Improving Aboriginal Peoples' Place in Canada's Digital Economy

Submitted by Aboriginal Peoples Television Network Incorporated 2010-07-13 16:06:49 EDT

Theme(s): Building Digital Skills, Canada's Digital Content, Digital Infrastructure

Executive Summary

Aboriginal Peoples Television Network Incorporated ("APTN") is Canada's national Aboriginal television network. APTN is licensed by the Canadian Radio–television and Telecommunications Commission ("CRTC") and is available throughout Canada, usually as a basic service, as a part of cable, satellite and other distribution services.

APTN's submission discusses the following:

1. APTN is a success story in Aboriginal communications in Canada and represents an indication of what can be achieved through the efforts of Aboriginal Peoples and enlightened public policy.
2. APTN has a direct interest, as a leading Aboriginal communications organization, in ensuring that Aboriginal Peoples participate fully in Canada's digital economy.
3. Government policy needs to take into account the particular position of Aboriginal Peoples in Canada, particularly those Aboriginal Peoples that live in remote areas. Special attention needs to be given to remote Aboriginal communities to ensure that they are not left behind and benefit fully from Canada's digital economy.
4. Among other things, the government should consider: collecting data on Aboriginal connectivity and the characteristics of broadband access as a baseline against which to measure progress; requiring service providers to provide full service to remote areas as a condition of access to public spectrum; earmarking funds received from the auction of public spectrum to support Aboriginal connectivity initiatives; and funding research to improve the technical capabilities of broadband services in remote areas.
5. Funding infrastructure is important, but infrastructure that is broken in a remote area is of no use unless there is someone on hand to fix it. The government should give particular attention to hands–on training programs to help remote communities to develop the capacity to maintain their own broadband networks. This kind of training initiative is just as important as ensuring that citizens are capable of using digital tools that can be accessed through high–speed networks.

Submission

Improving Aboriginal Peoples' Place in Canada's Digital Economy

1. Aboriginal Peoples Television Network Incorporated ("APTN") is Canada's national Aboriginal television network. APTN is licensed by the Canadian Radio-television and Telecommunications Commission ("CRTC") and is available throughout Canada, usually as a basic service, as a part of cable, satellite and other distribution services.
2. APTN is a member of the Independent Broadcast Group/ Le group de diffuseurs indépendent ("IBG/GDI"). APTN supports the submission made by IBG/GDI in this process. These comments are filed in addition to the comments of IBG/GDI.

Executive Summary

3. In this submission, we discuss the following:
   • APTN is a success story in Aboriginal communications in Canada and represents an indication of what can be achieved through the efforts of Aboriginal Peoples and enlightened public policy.
   • APTN has a direct interest, as a leading Aboriginal communications organization, in ensuring that Aboriginal Peoples participate fully in Canada's digital economy.
   • Government policy needs to take into account the particular position of Aboriginal Peoples in Canada, particularly those Aboriginal Peoples that live in remote areas. Special attention needs to be given to remote Aboriginal communities to ensure that they are not left behind and benefit fully from Canada's digital economy.
   • Among other things, the government should consider: collecting data on Aboriginal connectivity and the characteristics of broadband access as a baseline against which to measure progress; requiring service providers to provide full service to remote areas as a condition of access to public spectrum; earmarking funds received from the auction of public spectrum to support Aboriginal connectivity initiatives; and funding research to improve the technical capabilities of broadband services in remote areas.
   • Funding infrastructure is important, but infrastructure that is broken in a remote area is of no use unless there is someone on hand to fix it. The government should give particular attention to hands-on training programs to help remote communities to develop the capacity to maintain their own broadband networks. This kind of training initiative is just as important as ensuring that citizens are capable of using digital tools that can be accessed through high-speed networks.

About APTN

4. APTN is a success story in Aboriginal communications in Canada. APTN was the first national Aboriginal television network in the world and is now recognized as a leader in Aboriginal broadcasting. APTN grew from roots first established in the mid-1980s with the advent of satellite communications capable of delivering Aboriginal-language content, including television programming, across Northern Canada. In 1991, the CRTC licensed APTN's predecessor network, Television Northern Canada, which formalized these television delivery arrangements and established a Northern shared satellite-based television network.
5. In the late 1990s, TVNC's member organizations, which consisted of Aboriginal communications societies recognized under the federal government's Northern Native Broadcasting Access Program and representatives of Aboriginal Peoples from across Canada, decided to apply to the CRTC for a national Aboriginal network. The application to licence APTN was successful and APTN launched as a national service on September 1, 1999.
6. APTN is now a leading national broadcaster. We broadcast three distinctive regional feeds (serving Eastern, Western and Northern Canada), as well as a national service completely in high definition. APTN also has an advanced on-line presence on our website www.APTN.ca, and on our sister websites, www.digitalnations.ca, www.digitaldrum.ca.
7. We broadcast programming in English, French and at least 15 different Aboriginal languages. A great deal of our programming is available in multiple-language formats to make it accessible to a wide audience while also helping to a conserve and advance Aboriginal languages in Canada, many of which are threatened with extinction.
8. APTN was an official broadcaster for the 2010 Olympic and Paralympic Games in Vancouver. As a part of the broadcast consortium, we broadcast 214 hours of programming in 8 different Aboriginal languages and in English and French across Canada. Our participation in the consortium showcased APTN's capabilities and potential as an Aboriginal broadcaster to provide essential communications services to Aboriginal Peoples in Canada, and to connect all Canadians to the experiences of Aboriginal Peoples.
9. Apart from our special coverage of the 2010 Olympic and Paralympic Games, APTN broadcasts a variety of programming as a "first level" of television service for Aboriginal Peoples, and as a way of bridging the gap between Canadians and Aboriginal Peoples. Our programming includes daily national news programming, high-quality dramatic productions, public affairs programming, documentaries, sports, lifestyle and general interest programming and programming showcasing Aboriginal talent, artists and Peoples from all walks of life.
10. APTN commissions most of our programming from the independent production sector. We have been instrumental in jump-starting an Aboriginal independent production industry. This industry is one of number of direct economic spin offs from APTN that have benefited Aboriginal Peoples in Canada.
11. APTN is intimately involved in all aspects of the communications industry and is directly interested in the participation of Aboriginal Peoples as full, participating members of Canadian society, in the advanced communications networks and technologies that will form the basis of Canadian prosperity in the future. Aboriginal Peoples are entitled to be fully engaged in the development of Canada's digital economy strategy, and that strategy should take into account the special place of Aboriginal Peoples in Canadian society.

Connecting Aboriginal Peoples and Aboriginal Communities

12. The Government's consultation paper includes the following statement:

    The telecommunications industry is in the midst of a major shift towards next generation networks (NGN), which provide dramatic improvements in speed, functionality and integration of services using the flexible Internet Protocol (IP). Advances in wireless technology are driving the deployment of ubiquitous wireless broadband networks, which support new mobile devices that have a myriad of uses. Broadband networks are a critical component of the digital economy, enabling a range of new applications that include social media, video conferencing, new e-health applications and smart electrical grids (at page 16).

13. APTN agrees with the statement that broadband networks are a critical component of the digital economy. Moreover, broadband networks are increasingly become a critical component of day-to-day life in the modern world. Access to broadband networks is becoming as important to daily life as access to the telephone.
14. Communities that do not have access to fully capable and modern broadband networks will be placed at a severe disadvantage in the years to come. It can be expected that such communities will suffer real economic harm from being excluded from the digital economy. It can also be expected that individuals in these communities will also suffer from lack of access to critical services that, increasingly, will be delivered based on the assumption that "of course" all Canadians have access to the Internet at reasonable speeds.
15. Government policy has recognized the key role that the knowledge economy will play in the future for all Canadians. Aboriginal Peoples must be provided with a level of access to that economy that is no less than that available to all Canadians. The impact of the recent growth in the Aboriginal independent production sector - which has created many skilled jobs in the ICT sector, helped to facilitate a rejuvenation of purpose for individuals and communities alike, and led to great programs that dispel prejudices about Aboriginal Peoples and that are made available to all Canadians - is a key example of the positive affect that enlightened policy decisions can have for Aboriginal Peoples and for Canada as a whole.
16. But, the fact is, without focused government policy, there is little doubt that Aboriginal Peoples in Canada, especially Aboriginal Peoples in remote areas (but not exclusively them) will be left behind.
17. To our knowledge, statistics regarding the provision of high speed access services in remote Aboriginal communities are limited. Data that is available, such as data concerning the penetration of Internet services into Aboriginal communities, is now 4 or 5 years old - a considerable length of time given the rapid growth of Internet distribution and Internet services.
18. Based on that data, in 2004, a majority of Aboriginal communities did not have access to a high speed broadband service, as reflected in the following chart (from the 2004 Report on Aboriginal Community Connectivity Infrastructure, Aboriginal Canada Portal (aboriginalcanada.gc.ca/acp/site.nsf/en/ao31351.html):

Figure 1: Internet Access - All Aboriginal Communities

19. The proportion is highest within remote communities in which, in 2004, more than 62% of communities had to rely on dial-up access (which is virtually unusable for more than minimal web use) or had no access at all.
20. There is reason to believe that Internet access among Aboriginal communities is improving, including as the result of federal government funding to support certain initiatives. Still, there are characteristics of what is considered high speed access within remote areas that have significant implications for broadband services.
21. For example, Nunavut's Qiniq initiative has been instrumental in rolling out high speed services across that Territory through a public private partnership managed by Nunavut Broadband Development Corporation. Service is provided by means of satellite connected to a local wireless broadband network. But, importantly, there are limitations on this high speed service. High speed service offered by on the Qiniq network starts at 286 kbps burstable (at $60 per month), and the highest available residential bandwidth is 786 kbps burstable (at $400 per month). These speeds are not adequate to support modern broadband applications and, moreover, it is our understanding that the capacity available on this network is already overloaded.
22. There is, therefore, a continuing digital divide between urban and rural communities and, even more significantly, between urban and remote satellite-reliant Aboriginal communities.
23. It is apparent that existing government policies and market forces have not been sufficient to keep Aboriginal Peoples current with the roll-out of infrastructure required to participate in the digital economy. The consultation paper notes that government initiatives, such as the Broadband Canada program, have been designed to provide funds directly to support key broadband connectivity programs and the provision of high speed service to all households. The objective, as noted in the paper, is to "ensure that citizens and communities have more than just basic broadband, but the speeds and capacity needed for economic growth". (emphasis added)
24. APTN supports this objective. However, the position of Aboriginal Peoples as a part of this objective needs to be given particular attention. Aboriginal Peoples live in the most remote parts of this country and are currently among the most, if not the most, underserved population. Yet, we are aware of no single strategy to bring consistent connectivity to all communities, let alone advanced levels of connectivity. There seems to be a gap in Canada's current broadband policy initiatives. It is our view that specific attention needs to be given to Aboriginal communities to ensure that they are not left behind in the drive to make Canada one of the world's most advanced digital economies.
25. Among other things, government policy could consider the following initiatives:
    • The collection of more accurate data focused on Aboriginal communities to establish an accurate and comprehensive baseline of information against which progress can be measured;
    • Require that applicants for the use of spectrum to be used to provide advanced broadband services commit to provide service to remote and underserved communities within the areas served by their spectrum allocations; this requirement should apply to both terrestrial and satellite-based services;
    • Designate a portion of funds received from the auction of public spectrum directly to initiatives that are intended to provide enhanced broadband services in remote areas of Canada; and
    • Fund research to explore technical solutions for remote areas to help these areas overcome technical limitations associated with the broadband solutions that are available to them.
26. Experience has shown that, unfortunately, market forces will not, on their own, ensure that Aboriginal Peoples, especially those in remote areas, will be adequately served by new technologies. Market forces do not take into account the social and policy objectives for ensuring connectivity to remote areas. Direct government oversight and an interventionist policy are required to make sure that Aboriginal Peoples in remote areas are not left behind in the digital economy.

Building Digital Skills for Tomorrow

27. It stands to reason that even if Aboriginal communities were connected to Canada's leading broadband networks, without the necessary training and skills present in those connected communities, the investment would not be used to its full potential. Also, the networks would be susceptible to interruptions and downtime due to technical issues that, in a more urban environment, would be easily addressed through regular inspections and site visits. In remote areas, bringing in technical help from outside is often not a practical solution for urgent network problems.
28. These kinds of difficulties are not unique to telecommunications networks. Experience in other areas, such as ensuring adequate supplies of clean drinking water in remote Aboriginal communities and maintaining existing community infrastructure, has shown that effective training and empowerment of communities should proceed hand-in-hand with economic development initiatives.
29. Government programs that are designed to expand the reach of broadband to remote areas should also, therefore, strive to provide local communities with the skills and resources they need to operate and maintain their own networks. This could be accomplished through designating and training local service providers to act as the first line of support in remote communities for broadband services. In other words, it is not sufficient simply to ensure that remote communities are "connected" government policy must also assist communities to develop the necessary skills to maintain those network connections and ensure they are used effectively in the community.
30. The consultation paper quite correctly notes that Canada needs to ensure that our population is adequately trained, as a whole, to respond to the opportunities created by, and to take full advantage of the digital economy. But, we are pointing out something more fundamental that also needs attention when consideration is given to remote areas: government strategy should focus on the practical realities of operating advanced networks in remote areas, and ensure that the skills are in place to make those networks useful and reliable to the population. This kind of "ground up" approach will, we believe, pay dividends in bringing technological know-how and practical training to remote areas.

Conclusion

31. Thank you for this opportunity to present our views on the Government's consultation on Canada's Digital Economy. We believe that it is important for policy to focus specifically on the needs of Aboriginal communities to ensure that they are not left behind and, indeed, contribute to and benefit fully from, Canada's digital advantage.

Yours truly,

Jean LaRose
Chief Executive Officer

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