.45–24.65 GHz band in order to establish a robust regulatory basis to safeguard ASDE against unwanted interference.

53. TELUS did not object to ISED’s proposal to add a secondary allocation to the radiolocation service in the 24.45-24.65 GHz band and related changes to the CTFA. TELUS indicated that this approach is logically consistent with ISED’s proposal to harmonize Canadian policy on radionavigation and radiolocation with recent developments adopted by the Federal Communications Commission (FCC) in the U.S. Additionally, TELUS noted that the proposed secondary allocation to the radiolocation service would not impose any constraints on existing or future deployments under fixed and mobile service allocations, as secondary services are afforded lower regulatory status compared to primary allocations.

54. Bell and Rogers did not support ISED’s proposal to add a secondary allocation to the radiolocation service in the 24.45-24.65 GHz band, expressing concerns about potential negative impacts on fixed and mobile services. Bell proposed a waiver-based approach, such as the one used by the FCC, to assess radiolocation deployments on a case-by-case basis. Rogers expressed concern that ISED’s proposals could create uncertainty for flexible use licensees and ultimately diminish the potential co-primary status of flexible use in the band.

55. Introducing Canadian footnote for a radionavigation service priority in 24.45-24.65 GHz: TCCA and NAV Canada and TELUS supported ISED’s proposal to add the Canadian footnote Czz to the CTFA if a flexible use licensing model is adopted for the 24.45-24.65 GHz band. TCCA and NAV Canada noted that ICAO has identified this frequency range as a candidate band for DAA systems, which are essential for ensuring safety and collision prevention for both unmanned and manned aircrafts. They emphasized that incidents in these settings have a direct impact on human safety, both onboard manned aircrafts and on the ground. Additionally, TCCA and NAV Canada asserted that the DAA function aligns with the ITU-R perspective that systems supporting air navigation safety of life protection must be afforded a high priority in terms of interference protection and operational reliability.

56. Bell and Rogers did not support ISED’s proposal to introduce footnote Czz in the CTFA. Both expressed concerns that prioritizing radionavigation services could create regulatory uncertainty and limit flexible use deployments by undermining the co-primary status of flexible use licensees. Rogers acknowledged that safety-related radionavigation applications, such as airplane landing assistance, may merit priority access in some limited geographic areas. Rogers further expressed concern that, as dual-purpose equipment for radionavigation and radiolocation is developed, flexible use services could lose their primary status and be relegated to a lower priority to the proposed secondary radiolocation service, increasing regulatory uncertainty. Rogers highlighted emerging technologies like Integrated Sensing and Communication - a feature anticipated in 6G; and noted that use cases such as security surveillance, drone intruder detection, law enforcement/public safety, and critical infrastructure monitoring could be achieved by future flexible use 5G and 6G deployments.

Discussion

57. Primary allocation to radionavigation service: to facilitate the deployment of flexible use systems in unencumbered spectrum, ISED is removing the primary allocation to the radionavigation service from the 24.25-24.45 GHz band. In addition, ISED is maintaining the co-primary allocation to the radionavigation service in the 24.45-24.65 GHz band, recognizing that there is a continued need for aviation and ground safety support.

58. Secondary allocation to the radiolocation service in 24.45-24.65 GHz: ISED notes that the 24.45-24.65 GHz band is critical for the advancement of radionavigation services, while the growing threat of unauthorized Unmanned Aircraft Systems (UAS) operations remains a significant concern for Advanced Air Mobility and ground communities. Allocating radiolocation services in this band on a secondary basis could support a wide range of applications including UAS detection, law enforcement, and critical infrastructure monitoring, without compromising the safety or integrity of radionavigation services. Therefore, ISED will add a secondary allocation to the radiolocation service in the 24.45-24.65 GHz band.

59. ISED further notes that the secondary allocation for radiolocation will not impose any constraints on existing or future deployments under the radionavigation, fixed and mobile service allocations, as secondary services are afforded lower regulatory status compared to primary allocations. This will also provide regulatory certainty to radionavigation and/or flexible use stakeholders, as well as foster innovation in critical communications (e.g., 5G/6G Integrated Sensing and Communication).

60. Introducing Canadian footnote for 24.45-24.65 GHz: in the 2025 Consultation, ISED proposed to give radionavigation services priority over co-primary fixed and mobile services in this spectrum. Considering the need to continue protection for safety applications, ISED maintains that radionavigation services should be given priority over all other services including ISS, which is also a co-primary service in the 24.45-24.65 GHz band.

61. ISED recognizes that radionavigation services are crucial for the safe navigation of manned and unmanned vehicles. Considering potential interference risk to radionavigation applications in the 24.45-24.65 GHz band and future uses promoting UAS innovation, giving radionavigation services priority over all other services would safeguard potential safety aspects of the radionavigation service.

62. ISED is of the view that setting a clear hierarchy (radionavigation services over other co-primary services) allows for more straightforward resolution of regulatory disputes, spectrum access and interference complaints. As such, ISED will adopt and update footnote Czz, as indicated in annex A.

Decision

6.3 Use of the 24.45-24.75 GHz and 25.25-27 GHz bands by the inter-satellite service

63. As noted in the 2025 Consultation, there is a global ISS primary allocation in the 24.45-24.75 GHz and 25.25-27 GHz bands. ISS consists of communications between space stations. There are currently no Canadian space stations filed with this service within these bands.

64. As decided in section 6, the radionavigation service is allocated on a co-primary basis with the fixed, mobile and ISS services in the 24.45-24.65 GHz band. Use of spectrum for radionavigation services will be given priority over the fixed, mobile and ISS services sharing this spectrum on a co-primary basis.

6.4 Use of the 24.65-24.75 GHz band by the radiolocation-satellite service

65. In the 2025 Consultation, ISED sought comments on its proposal to maintain the primary allocation to the radiolocation-satellite (Earth-to-space) service in the 24.65-24.75 GHz band, noting the primary allocation for radiolocation-satellite (Earth-to-space) in the 24.65-24.75 GHz band in ITU Region 2 (i.e., the Americas), and its unique allocation in the CTFA.

66. Additionally, in the 2025 Consultation, ISED sought comments on its proposal to add the Canadian footnote CXX, as shown below, to the CTFA to provide priority to both fixed and mobile services over the radiolocation-satellite service in the 24.65-24.75 GHz band:

• ADD CXX: In the frequency band 24.65-24.75 GHz, use of spectrum for fixed and mobile services will be given priority over the radiolocation-satellite service sharing this spectrum on a co-primary basis. The use of the frequency band 24.65-24.75 GHz by the radiolocation-satellite service (Earth-to-space) is limited to low density deployments of earth stations that will pose minimal constraints upon the deployment of fixed service and mobile service systems.

Summary of comments

67. Bell, Rogers and TELUS generally agreed with ISED’s rationale for keeping the primary allocation for radiolocation-satellite (Earth-to-space) service in the 24.65-24.75 GHz band.

68. Regarding the proposed CTFA footnote CXX for the 24.65-24.75 GHz band, respondents were generally supportive. Bell, Qualcomm, Québecor, Rogers and TELUS all supported the proposed Canadian footnote. They noted the footnote would help promote the deployment of fixed and mobile services in the band.

69. Rogers added that any technical regulations for this band should not unduly constrain the ability to deploy flexible services in this band, particularly if these bands are future candidate bands under the Supplemental Mobile Coverage by Satellite (SMCS) framework.

Discussion

70. ISED notes the general support from commentors for ISED’s rationale to maintain the primary allocation for the radiolocation-satellite (Earth-to-space) service. Although there are no Canadian nor any known international global radiolocation-satellite (Earth-to-space) operations in the 24.65-24.75 GHz band, this spectrum remains the only band in the CTFA allocated to the radiolocation-satellite service. Thus, although it is unclear whether there will be a requirement for this type of service in the future, ISED maintains that preserving this band for satellite (Earth-to-space) services is essential to support potential future deployments and enable harmonization with the ITU Region 2 allocation. Consequently, ISED will maintain the primary allocation for the radiolocation-satellite (Earth-to-space) service in the 24.65-24.75 GHz band.

71. ISED further notes the general support from commenters for the addition of the Canadian footnote CXX to the CTFA to provide priority to both fixed and mobile services over the radiolocation-satellite service in the 24.65-24.75 GHz band.

72. ISED maintains that sharing of spectrum between flexible use services and radiolocation-satellite earth stations in the 24.65-24.75 GHz band can be managed through the application of priorities, as well as appropriate earth station licensing rules and procedures. Given this, ISED intends to facilitate the deployment of radiolocation-satellite earth stations, if licensing applications are received, while ensuring that minimal constraints are placed on the future deployment of fixed and mobile services. To achieve this, and in alignment with the 2019 Decision, ISED will add the proposed Canadian footnote CXX to provide priority to both the fixed and mobile services over the radiolocation-satellite service in the 24.65-24.75 GHz band.

Decision

6.5 Use of the 24.75-25.25 GHz band by the fixed-satellite service

73. In line with decisions made in the 2019 Decision, ISED notes that mmWave spectrum can be shared between terrestrial services and fixed-satellite services (FSS) by adopting rules that facilitate the deployment of FSS earth stations and ensure that minimal constraints are imposed on fixed and mobile services. As such, in the 2025 Consultation, ISED sought comments on proposed changes to the CTFA:

MOD C44: (CAN-18) The use of frequency band 25.05-25.25 GHz by the fixed service and mobile service has priority over the use by the fixed-satellite service. Fixed-satellite service implementation in the band 25.05-25.25 GHz will be limited to applications which will impose minimal constraints upon the deployment of fixed service and mobile service systems, such as those using a small number of large antennas for feeder links to the broadcasting-satellite service and/or for gateway applications in the fixed-satellite service.

MOD C47A: (CAN-19) In the frequency bands 24.75-25.05 GHz and 27.0-28.35 GHz, use of spectrum for fixed service and mobile services systems will be given priority over fixed-satellite service systems sharing this spectrum on a co-primary basis. The use of the frequency bands 24.75-25.05 GHz and 27.0-28.35 GHz by the fixed-satellite service (Earth-to-space) is limited to low density deployments of earth stations, such as gateways, that will pose minimal constraints upon the deployment of fixed service and mobile service systems.

74. In addition to this proposal, ISED adopted an interim moratorium on the issuance of new FSS licences in the 24.75-25.25 GHz band through the 2024 Decision and the 2025 Consultation, meant to ensure that the band would remain unencumbered until a decision on repurposing the 26 GHz band is adopted.

Summary of comments

75. The majority of the comments received supported ISED’s proposed modifications to footnotes C44 and C47A in the CTFA. Bell, Qualcomm, Québecor, Rogers, TELUS and TERAGO expressed support for prioritizing fixed and mobile services over FSS in the 24.75-25.25 GHz band. Bell, Qualcomm, Rogers and TELUS highlighted that the proposed changes would minimize interference and increase regulatory certainty that would facilitate rapid deployment for flexible use systems.

76. TERAGO added that FSS requiring access to the 26 GHz spectrum should preferably use other spectrum segments (24.75-25.05 GHz and 27.5-28.35 GHz) outside the planned auction spectrum.

77. SpaceX recommended against limiting satellite service access in mmWave bands, including those covered under footnotes C44 and C47A, to prioritize flexible use systems. SpaceX argued that this could harm satellite broadband benefits and urged reconsideration of limits on satellite earth station deployments.

Discussion

78. ISED notes that the majority of responses were in favour of ISED’s proposed prioritization of fixed and mobile services in the 24.75-25.25 GHz band. ISED will update Canadian footnotes C44 and C47A in the CTFA so that fixed and mobile services have priority over FSS in the 24.75-25.25 GHz band.

79. As indicated, ISED had implemented an interim moratorium on the issuance of new FSS transmit earth stations in the 24.75-25.25 GHz range to ensure the band remains unencumbered until a decision on the repurposing of the 26 GHz band is released. Having established this decision, ISED will end the moratorium and resume licensing new FSS transmit earth stations in the 24.75-25.25 GHz band.

80. The coexistence requirements between FSS earth stations and flexible use systems will be detailed in the flexible use licensing framework(s) for the 24.75-25.25 GHz range.

Decision

6.6 Use of the 25.5-26.5 GHz band by the Earth exploration-satellite service and space research service

81. In the 2025 Consultation, ISED recognized a steady global increase in EESS deployments in the 25.5-27.0 GHz band. As a result, ISED sought comments on the current interest in using the 25.5-26.5 GHz band for EESS in Canada, including any specific needs from federal bodies or agencies and/or geographical areas most suited for meeting such needs. Comments were also sought on the planned EESS use of this band, both in the short-term (i.e., beyond the next five years) and long-term.

82. To minimize constraints on future deployment of fixed and mobile services while facilitating the deployment of EESS/SRS earth stations, ISED sought comments on the proposed modifications to Canadian footnote C47C, as shown below:

MOD C47C: (CAN-19) In the frequency band 256.5-27.0 GHz, use of spectrum for fixed service and mobile service systems will be given priority over Earth exploration-satellite service and space research service systems sharing this spectrum on a co-primary basis. The deployment of earth stations of the Earth exploration-satellite service and the space research service in this band will be limited to a small number of earth stations that will pose minimal constraints upon the deployment of fixed service and mobile service systems.

Summary of comments

83. Current and future EESS interest in band: The EESS community expressed strong interest in using this band for EESS in Canada. Planet highlighted that its existing earth stations use this band to download data from remote sensing satellites. Among Canadian federal bodies and agencies, ECCC highlighted its use of EESS data from commercial operators’ earth stations operating in this band. ECCC further identified upgrades being completed at three sites (i.e., Inuvik, NWT; Prince Albert, SK; Gatineau, QC) that are shared with CSA and NRCan to support EESS in this band. ECCC emphasized the importance of EESS data for environmental monitoring and forecasting, including weather prediction and severe weather alerts. CSA noted that other federal departments also rely on this data for operational needs, with applications in agriculture, public safety and defence.

84. Planet confirmed that current operations would continue and potentially go beyond the proposed ten years. CSA, ECCC and NRCan outlined several federal projects planning to use this band to support high-capacity next-generation Earth observation systems. They further indicated that, while the three upgraded sites would support those projects, additional locations are planned in order to improve coverage and reduce latencies.

85. Regarding geographical areas most suited for meeting the needs of EESS, Planet, CSA, ECCC and NRCan indicated that they would prioritize deployment of their earth stations at locations with reliable access to high-speed and high-capacity data dissemination. Planet also sought locations sufficiently isolated from radiofrequency noise and with a sufficiently open view of the sky to permit tracking and communications with satellites. CSA and NRCan echoed the need for limited interference from other services, given the band’s susceptibility to atmospheric attenuation.

86. Proposed modifications to Canadian footnote C47C: Bell, Rogers, TELUS and TERAGO supported ISED’s proposal to modify footnote C47C to prioritize fixed and mobile systems over EESS/SRS in the 25.5-26.5 GHz band. Bell, Rogers and TERAGO highlighted the importance of prioritizing the deployment of flexible use services to provide regulatory certainty and enable deployment in areas where such services are expected. Rogers added that there is a need to minimize any current or potential future impacts of EESS on flexible use systems by limiting EESS deployments near major urban centres, transportation hubs, locations where large numbers of Canadians gather, and rural and remote industrial sites. Bell emphasized that clear coexistence mechanisms to minimize hindrances for fixed and mobile services while protecting existing deployments are possible. Bell referenced GL-10 and the FCFS process for the 28 GHz band as effective examples and noted that similar frameworks can be applied across the lower 26 GHz band.

87. CSA, ECCC, NRCan and Planet opposed giving priority to fixed and mobile systems over EESS/SRS, arguing that further restricting EESS/SRS use threatens critical governmental and scientific missions, such as climate monitoring and disaster management. ECCC noted the lack of viable spectrum options for high bandwidth EESS systems and that there would be operational impacts if EESS is limited to rural/remote areas. Planet argued that it is unnecessary and premature to identify additional spectrum in 25.5-26.5 GHz for terrestrial mmWave deployment when existing spectrum allocated for flexible use has not been deployed. In response to Planet’s argument, Rogers asserted that the lack of current deployment in mmWave bands is due to spectrum not yet being licensed, not a lack of industry interest.

88. CSA, ECCC and NRCan emphasized the need for protection measures for EESS systems, arguing the spectrum available for these services is already limited and that existing or planned stations in the 25.5-27 GHz range are essential.

89. TELUS indicated that sharing between EESS and flexible use systems can be managed through geographic restrictions and saw no reason to treat EESS differently from FSS given that most EESS stations are located in rural and remote areas where ISED’s proposed geographic restrictions are relaxed.

Discussion

90. As discussed in section 6.1, ISED is making the 26 GHz band available for flexible use. However, ISED also recognizes the importance of the 25.5-27.0 GHz band for EESS and SRS applications in Canada, and that such applications must continue to be supported given their important role in scientific, environmental, and public safety missions across Canada. Currently, there are only two EESS bands available for data downlink, the 8025-8400 MHz and 25.5-27 GHz bands, and ISED notes the comments received indicating that the 25.5-27.0 GHz band is the only one capable of supporting next-generation, high-capacity operations at wider bandwidths. ISED recognizes that both commercial and federal EESS users prefer earth station sites with reliable access to backhaul networks such as fibre links, a criterion that may overlap with deployment locations preferred by flexible use operators.

91. With these considerations in mind, ISED is committed to balancing the needs of EESS and flexible use services in the same band. As discussed in section 6, ISED remains of the view that coexistence between flexible use and EESS earth stations is feasible with appropriate coexistence rules. ISED will adopt the changes to the Canadian footnote C47C, as outlined below, to give fixed and mobile services priority over the co-primary EESS and SRS systems. While ISED is giving priority to fixed and mobile services in the 25.5-27 GHz range, there are specific sites across Canada within which existing and future EESS operations will have priority and will be protected. The locations and protection measures for these specific sites will be outlined in the future licensing framework and technical rules for the 26 GHz band.

Decision

92. In the 2025 Consultation, ISED proposed an auction process to assign 2.4 GHz of spectrum in the 25.1-27.5 GHz range of the 26 GHz band and another 2.4 GHz of spectrum in the 37.6-40.0 GHz range of the 38 GHz band. In addition, ISED also proposed to include 850 MHz of spectrum in a future NCLL process(es) in the 24.25-25.1 GHz range of the 26 GHz band.

Summary of comments

93. Spectrum for auction: Supporters include Qualcomm, Québecor, Rogers, SaskTel, TELUS and Xplore. In general supporters argued that auctions maximize market forces in allocating spectrum, and that they can maximize the utility of the spectrum by ensuring that it is allocated to those most likely to use it efficiently. Additionally, Xplore noted that an auction would help operators meet the higher spectrum needs required for increasing data consumption demands, including in rural and remote areas.

94. TERAGO argued that too much spectrum was being included in the auction process. It believed that this would allow national service providers to hold too much spectrum, reducing opportunities for smaller service providers.

95. Bell, CSA, Kris Joseph and Michael B. McNally, Peel Police and SpaceX opposed auctioning the spectrum, and instead suggested that ISED explore other approaches to license the spectrum.

96. Notably, Bell indicated that given limited interest in the 38 GHz band globally, ISED should only auction 3.2 GHz of spectrum between 24.25-27.45 GHz, which Bell considered to be higher value spectrum. Furthermore, Bell indicated that auctioning both the 26 GHz and 38 GHz bands would nearly double deployment costs. Bell suggested that the licensing of the 38 GHz band could be revisited for future 6G needs.

97. Both CSA and SpaceX cited concerns regarding the impact of an auction on satellite services. CSA argued that the mmWave ecosystem has not matured enough for an auction, that high spectrum costs would burden operators, and that ISED should instead focus on protecting the 25.5-27 GHz range for Earth observation use cases. SpaceX similarly argued that the ecosystem was too immature for an auction, and contrasted this with the immediate needs from next-generation satellite operators who can use the spectrum to expand high-capacity, low-latency services via satellite.

98. Kris Joseph and Michael B. McNally argued that auctions are outdated and are not an optimal allocation method, believing that they inflate prices, limit access to spectrum, and impede innovation by largely precluding access of public sector and non-profit organizations. Instead, they suggest that other licensing processes like FCFS, private networks, or comparative review may be better licensing mechanisms than an auction. Peel Police did not oppose the auction itself, but argued for a public safety set-aside equal to the cross-band cap (either 800 or 1200 MHz) in specific Tier 5 areas of significant use. It argued that doing so in the auction portions of the band would allow public safety users to leverage the same equipment ecosystem and technical parameters available to commercial users.

99. Spectrum for NCLL: Comments were again split on the amount of mmWave spectrum proposed for NCLL. Those who supported ISED’s proposal did so for a variety of reasons and included ECCC, Kris Joseph and Michael B. McNally, Qualcomm, TERAGO and Xplore. ECCC supported the use of the NCLL process as it believed that this licensing approach favours low power options which mitigate interference risks with satellite operations. In addition to their general support, Kris Joseph and Michael B. McNally suggested that ISED add a similar range for NCLL in 38 GHz. Qualcomm noted that NCLL can facilitate the rapid deployment of spectrum for mmWave use cases like surveillance, smart factories and augmented/virtual reality applications. In its reply comments, Xplore reiterated support for using an NCLL process in the frequency range, and opposed calls from other service providers to use alternative processes. It argued that the current approach strikes a good balance between giving regulatory certainty for operators with immediate spectrum needs while allocating spectrum to an NCLL process for future innovative use cases.

100. While TERAGO supported the use of NCLL in the 24.25-25.1 GHz range, it raised concerns that only allowing time division duplex (TDD) systems could disrupt its frequency division duplex (FDD) based links. Therefore, it suggested that ISED should either allow both FDD and TDD to coexist, or it should grandfather the existing FDD links that it operates, requesting a minimum five-year transition period. TERAGO’s FDD proposal was opposed by Québecor in its reply comments. Additionally, TELUS did not object to the use of NCLL in this frequency range, however it argued that ISED should first use the 28 GHz NCLL process to gauge demand for mmWave NCLL prior to opening the 26 GHz band for the same licensing process.

101. Opposition to the NCLL proposal came from Bell, Québecor and Rogers, all of which argued that the ecosystem was not mature enough to warrant licensing at this time, or that the existing amount of spectrum allocated for NCLL was sufficient. In particular, Bell argued that allocating an additional 850 MHz of spectrum for an NCLL approach in the 26 GHz band was sub-optimal, pointing to the 850 MHz already allocated in 28 GHz band. Both Québecor and Rogers argued that this proposal would result in too much spectrum allocated through an NCLL process, with Rogers further arguing that a competitive mechanism is necessary to ensure spectrum is assigned to the most efficient and valuable use. If ISED proceeds with its proposal, Rogers suggested that ISED should reverse its decision to use a NCLL process in the 28 GHz band and auction it instead.

Discussion

102. ISED anticipates demand for different types of applications and services for flexible use licences in the mmWave bands. As indicated in the Spectrum Policy Framework for Canada, ISED has adopted a policy objective to maximize the economic and social benefits that Canadians derive from the use of the radio frequency spectrum resource. One of the enabling guidelines under this objective recognizes that market forces should be relied upon to the maximum extent feasible. As detailed in the Framework for Spectrum Auctions in Canada, with due regard to this policy and guideline, ISED will generally consider the following broad conditions in determining whether an auction process will be used as the spectrum assignment mechanism:

• whether the demand for spectrum is expected to exceed the available supply in which case an auction acts effectively as a FCFS process in the cases where supply exceeds demand
• whether government policy objectives can be fully met through the use of an auction

103. While ISED acknowledges concerns surrounding the use of an auction process, ISED maintains that this market-based approach is the most appropriate method for licensing large amounts of mmWave spectrum that are expected to be used to provide commercial mobile and fixed wireless access services. Additionally, while uncertainties of use cases and demand still exist, ISED maintains that an auction is the most effective way to determine spectrum demand, allowing the market to determine where the spectrum is most valuable and providing greater flexibility and certainty for the flexible use operators who will be investing in the development of use cases.

104. As such, ISED will make 2.4 GHz of spectrum available in the 26 GHz band (25.1-27.5 GHz), along with 2.4 GHz of spectrum in the 38 GHz band (37.6-40.0 GHz) through a single auction, as detailed in the mmWave Auction Decision.

105. ISED recognizes that supporting strong industries requires access to the spectrum needed to deploy the latest technologies. ISED has seen a rise in demand by industries for high-performance private wireless networks that support mission-critical industrial operations, such as real-time monitoring and IoT. As such, ISED maintains its position that allocating additional spectrum for an NCLL process will further enable wireless operators and non-traditional users to deploy localized high-speed and high-capacity 5G services. Allowing for additional means of acquiring a licence enables spectrum to be available for future users and new use cases as they develop.

106. Therefore, ISED will also make 850 MHz of spectrum available in the 26 GHz band (24.25-25.1 GHz) for NCLL. This is in addition to the 850 MHz of spectrum in the 28 GHz band that will be made available through the NCLL process described in the 2025 NCLL Addendum. Details of the NCLL approach for the 26 GHz spectrum, including coexistence with other services, eligibility, spectrum limit and deployment requirements will be released at a later date.

107. While some respondents argued that ISED was proposing to release too much spectrum for NCLL in the mmWave bands, ISED notes that the mmWave auction is set to be Canada’s largest spectrum auction to date in terms of the quantity of spectrum available. Based on current equipment and the use of mmWave spectrum in other countries, ISED expects that 4.8 GHz of spectrum will be sufficient access to competitively licenced spectrum in the 26 GHz and 38 GHz bands to meet mobile service providers’ needs for 5G deployment while allowing them to plan for their future evolution to 6G.

108. While details of the band plan including block size will be detailed in separate documents, a simplified 26 GHz band plan indicating the auction and NCLL frequency ranges can be found in figure 1.

Figure 1:

109. In 2014, ISED published the New Licensing Framework for the 24, 28 and 38 GHz Bands and Decision on a Licence Renewal Process for the 24 and 38 GHz Bands which introduced a FCFS licensing process for the 24.25-24.45 GHz and 25.05-25.25 GHz bands. In D1 of the 24 GHz Renewal Consultation, ISED adopted a moratorium on the issuance of new FCFS site-specific fixed licences in the 24.25-24.45 GHz and 25.05-25.25 GHz range to maintain the stability of the band while ISED conducted its review of the 26 GHz band. This moratorium was extended in the 2025 Consultation to include the entire 24.25-26.5 GHz range and was to remain in place until a new licencing process was put in place. Given the decisions detailed throughout this section, ISED will no longer accept applications for FCFS site-specific fixed licences in the 24.25-26.5 GHz range and it will consequently rescind the appropriate portions of the New Licensing Framework for the 24, 28 and 38 GHz Bands and Decision on a Licence Renewal Process for the 24 and 38 GHz Bands following any transition plans established in the licensing frameworks for the auction and NCLL processes.

Decision

110. In the 2025 Consultation, ISED noted that the conditions of licences for radionavigation (excluding developmental licences) stipulate that these licensed stations are subject to any changes resulting from the decision of the lower 26 GHz repurposing.

111. In section 7, ISED decided to make the 24.25-25.1 GHz band available for NCL licensing. In addition, ISED has removed the primary allocation to the radionavigation service in the 24.25-24.45 GHz frequency range; and given the radionavigation service in the 24.45-24.65 GHz frequency range priority over other primary services including flexible use services. As such, no changes will need to be made to any existing radionavigation stations’ conditions of licence with respect to its coexistence with NCLL systems except for the change to the frequency range of operation. However, as discussed in section 6, ISED recognizes that coexistence challenges could arise between flexible use operations and radionavigation operations in some scenarios. The coexistence requirements between radionavigation operations with flexible use operations will be detailed in a future decision on NCLL in the 26 GHz band.

112. In the 2025 Consultation, ISED sought comments on its proposals to permit existing licensed EESS receive earth stations to continue operating under the technical rules and licence conditions attached to their current authorisation for an extended period of time, and to permit modifications to those earth stations as long as changes would not further limit the deployment of flexible use systems compared to the original earth stations’ operations as of March 6, 2025. Additionally, the 2025 Consultation proposed to require flexible use systems operating in the same frequency block and tier area to protect these existing earth stations based on coexistence rules established by ISED.

113. Furthermore, the 2025 Consultation also established a preliminary decision on the treatment of EESS and SRS earth station licence applications submitted after March 6, 2025, and prior to the adoption of earth station licensing rules and procedures.

114. Given that the treatment of EESS and SRS earth stations will impact the mmWave auction process, further details regarding their operations and coexistence requirements with flexible use operations will be detailed in the mmWave Auction Decision.

115. As part of the 2024 Decision, ISED decided that existing fixed licensees in the 24 GHz band (now part of the 26 GHz band), who were in compliance with their conditions of licence, would be issued new fixed licences in their existing licensed Tier 3 area on a one-year term once their fixed licences expire. Since ISED had expressed its intention to consult further on the future use of the band, ISED decided that these licences would be renewed annually until a transition plan could be established. As a result, ISED proposed a transition plan for those existing fixed Tier 3 licences in the 26 GHz band as part of the 2025 Consultation.

116. ISED noted a number of prior decisions that affected the Tier 3 licences in the 38 GHz band that were announced in 2019. To ensure that the newly transitioned licences in the 26 GHz band are aligned with the other mmWave bands, ISED proposed to apply the following principles to the repurposed fixed Tier 3 licences in the 26 GHz band:

• licensees who are in compliance with their current licence conditions will be eligible to apply for a new flexible use licence for an equivalent amount of spectrum, in the portion of the band that is to be auctioned
• the new flexible use licences will be issued to licensees following the auction based on the new band plan and licensees may be assigned different frequency blocks than their existing licences

117. As detailed in Section 6, ISED has decided to repurpose the 26 GHz band to flexible use. As a result of this repurposing, existing licensees may be eligible to transition their fixed licences to a flexible use licence. As the transition rules and associated conditions of licence impact the design of a mmWave auction and timing of NCLL, comments and decisions regarding the treatment of existing fixed licensees, the transition process, and the conditions of licence for new flexible use licences obtained through transition are discussed in the mmWave Auction Decision.

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

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

Innovation, Science and Economic Development Canada
Spectrum Regulatory Policy
Senior Director
6th Floor, East Tower
235 Queen St
Ottawa ON K1A 0H5
Telephone: 613-219-5436
TTY: 1-866-694-8389
Email: spectrumauctions-encheresduspectre@ised-isde.gc.ca

Relevant Canadian footnotes with modifications highlighted:

ADD Czz: In the frequency band 24.45-24.65 GHz, use of spectrum for radionavigation services will be given priority over all other primary services in the frequency band.

ADD CXX: In the frequency band 24.65-24.75 GHz, use of spectrum for fixed and mobile services will be given priority over the radiolocation-satellite service sharing this spectrum on a co-primary basis. The use of the frequency band 24.65-24.75 GHz by the radiolocation-satellite service (Earth-to-space) is limited to low density deployments of earth stations that will pose minimal constraints upon the deployment of fixed service and mobile service systems.

MOD C44: (CAN-18) The use of frequency band 25.05-25.25 GHz by the fixed service and mobile service has priority over the use by the fixed-satellite service. Fixed-satellite service implementation in the band 25.05-25.25 GHz will be limited to applications which will impose minimal constraints upon the deployment of fixed service and mobile service systems, such as those using a small number of large antennas for feeder links to the broadcasting-satellite service and/or for gateway applications in the fixed-satellite service.

MOD C47A: (CAN-19) In the frequency bands 24.75-25.05 GHz and 27.0-28.35 GHz, use of spectrum for fixed service and mobile services systems will be given priority over fixed-satellite service systems sharing this spectrum on a co-primary basis. The use of the frequency bands 24.75-25.05 GHz and 27.0-28.35 GHz by the fixed-satellite service (Earth-to-space) is limited to low density deployments of earth stations, such as gateways, that will pose minimal constraints upon the deployment of fixed service and mobile service systems.

MOD C47C: (CAN-19) In the frequency band 256.5-27.0 GHz, use of spectrum for fixed service and mobile service systems will be given priority over Earth exploration-satellite service and space research service systems sharing this spectrum on a co-primary basis. The deployment of earth stations of the Earth exploration-satellite service and the space research service in this the frequency band 25.5-27.0 GHz will be limited to a small number of earth stations that will pose minimal constraints upon the deployment of fixed service and mobile service systems.