Duarte City Council
February 11, 2025

16 City of Duarte | Strategic Planning Services
MIG will develop the questions in coordination with
the City Project Management Team. Two MIG staff
will facilitate the discussion and will take notes during the focus groups on a digital whiteboard. MIG will
consolidate the findings from the focus groups into
a summary that includes high level themes. These
findings will be included in the Environmental Scan
(Task 1.7).

Deliverables:
» Draft and final Focus Group Discussion Questions (MS
Word Document)
» Focus Group meeting facilitation and digital notes
recording (2 MIG staff, 5 total meetings)
» Summary (MS Word Document)

1.4 Executive Management Team Meeting #1
MIG will collaborate with the City Project Management
Team to design an approach and agendas for three
meetings with the City’s Executive Management
Team. The Executive Management Team includes the
City Manager and City department directors. It may
also include additional City staff leaders who the City Manager and department directors determine play a
key role in the decision-making processes regarding the work of the City.

The purpose of these meetings will be to engage
the team to inform the vision, mission, strategic issue areas, goals, projects and initiatives, and benchmarks
to measure outcomes. The City of Duarte’s Strategic
Plan will establish a vision for a ten-year horizon and workplan for the next five years. To ensure successful
implementation over the next three-to-five years, MIG
suggests opening up these meetings to additional
levels of directors and supervisors, as it will be essential that the City leadership is engaged so work programs
support and achieve Strategic Plan goals.

For each meeting, MIG will define the meeting
objectives and design the agenda, materials, and
facilitation approach in coordination with the City Project Management Team. MIG will serve as meeting facilitator
and will use wallgraphics, city maps, and other methods to facilitate and record ideas, discussion points, and
workshop outcomes. City staff will coordinate the dates, times and location of these meetings.

At Executive Management Team Meeting #1, MIG will
design and two MIG staff will attend and facilitate
an interactive and exploratory discussion with the
team. This will include an explanation of the strategic planning process, desired outcomes for this process,
and facilitated discussion focused on the City’s vision for the next 10 to 20 years, shared values, and future
opportunities. The second half of the meeting will center around current services and operations, community
perceptions of the City’s work and services, and what
makes Duarte unique. MIG will summarize key findings
and discussion points of this meeting in a summary.

MIG proposes two more meetings with the Executive
Management Team (see Tasks 2.1 and 3.1) to ensure
department action plans, projects, and initiatives are
aligned with the priorities identified by the City Council and the broader vision and needs expressed by the
community.

Deliverables:
» Attend and facilitate in-person Executive Management
Team Meeting #1 (2 MIG staff)
» Draft and Final Executive Management Team Meeting
Agenda (MS Word Document)
» Strategic Plan Framework and Process Presentation
(PowerPoint) and Strategic Plan Definitions (MS Word
Document)
» Summary of key findings and discussion points (MS
Word Document) and wallgraphic (PDF)
CITY OF DOWNEY | 2030 DOWNEY FORWARD | STRATEGIC PLAN
29

City of Duarte | Strategic Planning Services 17

1.5 City Council Priority-Setting Retreat
MIG will design and facilitate a half-day (four hours)
retreat for City Council members to review high-level
findings across City Council interviews and staff
questionnaire responses. The retreat will also focus on the City Council members’ long-range vision, goals,
desired outcomes, and near-term priorities. The retreat will include facilitated activities and exercises that will explore the City Council’s ideas and opportunities
related to Duarte’s identity, sense of place, activation and the built environment, economic development,
fiscal sustainability, community satisfaction, internal processes, and other topics identified through the
interviews and questionnaire.

MIG will define the retreat objectives and design
the agenda, presentation materials, and facilitation
approach in coordination with the City Project
Management Team. MIG will serve as facilitator for the
retreat and will record comments during discussions on
large wallgraphics in real time. City staff will coordinate the date and time for the retreat and determine the
location. After the retreat, MIG will summarize the key findings and discussion points in a summary. High level themes from this discussion will be included in the
Environmental Scan (Task 1.7) and used to develop the
draft Vision, Mission and Strategic Issue Areas (Task 2.1).

Deliverables:
» Draft and final City Council Priority-Setting Retreat Agenda (MS Word Document)
» Strategic Plan Framework and Process Presentation
(PowerPoint) and Strategic Plan Definitions (MS Word
Document)
» Summary of key findings and discussion points (MS
Word Document) and wallgraphic (PDF)

1.6 Employee Engagement Questionnaire
MIG will develop a web-based questionnaire to engage
City staff about their thoughts and recommendations
related to the City’s draft vision, mission, strategic issue areas and goals. The questionnaire will also gather
input about what City employees value about working
in Duarte, how they see their work as part of the larger organization, learn about how they see the strengths
and challenges of their department and the larger
organization of the City, and what their vision for the City looks like going forward. MIG will provide a draft set of questions for review by the City Project Management
Team, following the first Executive Management Team
Meeting and City Council retreat. Once approved, the
City Project Management Team will share the link with
City staff. MIG will provide charts and graphs and the
raw data of the questionnaire results. Findings from
these results will be integrated into the Environmental Scan (Task 1.7).

Deliverables:
» Draft and Final Questionnaire (MS Word)
» Digital Link to Questionnaire
» Charts and graphs of results (MS Word Document)
» Questionnaire Raw Data (Excel data file)

1.7 Background Review and Environmental Scan
MIG will conduct an assessment of the internal
organization of the City by reviewing existing
documents, policies, reports, organizational structure, roles and responsibilities, workloads and reporting
structure. MIG will develop a memo that summarizes the
assessment results, including a SWOT analysis of the
internal work and operations of the City.

MIG will also use these documents and others
recommended for review by the City Project
Management Team such as resident and employee
surveys, past priority setting and visioning initiatives and other strategic planning materials to prepare an
external analysis of the opportunities and challenges
facing the City. This Environmental Scan document
will look to address some of the key questions and
challenges affecting the City and its peer jurisdictions, that may influence the City’s work priorities over the
coming decade. Examples of these challenges include
potential effects of new development around the
light-rail station on the cost of housing and real estate

18 City of Duarte | Strategic Planning Services
in the City; the growing need for affordable housing
and walkable communities for seniors and families;
addressing ongoing homelessness and public safety
concerns; funding improvements to aging infrastructure; implementing the City’s Town Center vision; providing
quality community services to a diverse population
given a finite city budget; and supporting the health and educational needs of young people in the City.

MIG will also summarize the key themes from interviews, focus groups, survey responses and other community
engagement activities to include in the Environmental
Scan document. This summary will include internal
and external analysis of the city and its processes and workstreams, key themes related to opportunities and
challenges and address potential future weaknesses
and threats the city will need to address.

Deliverables:
» Background Review and Environmental Scan Memo
(MS Word Document)
PHASE 2: STRATEGIC PLAN FRAMEWORK
The Strategic Plan Framework is the organizing
structure for the Strategic Plan document. It includes the Vision and Mission statements which are used to define
the direction of work under the plan. The Strategic Plan Framework also includes a set of measurable goals,
defined in this document as Strategic Issue Areas, which serve as the broad themes of the work the city hopes to or needs to focus on going forward. A Goal Statement
helps to define what the City intends to achieve for each of the Strategic Issue Areas. What we learn from the
City Council Priority Setting Retreat and the Executive Management Team Meeting, as well as from all of the
activities in Phase 1, will inform the development of
the Strategic Plan Framework. Developing additional
Strategic Plan elements, such as department-level
goals, and the benchmarks, projects, initiatives and
timetable that will be a part of the City’s implementation plan, take place in Phases 2 and 3.

2.1 Draft Vision, Mission, and Strategic Issue Areas
After meeting with the Executive Management Team,
MIG will develop concise drafts of the Mission and Vision Statements, and Strategic Issue Areas and draft Goal
Statements for each Strategic Issue Area for review
by the City Project Management Team and Executive
Management Team at its next working session. Ahead
of this next Executive Management Team meeting, MIG
will work with the City Project Management Team to
create a process for reviewing these drafts by Executive Management Team members and other City staff.

Deliverables:
» Draft Mission, Vision, Strategic Issue Areas and Goal Statements (MS Word Document)

STRATEGIC PLAN FRAMEWORK
Downey is a charming mid-size city that feels like a small town.

The City’s neighborhoods are attractive, safe and tranquil, and provide opportunities for residents of all ages to set down roots and feel connected to the social and family networks.

We celebrate and embrace our rich history and varied cultures.

Our strong sense of community drives our spirit of service and coming together.

We continue to take pride in our foundation in science and aerospace and promote its VLJQL²FDQFHIRURXUFRPPXQLW\DQGWKHUHJLRQ
Our commercial corridors are active with diverse opportunities for all to shop and enjoy entertainment for families and residents of all ages.

We value the premier community facilities, parks, educational venues, vibrant performance VSDFHVDQGRIIHULQJVWKDWIXO²OOWKHQHHGVRIWKHGLYHUVHJURXSVLQRXUFRPPXQLW\

COMMUNITY VISION AND VALUES
Proudly committed to continuously improving the quality of life for the Downey community by providing excellent service in a professional, ethical, and responsible manner.

MISSION
Fiscal Responsibility
Maintain a Financially Stable Local Government.

GOALS
Economic Vibrancy
Support community needs through a stable, vibrant and diverse local economy.

Efficiency and Adaptability
Create an environment where new process and programs are encouraged and are used to improve internal and external services.

Quality of Life, Safety and Infrastructure
Foster a safe community through key investments and provide inclusive, diverse community programs and activities.

Public Engagement
Cultivate a trustworthy and participatory local government through equitable, transparent, and effective processes.

Downey Forward 2030 Strategic Plan

City of Duarte | Strategic Planning Services 19

2.2 Executive Management Team Meeting #2
MIG will collaborate with the City Project Management
Team to design an approach and agenda for a second
meeting with the City Executive Management Team
and other key staff leaders. This two-hour meeting
will take place via Zoom or another digital platform.

The purpose of this meeting will be to engage City
department directors and any additional leadership staff identified by the City Project Management Team, such
as managers or senior staff, to determine their collective vision and mission, and the long-term goals for the work of each department and its divisions.

Two MIG staff will attend and facilitate. MIG will share a brief presentation which will review the key themes
from Phase I activities. The presentation will also
include a brief explanation of the purpose for the
Strategic Plan and introduce suggested definitions for
the key elements that will be part of the Strategic Plan Framework— Vision and Mission Statements, Strategic
Issue Areas and Goal Statements (see the definition
above under the Phase 2 heading). MIG will facilitate a discussion about these terms and definitions so there is consensus about the terminology used in the plan.

This will be followed by a facilitated discussion to
workshop the draft versions of the City’s collective
Vision and Mission statements. A final facilitated session will determine the collective set of priority areas that will frame and direct the departments’ work over the coming
years. MIG will lead City staff through a discussion to determine how their key priorities and work streams
match those priorities identified by City Council
members during the visioning workshop. MIG will use
this discussion to begin to identify short- and long-term goals for each department, ensuring a focus on SMART
goals that align with the community’s priorities.

MIG will use digital wallgraphics, and other methods
to facilitate and record ideas, discussion points and
meeting outcomes. The City Project Management Team
will coordinate the date, time and digital platform for this two-hour meeting.

MIG will use the feedback from the Executive
Management Team Meeting #2 to prepare a draft
Strategic Plan Framework in a Word Document that
includes the following elements— Vision and Mission
statements, Strategic Issue Areas, and Goal Statements
for each Strategic Issue Area.

Deliverables:
» Attend and facilitate digital Executive Management
Team Meeting #2 (2 MIG staff)
» Draft and final Executive Management Team Meeting
Agenda (MS Word Document)
» Key Phase 1 Themes, Strategic Plan Framework and
Process Presentation (PowerPoint) and Strategic Plan
Definitions (MS Word Document)

2.3 Strategic Plan Framework
MIG will use the feedback from the Executive
Management Team Meeting to prepare a revised draft
Strategic Plan Framework in a Word Document that
includes the following elements— Vision and Mission
statements, Strategic Issue Areas, and Goal Statements
for each Strategic Issue Area.

The Word document will include the draft text for
each of these four elements, as well as a visual
representation of how these elements fit together as the Strategic Plan Framework.

The City Project Management Team will provide MIG
with one consolidated set of comments and MIG
will revise to include in a revised, final version of the Strategic Plan Framework as a Word Document.

Deliverables:
» Draft and Final Strategic Plan Framework (MS Word
Document)
PHASE 3: STRATEGIC PLAN

3.1 Executive Management Team Meeting #3
MIG will design and implement a third two-hour digital
Executive Management Team Meeting to present
and review the revised elements of the Strategic Plan
Framework, refine department short- and long-term
goals under each Strategic Issue Area, establish the
timeframes and set of projects and initiatives each
department will use to meet these goals, and determine
the benchmarks and other performance measures for
each Strategic Issue Area that those executing the plan will use to evaluate success. Two MIG staff will attend and facilitate this meeting.

20 City of Duarte | Strategic Planning Services
MIG will develop a short presentation to review the
revised Strategic Plan Framework elements and
prepare materials necessary to have a working session
with department leadership and key staff about the
outcomes, timetables and measures needed to meet
the goals related to their workstreams. During this
meeting, MIG will facilitate a discussion about how the departments will implement their work, including the
specific actions they plan to take.

MIG will use digital wallgraphics and other methods
to facilitate and record ideas, discussion points and
meeting outcomes. The City Project Management
Team will coordinate the date, time and location of this two-hour meeting.

MIG will use the feedback from the Executive
Management Team Meeting #3 to prepare a draft
Implementation Plan in a Word Document that includes
short-and long-term goals for each Strategic Issue Area, the set of projects and initiatives that each department will undertake to meet these goals and the timetable
and benchmarks for each.

Deliverables:
» Attend and facilitate digital Executive Management
Team Meeting #3 (2 MIG staff)
» Draft and final Executive Management Team Meeting
Agenda (MS Word Document)
» Strategic Plan Framework Draft Elements
Presentation (PowerPoint), Draft Implementation Plan
(MS Word Document)

3.2 Draft Implementation Plan, with Draft
Benchmarks, Timetables and Department Shortand Long-Term Goals MIG will develop a draft version of the implementation
plan, based upon what was discussed and developed
during the previous Executive Management Team
Meeting. This will include draft benchmarks for each
Strategic Issue Area, department-level short- and
long-term goals, and the timetables and set of projects and initiatives for each Strategic Issue Area that will make up the City’s Implementation Plan and each
department’s action plan.

MIG will provide this draft for review by the City Project Management Team, Executive Management Team and
other department leaders as a Word Document. The
City Project Management Team will provide MIG with
one consolidated set of comments and MIG will revise
these based on the feedback.

Deliverables:
» Draft and Revised Draft Implementation Plan, with
Benchmarks, Timetables and Department Short- and
Long-Term Goals (MS Word Document)

3.3 Draft Strategic Plan and Implementation Plan
MIG will develop the content for a final draft of the
Strategic Plan, which will include revised versions of
the Strategic Plan Framework—Vision and Mission
Statements, Strategic Issue Areas and Goal Statements
and definitions for each of these elements. The final
draft will also include an introduction and overview of the process to develop the strategic plan. It will also include the revised draft of the Implementation Plan—the benchmarks, short- and long-term goals, timetables and
set of projects and initiatives for each Strategic Issue Area. From this draft, department directors will develop the action plans for their departments.

MIG will provide this content in a Word Document for
review by the City Project Management Team, Executive
Management Team and other department leaders. The
City Project Management Team will provide MIG with one
consolidated set of comments and MIG will revise these
based on the feedback.

Deliverables:
» Draft Strategic Plan and Implementation Plan Content
(MS Word Document)

3.4 Draft Strategic Plan Presentation at City
Council Workshop
MIG will develop a short presentation for the City
Council to review the elements of the Draft Strategic
Plan Framework and the set of goals, benchmarks and
timeline that will be part of the implementation plan for each of the Strategic Plan’s Strategic Issue Areas.

During this workshop MIG will facilitate a brief discussion with City Council members about their expectations for
report backs from City staff on progress, as well as the future timeframe to consider revising and updating the
Strategic Plan.

City of Duarte | Strategic Planning Services 21
Deliverables:
» Attendance at City Council Workshop
» Strategic Plan presentation, City Council Workshop
(PowerPoint file)

3.5 Final Strategic Plan
MIG will make one more round of text edits after review by the City Project Management Team, Executive
Management Team and other department leaders
based upon one set of consolidated comments, which
will include comments generated from the City Council
members during the workshop in Task 3.4. MIG will
revise the Strategic Plan draft document and deliver the final Strategic Plan as a Word Document for final review by the City Project Management Team.

MIG will make one final revision to the final Strategic Plan Word Document. MIG will provide Word and PDF files of
the final Strategic Plan to the City Project Management Team for printing and posting to the City website.

Deliverables:
» Draft and Final Strategic Plan (MS Word and PDF files)

OPTIONAL TASKS
Optional Task A Community Visioning
Questionnaire
MIG will design a web-based questionnaire focusing
on understanding the community’s ideas for the future
of Duarte. The questionnaire will balance aspirational
questions to learn about the community’s vision and
what they think makes Duarte special, with more
specific prompts to elicit feedback about issues,
concerns, and opportunities that are important to
residents, businesses, and visitors. MIG will provide
a digital file for the City to produce print copies and place at public facilities and local businesses. City
staff or volunteers will be responsible for entering the responses of any paper copies of the questionnaire
into the digital platform. The City Project Management
Team will review and provide feedback on the draft
questionnaire. MIG will provide charts and graphs and
the raw data of the questionnaire results. Findings from these results will be integrated into the Environmental Scan (Task 1.7).

Deliverables:
» Draft and Final Questionnaire (MS Word)
» Digital Link to Questionnaire
» Charts and graphs of results (MS Word Document)
» Questionnaire Raw Data (Excel data file)
Optional Task B Community Outreach Pop-up
Activities
MIG proposes a set of five (5) pop-up outreach events
to publicize the City’s strategic planning process and
gather input from Duarte community members and
business owners about their vision for the City of Duarte in 2050, and their needs and ideas for the future.

MIG will develop one poster with several question
prompts for the community to answer and add to
the poster on post it notes. MIG will also develop a
one-page handout for these events that explains the
strategic planning process and how the plan will be
used by the City, and how community members can
participate. MIG will provide drafts of the poster and
handout to the City Project Management Team for
review, and work with the City Project Management
Team to determine the time and location for these
events.

Activities might include pop-ups at the farmers market, community center, library, high school, shopping
centers, downtown, and other key community locations
and events. Two MIG staff will be present at each event.

MIG will develop an interactive activity to elicit feedback from the community. A QR code will be prominently
displayed to direct people to the community visioning
questionnaire (Optional Task A).

22 City of Duarte | Strategic Planning Services
MIG also proposes partnering with the city youth intern program, Mayor’s Youth Council and Duarte High
School service organizations to invite youth volunteers to support these activities. MIG has been successful
with educating youth about the importance of
community engagement and how to conduct community
engagement activities.

MIG will provide a summary of the themes heard from
the community and integrate the themes heard at these
events into the Environmental Scan (Task 1.7).

Deliverables:
» Pop-Up Activity Attendance (2 MIG Staff at 5 events)
» Draft and final poster (PDF) and one-page handout
(MS Word Document)
» Summary of Themes from Pop-up Activities (MS Word
Document)
Optional Task C Community Visioning Open
House
MIG will organize an interactive and engaging two-hour
community open house. MIG will develop three posters
to anchor stations that community members will visit to share their ideas for the future of Duarte, including their vision, sense of community identity, opportunities for
community development, and how the City can continue
to stay engaged with the community.

These posters will include prompts to get community
members thinking about the future and may also include
maps or place types to help residents share their
priorities for the work of the City going forward.

Three MIG staff will attend this event and facilitate the activities. City Project Management Team will determine the best time and location and publicize the Open
House. MIG staff will develop a summary of the themes
heard at the open house and integrate the themes heard
at these events into the Environmental Scan (Task 1.7).

Deliverables:
» Open House Attendance (3 MIG Staff)
» Draft and final agenda for Open House (MS Word)
» Draft and Final Open House posters (3)
» Summary of key themes (MS Word Document
» Photos during Open House and of posters (photo and
PDF files)
Optional Task D Community Visioning Contest
In the lead up to the Open House, MIG proposes a
“Duarte Future 2050” Community Visioning Contest, to
envision what Duarte will be known for in 2050, as “The City of ____”. The Contest will ask high school students and youth to share their ideas about what they will see in Duarte in 2050, and where they will be as community
members in the future City of Duarte, including any
approaches to the City services or activities they use or imagine the City may need to provide in the future.

MIG will develop a draft and final flyer and draft content for three social media posts related to the “Duarte Future 2050” Community Visioning Contest. The City Project
Management Team will be responsible for publicizing
and promoting the contest, determining any potential
prizes and who might judge entries to choose winners.

Deliverables:
» Draft and final “Duarte Future 2050” Community
Visioning Contest Flyer (MS Word Document)
» Draft Content for three Social Media Posts related
to the “Duarte Future 2050” Community Visioning
Contest (3 posts) (MS Word Document)

City of Duarte | Strategic Planning Services 23
Schedule
MIG proposes a schedule for the Strategic Plan
process that extends for eight months. It includes
an early visioning retreat with the City Council, a
two-month time period for stakeholder engagement,
and ample time for development and review of Plan
elements with City leadership and key department
staff. We propose several optional community
engagement activities to reach and involve as
many City residents, staff, and other stakeholders
in the planning process, and especially want to lift
up additional opportunities to engage and involve
young people.

Once the Strategic Plan is adopted by the City
Council, MIG suggests the City organizes an event
where Council members, City staff, and community
members can meet to celebrate the plan and the
work together toward Duarte in 2050.

This schedule assumes a project kickoff of the week
of January 20, 2024, and a period of work from
January 2025 to September 2025.
» PHASE 1: CITYWIDE VISIONING AND
ENVIRONMENTAL SCAN –
Mid-January to Mid-April
» PHASE 2: STRATEGIC PLAN FRAMEWORK –
April and May
» PHASE 3: STRATEGIC PLAN – June to
September
2025
Months Jan Feb Mar Apr May Jun Jul Aug Sep
Weeks 1 2 3 4 5 1 2 3 4 1 2 3 4 1 2 3 4 5 1 2 3 4 1 2 3 4 1 2 3 4 5 1 2 3 4 1 2 3 4 5 Phase 1: Citywide Visioning and Environmental Scan

1.1 Project Initiation and Project Management

1.2 City Council Interviews (7)

1.3 Community Focus Groups (5)

1.4 Executive Management Team Meeting #1

1.5 City Council Priority-Setting Retreat

1.6 Employee Engagement Questionnaire

1.7 Background Review and Environmental Scan
Phase 2: Strategic Plan Framework

2.1 Draft Vision, Mission and Values

2.2 Executive Management Team Meeting #2

2.3 Strategic Plan Framework
Phase 3: Strategic Plan

3.1 Executive Management Team Meeting #3

3.2 Draft Implementation Plan, with Draft Benchmarks,
Timetables and Department Short- and Long-Term Goals

3.3 Draft Strategic Plan and Implementation Plan

3.4 Draft Strategic Plan Presentation at City Council Workshop

3.5 Final Strategic Plan
Optional Tasks
A Community Visioning Questionnaire
B Community Outreach Pop-up Activities
C Community Visioning Open House
D Community Visioning Contest
Deliverables and Milestones
Deliverable
Meeting

24 City of Duarte | Strategic Planning Services
Cost Proposal
Hrs@ $235 Hrs@ $150 Hrs@ $200 Hrs@ $200 Hrs@ $135 Hrs@ $110 Hrs@ $100 Phase 1: Citywide Visioning and Environmental Scan

1.1 Project Initiation and Project Management 16 $3,760 32 $4,800 $0 $0 $0 $0 12 $1,200 60 $9,760 $100 $9,860

1.2 City Council Interviews (7) 4 $940 8 $1,200 $0 $0 $0 $0 $0 12 $2,140 $2,140

1.3 Community Focus Groups (5) 8 $1,880 24 $3,600 $0 $0 40 $5,400 $0 $0 72 $10,880 $10,880

1.4 Executive Management Team Meeting #1 8 $1,880 8 $1,200 $0 $0 $0 16 $1,760 2 $200 34 $5,040 $100 $5,140

1.5 City Council Priority-Setting Retreat 16 $3,760 16 $2,400 $0 $0 $0 24 $2,640 $0 56 $8,800 $100 $8,900

1.6 Employee Engagement Questionnaire 4 $940 16 $2,400 $0 $0 $0 24 $2,640 $0 44 $5,980 $200 $6,180

1.7 Background Review and Environmental Scan 4 $940 24 $3,600 8 $1,600 4 $800 40 $5,400 $0 $0 80 $12,340 $12,340 Subtotal 60 $14,100 128 $19,200 8 $1,600 4 $800 80 $10,800 64 $7,040 14 $1,400 358 $54,940 $500 $55,440 Phase 2: Strategic Plan Framework

2.1 Draft Vision, Mission, and Strategic Issue Areas 8 $1,880 16 $2,400 $0 $0 $0 $0 $0 24 $4,280 $4,280

2.2 Executive Management Team Meeting #2 8 $1,880 8 $1,200 $0 $0 $0 16 $1,760 2 $200 34 $5,040 $5,040

2.3 Strategic Plan Framework 8 $1,880 16 $2,400 $0 $0 $0 $0 $0 24 $4,280 $4,280 Subtotal 24 $5,640 40 $6,000 0 $0 0 $0 0 $0 16 $1,760 2 $200 82 $13,600 $0 $13,600 Phase 3: Strategic Plan

3.1 Executive Management Team Meeting #3 8 $1,880 8 $1,200 $0 $0 $0 16 $1,760 2 $200 34 $5,040 $5,040

3.2 Draft Implementation Plan, with Draft Benchmarks, Timetables and Department Short- and Long-Term Goals 8 $1,880 16 $2,400 8 $1,600 4 $800 $0 $0 $0 36 $6,680 $6,680

3.3 Draft Strategic Plan and Implementation Plan 8 $1,880 16 $2,400 $0 $0 $0 $0 $0 24 $4,280 $4,280

3.4 Draft Strategic Plan Presentation at City Council Workshop 8 $1,880 4 $600 $0 $0 8 $1,080 $0 $0 20 $3,560 $100 $3,660

3.5 Final Strategic Plan 8 $1,880 16 $2,400 $0 $0 $0 $0 $0 24 $4,280 $4,280 Subtotal 40 $9,400 60 $9,000 8 $1,600 4 $800 8 $1,080 16 $1,760 2 $200 138 $23,840 $100 $23,940 124 $29,140 228 $34,200 16 $3,200 8 $1,600 88 $11,880 96 $10,560 18 $1,800 578 $92,380 $600 $92,980 10% Markup (Direct Costs/Administrative) $60 $60
$93,040
Optional Tasks
A Community Questionnaire $7,120
B Community Outreach Pop-up Activities $16,300
C Community Visioning Open House $17,000
D Community Visioning Contest $4,980
Optional Tasks Subtotal $45,400
Optional Tasks - detail
A Community Questionnaire 4 $1,880 16 $2,400 $0 $0 $0 24 $2,640 $0 44 $6,920 $200 $7,120 B Community Outreach Pop-up Activities 8 $940 16 $2,400 $0 $0 48 $6,480 48 $5,280 $0 120 $15,100 $1,200 $16,300 C Community Visioning Open House 16 $3,760 24 $3,600 $0 $0 24 $3,240 40 $4,400 $0 104 $15,000 $2,000 $17,000 D Community Visioning Contest 4 $940 8 $1,200 $0 $0 8 $1,080 16 $1,760 $0 36 $4,980 $4,980

TOTAL PROJECT COSTS
Principal-in-Charge Project Manager Consulting
Principal Community Planner Senior Project
Associate Project Associate Project Assistant
Sara Perez Rojas
MIG
Labor Totals
MIG
Direct
Costs
MIG, Inc.

SUBTOTAL
Professional
Fees
Totals
Esmeralda García Stephanie Lane
Pavón Kate Welty Genevieve Sharrow Brittney Lu-Jones
MIG, Inc. Client Name - Project Name | Fee Proposal
Estimated Project Cost

City of Duarte | Strategic Planning Services 25
In addition to the strategic plan examples described under Firm Experience in this proposal, we have provided examples of data collection forms and surveys similar to those we would propose for the Duarte Strategic Plan project. These examples located on the following pages incude:

Downey Forward 2030 Strategic Plan (see plan here)
» Downey City Council Interview Questions
Rosemead Strategic Plan (see plan here)
» Rosemead Community Visioning Survey
Omnitrans Strategic Plan 2021 – 2025 (see plan here)
» Omnitrans Employee Survey
Appendix – Additional Work Examples

Prepared by MIG, Inc.

City of Downey
2030 Strategic Plan
City Council Interview Questions

1. What is your vision for Downey over the next five – ten years?

2. Share your desired outcomes for the Strategic Planning process?

3. What does the city do well to ensure a great quality of life for the Downey community?

4. What are the greatest challenges facing the city over the next five to ten years?

5. What are the top three issues of greatest concern to the Downey community today?

6. What are the opportunities that the city should prioritize over the next five years?

Prepared by MIG, Inc. Rosemead Strategic Plan | Community Survey | 1 City of Rosemead 2030 Strategic Plan
Community Survey
We want to hear from you! Share your vision for what Rosemead should look like in 2030! By participating in this survey, you have an opportunity to win a prize.

The City of Rosemead has launched a process to develop a Strategic Plan for the city. The Strategic Plan describes the community vision for 2030 and will map out priorities and a timeline for realizing the vision over the next ten years.

1. What do you love most about Rosemead and what makes your community special? ________________________________________________________________________________ ________________________________________________________________________________

2. If you could change one thing in the City what would this be? ________________________________________________________________________________ ________________________________________________________________________________

3. What do you value most about Rosemead? (choose your top three) It is easy to get around
The City is safe
There are nice neighborhoods
There are great parks and recreation activities
There are great schools in the City
There are a diversity of businesses
There are plenty of services and programs for residents The City celebrates diversity
There are opportunities to get involved in my community It is a great place to bring visitors

Prepared by MIG, Inc. Rosemead Strategic Plan | Community Survey | 2 The City’s current Strategic Plan identifies strategy areas that were prioritized in the last ten years. In addition, city leaders have shared several topics that they think reflect some of the current key issues in Rosemead. In the section below, we want to hear from you about what you think are the most important issues. While all of these are important, the Strategic Plan that we build together will help the City prioritize its work to address the needs of the community.

Please choose your top two priorities in each question. If you think something else is more important, write it in the “other” section.

4. Safety: When I think about safety in my community, I think it is most important for the City to:
(Choose 2)
Address the increasing traffic in our neighborhoods
Deal with rising crime in our communities
Ensure that all residents feel safe and welcome
Make sure there are available resources to keep the community safe Other (please write it here): __________________________________________________

5. Local Economy: When I think about the local economy, I think it is most important for the City to:
(Choose 2)
Support small businesses recovering after COVID-19
Provide local job opportunities for Rosemead residents
Encourage developments with a mix of stores and housing along major City streets Recruit regional and national companies to locate stores in Rosemead Other (please write it here): __________________________________________________

6. Infrastructure: When I think about infrastructure, I think it is most important for the City to:
(Choose 2)
Fix and resurface City streets
Repair sidewalks and improve street crossings for all pedestrians including people with disabilities
Improve the availability of parking in the City
Create more greenspace throughout the City, such as more trees and street median gardens Other (please write it here): __________________________________________________

7. City Services: When I think about City Services, I think it is most important for the City to:
(Choose 2)
Provide quality services to the community
Expand recreational, cultural and arts programs
Maintain financial solvency and live within our means
Promote a culture of transparency
Other (please write it here): __________________________________________________

8. What else should be a priority for the city?
________________________________________________________________________________

Prepared by MIG, Inc. Rosemead Strategic Plan | Community Survey | 3

9. Taking the things you chose above that you care about, look forward ten years. Imagine that we are in the year 2030. What do you see in the City? What is your vision for the future of Rosemead? ________________________________________________________________________________ ________________________________________________________________________________ Tell us about yourself:

10. Do you live, work, or own a business or property in Rosemead?

SELECT ALL THAT APPLY
I live in Rosemead
I work in Rosemead
I work for the City of Rosemead
I own a business in Rosemead
I am a property owner in Rosemead
I do not live or work in Rosemead

11. Which category best describes your gender?
Male
Female
Non-Binary
I prefer not to say

12. How do you identify? Choose all that apply.

American Indian or Alaskan Native
Black or African American
East Asian or Asian American
Hispanic or Latino/a/x
Middle Eastern or North African
Native Hawaiian or Other Pacific Islander
South Asian or Indian American
White or Caucasian
Prefer not to answer
I prefer to self-identify. I am: _______________

13. What language(s) are spoken in your home? Choose all that apply.

Chinese
English
Korean
Spanish
Vietnamese
Other: _______________

Prepared by MIG, Inc. Rosemead Strategic Plan | Community Survey | 4

14. What is your age?
Under 17
18-24
25-34
35-44
45-54
55-64
65 or older

15. How do you hear about events in Rosemead?
Friends and Family
City Website
Social Media
At City Facilities
Other _______________________________________________

16. What is the best way for the City to communicate with you about services and upcoming events? ________________________________________________________________________________ ________________________________________________________________________________

17. Thank you for completing the survey, the information below will allow us to contact you about the raffle prize and will be kept separate from your survey responses.

Name _______________________________________________
Phone number _______________________________________________ Email _______________________________________________
Thank you for sharing your thoughts about the future of Rosemead! Visit the City of Rosemead’s website to learn more: https://www.cityofrosemead.org/

Omnitrans Strategic Plan Staff Survey
Omnitrans is updating its Strategic Plan, which will guide our organization in how we serve our community in the coming years. In this difficult time, updating our plan is a sign of our commitment to our community to be responsive, focused and effective in what we do.

As an Omnitrans team member, your input and ideas are important to developing our path forward. We need your help in defining our priorities, considering new ideas and innovations, and focusing for impact.

This plan will provide both an overarching direction for Omnitrans and provide all staff with operational guidance to ensure we are achieving our desired outcomes. This questionnaire is one of a few ways we will be engaging staff during this planning process.

Some questions below are multiple choice, while others are open-ended questions. Please be as concise as possible in writing your answers. It may take about 10 minutes to complete the questionnaire, depending upon how much detail you provide in some answers.

If you would like to fill out this survey online, please go to:
www.papersurvey.io/s/omnitransstrategicplan2020
Or scan the code below:

When you are done, please turn in this paper survey in the box in the Driver Assembly Room or the Maintenance Supervisors Office by Monday, May 4. 3717 0001
Omnitrans Strategic Plan
Staff Survey, April 2020

1. What is your understanding of Omnitrans' main purpose?

2. What are Omnitrans’ greatest strengths as an organization? (Choose up to 3.) Customer Service
Strong Staff/Teamwork
Effective Leadership
Adaptability
Use of Technology
Innovation/Forward Looking
Community Focused
Provides Frequent/Fast Service
Provides Service to All
Firm Financials
Great Place to Work
Low Cost Transportation
Other

3. How do you believe the current state of emergency will affect Omnitrans’ future? (List up to 3 beliefs.)

4. What do you believe are Omnitrans’ greatest challenges for the future? (Choose one or two.) Attracting and keeping transit customers
Competing against other transit agencies
Financing our services
Competing against other transportation modes (like Uber/Lyft, automated vehicles, etc.) Maintaining a stable workforce
Other
3717 0002
Omnitrans Strategic Plan
Staff Survey, April 2020

5. What do you believe is the biggest transportation challenge in the San Bernardino Valley? (Choose up to three.)
Traffic
Parking
Not enough bus routes or service frequency
Transit is not safe enough
Jobs are far from where people live
Pollution from automobiles
Streets and other infrastructure need repairs
Competition between transit modes, like bus and rail
Other

6. How do you think Omnitrans could be part of addressing these challenges and providing new solutions? (Choose one or more.)
Add later or earlier service
Add more frequent service
Add new types of services
Change our service routes
Add more micro transit options
Provide more links to rail, ride services and other modes of travel Other
Strongly Agree
Agree
Neither Agree or Disagree
Disagree
Strongly Disagree

7. I feel that Omnitrans successfully serves the community.

8. I think the community perceives Omnitrans positively. 3717 0003
Omnitrans Strategic Plan
Staff Survey, April 2020

9. What are the top three things that you think we can improve to ensure we serve our customers and community? (List up to 3 ideas below. Examples might include “use new technology” or “be more responsive” or other ideas.)

10. What do you appreciate most about working for Omnitrans? (Choose up to three.) Collaboration
Culture
Openness
Adaptability
Community
Work-life balance
Helping others
Schedule
Benefits
Stability
Growth opportunities
Other

11. What are you most proud of as an employee of Omnitrans? (List one thing.) Strongly Agree
Agree
Neither Agree nor Disagree
Disagree
Strongly Disagree

12. I think that Omnitrans culture is open, welcoming,
and supportive.
3717 0004
Omnitrans Strategic Plan
Staff Survey, April 2020

13. What are the top three things that you would change to improve Omnitrans as an organization? (List up to 3 things that you would change, such as “make faster decisions” or “improve communication“ or other ideas.)

14. What additional thoughts do you have about Omnitrans’ future direction? (Please write up to 100 words below.)
About You

15. Your Omnitrans division:

East Valley
West Valley

16. Your Omnitrans department:

Administrative Departments
Operations
Maintenance

17. Your length of service as an Omnitrans employee:
0 to 3 years
3 to 10 years
10 to 20 years
More than 20 years
Thank you
Thank you for participating in this questionnaire. Your input will assist Omnitrans in charting our future of continued service and positive impact.
3717 0005
Omnitrans Strategic Plan
Staff Survey, April 2020

AGENDA REPORT
MEETING DATE: February 11, 2025
TO: Mayor and Members of the City Council
BY: Annette Juarez, City Clerk
SUBJECT: Appointment of City Commissioners to Fill Existing Commission Vacancies
RECOMMENDATION: It is recommended that the City Council discuss and make appointments to fill existing Commission vacancies for four-year terms ending on February 28, 2029.

FISCAL IMPACT: None

BACKGROUND
Currently, there are 11 vacancies on the City’s Commissions. The application period for these vacancies was open from December 16, 2024 through January 16, 2025. A total of 16 applicants are scheduled to be interviewed to fill the existing vacancies.

DISCUSSION/ANALYSIS
The following Commission vacancies exist:

Planning and Economic Development Commission (formerly the Planning Commission) 2 positions
Parks and Recreation Commission
2 positions
Public Safety Commission
2 positions
Public Utilities, Communications & Technology Commission (formerly the Public Services Commission)
3 positions
Public Works & Traffic Safety Commission (formerly the Traffic Safety Commission) 2 positions
Agenda Item: 15.A.

2 RECOMMENDATION
It is recommended that the City Council discuss and make appointments to fill existing Commission vacancies for four-year terms ending on February 28, 2029.

FISCAL IMPACT
None.

ATTACHMENTS
None.

Fiscal Review: Reviewed and Approved:

Kristen Petersen Brian Villalobos
Assistant City Manager/ City Manager
Director of Administrative Services

AGENDA REPORT
MEETING DATE: February 11, 2025
TO: Mayor and Members of the City Council
FROM: Manuel Enriquez, Director of Parks and Recreation SUBJECT: Parks and Recreation Commission Recommendation to Approve the Development of a Community Garden at Tzeitel Paras-Caracci Park RECOMMENDATION: Staff recommends that the City Council approve the development of a community garden at Tzeitel Paras-Caracci Park and a budget amendment of $10,000 to cover the overage not funded by the California Urban Agriculture Grant Program.

FISCAL IMPACT: The grant award of $148,788 from the California Department of Food and Agriculture will fund most of the project’s costs through October 2026. A budget amendment of $10,000 is required to cover infrastructure costs from the Other Capital Improvements line (100- 1610-8100).

BACKGROUND
In 2023, in response to formal requests from residents, the City Council directed staff to explore the feasibility of establishing a community garden in one of the City’s public parks. Following this directive, staff began researching funding opportunities and ultimately chose to partner with Food Exploration and Discovery (Food Ed) to submit a grant application for California’s Urban Agriculture Grant Program, with the goal of securing funding to develop a community garden in Duarte.

In March 2024, staff informed the Council that out of 214 grant proposals, the City’s application was selected as one of 33 awarded projects under the Track 2 category of the California Department of Food and Agriculture (CDFA). The grant award totals $148,788, which will support the project’s infrastructure, equipment, technical assistance, workforce development, and community engagement and education through October 2026.

DISCUSSION/ANALYSIS
The goal of the Duarte Community Garden is to increase food sovereignty by creating garden plots for community members to grow healthy and culturally relevant food, to cultivate agricultural literacy by offering educational programs, to gather community by creating a welcoming and Agenda Item: 15.B.

2 accessible garden space, and to perform ecosystem services by removing grass, installing a sustainable drip irrigation system, building a native habitat garden, and collecting compost.

Originally, the Duarte Community Garden was envisioned as part of the Duarte Park Revitalization Project’s conceptual plan. However, in response to community input requesting a new parking lot, the final conceptual plan for Duarte Park was adopted without the community garden. With this change, City staff collaborated with the Parks and Recreation Commission to identify some alternative locations for the garden. Based on those alternative sites and after consulting with Food Ed, the Commission approved Tzeitel Paras-Caracci Park as the new location for the garden.

However, additional funds are now required to offset infrastructure costs, specifically for fencing.

This need arose when the garden's location was changed, as the original site plan did not include fencing on all four sides and therefore, this expense was not included in the proposed project budget.

The garden will feature 20 plots and two ADA-accessible raised beds, available for rent at $5 per month. Community members can plant edible (excluding smokable) plants and flowers for personal, noncommercial use. It will include a storage shed with garden tools, an irrigation system promoting sustainable practices, and ADA-accessible decomposed granite pathways. Food Ed’s educational model will support gardeners of all skill levels, providing supplies and plants for beginners while experienced gardeners can use their own resources. The garden will also offer picnic benches for community gatherings and host educational programs on topics like vegetable gardening, composting, drought-tolerant landscaping, and soil health.

Food Ed is a nonprofit organization collaborating with San Gabriel Valley communities and schools to construct and sustain edible education sites hosting programs on ecosystem stewardship, healthy living, and environmental innovation and entrepreneurship. As the lead on this grant project, Food Ed will be responsible for building the Duarte Community Garden, including overseeing site construction, collecting infrastructure bids, contractor management, program management, community engagement and workshops/events, processing plot holder applications, plant and soil replenishment, above ground irrigation repairs, developing the garden’s webpage and branding and overall garden management through October of 2026.

Once funding is exhausted, the City can retain Food Ed’s services for ongoing oversight and management of the garden, ensuring its continued success and vitality. These contracted services may include regular scheduled hours for garden upkeep, volunteer management, maintenance of tools and supplies, plot holder management and application processing, as well as monthly or quarterly community engagement workshops and events. Additionally, Food Ed could provide online content creation for the City’s dedicated garden webpage and social media platforms. For Food Ed’s annual management of the garden, service fees would range between $17K - $21K.

RECOMMENDATION
Staff recommends that the City Council approve the development of a community garden at Tzeitel Paras-Caracci Park and a budget amendment of $10,000 to cover the overage not funded by the California Urban Agriculture Grant Program.

3 FISCAL IMPACT
The grant award of $148,788 from the California Department of Food and Agriculture will fund most of the project’s costs through October 2026. A budget amendment of $10,000 is required to cover infrastructure costs from the Other Capital Improvements line (100-1610-8100).

ATTACHMENTS
A. Community Garden Design Concept
Fiscal Review: Reviewed and Approved:

Kristen Petersen Brian Villalobos
Assistant City Manager/ City Manager
Director of Administrative Services

Conceptual Design | Duarte Community Garden
Option 1
Option 2

Conceptual Design | Duarte Community Garden
Option 1
Option 2

Conceptual Design | Duarte Community Garden
Option 1
Option 2

AGENDA REPORT
MEETING DATE: February 11, 2025
TO: Mayor and Members of the City Council
FROM: Brian Villalobos, City Manager
BY: Andres Rangel, Assistant to the City Manager
SUBJECT: Receive and File the Completed Broadband Assessment Study RECOMMENDATION: It is recommended that the City Council receive and file the completed Citywide Broadband Assessment Study.

FISCAL IMPACT: There is no direct financial impact related to this item.

BACKGROUND
The City Council, recognizing the importance of reliable, fast, and affordable internet, directed staff to study internet availability and work on closing the community’s digital divide.

On July 1, 2022, Assemblymember Blanca Rubio secured $200,000 from the State so that Duarte can develop a Broadband Access and Connectivity Infrastructure Assessment, which was formally approved by the City Council at its April 11, 2023, City Council meeting.

The City awarded an agreement to Magellan to prepare the assessment. The scope of the assessment was to develop a gap analysis, identifying key issues and barriers related to addressing reliable, equitable, and affordable broadband access as well as including recommendations to fill those gaps. The gap analysis included conducting the following tasks:
• Comprehensive asset inventory of broadband assets.
• Market analysis identifying the services available to businesses and residents, as well as service pricing.
• Needs assessment including an online broadband survey of services residents and businesses currently have, an embedded speed test, and use of services. Interviews and workshops will also be hosted by Magellan with key community organizations to gain a better understanding of current and future broadband and technology needs and issues. • Recommended next steps.

DISCUSSION/ANALYSIS
The Broadband Access and Connectivity Infrastructure Assessment focused on the following key elements:

Agenda Item: 15.C.

2 • Broadband Market Assessment
• Asset assessment
• Needs assessment
• City Policy Assessment
• Gap Analysis
• Conceptual network design
• Phased implementation plan
• Business model evaluation
Key findings highlighted in the Study include the following:
• 98% of residential addresses within the city have access to gigabit download speeds from Charter/Spectrum’s cable network.
• 55% of addresses have access to multi-gigabit symmetrical broadband from Frontier’s fiber network.
• 5G Cellular phone and data service is available in portions of the city. Coverage gaps in certain areas was a recurring issue in focus groups and survey feedback. • Although survey results indicate that Duarte has broadband services comparable to other mid-sized cities, customers report frustrations with cost, performance, and lack of competitive options. Cable dominates internet access.

Further gaps that were identified include the following:
• No City Broadband Strategy or Funding: The City does not have policies or funds allocated to encourage or invest in broadband at present. • Limited Fiber Reach: The City uses commercial internet services for connectivity within its own facilities because it has no fiber backbone of its own. Fiber providers within the city only reach 55% of the entire city area.
• Limited Competition: With fiber only available to 55% of city addresses, nearly half the city lacks the option to switch to a different gigabit provider, leading to paying more for less service.
• Wireless Coverage Gaps: The wireless infrastructure in Duarte has significant coverage gaps, due to limited deployment of advanced technologies like 5G.

Community Survey Findings
Part of the needs assessment included an online survey to collect data on broadband services received by Duarte residents, businesses and organizations. The survey was made available to the community at large and was promoted by the City for all members of the community to share their experiences. In addition to questions about location, services subscribed to and demographic data, the survey also included an internet speed test to collect objective data on broadband performance.

The survey was officially launched on February 6, 2024, and remained open through May 6, 2024.

A survey received 551 usable responses. Survey highlights are below:

3 Reported Speeds
Reported Outages
The geographic distribution of survey responses by speed. The low number of responses indicating service levels above 500 Mbps are often seen in a cable dominant market with a lack of competitive options.

Approximately 22% of all respondents indicated a daily slowdown or brief outage in service.

Longer service outages lasting one hour, or more, were reported on a monthly basis for nearly one third of all respondents. Sixty four percent of all respondents indicate service outages for several hours to a day or more at least once per year.

4 Dissatisfaction Levels
Price was the most common source of dissatisfaction among respondents, with 63% indicating they were either, very, or somewhat dissatisfied. Speed, reliability, and overall satisfaction levels were comparable. Respondents were most likely to be ambivalent about support.

Next Steps
Based on the City’s size and limited resources, Magellan provided the following recommendations the City could implement to address issues identified. A major component is working with the San Gabriel Valley Council of Governments and neighboring cities to expand Duarte’s broadband infrastructure.
• Adopt a Broadband Strategy for the City: Use this plan to create a plan for continuous broadband improvement within the City.
• Implement Broadband Friendly Policies: Broadband-friendly policies and initiatives play a pivotal role in facilitating the deployment of new infrastructure and capabilities while minimizing costs through efficient coordination between departments, public agencies, and utilities. Policies include ‘Dig Once’ and ‘Joint-Trench’. • Adoption of a small cell ordinance, a Master License Agreement and 5G application checklist: Cities that make it easy for cellular infrastructure installation. It attracts private investment and improves services.
• Implement a “Consumer Choice of Broadband Provider” ordinance for MDUs:

Oakland’s model ordinance ensures broadband choice is extended to multi-tenant households for apartment renters and condo-owners.
• Technology Enterprise Fund: Implement a fund dedicated to supporting and financing broadband infrastructure projects within Duarte.
0%
5%
10%
15%
20%
25%
30%
35%
40%
45%
Overall Speed Price Reliable Support
Very satisfied Somewhat satisfied Neither/Not sure

5 • Participate in Regional Broadband Efforts: Collaborate with your Council of Governments and Neighboring Cities regional efforts to improve broadband and keep abreast of funding opportunities.

The Study also presented a conceptual network design, a theoretical 10.8-mile backbone network.

Additionally, the Study identifies several business models, with a recommendation for Duarte to pursue implementation through public policy, coordinating with internet service providers (ISPs) to realize the design, and working with regional and neighboring partners to pursue and participate in broadband deployment grants and projects.

RECOMMENDATION
It is recommended that the City Council receive and file the completed Citywide Broadband Assessment Study.

FISCAL IMPACT
There is no direct financial impact related to this item.

ATTACHMENTS
Broadband Assessment Study
Fiscal Review: Reviewed and Approved:

Kristen Petersen Brian Villalobos
Assistant City Manager/ City Manager
Director of Administrative Services

Broadband Access and
Connectivity Infrastructure
Assessment

FULL REPORT
City of Duarte, California
January 8th, 2025

Table of Contents
Executive Summary ...................................................................................................... 11 Findings ............................................................................................................... 11 Broadband Service Offerings ............................................................................. 11 Broadband Assets ............................................................................................. 14 Needs Assessment ............................................................................................ 15 Gaps Identified .................................................................................................. 16 Recommendations ................................................................................................ 17

1. Market Assessment ................................................................................................ 18 Overview .............................................................................................................. 18 Methodology......................................................................................................... 20 Results................................................................................................................. 21 Wireline Internet Service Providers .................................................................. 22 Charter (Spectrum)............................................................................................ 22 Frontier Communications ................................................................................... 25 Fixed Wireless Access (FWA) Providers........................................................... 30 AT&T Internet Air............................................................................................... 31 T-Mobile............................................................................................................ 32 Verizon Wireless ............................................................................................... 32 Mobile Coverage .................................................................................................. 33

2. Asset Assessment .................................................................................................. 35 Overview .............................................................................................................. 35

Methodology......................................................................................................... 36 Public Infrastructure ............................................................................................. 36 City Communications Network ........................................................................... 37 Buildings and Facilities ...................................................................................... 37 Street Light Poles .............................................................................................. 40 Traffic Signals .................................................................................................... 42 California Middle-Mile Broadband Initiative (MMBI)......................................... 44

3. Private Infrastructure .............................................................................................. 46 Metro Fiber ......................................................................................................... 46 Long Haul Fiber.................................................................................................. 47 Data Centers ........................................................................................................ 48 Vertical Communication Assets ......................................................................... 49 Conclusions & Implications ................................................................................... 50

4. Needs Assessment................................................................................................. 50 Overview .............................................................................................................. 50 Methodology......................................................................................................... 51 Results................................................................................................................. 52 Business and Industry Focus Group ...................................................................... 52 Healthcare Focus Group ....................................................................................... 53 Education, Social Services, and Non-Profit Focus Group ....................................... 54 In Person Focus Group ......................................................................................... 55 City Staff Meetings ............................................................................................... 55

5. Survey .................................................................................................................... 56 Conclusions and Implications ................................................................................ 56 Methodology......................................................................................................... 57 Results................................................................................................................. 58 Responses / Demographics................................................................................... 58 Internet Services .................................................................................................. 60 Connection Performance and Costs ...................................................................... 62 Internet Service Providers and Costs .................................................................... 64 Uses of Broadband ............................................................................................... 67 Sentiments of Broadband...................................................................................... 69 Catch-All and follow-up ......................................................................................... 71

6. City Policy Assessment .......................................................................................... 75 Methodology......................................................................................................... 75 Conclusions.......................................................................................................... 75 Federal and State Broadband Policy ..................................................................... 77 City of Duarte Plans and Policies .......................................................................... 82 FCC Wireless Policies .......................................................................................... 85 Wireless Policy in Duarte ...................................................................................... 90 Additional FCC Matters ......................................................................................... 92

7. Gap Analysis .......................................................................................................... 97 Overview .............................................................................................................. 97 Findings ............................................................................................................... 99

Broadband Accessibility Gaps ............................................................................. 100 Gaps in Public Broadband Service and Infrastructure .......................................... 104 Current Status: ................................................................................................... 104 Recommendations: ............................................................................................. 108

8. Conceptual Network ............................................................................................. 109 Conclusions and Implications .............................................................................. 109 Methodology....................................................................................................... 110 Results............................................................................................................... 111 Conceptual Network Design ................................................................................ 111 Network Passings Analysis .............................................................................. 115 Construction Cost Estimates ............................................................................ 116

9. Business Model Evaluation................................................................................... 117 Methodology....................................................................................................... 117 Results............................................................................................................... 118 Business Model Options ..................................................................................... 119 Financial Analysis............................................................................................ 129 Business Model Recommendation.................................................................... 135

10. CIP Opportunities .............................................................................................. 136

11. Funding Sources ............................................................................................... 137 BOND AND OTHER DEBT FINANCING............................................................... 137 General Obligation Bonds ................................................................................ 137 Revenue Bonds ............................................................................................... 137 Private Activity Bonds ...................................................................................... 137

SPECIAL TAXING DISTRICTS............................................................................ 138 GRANTS ............................................................................................................ 139 OPPORTUNISTIC DEVELOPMENT..................................................................... 144 PRIVATE INVESTMENT ..................................................................................... 145 REVENUE FROM SERVICES ............................................................................. 145

12. Nutrition Labels ................................................................................................. 147 Charter (Spectrum).......................................................................................... 147 Frontier ........................................................................................................... 148 Fixed Wireless (FWA) Providers.......................................................................... 153 Verizon ........................................................................................................... 153 T-Mobile.......................................................................................................... 154 Figure 1. Wired Broadband Availability Map ............................................................. 12 Figure 2. Metro Fiber Networks ................................................................................ 13 Figure 3. All Cell Providers Coverage Map ............................................................... 14 Figure 4. Survey Respondents - Technology Used.................................................... 16 Figure 5. Broadband Provider Service Areas ............................................................ 19 Figure 6. Location of Sites Tested for Data Services Offered .................................... 22 Figure 7. Hybrid Fiber-Coax Network Architecture .................................................... 23 Figure 8. Charter (Spectrum) Cable Footprint in Duarte ............................................ 24 Figure 9. DSL Network Architecture.......................................................................... 26

Figure 10. Frontier DSL Network & Coverage ........................................................... 27 Figure 11. Passive Optical Network (PON) Fiber Network Architecture ...................... 28 Figure 12. Frontier Fiber Footprint Network & Coverage ........................................... 29 Figure 13. Frontier DSL & Fiber Coverage ................................................................ 30 Figure 14. Cellular Wireless Network Architecture .................................................... 31 Figure 15. Functionality of a Fixed Wireless Network ................................................ 31 Figure 16. AT&T 5G Coverage ................................................................................. 34 Figure 17. T-Mobile 5G Coverage............................................................................. 34 Figure 18. Verizon 5G Coverage .............................................................................. 35 Figure 19. Public Facilities and Private Towers......................................................... 38 Figure 20. City Street Lights & Poles ........................................................................ 41 Figure 21. Signalized Intersections........................................................................... 43 Figure 22. California Planned Middle-Mile Project (MMBI) ..................................... 45 Figure 24. Metro Fiber Networks in Duarte ............................................................... 46 Figure 25. Long Haul Fiber Networks in Duarte......................................................... 47 Figure 26. Tier 1 Inter-Exchanges and Long-Haul Routes to Duarte .......................... 49 Figure 27. The numbers of 551 responses by completeness and location type .......... 58 Figure 28. Occupation by Percentage of the 278 Respondents.................................. 59 Figure 29. Level of Education by Percentage of the 278 Respondents....................... 59 Figure 30. Type of internet service by percentage of 550 responses ......................... 60 Figure 31. Locations of 550 survey responses by type of internet connection ............ 61

Figure 32. Percentage of 322 responses by throughput ranges ................................. 63 Figure 33. Perceptions of service reliability as a percentage of 303 responses .......... 63 Figure 34. Locations of 322 responses by internet connection speed ........................ 64 Figure 35. Broadband service provider by percentage of 342 responses ................... 65 Figure 36. Number of services taken by percentage of 354 responses....................... 66 Figure 37. Additional services received from broadband provider by type .................. 66 Figure 38. Frequency of use of internet by percentage from 278 responses............... 67 Figure 39. Number of people using the internet at home for remote work with 274 responses................................................................................................................ 68 Figure 40. Percentage of 278 responses by mix of sources for video content ............ 69 Figure 41. Percentage importance of various aspects of broadband services based on 300 responses ......................................................................................................... 70 Figure 42. Level of satisfaction with key performance indicators for internet services by percentage of 302 responses ................................................................................... 71 Figure 43. Summary of 103 comments from respondents .......................................... 72 Figure 44. Method to receive broadband related information ..................................... 74 Figure 45. Duarte broadband serviceable locations................................................. 100 Figure 46. Proposed Conceptual Design................................................................. 113 Figure 47. Factors to Consider when Choosing a Broadband Business Model ......... 118 Figure 48. Broadband Business Models Differing Levels of Control and Investment . 119 Figure 49. Transport Networks Architecture ............................................................ 124 Figure 50. Passive Optical Network (PON) Architecture .......................................... 126

Figure 51. Proposed Conceptual Design................................................................. 132 Figure 52. Average Annual Operating Expenses Estimate....................................... 133 Figure 53. Start-Up Capital Expense Estimate ........................................................ 134 Table 1 – Sites Tested for Providers & Service Tiers ................................................ 21 Table 2. Charter (Spectrum) Residential Tiers & Rates ............................................. 25 Table 3. Frontier Residential Rates & Tiers .............................................................. 27 Table 4. Frontier Residential Fiber Tiers & Rates...................................................... 29 Table 5. AT&T Wireless Internet Packages ............................................................... 32 Table 6. T-Mobile Wireless Internet Packages .......................................................... 32 Table 7. Verizon Wireless Internet Packages ............................................................ 33 Table 8. Public Sites with a Need for Broadband Connectivity ................................... 39 Table 9. Basic Demographic Statistics for Duarte Compared to Survey Responses.... 59 Table 10. Cost and performance statistics by type of broadband connection.............. 62 Table 11. Average costs and performance by internet service provider for 371 responses................................................................................................................ 65 Table 12. Monthly recurring cost statistics for all services and broadband only .......... 66 Table 14. Sites Connected to City Backbone Network in Conceptual Design............ 111 Table 15. Sites by Build Phase............................................................................... 114 Table 16. Phased Implementation Plan Distance Summary ..................................... 114 Table 17. Addresses Located within 175' of Conceptual Backbone Design .............. 115

Table 18. Estimated Construction Cost by Phase.................................................... 116 Table 19. Addresses Located within 175' of Conceptual Backbone Design .............. 130

Executive Summary
Communities around the world are faced with a digital world where broadband is often considered a public utility – similar to water and power. The shift to online learning, remote work, telehealth/medicine, e-commerce, automation of services, autonomous vehicles, and advances in technology require a long-term vision for how a community can thrive and grow. The foundation for the digital world is fiber optic networks that can provide the high-speed, low latency connectivity required for advanced applications and uses.

ENTRUST Solutions Group was contracted by the City to undertake a Broadband Access and Connectivity Assessment to help improve access and affordability to highspeed internet service for community members, businesses, and efficient delivery of City services. ENTRUST’s scope of work included:
• Broadband Market Assessment
• Asset assessment
• Needs assessment
• City Policy Assessment
• Gap Analysis
• Conceptual network design
• Phased implementation plan
• Business model evaluation
Findings
Broadband Service Offerings
98% of residential addresses within the city have access to gigabit download speeds from Charter/Spectrum’s cable network.
55% of addresses have access to multi-gigabit symmetrical broadband from Frontier’s fiber network.

Figure 1. Wired Broadband Availability Map
Private fiber networks from Crown Castle, Zayo and others are accessible along several major routes throughout the city.

Figure 2. Metro Fiber Networks
5G Cellular phone and Data service is available in portions of the city. Coverage gaps in certain areas was a recurring issue in focus groups and survey feedback.

Figure 3. All Cell Providers Coverage Map
Broadband Assets
The City does not currently own fiber, conduit or publicly owned towers that could be repurposed to address broadband challenges.

The City’s streetlight poles could be made available to Cellular providers to improve phone and data service within the city.

Needs Assessment
Figure 4. Survey Results Summary
Survey results indicate that Duarte has broadband services comparable to other midsized cities. Customers report frustrations with cost, performance, and lack of competitive options. Cable dominates internet access. The incumbent cable company offers internet access at a higher cost than other options. Where available, residents with Fiber Broadband access receive a better value with substantially higher speeds at lower prices. Other providers, including cellular companies, have minimal market presence. Internet performance and costs in Duarte are comparable to other areas with limited broadband competition. 45% of the city lacks the benefits of a truly competitive environment that are better able to meet residents' needs.

Figure 5. Survey Respondents - Technology Used
Cable Modem Mobile cellular wireless Digital Subscriber Line Fixed wireless Enterprise Internet Fiber optic
Satellite No internet access Other-Write In
Unsure/don’t know No data provided
Gaps Identified
No City Broadband Strategy or Funding: The City does not have policies or funds allocated to encourage or invest in broadband at present.

Limited Fiber Reach: The City uses commercial internet services for connectivity within its own facilities. Fiber providers within the city only reach 55% of the entire city area.

Limited Competition: With fiber only available to 55% of city addresses, nearly half the city lacks the option to switch to a different gigabit provider.

Wireless Coverage Gaps: The wireless infrastructure in Duarte has significant coverage gaps, due to limited deployment of advanced technologies like 5G.

Recommendations
Adopt a Broadband Strategy for the City: Use this plan to create a plan for continuous broadband improvement within the City.

Implement Broadband Friendly Policies: Broadband-friendly policies and initiatives play a pivotal role in facilitating the deployment of new infrastructure and capabilities while minimizing costs through efficient coordination between departments, public agencies, and utilities. Policies include ‘Dig Once’ and ‘Joint-Trench’.

Adoption of a small cell ordinance, a Master License Agreement and 5G application checklist: Cities that make it easy for cellular infrastructure installation attracts private investment and improves services.

Include Broadband Infrastructure Planning in all CIP: Opportunistic placement of conduit when upgrading roads, sidewalks, traffic signals and other infrastructure is a low-cost way to create opportunities for broadband improvement and is a recommended course of action.

Implement a “Consumer Choice of Broadband Provider” ordinance for MDUs:

Oakland’s model ordinance ensures broadband choice is extended to multi-tenant households for apartment renters and condo-owners.

Technology Enterprise Fund: Implement a fund dedicated to supporting and financing broadband infrastructure projects within Duarte.

Participate in Regional Broadband Efforts: Collaborate with your Council of Governments and Neighboring Cities regional efforts to improve broadband and keep abreast of funding opportunities.

Where possible, Build Public Broadband Assets: Transitioning city facilities from private broadband services to public infrastructure saves money in the long term and enables the city to participate in local solutions to broadband problems.

Conclusion
Duarte has broadband challenges that can be mitigated through local government action. Undertaking this study represents the first step towards understanding the situation and setting a plan in motion to remedy many of the issues identified. This study recommends a series of incremental changes to internal city policies and municipal codes that will gently shift the city towards a greater role in its own broadband future. Small, steady changes are the recommended path forward.

1. Market Assessment
Overview
ENTRUST analyzed the broadband landscape of The City of Duarte to determine the options available to residents, businesses, and organizations. First, we evaluated service offerings by incumbent internet service providers (ISPs) in the City of Duarte, with a particular focus on facilities-based carriers, or those that own their own physical infrastructure including fiber, copper, coaxial cable, or fixed wireless equipment. The evaluation included pricing, service tiers, access, and market division utilizing public data such as the updated 2023 FCC Broadband Map, previous studies and reports, carriers’ websites, and ENTRUST’s extensive database and knowledge of the broadband environment. ENTRUST also contacted the ISPs and had direct conversations to better understand their strategy in the City.

Most of the City is considered “well-served” by federal and California state standards with access to gigabit download speed from at least on provider. However, most residents have only a single option for broadband internet service and are essentially subject to a cable monopoly. Referring to Figure 1 below, locations shown in purple have a choice of either cable or fiber. Other colors have only one broadband service option – generally cable.

Figure 6. Broadband Provider Service Areas
Frontier provides legacy copper-based service for a small portion of the city, and that technology is not capable of meeting State of California’s broadband standard. Frontier also provides fiber-to-the-premises (FTTx) services to approximately half of the City.

This means that about half of the City is effectively a Charter/Spectrum monopoly and uncompetitive for City residents seeking broadband service.

Although Charter’s hybrid fiber-coax cable network is capable of gigabit download speeds, cable technology cannot currently offer high-speed upload capabilities, maxing out at just 35 Mbps. Gigabit upload speeds are becoming more essential for modern

communications, and are required for video (e.g., Zoom) and other applications used frequently by remote work, online learning, and telehealth platforms.

There are no committed plans by the incumbent broadband providers to expand or upgrade their services.

Frontier has not committed to a specified plan to expand their FTTx network, which leaves about half of the City without a competitive choice. Charter has they plan to begin upgrading their cable technology in the next three (3) years to equipment capable of higher upload speeds, but the roll-out is nationwide and there are no commitments for timing specific upgrades in the City of Duarte.

Without expansion and upgrades by the incumbents, or market entry by a new competitor that brings FTTx services, Duarte will not have a competitive marketplace that can support the needs of residents and businesses.

Fixed wireless access options are present in the market but do not provide a competitive option as compared to the wireline providers.

Fixed wireless providers have been attempting to break into the broadband market across the nation. Current wireless technology cannot guarantee or sustain gigabit download and upload speeds to a given home or business premise. This variability leads us to conclude that while present in the market, fixed wireless does not offer a broadband product that is comparable to the wireline providers.

Methodology
ENTRUST analyzed the broadband landscape of The City of Duarte to determine the options available to residents, businesses, and organizations. First, we evaluated service offerings by incumbent internet service providers (ISPs) in the City of Duarte, with a particular focus on facilities-based carriers, or those that own their own physical infrastructure including fiber, copper, coaxial cable, or fixed wireless equipment. The evaluation included pricing, service tiers, access, and market division utilizing public data such as the updated 2023 FCC Broadband Map, previous studies and reports, carriers’ websites, and ENTRUST’s extensive database and knowledge of the broadband environment. ENTRUST also contacted the ISPs and had direct conversations to better understand their strategy in the City.

Results
As part of Entrust’s research validation process, the actual services available to 20 randomly selected addresses from different parts of the city were checked against the FCC Broadband Map and verified against the provider’s own website location service portal.

Table 1. Sites Tested for Providers & Service Tiers
Address Charter
(Spectrum) Frontier AT&T Internet Air T-Mobile Verizon
Huntington Drive Cable DSL Wireless Wireless
Cinnamon Lane Cable Fiber
Broadland Ave Cable Fiber Wireless Wireless
Huntington Drive Cable
Opal Canyon Road Cable Wireless
Fernley Drive Cable Wireless Wireless Wireless
Portola Drive Cable Wireless
Spinks Canyon Road Cable Fiber Wireless
Hacienda Drive Cable Wireless Wireless Wireless
Park Rose Avenue Cable
Huntington Drive Cable DSL Wireless Wireless
Central Avenue Cable Wireless Wireless Wireless
Flower Avenue Cable Wireless
Buena Vista Street Cable DSL Wireless
Park Rose Avenue Cable Wireless Wireless
Fairwood Street Cable Fiber Wireless Wireless Wireless
East Second Street Cable
Maynard Drive Cable Fiber Wireless Wireless Wireless
Rancho Road Cable Wireless Wireless Wireless
Royal Oaks Drive Cable Fiber Wireless

Figure 7. Location of Sites Tested for Data Services Offered Wireline Internet Service Providers
Charter (Spectrum)
Charter is the second largest ISP in the U.S with 2022 revenues of $54 billion and 32 million customers, predominantly residential, which Charter markets under the Spectrum brand. They also have a total of 5.3 million Mobile 5G customers.

Charter’s network is based on a Hybrid Fiber-Coaxial Cable (HFC) architecture, which includes a fiber backbone, typically laid out in a ring, with coaxial (coax) cable for last mile distribution, as illustrated in Figure 2. HFC broadband networks are designed to send large amounts of data from the network to the end point such as the home. While HFC networks can provide download speeds in excess of 1 Gbps, the networks are currently limited to a maximum upload speed of only 35 Mbps.

Figure 8. Hybrid Fiber-Coax Network Architecture
As the legacy cable company, Charter has wide coverage of the City’s residential market through their HFC network, as shown in Figure 3.

Figure 9. Charter (Spectrum) Cable Footprint in Duarte
While Charter’s HFC network is generally capable of delivering gigabit download speeds to its residential and small business market, these speeds, latencies, upload limitations, and service level agreements may not be sufficient for enterprise-level businesses or institutional anchors.

Charter’s offerings in the City are based on the DOCSIS 3.1 standard (Data Over Cable Service Interface Specification specifies how data is transmitted over the HFC network). With DOCSIS 3.1, download data rates of over 1 Gbps can be achieved.

However, the upload data rate is limited to approximately 35 Mbps. HFC networks are a shared network, so the actual real-time performance will vary based on the number of actual users on at any given time. Consumer rates are “best effort,” which is why ISPs

add the phrase “up to” when specifying data rates. Charter’s advertised residential rates (Table 2) were asymmetrical (different download and upload speeds) and offered a limited-term promotional rate.

Table 2. Charter (Spectrum) Residential Tiers & Rates
Download
Speed1
Upload
Speed
Promotional
Monthly Rate
Promotional
Term
300 Mbps 10 Mbps $ 50 1 year
500 Mbps 25 Mbps $ 70 1 year
1 Gbps 35 Mbps $ 90 1 year
Charter, and the entire cable industry, are waiting for the next generation cable modem technology from CableLabs (DOCSIS 4.0) which supports downstream data rates of 10 Gbps and upstream rates approaching 6 Gbps. The systems incorporating the new technology are now expected to first launch in 2025 with national deployments taking upward of 5 years.

As part of the 4.0 migration, upgrades in the outside plant electronics are required.

Charter has completed most of this upgrade and will soon be offering a 2 Gbps service with upstream data rates targeted at 100s of Mbps. This is an interim solution that will reduce the speed gap between their HFC network and full fiber networks. In addition to the DOCSIS 4.0 upgrade, Charter is deploying 10 Gbps XGS-PON fiber infrastructure in new development. Charter initially planned to complete its DOCSIS 4.0 upgrade by 2025. However, Charter recently announced that the target completion date has been pushed to 2026. 2 The delay is primarily due to the certification process for Distributed Access Architecture (DAA) equipment, which has taken longer than expected.

Frontier Communications
Frontier is a large US-based telecommunications company that has undergone numerous acquisitions, mergers, and divestitures. It was originally founded in 1935. In the early 1990s, it began acquiring rural telephone lines from providers around the country. Frontier provides DSL and Fiber service within the City and throughout the 1 All speeds for Charter’s services – download and upload – are advertised as “up to” maximum speeds, depending on network congestion, time of day, location, etc. 2 Diana Goovaerts. “Charter just pushed back its DOCSIS 4.0 timeline – here’s why.” FierceNetwork.com, Feb 2, 2024

San Gabriel Valley Area. Its fiber footprint is most prevalent in areas west of the 605 Freeway and along the 210 Freeway from the cities of Claremont to Sierra Madre.

Figure 10. DSL Network Architecture

Figure 11. Frontier DSL Network & Coverage
The data rates supported by DSL depend on the length of the copper wire and DSL deployed, but rarely exceed 25-35 Mbps download and 3-5 Mbps upload speeds.

These DSL speeds do not meet the California minimum standards of 100 Mbps/25 Mbps and cannot meet the speeds or service levels required by most businesses. In addition to DSL providing inferior speeds, its pricing is not competitive, as shown in Table 3.

Table 3. Frontier Residential Rates & Tiers
Download
Speed
Upload
Speed
Promotional
Term
Promotional
Monthly Rate
Extras
Unverified
until service
installation
Unverified
until
installation
2 years $ 74 No data caps
$64 monthly autopay

In Duarte, Frontier has upgraded their copper plant to fiber in many parts of the City.

This Passive Optical Network (PON) fiber-to-the premises architecture allows for symmetrical (identical download and upload) speeds of up to 10 Gbps.

Figure 12. Passive Optical Network (PON) Fiber Network Architecture Based on reported data to the FCC in 2023, Frontier provides Fiber broadband service to approximately 50% of the City’s addresses (residential and commercial) as noted in Figure 12. Some of the remaining locations Frontier connects, are still using legacy copper to provide dated DSL-based offerings. The vast majority of Frontier’s network consists of fiber service as depicted in Figure 13. Frontier has stated they have passed over 5 million service locations with fiber throughout their national rollout and their corporate plan is to pass 10 million locations by 2025. 3 Frontier’s advertised pricing tiers for fiber services are listed in Table 4. 3 Murray, C. (2022). “Frontier Hits Halfway Point to 10 Million Fiber Locations” https://investor.frontier.com/news/news-details/2022/Frontier-Hits-Halfway-Point-to-10-MillionFiber-Locations/default.aspx

Figure 13. Frontier Fiber Footprint Network & Coverage
Table 4. Frontier Residential Fiber Tiers & Rates
Download
Speed
Upload
Speed Monthly Rate Price Guarantee
200 Mbps 200 Mbps $ 29.99 1 year
500 Mbps 500 Mbps $ 44.99 1 year
1 Gbps 1 Gbps $ 64.99 1 year
2 Gbps 2 Gbps $ 99.99 Auto-Pay
5 Gbps 5 Gbps $ 129.99 1 year

Figure 14. Frontier DSL & Fiber Coverage
Fixed Wireless Access (FWA) Providers
In recent years, the mobile network operators (MNO) T-Mobile, Verizon, and to a lesser extent AT&T have started offering internet access using their 5G networks to fixed locations.

Figure 15. Cellular Wireless Network Architecture
In addition, Wireless Internet Service Providers (WISPs) are increasingly utilizing point-to-point “air fiber” antennas, Citizen Band Radio Service (CBRS), and other wireless technology to provide broadband access for residences and businesses.

Figure 16. Functionality of a Fixed Wireless Network
The concept of wireless internet access is not new; it is widely used in rural environments, and is increasingly being deployed in dense, urban areas where traditional fiber construction and deployment costs are too high to justify market entry.

Data rates for wireless broadband will depend on several parameters including distance from the tower, population density, and natural obstacles (geography/hills, trees, foliage).

AT&T Internet Air
AT&T Internet Air is a newer 5G based fixed wireless service similar to the 5g services of other providers. AT&T looks to transition existing customers off DSL as it continues to roll out its fiber plans. It has no data caps, equipment fees, or landline connections.

It has limited availability based on location and speeds of up to 225Mbps. AT&T may reduce data speeds depending on network activity. 4
Table 5. AT&T Wireless Internet Packages
Package
Max
Download
Speed
Max
Upload
Speed
Monthly
Rate Notes
AT&T Internet Air 225 Mbps 30 Mbps $ 55 Unlimited data
No annual contract
T-Mobile
T-Mobile provides 5G and 4G LTE fixed wireless services to households across all 50 states in the U.S. Its residential plans' main features include contract-free services and unlimited data access. The typical download speeds it offers are between 33-182 Mbps and may vary according to location, time of the day, weather, and other factors. 5 Table 6. T-Mobile Wireless Internet Packages
Package
Max
Download
Speed
Max
Upload
Speed
Monthly
Rate Notes
5G Home Internet 182 Mbps 23 Mbps $ 50 Unlimited data
No annual contract
Verizon Wireless
Verizon’s 5G Home internet services are an affordable solution with faster speeds than satellite and DSL type of connections. Verizon offers unlimited data and contract-free plans, but speeds may vary based on a location’s distance to its network towers and real-time network traffic. 6
4 www.att.com/internet/internet-air
5 www.t-mobile.com/buy/plan/home-internet
6 www.verizon.com/home/internet/faq

Table 7. Verizon Wireless Internet Packages
Package
Max
Download
Speed
Max
Upload
Speed
Monthly
Rate Notes
LTE Home
Internet 50 Mbps 5 Mbps $ 25 Unlimited dataNo annual contract 5G Home Internet 300 Mbps 50 Mbps $ 60
Unlimited data
10-year price
guarantee
Mobile Coverage
According to the Federal Communications Commission (FCC), the City of Duarte is well covered with 4G mobile offerings from the three major U.S. mobile operators:

AT&T, Verizon, and T-Mobile. However, verified FCC data for 5G service shows limited coverage, similar to most cities in California of similar size. Most 5G rollout to date has occurred in cities with dense populations, with deployment into suburban areas slowly rolling out when demand exceeds 4G/LTE capabilities. Figure 16, Figure 17, and Figure 19 show areas with verified 5G coverage for the three major carriers. 7 7 FCC coverage data accessed through coveragemap.com

Figure 17. AT&T 5G8 Coverage
Figure 18. T-Mobile 5G Coverage9
8 https://coveragemap.com/coverage-map/att
9 https://coveragemap.com/coverage-map/t-mobile

Figure 19. Verizon 5G Coverage10

2. Asset Assessment
Overview
As part of this broadband assessment, Entrust/Entrust inventoried and assessed public and private infrastructure to determine what was available, what condition was it in, whether and how it connects to the internet at present, and could it be used to expand broadband access and services in Duarte.

Entrust/Entrust identified infrastructure within Duarte that can be leveraged for broadband – whether existing conduit and fiber cable pathways to connect facilities and neighborhoods, locations in the public sphere or right-of-way to host distribution equipment, opportunities to deploy smart city devices and applications, or integration of public and private assets in innovative partnerships. There were several key assets that stood out during the assessment, including:
10 https://coveragemap.com/coverage-map/verizon

There are a number of private fiber networks that traverse major corridors within the city.
23 public and anchor institution facilities are located within the city, most of which are connected to the internet using commercial internet services.

The City owns and manages 698 street light poles, which could be used to deploy broadband and/or smart city applications via wireless or cellular connectivity or leased to mobile carriers.

The three existing privately owned communications towers could be utilized to enhance community broadband by installing public Wi-Fi, fixed wireless, or cellular distribution equipment.

Conclusion
Overall, the city owns few assets that can be repurposed to enhance broadband and connectivity within the city. However, Duarte has significant, well placed private fiber, towers, and other private assets that could be leased by the city for their own connectivity needs and to support broadband expansion.

Methodology
Entrust/Entrust assessed the Duarte area for existing public and private broadband assets and infrastructure that could be used, leased, shared or otherwise leveraged to develop and construct a functional, yet cost-effective broadband network. This included surveying and mapping several data sources available for use in the region, including public infrastructure, buildings, and/or facilities, conduit and fiber networks, communications towers, street lights, traffic signals, state networks, and private telecom assets, including middle-mile networks and data centers.

Public Infrastructure
Cities typically already own and manage significant public infrastructure in order to provide services to the community. Many municipal assets can benefit from being connected to network infrastructure. At the same time, those assets can be leveraged to provide enhanced community connectivity. Existing conduit and fiber networks

typically used for exclusive City communications or traffic control can also act as foundational infrastructure for residential and business internet access. Land, buildings, poles, and towers can support antenna to improve wireless connectivity. The public easements or rights-of-way (RoW) along public roads may be the most valuable assets, along with other public property, allowing for quick and cost-effective deployment of new communications infrastructure.

All of this can make widespread access to high-speed connectivity more feasible by reducing costs and accelerating the deployment of the requisite digital infrastructure.

City Communications Network
The City of Duarte uses commercial internet services for connectivity within city facilities.

Buildings and Facilities
Public and community anchor buildings and facilities can be utilized to build out a public network through deployment of antennas, radios, sensors, cameras, data servers, community Wi-Fi spots, and interconnection points for redundancy and disaster recovery.

Often the type of public asset is specific to the area targeted for broadband deployment. For example, connecting public works maintenance yards typically allows for broadband penetration into industrial areas; administrative buildings often are situated within downtowns or business districts.

The City of Duarte and Entrust have identified 23 sites (shown in Table 1) including buildings, facilities, utilities, parks, healthcare, and schools owned by different public and private entities, that have a need for broadband connectivity.

Figure 20. Public Facilities and Private Towers

Table 8. Public Sites with a Need for Broadband Connectivity Site Owner & Facility
Type
Total
Sites
City 7
Administrative 1
Public Works 1
Police/Sheriff 1
Library 1
Parks 1
Recreation 2
County
Government Services
Healthcare
Fire District 2
Private 1
Healthcare 1
Schools 13
TOTAL SITES 23
The City’s inventory of 23 sites and the other public and private anchor institution sites can be leveraged to expand community access to broadband, both through routing a backbone fiber loop between these critical facilities, and also as distribution points for fiber and wireless connectivity.

Schools play a pivotal role in the importance of broadband connectivity. Access to broadband in schools ensures that all students have equal opportunities to learn and

thrive in the digital age. It enables students to access online educational resources, research materials, interactive learning platforms, and virtual classrooms. By bridging the digital divide, schools can provide an equitable education experience, ensuring that every student has the tools and resources they need to succeed academically.

As with public buildings and facilities, community parks can be sites for broadband distribution, locations of need for Wi-Fi hotspots, or both. Parks typically offer opportunities to penetrate residential neighborhoods, and municipalities are increasingly looking to offer free Wi-Fi hotspots as an amenity in the community where people congregate.

Street Light Poles
The City owns and maintains 698 street light poles throughout the community (see Figure 21). These poles provide extremely valuable infrastructure that can be leveraged to deploy broadband and/or smart city applications – particularly wireless connectivity (cellular or Wi-Fi) that can be used to distribute into homes and businesses without having to excavate new underground conduit networks.

Figure 21. City Street Lights & Poles
The typically dense nature and geographic reach of streetlights offers a significant opportunity, particularly for deployment of 5G small cell technology through leasing poles to the major cellular carriers (AT&T, Verizon, & T-Mobile) that can costeffectively provide high-speed broadband coverage into neighborhoods that lack adequate internet speeds. Streetlight poles and conduit can be leased to generate revenue, or leases can be offered as in-kind contributions for public-private partnerships, providing cost-effective infrastructure that can be used to deploy new fiber cables in existing conduit, and/or install smart city devices on poles (smart lighting management, cameras, traffic management, environmental monitoring, etc.).

Duarte’s street light poles are deployed within many residential neighborhoods and throughout the city’s commercial districts, providing the requisite vertical infrastructure to deploy City-owned/operated wireless communication devices (wireless, Wi-Fi mesh networks, Citizen Broadband Radio Service (CBRS), or 5G/mobile antennas) that could enhance community broadband services and speeds.

Poles can be utilized by the private sector as well for private 5G infrastructure installation. By utilizing publicly owned poles, service providers can extend their broadband reach further into the community, including residential, commercial, and industrial areas. This extended coverage enhances inclusivity, bridging the digital divide and ensuring equal access to online resources for all.

Street light poles also offer flexibility in terms of adapting to evolving technologies and future network upgrades. As broadband technology continues to advance, the infrastructure mounted on utility poles can be easily upgraded or replaced without major disruptions. This adaptability allows for seamless transitions to faster and more advanced broadband services, ensuring that communities stay at the forefront of technological advancements.

Traffic Signals
Traffic signal poles and associated structures are typically located along major transportation arterials, which similarly correspond with commercial corridors. This is true for Duarte. Alignment with road arterials makes signal control networks ideal assets for cost-effectively deploying new fiber backbones to critical economic development areas.

The City has 21 intersections with traffic signals (see Figure 21) either existing or planned as part of new development.

Figure 22. Signalized Intersections
Traffic signals are sometimes interconnected with electrical and/or signal control conduit networks. Many signal interconnect networks were originally conduit with twisted copper cables, and some have been updated to fiber cables. These

underground conduit networks can be rehabilitated and used to pull in fiber optic cable at a fraction of the cost of deploying new underground infrastructure. To date, Entrust and the City have not identified any existing conduit networks specific to traffic signals.

Connecting traffic signals offers two major advantages for broadband expansion: 1) the conduit networks that interconnect the signals can be rehabilitated and upgraded to fiber backbone cables that can meet the City’s other communications needs, and 2) interconnected traffic signals and poles can be utilized to deploy traffic management systems, smart city devices, monitors, and other data applications.

California Middle-Mile Broadband Initiative (MMBI)
The State of California has been very active in designing and implementing broadband policies to expand broadband availability and digital literacy in the state. Governor Newsom made significant findings in Executive Order N-73-2011 issued on August 14, 2020, addressing the need for improved broadband services, closely followed by passage of Senate Bill 156, which addressed broadband through the 2021 budget package. The state middle-mile network, known as MMBI, is underway, with portions of the network passing to the south of the city along Arrow Highway in Irwindale. 11 See, https://www.gov.ca.gov/2020/08/14/38666/

Figure 23. California Planned Middle-Mile Project (MMBI) 12 The MMBI in will provide a lower cost publicly owned fiber infrastructure that can provide the City long-haul data transport access to data centers and internet exchanges in Los Angeles, San Jose, and elsewhere. The city would need to build or lease additional fiber to reach the MMBI. The lower costs and higher speeds available on this network could make connecting to this network worthwhile. 12 Source: CPUC Statewide Construction Evaluation Map of 10,000 Miles of Proposed Build https://experience.arcgis.com/experience/e2540ace2ac248ee8c3350aa39395342/page/Segme nts/?views=Legend

3. Private Infrastructure
Metro Fiber
Metro Fiber Networks, as the name implies, are designed to connect major sites in relatively dense metropolitan areas to each other and to other service providers, typically via colocation data centers or exchange facilities. Mobile network operators use metro fiber to connect towers and 5G small cell sites.

Figure 24. Metro Fiber Networks in Duarte13
Smart city applications can leverage existing metro fiber networks to connect data centers and remote devices. Applications with the need for high bandwidth, such as high-resolution traffic and public safety cameras, can be served on metro fiber networks. Services are priced on an individual case basis, based on the service level, number of sites, distance, and bandwidth required. Some carriers will lease dark fiber 13 Source: Fiberlocator.com

strands, but these are generally lit, or active services. Many companies prefer to sell connectivity as part of a suite of managed services.

Long Haul Fiber
Long haul, or middle-mile, networks typically extend access to interconnection points in major cities and are of limited use for local smart city applications. However, more cities are moving their managed services and IT workloads to public cloud infrastructure, such as Amazon AWS and Microsoft Azure. Certain IT and smart city applications will require high-speed access to the remote cloud data centers, and many require low-latency connections to the cloud to function effectively. Many of these public clouds reside in the same interconnect facilities in major U.S. cities, including Los Angeles, San Jose, and Phoenix.

Figure 25. Long Haul Fiber Networks in Duarte14
For Duarte, the key inter-exchange points and major data center clusters are located in Los Angeles. As illustrated in Figure 25, there are two providers that can be utilized to provide the path redundancy and carrier diversity requirement often demanded by 14 Source: Fiberlocator.com

private businesses and municipalities. The construction of the public MMBI will provide additional, cost-effective options that will further connect Duarte to regional and state data centers.

Data Centers
City enterprise software applications and smart city applications of all types ultimately reside on a server. That server can be in an on-site city data center, in a co-location data center or “in the cloud” in a distant data center, or more likely in all three. A major trend in data and software applications is the migration of services to the cloud, which requires moving data resources closer to “the edge of the internet” or data/interconnect centers. This allows end users to reduce latency and improve application performance.

Thus, data centers and peering points are increasingly being established further from the major internet centers to enable better cloud services in areas further from major U.S. cities.

As more and more mission critical applications of enterprises, governments and consumers migrate to public and private clouds, the latency to and from the internet edges and centralized public cloud data centers can become a performance bottleneck.

To address this, the edge is migrating from the internet exchanges and massive public cloud data centers to nearby large cities. We expect this migration to continue and even accelerate.

Given this importance, cities should have path redundant connections from two service providers to two tier one IXPs. The current long-haul fiber is limited in Duarte, though it is sufficient to enable redundant connections.

Figure 26. Tier 1 Inter-Exchanges and Long-Haul Routes to Duarte15 Vertical Communication Assets
Vertical assets, such as towers and monopoles, can be used for wireless (Wi-Fi, cellular, or radio) distribution points to enhance broadband access in the community, often leased to private telecommunication companies to serve their subscribers.

However, these assets can similarly be used by the City to enhance community broadband – either directly by installing public Wi-Fi, radio, or cellular distribution equipment, or indirectly through creative leases and agreements with private telecom that exchange rents for serving City-targeted areas.

There are at least three towers, antennas, and wireless communications facilities within the City shown in Figure 19. Public Facilities and Private Towers, two owned by Crown Castle (a Metro Fiber Network operator) and one owned by Verizon. 15 Source: https://www.datacentermap.com/

Conclusions & Implications
As is customary for contract cities like Duarte, the city has, to date, managed their connectivity by leasing private assets. The City does not currently invest in publicly owned broadband infrastructure for their own use or the community’s use.

The City owns and manages 698 street light poles, which could be used to deploy broadband and/or smart city applications via wireless or cellular connectivity or leased to mobile carriers.

The City owns 21 signalized intersections that are operated. At present, there is no known, centralized control network, wired or otherwise, to enable the city or their contracted operator to manage their traffic devices.

The three existing private communications towers could be utilized to enhance community broadband by directly installing public Wi-Fi, radio, or cellular distribution equipment.

There are existing long-haul and metro fiber within the City, which could be utilized by the City for their own connectivity needs.

Further exploration of how these assets could be utilized to improve broadband in the City of Duarte in the gap analysis and recommendations section of this report.

4. Needs Assessment
Overview
As part of this assessment, Entrust, sought input from city staff, from the community at large and the public on the broadband situation as they experience it. Paper and online surveys were made available and a variety of stakeholder focus groups were

conducted to give the public a variety of avenues to share their opinions and experiences. The focus groups were conducted between March and May of 2024. The survey was open during this time as well.

The focus groups and internal staff meetings revealed several common themes and unique challenges across different sectors in Duarte. The common issues included unreliable connectivity, the impact of Spectrum's monopoly, and the need for better infrastructure.

The Business and Industry group emphasized the financial impact of poor connectivity on small businesses and the need for more competitive options. The Education and Social Services group highlighted the digital divide among students and the critical need for reliable internet for educational success and safety. The healthcare sector focused on the importance of robust and secure internet for telemedicine and efficient healthcare operations. Finally, the in-person focus group underscored the need for equitable access to broadband, particularly for low-income families and seniors.

In light of these challenges, there is a shared sentiment that the City of Duarte should take a proactive role in improving broadband connectivity. This includes attracting more providers to increase competition, implementing public Wi-Fi, subsidizing internet costs for low-income residents, and developing policies that facilitate efficient infrastructure upgrades. By addressing these challenges and prioritizing broadband development, the city can enhance connectivity for all residents and support long-term economic, educational, and healthcare goals.

Methodology
The Entrust team worked with the City of Duarte team during Spring of 2024 to identify the full range of community stakeholders. Generally, stakeholders are anyone who has an interest in the success (or failure) of an initiative, organization, or project. For broadband planning, we consider stakeholders to organizations in an area, particularly those that serve and support local businesses and residents. A list of these types of major organizations, including their representatives’ contact information, was developed by the Duarte team and supplemented by the Entrust team. For practical purposes, we narrowed these down to three groups for which we convened online

focus groups and had internal discussion groups. Additionally, we had focused discussions with Duarte Departmental Staff sections as well.

Business and Industry, March 25, 2024
Healthcare, March 27,2024
Education, Social Service, Non-Profit, March 26, 2024
In Person Focus Group, May 2, 2024
Internal Staff Meetings, Various times
The focus groups were scheduled several weeks in advance. Stakeholder representatives were contacted via email from the City of Duarte’s administrative offices to request their participation. They were then invited to the relevant focus group via email. Those stakeholder representatives that could not attend were offered the options of (a) attending a different session, (b) having a one-on-one online interview, or (c) sending an associate. Most chose to send an associate, some opted for interviews, and some simply did not respond.

Entrust led the focus groups and took notes on the discussions, which generally covered:

Current connectivity, including any issues or problems.

Connectivity needs of clients, customers, members, and partners.

Goals and plans for the near future, including upgrades, that would impact connectivity needs.

Major issues and trends expected to impact operations and technology requirements.

The City’s potential role in increasing broadband availability and improving performance.

Results
Business and Industry Focus Group
Participants from the Duarte Chamber of Commerce, JTL Consultants, Christian Alliance Church, and SGV Arts School discussed various connectivity issues faced by

businesses and residents in Duarte. Spectrum's service was reported as problematic, especially for residents in senior centers and those living in the hills. Connectivity is unreliable, and Spectrum's monopoly limits options for improvement. This situation has financial impacts on small businesses, particularly home-based ones, due to unstable internet connections. Switching providers has not always resolved these issues, and the lack of competition means there are few alternatives.

The lack of fiber optic availability for the Christian Alliance Church hampers their ability to conduct services effectively. Broadband service is difficult to access around the SGV Arts School campus, significantly affecting operations and safety during emergencies.

Participants highlighted that poor connectivity impacts not only their daily operations but also their ability to respond to critical situations. Businesses reported that internet outages directly affect their ability to serve customers and conduct financial transactions, leading to lost revenue.

Participants felt the city's role should be to attract more broadband providers to increase competition and improve service quality. Implementing public Wi-Fi in key areas can help bridge the digital divide and support low-income residents. Additionally, the city should work with current providers to enhance the existing infrastructure and address the specific needs of both businesses and residents. Overall, improving the current connectivity and addressing major issues and trends are crucial long-term goals to support Duarte’s economic growth and stability.

Healthcare Focus Group
Participants from City of Hope and the Comprehensive Cancer Center at City of Hope (CTCA now part of City of Hope) discussed the current state and future needs of broadband connectivity in their healthcare facilities. City of Hope uses multiple vendors, including Crown and Spectrum, for connectivity across its clinics and hospitals. They are in the process of re-designing their connectivity architecture to improve efficiency and reduce costs, including consolidating technology stacks to manage solutions more effectively is a key focus. Participants emphasized that reliable internet is critical for supporting telemedicine services, electronic health records, and real-time communication between medical professionals.

Robust and flexible broadband infrastructure is essential to support advanced healthcare operations and future growth. Participants noted that internet outages can disrupt patient care, delay medical procedures, and hinder the sharing of critical health information. They also highlighted the need for secure and high-speed internet to support the growing use of telehealth services, which have become increasingly important during the COVID-19 pandemic.

Participant’s felt the city should facilitate the development of broadband infrastructure that supports healthcare facilities' advanced connectivity needs. This includes working with providers to ensure that healthcare facilities have access to high-speed and reliable internet. Investing in dedicated broadband lines for healthcare use and ensuring redundant connections can help prevent disruptions in service. Ensuring robust broadband infrastructure will support the healthcare sector’s long-term operational efficiency and growth.

Education, Social Services, and Non-Profit Focus Group
Representatives from Duarte USD and SGV Arts School discussed the challenges faced in ensuring adequate connectivity for educational purposes. Duarte USD utilizes a 1-gig pipeline from AT&T and provides additional hotspots through T-Mobile.

However, connectivity issues persist, affecting emergency responses and day-to-day operations. Approximately 30% of students require connectivity support, highlighting a significant digital divide. The digital divide not only impacts students' ability to complete homework and access educational resources but also affects their participation in online classes and extracurricular activities.

An assistant principal and systems administrator from SGV Arts School emphasized the challenges poor connectivity poses for student safety and daily school operations.

They shared an instance where poor connectivity hampered the response to a student in need, underscoring the critical nature of reliable internet for ensuring student safety.

The school reported that internet speeds often drop during peak usage times, making it difficult for teachers to conduct online lessons and for students to engage in digital learning activities.

Participants feedback stressed that ensuring reliable internet is critical for student safety and effective educational operations. Discussions indicate the city should

support educational institutions in their efforts to improve connectivity and provide additional resources for students in need. Investing in upgrading broadband infrastructure within school zones and collaborating with providers to offer affordable internet plans for students' families are essential steps. Addressing these issues is crucial for achieving long-term educational goals and ensuring student well-being.

In Person Focus Group
The in-person focus group revealed that Spectrum's dominance in the region creates a lack of competition, resulting in high costs and limited-service improvements.

Participants expressed a strong demand for public and free Wi-Fi provided by the municipality, drawing inspiration from successful implementations in nearby cities like Maywood. Broadband is seen as a crucial utility that should be managed and subsidized similarly to water and electricity.

The group noted that many residents, particularly seniors and low-income families, struggle with the high costs of internet services. They emphasized that reliable internet access is essential for accessing healthcare services, job opportunities, and educational resources. Participants also pointed out that the digital divide exacerbates socio-economic disparities, making it harder for underserved communities to thrive.

The group agreed that improved public broadband access is essential for equitable connectivity across Duarte. It was expressed that the city should consider broadband as a crucial utility and take an active role in managing and subsidizing it to ensure equitable access for all residents. This includes providing public Wi-Fi in key areas, subsidizing internet costs for low-income families, and working with providers to expand service coverage. The group felt that ensuring equitable access to broadband is a key long-term priority for the community’s development.

City Staff Meetings
Internal Staff meetings were held separately with Public Safety, Planning, and Public Works. Internal staff meetings revealed several policy and infrastructure gaps in broadband development. Currently, there are no specific policies for broadband development, joint trenching, or dig-once ordinances. Coordination meetings with utilities are not regularly scheduled. Staff expressed the need for fiber lines in strategic

areas, including City of Hope, industrial parks, and commercial districts. Public safety systems rely on various connectivity networks, and public works projects, such as traffic signal infrastructure, are managed by LA County without city-owned fiber or conduit.

The lack of specific policies for broadband development has led to uncoordinated efforts and missed opportunities for infrastructure improvements. Staff noted that implementing dig-once and joint trenching policies could significantly reduce costs and streamline the process of upgrading broadband infrastructure. Regular coordination meetings with utilities would ensure that broadband development is aligned with other infrastructure projects, such as road repairs and utility upgrades.

Addressing these policy gaps and infrastructure needs will be crucial for facilitating comprehensive broadband development in Duarte. The city should consider regular coordination meetings with utilities, and invest in upgrading broadband infrastructure, particularly in underserved areas and for emergency services. This will ensure a more efficient and coordinated approach to broadband development, ultimately benefiting residents and businesses.

5. Survey
As mentioned previously, part of the needs assessment included an online survey to collect data on broadband services received by Duarte residents, businesses and organizations. The convenience survey, was made available to the community at large and was promoted by the City for all members of the community to share their experiences. In addition to questions about location, services subscribed to and demographic data, the survey also included an internet speed test to collect objective data on broadband performance. The survey was officially launched on February 6, 2024, and remained open through May 6, 2024
Conclusions and Implications
Survey respondents overwhelmingly represented households rather than organizations.

While Duarte has city-wide broadband service from several providers, residents are

frustrated with cost, performance, and lack of competition. Choice, reliability, and overall internet availability were identified as the most important factors, but price was the greatest source of dissatisfaction among respondents.

Respondents reported paying Charter Spectrum an average of $0.38 per Mbps per month for 225 Mbps of throughput. Comparatively, Duarte residents paid Frontier less than half of that rate - $.14 per Mbps per month with an average throughput of 455.9 Mbps month. Charter Spectrum dominates the market, with 75% of respondents using its service. Respondents feel they are paying too much for internet service, especially for lower speed services with higher per Mbps costs.

Demand for non-internet services appears limited. Almost 70% of respondents have cut the cord, relying solely on streaming services. Survey respondents were generally more educated and older than the overall population, under-representing lower-income households. These conclusions likely apply even more strongly to lower-income households.

In conclusion, Duarte has broadband services comparable to other mid-sized cities, but residents are seeking more competitive options. Cable dominates internet access. The incumbent cable company offers internet access at a premium, while smaller providers, including cellular companies, have minimal market presence. Internet performance and costs in Duarte are comparable to other areas with limited broadband competition but lack the benefits of a truly competitive environment that is better able to meet residents' needs.

Methodology
The City promoted an online community survey developed by ENTRUST to help assess broadband needs, experience, satisfaction, costs, and speeds. The survey also included an embedded speed test that allowed respondents to automatically test and record their actual download and upload speeds.

The survey was active from February 6, 2024, through May 6, 2024, and received 574 responses. The survey was of residential and business locations, as well as households and organizations. It was conducted with ENTRUST’s customized online survey format. As a convenience survey, it was available to anyone and generally

promoted by Duarte for all members of the community. Not all respondents completed the entire survey. The level of community engagement on this survey is considered as representative of the population as a whole. As with many online convenience surveys, the sample is not randomized and thus some populations tended to be overrepresented.

Results
Responses / Demographics
From the 574 responses, 551 were found to have usable data after data cleanup. Fiftytwo percent of the useable surveys were complete surveys. Completed” simply means respondents made it to the last page of the survey and clicked “Submit.” Each item in the survey is analyzed separately using all responses to that item regardless of whether respondents completed the survey. Therefore, we report the number of responses (“n”) for all items.

Figure 1 indicates 92.5% (510) of these were from households (not organizations).

Seventy-One percent responded from a location that was not part of a multi-unit complex such as an apartment complex, condominium, or office suite. Table 1 indicates that the survey respondents tended to be slightly older and from smaller family units than the typical Duarte resident. Figure 2 and Figure 3 provide occupational and educational level profile information indicating a well-educated and diverse workforce.

Figure 27. The numbers of 551 responses by completeness and location type

Table 9. Basic Demographic Statistics for Duarte Compared to Survey Responses Census Survey
Responses
Number of Households 21,727 510
Average Family/Household Size 3.44 2.67
Median Age 44.9 50.84
Figure 28. Occupation by Percentage of the 278 Respondents Figure 29. Level of Education by Percentage of the 278 Respondents

Internet Services
The survey focused on internet services—type, speed, provider, cost, as well as sentiments about and utilization of internet access. A total of 550 responses included information about the type of service. Cable broadband is by far the most common type of internet service. Figure 4 indicates that 64% of the respondents have cable broadband. Fifteen percent reported a fiber connection, and five percent have DSL.

Seven percent were unsure about their connection type. The remainder, representing less than 9% of the responses, reported either mobile/cellular wireless, fixed wireless, or some other form of coverage.

Figure 30. Type of internet service by percentage of 550 responses The responses are distributed geographically throughout Duarte as shown in Figure 5.

The range of connection types is notable, particularly the heavy reliance on cable modem service. This data supports other information in the survey indicating that Charter Spectrum is the dominant broadband provider in the market.

Cable Modem Mobile cellular wireless Digital Subscriber Line Fixed wireless Enterprise Internet Fiber optic
Satellite No internet access Other-Write In
Unsure/don’t know No data provided
Figure 31. Locations of 550 survey responses by type of internet connection16 16 Connection type definitions can be found in the market analysis section of this report

Connection Performance and Costs
As shown in Table 2 fiber optic connections were the fastest access type and cheapest price by a wide margin. $0.30 per month per Mbps is a nationally competitive rate.

Cable modem service and Mobile//cellular in Duarte are above that rate.

Table 10. Cost and performance statistics by type of broadband connection Connection Type Percent MRC Latency Thruput MRC/Mbps
Cable modem 63.6% $84.49 9.90 234.55 0.36
Mobile/cellular wireless 2.0% $55.83 43.80 161.52 0.35
Digital Subscriber Line 4.9% $55.66 21.30 202.48 0.27
Fixed wireless 3.3% $72.73 22.77 322.71 0.23
Fiber optic 14.7% $61.92 8.37 470.26 0.13
Unsure/don't know 6.5% $131.20 12.88 201.22 0.65
Other - Write In 1.6% $59.94 22.25 185.20 0.32
Enterprise internet access 2.0% $72.16 12.17 201.15 0.36 This location has no internet
access

1.1% NA NA NA NA
Satellite 0.2% NA NA NA NA
Figure 6 indicates that 34% of all respondents maintained a total throughput of less than 120 Mbps, while less than 2% maintained more than 1000 Mbps. Eighty-eight percent of all respondents maintained less than a 500 Mbps service.

Figure 32. Percentage of 322 responses by throughput ranges Approximately 22% of all respondents indicated a daily slowdown or brief outage in service as shown in Figure 7. Longer service outages lasting one hour, or more, are reported on a monthly basis for nearly one third of all respondents. Sixty four percent of all respondents indicate service outages for several hours to a day or more at least once per year. Sporadic outages occur throughout the city. No single area is subject to more outages than the city as a whole.

Figure 33. Perceptions of service reliability as a percentage of 303 responses

The geographic distribution of survey responses by speed can be seen in Figure 8. The low number of responses indicating service levels above 500 Mbps are often seen in a cable dominant market with a lack of competitive options.

Less than 28 Mbps 330-1000 Mbps 28-120 Mbps
Greater than 1,000 Mbps 120-330 Mbps No data
provided
Figure 34. Locations of 322 responses by internet connection speed Internet Service Providers and Costs
Seventy-Five percent of the respondents have Charter Spectrum as their broadband service provider as shown in Figure 9. Fifteen percent of the respondents receive their service from Frontier, including 5% of that identified as DSL service as noted above.

The remaining 9% of providers are primarily fixed wireless access providers, T-Mobile Home Internet, and Verizon 5g Home Internet

Figure 35. Broadband service provider by percentage of 342 responses Table 3 summarizes average costs and performance for broadband providers in Duarte. The table does not include AT&T as they were not included as a survey choice.

Table 11. Average costs and performance by internet service provider for 371 responses Monthly Recurring Costs (MRC) Performance
Provider All services Internet
Only
Per Mbps Latency Throughput
Charter $119.13 $85.46 $0.38 10.6 225.4
Frontier $79.48 $61.91 $0.14 8.8 455.9
Other $83.83 $66.17 $0.26 27.1 258.5
All $109.75 $80.27 $0.31 11.7 262.8
Half of the respondents reported purchasing broadband only from their broadband service provider and no other service, as shown in Figure 36. The most commonly reported additional service purchase was TV and phone services as shown in Figure

37.

Figure 36. Number of services taken by percentage of 354 responses Figure 37. Additional services received from broadband provider by type Table 12. Monthly recurring cost statistics for all services and broadband only Figure Count Max Mean Median Mode Min
All Services 330 $398 $110 $89 $80 $1

Broadband Only 330 $1,000 $80 $79 $80 $1
Uses of Broadband
Communication with family and friends was the most common use of internet among respondents, as shown in Figure 12. Effectively all respondents used the internet for this purpose at least once a week. Over 81% used it for this purpose daily. General research and entertainment also ranked very high in the survey.

Education was among the highest uses for broadband, behind communication and entertainment. Over half the respondents used their broadband connection for education, school, work, and training. Over 86% indicate they use their internet for ECommerce purposes (whether buying or selling goods). Almost one-third of respondents indicated that they used their broadband connection daily for remote work.

Meanwhile over two-thirds report living with someone who also use the internet at home for remote work as seen in Figure 13.

Figure 38. Frequency of use of internet by percentage from 278 responses

Figure 39. Number of people using the internet at home for remote work with 274 responses
Sixty-Nine percent of respondents have effectively “cut the cord,” as illustrated in Figure 40. Responses indicate getting 60% of video content from the internet/streaming services. Only 7% of respondents indicated getting all of their video content via traditional television channels.

Figure 40. Percentage of 278 responses by mix of sources for video content Sentiments of Broadband
Fifty percent of respondents indicated that broadband was either critical or very important to them overall as shown in Figure 15. Reliability was generally the most important characteristic, followed by speed and price.

Figure 41. Percentage importance of various aspects of broadband services based on 300 responses
In contrast, as shown in Figure 16, price was the most common source of dissatisfaction among respondents, with 63% indicating they were either, very, or somewhat dissatisfied. Speed, reliability, and overall satisfaction levels were comparable. Respondents were most likely to be ambivalent about support.

Figure 42. Level of satisfaction with key performance indicators for internet services by percentage of 302 responses
Catch-All and follow-up
The survey includes a final, open-ended catch-all question, “Do you have any questions or thoughts about broadband? What would better broadband mean to you, your family, your organization, and the area? What would you like to know about broadband in the area?” There were 117 responses to this question where respondents were free to answer with a free form answer.

In reviewing these comments, ENTRUST categorized them based on careful review.

Where more than one comment was made, the response was categorized according to the dominant theme of the overall response. A desire to see more competition, or additional broadband service options was reflected in more than half of the comments.

Faster internet speed and public availability of service were also frequently mentioned.

Categories were divided into eight major categories defined below and represented in Figure 17.
• Accessibility: This comment was specific to asking for “fiber” access to improve service. 0%
5%
10%
15%
20%
25%
30%
35%
40%
45%
Overall Speed Price Reliable Support
Very satisfied Somewhat satisfied Neither/Not sure Somewhat dissatisfied Very dissatisfied

• Competition: These comments reflect a strong desire to see additional internet service providers in the market.
• Critical Utility: Comments here reflect a recognition that broadband is essential for modern living, particularly for those working from home. • Speed: Comments reflected a desire for faster connections of any type. • Price: Comments reflected strong arguments that price was prohibitive to quality service or, simply too high.
• Public Availability: Comments reflected a desire for The City of Duarte to promote publicly accessible broadband or wireless broadband connectivity, particularly in public spaces.
• Service: These comments reflect a desire to see better responsiveness to outages or other technical problems from the service provider.
• Value: These comments reflect concerns for a combination of speed, price, customer service, as well as a variety of service offerings.

Figure 43. Summary of 103 comments from respondents
Finally, a random sampling of comments is provided below to illustrate the respondents' effort and highlight the importance of their feedback. • Better broadband means a reliable, fast, and economic service. Our service cost has been increasing every few months and provider does not offer promotions to current customers. I cannot understand how promotional prices are only offered to new customers while ignoring long time loyal customers. I feel that if we had

more broadband provider options in our area, we might be offered better pricing.

Competition makes all the difference!
• We need more variety of providers which will help bring down cost. We need better access points in our city. We need to be up to date with our technology. • Need more competition/providers within the City of Duarte. SPECTRUM is the only player in town which drives the Service and Reliability Down and Pricing Up and Up with no signs of slowing down.
• The service in this area is almost a blackout. Santa Monica was able to become Silicone Beach because it invested in its internet infrastructure - why not attract smaller start-ups to the area with cheaper rents but lots of internet. • Where I live there is only one choice, Spectrum. Therefore, they don't need to improve so they don't. They raise prices but not service speed or quality. • We need fiber. Please make it happen.
• I would like to have fiber optic available.
• A recent 30+ hour outage caused lots of problems. Spectrum did not provide any timely updates. This is poor service. I work from home and need reliability and good communications when an outage occurs. If I don't have connectivity, I lose money. • I use Broadband to day trade. Super high speed over 300 Mbps is very important.

Right now, since my utility is underground, ，Frontier Fiber Optics is not available for underground. My Verizon Home Internet can only do 100Mbps now. I need 300Mbps to day trade properly.
• While Spectrum's speed is meeting our needs, Spectrum's spotty reliability has been frustrating. Thus, an option from another provider would be welcome, especially if fiber since internet capabilities will increase demand for bandwidth as time goes on. I noted monthly cost as $79.99 in the survey. We were receiving the ACP (Affordable Connectivity Program) rate, but the government funding for that program is ending, so our Spectrum rate that was $49.99 under the plan stepped up to $56.99 and will eventually return the full $79.99. • Ideally the city would provide reliable free Wi-Fi to all residents in Duarte, as some cities have done.
• I would like to have more options available for buying the service. Our building has been tied to Charter Spectrum for years and Frontier is still unavailable. My bill increases year after year, and there is nothing I can do about it. There is no real alternative.
• City should provide broadband WiFi to houses in Duarte or at least hot spots every 300-500 ft.

• Equipment should have farther Wi-Fi reach. System seems to bog down randomly way too often which is frustrating for streaming. Battery backup for the router system provided by frontier failed already and didn't cover the power source at the fiber inlet.
• Please provide an option for a broadband fiber connection into our house with faster speeds than the current coax connection.

The last item on the survey was follow-up preferences. As shown in Figure 18, by far the largest number of respondents indicated an emailed newsletter as the means to followup with them. Other form of online contact via website or social media was the second most requested means of contact.

Figure 44. Method to receive broadband related information

6. City Policy Assessment
A key step in this process is to identify and assess existing policies, identify gaps, and make recommendations for new policies and best practices for expansion of broadband that have been successful in other cities. 17 For this Policy Assessment we considered information from our asset assessment, market assessment and consumer survey, as well as comprehensive review of Duarte’s existing policies and ordinances as they relate to broadband. This review was conducted considering state and federal rules and state and national broadband policies to aid the City with the goal of increasing broadband quality and access in Duarte.

Methodology
ENTRUST evaluated the City of Duarte’s policies that relate to broadband infrastructure for wired and wireless broadband services, considering ordinances in other California cities, and recent state of California, Federal Communications Commission (FCC) decisions and regulations and actions on broadband policy taken by Congress and the California Assembly. After a desktop review of City policies and ordinances considering the field of regulatory items, we posed additional questions to City staff for further elaboration on these policies from the City’s perspective. We also reviewed the City’s plans and acquired additional information from various other public documents.

Conclusions
The City has limited network assets limited to street light poles. At the City management level, a comprehensive and integrated approach to broadband assets is likely to identify more and higher value opportunities to develop and use these assets.

Such an approach requires careful coordination between departments and with external stakeholders aligned to the City’s capital improvement program. 17The following discussion does not constitute a legal opinion and should not be construed as such. Questions about interpretation or applicability of these or other provisions of federal or California law should be referred to legal counsel.

Broadband-friendly policies and initiatives play a pivotal role in facilitating the deployment of new infrastructure and capabilities while minimizing costs through efficient coordination between departments, public agencies, and utilities. We recommend the City of Duarte embark on a path to implement a range of these forward-looking policies, to foster an environment conducive to improved connectivity and digital inclusion. Building upon these initiatives, the city is poised to bridge the digital divide, empower its residents, and enhance community services. Further findings and recommendations are:

1. Generational funding of broadband infrastructure is occurring at the federal and state level and will provide opportunities for the City to efficiently place broadband infrastructure through improved utility coordination.

2. The City’s General Permit Conditions and Trench Repair Specifications is well crafted to encourage coordination of work in the public rights of way to reduce utility cuts which damage pavement and reduce the life of a street. The City should continue to emphasize coordination of work by utilities and city departments to provide opportunity for cost-effective placement of fiber and conduit, maintain the longevity of public investment in streets, curbs and gutters, and foster public convenience. In particular the City should implement a practice which asks for each Capital Improvement Project “does this project provide opportunity to expand broadband infrastructure”, e.g., significant excavation in an area that needs fiber optic facilities.

3. There is a consensus in the city, confirmed by the broadband survey, that wireless service is not uniform throughout the City and has holes in coverage.

Duarte has not adopted small cell standards and guidelines, a small cell ordinance, or Master License Agreement following the FCC’s 2019 Small Cell Order. Without these standard policies and practices wireless providers may not perceive the City as being “open for 5G business”. Therefore, the City should show the service providers it is ready to support 5G deployment adopting a small cell ordinance, an MLA and application checklist. Furthermore, the City should develop an “asset portal” for service providers to use in network planning that contains the GIS location of city streetlights and other wireless support assets as well as the community survey results. Carriers know what cities have implemented policies and practices supporting 5G deployment – and which cities do not. Carriers have enough opportunities that they focus deployment efforts on cities that have defined policies and processes. Adoption of a small cell ordinance, an MLA and 5G application checklist tells service providers that it is open for business. Also, the survey suggests that additional 5G deployment could spill over to the home internet market since carriers are offering Home Internet via 5G (AT&T’s Internet Air Wireless Home Internet, Verizon’s 5G Home Internet and T-Mobile’s 5G Home Internet). Many consumers likely would find this to be an attractive alternative.

4. With neighboring cities and the San Gabriel Valley Council of Governments actively studying and pursuing broadband opportunities, the city should task staff with being in touch with their counterparts in neighboring cities to be aware of and capitalize on projects that would be of benefit to both communities.

5. The City may wish to consider a “consumer choice of broadband provider” ordinance, similar to the City of Oakland’s ordinance in for Multi-Tenant Environments, in Duarte.

6. The City should monitor the funding debate for the FCC’s Affordable Connectivity Program. If and when funding is restored, the City should support inclusion of Affordable Connectivity Program information in communications and outreach for communities, consumers and programs to raise awareness of the ACP benefit and further information on eligibility and enrollment. Examples include making sure schools, libraries, health clinics and community centers know about ACP and have information needed to help eligible students, clients and patrons enroll. Put outreach materials in the hands of teachers, health care providers and community workers. These materials are available at ACP Consumer Outreach Toolkit | Federal Communications Commission (fcc.gov)

7. AT&T has petitioned the California Public Utilities Commission to allow it to cease maintaining its copper-based network throughout the state of California, except where consumers have no alternative to AT&T service it would continue to maintain the copper network. While the CPUC rejected AT&T’s petition, to plan for the eventuality that AT&T is allowed to terminate services over copper facilities, the City should identify each location in the City where it utilizes AT&T services over copper networks (if any) and consider alternative modes of provisioning communications to those locations and functions. This could implicate a number of services or functions including basic telephone connections, alarm services, monitoring services, in home detention surveillance, elevator emergency phones, etc.

Federal and State Broadband Policy
In the Infrastructure Investment and Jobs Act18, Congress made specific policy findings:
“(1) access to affordable, reliable, high-speed broadband is essential to full participation in modern life in the United States. (2) The persistent ‘‘digital divide’’ in the United States is a barrier to the economic competitiveness of the United States and equitable distribution of essential public services, including health care and education. 18 Public Law 117-58, 117th Congress, Division F – Broadband, November 15, 2021. This section of the IIJA funds broadband infrastructure and digital equity programs among other things.

(3) The digital divide disproportionately affects communities of color, lower-income areas, and rural areas, and the benefits of broadband should be broadly enjoyed by all. (4) In many communities across the country, increased competition among broadband providers has the potential to offer consumers more affordable, high-quality options for broadband service. (5) The 2019 novel coronavirus pandemic has underscored the critical importance of affordable, high-speed broadband for individuals, families, and communities to be able to work, learn, and connect remotely while supporting social distancing.”
The IIJA provides generational funding of broadband infrastructure and digital equity and adoption programs and sets a defined minimum speed of “broadband” to 100 Mbps download and 20 Mbps upload for its programs.

This policy direction exemplifies the new local, state and federal broadband policies are being implemented to bring better, cheaper and faster wireline broadband connections to citizens on a universal basis, for use in many important segments of modern life including education, health care, public safety, economic development and entertainment. Included are utility coordination policies to reduce infrastructure costs by coordinating placement of broadband infrastructure among city departments and capital improvement/development projects, development of improved broadband mapping, implementation of digital equity plans and affordable connectivity programs, and requiring consumer choice of internet service provider in multi-tenant buildings.

On the wireless side, new policies have been implemented by the FCC to address deployment of “5G” wireless antennas including implementation of streamlined procedures for “eligible facilities requests”, shortened “shot clocks” for the local authority’s handling siting requests and limitations on fees that can be charged, and implementation of small cell design standards and guidelines as well as use of Master License Agreements. The wireless providers are promoting home internet offerings 19 using 5G wireless capability which Duarte residents may find to be an appealing alternative to landline services especially where it promises higher speeds. 19 AT&T’s Internet Air Wireless Home Internet, Verizon’s 5G Home Internet and T-Mobile’s 5G Home Internet.

Fiber is the Foundation for Fast Broadband Access
Both wireline and wireless broadband services require fiber optic cable to transmit ever increasing amounts of data. Consumers and businesses rely on the internet “cloud” for rapidly increasing numbers of applications that is being further accelerated by rapid advances in application of Artificial Intelligence. 20 The Infrastructure Investment and Jobs Act (IIJA) and Senate Bill 156 in California have made large amounts of funding available to invest in fiber optic technology and digital equity – addressing the Digital Divide, to ensure affordable access to 100 Mbps upload/100 Mbps download speeds.

Additional policy actions by the City can contribute to expanding the reach of fiber optic connections. Generally, it is advisable to incorporate fiber—or at least conduit—into all city and county capital projects and plans. It has become critical to ask the question at the planning stage for each capital project – how can this project support expansion of broadband infrastructure in the City? This question should be asked in the context of capital improvement projects and utility coordination among all City departments.

The Definition of Broadband
The Infrastructure Investment and Jobs Act funds broadband infrastructure to support broadband connections which is defined as a connection supporting a minimum of 100 Mbps download and 20 Mbps upload speeds.

The FCC’s benchmark for broadband speed has been 25 Mbps download and 3 Mbps upload since 2015. Congress requires the FCC to annually assess whether “advanced telecommunications capability” is being deployed to all Americans, which requires defining that capability. In its annual study of this question under Section 706 of the Communications Act, the FCC analyzed the data in 2024 and determined it is necessary to increase that benchmark speed to 100 Mbps download and 20 Mbps 20 Cloud infrastructure is an alternative to on-site data centers for computing workloads. Cloud infrastructure is connected by telecommunications networking. Artificial intelligence applications are a large and growing driver of cloud services. According to Amazon, “about 90% of Global IT spending [is] still on-premises and yet to migrate to the cloud.” CEO Annual Letter to Shareholders, page 7. 2022-Shareholder-Letter.pdf (q4cdn.com)

upload as the definition of “broadband”. 21 There is now no variance in the broadband speed definitions and benchmarks used by the various federal agencies for funding and analytics.

Utility Coordination and “Dig Once” Practices
Broadband is the “4th utility” along with gas, water, and electric services. Like the other utilities broadband substantially impacts public rights of way through required placement of fiber optic transmission cables and antennas for wireless “5G” services and broadband internet access services. State and federal policies are establishing coordination of utility work in the public rights of way to foster efficient and costeffective placement of fiber whenever the public rights-of-way are opened for any project.

Utility coordination has numerous substantial benefits, including promoting and supporting the placement of broadband infrastructure (e.g., fiber-optic cable and conduit), reducing public inconvenience and dangers from disruptions of repeated excavations (traffic disruption, road deterioration, service outages, and wasted resources), and enhancing service reliability and aesthetics.

Utility Coordination (or “Dig Once”) accomplishes the goal of minimizing costs of constructing separate trenches and facilities – via shared costs of construction. The cost savings are significant. The Federal Highway Administration estimates it is ten times more expensive to dig up and then repair an existing road to lay fiber than to dig support structure for fiber (e.g., conduit) when the road is being fixed or built.

According to a study by the Government Accountability Office, “dig once” policies can save from 25-33% in construction costs in urban areas and approximately 16% in rural areas. 22 In addition, development of Dig Once standards and guidelines for deployment of conduit and fiber will facilitate economic development and growth, as it enables cost 21 2024 Section 706 Report, Inquiry concerning Deployment of Advanced Telecommunications Capability to All Americans in a Reasonable and Timely Fashion, GN Docket No. 22-270, FCC 24-27, Released March 18, 2024.
22 Technology & Innovation | Congresswoman Anna Eshoo (house.gov)

-effective staged or gradual deployment of broadband infrastructure by local authorities.

When subsurface utility work occurs, it presents opportunities for the City to install new fiber and/or conduit in the right-of-way at reduced costs via coordination of work. Utility coordination policies allow the City to take advantage of other subsurface utility projects for the installation of fiber. This enables the City to expand its ownership of fiber anytime subsurface utility work occurs, at lower costs to new construction.

The concept can also extend to required placement of conduit for fiber optic conduits whenever the ground is opened, as expressed in recent Congressional legislation. This concept was embodied in the Broadband Conduit Deployment Act of 2018, which required the inclusion of broadband conduit during construction of any road receiving federal funding. Dig once and utility construction coordination is an effective way to reduce the cost of broadband infrastructure construction with opportunities for joint trenching and sharing of construction overheads such as maintenance of traffic, staging construction activity, and restoration expenses.

Transportation Projects and Broadband
The Federal Highway Administration implemented a new rule23 in March 2022 to facilitate installation of broadband infrastructure. This new rule includes provisions requiring a state department of transportation is to identify a “broadband utility coordinator” to be responsible for accommodating broadband in the right of way associated with federal highway projects. Caltrans has done so and lists contact information for broadband coordinators by district. 24 Caltrans also has addressed utility coordination with its “Accommodation of Wired Broadband Facilities within Access—Controlled State Highway Right of Way” 25 dated March 14, 2022 that addresses state legislation and considers the new FHWA rule. 23 See, 23 CFR Part 645.307(a).
24 Caltrans Broadband Coordinators, Caltrans. Caltrans Broadband Coordinators | Caltrans 25 Attachment A Wired Broadband Facility Accomodation in Access-Controlled Highway Rightof-Way (ca.gov)

This is a substantial change of policy direction at the federal level, toward allowing the use of federal highway funding to expand broadband infrastructure and encouraging broadband utility coordination while working on projects involving work in the right-ofway.

Transportation and utility infrastructure are getting smart which requires connectivity to operate, improving traffic and reducing impact on natural resources. Network assets can be economically incorporated into other infrastructure. Fiber for traffic signal interconnects can include additional fiber and conduit for other applications, including broadband services, smart city applications and cell site backhaul. The IIJA provides more funding for traditional infrastructure programs (e.g., roads and bridges, public transit, water infrastructure, power grid reliability and resiliency) than specifically for broadband. The City can capitalize on other infrastructure projects and complement infrastructure investment specifically for broadband network assets. The key to this is to fully incorporate and consider inclusion of broadband network infrastructure into capital projects at the planning stages via utility coordination practices.

City of Duarte Plans and Policies
The City oversees telecommunications and broadband matters in the City through the Public Utility, Communications and Technology Commission. Chapter 2.29.030 of the Duarte Municipal Code states “The duties and functions of the commission shall be to act in an advisory capacity to the city council and city manager with respect to matters affecting and relating to the following: telecommunications; cable and satellite communications; public access channels; audio and video services; broadband and internet services and issues; refuse and trash collection; recycling programs; transit; environmental quality; public utility services within the city; green technologies and advancing the "greening of Duarte"; to serve as a hearing board for subscriber complaints….”. Encouraging this commission to be more active will give the city an internal sounding board as policy updates and changes are contemplated Capital Improvement Plans
A Capital Improvement Program (CIP) outlines the planned and ongoing capital projects for a city that maintains or replaces existing infrastructure assets such as

streets, sidewalks, lighting, parks, and wastewater/sewer lines, facilities, or construct new assets. Long-range projects may involve significant excavation and improvements that provide the opportunity to jointly deploy broadband assets at incremental cost, typically through adding communications conduit to open trenches/excavation, or by planning for wireless/Wi-Fi capabilities and smart city applications on poles, public buildings, or other public areas.

Capital improvement projects should be reviewed in the planning stages from a broadband perspective – is there an opportunity to jointly install communications conduit while a trench or other excavation takes place or to include other broadband support assets. Opportunistic adding of broadband assets during other planned construction provides significant cost savings and can, over time, assist in incrementally building a robust public fiber optic network, in the context of a broadband strategic plan where broadband network design goals can be matched with opportunities to place broadband infrastructure.

Many types of projects include opportunities for inclusion of broadband and internet connectivity. Parks and Recreation projects can provide opportunity for installation of Wi-Fi connectivity, Smart City applications, and connection of city assets. Traffic projects provide the opportunity for connecting city assets, conduit and fiber placement and Smart City applications. Streets, bridges and crossing projects also provide these opportunities as do water, sewer and storm drain projects, and electric utility undergrounding, SCADA and AMI projects, some of which may be eligible for infrastructure funding.

Review of the City’s Capital Improvement Projects suggests key large-scale opportunities exist for the City to include broadband considerations in the early planning stages in the significant street rehabilitation, traffic signal improvements and underground utilities projects planned or being considered around and for Huntington Drive.

Permit Conditions and Trench Repair Policy
In October 2019 the City adopted General Permit Conditions and Trench Repair Specifications policy. The policy notes that utility cuts in pavement cause damage that reduce the level of service of the street, and that one estimate of the reduction in

pavement life due to a utility cut is from 20 to 56% of the original life of the pavement.

The policy is designed to comprehensively address procedure for working in public rights of way to avoid and mitigate these negative impacts through utility coordination and standards and specifications. The policy imposes a five-year moratorium on utility excavation after a street is paved or resurfaced. This serves to encourage coordination of construction activity in the public rights of way.

These policies can be leveraged for placement of broadband infrastructure to a greater degree in the new broadband policy environment. In particular, capital improvement projects in the planning stage should include consideration of placement of conduit and potentially fiber optic cable when significant excavation involving public rights of way will occur. The consideration should include addressing the question whether there is an opportunity with the project to fill gaps in City fiber optic facilities or extend the network further toward City sites which need broadband connections.

Broadband is critical infrastructure and general plan elements should incorporate actions which support expansion of broadband infrastructure. Design and development processes and documents need to include broadband as a fundamental consideration.

Capital improvement projects around Huntington Drive may present the largest opportunities for this.

Micro-trenching
Cities have been mandated in California to allow the use of “Micro-trenching” which is a process where a narrow slice is cut in the roadway at a relatively shallow depth, conduit containing fiber optic cables is laid in the small trench created, and then material is backfilled over the conduit and the trench is sealed. Since micro-trenching is initially much cheaper and faster than other more traditional excavation methods like trenching or boring, there has been increasing interest among some service providers to deploy additional fiber facilities using micro-trenching. Service providers supported legislation in the California Assembly (Senate Bill 378) which required cities and local authorities to allow use of micro-trenching, which passed and went into effect January 1, 2022.

Local agencies are now required to “allow micro trenching for the installation of underground fiber if the installation in the micro trench is limited to fiber, unless the

local agency makes a written finding that allowing micro trenching for a fiber installation would have a specific, adverse impact on the public health or safety.” 26 Senate Bill 378 provides relevant definitions:
“micro trench” is defined as a narrow open excavation trench that is: (1) no wider than 4 inches; (2) at a depth of 12 to 26 inches; and (3) created for the purpose of installing a subsurface pipe or conduit. 27
“fiber” includes fiber optic cables, and related ancillary equipment such as conduit, ancillary cables, hand holes, vaults, and terminals. 28 Micro-trenching’s shallower depth often is considered undesirable for long term health of City streets as it inevitably requires additional maintenance and reduces lifespan.

Also, the practical experience in some cities has not been good including such issues as having to “chase” contractors around to get them to properly restore the pavement after the project.

Initial review suggests that there has not been much demand from utilities and contractors for use of micro-trenching in Duarte and that the City does not have policy or Standard Drawings for micro-trenching. The City could consider adoption of a Standard Drawing to spell out requirements for construction, maintenance and restoration of pavement associated with the micro-trenching mandate. For example, the City of Pasadena has adopted such a standard drawing (S-427).

FCC Wireless Policies
FCC Regulation of Radio Frequency Emissions
The placement of wireless facilities is governed by an interrelated legal framework characterized by shared jurisdiction between state (e.g., cities and counties, and the California Public Utilities Commission) and federal authorities (the Federal Communications Commission or FCC, and Congress). However, from time to time, the 26 Government Code § 65964.5(b)(1).
27 Government Code § 65964.5(a)(3).
28 Government Code § 65964.5(a)(1).

Federal Communications Commission (and Congress) has preempted or sought to preempt the authority of state and local jurisdictions over wireless matters.

In one specific area—radio frequency (RF) emissions—the Federal Communications Commission (FCC) has been assigned complete (preemptive) regulatory jurisdiction by Congress, under the 1996 Telecommunications Act. TA96 preempted local regulation of RF safety standards in favor of a uniform national RF safety standard under FCC jurisdiction. 29 Local authorities can require compliance with these national FCC RF standards be demonstrated in evaluating 5G siting applications. Applicants often make this demonstration part of the application package, and many cities have ordinance or standards and guidelines provisions that require RF compliance be demonstrated by applicants. Local authorities may not however deny wireless communications facilities siting applications based on RF emissions – Congress has preempted local authority on this subject and placed jurisdiction in the hands of the FCC.

The FCC determined in 2019 that no update to its guidelines for exposure to RF emissions was required to move from 4G to 5G equipment. 30 These limits for RF exposure were last updated by the FCC in 1996. 31 The FCC’s 2019 decision was appealed by several parties arguing the FCC did not address evidence and implications of technological developments since 1996 including ubiquity of wireless devices and Wi-Fi, and development of 5G technology. The Court of Appeals for the District of Columbia agreed with these arguments and remanded that decision back to the FCC to provide “a reasoned explanation for its determination that its guidelines adequately protect against harmful effects of exposure to radiofrequency radiation unrelated to cancer.” 32 The FCC has not yet acted on the Court’s remand. The reasons for the FCC’s failure to act are not known. There is a potential for change to the RF emission standards depending on if and when the FCC acts. 29 47 U.S.C. § 332(c)(7).
30 Resolution of Notice of Inquiry, Second Report and Order, Notice of Proposed Rulemaking, and Memorandum Opinion and Order, FCC 19-126, released December 4, 2019. 31 Id., at paragraph 6.
32 Environmental Health Trust, et al. v. Federal Communications Commission and United States of America, No. 20-1025, Decided August 13, 2021 (DC Cir.), at page 30.

See the FCC’s Consumer Guide on Wireless Devices and Health Concerns for further information on safe levels of exposure to RF energy. 33 See also A Local Government Official’s Guide to Transmitting Antenna RF Emission Safety for further information on the FCC’s RF emission rules. 34
FCC Small Cell Order and “5G Upgrade” Declaratory Ruling As 5G wireless service began to emerge the FCC acted on petitions from wireless carriers seeking preemption of local authority. The FCC issued its 2018 “Small Cell Order” in response to these petitions. 35 After the Small Cell Order, the FCC made a Declaratory Ruling which further expands preemption of local authority regarding placement of wireless facilities. The Declaratory Ruling36 was issued on June 10, 2020, and “clarifies” existing FCC rules originally adopted in 2014 to implement the “eligible facilities requests” defined in the Spectrum Act.

Specifically, our Declaratory Ruling clarifies our rules regarding when the 60-day shot clock for State or local government review of modifications of existing structures commences.8 We also clarify what constitutes a “substantial change” in the physical dimensions of wireless infrastructure under our rules, and the extent to which certain elements of a proposed modification to existing infrastructure affect the eligibility of that proposed 33 Consumer Guides, Wireless Devices and Health Concerns, Federal Communications Commission. Wireless Devices and Health Concerns | Federal Communications Commission (fcc.gov) (viewed April 12, 2024).
34 A Local Government Official’s Guide to Transmitting Antenna RF Emission Safety: Rules, Procedures, and Practical Guidance; Local and State Government Advisory Committee, Federal Communications Commission, June 2, 2000. FCC LSGAC RF Guide for Loc. Off'l's (cabq.gov)
35 Declaratory Ruling and Third Report and Order; In the Matter of Accelerating Wireless Broadband Deployment by Removing Barriers to Infrastructure Investment; WT Docket No. 17- 79; In the Matter of Accelerating Wireline Broadband Deployment by Removing Barriers to infrastructure Investment; WC Docket No. 17-84; Released by the Federal Communications Commission, September 27, 2018. (“Small Cell Order” or “Order”.) 36 In the Matter of Implementation of State and Local Governments’ Obligation to Approve Certain Wireless Facility Modification Requests Under Section 6409(a) of the Spectrum Act of 2012, WT Docket No. 19-250 and RM-11849, FCC 20-75 (released Jun. 10, 2020)

modification for streamlined State or local government review under section 6409(a). 37
Under the Declaratory Ruling, applicants can now start the shot clock with the first procedural step required by the City (e.g., a pre-application meeting) and submission of documentation demonstrating the proposed modification is an eligible facilities request. 38 The Declaratory Ruling also provides additional interpretation on what constitutes “substantial change” for height increases for towers outside the public right of way 39, details on equipment cabinets 40, further explanation regarding “defeat” of concealment elements 41, and siting approval conditions 42.

The Spectrum Act and “Eligible Facilities Requests”
37 Id., at paragraph 4.
38 If a city does not have a Section 6409/”eligible facilities request” process in place, the applicant can start the shot clock by filing documents that are typically required for a zoning or siting review. Duarte does have this process included in Chapter 12.20 of the Duarte Municipal Code, Wireless Communications Facilities in the Public Rights-of-Way. 39 Section 6409 defines substantial change pertaining to modification of a tower located outside of public rights-of-way as one which “increases the height of the tower by more than 10% or by the height of one additional antenna array with separation from the nearest existing antenna not to exceed twenty feet, whichever is greater.” The Declaratory Ruling clarifies that “separation from the nearest existing antenna” means the distance from the top of the highest existing antenna on the tower to the bottom of the proposed new antenna to be deployed above it.
40 The Declaratory Ruling clarified that small pieces of equipment such as remote radio heads/remote radio units, amplifiers, transceivers mounted behind antennas and similar devices are not “equipment cabinets” if they are not used as physical containers for smaller, distinct devices. Also, the maximum number of additional equipment cabinets that can be added under the rules is measured for each separate eligible facilities request, rather than the cumulative number of equipment cabinets on the site.
41 The Declaratory Ruling stated to “defeat concealment,” the proposed modification must cause a “reasonable person” to view the structure’s intended stealth design as no longer effective after the modification.
42 The Declaratory Ruling clarifies a municipality may not impose and enforce conditions on approvals for wireless facilities that then prevent future modifications or upgrades that are otherwise eligible facilities requests.

Prior to the Small Cell Order, the “Spectrum Act” enacted by Congress in 201243 added new requirements and directives to the Federal Communications Commission (FCC) for processing and approval of then-prevalent 4G wireless deployments. Following the Spectrum Act, the FCC issued new regulations to interpret and implement the Section 6409(a) requirements and directives of the Act related to local authorities processing of applications for wireless communications facilities.

In brief, the Act tightens the application of “shot clock” timelines, and requires local jurisdictions to approve certain collocations and modifications to existing wireless communications facilities under shortened explicit deadlines, if it is an “eligible facilities request” —any request for modification of an existing tower or base station that does not substantially change the physical dimensions of such tower or base station, involving (1) collocation of new transmission equipment; (2) removal of transmission equipment; or (3) replacement of transmission equipment.

The new FCC regulations established defined standards for what for “substantial change” and implemented the statutory changes to “shot clock” regulations. In short, under these rules, a State or local government shall approve within 60 days any request for modification of an existing wireless tower or base station that does not substantially change the physical dimensions of such tower or base station. The Rules adopted by the FCC are preemptive and apply to cities and other local authorities. The City has included these rules in Chapter 12.20 of the Duarte Municipal Code.

The FCC’s Site Modification Report and Order 44
Based on petitions from the wireless industry, in November 2020 the FCC revised the definition of “substantial change” for modifications of existing towers outside the public right of way. An eligible facilities request may now include a modification of an existing tower outside the public rights-of-way that entails ground excavation or deployment of transmission equipment up to 30 feet in any direction outside the boundaries of a site. 43 See Middle Class Tax Relief and Job Creation Act of 2012, Pub. L. No. 112-96, 126 Stat. 156, § 6409(a) (2012) (“Spectrum Act”), codified at 47 U.S.C. § 1455(a). 44 In the Matter of Implementation of State and Local Governments’ Obligation to Approve Certain Wireless Facility Modification Requests Under Section 6409(a) of the Spectrum Act of 2012, WT Docket No. 19-250, Report and Order, FCC 20-75 (Rel. Nov. 3, 2020) (“Site Modification Report and Order”).

Other eligible support structures besides towers outside the public right of way are not affected by this revised definition. This change by the FCC is intended to facilitate addition of equipment to existing towers to expand 5G capacity. It is expected this rule change will allow additional providers to collocate on towers and allow additional equipment (fiber terminations, cabinets and power supply, backup power, etc.) to be placed to expand 5G services.

The FCC also expanded on the definition of a “site” such that it “refers to the boundary of the leased or owned property surrounding a tower and any access or utility easements currently related to the site as of the date that the tower or base station was last reviewed and approved by a state or local government”. 45 Wireless Policy in Duarte
The City administers two ordinance chapters devoted to wireless facilities. • Chapter 12.20 of the Duarte Municipal Code, Wireless Communications Facilities in Public Rights of Way was adopted in June 2014 and pertains to larger support structures such as towers placed for 4G wireless services. Adoption of this ordinance was based on 4G wireless technology and predates 5G small cell technology. Installations which are not exempt require application for a special telecommunication permit reviewed and approved by the Architectural Review Board under the site plan and design review process. “Eligible facilities requests” not involving “substantial change” (per FCC requirements under the Spectrum Act) are exempt from this provision and instead are processed for an administrative use permit. Specific development standards apply to all special telecommunications and administrative use permits for wireless telecommunications facilities, including required use of camouflage design techniques and undergrounding, and maintenance requirements. Testing, measurement and documentation of radio frequency radiation against the FCC standards is required to be submitted to the City in writing. Submittal requirements and other provisions are comparable to those of other cities in California.
• Chapter 19.60.190 of the Duarte Development Code, Wireless Communications Facilities, addresses placement of wireless antennas outside the public rights of way to establish wireless communications facilities for the public convenience while addressing concerns over aesthetic issues. This chapter includes general standards, and other regulations regarding the WCF and site requirements.
45 “Small Entity Compliance Guide”, Implementation of State and Local Governments’’ Obligation to Approve Certain Wireless Facility Modification Requests Under Section 6409(a) of the Spectrum Act of 2012, Report and Order, FCC 20-153, WT Docket No. 19-250, Released November 3, 2020, dated January 4, 2021.

The FCC’s Small Cell Order in 2019 prompted many cities to adopt ordinances, design standards and guidelines, and Master License Agreement templates for use in deployment of 5G antennas by Verizon, AT&T Wireless and T-Mobile or their infrastructure contractors (such as Crown Castle). It does not appear that Duarte has adopted any of these policy documents. The lack of a defined approach to placement of 5G antennas using template contractual documents (the MLA) may inhibit wireless providers from approaching the City for 5G deployment, and likely impedes wireless provider engineers and contractors from conducting detailed engineering studies prior to approaching the City. We recommend the City consider establishment of a small cell ordinance (perhaps based on the ordinance in place in Monrovia), a Master License template and an application submittal checklist for wireless providers to use as well as making available to them the results of the broadband survey (which demonstrates residents want alternatives such as fixed wireless) and GIS-located cityowned streetlights which could be used for 5G antennas under an MLA. This should be supported by an “FAQ” section on the city’s website pertaining to 5G deployment.

Entrust Solutions can assist the city on all these tasks.

Master License Agreement
Use of Master License Agreements has emerged as a key practice for cities and counties to deal with the large number of pole attachments that are associated with 5G deployment. An MLA establishes the procedures, terms and conditions under which licensees (wireless providers or their agents) may request individual pole licenses for attaching antennas to City poles and structures. The MLA is a comprehensive document that contains uniform terms and conditions applicable to all wireless facilities installed on City-owned poles. Individual pole licenses identify the licensed pole and contain detailed exhibits for the site plans, permits, fee schedules, insurance documentation, and other materials that are unique to each site. When the City grants a pole license, that pole license (together with all the plans, equipment specifications and fee schedules) become integrated with the MLA.

Use of an MLA framework provides for a level playing field since the MLA format remains essentially the same regardless of licensees. Each wireless service provider executes a separate MLA with the City that entitles them to obtain pole licenses on a first come, first-served basis for a specific time. Thus, one set of rules is used for all

wireless service providers which in turn reduces the administrative burden on the City and promotes a level playing field among competitive licensees.

The wireless service providers benefit from use of an MLA to license existing City– owned infrastructure to install small cell facilities rather than bearing the time and cost of negotiating individual pole licenses. This more streamlined process accelerates the deployment of advanced wireless facilities. The City benefits from use of an MLA as well by establishing more robust wireless broadband networks available to the City’s residents and businesses, maintaining greater control over aesthetics and potential liability from wireless facilities on City-owned poles, and earning license revenues which help defray the costs of managing and administering access to the public rightsof-way and recognize the value of attaching to City assets.

Consideration of an MLA may be especially important for the City since it owns many streetlights.

Additional FCC Matters
Affordable Connectivity Program (ACP)
In late 2021, the Federal Communications Commission launched the Affordable Connectivity Program (ACP) to help households secure affordable broadband by subsidizing up to $30 per month for an internet subscription. The ACP was intended to ensure that low-income households have broadband connections for work, school, healthcare and other needs. The ACP offered eligible low-income households discounts off the cost of broadband service and connected devices – households with incomes less than 200% of the federal poverty guidelines are eligible for the subsidy.

WIC (Special Supplemental Nutritional Program for Woman, Infants and Children) was added for qualification for ACP benefits based on the Infrastructure Investment and Jobs Act of 2021. 46
46 These criteria include participation in other assistance programs such as SNAP, Medicaid, Federal Public Housing Assistance, WIC, Supplemental Security Income, Veterans Pension or Survivor Benefits, or the FCC’s Lifeline program; benefiting from the free and reduced-price school lunch program or school breakfast program; federal Pell Grant participation; or meets the criteria of the participating broadband provider’s program. See, “Affordable Connectivity Program”, Federal Communications Commission, https://www.fcc.gov/acp

Broadband internet access providers had the choice of whether to participate in ACP.

All the large broadband providers and many other broadband providers did participate in ACP. The broadband providers were reimbursed from the FCC’s Universal Service Fund for the $30 per month discount provided to each eligible household.

Unfortunately, because of budget impasses in Congress, there is no further funding for ACP and the FCC had to wind down the ACP in Spring 2024. 47 ACP was a very popular program and there is some prospect an ACP-like program will emerge again.

In fact, recently the Senate Commerce Committee included $7 billion in funding for ACP in passing the PLAN for Broadband Act (S. 2238) in July 2024. 48 Ultimate passage in the Senate and the House is uncertain, however. The City should monitor for this event and consider taking outreach steps to eligible residents of Duarte if an ACP-like program reemerges.

Multiple Tenant Environments (MTE)
The FCC has modified its regulations for MTEs multiple times to support consumers’ increasing reliance on broadband internet access “for employment and educational opportunities, access to health care services, civic and social engagement, and entertainment”. 49 The FCC seeks to accelerate deployment of broadband internet access in MTE environments and increase access to MTEs for internet service providers. MTEs present unique considerations for installation of broadband infrastructure because there are three interested parties: the consumer, the service provider, and the owner of the premises. MTE regulations are important because “thirty percent of Americans live in apartments or condominiums, and millions more work 47 Affordable Connectivity Program: the ACP is Winding Down, Federal Communications Commission. Affordable Connectivity Program | Federal Communications Commission (fcc.gov) (viewed April 11, 2024).
48 Senate Panel Approves $7 Billion for Affordable Connectivity Program (broadbandbreakfast.com)
49 Improving Competitive Broadband Access to Multiple Tenant Environments et al., GN Docket No. 17-142 et al., Notice of Proposed Rulemaking and Declaratory Ruling, FCC 19-65, released July 12, 2019, ¶ 2. Multiple Tenant Environments or “MTE” is an evolution from the term “MDU” or multiple dwelling units. MTEs are defined as commercial or residential premises such as apartment buildings, condominium buildings, shopping malls or cooperatives that are occupied by multiple entities.

every day in office buildings.” 50 Furthermore, “MTEs disproportionately serve residents in lower-income and marginalized communities”. 51 The COVID pandemic brought sharply into focus the importance of broadband internet access and the dimensions of the Digital Divide. Competitive choice of communications providers in MTEs continues to be a priority at the FCC for those reasons.

The FCC in its 2022 MTE Order adopted new rules and clarified existing rules to promote tenant choice and competition in the provision of broadband internet access services in multiple tenant environments. The MTE Order prohibit telecom carriers and multichannel video programming distributers (or “MVPDs”, including cable companies and direct broadcast satellite) from entering into exclusive and graduated revenue sharing agreements, to disclose to tenants the existence of exclusive marketing arrangements and to prohibit sale-and-leaseback arrangements between MPVDs and MTE owners. Among other impacts these practices may have the ripple effect of creating hesitancy among providers to “pass” MTEs given the uncertain prospects of serving consumers in the MTE, which impacts all consumers in the area – not just the MTE tenants.

While the FCC does regulate access to MTEs the rules need to be properly understood for what they do and do not require or prohibit.
• The rules apply to providers, not landlords. So the building owner may still choose the providers it allows into the building including allowing only one provider to provide broadband internet access services. • “Bulk billing” arrangements are allowed so long as they are not tied to exclusive building access rights. Under these “bulk billing” arrangements tenants may be billed a pro rata share of the cost by either the landlord or the service provider. 50 Id., at paragraph 1.
51 Improving Competitive Broadband Access to Multiple Tenant Environments, GN Docket No. 17-142, Report and Order and Declaratory Ruling, FCC 22-12, released February 15, 2022, ¶

1. (MTE Revenue Sharing and Exclusive Marketing Agreements, Sale and Leaseback Arrangements Order, or 2022 MTE Order.)

Communications Service Provider Choice Ordinance
The City of Oakland has a service provider choice ordinance which was passed in 2021. Chapter 8.66 of the Oakland Municipal Code is based on findings that “Oaklanders expect to be able to choose among different [communications services] providers” but “some customers only have one option for service. This is particularly true for occupants of residential and commercial multiple occupancy buildings.” Oakland found it “can use its police power to facilitate opportunities for access to multiple occupancy buildings by communications service providers to enable occupants to obtain communications services from the providers of their choice, while respecting the rights of property owners.” 52 The Choice ordinance further provides:
• The property owner shall not interfere with an occupant’s choice of service provider.
• The property owner shall not retaliate against the occupant for requesting or obtaining service from a chosen service provider.
• A process by which a communications service provider inspects the building to determine feasibility of providing service.
• A process and requirements by which a communications service provider provides notice to the property owner of intent to provide service. • Circumstances under which the property owner is allowed to refuse access to a communications service provider.
• Permitted limitations and conditions which may be required by a property owner for access of a communications service provider to the property. • The just and reasonable compensation a property owner is entitled to from a communications service provider.
• Requirements for notification to occupants.
• Enforcement and penalty provisions.

The City of San Francisco also has a similar ordinance. The City may wish to consider such an ordinance for Multi-Tenant Environments in Duarte based on comments made by survey participants. 53
52 Chapter 8.66—COMMUNICATIONS SERVICE PROVIDER CHOICE ORDINANCE | Code of Ordinances | Oakland, CA | Municode Library .
53 For example, one participant commented “I would like to have more options available for buying the service. Our building has been tied to Charter Spectrum for years and Frontier is still unavailable. My bill increases year after year, and there is nothing I can do about it. There is no real alternative.”

AT&T Statewide Abandonment of Copper Facilities
AT&T petitioned the California Public Utilities Commission54 to allow it to cease maintaining its copper-based network throughout the state of California, except where consumers have no alternative to AT&T service it would continue to maintain the copper network. On June 25, 2024 the CPUC dismissed this application with prejudice using strong language. 55
AT&T averred that 99.9 percent of the population of California has access to at least two other service providers as alternatives to “plain old telephone service” (POTS), and

99.7 percent have access to at least three alternatives. 56 AT&T further stated maintaining the copper network with its legacy telephone technology and obsolete equipment drains resources away from expansion of the broadband network. 57 AT&T claimed to be working diligently to boost fiber availability and adoption in low-income communities, 58 as well as “closing the broadband availability gap between urban and rural areas”. 59
As always, and especially in a statewide operation such as AT&T of California “the devil is in the details” and many individual customers would be affected by abandonment of copper network facilities. After the CPUC rejected AT&T’s petition, it opened a rulemaking to consider changes to the Commission’s Carrier of Last Resort 54 Amended Application of Pacific Bell Telephone Company d/b/a AT&T California for Targeted Relief from its Carrier of Last Resort Obligation and Certain Associated Tariff Obligations, Application A.23-03-003.
55 Decision Dismissing with Prejudice the Application of AT&T California to Withdraw as a Carrier of Last Resort; before the Public Utilities Commission of the State of California, Application of Pacific Bell Telephone Company d/b/a AT&T California for Targeted Relief from its Carrier of Last Resort Obligations and Certain Associated Tariff Obligations, Application A.23-03-003; Decision 24-06-024 issued June 25, 2024.
56 Id., at page 6.
57 Id.
58 Amended Application of Pacific Bell Telephone Company d/b/a AT&T California for Targeted Relief from its Carrier of Last Resort Obligation and Certain Associated Tariff Obligations, Application A.23-03-003, at page 12.
59 Id., at page 14.

rules 60. AT&T is making the same arguments in this rulemaking proceeding that it did in its Petition – that it should be allowed to terminate service over its copper TDM network due to “competition”. To plan for the eventuality that AT&T is allowed to terminate services over copper facilities, the City should identify each location in the City where it utilizes AT&T services over copper networks (if any) and consider alternative modes of provisioning communications to those locations and functions.

This could implicate a number of services or functions including basic telephone connections, alarm services, monitoring services, in home detention surveillance, elevator emergency phones, etc.

7. Gap Analysis
Overview
As the data collection portion of the study concludes, an in-depth analysis begins. With this study, the City of Duarte takes its first steps towards a promising path to improving its broadband infrastructure. Significant gaps remain that must be addressed to ensure comprehensive and equitable access to broadband internet. 60 Order Instituting Rulemaking Proceeding to Consider Changes to the Commission’s Carrier of Last Resort Rules; Rulemaking 24-06-012, issued June 28, 2024.

The City of Duarte needs clear, explicit goals for community connectivity, digital equity, and a plan to utilize existing public assets and future CIP project for broadband improvement.

The market assessment revealed that the broadband landscape in Duarte is dominated by Charter/Spectrum, with limited competition and high prices. Approximately 45% of residents have only one option for internet service, leading to an effective cable monopoly that restricts choice and drives up costs. While Charter’s network offers high download speeds, its limited upload speeds are insufficient for modern needs such as remote work, online learning, and telehealth.

The lack of committed expansion plans from incumbent providers exacerbates the problem, leaving large areas of the city without competitive broadband options.

The community survey and stakeholder analysis highlight widespread dissatisfaction with current broadband services, particularly regarding cost, performance, and lack of competition.

Addressing these gaps requires a multifaceted approach.

Documenting and mapping existing assets in a geo-coded format will enable better management and planning.

Formalizing the integration of broadband infrastructure into all relevant capital improvement projects through policies like joint trenching and dig-once will maximize deployment opportunities.

Encouraging new broadband providers to enter the market by streamlining the deployment process and promoting fixed wireless solutions can provide immediate relief while fiber infrastructure is expanded.

Collaborating with incumbent providers to develop and commit to expansion plans, especially in underserved areas, is crucial for meeting the increasing demand for highspeed internet.

Adopting comprehensive broadband-friendly policies will support infrastructure deployment and digital inclusion.

Developing a digital resource toolkit, establishing a utility coordination program, creating a technology enterprise fund, and expanding public Wi-Fi hotspots will further enhance connectivity and ensure equitable access to internet services across the city.

By implementing these recommendations, Duarte can support a more competitive broadband market, improve service quality and availability, and work to ensure that all residents have access to affordable, high-speed internet. This will support the community’s economic, educational, and social needs, fostering long-term growth and development.

Findings
This study indicates that the broadband landscape in Duarte is dominated by Charter/Spectrum, with limited competition and high prices. Most residents have only one option for internet service, leading to a monopoly that restricts choice and drives up costs. The lack of committed expansion plans from providers like Frontier exacerbates the problem, leaving large areas of the city without competitive broadband options. Without expansion and upgrades by the incumbents, or entry by a new market disruptor that brings FTTx services to the entire City, Duarte will not have the technology nor the competitive marketplace that can support the needs of residents and businesses. Fiber and non-fiber locations are shown in black. There is fiber access to approximately 55% of the broadband serviceable addresses, leaving almost half of the city without access to 1 Gbps symmetrical broadband service.

Fiber Broadband Serviceable Location Non-Fiber Serviceable Location Figure 45. Duarte broadband serviceable locations61
Broadband Accessibility Gaps
Current Status:

Duarte's broadband accessibility is hindered by a lack of competitive options and high service costs 62. Spectrum dominates the market, with limited competition from Frontier, 61 Source: https://broadbandmap.fcc.gov/home
62

resulting in high prices and reduced service quality. Many residents face affordability challenges, limiting their access to essential digital resources. The broadband market's lack of competition exacerbates these issues, affecting both residential and commercial users.

Accessibility Gaps Identified:

Single Provider Dominance: Charter Spectrum dominates the market, with 75% of survey respondents using its service. The absence of alternative broadband providers in substantial portions of the city limits the potential for innovation and prevents residents from benefiting from improved technologies and service plans. The dominance of a single provider also stifles market growth and competition. 63 Affordability: The high cost of broadband services creates significant affordability issues for many residents. Respondents reported paying Charter Spectrum an average of $0.38 per Mbps per month for 225 Mbps of throughput as compared to $.03 per Mbps for 1000 Mbps of throughput for Frontier’s fiber services. Affordability barriers prevent low-income families from fully participating in the digital economy and accessing online resources. 64
Lack of Options: Residents feel they are paying too much for internet service, especially for lower speed services with higher per Mbps costs but lack the ability to switch to another broadband provider. Nearly half the city could not change to another broadband service provider as no other provider exists.

Limited Fiber Reach: Fiber broadband providers within the city only reach 55% of the entire city area. 65 This means that some residential and commercial areas lack access to symmetrical high-speed internet, hindering digital engagement and economic 63 Duarte Broadband Access and Connectivity Infrastructure Assessment: Needs Assessment Community Survey
64 Duarte Broadband Access and Connectivity Infrastructure Assessment: Needs Assessment Community Survey
65 Duarte Broadband Access and Connectivity Infrastructure Assessment: Broadband Market Assessment Memo

development. Without an expanded fiber network, the city cannot fully support modern digital demands, impacting everything from remote work to educational opportunities. 66 Wireless Coverage Gaps: The cellular and fixed wireless service area in Duarte has significant coverage gaps, due to limited deployment of advanced technologies like 5G.

This inadequacy affects mobile service quality and limits the city’s ability to attract businesses and support technological innovation. The lack of robust wireless infrastructure impedes the city’s growth and technological advancement, affecting both business operations and residential connectivity.

Recommendations:

Advocate for Fiber Expansion: Develop a detailed plan for expanding The City’s own fiber infrastructure across the city where it makes financial sense. This plan should encompass identifying strategic locations for new fiber installations, integrating with existing infrastructure, and setting milestones for deployment. The plan should also address potential challenges such as geographic constraints and regulatory hurdles and propose solutions to overcome these barriers as well as develop funding models to address financial challenges for this type of undertaking. As part our current engagement ENTRUST is working on a basic concept design for expanding City assets that can serve as a backbone for a more detailed plan, should The City move in that direction.

The City should collaborate with existing broadband providers to formulate comprehensive expansion plans for fiber infrastructure, specifically targeting underserved areas within Duarte. By focusing on expanding fiber infrastructure, Duarte can enhance overall network performance, support high-speed internet access, and stimulate technological growth across the city.

Overall, a well-planned fiber expansion strategy will contribute to long-term economic development by attracting businesses, fostering innovation, and supporting digital 66 Duarte Broadband Access and Connectivity Infrastructure Assessment: Broadband Market Assessment Memo

transformation initiatives. By prioritizing fiber infrastructure, Duarte will position itself as a forward-thinking city that supports both technological advancement and economic growth, ultimately benefiting residents and businesses alike.

Additionally, the City should consider recruiting a new ISP to enter the market to increase competition and options for residents and businesses.

Promote Fixed Wireless: Encourage the deployment of fixed wireless broadband solutions as an interim strategy to address connectivity gaps while the fiber-optic infrastructure is being expanded. Fixed wireless technology can offer a practical and immediate alternative to traditional wired broadband options, particularly in areas where fiber infrastructure is not yet available. This technology can serve as an additional measure to improve connectivity while the long-term fiber expansion is underway. It will also offer immediate benefits by enhancing digital engagement and supporting economic activities in areas that currently lack adequate broadband access.

To ensure the effectiveness of this approach, establish clear service standards that focus on reliability, performance, and coverage. These standards should address key factors such as signal strength, data speeds, and network uptime, ensuring that fixed wireless solutions meet the necessary quality benchmarks. By setting and enforcing these standards, the city can provide a more reliable and consistent broadband experience to underserved areas. Ensuring that fixed wireless solutions meet performance expectations will be substantial in addressing the existing connectivity issues.

Create an Available Asset Portal: In conjunction with the Geo-Mapping initiatives, streamline the deployment process for City broadband infrastructure by implementing Master License Agreements (MLAs), in conjunction with digitizing the application process to utilize City assets. Allowing providers access to previously mentioned GeoMapping database for all broadband assets in one centralized location will allow broadband providers, FWA and cellular providers to effectively plan deployment timelines and buildout costs.

Additionally, the creation of a centralized application portal for all city assets for the purpose of reserving the use of specific assets will allow for more efficient coordination and planning between the city and private broadband providers. MLAs facilitate a more efficient permitting process by providing a standardized agreement for multiple projects, thus reducing administrative burdens, and expediting the installation of broadband infrastructure.

This streamlined approach is designed to attract new broadband providers by simplifying the regulatory environment and reducing barriers to entry. By providing a clear and efficient framework for deployment, Duarte can encourage a diverse range of service providers to enter the market, increasing competition and expanding service options for both residential and commercial users.

Gaps in Public Broadband Service and Infrastructure
Current Status:

The City uses commercial internet services for connectivity within its own facilities and has no fiber or conduit of its own. The inventory of 23 municipal and the other public and private anchor institution sites are all connected to individual commercial internet circuits. Duarte also owns 698 street light poles and manages 21 intersections with traffic signals. These assets are located throughout the city and could be utilized to support further broadband expansion and smart city applications. However, the city lacks fiber to connect these assets currently. This hinders future expansion efforts. 67 Gaps in Public Broadband Service And Infrastructure Identified:

No public fiber backbone: Public facilities could be connected to a leased or owned fiber network to improve speeds and connectivity and potentially save operating funds through group purchasing of broadband service. If this fiber network existed, it could be leveraged to expand community access to broadband.
67 Duarte Broadband Access and Connectivity Infrastructure Assessment: Asset Inventory Memo

Underutilized Municipal Assets: Duarte has municipal assets, such as street light poles which are not leveraged for broadband expansion. These assets represent opportunities for improving connectivity and attracting private investment without incurring substantial new costs.

Coordination Limitations: There is a lack of coordination between the city and other public entites engaged in broadband infrastructure planning and deployment. Effective coordination is crucial for integrating various infrastructure projects and ensuring timely deployment.

Recommendations:

Implement Broadband-Friendly Policies in All City activities:

Duarte should adopt and enforce policies such as joint trenching and dig-once ordinances to streamline the deployment of broadband infrastructure and support digital inclusion. Joint trenching involves coordinating the installation of multiple utilities within a single trench, which significantly reduces the need for repeated excavation and lowers overall infrastructure costs. This method not only minimizes disruptions but also accelerates the installation process. Similarly, dig-once policies require that any excavation done for infrastructure purposes include provisions for future broadband installations, preventing the need for further digging in the future.

These policies will facilitate more efficient and cost-effective expansion of broadband infrastructure, particularly in underserved and rural areas where such development is often limited by financial and logistical barriers. By incorporating these practices into municipal regulations, Duarte can reduce the costs associated with infrastructure development and encourage more rapid deployment of broadband services. A supportive regulatory environment is crucial for improving connectivity and addressing digital equity challenges.

To ensure the effectiveness of these policies, Duarte should develop a framework for monitoring and evaluating their impact on broadband deployment and digital inclusion.

Regular assessments will help determine if the policies are meeting their intended

goals and provide data for necessary adjustments. Engaging with local stakeholders, including utility companies, broadband providers, and community organizations, will also be essential to align the implementation of these policies with the needs and expectations of the community. Additionally, Duarte should commit to ongoing support and adaptation of these policies to address emerging challenges and opportunities in broadband infrastructure development. By continually reviewing and adjusting the policies, the city can maintain their relevance and effectiveness in promoting digital inclusion and infrastructure expansion.

Formalize Coordination:

Integrate broadband infrastructure planning into capital improvement projects and adopted joint trenching and dig-once policies to streamline infrastructure deployment and reduce associated costs. This approach involves incorporating broadband infrastructure considerations into the city’s overall capital improvement strategy, ensuring that new infrastructure projects, such as road repairs or utility upgrades, account for broadband needs. Implementing these policies will facilitate a more cohesive and integrated approach to infrastructure planning and development, laying a solid foundation for future broadband advancements.

Improved coordination between city departments, utility providers, and other stakeholders will further optimize resource utilization and avoid the duplication of efforts. Establishing a formalized process for collaboration and communication among these parties ensures that infrastructure projects are planned and executed in a synchronized manner. This collaborative effort will help align priorities, share resources, and leverage existing infrastructure to support broadband expansion.

Geo-Mapping Initiative:

The detailed geo-mapping will serve multiple purposes. It will identify existing coverage gaps and potential areas for expansion, allowing the city to make informed decisions about where to direct future investments and infrastructure improvements. This information is critical for optimizing resource allocation and ensuring that new developments align with current infrastructure capacities and future needs.

Additionally, the geo-mapping project will enable better management of existing assets by providing a clear overview of their status and utilization. This will facilitate more efficient maintenance and upgrades, as well as improve coordination among various stakeholders involved in infrastructure development and management. The enhanced planning capabilities will support more strategic decision-making and help prioritize projects that address the most pressing needs.

Overall, the geo-mapping initiative will not only aid in addressing current infrastructure gaps but also support long-term planning efforts by providing a robust foundation of data for future developments. This strategic approach will lead to more effective infrastructure development, ensuring that Duarte’s broadband network can meet evolving demands and support the city’s growth.

This study will provide the city with an initial GIS data set to begin this initiative.

Address Focus Group Concerns: Integrate feedback from residents who have reported challenges with current broadband services into the development of future infrastructure plans. Specifically, address issues such as high costs and inadequate speeds, as identified by recent focus groups and surveys. Use detailed feedback to guide the creation of an infrastructure plan that prioritizes areas with the most significant reported issues. This approach ensures that investments are made where they will have the most substantial impact on improving service quality and meeting community needs.

Establish mechanisms for ongoing resident engagement to continuously gather feedback and monitor service quality. This can include regular surveys, focus groups, and community forums, public meetings, or reporting tools to ensure that infrastructure plans remain responsive to evolving needs and priorities. By systematically incorporating resident feedback into infrastructure planning, Duarte will ensure that broadband services are more equitable, effective, and aligned with the community’s expectations and needs.

Recommendations:

Increase Awareness of Resources: To improve access to digital literacy resources, Duarte should launch a comprehensive marketing campaign that targets residents across the city. This campaign should include a multi-channel approach, utilizing social media platforms, and community events to disseminate information about available programs and resources. Collaborations with local newspapers, radio stations, and community newsletters can ensure that the message reaches a wide audience. The program should highlight the benefits of digital literacy programs and provide clear instructions on how residents can participate.

Additionally, creating online resources, such as a digital toolkit can serve as a central hub for information and updates (discussed in further detail later in this memo). This will help to increase awareness and accessibility, Duarte will help residents connect with the resources they need to improve their digital skills, support digital inclusion, and address gaps in knowledge and access effectively.

Subsidize Broadband Costs: Actively pursue state and federal funding opportunities to establish or expand programs that subsidize broadband costs for low-income families as well as for spending on additional infrastructure. For example, The Affordable Connectivity Program (ACP), which previously provided $30 per month for internet subscriptions, is now under consideration for an additional $7 Billion in funding to revitalize the program. 68
Duarte can explore and leverage new or existing financial assistance programs, or financial support aimed at reducing broadband costs. It is important for Duarte to engage with federal and state agencies to stay informed about relevant programs and opportunities that can assist in funding these initiatives Technology Enterprise Fund: Create and Implement a Technology Enterprise Fund: Establish a dedicated Technology Enterprise Fund designed to support and finance broadband infrastructure projects within Duarte. This fund will be primarily 68 https://broadbandbreakfast.com/senate-panel-approves-7-billion-for-affordable-connectivityprogram/

financed through revenue generated from leasing or monetizing city-owned assets such as utility poles, rooftops, and other infrastructure.

By leveraging revenues from leasing city assets, the Technology Enterprise Fund will create a sustainable financial mechanism to support critical broadband infrastructure improvements. This approach will not only facilitate the expansion of broadband services but also contribute to the city’s technological advancement and economic development. The fund will play a pivotal role in addressing infrastructure gaps, enhancing connectivity, and supporting Duarte’s long-term digital goals. The Technology fund should be established with these considerations as priorities.

8. Conceptual Network
To address many of the needs identified thus far, a conceptual network design has been completed to consider what a public fiber network might look like, cost and accomplish. The conceptual design includes the locations and type of infrastructure needed to address the needs of the Duarte community. It leverages existing infrastructure and planned projects and includes recommended new infrastructure such as fiber optic and wireless facilities to address the near- and long-term needs of residents, businesses, and community anchor institutions in Duarte.

Conclusions and Implications
The proposed conceptual network design aims to establish a city-wide ring network connecting 23 key city facilities and community institutions across four tiers. The initial focus is on Tier 1 facilities like the city hall and public safety sites, with subsequent phases expanding to include Tier 2 sites such as the county fire station and medical center, and Tier 3 educational facilities. The design is structured to address resource constraints, prioritize critical facilities, and accommodate future growth by utilizing a phased approach. Each phase is planned to be built incrementally, reflecting the city's priorities and grant availability, with a final phase dedicated to improving cell phone coverage in underserved areas.

The network design, covering a total distance of 10.8 miles, has an estimated construction cost of $6.86 million. This cost includes underground fiber cable installation and is based on current market conditions, with potential for cost adjustments based on detailed design and engineering assessments. The network's potential reach includes approximately 1,600 residences and businesses within 175 feet of the backbone, although connecting each address will require additional investment. The design not only aims to enhance public services but also explores opportunities for generating revenue through retail internet services and public-private partnerships.

Methodology
The first step of the conceptual design was an assessment of the Duarte area for existing public and private broadband assets and infrastructure that could be used, leased, shared, or otherwise leveraged to develop and construct a functional, yet costeffective broadband network. This included surveying and mapping several data sources available for use in the region, including public infrastructure, buildings, and/or facilities, conduit and fiber networks, communications towers, streetlights, traffic signals, state-wide middle-mile networks, and private telecom assets, including middlemile networks and data centers.

The city identified and prioritized 24 sites for the conceptual design. ENTRUST used this information, along with details about city assets that could enhance cell phone coverage, to design a backbone fiber optic network with a loop architecture in a 4- phase incremental approach. This loop design ensures uninterrupted, redundant services across the city, preventing any single point from causing a wide network outage. The conceptual design does not specify how the backbone will be deployed (e.g., aerial vs. underground), which can significantly impact construction cost estimates. Service drops/laterals were not included in the design, and a full engineering study would be needed to identify specific entry points for buildings and facilities and to determine the additional footage required for drops/laterals.

The conceptual network design is truly that – conceptual. It is not a full engineering study and does not account for specifics such as aerial vs. underground deployment, building entry locations, which side of the street a particular fiber cable is located, etc.

The conceptual design is intended to provide a roadmap for the city, and specific

projects undertaken should first complete a full engineering process that will conduct field surveys to verify existing data and assumptions to move the Conceptual Design to a High-Level Design (30% HLD), to a Low-Level Design (60% LLD), and ultimately to a Final Design (90%).

Results
Conceptual Network Design
The proposed conceptual network design was intended to efficiently connect the 24 identified city facilities and community institutions shown on Table 1 into a city-wide ring network. Additionally, ENTRUST sought to address the northeast portion of the city near the foothills that was identified as having poor cell phone coverage in the Market Assessment.

Facilities were divided into tiers with city facilities (city yard, city hall, etc.) in Tier 1, the county fire station and the medical center in Tier 2, and educational facilities in Tier

3. Tiers were used to guide the order in which the network is constructed with Tier 1 facilities being constructed first. A final phase was included in the conceptual design to address cell phone coverage issues.

A phased approach is used to recognize resource constraints, prioritize critical city facilities, provide flexibility relative to grant availability, and to reflect the city’s priorities for growth and connectivity. Phases can be further broken down into subphases or built incrementally and opportunistically through effective Capital Improvement Program (CIP) and utility coordination.

Table 13. Sites Connected to City Backbone Network in Conceptual Design Site Name Street Address Tier
Duarte Fitness Center 1600 Huntington Drive
Tier
1 Duarte Senior Center 1610 Huntington Drive
Duarte Teen Center 1400 Buena Vista Street
Duarte Public Safety/ Sherriff Satellite 1042 Huntington Dr.

Duarte City Yard 1850 Highland Avenue
Royal Oaks Park 2627 Royal Oaks Drive
City Hall 1600 Huntington Dr.

LA County Library - Duarte Library 1301 Buena Vista St.

Los Angeles County Fire Department - Station
44 1105 S. Highland Ave. Tier
2 City of Hope National Medical Center 1500 E. Duarte Rd.

Opportunities for Learning - Duarte 1008 Huntington Drive Tier
3 Anita Oaks DBA Foothill Oaks Academy 822 Bradbourne Avenue Berean Baptist Academy 2302 South Mountain
Avenue
Duarte Montessori School Inc. 1640 East Third Street
Maryvale Education Center 2502 Huntington Drive
City Of Hope Graduate School of Biological
Sciences
1500 E. Duarte Rd.

Andres Duarte Elementary School 1433 Crestfield Drive
Beardslee Elementary School 1212 East Kellwil Way
Royal Oaks Elementary School 2499 Royal Oaks Drive
Valley View Elementary School 237 Melcanyon Road
Duarte High School 1565 East Central Avenue
Mt. Olive Innovation and Technology High
School
1400 Mount Olive Drive
Northview Intermediate 1401 Highland
Duarte Unified School District Education Center 1620 E Huntington Dr Cell Phone Coverage / Street Light Overlay Tier
4 The resulting conceptual design is shown in Figure 1.

Figure 46. Proposed Conceptual Design
As previously mentioned, sites were organized into tiers to determine the phasing of the proposed conceptual network. However, due to the location of some sites and the need to efficiently build the network, some sites were not included in the phase that aligned with their tier. In some cases, sites are part of an earlier phase because the proposed route passes by them. In other cases, sites are addressed in a later phase because they are too far from the proposed route of that phase.

Berean Baptist Academy was not included in the conceptual design because it was too far from other sites to be served by the proposed city network. Phase 2 of the proposed conceptual network runs along Royal Oaks Drive and includes Royal Oaks Elementary School, even though the school is outside the city limits.

Sites and the phase in which they will be served by the proposed conceptual design are summarized on Table 2. The distance for each phase is on Table 3.

Table 14. Sites by Build Phase
Site Name Tier
Build
Phase
Duarte Fitness Center 1
Phase 1
Duarte Senior Center 1
Duarte Teen Center 1
Duarte Public Safety/ Sherriff Satellite 1
Duarte City Yard 1
City Hall 1
LA County Library - Duarte Library 1
Opportunities for Learning - Duarte 3
Duarte Unified School District Education
Center
3 Royal Oaks Park 1
Phase 2
Los Angeles County Fire Department - Station
44 2
Anita Oaks DBA Foothill Oaks Academy 3
Duarte Montessori School Inc. 3
Maryvale Education Center 3
Andres Duarte Elementary School 3
Royal Oaks Elementary School 3
Mt. Olive Innovation and Technology High
School
3 City of Hope National Medical Center 2
Phase 3
City Of Hope Graduate School Of Biological
Sciences
3 Beardslee Elementary School 3
Duarte High School 3
Northview Intermediate 3
Valley View Elementary School 3
Phase 4 Cell Phone Coverage / Street Light Overlay 4
Berean Baptist Academy 3 None
Table 15. Phased Implementation Plan Distance Summary
Phase
Distance
(ft)
Distance
(miles)
1 17,372 3.3

2 17,177 3.3
3 5,793 1.1
4 16,811 3.2
TOTAL 57,154 10.8
Network Passings Analysis
Evaluating the potential business case of using a public fiber network to sell retail internet services can identify opportunities for the city to leverage its asset for more than just public services. A public fiber network can help break down challenges to the digital divide, increase community access to high-speed broadband, generate revenue through leases and retail subscriber fees, and form the foundation for a public-private partnership with a qualified ISP.

Placing a 175-foot buffer around the conceptual backbone network and crossreferencing an address and business license database provides the ability to quantify the potential reach of the conceptual network to locations that can be economically connected into the City’s network (typically addresses falling within 175 feet is a feasible distance that can be bridged by a private ISP through last mile service drops).

Table 4 identifies the number of locations within the 175-foot buffer, broken down by phase.

Table 16. Addresses Located within 175' of Conceptual Backbone Design Phase
Total
Addresses
Phase 1 286
Phase 2 632
Phase 3 100
Phase 4 569

TOTAL 1,587
All 4 phases of the Conceptual Design would pass approximately 1,600 residences and businesses within 175’ of the backbone. However, individual service drops to connect each address to the City’s backbone will still be required, which will generate significant need for start-up capital.

Construction Cost Estimates
The estimated capital construction cost of the Conceptual Network Design (all phases) is $6.86M which includes estimated design and engineering and permitting for 10.8 miles of new conduit underground fiber cable installation (see Table 5 for a breakdown by phase). 69
Cost estimates for the Conceptual Design are only estimates based on existing market conditions and would be further refined upon completing design engineering and putting the project out for a public bid.

Construction estimates for conceptual designs need to make assumptions about construction methods (aerial vs. underground), which isn’t typically determined until the design engineering process. For purposes of these cost estimates all cost estimates assume everything is underground.

Table 17. Estimated Construction Cost by Phase
Phase
Distance
(ft)
Assumed
Cost per
Foot
($/ft)
Estimated
Total Cost
($ millions)
1 17,372 $120 $2,080,000
2 17,177 $120 $2,060,000
3 5,793 $120 $700,000
4 16,811 $120 $2,020,000
TOTAL 57,154 $6,860,000
The design engineering and field surveying process for future phases would verify and record all existing assets and could uncover additional assets that would reduce the 69 Construction costs are based on ENTRUST’s analysis of comparable cities, recent construction bids, equipment and material costs, and a regional assessment of the labor and construction market. An inflation factor has been included to address future, short-term cost increases.

need for some of the new construction, or identify cost-effective strategies, thereby lowering the total overall construction costs.

9. Business Model Evaluation
Cities are increasingly recognizing the value of next-generation broadband services for their communities, as these services positively impact economic competitiveness, workforce development, education, and municipal operations. To select the optimal business model for municipal broadband, local governments must consider community needs, market conditions, and their own organizational capabilities, weighing different investment and control levels against associated risks and rewards. The City of Duarte faces various options ranging from public policy-only approaches to full-scale retail internet services, each offering distinct benefits and challenges.

The analysis evaluates several business models for broadband deployment, including public policy, infrastructure-only, public sector connectivity services, open access/wholesale transport services, business-only retail broadband, and full retail broadband services. It also explores public-private partnerships (P3s), which can combine municipal and private resources to develop and operate broadband networks more efficiently. The choice of model affects control, investment levels, and the potential for leveraging existing infrastructure while balancing public and private goals.

Financial estimates indicate that operating a retail broadband service as a stand-alone entity is not sustainable for Duarte due to high costs and limited revenue potential. The analysis suggests a combination of public policy and public services provider models, with recommendations to support broadband expansion through capital improvement projects and technology funds, while exploring funding sources and strategic partnerships to enhance infrastructure and reduce costs.

Methodology
ENTRUST used the information gathered from the asset inventory, market analysis, needs assessment, gap analysis, and assessment of city policies to identify business model options for broadband expansion. ENTRUST considered opportunities for joint

build, partnership options, regional collaborations, the competitive environment, and funding options to determine which business model best suited the city.

Using construction costs and homes passed information from the conceptual design, ENTRUST estimated the viability of using the proposed network to provide retail broadband services to the businesses and residents of Duarte. Recommendations for the most appropriate business model structure was based on this evaluation.

Results
Cities are realizing the importance of next-generation broadband services to support the future of their communities. Evidence demonstrates that broadband services have a net positive economic and social impact to communities by enhancing competitiveness, workforce development, educational capabilities, municipal operations, and smart city deployment.

Figure 47. Factors to Consider when Choosing a Broadband Business Model To determine which business model for municipal broadband is best, local governments should understand various factors, such as: community needs, competitive market factors that define infrastructure options, and organizational and operational capabilities of the local government itself. The various business models involve different levels of investment and control that come with varying risks and rewards. The City of Duarte has numerous options – from a lassie-faire, public policyonly approach all the way across the spectrum to a full retail internet business.

Figure 48. Broadband Business Models Differing Levels of Control and Investment Business Model Options
Public Policy
In a public policy only business model, the municipality utilizes its public policy tools to influence how broadband services are likely to develop in its community. Public policies are shaped to streamline the processes of designing, constructing, and managing broadband infrastructure in a local government’s jurisdiction. Focus areas include right-of-way access, permitting processes and costs, construction practices and placement methods, franchise agreements, and utility fee assessments. Examples of broadband policies and standards include joint trenching and “dig once” policies, utility relocations, road moratoriums, and funding mechanisms for design, labor, and materials. This option is not considered a true business model but does impact the local broadband environment and is therefore included as one option.

The key to successful policy development and implementation is inter-departmental coordination and communicating the shortcomings in current practices and policies.

With a better understanding of interdependent responsibilities, policies can be improved. In addition, changes often come with an associated cost, so a municipality will often need to establish a fund to assist in the early adoption of certain policies.

Infrastructure-Only Provider
Cities that provide conduit and dark fiber services to local organizations are generally considered infrastructure providers. They lease these assets to community organizations, businesses, and broadband providers. These organizations use municipal fiber to connect to one another and to data centers to reach the internet, cloud services, and other content networks. Many municipal providers who have deployed these services began by building their own fiber networks to serve purely municipal functions. As their networks grew, they realized that these networks could provide access to local organizations needing fiber connectivity.

Dark fiber is the core product of most infrastructure providers and is generally used by businesses and community anchor organizations to reduce their telecommunication expenses and achieve higher bandwidth speeds. Typically, dark fiber strands are leased using a simple mileage-based price calculation to the end user. However, customers may require new construction to reach their facilities, resulting in construction costs to be incurred by the municipality and which will be charged back to customers to allow the municipality to recoup its investment.

Public Sector Connectivity Services
Public services providers use publicly owned fiber and broadband resources to interconnect multiple public organizations with fiber or wireless connectivity. These organizations are generally limited to the community anchors within their jurisdiction, including local governments, school districts, higher educational organizations, public safety organizations, utilities, and healthcare providers. Most of these anchors require substantial connectivity and often, the local government’s network can provide higher capacity at lower costs than these organizations are able to obtain in the commercial market.

Open Access / Wholesale Transport Services
Local governments that adopt the open-access model generally own substantial fiberoptic networks in their communities. Open access allows these local governments to “light” the fiber and equip the network with the electronics necessary to establish a transport circuit to interconnect service providers with the local network.

The concept of open access enables competition among service providers across a network that is owned by the local government. The municipality remains neutral and non-discriminatory and is open equally to any providers that seek to deliver services over the network. Service providers lease access to the network based on the amount of bandwidth required by the end customer and an established standard rate structure and terms of service. Open-access networks generally charge wholesale rates to retail broadband providers. They publish rates for competitive service providers, charging a monthly recurring fee based on bandwidth of the service utilized or a flat fixed fee per month. Services offered may include Internet, telephone, data connectivity (transport), and dark fiber.

Business-Only Municipal Retail Broadband Services
A common goal for municipalities that deploy broadband networks is to support local economic development needs. Local governments equip their business and industrial districts with fiber infrastructure through which they can provide cost effective, highspeed Internet and other data services to local customers.

Municipal business providers offer competitively priced Internet and communication services that are generally very competitive in the small and medium business market against other provider offerings. They compete on both price and quality, generally focused on the following value proposition, all at a lower monthly cost:
• Higher bandwidth, scalable to Gigabit speeds
• Symmetrical service, the same upload and download
• Higher quality fiber connections with less downtime and a stronger service level agreement
• Responsive local customer service
Full Retail Broadband Services
Municipalities that provide end user services to residential and business customers are considered retail service providers. Governments can offer triple-play services consisting of phone, television, and internet services, essentially becoming an equal competitor to incumbent cable and broadband providers, or, considering the consumer trend of “cutting the cord,” focus solely on offering internet/data services. As a retail

provider, the organization is responsible for a significant number of operational functions, including management of retail services, network operations, billing, provisioning, network construction, and general management.

Public-Private Partnerships
Public-private partnerships (P3s) are an emerging business model that provides an innovative solution to an ongoing municipal broadband issue: How does a local government invest in municipal broadband without operating a broadband network? Generally, P3s create a cooperative platform for a local government and one or more private organizations to plan, fund, build, and maintain a broadband network within the municipality’s jurisdiction. To make a P3 successful, each organization should align on negotiable agreements, which can include:
• Who has rights to access the network – is it exclusive or non-exclusive? • What are the public and private partners’ goals and how are they incentivized? • What roles and responsibilities does each partner have? • What assets are financed through the public?
• What revenue model is used to recoup investment?
• What requirements must the private partner meet, in terms of service availability, speed, price, build locations, and performance schedules? • How will the partners determine future buildouts and who pays for them? • What happens if the private assets are sold or acquired? The key factors that define a public-private partnership, as opposed to simply a customer-vendor relationship, is that: (a) all parties contribute, (b) each parties’ benefits are based on their contributions, and (c) one partner does not pay another; there are few or limited transactions between partners.

The business models in the middle of the continuum (Figure 2) accommodate, but don’t necessitate, a public-private partnership. The essence of such a partnership is that forprofit and for-people entities collaborate to achieve complementary, if not common, objectives. The bottom line for private entities is profit, while it is quality of place for public agencies. In concept, private entities can flexibly mobilize resources where there is money to be made and public agencies can redistribute resources to ensure no one is left out. A P3 can help realize both these outcomes: public involvement reduces risk to private investment, and private involvement enables faster and more extensive

execution. Generally, partnerships decrease risks while enabling larger or new forms of rewards.

Transport vs. Access Services
There are two general classes or types of services that can be provided over modern network infrastructure: transport or access. These services are complementary but involve different components and costs. Duarte could offer one or both services – either as a stand-alone enterprise or through a public-private partnership.

Transport services are dedicated services that typically come with guaranteed bandwidth and uptime commitments, which are referred to as service level agreements (SLAs). Transport services are variously referred to as “backhaul,” “bulk IP,” “carrierclass,” “enterprise,” “long-haul,” “managed,” “metro,” or “middle-mile” services, depending on the context. Generally, they are used by large organizations and institutions that have mission-critical needs for uninterrupted, high-speed broadband connections (government, education, medical, or large anchor enterprises, including ISPs).

Access services are relatively inexpensive, “best effort” services (e.g., “speeds up to 1 Gbps”). Access services are often referred to as “retail networks,’ and do not include any solid performance guarantees. This is the type of service offered to residents and businesses by incumbent internet providers such as AT&T or Comcast.

Transport Services
Transport services involve relatively few stable, but high-performance connections.

Users are major businesses and institutions, including network service providers. The service is moving information from one point to another, rather than leasing an asset, so the value comes from ensuring the information keeps moving. This requires equipment that lights the fiber, maintains connections, and transmits data as diagrammed in Figure 3. Some form of interconnection with other networks or services, which requires additional equipment, is commonly a part of transport service.

Figure 49. Transport Networks Architecture
Networks typically have a core network composed of a few centralized sites—called central offices, data centers, or headends depending on type of ISP—interconnected by fiber in a ring architecture. Core sites contain critical equipment to connect the local network to the global network. They must be secure, with reliable power and backups, and preferably centrally located. At least one site, but ideally two, must connect to high-capacity dedicated internet services, ideally via different providers with fiber following separate routes, for backhaul.

Transport customers typically have substantial network operations of their own that incorporate services where needed, which requires next generation technologies— specifically software-defined wide-area networks (SD-WAN) and sophisticated management systems. Customers may require dual-homed connections, which connect to the core site via two diverse routes, and redundant connections to cloud services, tier 1 ISPs, and other service providers.

Transport service providers often co-locate in other companies’ data centers to reduce costs. Access service providers generally prefer to own their core network sites, where they can access infrastructure called “pedestals” or “points of presence” (POP). This is changing somewhat with the emergence of wholesale open access infrastructure.

Interconnection sites between different providers ranges from massive data centers to relatively small structures.

Fiber
Transport
Ring
Management
IP Edge
Equipment
Core
Equipment
Bulk IP
provider
Bulk IP
provider
EMS/
Alarms

BSS/OSS IPAM
Optical
Line
Terminator
(OLT)
Splitter
Optical
Network
Unit (ONU)
Partner Provider Point of Presence (POP)
SGVFN

The network equipment required to deliver broadband services to customers is comprised of several functional groups and multiple components. All business models require core equipment, which must be supplemented with various types of access equipment and infrastructure.

Core Equipment
The core equipment aggregates traffic from all access equipment, connecting customers and routing their data to and from the IP edge equipment or other end-point destinations. Standard network protocols provide link redundancy and dynamic traffic re-routing in the event of an equipment failure or fiber cut. Core equipment can easily support thousands of customers and hundreds of gigabits of traffic throughput at deployment and will accommodate future system growth through the addition of service modules, optical interfaces, and/or software licenses.

Internet Protocol Edge (IP Edge) Equipment
Separate from the core switches, the network must maintain an “internet perimeter.” The internet perimeter will include internet routers and internet firewalls to be used to manage routing throughout the network. Firewalls will be utilized to protect critical back-office systems, including provisioning, network management, data storage, and other information. The two core switches will be interconnected to two internet routers providing redundancy for internet services in the event of a single interface or equipment failure. As mentioned above, backhaul circuits should be acquired from at least two providers using diverse paths.

The central office would house core and edge equipment for ISPs serving customers within the area. Other carriers could be co-located in these sites so circuits and traffic could be connected and routed to the rest of the world. Equipment and facilities requirements are reasonably modest—primarily separate, secure cages for providers and major network users to place equipment, along with environmental controls and clean, reliable power. We assume the central office would be the City’s data center.

Otherwise, costs to build out a data center, not including property acquisition or construction costs, could be an additional $500,000.

Access Services
The major difference between a local transport network and a fiber access network is the addition of access and distribution infrastructure, including hubs and multi-site terminals, illustrated in Figure 4. The core network delivers much the same functionality to broadband distribution hubs—also called points-of-presence (POP)—as to transport service customer sites. The dedicated connections function as feeder lines, which are also typically deployed in rings, between the core sites and distribution hubs. The core and feeder networks and hubs comprise the “transport” network.

Access requires additional equipment that supports connections to many customers.

Figure 50. Passive Optical Network (PON) Architecture
Feeder fiber connects optical line terminators (OLT) in the core sites to passive splitters called fiber distribution hubs (FDHs), typically in outdoor cabinet enclosures placed strategically throughout the service area. Splitters may also be located within the access POP itself. In areas where aerial fiber deployment may be used, FDHs may be placed aerially or transitioned from the aerial pole to a ground mounted FDH. As this plan is limited to assessing major corridors as fiber routes, we assume coverage is limited to customer premises within 175 feet of the backbone. This requires only a single FDH.

Core Network with
Other Core Sites
Management
Core Site
IP Edge Aggregation
Switches
Core
Tier 1 Routers
ISP
Other
Providers
Optical Line
Terminals
Fiber
Distribution
Hubs

The distribution network branches out from the FDHs. Multiple access lines drop off the distribution lines—hence the term “fiber drops”—via drop terminals into customer premises. Major sites can be directly and diversely connected to the core sites via “laterals,” basically putting them on the feeder network. The backbone fiber may be used for a distribution, feeder network, and/or laterals, as well as core network. The particular use of specific fiber strands is a matter of how they are spliced together and where they terminate. Indeed, a single fiber cable can accommodate multiple physically separate networks for purposes such as SCADA or traffic signal interconnection.

Hubs may be powered cabinets, prefabricated shelters, or existing structures with sufficient space for equipment racks and other components. Fiber in the routes analyzed above could connect retail service providers’ POPs anywhere in the City with backhaul via diverse routes to multiple upstream service providers for maximum fault protection. In practice, a distribution infrastructure can and should be built in a phased manner in response to consumer demand and/or in conjunction with other capital projects.

Feeder and Distribution Fiber
Feeder infrastructure that extends from the POPs to neighborhoods and business districts typically requires only a few fibers, at most a single 24-strand buffer tube. The backbone typically consists of 288-strand fiber therefore at least a hundred strands would be available for use as distribution. The estimated costs are based on feeder fibers are sized based on the demand forecast and sizing of each enclosure to ensure that each service area is well equipped for broadband services. These details are addressed in engineering design to get optimal coverage for the least practical costs.

Each OLT serves 512 subscribers at a 1:32 split. The number of POPs and OLTs per POP depends on the number subscribers. The cost includes OLT and backhaul hardware necessary to connect each POP to the core routers. In an actual design/implementation, each OLT would not need backhaul hardware, two line cards, 16 optical interfaces, etc.

Distribution fiber extends from the splitters in the FDHs to network access points (NAPs), or drop terminals, which connect individual fibers entering customers’ premises. NAPs may be attached to aerial strand, located in ground level pedestals or

placed in underground vaults or hand holes located near the sidewalk or curb in residential neighborhoods or business districts. NAPs are costed as an integral component of the distribution infrastructure estimates. Fiber distribution to NAPs will be sized based on the service area density to provide service to between 8-12 premises per NAP.

Fiber Service Drops
Fiber drops connect from each NAP to the customer premise equipment that delivers broadband service. At the customer premise, the drop cable terminates in a protective “clamshell” enclosure attached to a home or building for storage of slack and connection to the home equipment. Drop fiber may be installed aerially or underground, typically for a flat fee. Providers may charge additional drop costs for special circumstances such as burying fiber through difficult landscapes or under driveways.

The estimated average cost of a fiber drop at the time of this study, including all of these components and labor and recognizing that drops can vary greatly in complexity and distance, is $2,500.

Optical Network Terminal
An Optical Network Unit (ONU), sometimes called an Optical Network Terminal (ONT), serves as the demarcation point between the retail ISP’s fiber network and the router or firewall connecting to the customer’s local area network (LAN). There are two general methods for installing ONTs. The first method involves mounting an outdoor rated ONT on an exterior wall of the structure and extending service wiring inside the premise. The second method involves extending the fiber into the premise and installing an indoor-rated ONU inside. In either case, the ONT is typically installed somewhere near the fiber entrance and an AC power source. The ONT terminates the fiber based PON signals and provides customer access to their services through traditional copper interfaces. XGS-PON ONT’s supporting greater than 1 Gbps data service may also support optical small form-factor pluggable (SFP) interfaces for connection to enterprise-class LAN equipment.

Business & Service Model Evaluation
Key Factors Influencing Duarte Business Model Choices
ENTRUST considered the following questions when evaluating the optimal business model for Duarte:
• What opportunities exist for the City to leverage its existing infrastructure to provide additional broadband service options to unserved and underserved locations? • How might joint investment in broadband infrastructure be accomplished between the City and other public or private sector organizations?
• What legal and operational structures should be considered by the City and other organizations in use of the proposed infrastructure?
• How will the City balance private sector goals of revenue growth and profitability with public goals of providing affordable and available broadband services across the region? • How will future system expansion be handled between the City and private sector providers and what contributions will the parties make to this infrastructure? • What regional opportunities exist for collaboration?
Financial Analysis
The following financial analysis evaluates the estimated operational revenues and expenses, as well as the necessary start-up capital required, if the City were to monetize the proposed publicly-owned fiber optic network in the Conceptual Design by selling retail subscriber data services to residents and businesses – either as a standalone public enterprise, or through a public-private partnership (P3) with a qualified ISP.

This analysis is intended to assist the City in understanding the costs of monetizing a public asset, the value proposition of a private partner, where there is existing need to attract private capital, and how revenues can be leveraged in negotiations to secure the best position for the City. This memo is not a business plan or feasibility study and is not intended as a definitive financial statement or pro forma. Rather, it is intended as a tool to ensure the City has an overview of the potential revenues and expenses and the impacts of different business model approaches.

It is important to note that while the Conceptual Design was architected to interconnect critical City assets for improved City communications, the analysis does not consider or

estimate the critical value of those connections for improved municipal operations, cost savings and efficiencies, implementation of smart city devices, quality of place, attracting private investment, supporting economic development, or other broadband enhancements that can be realized through a robust public fiber network.

The analysis was based on the proposed ~10.8-mile City fiber optic network described in the Conceptual Design.

Entrust estimated potential revenues and operating expenses, as well as enterprise start-up capital expenses required to connect and serve retail customers, such as customer equipment, installation, and networking equipment. Notably, these start-up capital expenses are separate from network backbone and plant construction that would be necessary to construct the 4-phase conceptual design.

These operational and capital estimates were driven from a passings/buffer analysis of the total number of serviceable addresses within 175 feet of the conceptual backbone – a distance that can reasonably be connected via a standard service drop and customer premises installation. Addresses were pulled from a county-wide geo-located database of all addresses and shown in Table 1.

Table 18. Addresses Located within 175' of Conceptual Backbone Design Phase
Total
Addresses
Phase 1 286
Phase 2 632
Phase 3 100
Phase 4 569
TOTAL 1,587
The financial analysis made the following industry-standard assumptions that took a conservative – yet realistic – approach:
• 30% take rate
• $60/month for symmetrical 1 Gbps residential service
• Network maintenance = 3% of network value
• Interest rate = 6.5%
• Staffing levels assume new, stand-alone enterprise and use fully-loaded costs Modifications and changes to these assumptions that could be achieved through specific business model approaches are discussed below.

New stand-alone broadband enterprises require significant direct costs to deliver services, as well as a minimum level of staffing and industry expertise. Some municipalities – particularly ones that already operate an electric utility – may already have some of the support staff and infrastructure in place that can be leveraged for a broadband enterprise, such as billing support and software, fleet vehicles and maintenance, and even field staff. However, broadband typically has specific requirements with respect to equipment and technical expertise and is prohibited from being subsidized by any electric utility, which means new staff and assets specifically for broadband must be acquired.

The City of Duarte has expressed it does not have the capacity to assume control of a stand-alone enterprise; however, examining the anticipated revenues and expenses of such an endeavor can give the City a realistic understanding of the risks and investment needed to transform a public fiber network into a functioning, competitive retail broadband enterprise. Most of the cost drivers, staffing needs, and equipment listed in these estimates will be required whether the network is operated directly by the City or by a private ISP through a P3.

The analysis assessed the phased build-out scenario of the Conceptual Design which is shown on Figure 5.

Figure 51. Proposed Conceptual Design
The model assumes retail subscriber levels stabilize after 3 years, with 30% of all passings subscribing for retail internet service. That translates to 1,587 residential and business customers, and results in approximately $336,000 in annual gross revenues.

However, the requisite staffing and annual direct expenses to operate a retail network of that size are estimated at $1.7 million, broken down into various cost drivers as shown in Figure 6.

Figure 52. Average Annual Operating Expenses Estimate
The estimated earnings before interest, taxes, depreciation, and amortization (EBITDA) are estimated to exceed revenues by over $1 million, which makes the network unsustainable as a stand-alone enterprise. This is primarily due to the cost of maintaining a 10.8-mile network and the fixed costs of staffing necessary, coupled with a relatively small customer base.

Additionally, there is more than $8.74 million in start-up capital expenses that would be required to connect 483 customers, as shown in Figure 7. Start-up funding required speaks to the need for additional investment in the City’s network to transform it into a functional, sustainable retail subscriber network – capital that could be secured through debt, a General Fund loan/subsidy, or private investment.

Figure 53. Start-Up Capital Expense Estimate
TOTAL: $8,670,000
Soliciting a public-private partnership (P3) with a qualified ISP is one approach that can significantly reduce annual expenses by taking advantage of existing ISP operations, staffing, and experience. It is difficult to gauge the level of cost savings that individual ISPs can realize without access to proprietary financial data, but some general assumptions can be made.

ISPs typically already have many of the support staff already in place for other neighboring markets (billing, network operations and engineering, etc.), and can share these costs across multiple markets, thus eliminating the need for new hires. An ISP that is already working within the San Gabriel Valley region may be able to reduce the annual staffing costs shown in Figure 6 by as much as 50-70%.

IP Edge
10%
Customer
Equipment
3%
Network
Construction
79%
Service Installation
5%
Vehicle Purchase
3%

Additionally, ISPs have standard operating procedures and processes, and often have many of the technical field staff already in place, which can significantly reduce the costs of ongoing network maintenance by as much as 50-70%.

There are many opportunities within the projected operational expenses for additional cost savings, and many of these hinges on the individual ISP and their unique existing markets, equipment, staff, and resources. Further cost-reduction strategies could be identified through detailed negotiations and analysis in coordination with the City’s selected ISP partner.

If the City were to enter into P3 negotiations with an ISP based solely on the Conceptual Design, both sides would need to be creative and innovative to identify how to further reduce operating expenses and how to fund/recoup any start-up capital investment required. This could involve working with the ISP to evaluate all the expenses in greater detail, identifying potential synergies between the ISPs current operations and new markets in Duarte, and evaluating different growth models and timelines to spread costs out over longer periods.

Business Model Recommendation
ENTRUST recommends a combination of the Public Policy and Public Services Provider business models. Public policy recommendations from the Gap Analysis and Assessment of City Policies the City include:
• Implement a practice for each Capital Improvement Project to assess if it provides an opportunity to expand broadband infrastructure (e.g., through significant excavation for fiber optic facilities).
• Show readiness to support 5G deployment by adopting a Master License Agreement (MLA) and application checklist and communicate these along with the GIS location of city streetlights and survey results to service providers.
• Implementing a “consumer choice of broadband provider” ordinance like the one in Oakland for multi-tenant environments.
• Create and implement a Technology Enterprise Fund dedicated to supporting and financing broadband infrastructure projects within Duarte.

ENTRUST also recommends proceeding as a Public Services Provider to interconnect multiple public organizations with fiber or wireless connectivity. Seven of the eight city sites can be connected with the first phase of the proposed conceptual design which could also be used to connect city traffic signals and enable smart city applications.

Construction beyond Phase 1 can be built as funding becomes available.

Funding for the construction of the fiber backbone will be explored in greater detail in the identification of funding sources phase of this project but will include grants (CASF, EDA, etc.). This, along with the implementation of broadband friendly policies (utility coordination, CIP coordination, and development agreements) can be used to dramatically lower construction costs).

10.CIP Opportunities
Implementing broadband conduit installation as a standard part of city project planning is an effective, low-cost way for the city to incrementally add broadband infrastructure to the city’s assets. The City has a number of Capital improvement plans in process that represent opportunities for the city to install broadband conduit during the project with minimal disruption and cost to the project. As the City considers adopting a broadband orientation in all city activities, these projects are good candidates for broadband infrastructure inclusion.
riority
Funding
Remaining
Broadband
Opportunity Project Start Finish Description Possible Integration Total Funding Annual Category 2 Yes Yes Annual CDBG ADA Ramp Project 2021 2026 Intallation & repair of ADA ramps citywide Cost reduction, joing trenching $200,000 $50,000 Streets & Roads 1 Yes Yes Annual Trench Repair Project 2021 2026
Trench Repairs for various trenches citywide that are
failing Joint trenching, conduit installation $200,000 $40,000 Streets & Roads 2 Yes Yes Annual Street Rehab PS&E 2021 2026
Plan & Development of plans for annual street rehab
projects Integrate joint trenching planning $100,000 $20,000 Streets & Roads 1 Yes Yes Annual Concrete Repair Project 2021 2026 Removal and repair of concrete sidewalk, curb, gutter, a Join trenching, conduit installation $750,000 $150,000 Streets & Roads 2 Yes Yes
Kelwill & Buena Vista Traffic Signal
Installation 2026 2027 TBD
Cost reduction, joint trenching conduit &
fiber additions, upgraded 5g/LED poles for
future use. Coordinate with wireless carriers
to attach to existing poles while traffic
control in place. Possible LED streetlight
initiative. Pre-installed infrastructure for
intelligent traffic systems (ITS) $350,000 Streets & Roads 4 Yes Yes Huntington Drive Median Improvements 2026 2027 TBD Cost reduction, joint trenching conduit &
fiber additions, upgraded 5g/LED poles for
future use. Coordinate with wireless carriers
to attach to existing poles while traffic
control in place. Possible LED streetlight
initiative. Pre-installed infrastructure for
intelligent traffic systems (ITS) $5,000,000 Streets & Roads 2 Yes Yes
Huntington Drive Traffic Signal
Improvements 2026 2027 TBD
Cost reduction, joint trenching conduit &
fiber additions, upgraded 5g/LED poles for
future use. Coordinate with wireless carriers
to attach to existing poles while traffic
control in place. Possible LED streetlight
initiative. Pre-installed infrastructure for
intelligent traffic systems (ITS) $1,500,000 Streets & Roads 1 Yes Yes Royal Oaks Bike Trail Reconstruction 2026 2027 TBD Cost reduction, joint trenching conduit &
fiber additions, upgraded 5g/LED poles for
future use. Coordinate with wireless carriers
to attach to existing poles while traffic
control in place. Possible LED streetlight
initiative. $1,200,000 Streets & Roads

11.Funding Sources
There are five general means of paying for broadband infrastructure: debt financing, particularly municipal bonds, district fees, grants, and “pay as you go,” including incremental, joint, and opportunistic development to reduce costs, private investment, and revenue generation. These mechanisms are not mutually exclusive and can be complementary. For example, short-term debt may be used to generate revenue to fund additional development as well as pay off the debt. There are variations of each option and there are multiple ways to approach financing in general. All financing options must meet certain criteria for accounting and reporting and must be carefully managed to generate real returns.

BOND AND OTHER DEBT FINANCING
Traditional infrastructure development is funded via general obligation or revenue bonds.70 Municipal bonds generally have longer periods and lower risk, therefore lower rates, than corporate bonds and interest on these investments is tax exempt.

General Obligation Bonds
General obligation bonds, also known as GO Bonds, are backed by the credit and taxing power of the issuing municipality or jurisdiction rather than the revenue from a given project. These bonds are issued with the belief that the municipality will be able to repay the debt obligation through taxation or revenue from projects with no assets being used as collateral. The municipality will pay back interest and principal to all investors through normal taxes or specific bond issues that are approved by voters.

Revenue Bonds
These bonds are paid back via funds generated by the project itself. These projects can include a toll bridge, highway, local stadium, etc. Revenue bonds that finance income-producing projects are secured by a specified revenue source. These bonds are mostly issued by any government agency or fund that is managed in the manner of a business, such as entities having both operating revenues and expenses. Sometimes, a state or local government will create a special bond authority to oversee revenue bond-funded projects such as toll roads, bridges, airports, or low-income housing.

Private Activity Bonds
Local governments can issue private activity bonds (PAB) on behalf of private companies to build facilities or infrastructure for public benefit. Qualified bonds have lower interest rates and tax benefits. The Bipartisan Infrastructure Investment and Jobs Act includes an expansion of the 70 See https://broadband.money/lessons/munis for additional information about use of municipal bonds to finance broadband development.

qualified projects category for PAB program to develop broadband services in underserved geographic areas.71 The state would need to issue such bonds and they are primarily intended for rural areas, although could apply in under-served urban areas.

SPECIAL TAXING DISTRICTS
Special taxing districts have been used throughout the State of California to fund infrastructure investment including broadband. The most common special taxing districts are fire protection, health care, and water districts. Other types of special districts include sanitation, life support/EMS, transportation, libraries, and others. Community Service Districts are one type of Special District, which is “independent” in nature. In contrast, the County Service Area is “dependent” since it is governed and administered by the County.

Community Service Districts (CSD)
More than 300 communities formed community service districts between 1955 and 2005, under the previous laws.72 The purpose of CSDs was to have consistent and adequate service levels across large and diverse geographical areas within counties. The CSD statute was amended in 2005 to remedy its structure which had become convoluted over time and to convert it to modern statutory construction. In 2008, Senate Bill 1191 added provisions to allow a community services district to construct, own, improve, maintain, and operate broadband facilities and provide broadband services “if a private person or entity is unable or unwilling to deploy broadband services.” The CSD is obliged to transfer ownership and operation (or lease the operation) of the broadband facilities when that entity is “ready, willing, and able to take over the facility” or operation. The transfer or lease is to be at “fair market value.” 73 A CSD must be approved by the Local Agency Formation Commission (LAFCo) prior to undertaking the activity. Residents initiate the formation of a CSD through a petition or resolution at the county level. A CSD can issue bonds or form an improvement district to support bond issuance. Property owners will pay taxes or special assessments for services including infrastructure development within the district. The CSD may be governed by an independent board of directors.

Community Facilities Districts
The Mello-Roos Community Facilities Act of 1982 allows establishment of Community Facilities Districts (CFD) to support financing of public improvements and services by a county, city, 71 See https://www.hklaw.com/en/insights/publications/2022/04/qualified-broadband-projectsadded-to-private-activity-bonds and https://www.ice.com/insights/fixed-income-data/municipalbonds-and-internet-access-improving-the-united-states-most-inequitable-infrastructure, and https://www.nabl.org/resources/iija/ for additional background. 72 Cal. Gov. Code § 61001(a)(4).
73 Cal. Gov. Code § 61100.

special district, or joint powers authority74 with a sponsoring local government agency.

Formation of a CSD requires a two-thirds majority vote of residents living within the proposed boundaries. Upon formation, a special tax lien is placed on each property in the CFD, which is covered by a Special Tax paid each year. Also, municipal bonds can be sold to fund initial investments. A CFD can be used to finance “maintenance and operation of any real property or other tangible property with an estimated useful life of five or more years that is owned by the local agency or by another local agency pursuant to an agreement entered into under Section 53316.2”.75
GRANTS
The state and federal broadband policy environment strongly supports the expansion of local public broadband infrastructure in California and the US. State and national policy is squarely focused on eliminating the Digital Divide by funding a coordinated, shared approach to deploy broadband infrastructure for broadband access available to all citizens and communities. The State of California is also expanding broadband infrastructure funding under the existing California Advanced Services Fund (CASF) and is planning to distribute sub-grants for broadband infrastructure under the NTIA’s Broadband Equity, Access, and Deployment (BEAD) program.

American Rescue Plan Act
The federal American Rescue Plan Act (ARPA) of 2021 allocated about $12B for broadband development, with $540M going to California. Later that year California Senate Bill 15676 divvied up the funds:

1. $3.25 billion in funding (all from ARPA) for the construction of a state-owned open-access middle mile network designed to provide connectivity for rural and urban areas to achieve the greatest reductions in the number of households unserved by broadband service under state and federal standards.

2. $2 billion in funding ($1.072 billion from ARPA) for “last mile” projects, funded through the Broadband Infrastructure Grant Account program, divided between rural and urban counties.
74 Joint Powers Authorities are legally created entities that allow two or more public agencies to jointly exercise common powers. Forming such entities may not only provide a creative approach to the provision of public services, but also permits public agencies with the means to provide services more efficiently and in a cost-effective manner. https://www.bbknowledge.com/general/the-ins-and-outs-of-joint-powers-authorities-incalifornia/ 75 Cal. Gov. Code § 53313(g), emphasis added.
76 https://leginfo.legislature.ca.gov/faces/billNavClient.xhtml?bill_id=202120220SB156

3. $750 million (general funds) to assist local governments and non-profit organizations in financing broadband projects.

Other major provisions of SB 156 include:

1. Establishment of the Office of Broadband and Digital Literacy at the Department of Technology, with duties including oversight of the acquisition and management of the statewide open-access middle-mile network.

2. Requirement for California Public Utilities Commission (CPUC) to identify and prioritize statewide open-access middle-mile locations according to specified priorities, including:
a. Locations where there is no known open-access affordable middle-mile networking, that would enable last mile connections.
b. Areas unserved or unserved by open-access middle-mile networks where such networking can be built expeditiously.
c. Locations that would enable last mile connections to unserved residences and community anchor institutions and tribal lands.

3. Requirement for CPUC to prioritize state highway rights-of-way for open-access middle mile network construction.

4. Stipulates that the open-access middle-mile network is for a public purpose and can be leased for less than fair market value.

5. Exempts certain broadband projects from CEQA requirements.

6. Removes limitations on local governments receiving grant funding.

Last Mile Federal Funding Account (FFA)
The 2021 California Budget Package included $2 billion in funding (partially from federal ARPA funds) created by Senate Bill 156 for the construction of last mile fiber networks to serve unand under-served households ($1 billion for rural areas and $1 billion for urban areas).77 FFA grant application closed on September 29, 2023. The City of Duarte did not apply. As of this report, several FFA proposals had been funded and the CPUC was finalizing the application review process.

California Advanced Services Fund (CASF)
CASF was created in 2007 to bridge the Digital Divide. It is administered by the CPUC and has been modified progressively over the past 15 years. The latest modification under SB 156 increased funding, modified programs, and created new subaccounts. The CASF is funded through surcharges, with up to $150 million authorized annually until 2032. 78 On February 16, 2024, the CPUC postponed the deadline for approvals of currently pending CASF infrastructure applications until June 30, 2024.
77 California Public Utilities Commission Last Mile Federal Funding Account, https://www.cpuc.ca.gov/industries-and-topics/internet-and-phone/broadband-implementationfor-california/last-mile-federal-funding-account 78 Legislative Analyst’s Office “the 2024-25 Budget Broadband Infrastructure” (The 2024-25 Budget: Broadband Infrastructure (ca.gov))

Broadband Infrastructure Account
The infrastructure account is used to subsidize the cost of middle-mile and last-mile infrastructure to expand the state’s broadband network. The CPUC gives preference to programs and projects in communities with demonstrated low broadband access and in communities facing socioeconomic barriers to broadband access. SB 156 modified infrastructure account requirements to define “unserved area” as those without internet access service of at least 25 Mbps download and 3 Mbps upload, and to require CASF-funded projects to provide speeds of at least 100 Mbps download and 20 Mbps upload.

The CPUC has further modified Broadband Infrastructure Account provisions to recognize new federal funding from the BEAD Program under the Infrastructure Investment and Jobs Act (IIJA).

The CPUC is using similar eligibility guidelines and maps that identify un- and under-served locations for the Broadband Infrastructure Account grants, which are due each year by March 1.

Public Housing Account
SB 156 expanded eligibility for grants and loans to include publicly supported housing developments, and other housing developments or mobile-home parks with low-income residents, and to make funding available to low-income communities to finance projects to connect broadband networks that offer free broadband service that meets or exceeds state standards, if the low-income community does not have access to any broadband service provider that offers free broadband service that meets or exceeds state standards. This will support up to 100 percent of the costs to install inside wiring and broadband network equipment in eligible public housing.79
Broadband Adoption Account
Local governments and other eligible organizations with programs to increase publicly available or after-school broadband access and digital inclusion, such as digital literacy training programs are eligible to apply for grants. Digital inclusion projects may include digital literacy training programs and public education to communities with limited broadband adoption, including lowincome communities, senior citizen communities, and communities facing socioeconomic barriers to broadband adoption. Publicly available or after-school broadband access projects may include free broadband access in community training rooms or other public spaces, such as local government centers, senior citizen centers, schools, public libraries, nonprofit organizations, and community-based organizations.80
79https://www.cpuc.ca.gov/industries-and-topics/internet-and-phone/california-advancedservices-fund/casf-adoption-account 80 https://www.cpuc.ca.gov/industries-and-topics/internet-and-phone/california-advancedservices-fund/casf-adoption-account