ARCHIVED -  Public Notice CRTC 1991-118

Public Notice

Ottawa, 20 November 1991

Public Notice CRTC 1991-118

POLICY PROPOSALS FOR COMMUNITY AND CAMPUS RADIO

On 17 December 1990, the Commission published "An FM Policy for the Nineties" (Public Notice CRTC 1990-111), which sets out the policy for private commercial FM radio. This policy, and certain related regulatory changes, came into effect on 1 September 1991. The Commission also indicated that it expected to conduct a review of community and student radio to consider, among other things, how the principles outlined in the FM policy should apply to these forms of radio.

The Commission considers that it is worthwhile to conduct a complete review of these types of not-for-profit radio, both of which play an important role in ensuring that Canadians receive a "varied and comprehensive" radio service. In preparing for this review, representatives of the Commission met with various parties interested in community and campus radio to gain a better understanding of the issues relating to this important sector of the Canadian broadcasting system.

Special FM stations other than campus and community stations include native stations, provincial educational stations (CKUA-FM Edmonton) and Other Special FM stations (CJRT-FM Toronto). This review of campus and community radio excludes these stations.

ithout wishing to limit the matters that interested parties may raise concerning this review, the Commission sets out for discussion and comment the following policy proposals for both community and campus radio.

I.COMMUNITY RADIO

A.Introduction

A review of the community radio policy was necessary for several reasons: certain of the requirements set out in the community radio policy were derived directly from the FM policy; the reduction in government subsidies has placed greater pressure on community broadcasters with regard to funding; and there has been an expansion in community broadcasting outside Quebec since the last policy review in 1985.

B.The Draft Policy

1.Definition

The Commission examined the question of whether to amend the definition of community radio. Some groups who were consulted stated that the existing definition does not provide community radio stations with the latitude necessary to ensure their development. They argued that the programming of any community radio station is essentially defined by its ownership structure. The Commission and others, however, share the view that members of the community should participate in all operational aspects of a community radio station, especially in its programming.

Proposal

The Commission proposes to retain the existing definition, which states:

 A community radio station is characterized by its ownership and programming and the market it is authorized to serve. It is owned and controlled by a not-for-profit organization whose structure provides for membership, management, operation, and programming primarily by members of the community at large. Its programming should be based on community access and should reflect the special interests and needs of the listeners it is licensed to serve.

2.Types of Stations

References to classes of licence were removed from the Radio Regulations, 1986 (the regulations), pursuant to amendments that came into effect on 1 September 1991 (Public Notice CRTC 1991-89). Distinctions between the various types of radio stations are now a function of individual conditions of licence and Commission policies.

Community radio undertakings are currently licensed as Type A or Type B stations, depending on whether any other stations are operating in the same market. For the purposes of the present policy proposal, "market" will continue to be defined as meaning a geographical area:

 a) within the 5 millivolt per metre day time official contour of an AM station; or

 b) within the 500 microvolt per metre official contour of an FM station.

There are at least two kinds of Type B stations: urban stations and regional stations. Regional stations generally operate in significantly smaller markets served by a maximum of two other broadcasters.

Proposal

Type A

A community radio station is a Type A station if, at the time the licence is issued or renewed, no other AM or FM radio station is licensed to operate in the same language in all or any part of the same market.

Type B

A community station is a Type B station if, at the time the licence is issued or renewed, at least one other AM or FM station is licensed to operate in the same language in all or any part of the same market. For the purpose of determining whether a licence should be a Type A or Type B licence, existing campus radio stations would be counted as stations operating in a market, while CBC originating stations would not.

During the consultation process, some parties recommended that the definition of "market" be amended to take into account the particular circumstances of provincial border stations. Specifically, they argued that, for the purpose of determining whether a licence should be a Type A or Type B licence, the definition of "market" should exclude any part of a neighbouring province. Although the Commission has certain reservations about this proposal, it acknowledges that a problem may exist, and is open to comments and suggestions regarding this matter.

3. Role and Mandate

The Commission expects community radio to contribute to the diversity and variety of radio services within the community. It also expects community radio to focus on all aspects of the community by offering programming that examines issues affecting all of its members and the community it is licensed to serve.

Proposal

The characteristics of community radio can be said to revolve around six essential elements:

* the type of corporation and ownership;

* participation of volunteer workers in management (board of directors) and programming; * membership;

* local information, including news, community services and air time available to organizations;

* diversity of programming; and

* diversity of funding.

4.Commercial Activity

Under the existing policy, advertising on Type A stations is limited to 250 minutes per day up to a maximum of 1,500 minutes per week for stations broadcasting 126 hours per week. For stations broadcasting less than 126 hours per week, advertising is limited to 20% of their total broadcast time.

Type B stations are permitted to broadcast an average of 4 minutes of advertising material per hour per day, with a maximum of 6 minutes in any single hour.

The new FM policy issued in December 1990 and the associated regulatory changes that came into effect 1 September 1991 give broadcasters greater flexibility in the area of advertising. They also redefine some elements that were previously considered as advertising, but are now included in other content categories, thus allowing further flexibility.

Despite the limited sources of funding available to community radio, the Commission is of the view that community stations should not be wholly dependent upon advertising.

Proposal

The Commission proposes to maintain the requirement for diversity in sources of funding.

Type A stations: It is proposed that the limit on advertising by Type A stations be removed.

Type B stations: It is proposed that Type B stations be permitted to broadcast on a weekly basis an average of 4 minutes of advertising for each hour of broadcast, up to a maximum of 504 minutes per week. The maximum of 6 minutes of advertising in any single hour would be maintained. Consistent with its present policy, the Commission, in its calculations, would not take into account the material broadcast between midnight and 6:00 a.m.

The Commission also considered another issue. Some community stations that broadcast ethnic programming advised that they sell out their entire advertising inventory in the periods when ethnic programs are broadcast.

Proposal

The Commission is prepared to consider applications from stations that broadcast ethnic programming to increase the maximum level of advertising to 8 minutes per hour during ethnic programs on an individual basis.

5.Promise of Performance

(a)Spoken Word

In the new FM policy, the concepts of foreground and mosaic programming have been removed. Under the revised regulations, commercial stations are required to broadcast a minimum of 15% spoken word. In view of the importance of community-oriented spoken word programming, the Commission expects community stations to maintain higher levels in this area.

With regard to Type A stations, the Commission has always taken a more flexible approach. Type A stations usually broadcast a minimum of 20% spoken word.

As for Type B stations, the current policy calls for a minimum level of 35% spoken word. Several stations consider that this level is too high, given the high turnover in volunteer staff.

Proposal

The Commission proposes to maintain the status quo with regard to Type A stations. The programming of these stations should continue to be community-oriented. Although no minimum level will be prescribed, a certain level of spoken word will continue to be necessary in order to ensure service to the community. The Promises of Performances of such stations will be assessed on an individual basis.

For Type B stations, the Commission will require a minimum level of 25% in order to ensure adequate service. Community-oriented programs should account for the preponderance of spoken word content.

(b)Musical Diversity

The current policy states that, in order to serve the musical tastes of all segments of the community, community stations should offer highly diversified musical fare. They should not specialize in a specific musical format that would attract only one demographic group. Community stations are not permitted to choose more than 50% of their musical selections from any one sub-category.

Under the new FM policy and associated regulations, sub-categories 51 (Pop and Rock - Softer) and 52 (Pop and Rock - Harder) are combined, resulting in fewer musical sub-categories. The new policy does not require commercial broadcasters to play Traditional and Special interest music (Category 3). In the Commission's view, it is important that community stations continue to play this kind of music because they must serve a broader range of tastes within the community.

Proposal

It is proposed that at least 20% of the music played by community stations should be drawn from sub-categories other than 21 (Pop, Rock and Dance), and from Category 3. There would be no minimum level for Category 3 music, but the Commission would assess the commitments to levels of music from this category on an individual basis. Adherence to such commitments would be required as a condition of licence upon the issuance or renewal of a licence.

(c)Music Formats

With the exception of some Type A stations, all community stations currently operate in the Group IV music format. This format has been eliminated.

Proposal

In light of the Commission's policies encouraging community stations to diversify musical fare by drawing from the greatest possible number of musical sub-categories, it would be difficult to consider community stations as operating in the Group I format. Rather than confine community stations to specific musical group formats, the Commission proposes to consider them as Community Format stations, without reference to musical groups, thus allowing them greater latitude in the type of programming they broadcast.

(d)Music Usage Indicators

The current community radio policy calls for commitments relating to maximum repeat factor, weekly music list size, and, in the case of English-language stations, level of hits. No limit on the use of hits is imposed on French-language stations because of the relatively smaller number of French-language popular music selections and the limited availability of charts.

Community broadcasters asked to be exempted from the same music usage indicators that French-language private broadcasters currently are. They argued that it is unreasonable to expect volunteer workers to understand and be accountable for these kinds of commitments. The Commission notes that a limit on hits affects very few community stations because most of these stations are French-language undertakings. As for English-language community stations, the level of hits that they broadcast is generally very low.

Proposal

The Commission proposes to maintain a maximum repeat factor of 10 for Type B stations only to ensure the continued presence of this important element of musical diversity.

The number of distinct musical selections would no longer be taken into account by the Commission.

The Commission would continue not to measure the use of hits by French-language stations. English-language stations, however, would continue to be expected to make specific commitments with regard to hits. Although no generally-applicable maximum limit would be prescribed, the Commission would reserve the right to impose such limits, by condition of licence, should problems arise in specific instances.

(e) Canadian Content and French-language Vocal Music

As of 1 September 1991, community stations are required to provide the same level of Canadian content as commercial stations, that is 30%, unless otherwise authorized by condition of licence. In addition, French-language stations are generally required to play 65% French-language vocal music.

Proposal

In line with the regulations, community stations would continue to be required to ensure that at least 30% of their popular selections are Canadian. In addition, French-language stations would continue to be required to broadcast a minimum of 65% French-language vocal music.

6. Networks and Acquired Programming Services

(a)Networks

In the 1985 community radio policy, the Commission confirmed its general willingness to approve the affiliation of Type B stations with networks provided the networks carried only programs produced by community stations, or were networks distributing national news services. Stations subscribing to national news services were required to continue to give priority to local news.

Type A stations were permitted to affiliate with networks or acquire programming from other radio stations, rather than signing off at the end of their local programs.

Proposal

For Type A stations, the Commission proposes to maintain the existing policy. For Type B stations, applicants and licensees would be required to file an appendix to their Promises of Performance, demonstrating that the network programs or acquired programs they intend to broadcast will complement, and not replace, local programming. Such filings, however, would not form part of the Promise of Performance, nor would adherence to commitments made therein be made part of any condition of licence. Stations originating programming for network broadcast would also be required to file network applications in accordance with the Radio Networks and Syndication Policy (Public Notices CRTC 1989-03 and 1989-04).

(b)Acquired Programming

During the consultation, the licensees of community stations requested that, given the benefits of syndicated programs, and with a view to encouraging the exchange of acquired spoken word programs, they be permitted to take advantage of the same CRTC incentive extended to the licensees of commercial stations that broadcast syndicated programs. This incentive currently enables commercial stations, in calculating the total amount of weekly advertising they broadcast, to exclude up to 60 minutes per week of the commercials contained in the Canadian syndicated programs.

Proposal

The Commission proposes to permit community stations, in calculating the amount of advertising they broadcast, to exclude up to 30 minutes per week of the commercial content of syndicated Canadian programs. The Commission, however, will expect the majority of such syndicated programs to be different from the programs broadcast by commercial stations and to be of specific interest to the community served.

7.Hours of Broadcasting

The Commission would continue to permit community radio stations to increase or decrease their weekly broadcast time by 20% without application to the Commission.

8.Local Talent Development

The Commission wishes to acknowledge the important role of community radio stations in providing on-air exposure for young talent. Most community stations broadcast the demonstration tapes of local artists.

The Commission requires all licensees, including community stations, to make monetary commitments for the development of Canadian talent. Community broadcasters expressed concern about the emphasis placed on monetary contributions. Community stations broadcast new local talent and undertake other initiatives that do not entail financial expenditures, but nonetheless represent a significant benefit to the community.

The Commission agrees with the position taken by the licensees of community stations regarding their role and contribution to the development of Canadian talent.

Proposal

The Commission would not require community radio stations to make monetary contributions to the development of Canadian talent. Community stations should, however, continue to give emphasis to the broadcast of local artists and musicians and other forms of local and regional artistic expression.

II. CAMPUS RADIO

A. Introduction

The review of campus Radio has three objectives. The first is to determine the extent to which the policy for commercial FM radio, which came into effect on 1 September 1991, will apply to campus broadcasters.

The second is to consolidate the Commission's policy for this sector in one document for the convenience of licensees and potential applicants.

The third is to provide a framework for dealing with applicants who have strong connections with courses in broadcasting. The Commission has begun to receive an increasing number of applications from such parties.

B. The Draft Policy

1. Defining Campus Radio

Under the current definitions, stations situated on campuses fall into one of two categories: Student: This is a station that is owned or controlled by a not-for-profit organization and has a structure providing for membership, direction, management, operation and programming primarily by students of post-secondary educational institution with which it is associated. The Commission imposes a condition of licence on these stations requiring that the majority of board members be students.

Institutional: This is a station, other than a provincial educational station or a student station, that is owned or controlled by a not-for-profit organization associated with an institution of post-secondary education.

Several concerns have been raised with respect to the definitions of student and institutional stations. First, some find the term "student radio" pejorative. Although the Commission considered it appropriate to designate stations operated by broadcasters who are students as being student radio stations, some participants believe the term implies that participants are broadcasters in training rather than skilled practitioners of an alternative, but equally valuable style of radio broadcasting.

Second, the current definitions do not distinguish clearly between the two types of campus stations -- those that are controlled by organizations that are formally associated with broadcasting courses, and those that are not formally associated with broadcasting courses. Third, many campus broadcasters see no need for the Commission to require that the majority of board members be students. They would prefer more flexibility to structure their boards in the way they see fit, with a mix of student, faculty and community representatives. The Commission agrees that a more flexible board structure would allow stations to take advantage of expertise within the community at large and to increase the continuity of their boards of directors.

Proposal

The Commission proposes to redefine campus radio as follows:

Campus station: A campus station is a station owned or controlled by a not-for-profit organization associated with a post-secondary educational institution. There are two types of campus stations:

i) Campus/community: This is a campus station that is not formally associated with a broadcasting course. Programming is produced primarily by volunteers who are either students or members of the community at large.

ii) Instructional: This is a campus station that is formally associated with a course or courses in broadcasting. The provision of broadcast training is one of its primary objectives.

Campus stations may structure their boards of directors with the mix of students, faculty members and members of the community at large that they consider appropriate. These definitions would replace the current definitions of student and institutional stations. A list of currently-licensed campus FM stations that would be categorized as campus/community or instructional stations is set out in the Appendix.

2. The Role of Campus Radio

The Commission's current approach to student radio is set out in Decision CRTC 75-247. This decision established four goals for student stations:

 * to communicate with students beyond the immediate reach of any student carrier current or closed circuit systems in operation at the particular institution;

 * to reach students who do not belong to the particular campus community;

 * to communicate the concerns, interests and activities of the campus as well as of the academic environment to the public; and

 * to offer the general public innovative and alternative programming fare that makes use of the many resources available at the institution.

The decision added that student radio might provide basic training for students interested in broadcasting careers.

The current policy for institutional stations encourages such stations to perform roles not filled by existing broadcasters. Among other things, the policy calls upon such stations to provide some formal educational programming, as well as traditional and special interest music.

Over the past few years campus/ community stations have increasingly involved members of the community, as well as students, in all aspects of operation. Because of the lack of government funding for English-language community stations, campus/ community stations have moved to fill this community role. Although the Commission considers that this evolution should be recognized, it will continue to assign a high priority to student participation.

The Commission's goals for student stations, as expressed in 1975, put an emphasis on "student to student" communication and on providing a voice for the academic institution. In recent years, student stations have placed increasing emphasis on the presentation of alternative programming to the community, including music that is different from that broadcast by commercial stations, block programs, and programming that provides access to community groups to express their views. The Commission considers that this concentration on alternative programming serves to increase the diversity of radio services provided to Canadians.

The Commission acknowledges that, since the primary purpose of instructional stations is to train future broadcasters of all types, they must offer at least some "mainstream" programming. Such training, however, can also be provided through closed-circuit or carrier current systems. It is also difficult to identify the public benefit of an FM station that features students producing the same sort of radio programming that is readily available from commercial stations. Thus, the public interest would seem to require that instructional stations include some alternative programming in their schedules.

Proposal

The Commission proposes to define the following roles for campus stations:

Campus/community: The primary purpose of these stations is to provide alternative programming such as music not generally heard on commercial stations or the CBC (including traditional and special interest music as well as popular music), in-depth spoken word programming, and programming addressed to specialized groups within the community.

Although students play a major role in programming, campus/community stations should also provide access to members of the community at large when their signals reach beyond the campus.

Such stations also provide training in radio production to volunteers.

Instructional: A primary role of these stations is to provide a training ground for students in broadcasting courses. At the same time, these stations must provide their communities with alternative programming. Alternative programming should include music not heard on other stations (including traditional and special interest music as well as popular music), in-depth spoken word programming, and some formal educational programming produced in cooperation with the institutions to which they are attached.

3. Financing and Advertising

The Commission has always expected campus stations to generate funding from a variety of sources, including grants, levies from students and fund-raising activities.

In addition, campus stations are permitted a maximum of four minutes per hour of "restricted" advertising. Restricted advertising is defined as follows:

 The Commission will permit simple statements of sponsorship which identify the sponsors of a program or of the station. Such statements may incorporate the names of the sponsor, the business address, hours of business, and a brief general description of the types of services or products which the sponsor provides, including the price, name and brand name of the product. Such statements must not contain language which attempts to persuade consumers to purchase and thus must not contain references to convenience, durability or desirability or contain other comparative or competitive references (Public Notice CRTC 1983-43).

The Commission considers that campus stations should continue to be funded from a variety of sources. It believes that, if such stations were to become heavily dependent on advertising, they would tend to adopt programming strategies similar to those of commercial stations and the diversity of programming available to listeners would be reduced.

The Commission is also aware that many commercial stations operate under severe economic restraints, and is reluctant to increase the competition they face for advertising dollars.

Such competition would be more likely to come from instructional stations since they generally have more interest in providing mainstream programming than do campus/community stations.

On the other hand, it seems reasonable to allow some additional flexibility with respect to the amount of advertising permitted when a campus station provides the only private local service in one of the official languages in a community.

Proposal:

Campus/community stations should be financed from a variety of sources such as student levies, grants from student governments and fundraising activities. In addition, the Commission will continue to allow stations to supplement their revenues by broadcasting a maximum of 4 minutes per hour of restricted advertising, as currently defined.

The Commission will generally expect instructional stations to be financed from sources other than advertising. Additional advertising flexibility will be considered on a case-by-case basis in exceptional circumstances, such as when a campus station provides the only private local service in one of the official languages in its community.

As for the two existing stations that would be classified as instructional stations under the proposed policy, they would be permitted to continue to broadcast the level of advertising now specified in their conditions of licence until expiry of their current licences.

4. Canadian Talent Development

The Commission asks all radio licensees to make financial commitments for the broadcast of live music and other projects designed to foster the development of Canadian talent.

Campus broadcasters have expressed concern about this emphasis on monetary contributions, noting that their stations operate on low budgets and that most can only afford commitments of a few hundred dollars per year. They believe that they make important contributions to Canadian talent development in other ways, such as by featuring new music and music by alternative Canadian artists, and by giving air play to tapes and cassettes made by local artists and training volunteers and students.

The Commission agrees that campus stations should be allowed to make contributions to Canadian talent development that reflect the unique nature of their programming.

Proposal

Campus stations will no longer be asked to make monetary contributions to the development of Canadian talent. Instead, they will be expected to outline plans to promote and feature music by new Canadian artists, local artists and by artists whose music is seldom heard on other stations. Campus stations will also be asked to submit plans for training students and other volunteers.

5. Promise of Performance Commitments

The Commission has never established precise levels for Promise of Performance commitments that campus stations must meet. In the 1975 FM policy, however, it stated that such stations should "...strive to exceed the minimum programming expectations of the FM policy [for the commercial sector]."

a) News

The new FM policy states that commercial stations should devote at least 3 hours per week to news.

Campus/community stations emphasize public affairs programming and would prefer that the Commission require a high level of total spoken word programming rather than expect each station to do a minimum level of news. The Commission considers that in-depth public affairs programming is an important service provided by campus/community stations and wishes to encourage them to continue to provide such programming. However, news forms an important part of the programming on instructional stations. Many students in broadcasting courses will become newscasters when they graduate, and the preparation and delivery of news programming are important elements of their training. Instructional stations have a strong base of students who are learning to be news broadcasters, and thus have the human resources to provide an alternative news voice to their communities. The Commission realizes, however, that a heavy news commitment would be difficult to fulfil during periods when students are on vacation.

Proposal

No minimum guideline for the amount of news broadcast by campus/community stations will be established. They will, however, be expected to include programming addressing public issues in their schedules (see the next section of this proposal dealing with spoken word.)

Instructional stations will be expected to devote at least 4% of the broadcast week (5 hours per week for a station with a broadcast week of 126 hours) to news. This would be an expectation, not a Promise of Performance requirement, and would not be effective during vacation periods. Local news coverage, whether of issues related to the campus or the community, should be emphasized.

b) Spoken Word

The regulations require all FM stations to devote at least 15% of their total programming to spoken word. The Commission considers that high quality spoken word programming should continue to form an important part of the programming of campus stations. It believes that the large number of potential volunteers available from both the campus and the community should make it possible to exceed the minimum level of spoken word set out in the regulations.

At the same time, the Commission realizes that the spoken word requirement must take into account the limited staff available during vacation periods.

Proposal

At least 25% of programming broadcast on both campus/community and instructional stations should be spoken word. This is the same level being recommended for Type B community stations.

Specialized spoken word presentations such as public and community affairs programs should be included in the schedule.

c) Music

Campus stations now make commitments to operate within a specific format group. These formats, however, fail to define or describe the programming of such stations. Campus stations differ substantially from commercial format radio by offering, for example, significantly greater amounts of block programming and a wider variety of music. Although campus stations play music that is different from other stations, much of it still falls into the Pop, Rock and Dance subcategory. The Commission believes that a significant amount of music played should come from categories other than Pop, Rock and Dance, and that Traditional and Special Interest Music (category 3) should be included in programming.

Proposal

At least 20% of music played on all campus stations (both campus/community and instructional) should come from subcategories other than Pop Rock and Dance. At least 5% of music played should come from category 3. The remaining 15% may come from category 3 or from subcategories of category 2 other than Pop, Rock and Dance.

d) Music Use Indicators

Campus/community stations generally broadcast very low levels of hits and have repeat factors that are lower than those permitted for commercial stations. These indicators are useful in ensuring that campus stations contribute to the diversity of programming available in their communities.

The revised policy for commercial FM stations stipulates that at least 850 distinct musical selections must be played each week. Some campus stations, however, do not broadcast for the full broadcast week. Campus stations would also be expected to broadcast higher levels of spoken word than commercial stations. These factors make it difficult to adopt a minimum level of distinct musical selections that would be appropriate for all campus stations. It would therefore seem preferable to ensure diversity by setting guidelines for campus stations with respect to the hit factor and maximum repeat factor.

However, it seems reasonable to allow instructional stations a measure of flexibility in these two areas, since some approximation of commercial radio music programming is necessary for training purposes. Although this flexibility could make instructional stations more competitive with commercial broadcasters, the Commission considers that harm to commercial broadcasters will be minimized if the earlier proposal not to permit advertising on instructional stations is adopted.

It would also seem reasonable to exempt French-language campus stations from restrictions on the use of repeats, as is being recommended for community stations, since French-language stations have an added requirement with respect to the programming of French-language vocal music.

Proposal

Campus stations would be expected to respect the following guidelines for music use indicators: Hits (English-language stations only)

The level of hits broadcast each week should not exceed 15% of all musical selections for campus/community stations, and 30% for instructional stations.

Repeats

Campus/community stations should not repeat any non-Canadian musical selection more than 10 times in a broadcast week. For instructional stations the limit would be 18 times per broadcast week.

French-language vocal music

(French-language stations only)

At least 65% of vocal music selections played each broadcast week should be in the French-language. This would apply to both campus/ community and instructional stations.

e) Levels of Canadian Music

Currently, campus stations are required to provide the same minimum level of Canadian music as commercial stations -- at least 30% for general popular music and at least 10% for traditional and special interest music.

Campus broadcasters, like commercial broadcasters, significantly increased the level of Canadian music broadcast when the new FM policy was implemented on 1 September 1991. Achieving the increased level is a particular challenge for many campus stations because they devote most of their programming to alternative music. The Commission therefore considers that a 30% minimum Canadian content level for general popular music and a 10% minimum for traditional and special interest music is reasonable.

Proposal

In line with the regulations, all campus stations (campus/community and instructional) would be expected to ensure that at least 30% of general popular music selections and at least 10% of traditional and special interest music selections broadcast each week are Canadian.

The guidelines for the reasonably even distribution of Canadian music set out in the policy for commercial FM stations would also apply to campus stations. These guidelines are as follows:

* at least 25% of popular music selections broadcast between 6 a.m. and 7 p.m. Monday through Friday should be Canadian;

* Canadian selections should receive reasonably even distribution throughout these dayparts and throughout the broadcast week; and

* there should be a significant presence of Canadian music in high audience periods, these traditionally being the morning and afternoon drive periods.

6. Other Matters

a) Block Programming and Educational Programming

Stations falling into the current student and institutional categories have been required to surpass the levels of foreground and combined foreground and mosaic programming that were formerly required of commercial stations.

In addition, institutional stations were expected to broadcast some formal educational programming because of their close association with educational institutions.

One of the unique characteristics of campus/community radio stations is that they devote significant portions of the broadcast week to specialized or block programs, ranging from public affairs presentations to programs dealing with special types of music such as jazz, classical or folk. The Commission considers it appropriate that campus/community stations continue to make specific commitments to provide this programming.

With respect to instructional stations, the Commission considers it appropriate to expect that some formal educational programming be broadcast.

Proposal

Campus/community stations would be expected to devote at least 15% of each broadcast week to focused spoken word programs, specialized block programs that showcase particular types of music, or programs targeted to identifiable groups within the community. Instructional stations must devote at least 2 hours per week to formal educational programming that provides academic instruction.

b) Licensing More than One Campus Station in an Official Language in a Community

In the 1975 FM policy, the Commission stated that it would generally license only one student FM station in each official language in a community. The underlying rationale was that a B channel or a C channel would be assigned to a student station that would cover the entire community, and various post-secondary institutions would all contribute programming.

The Commission, however, has allowed certain exceptions to this policy. These have been in circumstances where the Commission was satisfied that each station would provide a distinct service and so add to the diversity of programming choice available to listeners.

The Commission considers it reasonable to expect any new campus station to be complementary to other campus and community stations in the area. As well, it considers that any applicant for a new campus station licence should specify the audiences it wishes to serve and to identify and project the revenues it proposes to receive from different sources. This would give campus stations currently operating in the community an opportunity to evaluate the potential impact the new station would have on their operations and, if warranted, to intervene against the application.

Proposal

The Commission is willing to license more than one campus station in the same language in a community where an adequate number of frequencies is available and where the applicant demonstrates that the proposed programming will be clearly complementary to that broadcast by other campus and community stations currently operating in that locality.

Applicants would be expected to identify and project revenues they expect to receive from various sources.

c) Campus Carrier Current Stations

Campus carrier current stations are in-house operations that make use of low power AM transmitters that radiate a signal through the electrical system of a building. The signal can only be received by radios in or near the building.

Commission policy requires such stations to achieve a Canadian content level of at least 30%, and encourages the maintenance of program logs.

The licensing of campus carrier current stations allows groups such as campus radio clubs to formalize operations as an introductory step towards full-fledged campus FM status and, in some instances, facilitates the cable carriage of the campus programming. Given the Commission's wish to lessen regulatory burden, now that the new Broadcasting Act contemplates the possibility of the Commission making exemption orders, campus carrier current stations might reasonably be considered for exemption from licensing.

Proposal

The Commission requests campus broadcasters and other interested parties to comment on the advisability of exempting campus carrier current stations from the requirement that they hold broadcasting licences.

d) Low Power Stations

The Commission currently does not have a less rigorous regulatory framework for low power campus stations than for those operating at high power. It notes in this regard that, in some urban areas, stations operating at low power levels can reach a large number of people. The current system seems to have worked well and prepares stations for the time when they have the resources to increase their power. Nevertheless, it seems reasonable to allow some flexibility for stations that operate at such a low power that they are receivable only on campus.

Proposal

The policy would generally apply to all campus stations regardless of their power. However, on a case-by-case basis, the Commission would be willing to exercise some flexibility when dealing with applications for stations of very low power whose signal would only serve the campus of the associated university or college.

Low-power stations would be expected to fulfil all aspects of the policy if granted a power increase.

e) High School Stations

The current definitions make no provision for the licensing of high school stations. In the Commission's view, it is unlikely that many high schools would have the resources, financial or otherwise, to establish the structure necessary to operate a broadcasting station effectively or to provide a consistent schedule of high quality programming.

Licensing high school stations raises a number of other problems, not the least of which is the problem of the availability of frequencies.

On the other hand, it should be recognized that, in smaller communities, a high school might be the logical place to house the studios of a bona fide community station.

Proposal

As a general policy, the Commission will not license campus FM stations associated with high schools. High school carrier current stations, however, would be allowed. This would not prevent the Commission from approving an application for a community station that is housed in a high school, but otherwise fulfils all aspects of the community radio policy.

f) Definitions

In Public Notice CRTC 1990-111 "An FM Policy For the Nineties" and associated regulations in effect 1 September 1991, the Commission adopted a new system of content categories and subcategories and revised the definitions of music use indicators. The Commission considers that these new definitions should also apply to campus stations.

Proposal

The content categories and subcategories and definitions of music use indicators adopted for commercial stations would also apply to campus stations.

III. CALL FOR COMMENTS

The Commission invites comments on the proposals set out in this document as well as on other matters related to the Commission's policy and regulation of community and campus radio. Comments should be addressed to Allan J. Darling, Secretary General, CRTC, Ottawa, Ontario, K1A 0N2. The deadline for receipt of comments is 18 February 1992. The Commission stresses that its existing policies, as well as the obligations assumed by licensees in their Promises of Performance, in conditions of licence, or through the regulations, will continue to apply and will remain in effect until changes resulting from this policy review have been announced.

Related documents: Decision CRTC 75-247 dated 27 June 1975; Public Announcements dated 4 May 1972, "Student Carrier Current Broadcasting Undertakings" and 20 January 1975, "FM Radio in Canada: A policy to Ensure a Varied and Comprehensive Radio Service; Public Notices CRTC 1983-43 dated 3 March 1983, "A Review of Radio"; CRTC 1985-194 dated 26 August 1985, "The Review of Community Radio"; CRTC 1988-78 dated 17 May 1988, "Educational and Institutional Radio - Adoption of the Proposed Policy"; CRTC 1990-111 dated 17 December 1990, "An FM Policy for the Nineties"; CRTC 1991-19 dated 14 February 1991, "Implementation of the FM Policy"; and CRTC 1991-89 dated 30 August 1991, "Amendments to the Radio Regulations, 1986".

Allan J. Darling

Secretary General

APPENDIX/ANNEXE

A LIST OF EXISTING CAMPUS FM STATIONS CLASSED ACCORDING TO THE SYSTEM SET OUT IN THIS PROPOSAL/LISTE DES STATIONS FM DE CAMPUS EXISTANTES CLASSÉES SELON LE SYSTÈME ÉNONCÉ DANS LA PRÉSENTE

Campus/Community Stations / Stations de campus/communautaires

CJSW-FM Calgary AB

CJSR-FM Edmonton AB

CHSR-FM Fredericton NB

CFRU-FM Guelph ON

CKDU-FM Halifax NS

CFMU-FM Hamilton ON

CFRC-FM Kingston ON

CHRW-FM London ON

CKUM-FM Moncton NB

CKUT-FM Montréal QC

CISM-FM Montréal QC

CKCU-FM Ottawa ON

CHUO-FM Ottawa ON

CFFF-FM Peterborough ON

CHMA-FM Sackville NB

CHMR-FM St. John's NF

CHRY-FM Toronto ON

CIUT-FM Toronto ON

CKLN-FM Toronto ON

CITR-FM Vancouver BC

CFUV-FM Victoria BC

CKMS-FM Waterloo ON

CJAM-FM Windsor ON

Instructional Stations/Stations d'enseignement

CIXX-FM London ON

CJLX-FM Belleville ON