A version of this story was originally published by the National League of Cities. Read the original here, with the full version below.

There’s an overwhelming tendency among regular Americans to conflate the basic infrastructure which surrounds us with permanence. Whether it’s the garbage truck predictably rumbling down the street at the same time every week, the water flowing from the tap, or our Internet connection, we assume that the physical ties which bind us together will always be there. And that’s because it mostly has, especially for community owned and operated infrastructure. When utility services are owned and operated by communities, they are by definition maintained by people who live locally for people who live locally. It’s hard to be taken by surprise and left without essential services.

But the odds tilt in the other direction when such services are delivered by outside firms. We’re seeing the consequences of this for electricity users in the wake of the Texas grid disaster last winter (as well as coming rumblings of heat-caused outages this June), but it’s a problem that’s been around longer than that for basic service providers of all types, where bankruptcies can leave whole communities high and dry.

The same consequences hold true when those firms are Internet Service Providers (ISPs), beholden to interests outside of the cities and towns they serve. Tens of thousands of American households learned this very lesson last fall when AT&T announced it was leaving the DSL business and no longer making new connections to its aging infrastructure, even though those wires will continue to sit in the ground for decades to come. Buy a new house in this area, and if AT&T DSL was the only provider in town, and you’ve got few or no options.

Springfield prides itself as a “City of Firsts.” Located in central Massachusetts, 90 miles west of Boston, Springfield is where the nation’s first armory was located and where the first U.S.-made automobile was built. It’s also the birthplace of basketball and Theodor Geisel, better known by his pen name “Dr. Seuss.”

Last month, the city took its first step to explore whether it will become the first of New England’s five biggest cities to build a municipal fiber-to-the-home network.

Channeling Dr. Seuss, who famously wrote “only you can control your future,” city officials are in the process of issuing a Request for Proposals to conduct a feasibility study to explore if Springfield (est. pop. 154,000) will control its digital future by meeting “the growing demand for reliable and affordable Internet service.”

According to a press release issued by Springfield Mayor Domenic Sarno’s office, “the study would review such items including but not limited to the current Internet equipment and infrastructure in place across the city, gauge public interest, provide a cost analysis on infrastructure investment, review and assess maintenance cost, possible revenue sources, and exploring potential public/private partnerships and collaborations for the benefit of consumers.”

Pandemic Exposed Digital Chasm

The city is currently served by Comcast Xfinity and Verizon DSL. But, according to City Councilor Jesse Lederman, a leading advocate for better broadband in Springfield, the pandemic exposed a growing digital divide in the city while surrounding communities are increasingly being served by fiber networks.

Jamestown - home to 30,000 residents, the largest population center in western Chautauqua County - could become the first city in the state of New York to construct a citywide municipal fiber network using American Rescue Plan relief funds.

In April, Mayor Eddie Sundquist formed a task force to assess the potential for a municipal fiber network in Jamestown. The city is currently working with EntryPoint Networks on a feasibility study to estimate the overall cost of the project, as well as surveying residential interest in building a municipally owned open access broadband network in Jamestown. 

If the city's American Rescue Plan spending plan is approved by the Jamestown City Council, Jamestown will be the first city in New York state to embark on a municipal fiber build. Although many cities across New York state own dark fiber assets, and cooperatives in the southeastern and northern regions of the state are serving some residents, no city in the Empire State has moved forward with building a citywide fiber-to-the-home (FTTH) network.  

Idea Dating Back to Sundquist’s Mayoral Campaign 

Connecting citizens to new technology was a component of Mayor Eddie Sundquist’s 2019 mayoral campaign, centered around efforts to enhance economic development and community revitalization projects.

“Who says that we can’t become a technology hub attracting businesses around the country with our low cost of living and rich resources? Who says we can’t wire broadband and fiber to every home and business in this city at a lower cost?,” WRFA reported Sundquist campaigning in 2019.

In an interview with ILSR, Mayor Sundquist recalled that the message was well-received by Jamestown residents, and that even pre-pandemic, city residents were calling for more reliable Internet access offering higher speeds. 

Two utility cooperatives in South Carolina – one electric, the other a telephone co-op – have teamed up and are now cooperating to bring fiber-to-the-home Internet service to members living in Anderson, Greenville, Oconee, Pickens and Spartanburg counties.

In September 2020, the Blue Ridge Electric Cooperative (BREC) announced the partnership with WCFIBER, a subsidiary of the West Carolina Telephone Cooperative (WCTEL). WCFIBER has a well-established reputation as a rural broadband provider – serving Abbeville, McCormick, and Greenwood counties, as well as parts of Columbia County, GA – while BREC has a long and proud history delivering electricity to residents and businesses who call this part rural/part suburban corner of South Carolina home.

It’s a partnership that has given birth to Upcountry Fiber, a new subsidiary owned by Blue Ridge Electric Cooperative. The plan is to build out the network incrementally with construction expected to take five years to complete. BREC is not only focused on serving its 25,000 members, when the network is fully built-out, all 64,890 households and businesses in Blue Ridge’s 1,800 square mile service area will have access to gigabit speed fiber connectivity.

If you're a community considering building or partnering to build publicly owned broadband infrastructure in the near future, we want to hear from you.

Connect Humanity - an organization focused on making sure everyone has fast, affordable, and reliable Internet access - may be able to help speed the financing of community networks, including with some capacity to offer non-traditional borrowing or below-market rates. What is their approach?

Over the past 25 years, traditional telecom operators have only managed to connect half the world — and that was the easy half. Universal access will require alternative infrastructure providers, new types of financing and business models, changes in policy, digital skill-building at scale, and an increase in locally relevant content. To meet the needs of this moment and prepare for the years to come, we will need to invest in a diverse set of actors dedicated to ending the digital divide. There are no silver bullets here.

Connect Humanity, in partnership with the World Economic Forum, is rallying philanthropic organizations, investors, industry, governments, civil society leaders, and international experts to build a community of practice around the shared goal of connecting the unconnected, supported by the capital to do so. With awareness about the plight of the unconnected at an all time high, this is the moment to substantially invest in bringing Internet access to all people.

This initiative is open to creative ideas, but the focus will come back to a key question: What are the long-term results in terms of improving Internet access for historically-marginalized groups?

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Even before the central Florida city of Ocala in Marion County became officially known as “The Horse Capital of the World,” the city – home to 61,810 Floridians and over 1,200 county-wide horse farms – was already galloping toward high-speed Internet connectivity. In recent years, the Ocala Fiber Network (OFN) has expanded into offering residential service, trotting carefully towards a citywide fiber-to-the-home (FTTH) finish.

It began in 1995 with the Ocala municipal electric department upgrading its substation monitoring (SCADA) system, which has been estimated to have saved the city $25 million in networking costs since. Over the past two years, OFN has extended the network to bring affordable, reliable, high-speed Internet service to city residents, neighborhood by neighborhood.

While the municipal network has been providing high-speed Internet service for the past decade to area businesses, healthcare facilities, community anchor institutions, and schools throughout the county, OFN launched residential service in 2019 and is now serving 2,500 residential subscribers in four city neighborhoods.

“We did four pilot neighborhoods. Our target goal was to have a 30 percent take rate in each neighborhood. In the largest neighborhood (the Highlands neighborhood) with a thousand homes, we have a 42 percent take rate. We still have a challenge in one neighborhood (Happiness Homes) with about a 10 percent take rate that we think is mostly an educational challenge,” Ocala Fiber Network Director Mel Poole told us in a recent interview.

There are more than 600 wireline municipal broadband networks operating across the United States today. And while the ongoing discussion about our information infrastructure by Congress has placed a renewed emphasis on publicly owned endeavors to improving Internet access, the reality is that cities around the country have been successfully demonstrating the wide variety of successful approaches for decades.

In this report, published by the Benton Institute for Broadband and Society, ILSR's Sean Gonsalves, Christopher Mitchell, and Jericho Casper profile how six community networks in a diverse range of places stepped up to meet the needs of their communities, bringing faster, more reliable, and more affordable service. 

It covers:

• Huntsville, Alabama
• Conway, Arkansas
• Ocala, Florida
• Dalton, Georgia
• Ammon, Idaho
• Cheshire County, New Hampshire

The projects above, the report shows, run the gamut from municipally owned and operated fiber networks, to cable system upgrades, to last-mile open access networks, to public-private partnerships.

From Benton:

Communities seeking to create a more competitive broadband market and/or target low-income neighborhoods with high-quality, modestly priced service are increasingly building their own networks, whether in partnership with ISPs or on their own. Local governments considering this option have to do their homework to find appropriate consultants, vendors, business models, and more.

But as the communities profiled here demonstrate, there are many models and opportunities to improve Internet access.

The Vermont Department of Public Service released its most recent 10-year telecommunications plan earlier this month, once again prioritizing Communication Union Districts (CUDs) as the key to closing the digital divide and connecting the 51,000 households that remain unserved and underserved throughout the state. 

The nearly 400-page report outlines a community-centered plan to deploy infrastructure providing 100 megabits per second (Mbps) symmetrical broadband across the state, with capabilities to increase speeds when demand warrants it. The plan maintains that the two main ways to get there are via partnerships and fiber.

The report - which was developed in partnership with CTC Energy and Technology and Vermont-based Rural Innovations Strategies, Inc. - details the importance of  optimizing the power of public-private partnership in maintaining that balance. 

The plan comes off the heels of the state legislature passing H.B. 360, a $150 million broadband bill which was funded by the federal American Rescue Act Plan, in May. The bill, now Act 71, created the Vermont Community Broadband Board and tasked the board with helping to fund and organize the deployment of broadband infrastructure for Vermont's nine CUDs.

CUDs were created in 2015, when the state legislature passed a law allowing two or more towns to join forces as a municipal entity and build communication infrastructure together. The hope was that CUDs would prompt local areas to assume responsibility and control over the broadband solution in their areas by collaborating with ILECs and ISPs. They succeeded and have been rapidly gaining steam over the last few years, with, for example, some DV Fiber currently working to serve upwards of 20 towns in the Southeast corner of the state, and NEK CUD working in Vermont’s Northeast Kingdom to serve more than 50.

Our new report, Minnesota Broadband: Land of 10,000 Connectivity Solutions [pdf], showcases the diverse range of approaches communities and local Internet Service Providers (ISPs) have taken to expand affordable, high-quality Internet access in Minnesota. It includes a series of case studies that detail how communities are meeting the connectivity challenges of a broken marketplace shaped by large monopoly service providers. 

The profiled projects include municipal networks, public-private partnerships, cooperatives, and private investment. They run from the most rural areas of the state to Minneapolis. Some examples include:

• RS Fiber Cooperative, in south central Minnesota, which has brought fiber to local businesses and town residents. Rural residents benefit from RS Air, a fast wireless service available at affordable prices.
• Arrowhead Electric Cooperative’s fiber network in Cook County, which succeeded beyond original projections. It provides fast and affordable Internet access to one of the most far-flung parts of the state.
• St. Louis Park’s partnerships with both ISPs and the builders of large condominium complexes. One of the providers working with St. Louis Park is better known as the fastest ISP in Minneapolis, USI Fiber.
• Christensen Communications, a 100+ year-old telephone company in south central Minnesota. The company demonstrated a strong commitment to its communities when the pandemic hit, and is now going above and beyond to build fiber with federal subsidies.
• The Fond du Lac Band, in northern Minnesota, which built a fiber-to-the-home network that is rare in Indian Country.

Ry Marcattilio-McCracken, co-author of the report and Senior Researcher with ILSR’s Community Broadband Networks initiative, said of the report’s findings: 

Minnesota communities and local ISPs have found creative and sustainable ways to build future-proof networks across the state, despite a broken marketplace and state barriers that favor slow-moving, out-of-state monopoly providers clinging to outdated technology. Lawmakers must stand up for the cities and towns that sent them to the legislature, and remove the obstacles that prevent a more competitive market and local broadband solutions.