Building Consensus: A Governance Framework for a Nationwide Public Safety Broadband Network (PSBN)

What We Heard Report

March 6, 2025, Ottawa

Context

A nationwide, secure, resilient, and interoperable wireless communications network for public protection and disaster response is a capability that the public safety community and other stakeholders have been working towards achieving. To realize a public safety broadband network (PSBN) and the benefits it would provide to emergency response requires a robust governance framework for the platform, including the designation of a national authority accountable for overseeing and leading the development of the network.

Effective communication is at the heart of emergency response in Canada. A nationwide PSBN in Canada would support seamless coordination across agencies and jurisdictions, ensuring that emergency services can operate efficiently, even during the most high-pressure incidents. The PSBN would enable the adoption of innovative technologies and applications that strengthen emergency response and improve outcomes for Canadians.

The importance of a PSBN continues to be widely recognized, with strong support from emergency responders, public safety organizations, industry partners, and governments across the country. Stakeholders are committed to advancing this critical initiative, reflecting the significant demand and enthusiasm for the benefits it would deliver.

Considerable progress has been made toward realizing a PSBN in Canada since wireless spectrum was set aside in 2012. Previous efforts, including work led by the Temporary National Coordination Office, have laid a strong foundation by highlighting national options and recommendations for a future PSBN.

Building on this progress, the Government of Canada is now looking to develop the required governance and legislative framework for a nationwide PSBN, which would involve standing up a new authority to oversee and lead the development of the network. Advancing this work will be crucial to ensuring the PSBN's long-term success.

To inform the development of the governance and legislative framework for a Canadian PSBN, and ensure that it is aligned with the interests and requirements of stakeholders, Public Safety Canada (PS) led a focused engagement in Summer 2024, which was open until October 2024.

This report summarizes key themes and aggregate findings from the focused engagement, including next steps for advancing a PSBN in Canada.

Engagement Overview

From August 6 to October 8, 2024, PS led a national focused engagement to inform the development of the governance framework for the PSBN. This online process consisted of a detailed discussion paper with guiding questions and was open to the public for input.

As part of this focused engagement, two potential models for establishing a national PSBN Authority were considered: a Not-for-Profit (NFP) organization with a legislated mandate and a Crown Corporation. The process aimed to gather input on key governance elements, including mechanisms for accountability, transparency, and sustainability.

PS received a total of 38 submissions (more than 880 pages) from a wide range of stakeholders in all regions and public safety disciplines across Canada, including emergency services, mobile network operators, telecommunications industry vendors, critical infrastructure associations, academia, and governments. These submissions included a combination of responses from individual organizations, as well as joint consensus responses from several key stakeholder groups. This collective effort emphasizes the high level of engagement and shared commitment to advancing critical communications in Canada. As part of this focused engagement, respondents shared their views across the following key themes:  

Emergency responders and public safety personnel play a crucial role in protecting Canadians every day and they should have access to the best available technology to enhance and improve their response and keep themselves safe. The success of a PSBN is dependent on the widespread adoption by public safety end users and it must meet their needs. This is why the input received from this engagement will ensure that the interests and requirements of stakeholders are reflected in the design of a national PSBN Authority.

What We Heard: Key Findings

Oversight and Decision Making

Representation and Board Composition

Views were sought on the composition of a board of directors for a national PSBN Authority, including measures for ensuring board effectiveness and expertise. Ensuring broad and diverse representation within the PSBN governance structure emerged as a key priority for stakeholders. Many stressed the need for public safety entities, including emergency responders, to have a strong voice within that structure.

Calls were also made for representation from federal, provincial, territorial and Indigenous governments to ensure that decision-making reflects the needs of communities across Canada, and for representation from mobile network operators to ensure that strategic direction of the PSBN is informed by their experience and expertise. Some participants emphasized the inclusion of organizations contributing financially or providing infrastructure for the network, ensuring their perspectives are considered.

Board composition was another area of focus, with participants highlighting the importance of diverse expertise and perspectives. Many responses inferred a representative membership in which appointees would be accountable to the constituencies from which they are drawn and proposed various potential classes of membership.  However, relatively few submissions proposed processes for selecting and appointing individual board members.

Under a potential not-for-profit model, suggestions were made to include non-voting class members as a way to enhance regional representation and specialized expertise. Proposed approaches included rotating members from provincial, territorial, and municipal governments, as well as Indigenous communities, to ensure the board remains responsive to regional needs. Subject matter experts in areas like cybersecurity and disaster management were also proposed as potential non-voting members, providing valuable input on specific topics without affecting decision-making authority. Considerations around flexibility were also made with respect to board composition to allow for the inclusion of late adopters to ensure that they are adequately represented and are able to inform decisions.

Advisory Bodies and Consultation Requirements

Views were sought on the number, role, and composition of advisory committees and other mechanisms for public safety community input in decision-making. There were diverse views on the structure of advisory bodies. Some advocated for a single public safety advisory committee, with ad hoc working groups to address specific priorities as they arise. Others preferred the establishment of multiple advisory committees to focus on distinct areas such as technology and security, audit and transparency, as well as operational requirements. 

The need for regular and meaningful consultation with public safety entities and local authorities was a recurring theme. Participants suggested that continuous engagement would ensure that decisions remain grounded in operational realities and responsive to regional needs.

Forms of the PSBN Authority

As indicated in the discussion paper, two models to establish a Canadian PSBN Authority were considered as part of this engagement: a not-for-profit organization with a legislated mandate and a Crown Corporation. Respondents were asked to identify, across all themes, where their input relates to one or both forms.

Most of the input received did not distinguish between the models, indicating that the feedback was applicable to either form. Most respondents emphasized the importance of clear accountability, organizational effectiveness and speed of implementation.

Some respondents offered their views on the form. Many indicated they favoured a NFP organization without legislative constraints, emphasizing the autonomy and latitude with which the organization could operate and the speed with which it could be established. Conversely, others argued that only a Crown Corporation, or NFP with similar oversight requirements, would ensure the necessary government oversight, authority and accountability for such a critical communications capability, especially during emergencies.  

Regardless of the chosen model, there was a common view that the governance structure should be established promptly and include all stakeholders to balance the interests in both the nationwide PSBN and the unique regional needs of public safety users. Overall, the designation of a national PSBN Authority should reflect considerations around timeliness for implementation and opportunities for flexibility.

Public Reporting and Accountability

Robust Monitoring and Reporting Mechanisms 

A future PSBN Authority must be accountable to a broad range of stakeholders, including users and investors. A consistent theme found in submissions was the necessity of frequent and transparent public reporting to build trust and maintain accountability. As such, the PSBN Authority must establish rigorous mechanisms to monitor and report on its activities. Suggestions included:

To ensure proper oversight, a few respondents noted that the PSBN Authority should also adhere to the Financial Administration Act, regardless of the form it takes. This would include:

Stakeholders highlighted the importance of making documentation and records of decisions publicly accessible to promote transparency. Regular public meetings were suggested to foster engagement and provide an opportunity for stakeholders to voice concerns or comment on governance decisions.

Clear roles and responsibilities across all governance functions were also seen as essential for maintaining accountability and ensuring nimble, effective governance. A few participants raised the idea of establishing regional governance entities to bridge the gap between the national authority and PSBN users, facilitating better coordination and addressing region-specific challenges. While regional governance bodies could play a role in addressing localized needs and ensuring compliance with specific regional legislation, it will be important to consider dependencies and potential for impacts to deployment timelines. Overall, participants agreed that centralized oversight will be essential to maintain consistency, accountability, and transparency.

Legal, Regulatory, and Policy Compliance 

The development and implementation of a nationwide PSBN will require careful consideration of various legal and regulatory frameworks across local, provincial, territorial, and federal jurisdictions. Participants noted the value in identifying the potential implications of these regulations, including those related to telecommunications and spectrum licensing.

Another key area highlighted was the need for robust cyber and physical security measures to protect PSBN infrastructure from emerging threats. This includes adherence to national and international security standards to safeguard the integrity of the network and ensure its reliability for public safety purposes. Ensuring the safety, resiliency, and continued evolution of the network was seen as essential to maintaining public trust.

Participants also stressed the need for the PSBN’s governance structure to remain flexible and responsive to regulatory developments. This will require continuous engagement with stakeholders, including provincial, territorial, and local authorities, to adapt to changing legal and regulatory requirements.

Finally, it was also suggested that the Government of Canada reviews and considers the impacts of existing regulations on the development and operation of the PSBN. Ongoing analysis of these legal considerations will be necessary to ensure that the PSBN remains compliant with evolving laws and supports the diverse needs of all Canadians.

Priorities for Realizing a Nationwide PSBN

Establishing a robust national governance framework is a critical next step to advancing the PSBN. Participants emphasized that effective deployment will require coordination across various levels of government, technical partners, and commercial providers to align objectives and address unique regional needs, particularly in rural and remote areas where coverage challenges are more pronounced.

Procurement Strategies 

Stakeholders stressed the importance of a transparent, competitive procurement process to select an operating entity capable of meeting public safety requirements. Key considerations included:

Adoption, Coverage, and Resiliency Targets 

Participants highlighted the importance of setting achievable adoption, coverage, and resiliency targets that account for regional differences in priorities and readiness. Specific feedback included:

Strategic Partnerships

The role of public-private partnerships (PPPs) emerged as a cornerstone of the PSBN’s governance. Participants noted the value of leveraging private sector expertise, government oversight, shared resources, and technology to enhance both the technical capacity and financial sustainability of the network. Strategic partnerships can also help ensure that the network meets diverse user needs, particularly in rural and remote communities, while facilitating access to the expertise and innovation required to build and maintain a robust public safety communications infrastructure.  

Ensuring Long-Term Success

Participants underscored the importance of several factors to ensure the long-term success and sustainability of the PSBN. Key elements discussed included:

Way Forward

In summary, realizing a nationwide PSBN will require coordinated efforts, clear and sustainable governance and funding, and approaches that reflect the diverse needs of users across Canada. With these, respondents believe the PSBN can deliver a resilient, secure and accessible network that meets the unique needs of all stakeholders.

There has been significant concerted effort over several years to consolidate the views, interests, and priorities of the public safety community and other partners key to successfully developing a PSBN capability in Canada.

The key next step to realizing a nationwide PSBN in Canada is to put in place a governance framework that will designate a PSBN Authority responsible for overseeing and leading the development of the network. As part of its mandate, a PSBN Authority would support the long-term evolution of the network, including the device and application ecosystem, and ensure decision-making is reflective of the needs of users and the service delivery communities.

Insights from this targeted engagement will help shape the detailed design of this governance framework. This framework will establish the form of the National PSBN Authority, its mandate and responsibilities, as well as the mechanisms for ensuring accountability, sustainability, and oversight of the network. The Government of Canada is committed to ongoing engagement and collaboration with provinces and territories and public safety stakeholders as it advances work on this initiative. The Government of Canada will also need to consider the regulatory and legislative framework and consider measures to support an effective PSBN implementation while maintaining an open and transparent market.

With a robust governance framework in place, stakeholders will have the certainty they need to plan for their involvement in supporting the realization of the PSBN in Canada. Attention can also then turn to establishing, funding and staffing of a PSBN Authority so it can begin delivering on its mission of delivering a nationwide PSBN capability that meets the needs of the public safety community and satisfies the ten PSBN Principles set out by the Temporary National Coordination Office.

Annex

Themes from the Discussion Paper

Priorities for Realizing a Nationwide PSBN

1.1 What measures can be taken before a PSBN is deployed to facilitate the achievement of a national approach?

1.2 Are there existing public assets or investments that may be integrated into a future PSBN? How can they be leveraged in the interim?

1.3 What are some potential sources of start-up funding that could support timely implementation? What partners and/or mechanisms could be leveraged to offset start-up and deployment costs?

1.4 What measures would both support the long-term financial sustainability of a national PSBN while also realizing the TNCO's Affordability Principle? What ways could be considered to balance private sector and public safety interests in establishing investment priorities for the network?

1.5 What other kinds of approaches should be adopted to establish coverage and capacity targets, as well as measure progress toward PSBN implementation? Should coverage, resiliency and user adoption targets be mandated?

1.6 What measures can be taken to accelerate deployment plans and mitigate delays to implementation following the establishment of a PSBN governance structure?

Oversight and Decision Making

2.1 What should the national governance structure for a Public Safety Broadband Network (PSBN) look like?

2.2 How should the nomination, authority and control of a Board of Directors be determined (e.g., nominations by the Minister if a Crown corporation model is chosen, a committee of experts, membership, etc.)?

2.3 Are there specific powers or limitations that should be considered (e.g., consult with governments and local public safety entities)?

2.4 Should multiple public safety Advisory Committees be established to support a Board of Directors? If so, what should each of their roles be and what issues should they cover? How should Advisory Committees be constituted?

2.5 Are there any barriers to participation in PSBN governance to consider? What are some strategies for ensuring that a Board of Directors and its public safety Advisory Committee have representation from a diverse range of stakeholders?

Public Reporting and Accountability

3.1 What are some measures that should be taken into account for ensuring the transparency and accountability of the Board and PSBN Authority? It is important to note that a Crown Corporation would be subject to transparency and accountability measures set out in the Financial Administration Act (FAA), in addition to other elements included in the enabling legislation.

3.2 Are there minimum requirements for distributed/regional governance functions to address local operational challenges and requirements that should be mandated to ensure consistency, accountability, and transparency?

3.3 Are there any statutes, regulations, policies, and/or initiatives that would impact a nation-wide PSBN, if any? How can a PSBN governance structure mitigate these impacts to facilitate timely implementation?

Additional Considerations

4.1 What are some other considerations that need to be taken into account in establishing a national governance structure for the PSBN?

Date modified: