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ARCHIVED - Broadcasting Decision CRTC 2009-573

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  Route reference: 2009-231

Additional reference: 2009-231-1

  Ottawa, 11 September 2009
  Star Choice Television Network Incorporated
 Across Canada
  Application 2009-0242-0, received 29 January 2009
 

Shaw Direct – Licence amendment

  The Commission denies an application by Star Choice Television Network Incorporated (Star Choice) to amend the broadcasting licence for its direct-to-home broadcasting distribution undertaking known as Shaw Direct in order to amend condition of licence number 6 relating to the distribution of Canadian Broadcasting Corporation English-language conventional television stations.
  The Commission directs Star Choice to advise the Commission by letter, within two weeks of the date of this decision, of the manner in which it intends to comply with condition of licence number 6 as set out in Broadcasting Decision 2004-130.
 

Introduction

1.

The Commission received an application by Star Choice Television Network Incorporated (Star Choice) to amend the broadcasting licence for its direct-to-home (DTH) broadcasting distribution undertaking (BDU) known as Shaw Direct. Specifically, the licensee requested that its condition of licence number 6, 1 which relates to the distribution of Canadian Broadcasting Corporation (CBC) English-language conventional television stations, be amended to read as follows (change in bold):

6. Effective 1 September 2004, the licensee shall distribute a minimum of five (5) Canadian Broadcasting Corporation (CBC) English-language conventional television stations, owned and operated by the CBC, including at least one from each time zone. Further, the licensee shall not, except as otherwise authorized by the Commission, at any time, distribute a number of English-language conventional television stations owned and operated by the CBC that is less than the number of English-language conventional television stations owned or operated by any other individual broadcasting group, including the groups listed in Appendix B to the schedule attached to these conditions, that are distributed by the undertaking.

2.

Star Choice also requested the following authorization for its Shaw Direct service:

Discontinuing the distribution of CBC Regina by the licensee does not require the licensee to stop distributing a CTV station owned and operated by CTVglobemedia Inc., which would otherwise be required in order to fulfill the general requirement of condition of licence 6.

3.

This present application follows a complaint by the CBC against Star Choice, dated 12 May 2008, which resulted in the issuance of Broadcasting Decision 2008-330. The CBC had argued that Star Choice appeared to be in breach of its condition of licence number 6 after its removal of five conventional television stations, including CBC Regina.

4.

In support of its application, Star Choice argued that it could not continue to distribute CBC Regina due to Shaw Direct’s capacity constraints. Star Choice added that viewers would not be denied local content from CBC Regina (CBKT Regina) because its local/regional news program is available daily on the Saskatchewan Communications Network (SCN), which is distributed by Shaw Direct. Further, Star Choice affirmed that, since it is seeking relief only with respect to the requirement for equal distribution of CBC versus CTV stations, it would continue to fulfill all other obligations in connection with the distribution of CBC stations; specifically, the distribution of one full CBC station from each of the five time zones. Finally, Star Choice stated that, if its present application were denied, it would not reinstate CBC Regina, but would remove a CTV station, which would negatively impact viewers in the locality and region of such a service.

5.

The Commission received an intervention in opposition to the application by the CBC as well as an intervention offering general comments by Bell TV. The interventions and the licensee’s response to the interventions can be found on the Commission’s website at www.crtc.gc.ca under "Public Proceedings." In addition, the following documents, some of which were filed in or subsequent to the proceeding leading to the issuance of Broadcasting Decision 2008-330, can also be found at the same location on the Commission’s website:
  • attachment to correspondence dated 12 May 2008;
  • complaints regarding Star Choice channel line-up changes;
  • the CBC’s reply – Complaint against Star Choice filed 12 May 2008;
  • the CBC complaint against Star Choice dated 28 November 2008;
  • the corrected CBC complaint dated 28 November 2008;
  • the CBC letter explaining corrections dated 9 December 2008;
  • the Star Choice letter dated 19 December 2008;
  • the CBC letter dated 5 January 2009;
  • the Star Choice letter dated 12 January 2009; and
  • e-mail correspondence between Star Choice and the Commission dated 13 March 2009 and 20 March 2009.
 

Commission’s analysis and determinations

6.

After examining the application in light of applicable regulations and policies and taking into account the interventions received and the licensee’s response, the Commission considers that the primary issue to be addressed in its determinations is whether Star Choice should be granted an exception to the Commission’s policy that DTH BDUs must distribute as many English-language owned and operated CBC stations as those owned and operated by any other individual English-language broadcasting group (known as "equivalent carriage").

7.

Citing Broadcasting Decision 2008-330, in which the Commission reaffirmed its policy requiring equivalent carriage by DTH BDUs, as articulated in Broadcasting Public Notice 2004-19, the CBC submitted that approval of Star Choice’s application would negate the Commission’s policy in this regard and open the door to a similar application by Bell TV. For its part, Bell TV indicated in its intervention that, if Star Choice’s application were approved, Bell TV should receive similar authorization by way of a standard condition of licence.

8.

In the CBC’s view, Star Choice did not provide any rationale for setting aside the Commission’s policy relating to equivalent carriage in this situation. The CBC further stated that Star Choice acknowledged that it has been in non-compliance with the above-noted condition of licence for over a year.

9.

The CBC noted that CBKT is the only CBC source of Saskatchewan news and information for the people of Saskatchewan, and submitted that its removal would be a disservice to the people of that province. The CBC argued that its arrangement with SCN is not an alternative to the carriage of live local news on CBKT, since SCN rebroadcasts CBKT’s supper hour news programming at 11:00 p.m. each weeknight. The CBC added that this agreement was intended to enhance local programming, not be a substitute for it. The CBC also stated that SCN has no legal or regulatory obligation to continue this practice, and could terminate the agreement at any time by giving 30 days notice.

10.

The CBC submitted that it would be counter-productive to accept a situation that results in a significant proportion of a market not being able to receive a station whose local service is being supported by the Local Programming Improvement Fund, which was established by the Commission to support the maintenance of local television services. Finally, the CBC rejected Star Choice’s argument that this application was an issue of capacity constraints noting that, since Star Choice ceased distributing CBC Regina, it had no difficulty in finding the necessary capacity to add both TSN2 and Big Ten Network, a non-Canadian service, to its line-up.

11.

In response to the CBC, Star Choice reiterated its arguments that viewers could still access local content from CBC Regina through SCN, that Shaw Direct would continue to meet all other specific carriage obligations in connection with the distribution of CBC stations, and that a denial of this application would result in the removal of a CTV station. Star Choice also noted that the relief sought with respect to CBC Regina would be temporary, since CBC Regina will become a mandatory service in September 2011 upon the introduction of the new regulations for the DTH basic service as determined in Broadcasting Public Notice 2008-100, which includes a requirement to distribute one English-language CBC station per province. In addition, Star Choice offered to make CBC Regina’s news program available on its information channel (channel 299) in order to ensure that viewers could receive the local and regional CBC news in real time.

12.

With respect to the CBC’s assertion regarding capacity constraints, Star Choice stated that its capacity on existing satellites is full, that it has been making investments in order to improve its capacity and/or use it more efficiently, and is working towards the development of technologies to this end. Star Choice further stated that its efforts at capacity management have required the discontinuance of the distribution of 19 channels since May 2008, including three pay-per-view channels and four non-Canadian U.S. network affiliates. Star Choice defended the addition of the two services mentioned by the CBC (TSN2 and Big Ten Network) by saying that these additions were necessary to meet customer demand. Star Choice argued that it always carefully considers regulatory obligations and customers’ expectations in view of its limited capacity.

13.

With respect to Bell TV’s intervention, Star Choice acknowledged that this is a matter for the Commission’s discretion. However, Star Choice also noted that Bell TV does not currently carry CBC Regina and that Bell TV has an agreement with CTV to carry certain local news programs in lieu of full CTV channels, an agreement that Star Choice does not have.

14.

The Commission notes that it first set out its policy of equivalent carriage in Broadcasting Public Notice 2004-19, in which it stated that "each DTH licensee should distribute the signals of at least as many CBC owned and operated English-language conventional television stations as it does the signals of any of the private ownership groups that operate English-language conventional television stations."

15.

When it first considered the CBC’s complaint regarding Star Choice’s removal of CBKT from Shaw Direct in Broadcasting Decision 2008-330, the Commission assessed the complaint by analyzing the meaning of the words "individual broadcasting group" in the above-noted condition of licence number 6, but did not consider a departure from its policy of equivalent carriage.

16.

The Commission established new basic service requirements for DTH BDUs in Broadcasting Public Notice 2008-100. In that public notice, the Commission stated the following:

[…] the Commission also considers that DTH subscribers should have a reasonable diversity of regional and local television services that reflect the issues and concerns relevant to their places of residence. In the Commission’s view, a reasonable approach would be to require distribution, on the basic service within each province, of a selection of provincially-based local television stations, including educational services. Specifically, DTH undertakings would be required to distribute one television station per province, where such a station exists, from each of the major broadcast ownership groups: CBC English, CBC French, Canwest, CTV, Rogers, TQS and TVA.

17.

In making the determinations described above, the Commission has, without exception, reaffirmed the importance of equivalent carriage of CBC stations, with the objective of maximizing access to CBC regional programming in both official languages. Approval of the present application would constitute a departure from this policy.

18.

In regard to Star Choice’s argument that the CBC Regina news program would still be available through SCN, the Commission agrees with the CBC that such an agreement may enhance access to local programming, but should not be a substitute for it. Further, since SCN has no obligation to continue to broadcast CBKT’s programming, the Commission is of the view that the removal of CBC Regina could potentially deprive Shaw Direct subscribers of CBC Regina news and information.

19.

In regard to Star Choice’s offer to make CBC Regina’s news program available on its information channel, the Commission notes that such an arrangement would have some similarity to Bell TV’s use of partial and omnibus channels. Since Star Choice’s proposal came during the reply phase, the CBC did not have an opportunity to comment on it; hence, the Commission is unaware of the CBC’s willingness to have its Saskatchewan local and regional news programming available on Shaw Direct’s information channel.

20.

The Commission acknowledges Star Choice’s concerns about capacity and recognizes its efforts to manage it in accordance with customer demand. However, the Commission is of the view that the licensee has not provided sufficient evidence to demonstrate that an amendment to condition of licence number 6 is necessary to permit it to manage capacity constraints or to justify a departure from Commission policy.

21.

In light of the above, the Commission determines that an exception to its policy requiring equivalent carriage of English-language owned and operated CBC stations as those owned and operated by any other individual English-language broadcasting group is not warranted in this case. Accordingly, the Commission denies the application by Star Choice Television Network Incorporated to amend the broadcasting licence for its DTH BDU known as Shaw Direct in order to amend condition of licence number 6 relating to the distribution of CBC English-language conventional television stations.

22.

The Commission directs Star Choice to advise the Commission by letter, within two weeks of the date of this decision, of the manner in which it intends to comply with condition of licence number 6 as set out in Broadcasting Decision 2004-130.

23.

Although Star Choice has various options to allow it to come into compliance with that condition of licence, the Commission notes that the licensee, in order to achieve compliance, may find it necessary to remove a CTV station or remove another service to free up sufficient capacity to add an additional CBC station. In this regard, section 26 of the Broadcasting Distribution Regulations (the Regulations) requires that Class 1 and Class 2 BDUs give Canadian programming services 60 days notice of a change in the channel on which a service is distributed. Further, in Broadcasting Public Notice 2008-100, the Commission stated its intention to amend the Regulations so as to make this section applicable to DTH BDUs, effective 1 September 2011. Finally, in Broadcasting Public Notice 2005-35, the Commission determined that, as a matter of policy, it would be appropriate for BDUs to provide programming services with 60 days notice of certain changes in the packaging of the services.

24.

As noted above, Star Choice would have various options to come into compliance with condition of licence number 6. It may be in a position to add CBC Regina (or another CBC station) to its lineup without removing another Canadian service. In this event, a fairly short period of time (i.e., one week after receipt of Star Choice’s letter as to how it intends to comply) would be sufficient for Star Choice to come into compliance with this condition of licence.

25.

However, in the event that Star Choice finds it necessary to remove a Canadian signal in order to comply with the Commission’s decision, the Commission shall provide Star Choice with a further 60 days from the filing of the letter noted above to bring itself into compliance, so that it can provide the appropriate notice to the service in question.

26.

Noting that a range of options are available to Star Choice, the Commission encourages it not to remove a CTV station from its line-up and to bring back CBC Regina especially in light of the fact that, as noted above, the distribution of CBC Regina will become mandatory upon the introduction of the new approach for the DTH basic service set out in Broadcasting Public Notice 2008-100.
  Secretary General
 

Related documents

 
  • Complaints by Quebecor Media Inc. and the CBC regarding changes in the channel line-up of Star Choice Television Network Incorporated, Broadcasting Decision CRTC 2008-330, 27 November 2008
 
  • Regulatory frameworks for broadcasting distribution undertakings and discretionary programming services – Regulatory policy, Broadcasting Public Notice CRTC 2008-100, 30 October 2008
 
  • Good commercial practices, Broadcasting Public Notice CRTC 2005-35, 18 April 2005
 
  • Star Choice – Licence renewal, Broadcasting Decision CRTC 2004-130, 31 March 2004.
 
  • Introductory statement to Broadcasting Decisions CRTC 2004-129 and 2004-130, which renew the licences of the ExpressVu and Star Choice direct-to-home satellite distribution undertakings, Broadcasting Public Notice CRTC 2004-19, 31 March 2004
  This decision is available in alternative format upon request and may also be examined in PDF format or in HTML at the following Internet site: http://www.crtc.gc.ca.
 

Footnote

1 This condition of licence is set out in Broadcasting Decision 2004‑130.

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