Report - 2022 Commercereports Broadband Office 2022 Biennial Legislative Report 8786
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- 2022 Commercereports Broadband Office 2022 Biennial Legislative Report 8786
Summary
The Washington State Broadband Office's 2022 Legislative Report, a biennial report to the Legislature under RCW 43.330.538 dated December 9, 2022, from the office housed in the Department of Commerce. It covers broadband availability, anchor institution speeds, non-construction expansion efforts, infrastructure coordination, suggested legislation, public utility and port district services, and digital equity. The report states that of voluntary speed tests from 5,605 locations, 59.2% of respondents were under the 25/3 Mbps goal for download, and it describes the Broadband Action Team program. Recommendations include asking the Legislature for a 15-year public benefit period and state match for federal funding. Appendix D lists Public Works Board broadband construction applications and awards, ending with totals of $90,036,826 and $44,676,617.
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Washington State
Broadband Office
2022 Legislative Report
Biennial report per RCW 43.330.538
December 9, 2022
WASHINGTON STATE
BROADBAND OFFICE Report to the Legislature
Director Lisa Brown
V3.1
Acknowledgments
Washington State Department of Commerce
Mark K. Barkley, assistant director,
Local Government Division
Jasmine Vasavada, director,
Government Affairs and Policy
Buck Lucas, manager, Policy and Communications
Mark Vasconi, director,
Washington State Broadband Office
Washington State Broadband Office
Erika Henry, deputy director
Connie Rivera, manager, Broadband Infrastructure
Programs
Al Alden, supervisor, Broadband Infrastructure
Tammy Mastro, broadband senior specialist
Chelsea Bagwell, broadband infrastructure
specialist
Jason Freeze, broadband infrastructure specialist
Sean Ardussi, interim manager, Digital Equity
Natasha Davis, administrative assistant 3
WASHINGTON STATE BROADBAND OFFICE
Mark Vasconi, director
mark.vasconi@commerce.wa.gov
Phone: 360-918-0326
1011 Plum St. SE
P.O. Box 42525
Olympia, WA 98504-2525
www.commerce.wa.gov
For people with disabilities, this report is available on
request in other formats. To submit a request, please
call 360-725-4000 (TTY 360-586-0772)
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022
Table of Contents
Executive summary...................................................................................................................................... 2
Introduction ................................................................................................................................................. 4
Section 1. Availability and use of broadband through incumbent broadband providers .................................. 5
Section 2. Anchor institution broadband speed and capacity ........................................................................ 7
Section 3. Overview of non-construction broadband expansion efforts ......................................................... 8
Section 4. Coordinating broadband infrastructure development .................................................................. 11
Section 5. Suggested policies, incentives, and legislation to accelerate the achievement of RCW 43.330.536
goals ......................................................................................................................................................... 14
Section 6. Proposed legislative and policy initiatives .................................................................................. 15
Section 7. Retail telecommunications services provided by public utility and port districts.......................... 16
Section 8. Digital equity ............................................................................................................................. 18
Appendix A – WSBO-funded services to communities ................................................................................ 20
Appendix B – WSBO IAG broadband construction grants ............................................................................ 23
Appendix C – CERB Rural Broadband Program ........................................................................................... 24
Appendix D – PWB Broadband Construction Program applications and awards ........................................... 25
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 1
Executive summary
Overview
Without equal access to quality, affordable broadband, Washington cannot continue to build an equitable
economic recovery that strengthens every community throughout the state. Universal broadband infrastructure
allows Washington communities and individuals to continue to:
Attract global investments
Encourage innovation and research
Support strong economic performance and long-term prosperity
Meet the daily demands of modern society
In an effort to assess the state of broadband service in Washington, the Washington State Broadband Office
(WSBO) has maintained the availability of a voluntary public speed test survey. The survey results map, found
online at broadband.wa.gov, provides details that allows the state, local communities and interested providers
to identify potential areas of need and to determine the best fit for funding opportunities and technologies. The
WSBO is building capacity to continue adding information that will be useful in expanding broadband across
the state. This information includes public/state assets, provider infrastructure, federal and state funds
awarded by census block, federal infrastructure and detailed demographic data. Centralizing this data and
making it public empowers communities to be engaged and informed. Broadband Action Teams at the
community level use this data to focus their decision-making and priorities; these discussion must be
community conversations unique to each region.
Key findings
The WSBO continues to identify unserved and underserved areas. Now that we have baseline information to
identify and quantify need, we are building partnerships and leveraging federal, local and private funding to
overcome the barriers that have prevented access and adoption. We learned from the COVID-19 pandemic that
broadband standards, locally and nationally, were not created for the historical moment. Our new normal —
where a home serves as medical office, classroom, workplace, hub of commerce and entertainment center —
means these deficiencies must be addressed. There are three primary network deficiency types:
Bandwidth demands exceed network design and scalability.
Currently deployed technology is incapable of scaling to universally meet state speed goals.
Incomplete residential and business access to affordable, reliable, high-speed internet service.
Each of these situations requires a significant capital investment to correct.
WSBO initiatives
To meet Washington's 2024-2028 broadband goals, substantial federal funding, future-proof infrastructure,
effective last mile1 solutions, and community leadership supporting digital equity and inclusion is required.
Below are the WSBO initiatives to accomplish these goals.
1 Chapter 237, Laws of 2022 defines last mile infrastructure as "… broadband infrastructure that serves as the final connection from a
broadband service provider's network to the end-use customer's on-premises telecommunications equipment."
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 2
Foster broadband stakeholder collaboration to increase project planning
Contract with Washington State University Extension to develop and support proactive Broadband Action
Team (BAT) leadership, training, outreach, engagement and sharing of best practice to ensure economies
of scale in each county.
Support local BAT formation and initiatives.
Identify service gaps and develop proposals for shovel-ready projects
Contract with Breaking Point Solutions, LLC (GEO) and Learn Design Apply, Inc. (LDA) to provide rapid
design, feasibility and grant writing services.
Continue to build on county mapping efforts with a digital equity dashboard that gives local partners the
information they need to guide local decisions.
Maximize access to all funding opportunities
Administer state funding to assist local partners in securing federal funds.
Administer federal funding received by the state.
Ensure scalable, sustainable, future-proof networks
Work collaboratively with communities and providers to identify an ongoing state funding mechanism for
infrastructure and service in high-cost areas to ensure sustainability of last mile delivery.
Support digital equity and inclusion initiatives
The WSBO will:
Coordinate digital equity and inclusion initiatives across state partners and develop planning grants for
locally led efforts
Administer pass-through funding to partners who can build the capacity of community-based organizations
and develop a workforce of digital navigators
Require recipients of state infrastructure funding to demonstrate they have made available affordable, low-
income service options
Support legislative efforts to identify an ongoing state funding mechanism to subsidize affordability
programs, devices and digital literacy skills training
Recommendations
Investigate and build consensus around the following policies to enhance rural broadband deployment:
Request that the Legislature modify WSBO proviso language in the 2021-23 State Capital Budget to require
a 15-year public benefit period, rather than the 25-year period, to achieve parity with other state broadband
funders.
Request that the Legislature provide state match to leverage federal funding opportunities, like Broadband
Equity, Access and Deployment (BEAD) funding.
The WSBO will explore the development of dig-once policies at the state/county/community level to reduce
capital costs of deployment.
The WSBO will explore the development of a make-ready cost subsidy program to offset high costs to
providers.
Request that the Legislature develop and resource a state universal broadband fund to augment federal
end-user subsidies.
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 3
Introduction
Background
Established in 2019 under RCW 43.330.530, the Governor's Statewide Broadband Office (WSBO) is housed in
the Department of Commerce. Our key mandate: to have high-speed internet access for all by 2024, and 150
Megabits per second (Mbps) symmetrical (upload and download speeds) services by 2028. We have built and
continue to expand key partnerships, helped launch projects and most importantly, established a foundation
for action at a larger scale.
RCW 43.330.538 requires a biennial report on the activities of the WSBO to include:
An analysis of the current availability and use of broadband (Section 1)
Information on service delivery to anchor institutions (Section 2)
An overview of the incumbent broadband infrastructure within the state (Section 3)
Coordination and funding efforts of broadband funding agencies (Section 4)
Suggestions related to legislation to facilitate the achievement of state broadband goals (Sections 5 and 6)
The status of retail communications service provided by public utility and port districts (Section 7)
WSBO staffing updates
Every successful state agency requires a collection of skilled and dedicated staff. This year, the following new
staff joined Tammy Mastro, broadband infrastructure senior specialist, in the WSBO:
Mark Vasconi, director
Erika Henry, deputy
Connie Rivera, broadband infrastructure programs manager
Alden Andy, broadband infrastructure programs supervisor
Chelsea Bagwell, broadband infrastructure specialist
Jason Freeze, broadband infrastructure specialist
Natasha Davis, administrative assistant
Sean Ardussi, interim digital equity manager
As of this writing, plans are moving forward to further enhance the WSBO’s capabilities with additional staff.
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 4
Section 1. Availability and use of broadband through
incumbent broadband providers
Table 1. WSBO voluntary speed test responses July 1, 2021 – June 30, 2022
Overall Fixed Service Cellular Service
Speed Download Upload Download Upload Download Upload
No Service 332 332 332 332 0 0
<3 Mbps 721 2,218 561 1,916 140 302
3-25 Mbps 2,267 2,279 1,862 1,921 405 358
25-100 Mbps 1,314 612 1,134 527 180 85
>100 Mbps 971 162 949 36 22 1
The above table reflects voluntary residential WSBO speed tests taken between July 1, 2021 and June 30,
2022. This is a very limited snapshot of the state of broadband service statewide, and encompasses
responses from 5,605 locations. Even though limited, WSBO speed test mapping does lend itself to a greater
level of detail and better understanding of the current state of service in Washington than relying on something
like the US Census Bureau’s American Community Survey (ACS), which does not include service delivery
speeds. ACS data is valuable: highlighting the 9.9% of Washington households without a broadband internet
subscription.
Comparing WSBO speed test data to the state minimum speed goal for 2024 of 25/3 Mbps universal service,
we find that 59.2% of the respondents are under the goal for download and 45.5% are below the goal for
upload. This data becomes significantly more concerning when looking forward to the state’s 2028 goal of 150
Mbps symmetrical service. In that context, less than 3% of the respondents showed speeds meeting that goal.
At this time, the incomplete speed test data is the best the WSBO has to evaluate the current state of service in
Washington. We are cognizant that there are many short-comings to the data including:
Sub-standard sample size (0.19% of Washington households).
Aging of data (data may not reflect recent broadband access).
Subscriber selection of speed delivery (such as service plans purchased by end-users) versus the
maximum speeds offered.
Age and set-up of residential user equipment.
Increasing the reliability and accuracy of current WSBO speed test mapping would require the ability to:
Consistently apply testing methodology.
Identify user equipment and set-up deficiencies.
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 5
Verify subscriber options for offered speeds from incumbent internet service providers (ISPs).
Provide introductory digital literacy.
Such an approach on a statewide level, even if targeted at 5% coverage, would require a significant investment
of time, expertise and funding. This need may be mitigated with the creation and adoption of new Federal
Communications Commission (FCC) mapping, which the WSBO has yet to see.
Current FCC mapping efforts are critical in maximizing state and federal investment in broadband network
deployment. They will be the federal standard in identifying served versus under- or unserved populations.
However, the details and accuracy of these maps is unknown at this time, and previous efforts have been
woefully inaccurate and problematic for use in understanding local need. Nationwide, states are already
showing concerns with the accuracy of these new maps in determining served and unserved areas.
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 6
Section 2. Anchor institution broadband speed and
capacity
The WSBO has been tasked with reporting information concerning actual speed and capacity of broadband
currently delivered to key anchor institutions: schools, libraries, hospitals and public safety facilities. State
speed goals are for 1 Gbps symmetrical service to all anchor institutions by 2026. At this time, there is limited
new information beyond what was reported in the 2020 State Broadband Office Report.
The Washington State Library anticipates being able to report on major changes in service delivery to public
libraries statewide by 2024. Currently, there are a number of projects underway to increase service speeds to
the 429 public libraries. In the 2019 Washington Public Libraries Internet Service Survey, 78% of public libraries
had a fiber optic connection, yet only 36% met the 1 Gbps download goal and 9% met the 1 Gbps upload goal.
The WSBO anticipates being able to get baseline information from hospitals in the next year, as the COVID-19
pandemic’s impact decreases and requires less intensive and time-sensitive data accumulation by hospital
personnel.
K-12 schools are primed to meet the 2026 state goals for anchor institutions. All district offices will be
connected to 1 Gbps or greater symmetrical service by summer of 2023. While this data does not reflect
connection speeds to each individual school, it does evidence area service The Office of Superintendent of
Public Instruction is monitoring movement for each individual school toward the 2026 goal.
Figure 1. Current and projected K-12 district offices internet service delivery
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 7
Section 3. Overview of non-construction broadband
expansion efforts
Broadband stakeholder collaboration
Broadband action team (BAT) program Figure 2. Broadband action team
development locations.
The BAT model was founded by Washington State University
Extension (Extension). The WSBO and Extension partnered
to formalize and expand the use of the Extension BAT model
across the state as a best practice for local community
broadband engagement. Expanding the BAT program
statewide requires partnership. Current collaborators include
the Extension, Stevens County-Spokane Tribe BAT, WSBO
and Washington State Library, which is a department of the
Secretary of State. Development input was provided by the
Public Works Board (PWB) and the Community Economic
Revitalization Board (CERB).
BAT leadership directives
Assist Washington tribes and communities in taking specific, efficient actions to leverage time, resources
and funding to achieve identified broadband goals.
Create a central hub and point of contact for information and support.
Receive the maximum amount of infrastructure funding available to the state by identifying shovel-
ready/application-ready projects.
Expand resources and share community leadership and services facilitated by Washington State Libraries
and Extension offices.
Benefits of BAT-facilitated local collaboration
Centralize the conversation
Digital equity and inclusion efforts
Connect participants to collaborative project goals
Early awareness and connection of projects to funding opportunities
Direct connection to, and communication with, the WSBO
Develop relationships with providers to support solutions and mitigate duplication of effort
Community and anchor institution relationships established early in preparation for funding applications
Statewide best practice and knowledge sharing
Expose barriers to access and adoption
Promote awareness of broadband survey/utilize survey resources and results
Funding application best practice and debriefs
Broadband action team participants
Elected officials and staff from local, city, county, state, and federal governments
Tribal representatives
Health care — hospitals, clinics, community
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 8
Education — K-12, higher education, technical training, etc.
Libraries
Businesses — retail, farms, manufacturing, real estate, IT, etc.
Workforce development
Economic development
Internet service providers
Nonprofits
Planning organizations
Public safety/emergency management
Social services
Faith-based organizations
Chambers of commerce
Transportation planners
Arts and culture
Funding entities
Grant writing
Other community organizations
Community members — civic leaders, youth, senior citizens
Washington State University Extension
The WSBO and Extension will pursue opportunities to collaborate further on projects of interest and benefit to
those engaged in broadband expansion in Washington and across the country. WSBO and Extension will jointly
explore grant, promotion, research, technical assistance and training opportunities.
Provide resources to communities to facilitate broadband
infrastructure development
Grant writing assistance
The WSBO entered into contract with LDA in 2021 to provide grant writing services to applicants seeking
federal broadband funding. During this reporting period, 12 federally recognized tribes have utilized the service
to apply for $129,596,236 in National Telecommunications and Information Administration (NTIA) funding. Ten
of these applications have been awarded a total of $54,643,321. The other two applications are still pending a
final decision.
WSBO funded LDA services have also been used by applicants seeking non-tribal NTIA funding. Six applicants
requested a total of $37,274,510 in federal Broadband Infrastructure Program (BIP) funds, and received
$30,730,872.
Rapid design and feasibility studies
The WSBO has an existing contract with Breaking Point Solutions, LLC (GEO) to provide speed test mapping
services. This contract was amended in July 2021 to provide up to 68 rapid design studies for communities.
This provides the option for each county and federally recognized tribe in the state to access the service. Rapid
design study reports provides analysis in the following areas:
Local cost for fiber (aerial, trenched, bored) and the percentage of each type required in the project area
The geography to be covered
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 9
Regional providers for possible public private partnership
With this information, the following are prepared for the community:
Up to six different broadband network designs, including 100% fiber to the home, 100% fixed wireless
and various hybrid models
Alternative cost models based on the designs and recommendation for the most cost effective solution
A comprehensive financial model that allows communities to work through what-if scenarios and
modify based on future inputs
The service also allows communities to ask further questions to ensure they select the solution that
meets their unique situation and need
During fiscal year 2022, three tribes and two community organizations took advantage of rapid design studies.
The contract with GEO was further amended in November 2021 to provide feasibility reviews for funding
applications received by the WSBO. GEO reviewed all of the Fall 2021 Infrastructure Acceleration Grant
applications (American Rescue Plan Act (ARPA) State and Local Fiscal Recovery Funds (SLFRF)), and provided
the following information:
Identification of any tribal lands in the proposed project area
Percentage of un/underserved households in the proposed project area using 25/3 Mbps wireline
connection as the baseline, then the federal minimum of 100/20 Mbps
Percentage of last mile connections identified in the project area
Noteworthy geographic or topographic barriers or considerations
Any Rural Digital Opportunity Funds (RDOF) areas in the proposed project area
Any incumbent provider(s) and their offered speeds
Number of fiber miles
Cost per serviceable connection
Cost per mile
Any prohibitive factors to the proposal
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 10
Section 4. Coordinating broadband infrastructure
development
WSBO participates in Sync
Sync is Washington’s Infrastructure System Improvement team and a collaborative partnership among the
Public Works Board (PWB), the departments of Commerce, Ecology, Health, and Transportation (WSDOT), and
the Transportation Improvement Board. It formed to meet the objectives of RCW 43.155.150 and in 2021, Sync
expanded to include broadband infrastructure. To support the expanded focus of Sync, the WSBO:
Engaged in monthly Sync meetings and discussed infrastructure resiliency and sustainability.
Shared funding data to outline the state picture of overall infrastructure investment that totaled more than
$1 billion in fiscal year 2022.
WSBO activities with WSDOT, PWB and CERB
Evaluated and funded the first round of WSBO Infrastructure Acceleration Grant in collaboration with
external application reviewers including the PWB vice-chair and staff, CERB staff, and WSDOT
Developed a shared broadband webpage: Broadband Resources and Funding
Participated in PWB Broadband objections and application reviews in November/December 2021.
WSBO staff submitted a memo to the PWB on collaboration, including strategically investing state
resources in a manner that best suits the state goals of both the WSBO and PWB.
Participated in bi-weekly collaboration meetings with PWB and CERB to discuss best practices, coordinate
outreach and funding efforts, partner on presentations to key stakeholders, etc.
The WSBO BIP Manager provided leadership by:
Utilizing federal background and experience to provide training and technical assistance to CERB and
PWB staff on federal funding and requirements under the Infrastructure Investment and Jobs Act
Sharing the ARPA Boilerplate contract and ARPA handbooks
Preparing ARPA webinars and invited PWB and CERB staff and their clients
Coordinating 21-02 cultural review consultation with CERB on joint clients
Developing a joint survey of future broadband projects to create a shared pipeline
Collaboration with WSDOT
As WSDOT makes changes enacted under Chapter 258, Laws of 2021, there is a clear and obvious need for
coordination with the WSBO. The bill elevates the dig-once concept and authorizes WSDOT to lay conduit and
retain ownership of it for leasing to ISPs. In this case, broadband infrastructure is being treated as a utility
when it comes to process and procedure. Funds for this activity come from the DOT-Motor Vehicle Fund.
WSDOT is already moving forward with laying conduit, as evidenced by their recent placement from Darrington
to Arlington. WSDOT has also been in discussions with the WSBO about timelines and coordination related to a
WSBO funded project in King County impacts state roads.
WSDOT also provided valuable technical guidance to the WSBO related to poles and pole attachments as they
pertain to fish passage areas for the WSBO funded Snohomish County and Ziply Fiber SR 530 project. In areas
where fish passage is being addressed, poles must be relocated one-quarter to one-half mile from the culvert.
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 11
This affects aerial attachments and any associated wireless transmission devices. It is a clarification that the
WSBO is now able to relay to applicants.
WSBO, CERB and PWB Broadband programs and awards
WSBO Infrastructure Acceleration Grant, Broadband Infrastructure Program,
State Matching Grant Program and direct appropriations2
The WSBO is tasked with developing strategies and plans to promote broadband infrastructure deployment
and greater broadband access to unserved and underserved areas of the state. Chapter 296, Laws of 2022,
Section 1086 authorizes the WSBO to provide funding opportunities to:
Local governments
Tribes
Nonprofit organizations
Nonprofit cooperative organizations
Multiparty entities comprised of at least one public entity
Infrastructure Acceleration Grant (IAG)
In FY 2022, the WSBO IAG program was funded by a sub-award of the state’s allocation of American Rescue
Plan Act (ARPA) Coronavirus State and Local Fiscal Recovery Funds (SLFRF).3 The WSBO may only use this
award to fund technology-neutral broadband projects designed to expand access at the lowest cost to the
most unserved or underserved residents. In FY 2022, 13 applicants were awarded a total of $141 million.
Broadband Infrastructure Program
In response to the NTIA’s BIP grant announcement, the WSBO issued a request for information soliciting
eligible projects. The WSBO submitted a single application requesting $30 million in grant funding on behalf of
the five partnership broadband projects, and received full funding.
State Matching Grant Program
The WSBO was appropriated $50 million in state funds to provide match grants for eligible applicants to
access funding opportunities from federal agencies, such as:
National Telecommunications and Information Administration
US Department of Agriculture
Economic Development Administration
CERB Rural Broadband Program4
The CERB is authorized under Chapter 296, Laws of 2022, Section 1011 to administer a non-competitive grant
and loan program to promote the expansion of access to broadband service in rural and underserved
communities for the purposes of economic or community development. Under this statute, awards are for the
2 Listing of WSBO ARPA SLFRF awards in Appendix B. Complete listing of WSBO programs applicants, requests and awards will be part
of the WSBO Grant Programs Legislative Report – due to the Legislature January 30, 2023.
3 A second round of IAG funding is scheduled for FY23. This round will be funded by the ARPA Capital Project Fund.
4 Listing of CERB Rural Broadband ARPA SLFRF awards in Appendix C. More information can be found in the CERB Rural Broadband
2020 Legislative Report. Another CERB Rural Broadband Report is due to the Legislature in January 2023.
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 12
acquisition, installation and construction of middle mile and last mile broadband infrastructure. Funds may
also be used for strategic planning in the deployment of broadband service. Eligible applicants include:
Local governments
Tribes
Municipal corporations
Quasi-municipal corporations
Since its inception, the CERB Rural Broadband Program has awarded more than $35.3 million in loans and
grants to 27 recipients. These awards require a 25% cash match and the total of CERB Rural Broadband
awards cannot exceed 50% grant for the biennium.
PWB Broadband Grant and Loan Program5
The PWB is authorized under RCW 43.155.160 to administer a competitive grant and loan program to promote
the expansion of access to broadband service in unserved areas of the state. Funds may also be used for
strategic planning in the deployment of broadband service. Eligible applicants include:
Local governments
Tribes
Nonprofit organizations
Cooperative associations
Special purpose districts
Quasi-municipal corporations
Limited liability corporations organized for the purpose of expanding broadband access
Incorporated businesses or partnerships
The PWB is allowed to fund up to 50% of the total project cost in non-distressed and non-Indian Country areas.
In distressed or Indian Country areas, the PWB may fund up to 90% of the total project cost.
Applications for PWB funding are competitive and must evidence that the project:
Is maintained for public use for at least 15 years
Connects the unserved (25 Mbps download and 3 Mbps upload or less)
In FY 2021, the PWB Broadband program awarded $11.7 million in state funds to seven construction projects.
In FY 2022, the program awarded $44.7 million in federal grant funds to 15 construction projects.
5 Complete listing of PWB Broadband applicants, requests and awards included in Appendix D. Additional information about PWB and
its programs can be found in its 2022 Legislative Report
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 13
Section 5. Suggested policies, incentives, and legislation
to accelerate the achievement of RCW 43.330.536 goals
At this time, the WSBO does not have significant suggestions for policies, incentives or legislation to
accelerate the achievement of RCW 43.330.536 goals. Any recommendation must be developed in conjunction
with and be informed by ongoing digital equity work to ensure equitable access to broadband service
statewide. Below are some of the areas that are being investigated by the WSBO for future policy development.
Access and affordability
Access and affordability are the primary concerns when seeking to achieve the state goals for universal high
speed broadband. This impacts where and how residents live, the development and competitiveness of
businesses, equality in access to medical and social services, and the attainment of education K-12 and
beyond. While access through the construction of new networks and upgrading old is being worked on through
the state’s three broadband funding programs, affordability is an area that is lagging.
The federal Affordable Connectivity Program (ACP) is one way to start to approach affordability. It is a
necessary and vital program that reduces monthly internet subscription costs for low-income residents.
Continuing such programs in perpetuity should be a priority for the state’s federal delegation. However, ACP
needs to be a starting point, not an end point, if Washington is committed to universal access and adoption.
The state has the opportunity to expand assistance to low- income residents for both monthly subscription
fees, and for acquiring and upgrading technology, digital literacy and training. Additionally, the need for these
types of assistance are not limited to residents in the lowest income brackets, but can be extended to middle
class families with nominal disposable income. These are not short term needs and, to be effective, must be
maintained in perpetuity.
A further area of concern for universal adoption is connecting existing residences in areas considered served
that were not connected to a network at the time of construction. The cost of connecting a home to an existing
network when the last mile line is not in place is something beyond many working families. There is merit in
investigating the state’s capacity to provide funding, either directly to incumbent ISPs or to individual home
owners, to connect these homes. Without such a program, many people in served areas will be left behind
without true access.
State match
As the state focuses on open access requirements for state funded networks, there is the potential for an
unintended consequence – alienation of private funders. For private organizations, the desirability of making a
significant investment in a network that benefits competing companies can be diminished with adherence to
open access requirements. When we look forward to programs such as the Broadband Equity, Access, and
Deployment (BEAD) program, significant match requirements (25% minimum) require either significant local or
state investment. Developing a program for BEAD-fund disbursement that attracts applications involving
private investment is one way to try to drive private investment and lessen the amount of public monies
required to meet BEAD’s match requirement.
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 14
Section 6. Proposed legislative and policy initiatives
The WSBO budget proviso contains, on page 76, a budget note requiring 25 years of demonstrated public
ownership. This language does not appear in the statute for the WSBO or other broadband funders.
The Public Works Board has a 15-year requirement written into its statute (RCW 43.155.160(8)):
To ensure a grant or loan to a private entity under this section primarily serves the public interest and benefits the
public, any such grant or loan must be conditioned on a guarantee that the asset or infrastructure to be developed
will be maintained for public use for a period of at least fifteen years.
Further, CERB does not have a policy on ownership. They do have policy requirements for long-term economic
impact reporting, as follows:
Project Completion Report, the Contractor shall continue, for up to five years or as may be required by THE
BOARD, to provide updates on the economic impact of the project. The updates shall be in a format
acceptable to THE BOARD and describe, but not be limited to:
Number of household connections
Number of business connections
Number of Anchor Institutions connections
Speed of each connection
Number of ISPs providing service on the system
Requiring 25-year public benefit in a rapidly evolving service and delivery environment might add undue risk to
applicants when service provision may change substantially over a 25-year period. Additionally, there are no
mechanisms in place to ensure the system is maintained for 25 years, let alone any enforcement mechanism if
it is not. Therefore, in its 2023-2025 capital budget request the WSBO requested an update to its authority so
that it aligned with Public Works Board's 15-year requirement.
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 15
Section 7. Retail telecommunications services provided
by public utility and port districts
Public utility districts (PUD) and port districts are authorized to provide retail broadband internet services under
RCW 51.16.330(10) and RCW 53.08.370(10) respectively. At this time, there are no active PUD or port retail
providers of broadband service. Jefferson County PUD is in the process of transitioning into retail service. They
intend to utilize the open access network they are currently constructing as their jumping off point for retail
service. The network is anticipated to be fully operational in 2023.
Of the 122 PUDs and ports within Washington, 22 currently provide or are in the process of constructing
networks to provide wholesale broadband service. Most of these networks involve partnerships with multiple
ISPs to provide retail connection. The table below provides details.
Table 2. Public utility and port district broadband wholesale service
District name County City Network partnerships
Membership in NoaNet
Benton County PUD Benton Kennewick
Partnered with 13 ISPs
Chelan County PUD Chelan Wenatchee Partnered with 5 ISPs
Membership in NoaNet
Clallam County PUD Clallam Sequim
Partnered with 6 ISPs
Douglas County PUD Douglas East Wenatchee Partnered with 8 ISPs
Franklin County PUD Franklin Pasco Partnered with 19 ISPs
Grant County PUD Grant Moses Lake Partnered with 16 ISPs
Grays Harbor County PUD Grays Harbor Aberdeen Partnered with 8 ISPs
Partnered with 9 ISPs
Jefferson County PUD Jefferson Port Townsend Future: Provide retail broadband with other
ISPs on the PUD’s open access network
Kitsap County PUD Kitsap Poulsbo Partnered with 6 ISPs
Mason County PUD #3 Mason Belfair Partnered with 5 ISPs
Okanogan County PUD Okanogan Okanogan Partnered with 9 ISPs
Pacific County PUD #2 Pacific Raymond Partnered with 4 ISPs
Pend Oreille County PUD Pend Oreille Newport Partnered with 7 ISPs
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 16
District name County City Network partnerships
Member of Petrichor
Port of Bellingham Whatcom Bellingham
Service provided by partner ISPs
Port of Clarkston Asotin Clarkston Partnered with 10 ISPs
Port of Columbia Columbia Dayton Partnered with 3 ISPs
Port of Coupeville Island Greenbank Partnered with 6 ISPs
Currently building network.
Port of Ridgefield Clark Ridgefield
No ISP yet.
Port of Whitman County Whitman Colfax Partnered with 7 ISPs
Currently building network.
Port of Woodland Cowlitz Woodland
No ISP yet.
Stevens County PUD Stevens Loon Lake Partnered with NoaNet
Partnered with Port of Bellingham and
Whatcom County PUD Whatcom Ferndale Petrichor
Service provided through partner ISPs
Increasing the number of public utility and port districts engaged in
retail broadband
At this time, the WSBO does not have any recommendations for expanding special purpose district
engagement in providing retail broadband service.
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 17
Section 8. Digital equity
The WSBO is building new programming capacity to advance digital equity throughout Washington. The
Legislature defines digital equity as “the condition in which individuals and communities in Washington have
the information technology capacity that is needed for full participation in society and the economy.”6 To begin
to address digital equity in Washington, the WSBO has begun implementation of the following efforts.
Digital navigators
To help increase digital equity, the WSBO implemented a digital navigator program. This program provides
direct assistance to those most in need in terms of access to and knowledge of how to use technology devices
and services. The National Digital Inclusion Alliance defines digital navigators as “trusted guides who assist
community members in internet adoption and the use of computing devices.” Digital navigators can help
individuals navigate the internet, sign up for the Affordable Connectivity Program (federal low-income internet
assistance), connect with government and community services, acquire digital literacy skills, and more.
Funding to launch the digital navigator program was provided in the 2021 Operating Budget, with $7,500,000
appropriated for these purposes. Funding to extend these services and expand the program to reach different
communities statewide was secured in the 2021 Supplemental Budget, with the Legislature appropriating
$50,000,000 for digital equity and broadband access programs.7
The initial digital navigator program is conducted in close coordination with our community partners: Equity in
Education Coalition, Goodwill of the Olympics & Rainier Region, Community Health Network of Washington,
and the Seattle Housing Authority. Through June of 2022, our partners have provided the following services to
nearly 40,000 clients throughout the state:
Digital navigation: 20,893 (2,294 for clients receiving Medicaid)
Digital literacy skills services: 15,901 (3,990 for clients receiving Medicaid)
Device distribution with built in subscription assistance: 2,813 (1,685 for clients receiving Medicaid)
The WSBO is currently extending this program and is in the process of finalizing contracts and agreements for
the following:
Seventeen new organizations to provide digital navigator services statewide
An interagency agreement with Department of Veterans Affairs to provide digital navigator services for
veterans
Digital navigator awards for organizations serving the recently incarcerated, or reentry populations in the
state
Digital Equity Forum
Established in the 2021 Operating Budget, the Digital Equity Forum was formed to develop recommendations
to advance digital connectivity in Washington.8 The forum is co-facilitated in close partnership with the Office
of Equity. The forum has met since December 2021, with a number of associated workshops, stakeholder
engagement efforts, listening sessions, and focus groups being conducted to listen to local communities and
6 Chapter 265, Laws of 2022
7 Chapter 297, Laws of 2022, Sec. 128(197)
8 Chapter 334, Laws of 2021
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 18
help identify barriers to digital equity. Recommendations of this group, once finalized, will be used to inform
future digital equity planning efforts.
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 19
Appendix A – WSBO-funded services to communities
Learn Design Apply (LDA)
NTIA Tribal Broadband Connectivity Program grant application assistance
Tribal applicant Amount requested Amount awarded
Confederated Tribes of the Chehalis Reservation $ 4,737,725 $ 500,000
Confederated Tribes and Bands of the Yakama Nation $ 6,714,676 $ Pending
Confederated Tribes of the Colville Reservation $ 50,000,000 $ 50,000,000
Hoh Tribe $ 9,027,062 $ 500,000
Jamestown S'Klallam Indian Tribe $ 1,727,967 $ Pending
Nisqually Tribe $ 31,847,896 $ 500,000
Nooksack Tribe $ 7,164,168 $ 500,000
Port Gamble S'Klallam Tribe $ 443,321 $ 443,321
Quileute Tribe $ 1,222,366 $ 500,000
Samish Nation $ 700,000 $ 700,000
Sauk-Suiattle Tribe $ 980,563 $ 500,000
Swinomish Tribe $ 15,030,489 $ 500,000
Total $ 129,596,235 $ 54,643,321
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 20
NTIA BIP grant application assistance
Amount awarded
(includes state and
Applicant Amount requested
federal award)
Declaration Networks Group $ 6,025,000 $ 5,422,500
City of Ellensburg $ 437,573 $ 437,573
Hood Canal Communications $ 12,622,243 $ 10,065,313
Jefferson County Public Utility District $ 12,191,477 $ 10,114,204
Ziply Fiber $ 730,872 $ 730,872
Total $ 32,007,165 $ 26,770,462
Breaking Point Solutions, LLC (GEO)
Rapid design studies jurisdictions
Mighty Tieton
Skamania County
Suquamish Tribe
Swinomish Indian Tribal Community
Yakima Valley Community Foundation
Feasibility reviews of IAG applications jurisdictions
Adams County
Clallam County
Confederated Tribes of the Colville Reservation
Ferry County
Foresee
King County
Lewis County
Lincoln County
Mill Creek
Nisqually Tribe
Port of Bellingham
Port of Clarkston
Port of Columbia
Port of Kalama
Port of Whitman County
Public Utility District 1 of Jefferson County
Public Utility District 1 of Pacific County
Quinault Indian Nation
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 21
Snohomish County
Spokane Tribe of Indians
Tri County Economic Development District
Tukwila
Washington State Department of Transportation
Whatcom County
Washington Independent Telecommunications Association
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 22
Appendix B – WSBO IAG broadband construction grants
FY22 WSBO IAG awards (ARPA SLFRF funds)
Applicant County Project name Award Total project
Adams County Adams Adams WSBO $ 10,320,889 $ 10,678,708
Clallam County Clallam Clallam County Broadband $ 16,074,985 $ 17,861,094
PUD 1 of Jefferson County Jefferson Jefferson North Fiber $ 9,718,934 $ 11,425,040
King County King King County Broadband $ 11,833,300 $ 13,148,110
Lewis County Broadband
Lewis County Lewis $ 23,500,000 $ 25,850,000
Expansion
Lincoln County Lincoln Connecting Lincoln County $ 5,218,072 $ 5,218,072
Washington Independent
Mason,
Telecommunications WITA Member $ 14,865,747 $ 16,517,497
Island
Association
Confederated Tribes of the Confederated Tribes of the
Okanogan $ 4,097,518 $ 4,507,274
Colville Reservation Colville Reservation Broadband
Snohomish County and Ziply
Snohomish County Snohomish $ 16,713,615 $ 27,582,318
Fiber- SR 530 Project
Spokane Tribe of Indians Stevens Spokane Tribe Broadband $ 16,837,920 $ 18,686,910
Nisqually Thurston County OAN
Nisqually Indian Tribe Thurston $ 6,775,496 $ 6,775,495
Phase II
Port of Bellingham Whatcom Whatcom County Broadband $ 4,000,000 $ 5,000,000
Port of Whitman County
Port of Whitman County Whitman $ 1,062,000 $ 1,329,500
Broadband
Total $ 141,018,476 $ 164,580,018
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 23
Appendix C – CERB Rural Broadband Program
FY22 CERB Rural Broadband awards (ARPA SLFRF funds)
Applicant County Project name Award Total project
Northwest Clarkston Heights
Port of Clarkston Asotin $ 1,155,885 $ 1,455,885
FTTX Project
Dayton Community Broadband
Port of Columbia Columbia $ 2,000,000 $ 2,500,000
Project
Ariel to Cougar Fiber to Home
Port of Woodland Cowlitz $ 1,976,496 $ 2,470,620
Project Phase II
Phase 2 FTTH Garfield County
Port of Garfield Garfield $ 323,482 $ 727,834
Project
Chehalis Reservation
Chehalis Tribe Grays $ 2,000,000 $ 2,500,000
Broadband
Larson Lane Fiber to the Home
PUD #1 of Kitsap County Kitsap $ 1,565,363 $ 1,956,704
Project
Kitsap PUD Hintzville Fiber to
PUD #1 of Kitsap County Kitsap $ 2,000,000 $ 4,273,613
the Home
FTTx in Almira, Creston and
Lincoln County Lincoln $ 1,963,920 $ 2,454,900
Harrington Project
Hood Canal - 101 Broadband
Mason County PUD 1 Mason $ 1,024,133 $ 996,300
Project
Nisqually 2021 OAN Broadband
Nisqually Indian Tribe Thurston $ 2,000,000 $ 5,925,902
Project Ph 1
Walla Walla County Broadband
Port of Walla Walla Walla Walla $ 2,000,000 $ 2,567,650
- Rural County Install Project
Whatcom County Rural
Port of Bellingham Whatcom $ 2,000,000 $ 3,000,000
Broadband Project
Port of Whitman County Whitman Malden/Pine City FTTx Project $ 1,734,921 $ 2,168,651
Total $ 21,744,200 $ 32,998,059
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 24
Appendix D – PWB Broadband Construction Program
applications and awards
FY21 PWB Broadband Construction Grant awards (State funds)
Applicant County Project name Request Grant Loan
Makah Communication
Makah Tribe Clallam $ 382,796 $ 382,796 $0
Access Project
Kalispel Tribe Broadband
Kalispel Tribe Pend Oreille $ 5,000,000 $ 5,000,000 $0
Expansion
Grant County
Grant Area 15: Gloyd to Stratford $ 1,620,000 $ 810,000 $ 810,000
PUD
Sauk-Suiattle Construction
Port of Skagit Skagit $ 3,375,000 $ 1,687,500 $ 1,687,500
Grant
Wahkiakum East County Broadband
Wahkiakum $ 4,917,382 $ 809,084 $ 4,108,298
County PUD Deployment
Hood Canal Mason County Line Broadband
Mason $ 196,202 $0 $ 196,202
Telephone Expansion
Rural Broadband Infrastructure
Port of Ilwaco Pacific $ 3,328,452 $0 $ 2,337,380
Buildout
Hood Canal Strong Rd. BB Expansion
Mason $ 410,410 $0 $0
Telephone Project
Lewis County West County Backbone and
Lewis $ 4,885,332 $0 $0
PUD FTtH Extension
Mason County Cloquallum Communities
Mason $ 3,157,450 $0 $0
PUD Rural Broadband Fiber Project
Clallam County BB Backbone Construction
Clallam $ 4,187,700 $0 $0
PUD 1 Project
Port of Columbia Columbia Port of Columbia $ 1,800,000 $0 $0
Mid Methow Valley FTTx
Okanogan PUD Okanogan $ 5,000,000 $0 $0
Project
Lummi Nation Fiber and Tower
Lummi Nation Whatcom $ 2,898,161 $0 $0
Project
Grays Harbor Porter/Malone/Cedarville/
Grays Harbor $ 1,500,000 $0 $0
PUD Oakville BB Constr.
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 25
FY21 PWB Broadband Construction Grant awards (State funds)
Pend Oreille PUD Pend Oreille Northern Pend Oreille County $ 5,000,000 $0 $0
TV Assoc. of Ferry County Broadband
Ferry $ 2,834,406 $0 $0
Republic Expansion
Charter Columbia Dayton Project $ 1,754,674 $0 $0
Woden Klickitat Goldendale $ 1,714,340 $0 $0
Broadband Infrastructure
City of Cheney Spokane $ 512,000 $0 $0
Construction
Fiber Extensions in Rural
Port of Whitman Whitman $ 2,000,000 $0 $0
Whitman County
Woden Yakima Mabton-Pasco Middle Mile $ 4,454,948 $0 $0
Woden Yakima Grandview/ Mabton $ 1,647,514 $0 $0
Whidbey
Island Bounty Loop/Pioneer Park $ 659,016 $0 $0
Telephone
Below scoring threshold for funding consideration
Okanogan/ Colville Tribes Broadband
Colville Tribes $ 4,832,520 $0 $ 0
Ferry Expansion
Charter Walla Walla Prescott Project $ 731,403 $0 $0
City of Brewster Okanogan Broadband Project $ 3,888,888 $0 $0
Lake Cushman Rural
AspenWorks Mason $ 387,306 $0 $0
Broadband
Mitchell Hill King Mitchell Hill POA $ 167,305 $0 $0
Total $ 76,140,832 $ 8,689,380 $ 9,139,380
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 26
FY22 PWB Broadband Construction Grant Awards (ARPA SLFRF)
Jurisdiction County Project name Request Award
Thorp and Edgemont
Kittitas County Kittitas $ 3,338,946 $ 3,338,946
FTTx Project
Port of Clarkston Asotin Census Tract 9604 FTTH $ 1,944,381 $ 1,944,381
Connecting the Mineral,
Lewis County PUD Lewis $ 4,733,011 $ 4,733,011
Elbe, & Ashford
Connecting Lincoln
Lincoln County Lincoln $ 4,162,072 $ 4,162,072
County
POC Grantham
Port of Clarkston Asotin $ 1,775,282 $ 1,775,282
Elementary Service Area
Town of Skykomish King Skykomish Broadband $ 598,023 $ 598,023
Jefferson County
Conditional Awards
Jefferson Discovery Bay East Fiber $ 1,096,046 $ 1,096,046
PUD
Touchet Valley
Port of Columbia Columbia $ 1,165,000 $ 1,165,000
Broadband
Clallam County
Clallam County Clallam $ 4,525,174 $ 4,525,174
Broadband Project
Pacific Co. Build Bay City
Pacific County PUD Pacific $ 5,000,000 $ 5,000,000
to Nemah
Connecting the Greater
Lewis County PUD Cowlitz/Lewis $ 4,726,647 $ 4,726,647
Vader Community
NE Garfield Co. Rural
Port of Garfield Garfield $ 3,827,365 $ 3,827,365
FTTH Project
Port of Skagit Skagit Fir Island FTTx $ 2,152,791 $ 2,152,791
Port of Coupeville Island Central Whidbey FTTx $ 4,842,933 $ 4,842,933
Town of Washtucna Adams Washtucna FTTH $ 788,946 $ 788,946
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 27
FY22 PWB Broadband Construction Grant Awards (ARPA SLFRF)
Kitsap PUD Kitsap Kitsap PUD - FTTH $ 1,939,356
Port of Whitman
Whitman Port of Whitman $ 4,919,378
Insufficient funds
County
Port of Kalama Cowlitz West Cowlitz Access $4,285,794
Town of Fairfield Spokane Fairfield FTTH Project $2,356,168
Douglas County
Douglas Highway 17 $1,522,000
PUD
Franklin County
Franklin Rural Broadband $3,557,700
PUD
Pend Oreille PUD Pend Oreille Ione & Tiger Fiber $5,000,000
Adams County
Adams County Adams $4,724,964
Broadband Project
Credible objection
City of Ritzville FTTH
City of Ritzville Adams $2,478,334
Project
SE Grays Harbor
Grays Harbor PUD Grays Harbor $5,000,000
Broadband Project
Nisqually Indian Unserved Areas
Thurston $3,923,265
Tribe Thurston County
Port of Bellingham
Port of Bellingham Whatcom $2,000,000
Project
Hope Neighborhood BB
Below threshold
Port of Ridgefield Clark
Project $1,653,250
City of Tukwila King Municipal CBRS Network
$2,000,000
Total $90,036,826 $44,676,617
WASHINGTON STATE BROADBAND OFFICE BIENNIAL REPORT 2021-2022 28
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