Proposals and Changes to the Spectrum in Certain Bands Below 1.7 GHz

4. Provisional Spectrum Policy for the Frequency Band 220–222 MHz

The aim of the allocation changes made in Section 3 for the 220–222 MHz band is to accommodate a range of mobile and fixed service applications to meet the radiocommunication needs of a number of user groups.

4.1 Discussion

The re-assignment of this band is expected to make a more efficient use of the spectrum while providing some relief to the very congested land mobile bands at 150 MHz and 450 MHz. Section 3.1 provided the background, rationale and justification for making provisional allocations. The same arguments support early spectrum utilization policy changes. In order to accelerate the release of this spectrum, the Department is herein setting out a provisional spectrum utilization policy.

4.2 Provisional Spectrum Utilization Policy

The Department is of the view that a general alignment of the spectrum utilization with the U.S. (i.e. the frequency band plan, technical radio standards and general service applications), will provide an early opportunity for Canadian users to benefit from similar radio technology and services. Some aspects of spectrum policy, technical standards and operational guidelines will serve as the basis for a provisional spectrum utilization policy for the band 220–222 MHz.

The Department is, herein, establishing a provisional spectrum utilization policy in the band 220–222 MHz, comprised of these specific provisions:

• The spectrum is to accommodate a wide number of users and to be assigned using the authorization process deemed most suitable for efficient deployment of the frequency band in question. It is anticipated that this spectrum will be licensed using a first-come, first-served (FCFS) licensing process (similar to the “managed” FCFS approach used in the 150 MHz and 450 MHz land mobile bands).
• Flexibility will be afforded to encourage users to deploy various technologies and services.
• The frequency plan will be aligned on a North American basis and will be based on supporting narrowband technology with pairs of 5 kHz channels distributed across the band.
• For land mobile systems, the base station transmit frequencies will be in the sub-band 220–221 MHz and the mobile terminal transmit frequencies will be in the sub-band 221–222 MHz.
• The conventional Canada-U.S. split of spectrum sharing zone-percentages by frequency coordination agreement will determine the amount of spectrum available in Canada along the border areas. Customarily this ranges from an average of 50% across most of Canada to as low as 15% in Windsor, to a high of 70% in Toronto.
• Channels will be identified as national frequencies while others will be identified as regional or local frequencies.
• Some channels may be earmarked for a particular usage such as public safety, railway operation and utility telemetry.
• Applicants for spectrum in an FCFS licensing process, will have to demonstrate some public interest, convenience or necessity for the service.
• Technical standards and operating parameters will be developed, and further licensing guidelines may be developed.

In terms of spectrum sharing along the border for the band 220–222 MHz, Canada and the U.S. would have 400 channels (5 kHz bandwidth) to share out of 2 MHz of spectrum. A large part of Canada would have some 210 channels to use (over 50%). Accordingly, the spectrum availability along the border could vary and there could be some constraints or abundance of available channels. In the Toronto/Buffalo border area, Canada would have access to some 280 channels (70%). In the Windsor/Detroit border area, the ratio is reversed with Canada only having access to some 80 channels (20%).

The limited spectrum in the Windsor/Detroit border area constrains common nation-wide frequency availability. Consequently, a pragmatic approach to a domestic utilization plan would be to develop national and regional/local plan where regional spectrum managers would have latitude to make channels available in a manner that balances the public interest with the demands for the channels in accordance with the afore-mentioned spectrum principles.

4.3 Some Technical Considerations

The work to develop the technical standards, channel plan and operational parameters is already well-underway by industry through the RABC. In terms of the emerging frequency channelling plan and formula being considered by industry, the lower edge of channel 1 would start at 220 MHz, spaced 5 kHz apart from the next channel, for a total of 200 channels. The centre frequency corresponding to the channel number would be determined by the following formula, where n is the channel number:

f = 220.0025 MHz + (n–1)*(.005) where n = 1 to 200
f = 221.0025 MHz + (n–1)*(.005) where n = 1 to 200

The standard channel width for this spectrum is 5 kHz and assignments of centre frequencies would begin 2.5 kHz from the band edge. Different channel widths than specified above would be considered if they allow for the use of equipment which is more spectrally efficient (e.g. more voice channels or bits/hertz than would otherwise be obtained).

Effective radiated power (e.r.p.) and height above average terrain (HAAT) limits, would be limited to that necessary to provide the required service as determined by the system requirements and will be subject to the certain limitations to be developed through more discussion with industry.

In the 221–222 MHz band, the maximum effective radiated power allowable for mobile units would be 50 watts. Portable units are considered mobile units. Fixed stations transmitting in this band would be permitted up to 50 watts e.r.p. using an antenna with a maximum height of 7 metres above average terrain. Transmissions from antennas that are higher than 7 metres above average terrain will be permitted if the effective radiated power is reduced below 50 watts e.r.p. by 20 log₁₀(h/7) dB. (Note: h is the height of the antenna above average terrain, in metres.)

These technical parameters, along with the geographic separation between co-channel base stations, interference contour and the minimum carrier to interference (C/I) ratio, will be refined through the further work and discussion between the Department and industry through the RABC. The final technical standards and operational parameters will form the basis of a revised frequency sharing agreement that the Department will negotiate with the U.S. if required.

4.4 Implementation

Given the public discussion carried out over in the past two years regarding urgency to establish a spectrum utilization policy for the band 220–222 MHz to support important mobile and fixed services, the Department is making this spectrum utilization policy provisional. All the information presented shows that these changes will advance the public interest and make a greater and more efficient use of a limited spectrum resource.

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5. Proposed Spectrum Designations in the Frequency Band 216–220 MHz

The band 216–220 MHz is allocated to the fixed, land mobile and maritime mobile radio services on a co-primary basis. The spectrum has been opened up for fixed and maritime mobile services but has been held in reserve for land mobile licensing. Licensing for this spectrum is done on a first-come, first-served basis. Fixed radio applications are permitted in the band with appropriate separation from maritime mobile systems, that is 170 km away from navigable waterways. Waterways must be of sufficient depth or width to be used by boats and ships. Some frequency separation between fixed assignments and television channel 13 at 216 MHz is required to control excessive out-of-band emissions into/from the broadcasting service.

5.1 Discussion

Generally, the band 216–220 MHz has continued to be under-utilized for all radio application purposes, including those of the maritime mobile service. A current review of the licence database indicates that there are only 66 radio station assignments across the country. Of these 66 assignments, 23 are ship stations operating on the West Coast. There are only a handful of fixed and mobile assignments as 50% of all assignments are for experimental applications such as utility telemetry and animal migration tracking.

During the 1995 spectrum policy review for this frequency band, the Department reserved the sub-band 218–219 MHz for emerging mobile applications and specifically for Interactive Video Data Services (IVDS). Since that time, representations have been received from industry requesting that the band be aligned with the U.S. for similar radio applications. Table 1 outlines the use of this spectrum in Canada and the U.S. In fact, IVDS never emerged in North America. Instead, a range of mobile and fixed radio applications has emerged in the U.S. and consequently so has the availability of radio equipment to support them.

The Department is of the view that greater use of the sub-band 218–219 MHz should be made due to the shortage of prime mobile spectrum below 1 GHz. It would be beneficial if a wide range of mobile and fixed applications could emerge to accommodate public safety, private and commercial mobile, utility telemetry and others.

Table 1 — Canada/U.S. Comparison of Existing Uses of the Band 216–220 MHz

Frequency Band (MHz)	216–217	217–218	218–219	219–220
Canada	Maritime mobile use is light and has continued to decrease. Fixed radio applications are permitted with restrictions and use is very low. Hydro line monitoring telemetry applications and seasonal wild life tracking activities currently operate on an experimental basis.		This spectrum was designated for Interactive Video Data Services (IVDS), but the application never emerged.	Maritime mobile use is light and has continued to decrease. Fixed radio applications are permitted with restrictions and use is very low.
U.S.	Private Land Mobile
	Current telemetry use is grandfathered and on a secondary basis.	Telemetry and tracking applications are currently permitted on a secondary basis.
	Licence-exempt auditory assistance devices	Maritime users operate Automated Maritime Telecommunications Services (AMTS) applications for fixed point-to-point control links.	Short-Distance Communication Service	Also allocated on a secondary basis to the amateur service. The band plan of the American Radio Relay League for 219–220 MHz designates this band for amateur radio digital data communications.

In general, in Canada the band 216–220 MHz is available to maritime mobile applications and some limited fixed radio operation. During the last review of this band, the availability of the band to land mobile applications was placed in reserve for new and emerging mobile applications.

In the U.S., the full band is available for private land mobile applications. Other radio applications in the sub-bands include maritime mobile, fixed applications such as utility telemetry and auditory assistance communications and amateur use on a secondary basis.

Sub-band 216–217 MHz

It is noted that in the sub-band 216–217 MHz, the U.S. permits the use of licence-exempt auditory assistance devices to enhance the ability of the hearing impaired in indoor venues like cinemas and theatres etc. In this regard, it is understood that indoor use of these low-power auditory assistance devices should not pose interference to the reception of television channel 13.

Sub-band 217–218 MHz

Current maritime mobile use of the sub-band 217–218 MHz is light. As previously-noted there are only 66 radio frequency assignments across the country.

Sub-band 218–219 MHz

The 1995 spectrum policy designated the sub-band 218–219 MHz for applications like IVDS, but there has been no interest. Similarly in the U.S., no applications emerged for IVDS. In fact, this sub-band has recently been re-designated to the short-distance communication service for radio applications that transmit information, product and service offerings to subscribers and receive interactive responses within a specified service area.

Sub-band 219–220 MHz

In the U.S., the sub-band 219–220 MHz forms part of the 217–220 MHz frequency range used for telemetry and tracking applications. In addition, the amateur service is permitted on a secondary basis by domestic footnote to operate certain applications.

Currently on a developmental and experimental basis, utility telemetry applications and wildlife monitoring applications operate in this sub-band in certain locations across Canada.

5.2 Proposed Designation Changes to the Band 216–220 MHz

As the land mobile application has been on reserve by spectrum policy since 1995, awaiting the development of new radio applications, it is now timely to open the allocation to full use including land mobile applications. The Department proposes that service designations for the 216–220 MHz band be aligned with those of the U.S. to support similar applications. These new designations could lead to the development of a band plan, technical standards and licensing considerations and hence a better use of this spectrum for a range of new radio applications and radio equipment. With this in mind, the Department proposes to permit a greater flexibility in the use of this spectrum as coordinated and licensed.

Therefore, in the band 216–220 MHz, the Department proposes to:

1. open the band for land mobile applications;
2. permit flexible use of the spectrum within the frequency allocations and to licence a range of radio systems and services;
3. remove the designation of spectrum for IVDS applications in the sub-band 218–219 MHz;
4. permit licence-exempt auditory assistance devices to operate in the sub-band 216–220 MHz on a no-protection, no-interference basis; and
5. permit amateur service to operate in exceptional circumstances in the sub-band 219–220 MHz on a secondary no-protection, no-interference basis.

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