CRTC sides with regional wireless carriers in roaming decision

The CRTC mostly accepted the arguments of small wireless carriers against the big three in a ruling on seamless handoff and 5G roaming. In a lengthy decision issued Wednesday, the commission sought to make life easier for the regional players by finding in their favour in almost every one of the disputed areas. Those topics included the possibility of the CRTC Interconnection Steering Committee (CISC) taking part in the process, the use of 3G and 5G networks, and how widespread networks should be for roaming. In 2015, the regulator determined it was necessary to mandate Global System for Mobile (GSM) communications wholesale roaming services by BCE Inc., Rogers Communications Inc. and Telus Corp. to other smaller carriers. Prior to that decision, roaming had been forborne from regulation. The CRTC finalized the terms and conditions two years later and finalized rates in 2018. Last year the commission mandated the national carriers to enable seamless roaming between their networks and those of the regional carriers by Apr. 15, 2022. In 2021 the CRTC also directed the big three plus Saskatchewan Telecommunications Holding Corp. to offer wholesale mobile virtual network operator (MVNO) access service. Telus is currently appealing some of the provisions of that order, especially as they apply to seamless roaming. Some of the telecoms’ arguments applied to both the roaming and MVNO proceedings but Wednesday’s decision does not touch on the latter topic. The regulator identified eight issues that were to be dealt with in Wednesday’s roaming decision. The first was whether there is a need for CISC to implement seamless roaming. Rogers and Telus argued it should while Bell did not comment specifically but said some interveners exaggerated the existence of seamless roaming standards. The regional carriers were opposed to the use of CISC, with Cogeco Communications Inc. and Quebecor Inc.’s Videotron maintaining that general standards have been developed and associated guidelines have been produced by the GSM Association for 4G and 5G non-standalone (NSA) networks. Guidelines will soon be available for 5G standalone (SA) networks. The CRTC agreed with the competitors, saying it is not persuaded to engage CISC. One reason for that is that CISC imposes common standards while the agreements between national carriers and their smaller competitors will be unique. Using CISC could also lead to delays which would not be in the public interest. Bell suggested the company do an assessment to determine whether it is feasible to implement seamless roaming with the wholesale customer. Rogers agreed with this approach while the smaller operators dissented. Videotron said such a feasibility study would give Bell full discretion for determining whether a competitor’s request was feasible, opening up the liability of anticompetitive abuse. Xplornet Communications Inc. was also opposed to the suggestion and Bragg Communications Inc.’s Eastlink said the national carriers have had a year to make any technical changes necessary to implement seamless roaming. The CRTC was blunt in its ruling on this matter. “Unilateral feasibility assessments such as this are inappropriate and contrary to the determinations concerning seamless roaming,” the commission stated in its decision. Any disputes should be worked out between the carriers with commission input if needed. On the topic of applying seamless roaming to coverage gaps when in-footprint roaming, Bell said its tariffs for seamless roaming would be implemented to the outer boundaries of a competitor’s network. Telus argued that seamless roaming should not be used to fill in coverage gaps in a small player’s grid. Videotron replied that such an arrangement is just setting things up for seamless roaming to fail. Eastlink added that gaps will continue to exist until competitors can build out their networks. The commission sided with the small players, saying “it would not be appropriate to limit the provision of seamless roaming to the outer edges of a regional wireless carrier’s network.” Next the CRTC looked at whether seamless hand-off should be one-way or two-way, whether a call would go from one carrier to another until the call is completed or jump between grids over the course of the call. Bell and Rogers argued for one-way while Telus said it was complicated and would require years of coordination. Cogeco and Videotron called for a two-phased approach, beginning with one-way handoffs. Eastlink, Sogetel Inc. and Xplornet all advocated a two-way handoff. This was one of the few arguments the big three won, with the regulator approving a one-way handoff. Two-way could be looked at in the future if needed, the regulator added. The big three said that network and border information should be exchanged among carriers only twice a year, a position the regional carriers rejected. Some argued that updates could be delivered daily. Sogetel said exchanges should be quarterly at the least. “Daily information updates would place an undue administrative burden on the national wireless carriers,” the CRTC wrote. “On the other hand, limiting exchange of cell site information to twice a year like the national wireless carriers have suggested is not sufficient.” The commission opted for monthly updates. There was also the matter of whether seamless roaming should be required on 3G networks and how it would apply to evolving 5G grids. Bell, Rogers, Telus, Videotron, Eastlink, Iristel Inc. and Sogetel all said that 3G networks should not be included. Xplornet and the Independent Telecommunications Providers Association maintained they should. The regulator agreed with the majority and said the roaming should apply to 4G and 5G networks only. Next the commission looked at whether direct interconnection should be mandated. The national carriers argued such an imposition would lead to higher costs while the regional operators said it is necessary to mitigate latency issues. The CRTC ruled that direct interconnection is not an immediate need and that indirect will continue for the foreseeable future. However, it directed the large telecoms to inform the regional players six months prior to the rollout of a 5G SA grid. Any national carriers who have already deployed 5G or plan to do so within six months must immediately notify the regional carriers. The regulator then considered the question of whether 5G roaming has been appropriately included in the proposed tariffs. Currently wholesale roaming is available on 3G and 4G networks. All parties expressed support for including 5G in the tariffs. The CRTC concurred, saying national carriers should inform their smaller counterparts when they roll out the 5G networks. –Reporting by Paul Park at ppark@thewirereport.ca and editing by Michael Lee-Murphy at mleemurphy@thewirereport.ca

CRTC sides with regional wireless carriers in roaming decision

News | April 6, 2022

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CRTC sides with regional wireless carriers in roaming decision

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