CANADIAN TELECOMMUNICATIONS POLICY POLICY SEMINAR 50.572*I School of Public Administration Carleton University, 1993-1994 Fall Term 1993 Instructor: Stephen D. McDowell COURSE DESCRIPTION: This policy seminar will examine issues, actors and institutions in the telecommunications policy process in Canada. The main focus will be on the period from the 1970s through to the 1990s. The readings provide an overview of the issues, agents, institutions, policy processes and policy outcomes, and will acquaint the student with descriptive and historical material regarding telecommunications policy and regulation. As well, we will compare competing explanations and interpretations, both of regulation and of various attempts to formulate and implement Canadian telecommunications policies and legislation. You are encouraged to bring to the discussion some of the theoretic concepts, questions and approaches which are covered in other Public Administration courses. We will be joined occasionally by invited policy analysts working in these topic areas. REQUIREMENTS: The course requirements are participation in class discussions, a presentation on one of the readings, an "issues and concepts" paper, and a research paper. Students are expected to participate in seminar discussions in an active and informed fashion. The readings at the top of each week's list are required. Those listed under "other" may be useful if you wish to prepare a discussion paper or a research paper on that set of issues. Each student will choose one selection from the assigned readings as the basis of your presentation (to be decided at the first class). The class presentation (10-15 minutes) should take the form of an analytic introduction - with the aim of providing questions for discussion rather than a descriptive summary - of the reading. The "issues and concepts" or discussion paper should compare and contrast perspectives on telecommunications policy and process in Canada, as well as providing your own argument and analysis. It should deal with the literature from one week of the schedule of topics, and clarify and organize some of the questions raised in the readings and class discussions. It should not exceed 10-12 pages in length, and is due by November 3, 1993. The research paper should combine descriptive and empirical research with the analysis of a particular question. It should deal more directly with an institution, policy formation process, intervenor, or decision in telecommunications policy. It might, for instance, critically examine one of the following: the social, economic, or technical conditions to which telecommunications policy responds; the positions put forward by one or more of the actors or intervenors in telecommunications policy or regulation; the process of policy formation or decision-making in a government institution; or the implications and/or adequacy of a regulatory decision or policy. You may begin your research with the documents listed on the course outline. Topics must be approved by the instructor. Please meet with the instructor by early October to discuss possible topics and questions for the paper. This paper should not exceed 15 pages in length, and is due on December 1, 1993. EVALUATION: Requirement Weighting Class participation/presentation 20% Discussion Paper (due November 3) 30 Research Essay (due December 1) 50 TEXTS AND READINGS: One publication has been ordered, and is available at the Carleton University book store: Robert E. Babe, Telecommunications in Canada: Technology, Industry, and Government (Toronto: University of Toronto Press, 1990). The remainder of the readings are on reserve at the MacOdrum Library. Some additional course materials (such as government documents, submissions to the CRTC) will also be distributed via computer diskette (PC-DOS formatted). SCHEDULE OF TOPICS AND READINGS: WEEK 1/ Introduction and Overview WEEK 2/ Telecommunications, Regulation and the Canadian State in Historical Perspective Babe, Robert E., Telecommunications in Canada: Technology, Industry and Government (Toronto: U. of T. Press, 1990): 35-126. Armstrong, Christopher, and H. V. Nelles, Monopoly's Moment: The Organization and Regulation of Canadian Utilities, 1830-1930 (Toronto: University of Toronto Press, 1988): 59-73, 163-186, 270-292. Other [on reserve]: Surtees, Lawrence, Pa Bell: A. Jean de Grandpre and the Meteoric Rise of Bell Canada Enterprises (Toronto: Random House, 1992): 59-103. Martin, Michele, Hello Central? Gender, Technology and Culture in the Formation of Telephone Systems (Kingston: McGill-Queen's University Press, 1991). Thompson, Graham, "Sandford Fleming and the Pacific Cable: The Institutional Politics of Nineteenth Century Imperial Telecommunications," Canadian Journal of Communication Volume 15 Number 2 (1990): 64-75. Other [not on reserve]: Collins, Robert, A Voice from Afar: The History of Telecommunications in Canada (Toronto: McGraw-Hill Ryerson, 1977). Mavor, James, Government Telephones: The Experience of Manitoba, Canada (New York: Moffat Yard and Company, 1916). Patten, William, Pioneering the Telephone In Canada (Montreal: Privately Printed, 1926). Stone, A., Public Service Liberalism (Princeton: Princeton University Press, 1991). Ogle, E. B., Long Distance Please: The Story of the TransCanada Telephone System (Toronto: Collins, 1979). Grindlay, T., History of the Independent Telephone Industry in Ontario (Toronto: Ontario Telephone Service Commission, 1975). WEEK 3/ Regulating Telecommunications until the 1970s Babe, Robert E., Telecommunications in Canada: Technology, Industry and Government: 127-174, 239-246. Kaiser, Gordon, "Competition in Telecommunications: Refusal to Supply Facilities by Regulated Common Carriers," Ottawa Law Review Volume 13 Number 1 (1981): 95-122. Kane, T. Gregory, "The New CRTC Telecommunications Rules of Procedure: A Practitioners' Guide," Ottawa Law Review Volume 12 (1980): 393-411. Other [on reserve]: Canada, "CRTC Telecommunications Rules of Procedure," Canada Gazette Part II, Volume 113, Number 15, August 8, 1979. C. C. Johnston, The Canadian Radio-Television and Telecommunications Commission: A Study of the Administrative Procedure in the CRTC (Ottawa, Law Reform Commission, 1980). Other [not on reserve]: Grant, Peter S., Telephone Operation and Development in Canada, 1921- 1971 (Toronto: Faculty of Law, University of Toronto, 1974). WEEK 4/ Considering Telecommunications Policy in the 1970s: Commissions, Task Forces and the Information Society Babe, Robert E., Telecommunications in Canada: Technology, Industry and Government (Toronto: University of Toronto Press, 1990): 3-34. Telecommission Directing Committee, "Soul in the System," in Instant World: A Report on Telecommunications in Canada (Ottawa: Information Canada, 1971): 21-39. Canadian Computer/Communications Task Force, "Legal and Regulatory Aspects of Data Communications," in Branching Out Volume II (Ottawa: Information Canada, 1972): 6-18. Consultative Committee on the Implications of Telecommunications for Canadian Sovereignty (J.V. Clyne, Chair), Telecommunications and Canada (Ottawa: Minister of Supply and Services, 1979): 1-28. Other [on reserve]: Serafini, Shirley and Michel Andrieu, The Information Revolution and its Implications for Canada (Ottawa: Minister of Supply and Services, 1981): 67-105. H. E. English, Telecommunications for Canada (Toronto: Methuen, 1973). Other [not on reserve]: Science Council of Canada, Planning Now For An Information Society: Tomorrow is too Late (Ottawa: Science Council of Canada, 1982). WEEK 5/ Regionalism and Federal-Provincial Struggles in the 1970s and 1980s Schultz, Richard, "Partners in a Game Without Masters: Reconstructing the Telecommunications Regulatory System," in Telecommunications Regulation and the Constitution (Montreal: The Institute for Research on Public Policy, 1982): 41-114. Koebberling, Uschi, "Extending Telephone to Canada's North: Experiences with Service Availability, Quality and Rates," Canadian Journal of Communication Volume 15 Number 2 (1990): 16-32. Janisch, H. N., and Richard Schultz, "Federalism's Turn: Telecommunications and Canadian Global Competitiveness," Canadian Business Law Journal Volume 18 Number 2 (1991): 161-187. Swinton, Katherine, "Federalism and Telecommunications: Boon or Barrier to Competition?" Canadian Business Law Journal Volume 18 Number 2 (1991): 188-194. Other [on reserve]: Brait, Richard, "The Constitutional Jurisdiction to Regulate the Provision of Telephone Service in Canada," Ottawa Law Review 13 (1981): 53-94. Buchan, Robert, and C. Christopher Johnston, "Telecommunications Regulation and the Constitution: A Lawyer's Perspective," Telecommunications Regulation and the Constitution (Montreal: the Institute for Research on Public Policy, 1982): 115-166. Woodrow, R. Brian and Kenneth B. Woodside, "Players, Stakes and Politics in the Future of Telecommunications Policy and Regulation in Canada," in W.T. Stanbury, Telecommunications Policy and Regulation: The Impact of Competition and Technological Change (Montreal: The Institute for Research on Public Policy, 1986): 101-170, 170-249. Mongeau, Jean-Pierre (Examination Chairperson), Federal-Provincial Examination of Telecommunications Pricing and the Universal Availability of Affordable Service (Ottawa: Minister of Supply and Services, October 1986). WEEK 6/ Re-regulating Telecommunications Services in the 1980s Rideout, Vanda, "Telecommunication Policy for Whom? An Analysis of Recent CRTC Decisions," Alternate Routes Volume 10 (1993): 27-56. Economic Council of Canada, "Telecommunications," in Reforming Regulation (Ottawa: Minister of Supply and Services, 1981): 37-50. Janisch, Hudson, and Bohdan S. Romaniuk, "The Quest for Regulatory Forbearance in Telecommunications," Ottawa Law Review 17 (1985):455-489. Other [on reserve]: Romaniuk, Bohdan S., and Hudson Janisch, "Competition in Telecommunications: Who Polices the Transition," Ottawa Law Review 18 (1986): 561-661. Insight Publications, Canadian Telecommunications Regulation and Competition (Toronto: Insight Publications, 1989). Janisch, Hudson, Canadian Telecommunications Regulation Bibliography (Ottawa: Canadian Law Information Council, 1987). Janisch, Hudson and Manley Irwin, "Information Technology and Public Policy: Regulatory Implications for Canada," Osgoode Hall Law Journal Volume 20 Number 3 (September 1982): 611-641. Other [not on reserve]: Adeyinka, Alex, "Efficiency and Equity in Canadian Telecommunications," Media and Communications Law Review 2 (1991): WEEK 7/ Globalization, the Internationalization of the Policy Process, and Telecommunications Services in the 1980s and 1990s: Woodrow, R. Brian. "Tilting towards a trade regime: The ITU and the Uruguay Round services negotiations," Telecommunications Policy (August 1991): 323-342. Robinson, Peter, "The international dimension of telecommunications policy issues," Telecommunications Policy (April 1991): 95-100. Mosco, Vincent, "Toward a Transnational World Information Order: The Canada-U.S. Free Trade Agreement," Canadian Journal of Communication Volume 15 Number 2 (1990): 46-65. Comor, Edward, "The DOC under Free Trade," Canadian Journal of Communication Volume 16 Number 2 (1991): 239-262. Shefrin, Ivan, "The North-American Free Trade Agreement: Telecommunications in Perspective," Telecommunications Policy (January- February 1993): 14-26. Other [on reserve]: Langdale, John V., "International telecommunications and trade in services," Telecommunications Policy (September 1989): 203-221. Janisch, H.N., "The Canada-U.S. Free Trade Agreement: Impact on telecommunications," Telecommunications Policy (June 1989): 99-103. Group of Negotiations on Services, General Agreement on Tariffs and Trade Secretariat, "Trade in Telecommunications Services: Note by Secretariat," (19 May 1989). Organization for Economic Cooperation and Development, "Trade in Telecommunication Network-Based Services," in Trade in Information, Computer and Communications Services (ICCP 21) (Paris: OECD, 1990): 9- 40. Cowhey, Peter F., "The international telecommunications regime: the political roots of regimes for high technology," International Organization Volume 44 Number 2 (Spring 1990): 169-200. Savage, James G., The Politics of International Telecommunications Regulation (Boulder, Colorado: Westview, 1989). Other [not on reserve]: General Agreement on Tariffs and Trade, Trade Negotiations Committee, Draft Final Act Embodying the Results of the Uruguay Round of Multilateral Trade Negotiations, Geneva: GATT, 20 December 1991, MTN.TNC/W/FA. Braman, Sandra, "Trade and Information Policy," Media, Culture and Society Volume 12 (1990): 361-385. Aronson, J.D., "Is Competition Contagious? The Case of Canada," in When Countries Talk (Washington: American Enterprise Institute for Public Policy, 1988). WEEK 8/ Telecommunications Policy as Economic Policy? Janisch, H. N., and R. J. Schultz, Exploiting the Information Revolution: Telecommunications Issues and Options for Canada (Montreal: The Royal Bank, 1989). Mosco, Vincent, Transforming Telecommunications in Canada (Ottawa: Canadian Centre for Policy Alternatives, December 1990). Parker, Ian, "Options in Telecommunications Regulation," Canadian Journal of Communication Volume 15 Number 2 (1990): 33-45. Roman, Andrew J., "The Telecommunications Policy Void in Canada," Canadian Journal of Communications Volume 15 Number 2 (1990): 96-110. Other [on reserve]: Mosco, Vincent, "Toward a Theory of the State and Telecommunications Policy," Journal of Communication Volume 38 Number 1 (Winter 1988): 107-124. Mosco, Vincent, "The Mythology of Telecommunications Deregulation," Journal of Communication Volume 40 Number 1 (Winter 1990): 36-49. Hills, Jill, "Universal service: liberalization and privatization of telecommunications," Telecommunications Policy (June 1989): 129-144. WEEK 9/ Telecommunications Policy as Industrial Policy: Public Policy and the Development of Telecommunications Technology (discussion papers are due) Gillies, Donald J. "Technological Determinism in Canadian Telecommunications: Telidon Technology, Industry and Government," Canadian Journal of Communication Volume 15 Number 2 (1990): 1-15. Babe, Robert E., Telecommunications in Canada: Technology, Industry and Government: 175-183, 199-235, 245-258. Quayle, Michael J., "Canadian telecommunications: Technological change, structural regulation and entry," Telecommunications Policy (June 1989): 145-157. Surtees, Lawrence, Pa Bell: A. Jean de Grandpre and the Meteoric Rise of Bell Canada Enterprises (Toronto: Random House, 1992): 120-132, 152-162, 166-180, 191-193, 197-199. Other [on reserve]: Jenkins, Barbara, "Strategic partnerships in telecommunications: The role of states in determining competitive advantage," in Lynn Krieger Mytelka (editor), Strategic Partnerships: States, Firms and International Competitiveness (London: Pinter, 1991): 167-181 Mytelka, Lynn Krieger, "Crisis, technological change and the strategic alliance," in Lynn Krieger Mytelka (editor), Strategic Partnerships: States, Firms and International Competitiveness (London: Pinter, 1991): 7-34. Investment Canada, The Canadian Telecommunications Equipment Industry: The Case for Investing in Canada (Ottawa: Investment Canada, April 1991). Communications Canada, Communications for the Twenty-First Century: Media and Messages in the Information Age (Ottawa: Minister of Supply and Services, 1987): 63-92. Roseman, Daniel, "Towards A GATT Code on Trade in Telecommunication Equipment," The World Economy Volume 11 Number 1 (March 1988): 135-149. Devon, Terrence, "Interactivity and the Popular Support for Telidon," Canadian Journal of Communication Volume 16 Number (1991): 307-311. Schiller, Dan and RosaLinda Fregoso, "A private view of the digital world," Telecommunications Policy (June 1991): 195-208. Other [not on reserve]: Niosi, Jorge and Philippe Faucher, "The State and International Trade: Technology and Competitiveness," in Jorge Niosi (editor), Technology and National Competitiveness (Kingston: McGill-Queen's, 1991): 119-141. Hill, Christopher T., "National Technology Strategies," in John de la Mothe and Louis Marc Ducharme, Science, Technology and Free Trade (London: Pinter, 1990): 87-102. Globerman, Stephen and Peter Booth, "The Canada-US Free Trade Agreement and the telecommunications industry," Telecommunications Policy (December 1989): 319-328. WEEK 10/ Telecommunications Policy and the Social Relations of Production Cohen, Marjorie Griffin, Free Trade and the Future of Women's Work: Manufacturing and Service Industries (Toronto: Garamond, 1987): 49-79. Bernard, Elaine, The Long Distance Feeling: A History of the Telecommunications Workers Union (Vancouver: New Star Books, 1982): 152- 173. Martin, D'Arcy, "Canaries and Cargo Cults: Worker-Oriented Research in the Silicon Age," in Chris DeBresson et al, Work and New Technologies: Other Perspectives (Toronto: Between the Lines, 1987): 8-16. Hanson, Ken, "The Focus of Union Research on Technological Change," in Chris DeBresson et al, Work and New Technologies: Other Perspectives (Toronto: Between the Lines, 1987): 17-22. Mosco, Vincent, "Labour in the Information Age: A Critical Sociology Perspective," in The Pay-Per Society: Computers and Communication in the Information Age (Toronto: Garamond, 1989): 109-127. Mosco, Vincent and Elia Zureitz, "Deregulating telecommunications: The workers' view," Telecommunications Policy (September 1988): 279-287. Other [on reserve]: International Labour Organization, Joint Committee for Postal and Telecommunications Services, Technological change and workers' participation in posts and telecommunications (Geneva: International Labour Office, 1991): 23-70. International Labour Organization, Joint Committee for Postal and Telecommunications Services, Working time in posts and telecommunications (Geneva: International Labour Office, 1991). Martin, Michele, Hello Central? Gender, Technology and Culture in the Formation of Telephone Systems (Kingston: McGill-Queen's University Press, 1991): 50-90, 91-109, 167-173. Armstrong, Christopher, and H. V. Nelles, Monopoly's Moment: The Organization and Regulation of Canadian Utilities, 1830-1930 (Toronto: U. of T. Press, 1988): 213-247. Other [not on reserve]: Bernard, Elaine, "Last Back: Folklore and the Telephone Operators in the 1919 Vancouver General Strike," in Barbara K. Latham and Roberta J. Pazdro (editors), Not Just Pin Money (Victoria: Camosun College, 1984): 279-285. Sangster, Joan, "The 1907 Bell Telephone Strike: Organizing Women Workers," in Veronica Strong-Boag and Anita Clair Fellman (editors), Re- Thinking Canada: The Promise of Women's History (Second Edition) (Toronto: Copp Clark Pitman, 1991): 249-268. Canada, Report of the Royal Commission on a Dispute respecting terms of Employment between Bell Telephone Company of Canada and Operators at Toronto (Ottawa: Canada, 1907). Heron, Craig, and Bryan D. Palmer, "Through the Prism of the Strike: Industrial Conflict in Southern Ontario, 1901-14," The Canadian Historical Review Volume 8 Number 4 (December 1977): 423-458. Rakow, Lana F., "Women and the Telephone: The Gendering of a Communications Technology," in Technology and Women's Voices (New York: Routledge and Kegan Paul, 1988). WEEK 11/ New Telecommunications Legislation A/ Bill C-62: Documentation Department of Communications, "A Policy Framework for Telecommunications in Canada," Ottawa: DOC, July 22, 1987. Canada, House of Commons, "Bill C-62, An Act respecting telecommunications," First Reading, February 27, 1992. Canada, Communications Canada, "Telecommunications: New Legislation for Canada," Press Release, February 1992. Canada, Senate, "Report of the Standing Senate Committee on Transport and Communications on the Subject Matter of Bill C-62, An Act respecting telecommunications," Third Session, Thirty-Fourth Parliament, June 1992. Canada, House of Commons, "Minutes of Proceedings and Evidence of the Sub-Committee on Bill C-62," May 27, 1993. B/ The Privacy Initiative: Documentation Canada, Communications Canada, Privacy Protection in Telecommunications: Discussion Paper and Proposed Principles (Ottawa: Communications Canada, DGTP 004-92, June 1992). Communications Canada, "Comments on `Privacy Protection in Telecommunications," (October 1992) [Selections]. Perrin Beatty, Minister of Communications, "Announcement on Cellular Privacy," Toronto, December 9, 1992. Canada, Communications Canada, Telecommunications: Privacy Principles (Ottawa: Supply and Services, December 1992). WEEK 12/ The Emerging Telecommunications Regulatory Framework A/ Competition in Long Distance Services: Documentation CRTC, Telecom Public Notice 1990-73 (Ottawa: CRTC, 1990). Consumers' Association of Canada, "Final Argument of the Consumers' Association of Canada" regarding CRTC Telecom Public Notice 1990-73 (August 12, 1991). Communications and Electrical Workers of Canada (CWC), "Final Argument of the [CWC] before the [CRTC] on Telecom Public Notice 1990-73," (July 29, 1991). CRTC, Consumer Friendly Competition: The Facts (Ottawa: CRTC, 1992). B/ Review of Regulatory Framework: Documentation CRTC, Telecom Public Notice CRTC 92-78: Review of Regulatory Framework (Ottawa: CRTC, 16 December 1992). CRTC, Annual Report CRTC: The Year in Review 1990-1991 (Ottawa, Supply and Services, 1991). CRTC, Report of the Working Group on Telecommunications Process: A Tailored Approach (Ottawa: CRTC, 1990?). CRTC, Guide to the CRTC (Ottawa: CRTC, 1992). Schultz, Richard, and Hudson Janisch, Freedom to Compete: Reforming the Canadian Telecommunications Regulatory System (Ottawa: Bell Canada, March 1993). Davidson, Peter, Subsidizing Telephone Rates: The Potential of Lifeline Programs in Canada (Ottawa: Public Interest Advocacy Centre, 1992). WEEK 13/ Telecommunications Issues and Policy-Making Institutions in the 1990s (research essay is due) Restructuring of Telecommunication Policy Bodies: Documentation [to come]