SMSE-012-11 August 2011 Spectrum Management and Telecommunications Consultation on a Policy and Technical Framework for the Use of Non-Broadcasting Applications in the Television Broadcasting Bands Below 698 MHz Aussi disponible en français Contents 1. Intent...............................................................................................................................................1 2. Policy Objectives............................................................................................................................1 3. Abbreviations.................................................................................................................................2 4. Current Spectrum Use in TV Broadcasting Bands Below 698 MHz........................................3 5. Background....................................................................................................................................3 5.1 United States........................................................................................................................3 5.2 United Kingdom...................................................................................................................4 5.3 Canada..................................................................................................................................5 6. Introduction of TV White Space Devices in Canada..................................................................7 6.1 Use of Spectrum Sensing and Databases.............................................................................8 6.2 Establishment of Databases of Protected Canadian Systems..............................................9 6.3 Technical Provisions..........................................................................................................11 6.4 Protection of TV Broadcasting..........................................................................................12 6.5 Remote Rural Broadband Systems (RRBS)......................................................................14 6.6 Low-power Apparatus (LPA)............................................................................................16 6.7 Other Potential Impacts......................................................................................................19 6.8 Overall Conclusions on White Space Devices...................................................................20 7. Changes to the Canadian Table of Frequency Allocations......................................................21 8. Cross-border Impact...................................................................................................................23 9. Next Steps.....................................................................................................................................23 10. Submitting Comments.................................................................................................................24 11. Obtaining Copies..........................................................................................................................24 i Consultation on a Policy and Technical Framework for the Use of Non-Broadcasting Applications in the Television Broadcasting Bands Below 698 MHz SMSE-012-11 1. Intent Through the release of this paper, Industry Canada is hereby initiating a consultation as announced in Canada Gazette notice SMSE-012-11, Consultation on a Policy and Technical Framework for the Use of Non-Broadcasting Applications in the Television Broadcasting Bands Below 698 MHz. Industry Canada is considering whether to introduce a new wireless telecommunications application into the television (TV) broadcasting bands using TV white spaces. TV white space refers to portions of the TV broadcast spectrum that are unassigned so as to prevent interference between broadcast stations or remain unassigned due to limited demand (usually for TV stations in smaller markets). This portion of the spectrum is also used by other devices and, as such, creates a complex sharing situation where new approaches are required, including the use of databases that ensure that TV white space devices use frequencies in a manner that does not cause interference to nearby broadcast stations. Comments are sought on all aspects of the policy and technical framework, including the: 1. possible introduction of licence-exempt TV band white space devices; 2. possible changes to the policy and regulatory framework for licensed remote rural broadband systems (RRBS); and 3. possible changes to the policy and regulatory framework for licensed low-power apparatus (LPA), such as wireless microphones. 2. Policy Objectives The Minister of Industry, 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. One of the objectives of these policies is to ensure that Canadian consumers, businesses and public institutions benefit from the introduction of new, advanced and affordable wireless telecommunications services in all regions of the country. In pursuing this objective, Industry Canada has worked to encourage innovation and investment, which can lead to lower prices, better services and more choice for Canadian consumers, businesses and public institutions. The goal of the proposals presented in this document is to develop a policy and technical framework to make additional spectrum available for licence-exempt applications while taking into consideration the impact on existing users of the spectrum. This is consistent with the objective of the Spectrum Policy Framework for Canada to maximize the economic and social benefits that Canadians derive from the use of the radio frequency spectrum. 1 Consultation on a Policy and Technical Framework for the Use of Non-Broadcasting Applications in the Television Broadcasting Bands Below 698 MHz SMSE-012-11 In the 2010 Digital Economy Consultation, under the pillar of Building a World-Class Digital Infrastructure, access to spectrum was identified as one of the challenges facing Canada. By issuing this consultation paper, the Department is delivering on this commitment. 3. Abbreviations The following abbreviations are used in this document. BAS broadcast auxiliary services CRTC Canadian Radio-television and Telecommunications Commission dBm decibels relative to one milliwatt (0 dBm = -30 dBW) dBμ decibels relative to one microvolt per metre dBW decibels relative to one watt (0 dBW = 30 dBm) DTV digital television e.i.r.p. equivalent isotropically radiated power FCC U.S. Federal Communications Commission GHz gigahertz (1 GHz = 109 hertz or a frequency of one billion cycles per second) GPS global positioning system LPA low-power apparatus (e.g. wireless microphones) MHz megahertz (1 MHz = 106 hertz or a frequency of one million cycles per second) RRBS remote rural broadband systems Wi-Fi Wireless Fidelity, an industry technical standard for wireless networking 2 Consultation on a Policy and Technical Framework for the Use of Non-Broadcasting Applications in the Television Broadcasting Bands Below 698 MHz SMSE-012-11 4. Current Spectrum Use in TV Broadcasting Bands Below 698 MHz For reference, the following diagram shows the current Canadian spectrum use in TV broadcast spectrum below 698 MHz. Figure 4-1: Frequency Ranges Under Consideration V 54 72 MHz 76 88 MHz 174 216 MHz H 2 3 4 5 6 7 8 9 10 11 12 13 F LPA LPA LPA 470 512 MHz 14 15 16 17 18 19 20 LPA 512 608 MHz U 21 22 23 24 25 26 27 28 29 30 31 32 33 34 35 36 H Remote Rural Broadband Systems F LPA 608 614 698 MHz 371 38 39 40 41 42 43 44 45 46 47 48 49 50 51 Remote Rural Broadband Systems 2 LPA Note 1: TV channel 37 is allocated to the radio astronomy service, and is not available for broadcasting or RRBS. Note 2: TV channel 37 may also be used for wireless medical telemetry. 5. Background 5.1 United States Television broadcasting bands in the United States have traditionally been shared with other radiocommunication applications, including wireless microphones, broadcast auxiliary services (BAS) and cable television distribution. In addition, footnote NG 66 of the U.S. Table of Frequency Allocations1 specifies that portions of the frequency band 470-512 MHz are available for non-broadcasting applications, including one to three TV channels in 13 large U.S. cities2 for land mobile and public safety use. 1 See http://www.fcc.gov/oet/spectrum/. 2 Boston, MA-Northwestern IN, Chicago, IL, Cleveland, OH, Dallas-Forth Worth, TX, Detroit, MI, Houston, TX, Los Angeles, CA, Miami, FL, New York, NY-Northeastern NJ, Philadelphia, PA, Pittsburgh, PA, San-Fransisco-Oakland, CA, and Washington, DC-MD-VA. 3 Consultation on a Policy and Technical Framework for the Use of Non-Broadcasting Applications in the Television Broadcasting Bands Below 698 MHz SMSE-012-11 In the United States, the transition to DTV was completed on June 12, 2009, at which time previously auctioned frequencies above 698 MHz became available for commercial and public safety mobile communications. In the spectrum below 698 MHz, wireless microphones, BAS and other services that have traditionally shared spectrum with TV will continue to operate. In addition, the U.S. Federal Communications Commission (FCC) has been very interested in the potential for opportunistic access by unlicensed devices, such as so-called “white space” devices. The concept of white spaces was first raised in the 2002 U.S. Spectrum Policy Task Force report. In 2004, the Government of the United States first discussed applying the concept of white spaces specifically in the context of the TV bands. The concept of TV white spaces is described in detail in Section 6 of this document. The FCC issued its final rules for the use of TV white spaces in September 2010.3 In January 2011, the FCC designated nine companies that will be permitted to provide the database services required for use by white space devices4 and on July 29, 2011, conditionally designated a 10th company5 as a database administrator. The FCC decision-making process related to white space devices is now complete, and it is anticipated that such products will first be available on the U.S. market in late 2011 or early 2012. The detailed U.S. rules for TV white space devices are contained in Part 15.701 of Title 47 of the U.S. Code of Federal Regulations. Included in the FCC’s September 2010 decision were provisions to reserve two vacant TV channels across the United States, although not necessarily the same channels in each area, for the use of wireless microphones and other low-power auxiliary service devices. In March 2010, the U.S. National Broadband Plan was published. The plan includes a goal to make 500 MHz of radio spectrum available for mobile broadband use in the frequency range from 225 MHz to 3.7 GHz within 10 years. Of this amount, 300 MHz is to be made available for mobile broadband use within five years. This would include up to 120 MHz of TV broadcast spectrum below 698 MHz, which would be made available through a combination of a proposed incentive auctions that would compensate U.S. TV broadcasters who agreed to cease over-the-air operation. Measures would be taken to rearrange the channel assignments for remaining DTV broadcasters so that they would fit in the remaining spectrum. If this plan goes ahead, it will result in a reduction in spectrum available in the United States for white space applications in TV bands. 5.2 United Kingdom In the United Kingdom, Ofcom initiated a consultation on November 9, 2010, containing proposals on how to successfully launch TV white space technology and how new devices can be made available to 3 See FCC 10-174, which is available at http://www.fcc.gov/Daily_Releases/Daily_Business/2010/db0923/FCC-10- 174A1.pdf. 4 See DA 11-131, which is available at http://www.fcc.gov/Daily_Releases/Daily_Business/2011/db0126/DA-11- 131A1.pdf. 5 See DA 11-1291, which is available at http://transition.fcc.gov/Daily_Releases/Daily_Business/2011/db0729/DA-11- 1291A1.pdf. 4 Consultation on a Policy and Technical Framework for the Use of Non-Broadcasting Applications in the Television Broadcasting Bands Below 698 MHz SMSE-012-11 consumers without the need for a licence.6 Comments on this consultation were due on December 7, 2010, but final rules are still pending. Ofcom has indicated that it expects that this will be the last consultation needed before adopting rules for white space devices. Ofcom’s proposed rules for TV white space devices are broadly similar to those of the U.S. FCC in that they are both proposing that these devices operate on a licence-exempt basis, using database systems to protect other spectrum users from interference. The main differences between the U.S. and U.K. approaches to TV white space devices are that the United Kingdom has provided for greater flexibility in the how its TV white space devices meet the criteria for protection of TV broadcast receivers from interference. For example, devices can trade off power against out-of-band emissions or power against separation distance. The resulting complexity will require correspondingly greater technical sophistication in the databases used in the United Kingdom. Full details are provided in Ofcom’s consultation paper, which is cited above. 5.3 Canada Like other countries, Canada is looking at ways to improve access to spectrum for new applications. Canada is interested in developing new policies to provide access to spectrum that in the past would have been difficult to use. For example, following the 2003 World Radiocommunication Conference, Canada allowed licence-exempt radio local area networks (RLANs) to operate in the 5 GHz band by making use of technical measures (e.g. dynamic frequency assignment) to share spectrum with existing radar systems. Over-the-air broadcasting has long been a key vehicle for delivering TV programming to Canadians. However, development in the United States and the United Kingdom has shown the potential to accommodate additional uses in this spectrum. Canada, again like many other countries, is moving toward a digital standard for the provision of over-the-air TV broadcasting. The CRTC has issued three notices on this matter: the first, Broadcasting Public Notice CRTC 2007-53,7 set the date of August 31, 2011, after which Canadian TV broadcasting licensees would be authorized to broadcast only digital over-the-air signals, with the exceptions of TV stations in northern and remote communities. During the period leading up to this date, Industry Canada made allowances for simultaneous analog and digital TV (DTV) transmissions by allotting an additional digital channel to each existing analog TV broadcasting station. Following the transition to DTV, these extra channels should no longer be needed. The CRTC modified its decision in July 2009 through Broadcasting Regulatory Policy CRTC 2009-406.8 This decision limited the requirement to convert to DTV to only certain mandatory markets, which include the National Capital Region, provincial and territorial capitals, markets served by more than one originating station and markets with a population greater than 300,000 people. In a further 6 See Ofcom: Implementing Geolocation, which is available at http://stakeholders.ofcom.org.uk/consultations/geolocation/?a=0. 7 See http://www.crtc.gc.ca/Eng/archive/2007/pb2007-53.htm. 8 See http://www.crtc.gc.ca/eng/archive/2009/2009-406.htm. 5 Consultation on a Policy and Technical Framework for the Use of Non-Broadcasting Applications in the Television Broadcasting Bands Below 698 MHz SMSE-012-11 modification on March 14, 2011, the CRTC released Broadcasting Regulatory Policy CRTC 2011-184,9 which removed territorial capitals as mandatory markets. Based on these decisions, the CRTC has identified the following markets where it will be mandatory for existing TV broadcasters to transition to DTV:  British Columbia: Vancouver, Victoria  Alberta: Calgary, Edmonton, Lethbridge, Lloydminster  Saskatchewan: Regina, Saskatoon  Manitoba: Winnipeg  Ontario: Toronto (includes Barrie and Hamilton), London, Windsor, Kitchener, Thunder Bay  Quebec: Montréal, Québec, Trois-Rivières, Sherbrooke, Rivière-du-Loup, Saguenay, Rouyn-Noranda/Val d’Or  New Brunswick: Saint John, Moncton, Fredericton  Nova Scotia: Halifax  Prince Edward Island: Charlottetown  Newfoundland and Labrador: St. John’s  National Capital Region (Ottawa-Gatineau) Using spectrum that has been made available due to the transition from analog to digital TV, radio spectrum above 698 MHz is now being made available for use by commercial entities and public safety agencies for mobile wireless telecommunications. This is currently the subject of a public consultation entitled Consultation on a Policy and Technical Framework for the 700 MHz Band and Aspects Related to Commercial Mobile Spectrum,10 which covers the use of the spectrum above 698 MHz. TV broadcasting spectrum below 698 MHz is already shared with licensed LPA such as wireless microphones.11 In January 2010, Industry Canada issued a Spectrum Advisory Bulletin (SAB-001-10),12 which restricted the licensing and certification of LPA in the band 698-806 MHz. In addition, in June 2006, Industry Canada established rules for the use of licensed subscriber-based broadband Internet systems in remote rural areas on TV channels 21 to 51 (512-698 MHz) except channel 37.13 These systems, called RRBS, are unique to Canada and are established on a no-protection, no-interference basis with respect to all TV broadcast stations, including low-power and very low-power TV (refer to Radio Systems Policy RP-0614). 9 See http://www.crtc.gc.ca/eng/archive/2011/2011-184.htm. 10 See http://www.ic.gc.ca/eic/site/smt-gst.nsf/eng/sf09949.html. 11 Low-power apparatus consists of wireless microphones, cue and control communications, synchronization of video camera signals and video cameras. 12 SAB-001-10, Low-power Licensed Radiocommunication Devices, Including Wireless Microphones, in the Band 698-806 MHz, is available at http://www.ic.gc.ca/eic/site/smt-gst.nsf/eng/sf09777.html. 13 Channel 37 is allocated to the radio astronomy service, and is not available for broadcasting or RRBS. 14 See http://www.ic.gc.ca/eic/site/smt-gst.nsf/eng/sf08664.html. 6 Consultation on a Policy and Technical Framework for the Use of Non-Broadcasting Applications in the Television Broadcasting Bands Below 698 MHz SMSE-012-11 RRBS licences are authorized by Industry Canada, on a case-by-case basis, to make use of radio spectrum that is currently unallotted and unassigned to TV broadcasters provided that: • the RRBS be located at sufficient distance from major population centres, TV broadcasting facilities and their service contours so as not to cause them interference; and • the RRBS not constrain the provision of current and future TV broadcasting services. Although TV broadcasting bands are already shared with LPA and RRBS, many TV channels in many locations remain unassigned and unused by LPA, RRBS or broadcasting. The remainder of this paper considers how this unused spectrum could be put to use. 6. Introduction of TV White Space Devices in Canada White space devices are designed to operate using unassigned TV channels and without interfering with licensed broadcasters or other authorized wireless telecommunications licensees. These devices would be exempted from requiring a licence and would operate on a no-protection, no-interference basis with respect to licensed radio systems. However, these devices would need to be certified under the applicable department’s technical standard. If Industry Canada authorizes the use of white space, it is anticipated that these devices would be initially targeted at the mass consumer market. Consumers could potentially benefit in three ways:  from the availability of consumer Wi-Fi devices with significantly improved range;  from improved access to the Internet service resulting from availability of lower cost wireless broadband equipment; and  from potential future availability of innovative new products and services. Potential applications include:  last-mile Internet service to individual homes by a wireless Internet service provider in a manner similar to services provided through RRBS; and  local area networking within a home or office using consumer-owned equipment (this could be used, for example, to redistribute Internet service that has already been brought to the home or office by other means). Beyond the above applications, it has been argued in the various proceedings in the United States and the United Kingdom that allowing for the use of white spaces on a licence-exempt basis has the potential to foster innovation and other applications that may result from the development of associated technologies. In particular, the use of white space may facilitate the development of dynamic spectrum access techniques, which is a key component in making more spectrum available through improved spectrum sharing. 6-1 Comments are sought on the benefits that could be expected from making white space available in Canada. 7 Consultation on a Policy and Technical Framework for the Use of Non-Broadcasting Applications in the Television Broadcasting Bands Below 698 MHz SMSE-012-11 The introduction of new radio technologies in Canada requires that Industry Canada first develop appropriate technical standards and specify appropriate operating parameters to ensure that other users of the radio spectrum environment are adequately protected from potential radio interference. The hands-off nature of licence-exemption traditionally meant that Industry Canada had to rely primarily upon compliance with technical standards at the time of certification, rather than specific parameters associated at the time of operation, as a means of preventing harmful interference to other spectrum users. For these reasons, technical standards established for equipment certification have had to be developed using conservative assumptions regarding interference potential. Also, once a licence-exempt product had been sold in significant numbers, it would have been difficult to take corrective action en masse should interference have occurred, or if non-compliance with technical standards were revealed through subsequent market surveillance. One important innovation of white space devices is the use of registration databases, which allow for real time control of interference. Because much of the technical parameters that limit operation of white space devices reside in such databases, changes to technical and operating requirements can be made quite quickly, simply by modifying how the database functions. For example, interference protection criteria could be tightened or relaxed, as required, as experience is gained. In addition, operation of malfunctioning equipment could be immediately restricted until it is possible to make necessary repairs. The reactive capability provided by these database functionalities could allow Industry Canada to take a more timely, flexible approach to the development of upfront technical rules that would still ensure protection of other radio systems from interference. This, in turn, could lead to improved access to a finite supply of radio spectrum. 6-2 Comments are sought on the benefits of the above-mentioned innovation to manage interference. As was noted earlier, the United States is seeking additional spectrum for mobile broadband use in what are currently TV broadcasting bands. This has the potential to reduce the amount of spectrum available for white space devices in the United States. The potential impact of these developments on TV broadcasting in Canada is outside the scope of this paper. However, regardless of the amount of spectrum that may be available for white space devices, Industry Canada concludes that the potential innovation related to the management of interference discussed above remains unchanged. 6.1 Use of Spectrum Sensing and Databases There are two general approaches that can be used by white space devices to provide interference protection for existing licensees in the TV bands: spectrum sensing and use of geographic TV band databases. Spectrum sensing is defined as the capability of detecting and avoiding signals from TV broadcasting stations and LPA that exceed a certain threshold within defined receiver bandwidths. Thus, a white space device would monitor the radio frequency band desired for operation and sense whether the spectrum is currently being used. If, based on the detection threshold, the spectrum was not being used, the white space device could then operate. Monitoring would be required on an ongoing basis to 8