Grays Harbor County Public Utility District (PUD) in Washington state has just finished a fiber optic network to local schools and a local industrial park. The county has been strapped for Internet access, and this network is the first step in developing better connectivity to many of the homes and businesses along the route. Elected officials are also exploring new ways to encourage last mile connectivity.

The Need for Internet Access

The options for high-speed Internet access are limited in Grays Harbor County, Washington. About 74,000 people live in there, and about 78 percent of the population reports having some form of Internet access at home, but it's likely those that live in the rural areas don't have access to "broadband" as defined as the Federal Communications Commission (FCC).

The FCC defines broadband as 25 Mbps (download) and 3 Mbps (upload) that meets certain other technical standards. While satellite Internet access continues to improve, satellite connectivity is still expensive, unreliable, and describing it as "broadband" is a stretch.

The FCC's data paints the situation in Grays Harbor County as similar to other areas where those living in rural areas have poor or no Internet access and many within small- or medium-sized towns have little or no choice. About 13 percent of the population have no access to broadband, and another 53 percent live under broadband monopoly. This means there is only a single provider for those people. Approximately 27 percent have a choice, but it is limited to two providers and typically between competing technologies, such as cable and DSL.

Ferry County, located in the eastern region of Washington and along the northern border, recently released a Request for Qualifications (RFQ) for a Broadband Consultant. Responses are due July 12th, 2019.

Trees Abound, Broadband Absent

Much of Ferry County is home to the Colville National Forest and timber has been one of the main sources of the local economy. Like other areas where forests cover great swaths of the countryside, broadband is either expensive or has never been deployed. There are about 7,600 people living on Ferry County's 2,257 square miles.

In addition to timber, other resource-based industries have traditionally offered jobs to locals, but as those resources have depleted, employment opportunities have decreased. Without reliable broadband, many local residents have struggled to make ends meet.

The Colville Indian Reservation is located within Ferry County and controlled by the Colville Confederated Tribes. Like much of the rest of the county, the reservation faces economic distress; residents have faced the prospect of moving in order to find work. Lacking the same access to broadband, the Tribes have joined forces with the county to form the Ferry County and Colville Confederated Tribes Broadband Action Team (BAT).

The BAT formed in April 2018 and began reaching out to stakeholders such as Washington State University - Ferry County (WSU), Microsoft, and the State of Washington. They aim to boost economic development, improve educational opportunities, enhance telemedicine, and expand other initiatives through broadband that will improve the quality of life in Ferry County.

Obtaining an Expert

Microsoft’s Airband Initiative and Declaration Network Group are  already involved in the process and the consultant will work with them on data collection and analysis. The Airband Initiative uses TV white spaces to deliver connectivity. Learn more about the initiative from Christopher's conversation with Public Knowledge's Harold Feld, episode 262 of the Community Broadband Bits Podcast. 

Washington's Douglas County Community Network (DCCN) began as a way to improve the local Public Utility District’s electric system; construction of the network started in the late 1990s. Two decades later, people living in some of the state's smallest communities have access to fast, affordable, reliable connectivity that equals their neighbors in the county's busy cities through the publicly owned fiber network.

Restrictions Didn't Stop Douglas County PUD

Due to Washington state restrictions, the Douglas County Public Utility District (DCPUD) and other PUDs cannot offer telecommunications services directly to the general public; they can only provide wholesale service. In Douglas County, private providers deliver Internet access, voice, and video to subscribers in both rural communities and more densely populated areas. Six different providers offer a range of services via the open access network. The DCPUD also offers other services, including dark fiber, that businesses find useful and has invested in a carrier grade colocation facility in East Wenatchee.

The concept for the DCCN came about when the utility was searching for a way to upgrade their existing microwave system that they used for power control. With microwave, they would only have the ability to connect point A to point B, but with fiber, the DCPUD could connect points between substations. Around this same time, leaders at the DCPUD were learning of the growing interest in excess capacity from municipal electric utility fiber optic networks for broadband. At the time, communities that knew they would not be served by the large corporate ISPs were those investing in fiber infrastructure. 

“That was us,” says DCCN Coordinator Ben Carter. “They were telling us that they weren’t going to roll broadband out … Obviously, the business decision makes itself.” Rather than bringing a new service to a place where the largest population center was only around 12,000 in 2000, corporate Internet access companies were aiming for large cities such as Seattle and Portland.

For several years now, Tacoma, Washington, has pondered the fate of its Click! municipal open access network. In the spring of 2018, the community issued an RFI/Q searching for interested private sector partners that would lease the network from the Tacoma Power Utility (TPU). After reviewing responses, consulting experts, and comparing potential arrangements, Tacoma has narrowed the field of possible partners. The goal is to put the network on a sustainable and competitive footing both financially and technologically. Tacoma is following a path that will retain public ownership of the Click! network as the network continues to expand.

Click! has offered considerable benefits during its lifetime, but the network retains considerable debt even as it will soon require more upgrades to continue competing with Comcast. The cable television system is rigged against small operators and while the open access Internet side creates many benefits, Click!’s ISPs just don’t have enough subscribers to make the network financially viable into the future.   The discussion around Click’s finances are complicated because the broadband network is used for both external customers and internal utility uses -- the rate modeling around how to allocate costs is a process that requires subjective analysis (e.g. should the costs be allocated based on bandwidth or evenly split among each service). Some have credibly accused past TPU officials with cooking the books to make Click!’s financial status worse than it actually was. Nevertheless, Click! still doesn’t appear to be financially sustainable when costs are allocated more reasonably. Given the upgrades needed by the cable system, we fear that preserving the status quo will do more harm than good to the community over the medium and long terms; Tacoma needs to make a change to avoid being stuck solely with the broadband monopolies that plague the rest of us.

Governor Jay Inslee started to promote his bill for better broadband earlier this year and, with any luck, Washington will have a solid foundation to expand broadband before the end of this year’s legislative session. SB 5511, a measure backed by the Governor, has sailed through the Senate, and has now appeared in the House. The bill establishes a State Broadband Office and earmarks funding for local broadband initiatives.

The bill is on the agenda for today's House Innovation, Technology & Economic Development Committee meeting at 10 a.m. PDT.

Difficult But Doable

In order to bring high-quality Internet access to all of Washington, millions and possibly billions of dollars of infrastructure investment are required. No one is certain how much completing the task will cost, and obtaining a better estimate will be one of the tasks of the State Broadband Office (SBO), which will be created by SB 5511. The bill allocates $1.2 million for the SBO.

Rural communities, economic development organizations, and tribes have all supported a measure to establish state investment in broadband infrastructure deployment across Washington. In January, Inslee met with leaders from communities across the state, including Colville Business Council member Susie Allen representing the Colville Tribes, to discuss the need for state funding:

“I have been working on broadband initiatives on our reservation for many years, but unfortunately, substantially, we still remain under-served and unserved, without broadband services,” said Allen. “The Colville Tribes have invested several millions of dollars to begin to meet this need, but we require assistance from the state and federal agencies to complete this work… The lack of broadband service creates not just an inconvenience, but poses real safety concerns throughout the reservation.”

The Colville Tribe has invested $6 million in order to connect the tribal government and under the terms of SB 5511, they would qualify to receive more funding in grants and low-interest loans.

For more than two years, officials from the Port of Ridgefield in Washington have planned for better connectivity by deploying dark fiber. This month, they took a significant step by issuing a Request for Information (RFI) for Partnership as they search for entities interested in leasing dark fiber to bring services to the community. Responses are due March 15, 2019.

Read the RFI.

Rural or Not

In the spring of 2018, Washington’s elected officials eliminated a barrier that prevented the Port of Ridgefield from taking the final steps to completing their vision by passing HB 2664. The legislation removed a restriction that only allowed rural ports to use their fiber infrastructure for the types of partnership agreements that the Port of Ridgefield is now seeking. The “rural” limitation meant that Ridgefield and more populous ports could not use their fiber infrastructure to enter into partnerships for service to people or entities. With approximately 7,000 people in and around the city of Ridgefield, the Port of Ridgefield was not considered “rural.”

Officials from the Port of Ridgefield, the city of Ridgefield and other ports in Washington lobbied to have the law changed so they could provide wholesale services to interested Internet access companies. Governor Jay Inslee signed the bill in March 2018. While the primary goals of the RFI focus on improving connectivity within the port district, the Port also prominently includes, "The Port hopes this initiative will support and accelerate private providers’ efforts to improve broadband service options in the County."

The Port and the Plan

Last spring, we reported on Anacortes, Washington’s efforts to evaluate private sector partners to deliver high-quality connectivity via their publicly owned fiber optic infrastructure. After examining their financial position, the desires of the community, and considering the pros and cons, the community has decided to offer services directly to the public. The island community will start deployment in 2019 and plans to have the network completed within four years.

Moving Along

Director of Anacortes Administrative Services Emily Schuh reached out to us to let us know that the city will be expanding from their fiber back bone to serve businesses and households in the community and to update us on the project. She also wanted to let us know that Anacortes is actively recruiting for a Municipal Broadband Business Manager.

Anacortes (pop. approx. 17,000) lies off the coast of Washington on Fidalgo Island, connected to the mainland via two bridges and ferry. Regular readers of MuniNetworks.org will recognize Mount Vernon on the map, located east and operating a municipal open access network for decades. Comcast offers Internet access throughout Anacortes and DSL service is available from Frontier, but businesses and residents want access to more reliable connections and faster upload speeds, which are not forthcoming with the incumbent ISPs.

At their November 27th meeting, Commissioners from the Grant County Public Utility District (Grant PUD) in Washington approved the funds to complete countywide fiber optic deployment. They’ve decided to dedicate an additional $12.6 million in new funding toward infrastructure to speed up the project. The total 2019 fiber budget is now set for $18.4 million to pay for expansion, maintenance and operation, and new customer connections.

According to Wholesale Fiber senior co-manager Russ Brethower, Grant PUD will have a more accurate and detailed timeline calculated in the spring. Approximately 30 percent of Grant County residents have yet to be connected to the network. While some communities have partial connectivity, there are still a few with no connections to the fiber and the new accelerated plan aims to change that.

Big Ambition for A Big County

With approximately 3,000 square miles, connecting the entire county is no small feat. Grant County, known for its large potato farms, contains expansive tracts of rural areas and several dense population centers. Add in the fact that soil varies from rock to easily plowed soil, and the Grant PUD has faced an extensive education in all manners of deploying fiber.

Christopher talked with Brethower for episode 279 of the Community Broadband Bits podcast about the network and the start of Grant PUD's efforts in 2000. Brethower discussed the fact that the county is an ideal place for data centers, as companies are encouraged by inexpensive real estate, the climate, low electric rates, and the fiber network.

Brethower also described how connecting the remaining residents and businesses in the county has become a priority for the Grant PUD and that their open access network, as required by state law, has attracted two dozen service providers.

With the additional funding for 2019, the Grant PUD will reduce the original deployment goal from 10 years to five.

Listen to the November 2017 interview with Russ Brethower here to learn more about the story behind Grant PUD’s fiber network:

When you’re an island, literally, and want better options for your Internet access, you have to get creative. In the case of Rock Island Communications on the San Juan Islands, the choice was clear: establish your own ISP. 

The San Juan Islands cluster in the most northwest tip of Washington state, off the coast of the cities of Bellingham and Anacortes, and just spitting distance from the Canadian border. Hitching a ride on a ferry boat is the only way to access this remote but beautiful chain. A little more than a third of the residents of the 20 islands are seasonal, and the islands’ median age is 55 years old, according to Rock Island Communications. Visitors and residents alike experience the rough weather, thick Douglas fir overgrowth, and rocky terrain one would expect from the Pacific Northwest coast. These environs make for beautiful vistas - the islands are considered a vacation destination - but less than ideal conditions for high speed Internet access.

“After the Cable Broke” 

Rock Island Communications is a wholly owned subsidiary of the San Juan County-based electric co-op Orcas Power and Light Cooperative (OPALCO). Rock Island Communications started as Rock Island, a local ISP with around 12 percent of the market share. OPALCO bought the small ISP in 2015, and the private venture has just entered its third year of expanding construction and operating both Fiber-to-the-Home (FTTH) and Fixed LTE Wireless services. The wireless service, for more remote subscribers, is run in a partnership with T-Mobile and involves sharing infrastructure and splitting costs. By the company’s own estimates, Rock Island now retains nearly 40 percent of the market share, with a 2:1 ratio of wireless to FTTH subscribers. The ISP expects to have a positive cash-flow by the end of this year.