Addendum to the Non-Competitive Local Licensing Framework to Include Spectrum in the 24.25-25.1 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 decisions resulting from the consultation processes undertaken in Canada Gazette Notice SPB-002-25, Consultation on the 26 GHz and 38 GHz Bands (the 2025 Consultation), and based on the decisions set out in SPB-003-26, Decision on Repurposing the 26 GHz Band, in the form of an addendum to SPB-001-23, Decision on a Non-Competitive Local Licensing Framework, Including Spectrum in the 3900-3980 MHz Band and Portions of the 26, 28 and 38 GHz Bands (the NCL Licensing Framework). This Addendum applies the NCLL Framework to the 24.25-25.1 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 policies for spectrum utilization and ensuring effective management of the radio frequency spectrum resource.

3. In developing this Addendum, ISED continues to be guided by the policy objectives described in section 3 of the NCL Licensing Framework.

4. 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 (the 2025 NCLL Addendum Decision). This Addendum 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 in the 28 GHz band (the 28 GHz NCLL band). ISED recognized that supporting strong industries requires access to the spectrum needed to deploy the latest technologies. ISED also announced in the 2025 NCLL Addendum Decision that it would consult further on additional portions of the mmWave bands that will be made available for NCLL when it consults on repurposing the lower 26 GHz band (24.25-26.5 GHz) and further changes to the mmWave auction framework.

5. In March 2025, through the 2025 Consultation, ISED sought comments on the repurposing of the lower portion of the 26 GHz band (24.25-26.5 GHz) for flexible use. Furthermore, ISED sought comments on the implementation of a future NCLL process in the 24.25-25.1 GHz band (26 GHz NCLL band). As this band shares many of the same characteristics as the 28 GHz NCLL band, ISED proposed to closely align the NCL licensing process in the 26 GHz band with the NCLL Framework and the 2025 NCL Licensing Addendum for the 28 GHz band.

6. In May 2026, ISED published SPB-003-26, Decision on Repurposing the 26 GHz Band (the 26 GHz Repurposing Decision). In this Decision, ISED adopted a flexible use licensing model to allow fixed and mobile services in the 24.25-26.5 GHz frequency range and made 850 MHz of spectrum available in the 24.25-25.1 GHz through a NCLL process.

7. In the 2025 Consultation, ISED sought comments on its proposal to apply the decisions in section 5 of the NCL Licensing Framework to the NCLL process in the 24.25-25.1 GHz band. Further, as the 26 GHz band shares many of the same characteristics as the 28 GHz band, ISED also proposed to apply the decisions described in the 2025 NCLL Addendum Decision with a view to simplifying the NCLL process across the mmWave bands.

Summary of comments

8. Bell, SaskTel, TELUS and TERAGO generally supported ISED's proposal to align the NCLL process in the 26 GHz band with the NCL Licensing Framework and the 2025 NCLL Addendum Decision for the 28 GHz band. SaskTel emphasized the importance of consistency between the two mmWave bands.

9. Rogers opposed ISED's proposal, arguing that NCLL on a first-come, first-served (FCFS) basis could lead to arbitrary assignments in high-demand areas and would be inconsistent with auction licensing policy for scarce spectrum.

Discussion

10. In the 26 GHz Repurposing Decision, ISED decided that it would make 850 MHz of spectrum available (24.25-25.1 GHz) in the 26 GHz band (24.25-25.1 GHz) through an NCLL process. ISED continues to be of the view that aligning the licensing process in the 26 GHz NCLL band with the NCL Licensing Framework and the 2025 NCLL Addendum Decision will maximize the use of the mmWave bands, ensure consistency between NCLL mmWave bands and simplify the NCLL process in the mmWave frequency bands.

11. As such, ISED will apply section 5 of the NCL Licensing Framework to the 26 GHz band. Further, as outlined in section 6, ISED will align the 26 GHz NCLL process with the relevant parts of the 2025 NCLL Addendum Decision for the 28 GHz band.

Decision

12. As decided in section 5, ISED will apply the NCL Licensing Framework to all NCL licences in the 26 GHz band. This section outlines the additional provisions and technical considerations for the use of this NCLL band.

6.1 Band plan

13. In the 2025 Consultation, ISED proposed a band plan that consisted of 17 unpaired blocks of 50 MHz for NCLL in the 24.25-25.1 GHz band and noted that these 50 MHz blocks would not preclude ISED from licensing multiple contiguous 50 MHz blocks to form larger contiguous blocks to facilitate large bandwidth channels to support fifth generation (5G) and future sixth generation (6G) applications and use cases. ISED also noted that 50 MHz blocks would facilitate shared access, support diverse and localized use cases, and enable broader participation from smaller operators, enterprises and public sector organizations.

Summary of comments

14. Bell, Rogers, TERAGO and Xplore supported ISED's proposal to use 50 MHz blocks for NCLL in the 24.25-25.1 GHz range. Bell and Rogers noted that the blocks of 50 MHz can be aggregated to form larger channel sizes if required.

15. Nokia and Québecor recommended that ISED use 100 MHz blocks for NCLL in the range of 24.25-25.1 GHz. Nokia cited that 100 MHz is the most adopted carrier channel by devices and base stations.

16. TELUS recommended a single 50 MHz block at the bottom of the frequency range (24.25-24.3 GHz) followed by 100 MHz blocks in the 24.3-25.1 GHz range to align with the adjacent 25.1-27.5 GHz frequency range which consists of 100 MHz block sizes.

Discussion

17. As discussed in the 2025 NCLL Addendum Decision for the 28 GHz band, ISED is of the view that 50 MHz blocks - the minimum channel bandwidth supported by 3GPP standards - will enable a broad range of applications to be deployed and help ensure that spectrum resources are not underutilized.

18. Consequently, ISED is adopting a band plan for the 26 GHz band, consisting of 17 unpaired 50 MHz blocks across the 24.25-25.1 GHz band for flexible use, as shown in figure 1. Applicants may request a licence for multiple contiguous 50 MHz blocks to form larger contiguous blocks to support different innovative use cases, applications and technologies.

19. In addition, ISED expects that most systems deployed in this band would be using time-division duplexing (TDD) equipment and consequently, only TDD systems will be permitted in the 26 GHz band at this time. ISED may consider other options through consultation with stakeholders to take into account future equipment ecosystem developments, if necessary.

Figure 1: 26 GHz NCL licensing band plan

Decision

6.2 Eligibility

20. In the 2025 Consultation, ISED sought comments on its proposal to reserve 450 MHz of spectrum for use by small operators, including small commercial mobile service providers, non-traditional users (NTUs) and Wireless Internet Service Providers (WISPs), in blocks BB1 to BB9 (i.e., 24.25-24.7 GHz). Small operators are defined as those entities (and their affiliates, as defined in section 6.3 of this Addendum) with fewer than 100,000 retail mobile phone subscribers, as reported to the Canadian Radio-television and Telecommunications Commission (CRTC) through its Annual Telecommunications Survey.

Summary of comments

21. SaskTel, TERAGO and Xplore supported ISED's proposal to reserve spectrum for small operators. TERAGO was of the view that large commercial mobile operators should not have access to the NCLL bands altogether, given that these operators will have access to a significant amount of spectrum through the mmWave auction process.

22. Bell expressed general disagreement with eligibility requirements that restrict spectrum to a subset of potential users, arguing that this can lead to an inefficient allocation of spectrum. However, Bell noted that if ISED adopts NCLL in 26 GHz, Bell would not object to ISED's proposal to align the NCLL process in the 26 GHz band with the 2023 NCL Licensing Framework and the 2025 NCLL Addendum Decision for the 28 GHz band. Rogers and TELUS opposed reserving spectrum for small operators, arguing that this type of restriction would likely lead to inefficient spectrum use and that large operators are better positioned to drive the creation and growth of an ecosystem.

Discussion

23. In section 5.4.2 of the NCL Licensing Framework, ISED stated that additional eligibility requirements for NCL licences may be established on a band-by-band basis.

24. While ISED acknowledges some stakeholder concerns surrounding the reservation of spectrum for small operators, ISED maintains that one of the policy objectives in the NCL Licensing Framework is to facilitate low-barrier access to spectrum to support the needs of new users, including industry verticals. ISED also recognizes that it may take some time for small operators to develop their business cases for mmWave spectrum. As such, ISED is concerned that large operators may foreclose access to small operators absent of any eligibility restrictions.

25. Therefore, given the anticipated demand by multiple industries and private wireless networks that support 5G services, such as real-time monitoring and Internet of Things, and similar to the 2025 NCLL Addendum Decision for the 28 GHz band, ISED will reserve a portion of the 26 GHz band, from 24.25 GHz to 24.7 GHz (blocks BB1 to BB9), for use by small operators.

26. Small operators are defined as those entities (and their affiliates, as defined in section 6.3 of this Addendum) with less than 100,000 retail mobile phone subscribers, as reported to the CRTC through its Annual Telecommunications Survey. This approach would restrict access to the 24.25-24.7 GHz portion of the band by larger mobile service providers. Accordingly, large operators with more than 100,000 retail mobile subscribers will be ineligible to hold NCL licences for blocks from 24.25 GHz to 24.7 GHz (i.e., blocks BB1 to BB9).

27. This eligibility restriction will be incorporated into the conditions of licence for 26 GHz NCL licences, as set out in annex A. Eligibility restrictions will continue to apply if an NCL licensee is acquired or otherwise becomes affiliated with an ineligible operator, in which case, the NCL licence must be returned to ISED. ISED will monitor NCLL uptake with a view to adjusting this eligibility restriction, if appropriate. Further, ISED intends to conduct a review of the continued applicability of the eligibility restriction after three years from the date that the first NCL licence in the 26 GHz band is issued.

Decision

6.3 Measures to support local access in the 26 GHz band

28. As decided in section 5, ISED will apply decisions in the 2025 NCLL Addendum Decision to the NCL licensing process in the 26 GHz band. Accordingly, ISED will establish the following licence types in the 26 GHz NCLL band.

NCL licence types

29. ISED will establish two distinct licence types in the 26 GHz band, applicable to all Tier 5 service area categories (i.e., metropolitan, urban, rural and remote):

• low-power (LP) licence type
• high-power (HP) licence type

30. These licence types are defined by the licence area covered. As shown in table 1 below, the maximum area size per licence for LP operation is 1 km², while the maximum area size per licence for HP operation area is 50 km². These licence area sizes are designed to take into account propagation characteristics of the mmWave bands.

31. An applicant may apply for multiple NCL licences to cover its desired total area. There is no limit on the number of licences a licensee may hold. For example, to cover an area of 3 km², an applicant could apply for three LP licences with each licence covering 1 km² and must deploy at least one LP base station in each licence area. As a second example, to cover an area of 55 km², an applicant could apply for multiple LP licences or multiple HP licences or a combination of LP and HP licences, depending on the use case and power requirements. Applicants wanting to deploy HP systems must cover, at a minimum, 5 km².

32. For each licence issued, at least one site operating at the authorized power level for the licence type must be deployed and used for radiocommunication (as defined in the Radiocommunication Act). Further details regarding deployment requirements are provided in section 5.4.3 of the NCL Licensing Framework.

33. As noted earlier, ISED will monitor the use of the mmWave NCL licences and may implement additional (and immediate) measures should there be any spectrum warehousing or anti-competitive behaviour by licensees. ISED may request additional documentation to verify whether deployment requirements are being met.

Spectrum bandwidth limit

34. In the 2025 Consultation, ISED sought additional comments on implementing a spectrum limit of 400 MHz per licensee within any licensed area in the 24.25-25.1 GHz band.

Summary of comments

35. Québecor and SaskTel generally supported ISED's proposal to implement a spectrum limit of 400 MHz per licensee within any licensed area. Québecor suggested that ISED could maintain a 400 MHz spectrum limit or consider 200 MHz to increase the number of spectrum holders. SaskTel emphasized that maintaining consistency and alignment between the 26 GHz and 28 GHz NCLL processes is fundamental to its support.

36. Rogers and TELUS opposed a spectrum limit of 400 MHz per licensee. TELUS was of the view that spectrum limits for each new NCLL process seems overly restrictive and could lead to underutilized spectrum. Instead, TELUS suggested an appropriate cross-band cap (i.e., a spectrum cap that can be applied across the 26 GHz and 28 GHz NCLL bands) for licensees to maximize opportunities for NCL licensees to secure contiguous blocks of spectrum (e.g., 400 MHz or 800 MHz). Rogers expressed concerns that in areas of high-demand, such as metropolitan and urban venues, only 400 MHz of spectrum would be available and since there is no cross-band NCLL cap being proposed, a single large mobile operator could hold 400 MHz of NCLL spectrum at 26 GHz and 400 MHz of NCLL spectrum at 28 GHz, effectively being the sole NCLL mmWave licensee.

Discussion

37. In proposing alignment with the 2025 NCLL Addendum Decision for the 28 GHz band, ISED sought to maintain consistency across mmWave NCLL bands with the implementation of the 28 GHz NCLL spectrum limit to the 26 GHz NCLL band. ISED is of the view that a spectrum limit would restrict the amount of mmWave spectrum that a licensee can acquire in any given area and would prevent a scenario where the entire mmWave NCLL band would be held by one or two licensees, thereby preventing access by other users.

38. ISED recognises that a cross-band spectrum cap could allow a single operator to obtain up to 800 MHz of spectrum across the 26 GHz and the 28 GHz bands. However, ISED notes that there will be 4.8 GHz of mmWave spectrum available in the upcoming mmWave auction and that operators will have an opportunity to obtain up to 1200 MHz of spectrum in that auction process.

39. Given the anticipated spectrum efficiencies that new 5G equipment will bring, ISED will apply a spectrum limit of 400 MHz in the 26 GHz NCLL band as this would balance the importance of enabling the deployment of high capacity 5G applications with the objective of facilitating access for new users. As such, each NCL licensee will have a maximum spectrum aggregation limit of 8 blocks of 50 MHz each within any licensed area. For example, if an operator holds a 26 GHz NCL licence for 400 MHz in a certain area and applies for a new 26 GHz NCL licence that overlaps the first licence geographically, the application would be rejected as the 400 MHz limit would be exceeded in the overlapping areas.

40. This spectrum limit applies to all NCL licensees in the 26 GHz NCLL band. Any affiliated entities will be treated as a single licensee for the purpose of applying the spectrum limit and may not cumulatively hold more than the maximum amount allowed. Any operator exceeding the spectrum limit will face compliance measures. Further, should NCL licensees become affiliates after obtaining their licences, one of their NCL licences must be returned to ISED if the affiliates' combined holdings exceed the spectrum limit. An affiliated entity is defined as follows:

Affiliate: Any entity will be deemed to be affiliated with a licensee if it controls the licensee, is controlled by the licensee, or is controlled by any other entity that controls the licensee. "Control" means the ongoing power or ability, whether exercised or not, to determine or decide the strategic decision-making activities of an entity, or to manage or run its day-to-day.

Time limit measures

41. While ISED recognizes the importance of facilitating access for spectrum users, it is also aware that licence area limits and spectrum bandwidth limits may not need to be in place indefinitely, particularly if spectrum remains unlicensed in some areas. However, since it is unknown how long users will take to plan their business cases for NCLL in the mmWave bands, ISED will not set a date for removing the licence area size limits or the spectrum limit at this time. Instead, ISED will monitor the demand for NCL licences and intends to conduct a review of the measures, if appropriate, to effectively support access to the mmWave bands in the future.

42. ISED is of the view that implementing measures to support access to the mmWave NCL bands will promote a variety of users having access to the spectrum. ISED will monitor the use of the mmWave NCL licensed spectrum and may implement additional measures should there be any spectrum warehousing or anti-competitive behaviour by licensees.

Decision

6.4 Technical considerations in the 26 GHz band

43. This section outlines the technical considerations of NCL licensed operations in the 26 GHz NCLL band. ISED typically develops technical rules that allow for a wide range of usage scenarios, while also encouraging spectral efficiency and orderly coexistence with other users (including non-NCL licensed users) in the same band and in adjacent bands. Appropriate technical rules will be developed following technical consultations for mmWave NCLL systems.

6.4.1 Coexistence between NCL licensed systems

44. In the 2025 Consultation, ISED sought comments on technical considerations for NCLL specific to the 26 GHz NCLL band.

Summary of comments

45. Respondents generally agreed with ISED's proposal to align the technical rules of the NCLL process in the 24.25-25.1 GHz band with the NCL Licensing Framework and the 2025 NCLL Addendum Decision for the 28 GHz band. No specific comments were received related to distinguishing between indoor and outdoor usage, establishing technical rules specific to the 26 GHz band, or mandating specific technology solutions such as TDD synchronization.

Discussion

46. Indoor vs. outdoor NCL licensed operations: Although geographical overlap of indoor and outdoor usage in the same frequency blocks could be feasible in scenarios where there would be sufficient propagation and building penetration losses, ISED recognizes the nascent nature of the mmWave equipment ecosystem and use cases, and the potential impact on NCLL users at this early stage. ISED will therefore not allow co-channel indoor and outdoor NCLL to different licensees operating in the same area using the mmWave bands at this time.

47. ISED will monitor the development of the equipment ecosystem for indoor and outdoor operations, including the integration of coexistence measures within products (e.g., contention-based protocol features), and may revisit this decision in the future. Any changes will be made in the appropriate technical standards following a technical consultation process.

48. TDD synchronization: In the NCL Licensing Framework and 2025 NCLL Addendum Decision, ISED decided that it would not impose a single set of specific technology solutions to address interference for all NCL licensed bands but would encourage licensees to work together to resolve any potential interference issues as necessary. However, ISED noted that it would set technical rules on a band-by-band basis to facilitate coexistence. It further indicated that specific technology solutions may be considered, including TDD synchronization requirements, to address interference issues in the band under consideration. In addition, ISED noted that it will incorporate appropriate separation distances between NCL licensed areas to facilitate coexistence between mmWave NCL licensed operations, as necessary, during the technical analysis performed in its automated licensing system.

49. ISED is of the view that NCL licensees implementing TDD operations will deploy technologies that are capable of managing and mitigating interference from neighboring operations. The NCLL system will generally facilitate coexistence between these operations. However, there remains potential for interference when NCLL deployments are operating in close proximity. While specific interference mitigation measures such as TDD synchronization could be imposed by ISED to reduce the probability of interference, ISED believes that mitigation measures should only be imposed as a last recourse. Imposing prescriptive technology-specific mitigation measures may unnecessarily constrain some innovative use cases and could potentially result in an inefficient use of spectrum.

50. ISED is of the view that mutual cooperation between licensees, when necessary, provides the maximum flexibility to impacted licensees to resolve any interference issues. Licensees could leverage the detailed knowledge of their respective systems and could be in a better position to resolve any interference issues that arise and implement appropriate coexistence mechanisms according to their specific needs.

51. Consequently, ISED will implement certain coexistence measures (e.g., appropriate separation distances) in the NCLL system to facilitate coexistence. However, at this time, ISED does not intend to impose technology-specific coexistence techniques (e.g., mandated TDD synchronization) to manage potential interference in mmWave NCLL bands. Instead, ISED encourages licensees to work together to resolve any potential interference issues, as necessary. ISED recognizes that techniques such as TDD synchronization have been widely used between operators on a voluntary basis and has enabled systems to coexist in an effective manner.

52. As indicated above, as part of the 2023 NCL Licensing Framework, ISED's automated licensing system will assess the interference potential between existing and prospective NCL licensed systems. ISED has adopted a simplified licensing model where an applicant can apply for an NCL licence with limited technical information about their future network. In an effort to facilitate spectrum access while ensuring coexistence between users, the automated NCL licensing system will assume equipment characteristics that are considered representative in deployment. In addition, the automated licensing system will assume NCL licensed systems are TDD synchronized in an effort to reduce unusable areas and increase spectrum availability, even though it is not mandated at this time. As the mmWave ecosystem and deployment scenarios continue to mature, ISED may review these assumptions and consider other options in the future. Such changes would be considered through revisions of ISED technical standards at the appropriate time.

Decision

6.4.2 Coexistence between flexible use stations and radionavigation stations in the 24.45-24.65 GHz band

53. In the 2025 Consultation, ISED noted the potential for interference between radionavigation and outdoor NCL licensed stations. ISED also noted that indoor NCL licensed stations may be able to better coexist with radionavigation stations taking into account factors such as building entry loss and typical indoor deployment scenarios for indoor NCL licensed stations which include low-power ceiling mounted antennas. In this context, ISED sought comments on whether to restrict NCL licensed systems to indoor-only deployments in the 24.45-24.65 GHz band (blocks BB5 to BB8); and the timing of making blocks BB5-BB8 available for NCL licensing.

Summary of comments

54. Indoor only: Xplore supported ISED's proposal to restrict NCL licensed systems to indoor only use within the 24.45-24.65 GHz band. However, Xplore emphasized the importance of ensuring sufficient contiguous spectrum adjacent to this band to accommodate outdoor fixed wireless applications.

55. TELUS did not object to ISED's proposal but recommended that ISED continue to monitor developments in radionavigation applications within this band. Should these applications fail to materialize over time, TELUS suggested that the prioritization of radionavigation services could be reconsidered, and the indoor-only restriction for NCL licensed systems could subsequently be lifted.

56. Bell and Rogers did not support ISED's proposal to limit NCL licensed systems to indoor-only in the 24.45-24.65 GHz band. They noted that fixed, mobile and radionavigation services are all identified as co-primary services in the Canadian Table of Frequency Allocation (CTFA) and argued that prioritizing radionavigation services would unduly constrain fixed and mobile service deployments within this portion of the band. Bell recommended that coexistence between flexible use and radionavigation services be referred to the Radio Advisory Board of Canada (RABC) for further analysis, a proposal supported by Rogers in its reply comments.

57. Timing of licensing for blocks BB5 to BB8: Rogers and Xplore supported ISED's proposal to license blocks BB5-BB8 under the NCLL framework only after the remaining NCLL blocks in the 26 GHz band have been licensed within a given area. However, Rogers' support for licensing blocks BB5 to BB8 under the NCLL framework was contingent upon ISED making available the 28 GHz band available through a competitive licensing process.

58. In contrast, TELUS did not see the need to delay licensing for blocks in this frequency range, noting that ISED's proposed limitation of such licences to indoor use (at least in the near term) should satisfactorily address any immediate concerns.

Discussion

59. As decided in the 26 GHz Repurposing Decision, the use of spectrum for radionavigation service will be given priority over all other co-primary services, including the fixed and mobile services, in the 24.45-24.65 GHz band in order to safeguard potential safety aspects of the radionavigation service.

60. ISED recognizes that there is potential for interference between radionavigation stations and NCL licensed systems under certain scenarios, due to their operational nature. For example, in the case of airborne radionavigation stations, such as those used for Detect-and-Avoid (DAA) purposes, there is potential for intermittent interference between airborne radionavigation stations and outdoor NCL licensed stations given that airborne radionavigation stations may operate ubiquitously. Another example involves ground-based radionavigation stations, which could be positioned on high-rise buildings that are used to track, support or assist in the operation of airborne radionavigation systems. These ground-based stations could potentially cause interference to, or receive interference from, outdoor NCL licensed stations.

61. ISED is of the view that indoor low-power NCL licensed stations may be able to coexist with radionavigation stations due to their deployment characteristics and the attenuation of indoor emissions from building exit losses. ISED will therefore permit indoor-only NCL licensed operations in the 24.45-24.65 GHz band. Further, given that the demand for radionavigation services and the extent of the potential deployment of radionavigation stations is unclear, frequency blocks BB5-BB8 will only be available for licensing where no other blocks can be licensed to an applicant within the proposed licensing area. This will promote the efficient use of spectrum by assigning all other 26 GHz band NCLL blocks first, while preserving blocks BB5 to BB8 until there is a demand for additional NCLL spectrum in a given area. Prior to licensing frequency blocks BB5 to BB8, ISED will develop appropriate technical and operational rules, in consultation with stakeholders, to enable coexistence between radionavigation operations and NCL licensed systems.

62. ISED will continue monitoring the development of radionavigation service in the 24.45-24.65 GHz band such as the emerging detect and avoidance (DAA) applications for Unmanned Aircraft Systems (UAS) and the evolving spectrum needs to support NCLL operations. ISED will also monitor the licensing of radionavigation services in the 24.45-24.65 GHz frequency band. Further, three years after the date that the first NCL licence in the 26 GHz band is issued, ISED may conduct a review to revisit of the continued priority of radionavigation services over NCLL services in the frequency band 24.45-24.65 GHz.

Decision

6.4.3 Coexistence between flexible use stations and space stations in the 24.45-25.1 GHz band

63. In the 2025 Consultation, ISED stated that the potential interference to inter-satellite service (ISS) operations in the 24.45-24.75 GHz band from aggregate emissions of flexible use operations was minimal, considering advancements in mobile technologies and the completion of International Telecommunication Union (ITU) studies that demonstrate interference to ISS operations in this band is very low. Similar to its views regarding coexistence between flexible use and ISS, ISED noted that the potential for harmful interference to fixed satellite service (FSS) space station operations in the 24.75-25.1 GHz band from aggregate emissions of flexible use systems is very low.

64. Consequently, ISED sought comments on its proposal to not place any limits on aggregate emissions produced by flexible use systems operating in the 24.45-25.1 GHz frequency range. ISED also sought comments on whether specific coexistence measures are needed for radiolocation-satellite space stations in the 24.65-24.75 GHz band.

Summary of comments

65. Coexistence with ISS: Bell, Qualcomm, Rogers and TELUS supported ISED's proposal not to mandate aggregate emission limits for flexible use systems operating in the 24.45-24.75 GHz band. They argued that due to the inherently poor propagation characteristics of terrestrial mmWave signals, such deployments are directed towards terrestrial locations and are unlikely to interfere with satellite space stations. Bell argued that imposing aggregate interference limits would create unnecessary regulatory burdens and hinder terrestrial mmWave deployments. Rogers echoed this viewpoint and highlighted the minimal risk of harmful interference to space-based operations given the nature of terrestrial mmWave usage. Finally, TELUS pointed out that this position is aligned with the broader mmWave regulatory framework, including the similar proposals for the mmWave spectrum proposed to be auctioned in the 2025 Consultation, as well as the decisions made in ISED's SLPB-003-19, Decision on Releasing Millimetre Wave Spectrum to Support 5G (the 2019 Decision) ruling not to mandate limits on aggregate flexible use emissions into ISS space stations in the 26.5-27.5 GHz band.

66. Coexistence with FSS: Bell, Nokia, Qualcomm, Québecor, Rogers, TELUS and TERAGO supported ISED's proposal that aggregate emission limits should not be mandated for flexible use systems operating in the 24.75-25.1 GHz band. They argued that flexible use systems use highly directional antennas, and as a result, any potential interference caused by an aggregate of terrestrial mmWave systems is very unlikely. Commenters noted that propagation characteristics and the expected nature of terrestrial mmWave deployments which will target terrestrial locations, minimizes the potential for harmful interference to space-based operations.

67. Bell further emphasized that implementing an aggregate interference limit is unnecessary and would impose significant burdens on terrestrial mmWave spectrum licensees and hinder mmWave deployments for terrestrial use.

68. Similarly, TELUS mentioned that ISED's proposal would be consistent with the approach taken in bands shared with other co-primary satellite allocations considered in the 2025 Consultation. It would also be consistent with the decisions reached in ISED's 2019 Decision on aggregate emissions relating to FSS in the 27.5-28.35 GHz band.

69. Coexistence with radiolocation-satellite service: Québecor recommended that the issue be addressed in the future as radiolocation-satellite service requests emerge in the band.

Discussion

70. ISED is of the view that the expected directional configuration of flexible use systems operating in the 26 GHz band, which will transmit primarily toward terrestrial-based receivers, pose minimal risk of harmful interference to ISS and FSS space stations. ISED also expects that the more advanced flexible use systems will employ various technologies, including dynamic beam forming with very narrow beamwidths, which will lessen the potential of interference to ISS and FSS space stations.

71. In the 2019 Decision and the mmWave Auction Decision, ISED announced that it would not mandate the aggregated emission limits produced by flexible use systems in the 25.25-27.5 GHz range. ISED considers it reasonable to align coexistence measures for ISS and flexible use systems throughout mmWave bands. Therefore, ISED will not mandate any aggregated emission limits produced by flexible use systems in the 24.45-24.75 GHz band. This will ensure that consistent coexistence measures are adopted for ISS throughout the mmWave bands.

72. Similarly, ISED is of the view that the coexistence measures for FSS and flexible use systems in the 25.1-25.25 GHz, that were established in the mmWave Auction Decision, can be extended to FSS and flexible use operations in the 24.75-25.1 GHz band. Consequently, ISED will not place any limits on aggregate emissions produced by flexible use systems operating in the 24.45-25.1 GHz frequency band. ISED may revisit this decision in the future if evidence of harmful interference or an increased risk to ISS or FSS space stations emerges.

73. With regard to coexistence between flexible use stations and radiolocation-satellite space stations in the 24.65-24.75 GHz band, ISED will not impose specific measures.

Decision

6.4.4 Coexistence between flexible use stations and transmitting earth stations in the 24.65-25.1 GHz band

74. As stated in sections 6.4 and 6.5 of the 26 GHz Repurposing Decision, the use of the 24.65-25.1 GHz spectrum for fixed and mobile services will be given priority over the radiolocation-satellite service, in frequency band 24.65-24.75 GHz, and over the fixed satellite service in frequency band 24.75-25.1 GHz, sharing this spectrum on a co-primary basis.

75. In the 2025 mmWave Consultation, ISED sought comments on:

• whether it is necessary to impose specific coexistence measures in the 24.65-24.75 GHz band in order to facilitate coexistence with the radiolocation-satellite transmitting earth stations, such as measures aligned with those proposed for 24.75-25.1 GHz FSS earth station
• whether to adopt the coexistence measures from the 2025 NCL Licensing Addendum for the 27.5-28.35 GHz band in the proposed 24.75-25.1 GHz NCL licensing band to facilitate coexistence with the FSS transmitting earth stations. This includes the geographic restrictions for earth stations that prohibit earth stations from being located within metropolitan Tier 5 service areas, large population centres (LPC), and medium population centres (MPC), and the contour requirements that prohibit their contours from overlapping these areas

Summary of comments

76. Coexistence with radiolocation-satellite transmitting earth stations: Québecor suggested that the issue be addressed in the future as satellite radiolocation service requests emerge in the band.

77. Bell suggested that should a FCFS licensing approach, similar to the proposed approach for flexible use and fixed satellite transmitting earth stations in the 24.75-25.1 GHz band be implemented, no specific coexistence measures would be required.

78. Rogers commented that specific coexistence measures are not necessary since future radiolocation-satellite applications can be managed through the FCFS process.

79. TELUS added that the situation for coexistence with Earth-to-space links in the radiolocation-satellite service is no different than that of FSS in 24.75-25.25 GHz, and recommended that the coexistence measures be aligned with those applied for FSS in the 24.75-25.25 GHz band, including population impacted limits and geographic restriction to prohibit sites within or whose contours overlap population centres of any size (i.e., LPC, MPC and SPC alike) and major infrastructure.

80. Coexistence with FSS earth stations: Bell, Qualcomm, Québecor, Rogers, TELUS and TERAGO expressed support for ISED's proposal to adopt coexistence measures from the 2025 NCLL Addendum Decision for the 27.5-28.35 GHz band in the 24.75-25.1 GHz band. Respondents generally viewed those measures as minimizing constraints on flexible use systems that are most likely to deploy metropolitan Tier 5 service areas, LPCs and MPCs, while maximizing terrestrial flexible use cases.

81. TELUS and Rogers further suggested that limits on impacted population be included for FSS earth stations in the 24.75-25.1 GHz band and proposed to extend the geographic restrictions to population centres of any size (i.e., LPC, MPC and SPC alike) as well as major infrastructure. Rogers also added that locating an earth station outside of urban areas will not prevent satellite operation in the band.

82. SpaceX opposed any coexistence measures on FSS earth stations and requested that ISED reconsider imposing limitations on satellite earth stations in the mmWave bands, stating that they are critical for satellite operations. SpaceX urged ISED to allow the flexibility for earth stations near urban areas within metropolitan Tier 5 service areas, LPCs and MPCs.

Discussion

83. Geographic restrictions for earth stations: As stated in the 2025 NCLL Addendum Decision, ISED expects mmWave NCL licensed operations to be primarily implemented in urban areas and specific high-traffic dense rural and remote areas. To minimize constraints on flexible-use systems in these areas and align the coexistence measures with 28 GHz NCLL for consistency, ISED will adopt the following geographic restrictions in the 24.65-25.1 GHz range: earth stations cannot be located in metropolitan Tier 5 service areas, as well as LPCs and MPCs. Further, earth station contours cannot overlap metropolitan Tier 5 service areas, as well as LPCs and MPCs.

84. Statistics Canada categorizes Canadian population centres under the following groups: Large Population Centres (LPCs) with a population of 100,000 or more meanwhile Medium Population Centres (MPCs) with a population between 30,000 and 99,999 and, Small Population Centres (SPCs) with a population between 1,000 and 29,999. LPCs and MPC will be defined by the most recent version of the Census of Population from Statistics Canada.

85. Contour requirements of earth stations: To enable the automated NCLL system to account for the interference potential of a transmitting earth station on nearby NCL licensed operations, ISED will require earth station operators to provide contours for their earth stations. Technical details such as the calculation method for these contours will be developed in further consultation with stakeholders. Once finalized, operators of existing earth stations will also be required to provide contours, if necessary.

86. Coexistence with radiolocation-satellite transmitting earth stations: ISED is of the view that sharing of spectrum between these services can be managed through the application of priorities, as well as appropriate earth station licensing rules and procedures. Although there is no current, or planned, use of the band by the radiolocation-satellite service in Canada at this time, to enable coexistence between any future radiolocation-satellite earth stations and NCLL operations in the 24.65-24.75 GHz band, ISED will apply the same coexistence measures for FSS earth stations from the 2025 NCL Licensing Addendum.

87. Coexistence with FSS earth stations: In the 2025 Consultation, ISED noted that results of studies for the 27.0-28.35 GHz range can be extended to the 24.75-25.1 GHz range considering the characteristics of FSS earth stations operating in these two ranges are similar. To enable coexistence between FSS earth stations and NCLL operations in the 24.75-25.1 GHz band, ISED will apply the same coexistence measures from the 2025 NCL Licensing Addendum.

Decisions

6.4.5 Coexistence with other services

88. In the 2025 Consultation, ISED sought comments on its proposal to apply the same technical rules for coexistence between NCL licensed operations and other incumbents in adjacent mmWave bands. For example, under the conditions of licence, ISED proposed to allow NCL licensed stations in frequency blocks BB16 (25.00-25.05 GHz) and BB17 (25.05-25.1 GHz) to operate on a no-interference, no-protection (NINP) basis with respect to flexible use stations in the 25.1-27.5 GHz band.

Summary of comments

89. Coexistence with flexible use in 25.1-27.5 GHz: Respondents generally agreed with ISED's proposal to align the technical rules of the NCLL process in the 26 GHz band with the 2023 NCL Licensing Framework and the 2025 NCLL Addendum Decision for the 28 GHz band. TERAGO agreed with ISED's proposal for NCL licensees to operate their stations in blocks BB16 and BB17 on a NINP basis with respect to auctioned spectrum users in the 25.1-27.5 GHz band.

Discussion

90. Coexistence with flexible use in 25.1-27.5 GHz: The technical parameters for flexible use systems in the 26 GHz auction spectrum (25.1-27.5 GHz) have not been established at this time. When the 25.1-27.5 GHz frequency band is auctioned and deployment begins, there is a potential for interference between flexible use operations in the auction spectrum and NCL licensed operations in the 24.25-25.1GHz frequency band.

91. NCLL stations operating in the blocks BB16 and BB17 which are adjacent to 26 GHz auction spectrum could likely operate successfully by coordinating with relevant adjacent band licensees. However, due to the nature of the NCLL process and stakeholders, ISED recognizes that coordination typically involves a very limited number of parties who are well versed in the coordination process and some NCL licensees may lack prior coordination experience. Therefore, NCL licensees could face challenges coordinating with auctioned spectrum licensees operating in the 26 GHz band, which could result in expectations of NCL licensees with respect to being protected from adjacent band interference.

92. Considering the potential risk, as well as the importance of maximizing spectrum use, ISED will allow NCL licences to be issued for stations operating on frequency blocks BB16 and/or BB17, but these licences will be on a NINP basis with respect to flexible use services operating using 26 GHz auction spectrum. NCL licensees operating in blocks BB16 or BB17 will be expected to work cooperatively with adjacent band flexible use licensees operating in the 26 GHz auctioned spectrum and those in close proximity, prior to deploying NCL licensed stations. However, this will not preclude NCL licensees operating on blocks BB16 or BB17 vis-à-vis other in-band NCL licensed operations or services in the 26 GHz NCLL band (i.e., 24.25-25.1 GHz band) from being subject to the same licensing and technical rules for coexistence with adjacent block operations.

Decision

93. Coexistence with Earth exploration satellite service (EESS) in 23.6-24 GHz: In the CTFA, EESS (passive) has a primary allocation in the 23.6-24 GHz band. In 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, ISED noted that as part of identifying the 24.25-26.5 GHz band for International Mobile Telecommunications (IMT) worldwide, the World Radio Conference 2019 (WRC-19) adopted Resolution 242 which includes certain coexistence requirements in this band. ISED intends to account for those requirements, including limits on unwanted emissions in the 23.6-24 GHz band for the protection of existing and future EESS systems, as part of developing its domestic technical rules in consultation with stakeholders.

6.5 Conditions of licence

94. In the 2025 mmWave Consultation, ISED sought comments on its proposal to adopt the Conditions of Licence in annex E for NCL licences in the 24.25-25.1 GHz band. As eligibility and spectrum limits are covered in other sections, this discussion will cover all other conditions of licence.

Summary of comments

95. Stakeholders were in agreement with ISED's proposal to align all other conditions of licence with the 28 GHz NCLL conditions. Québecor requested that there be a definition of 'station' in this Addendum and that it should align with the definition in the auctioned mmWave bands. Kris Joseph and Michael B. McNally commented that annual renewals and reporting are administratively burdensome, and that they negatively impact small operators by being a barrier to entry and prevent easy access to the band.

Discussion

96. Given the similar use cases, potential licensees and propagation characteristics in the 26 GHz NCLL band compared to the 28 GHz NCLL band, to ensure a consistent approach across both bands, ISED is implementing conditions of licence that align with those found in SPB-001-25, Addendum to the Non-Competitive Local Licensing Framework to include Spectrum in the 27.5-28.35 GHz Band (see annex A).

97. In May 2026, ISED published DGSO-001-26, Consultation on Amendments to the Tower Siting Process and Decision on Roaming, Tower sharing and Annual Reporting Requirements for Terrestrial Licences, in which ISED made a decision to remove the annual reporting requirement from all terrestrial spectrum licences. As a result, the NCLL 26 GHz band reporting conditions have been removed from annex A.

98. Regarding the definition of a station, consistent with the NCL Licensing Framework, ISED will rely on the station definition established in the Radiocommunication Act. As per the Act: "radio station or station means a place in which radio apparatus is located". ISED adopted a different station definition for the mmWave auctioned spectrum in order to support certain policy objectives and to properly assess the deployment requirements in each Tier 5 service area. The NCLL framework only requires one station to be deployed per licence area and thus, does not require added criteria.

Decision

99. As decided in the mmWave Auction Decision, existing fixed Tier 3 licensees that obtain new flexible use licences in the mmWave auction spectrum are permitted to operate using both their existing fixed Tier 3 and new flexible use licences (which will be issued for operations in the 25.1-25.5 GHz frequency range) during the transition period which will end on March 31, 2029. All fixed Tier 3 licences will expire on March 31, 2029 without any further renewal.

100. Given the above, and to facilitate NCLL processes in the 26 GHz NCLL band, ISED will not begin issuing NCL licences in the 26 GHz band until after the existing fixed Tier 3 licences have transitioned.

101. ISED plans to update its automated licensing systems to support NCLL access to the 26 GHz band. Details regarding band opening will be provided in a future Spectrum Advisory Bulletin (SAB).

102. In July 2019, ISED published DGSO-006-19, Decision on a New Set of Service Areas for Spectrum Licensing, which describes the methodology employed to create the Tier 5 Service areas for competitive licensing. Altogether, 654 Tier 5 service areas were created, spanning over the territory of Canada, each labelled with a classification as either metropolitan, urban, rural or remote. However, a few Canadian islands lie outside these Tier 5 service areas, and thus, currently have no classification.

103. Tier 5 service area type(s) of a given NCL licence area are used to estimate the fees of the NCL licence. Given that applicants may request NCL licences on these unclassified land masses, and consistent with the unclassified Canadian land masses decision communicated in SPB-001-25, Addendum to the Non-Competitive Local Licensing Framework to include Spectrum in the 27.5-28.35 GHz, ISED will classify any land mass outside the defined Tier 5 service areas as remote.

Decision

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

105. 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

The following conditions will apply NCL licences in the 24.25-25.1 GHz band (26 GHz NCLL band).

It should be noted that the licences are subject to the relevant provisions in Radiocommunication Act and the Radiocommunication Regulations, as amended from time to time. For example, the Minister of Innovation, Science and Industry (the Minister) continues to have the power to amend the terms and conditions of spectrum licences, under paragraph 5(1)(b) of the Radiocommunication Act. The Minister may do so for a variety of reasons, including furtherance of the policy objectives related to the band. Such action would normally only be undertaken after consultation.

A1. Licence term

If this licence is renewable: This licence will expire on March 31 each year. Licensees have a high expectation that a new licence will be issued for a subsequent annual term, upon payment of the relevant fee, unless a breach of licence condition has occurred, a fundamental reallocation of spectrum to a new service is required, or an overriding policy need arises.

If this licence is temporary: This licence expires on the date set out on its face and is not renewable.

A2. Eligibility

The licensee must comply on an ongoing basis with the applicable eligibility criteria in subsection 9(1) of the Radiocommunication Regulations.

A3. Restrictions on commercial mobile service providers

Any entity, or affiliate of that entity (as defined in section 6.3 of the Addendum to the Non-Competitive Local Licensing Framework to Include Spectrum in the 24.25-25.1 GHz Band) with 100,000 or more retail mobile phone subscribers as reported to the Canadian Radio-television and Telecommunications Commission (CRTC) through its Annual Telecommunications Survey is ineligible to hold this licence for the blocks from BB1 to BB9 (24.25 GHz to 24.70 GHz) in the 24.25-25.1 GHz band.

A4. Fees

This licence will be subject to licence fees established for frequencies of 10 GHz or above in Notice No. SPB-003-23 – Fee Order for Non-Competitive Local Licensing.

A5. Licence transferability, divisibility and subordinate licensing

This licence is not transferable in whole or in part and cannot be divided or subordinated.

A6. Bandwidth limit

Any licensee, including affiliates of that licensee, may not hold licences in an area where their aggregate bandwidth exceeds 400 MHz. For the purposes of this condition, any entity will be deemed to be affiliated with a licensee if it controls the licensee, is controlled by the licensee, or is controlled by any other entity that controls the licensee. "Control" means the ongoing power or ability, whether exercised or not, to determine or decide the strategic decision-making activities of an entity, or to manage or run its day-to-day. Further, should the licensee become an affiliate with another licensee in the 26 GHz NCLL band after the issuance of this licence, one of the affiliates' licences, as chosen by the affiliates, must be returned to Innovation, Science and Economic Development Canada (ISED) if the affiliates' combined holdings exceed 400 MHz.

A7. Radio station installations

The licensee must comply with Client Procedures Circular CPC-2-0-03, Radiocommunication and Broadcasting Antenna Systems, as amended from time to time.

A8. Provision of technical information

The licensee must provide, and maintain, up-to-date technical information related to associated radiocommunications installations that are in service within one month of the issuance of this licence. The licensee must provide or otherwise update and confirm the accuracy of their data relating to all in-service installations on a monthly basis, regardless of whether any changes have occurred. If there are no radiocommunication installations in service associated to this spectrum licence, the licensee must indicate this as well.

The licensee must adhere with all other definitions, criteria, and timelines specified in Client Procedures Circular CPC-2-1-30, Technical Information Associated with Radiocommunication Installations, as amended from time to time.

A9. Compliance with legislation, regulation and other obligations

The licensee is subject to and must comply with the Radiocommunication Act and the Radiocommunication Regulations, as amended from time to time. The licensee must use the assigned spectrum in accordance with the Canadian Table of Frequency Allocations and the spectrum policies applicable to this band, as amended from time to time. The licence is issued on condition that all representations made in relation to obtaining this licence are all true and complete in every respect.

A10. Lawful interception

A licensee operating as a telecommunications common carrier using the spectrum for voice telephony systems must, from the inception of service, provide for and maintain lawful interception capabilities as authorized by law. The requirements for lawful interception capabilities are provided in the Solicitor General's Enforcement Standards for Lawful Interception of Telecommunications (Rev. Nov. 95). These standards may be amended from time to time.

The licensee may request the Minister to forbear from enforcing certain assistance capability requirements for a limited period of time. The Minister, following consultation with Public Safety Canada, may exercise the power to forbear from enforcing a requirement or requirements where, in the opinion of the Minister, the requirement is not reasonably achievable. Requests for forbearance must include specific details and dates indicating when compliance with the requirement can be expected.

A11. Deployment requirements

The licensee will be required to demonstrate to the Minister, through site upload information, that the spectrum has been put to use within two years of the initial licence issuance date to the levels set out in the Addendum to the Non-Competitive Local Licensing Framework to Include Spectrum in the 24.25-25.1 GHz Band. Only stations that are actively being used for radiocommunication (as defined in the Radiocommunication Act) shall be considered valid deployments for the purposes of meeting this condition.

The licensee is required to meet these conditions at all relevant times during the licence term and to continuously provide services throughout the term of the licence in accordance with these requirements.

The licensee must provide the Minister with any documentation or information related to deployment at the Minister's request.

This condition does not apply to temporary licences of less than one year's duration.

NCL licensees may deploy base stations anywhere within their licence areas. However, NCL licensees must not transmit to devices and/or receivers outside of their licence areas.

A12. Technical considerations and international and domestic coordination

The licensee must comply on an ongoing basis with the technical aspects of the appropriate Radio Standards Specifications (RSS) and Standard Radio System Plans (SRSP), as amended from time to time.

The licensee must comply with the obligations arising from current and future frequency coordination agreements established between Canada and other countries and shall be required to provide information or take actions to implement these obligations as indicated in the applicable SRSP.

NCL licences for systems operating on blocks BB16 or BB17 (i.e., 25-25.05 GHz and 25.05-25.1 GHz) are issued on a no-interference, no-protection basis with respect to flexible use services in the 26 GHz band (i.e., 25.1-27.5 GHz).

A13. Mandatory antenna tower and site sharing

A licensee that is using this spectrum as a telecommunications common carrier, as defined in the Telecommunications Act, must comply with the mandatory antenna tower and site sharing requirements set out in CPC-2-0-17, Conditions of Licence for Mandatory Roaming and Antenna Tower and Site Sharing and to Prohibit Exclusive Site Arrangements, as amended from time to time.

A14. Mandatory roaming

A licensee that is using this spectrum as a telecommunications common carrier, as defined in the Telecommunications Act, must comply with the roaming requirements set out in CPC-2-0-17, Conditions of Licence for Mandatory Roaming and Antenna Tower and Site Sharing and to Prohibit Exclusive Site Arrangements, as amended from time to time.

A16. Amendments

The Minister retains the discretion to amend these terms and conditions of licence at any time.

ISED will not accept applications of earth stations sited in and/or whose contours overlap the following metropolitan Tier 5 service areas, as well as in LPCs and MPCs.