COSLA Planning Guide for
Library Broadband Connectivity
A guide for State Library Agencies evaluating and
acquiring high-capacity, high-quality broadband
connectivity with and for local libraries
October
2014
COSLA Planning Guide for
Library Broadband Connectivity
A guide for State Library Agencies evaluating and acquiring high-capacity, high-quality
broadband connectivity with and for local libraries
October 2014
Karen Perry,
Researcher and Author, Clarion Collaborative
Sarah Chesemore,
Project Director, The Chesemore Group
Theresa Stroisch
Project Coordinator, Brooktana Consulting
COSLA is an independent organization of the chief officers of state and territorial agencies designated
as the state library administrative agency and responsible for statewide library development.
www.cosla.org
Timothy Cherubini, Executive Director
Board of Directors
Ann Joslin, President
Wayne Onkst, Secretary
Stacey Aldrich, Director
Kendall Wiggin, Vice President / President Elect
Sandra Treadway, Treasurer
Martha Reid, Director
This guide is brought to you by the Chief Officers of State Library Agencies (COSLA) with support from
The Bill & Melinda Gates Foundation.
Acknowledgements
The project team would like to thank the following organizations and individuals for making this work possible:
Alaska State Library
Sue Sherif, former Head of Library Development
Shane Southwick, OWL Program Manager
The Bill & Melinda Gates Foundation
California State Library
Gerry Maginnity, Deputy State Librarian
Jarrid Keller, Chief Information Officer, Information Technology Bureau
COSLA
Timothy Cherubini, Executive Director
Sara Dyel, Project Coordinator
Georgia Public Library Service
Emily Almond, Director, Information Technology
Idaho Commission for Libraries
Ann Joslin, State Librarian
Teresa Lipus, Public Information Specialist
Intel Education
State Library of Louisiana
Meg Placke, Associate State Librarian
Maine State Library
Linda Lord, State Librarian
Montana State Library
Jennie Stapp, State Librarian
New Jersey State Library
Michael Rasimowicz, Information Technology Director
Nevada State Library and Archives
Daphne DeLeon, State Librarian
Karen Starr, Assistant Administrator for Library & Development Services
State Library of Ohio
Lisa Hickle, State Data Coordinator - Public Library Statistics
ALA Office for Information Technology Policy (OITP)
Larra Clark, Director, Program on Networks and Associate Director, Program on America's Libraries for
the 21st Century
Oklahoma Department of Libraries
Susan McVey, State Librarian
Vicki Mohr, Division Director, Office of Library Development
Ohio Public Library Information Network
Stephen Hedges, Director
Wisconsin Department of Public Instruction Division for Libraries and Technology
Bob Bocher, Director of Public Library Development
Preface
The Broadband Technology Opportunities Program (BTOP) generated improved and increased broadband efforts
at the state and local library levels, as well as a national awareness of the need for high capacity and high quality
broadband in our nation‘s anchor institutions. The broadband projects focused on infrastructure, computing
centers, and broadband adoption provided the State Library Community with lessons as well as a pathway for a
continued dialog. At COSLA we believe the conversation is just getting started and there is still much work to be
done at both the State Library Agency (SLA) and local library.
It is with this foundation and belief in continuing a conversation about broadband implementation and advocacy
that we developed this Planning Guide specifically for State Library Agency staff. We spent over 6 months
interviewing professionals in the field who are focused on broadband adoption and implementation in state
libraries, synthesizing their models and experiences, and combining these field experiences with existing industry
standards to develop this hands-on guide for SLA staff. Because there is not a one-size-fits-all model for
broadband implementation we sought varying models so that anyone reading this guide can find useful examples
that will work in their situation. It was also important that we organize the guide into sections that you can easily
access based on where you are in your broadband lifecycle.
Without question the state of broadband in the US is an ever-changing landscape, so our intent for this guide is
that it be as relevant to someone with an existing plan as it is to someone that may just be getting started on
his/her broadband journey. The first section of the guide, Context and Importance, will provide you with several
data points underscoring why getting laser focused on broadband is critical for the library community as a whole.
From there you can jump into sections covering Policy (federal and state), Leadership and Partnerships, Market
Analysis, Specifications, Bidding and Procurement, and a section on Technology Training, Network Management
and Support. Each of these sections has been carefully considered and written with SLA staff as the primary
audience. You will find data, examples, and pathways for you throughout each section.
We are eager to get this guide into your hands to use for broadband planning, team discussions, IT hiring,
training, and probably ways that we have not even considered! As patron needs change, providers offer new
solutions and SLA staff get creative with broadband models, sharing lessons with one another can only lead to
greater thinking and ultimately to greater efficiencies and improved experiences for our communities.
Ann Joslin
Idaho State Librarian
President
Chief Officers of State Library Agencies (COSLA)
1. Context and Importance
Modern library service depends on high-capacity, high-quality broadband. More than 77 million people log on to
public library networks in a year — a figure that continues to increase as more content is digitized and libraries
increase their reliance on networked services. Broadband connections underpin many staff and patron services.
The Internet, cloud services, applications and smart devices are integral to nearly all library services including
reference, databases, e-content, training, programs, maker spaces, outreach and administration. In addition to
public access computers, libraries are seeing increased use of wifi networks, as more people arrive at the library
with mobile devices that they expect to connect to the library‘s network. A full 97.5% of public libraries report that
they help people complete online government forms and 63.1% of libraries help people access government services
like disaster relief, education loans, and food services. (Information Policy and Action Center, 2014)
Given the importance of broadband infrastructure, the complexity of market and purchasing dynamics, local
libraries are increasingly looking to State Library Agencies (SLAs) for support on broadband and other technology
issues. Helping local libraries obtain adequate bandwidth is one area where SLAs are being asked to strengthen
their expertise and leverage economies of scale to help libraries meet surging demands and manage
telecommunications costs. State Library Agencies are uniquely positioned to bring expertise and economies to
bear in the planning and acquisition of broadband connectivity.
The COSLA Planning Guide for Library Broadband Connectivity was designed to support state library agencies
who want to learn from their peers and develop approaches to improve broadband connectivity for libraries in
their state. The guide does not offer a ―right‖ or ―wrong‖ model for purchasing, market assessments, library
agreements, or telecommunications specifications. It does, however, describe the key elements needed in a statewide broadband connectivity program and it brings together wisdom and resources developed by SLAs who have
stepped forward to model their experience and share. These examples also highlight that just as literature and
computers need to be refreshed periodically, the broadband connectivity planning process needs to be revisited as
patron and library needs change and as providers offer new service options and pricing for library broadband.
After the Introduction, which sets the context for the importance of broadband planning, the COSLA Planning
Guide for Library Broadband Connectivity will cover the following topics.
1
2
3
4
5
6
7
8
Context and Importance
Federal and State Policy
Leadership and Partnerships
Market Analysis
Specifications, Bidding and Procurement
Technology Training, Network Management and Support
Additional Considerations: Evaluation and Other Programs
Connected Libraries; Connected Communities
Four appendices provide reference and more details:
A.
B.
C.
D.
Works Cited
Glossary of Broadband Terms
Resources on Federal Telecommunications Policy and E-Rate
Excerpts from Idaho Commission for Libraries RFP
1
In the following sections, we‘ll review each of the above topics and provide examples of how different State Library
Agencies have leveraged their expertise, partnerships, and economies of scale to improve broadband connectivity
to libraries.
State Library Agencies have a depth of collective wisdom on broadband and many other topics. Consistent with
the COSLA mission, the COSLA Planning Guide for Library Broadband Connectivity is intended ―to provide
leadership on issues of common concern and national interest, to further state library agency relationships with
the federal government and national organizations, and to initiate, maintain and support cooperative action for
the improvement of library services.‖ (COSLA Mission, 2014)
When his team issued the first National Broadband Plan in 2010, Blair Levin said, ―This plan is in beta and always
will be.‖ The COSLA Planning Guide for Broadband Connectivity is also in beta and it always will be. The value of
the work will come from the contributions State Library Agencies make after this Guide is published and from the
way the field further invests in best practices and collective wisdom that improve physical and virtual connections
across the library field.
2
Libraries Need Faster Broadband Connectivity
A study conducted by the Pew Research Center‘s Internet &
American Life project found that 77% of Americans over the age of
16 felt that free access to computers and the Internet was a ―very
important‖ library service – a figure comparable to the 80% who
value the library for borrowing books and the 80% who said that
reference services are ―very important.‖ (Purcell, Rainie, &
Zickuhr, 2013)
Public libraries are struggling to meet demands for the bandwidth
needed to power library and patron services. According to the
2013 Digital Inclusion Survey, conducted by the Information
Policy & Access Center at the University of Maryland, more than
half of libraries in America (50.2%) report having connectivity
speeds of less than 10 Mbps; only 12.5% of libraries are connected
at download speeds of 100 Mbps or above. That same report
indicates that library outlets have an average of 19.8 computers
available to the public. Add in library administrative computers
and wifi-enabled devices and imagine powering 15 or 25 devices
with a broadband connection of 10 Mbps or less. (Bertot, et al.,
2014)
Library Connection Speed (Download)
1.5 Mbps or less
Between 1.6 Mbps and 10 Mbps
Between 10.1 Mbps and 49.9 Mbps
Between 50 Mbps and 99.9 Mbps
Between 100 Mbps and 1 Gbps
1 Gbps and over
Percent of Libraries
10.4%
39.8%
27.1%
10.2%
10.4%
2.1%
2013 Digital Inclusion Survey
• All libraries (100%), either directly or
through statewide licensing
arrangements, offer access to online
databases;
• Nearly all libraries (91.5 percent),
either directly or through statewide
arrangements, offer access to digital
reference services (e.g., AskUs);
• Almost all libraries (96.5 percent) offer
homework assistance (e.g., Tutor.com);
• Most libraries (89.5 percent) offer
access to e-books;
• A majority of libraries (55.1 percent)
offer online language learning (e.g.,
Mango Languages, powerSpeak);
• A majority of libraries (53.3 percent)
offer workspaces for mobile workers.
(Bertot, et al., 2014)
Emily Sheketoff, Director of the American Library Association Washington Office, said, ―Our nation‘s public
libraries depend on affordable, scalable, high-capacity broadband in order to complete Education, jump-start
Employment and Entrepreneurship, and foster individual Empowerment and Engagement, or the E‘s of
Libraries™. The services today‘s libraries provide are not ‗nice to have.‘ They are critical for communities
nationwide. Libraries serve everyone from birth through Medicare Part D, and librarians provide the expert
assistance integral to successfully navigating the digital world.‖ (Strauss, 2014)
"At one time, we would have said a T1 (1.5 Mbps) was just the world, but it just changes too fast. We went from a
T1 to two T1s to three T1s to now 15 megabits of fiber." - Beverly Martin, Director of the Johnson County Public
Library in Indiana. (Clark, 2009)
The 2013 Digital Inclusion Survey also quantified the proliferation of some of the services that rely on library
broadband infrastructure (sidebar, above.) That same research concluded that two-thirds of libraries report a
desire to increase broadband connectivity and a full 58.8 percent of libraries report that budgetary constraints
affect their ability to increase bandwidth. (Bertot, et al., 2014)
These figures only surface part of the challenge for libraries. More services are being offered via ―the cloud‖ where
transmission delays can time-out applications or irritate users. Video conferencing services deteriorate without
adequate symmetrical bandwidth. The intensity of the applications that people are using continues to increase.
3
These more intensive applications require not just increased bandwidth but increased service quality: symmetrical
bandwidth (equal upload and download speeds), minimal latency (packet delay) and minimal jitter (packet
transport variation), and extreme reliability (great than 99.99% availability). To meet today‘s and tomorrow‘s
service demands, public libraries need business-class broadband connectivity – faster broadband with guaranteed
Quality of Service (QoS) metrics.
The Evolving Telecommunications Landscape
At the same time that library services and patron needs have increased the demand for high-capacity, high-quality
broadband connectivity, the telecommunications market has undergone significant shifts. While many markets
are still dominated by the duopoly of a traditional telephone company offering residential DSL (Digital Subscriber
Line) or commercial T1 and fiber optical services and a cable company offering service via coaxial cable, many
markets are seeing more providers, upgraded technology, and a new array of business-class services.
In 2010, the Federal Communications Commission issued Connecting America, the first National Broadband
Plan. Implementation of many of the Plan recommendations is underway. The Plan called for significant changes
in the Universal Service Fund and E-Rate to drive more funding into broadband connectivity at schools and
libraries and in rural communities. The Plan recommended a thorough review of spectrum policy to free up
spectrum for mobile services. In 2010, as part of the American Reinvestment and Recovery Act (ARRA), the
National Telecommunications and Information Administration and the Rural Utilities Service invested more than
$7B in national projects to increase broadband deployment, adoption, and use. Over half of SLAs led or benefited
from these projects. In addition to significant investments from traditional cable and telecommunications
companies, new players like Google and select municipalities have invested in improved broadband
infrastructure. This decade has seen significant increases in broadband deployment, digital literacy training,
broadband mapping, and state-level broadband planning as shown in the new National Broadband Map1. While
there have been some gains in residential broadband access, there is still a need for public access and we have yet
to achieve the 2020 goal that ―every American community should have affordable access of at least 1 gigabit per
second broadband service to anchor institutions such as schools, [libraries], hospitals and government buildings.‖
(Federal Communications Commission, 2010)
Given the importance of broadband infrastructure, the complexity of the market and purchasing dynamics, local
libraries are increasingly looking to State Library Agencies for support on broadband and other technology issues.
In an April 25, 2012 study of State Library functions conducted by The Parthenon Group and funded by the Bill &
Melinda Gates Foundation, technology support was the top need expressed by local libraries in their requests for
additional support from State Agencies. That study highlighted the ―comparative advantage‖ of SLAs in providing
services that require specific expertise and economies of scale. Helping local libraries obtain adequate bandwidth
was one area where SLAs are being asked to strengthen their expertise and leverage economies of scale to help
libraries meet surging demands and manage telecommunications costs.
State Library Agencies are uniquely positioned to bring expertise and economies to bear in the acquisition of
broadband connectivity. While many of the trends affecting library broadband connectivity are national,
implementations need to be regional and often local.
1
Though people have noted inaccuracies in the National Broadband Map, especially regarding service to community anchor institutions, the map does serve
as a source of information on state and national level broadband coverage, available speeds and providers.
4
Business-Class Internet
Connectivity Diagram (Conceptual)
While we often speak generally about a 1.5 Mbps, 100 Mbps or 1 Gig broadband connection, many more terms are
needed to understand broadband connectivity, to evaluate options and to make sound purchase decisions. While
this basic measure may meet residential needs, it is insufficient to fully characterize library needs. Library
networks and broadband connections must support lots of devices: public access computers, administrative
systems, and transient connections made through the libraries wireless network. The use-model for those devices
and connections is also changing over time with more clients accessing Cloud services, streaming video, uploading
video and other content, and participating in interactive programs like Library Learning Labs or interactive online
learning. Library networks now need to meet many of the same specifications that people look for in business or
enterprise networks. Unlike some business networks, openness is a core library value so library networks are
seldom ―locked down‖ like a business network may be.
―The network‖ is actually a mesh of interconnected segments. First, the connection from a user device or
computer in the library is made through the library‘s Local Area Network (LAN) which usually includes both
wired Ethernet and 802.11 wireless connections.2 Library Customer Premises Equipment (CPE) includes routers,
switches, firewalls, and a plethora of physical and virtual connections.
What we generally call broadband connectivity or Internet access is a series of links and nodes that make up the
Internet Protocol (IP) backbone, middle mile and last mile networks. Much as a network of roads includes
interstate highways (IP backbone), state and county roads (middle mile) and local roads (last mile), the network
that carries Internet traffic is a mesh of connections that transport Internet Protocol (IP) packets to servers and
other computers. Just as a traffic jam on any road will affect the total length of time needed to get from point A to
point B, a traffic jam at any part of the IP network will affect packet transport and services quality. This is
especially true when connections are congested and when alternate routes are not available, often at the edges or
last mile part of the network. The way that a network is designed, and especially the way that the last mile and
middle mile access circuits are designed, greatly affects network performance – and whether a 100 Mbps
connection actually delivers a 100 Mbps of capacity.
In the travel industry, business-class is defined as ―a travel class available on many commercial airlines and rail
lines, known by brand names which vary by airline or rail company. In the airline industry, it was originally
intended as an intermediate level of service between economy class and first class, but many airlines now offer
business-class as the highest level of service, having eliminated first class seating. Business-class is distinguished
from other travel classes by the quality of seating, food, drinks, ground service and other amenities. (Wikipedia,
2014)
2
Monitoring and upgrading Local Area Networks will be discussed in another COSLA Planning Guide.
5
Business-class broadband has many of the same characteristics of business-class passage on trains or planes.
Known by different names and brands, and available over different types of transport (e.g. fiber, DSL, satellite,
cable), business-class services provide additional Quality of Service features that go beyond basic transport. These
characteristics are generally described by a set of Quality of Service (Q0S) metrics that may include measures for
upload speed, download speed, jitter, and latency. A business-class circuit usually comes with an availability or
reliability guarantee and with special procedures and support to trouble-shoot or escalate problems. For a brief
tutorial on these terms and their relevance to library services, please refer to the Glossary at the end of this
document or to the paper, Connections, Capacity, Community: Exploring Potential Benefits of Research and
Education Networks for Public Libraries, produced on behalf of the Bill & Melinda Gates Foundation.
(Connections, Capacity, Community: Exploring Potential Benefits of Research and Education Networks for Public
Libraries, 2011)
For a good overview of network architectures and networking technology options, please review the Broadband
Reference Guide from the University Wisconsin Extension Service which includes a checklist for conversations
with service providers, network diagrams, and technology pros and cons. The University of Wisconsin Extension
Service guide was part of their Broadband Technologies Opportunity Program (BTOP) grant. NTIA is currently
developing a community broadband planning guide for local governments and tribal leaders. Watch for that
resource when it is available in 2015.
Although most broadband advocates are technology agnostic, many in the field have a preference for fiber
connections to Community Anchor Institutions since the top-end capacity of fiber is greater than that for coaxial
cable, which means that service capacity can generally be easily increased as institutional needs grow. The
American Library Association‘s Office of Information and Technology Policy (OITP) has developed a number of
briefs and reports on library broadband connectivity and regularly provides policy updates through the District
Dispatch. See OITP reports on Fiber to the Library (Visser & Windhausen, 2009) and Regional Library
Cooperative and the Future of Broadband (ALA Office of Information Technology and Policy, 2008) and the Fiber
To The Home (FTTH) Council‘s Community Toolkit. (Fiber To The Home Council, 2014)
While not covered in this Planning Guide, many providers also offer vertical or Value-Added Services such as
video conferencing, email, message services and Cloud storage. As you will see in Section 5 on specifications, it is
important to specify the type of service required. That specification could include requirements for upload speed,
download speed, latency, reliability, monitoring, reporting and also for additional complimentary services such as
email or Cloud storage. These dimensions are summarized in the table below organized by network speed and
quality, cost, Value-Added Services, and community. Nonprofit networks including library or research networks
often value community as much as they value connectivity. James Werle of Internet2 said, ―Equally or more
important than the technical network is the network of people who use this network. They have to be able to share
ideas and visions to understand what‘s possible with these networks.‖
6
Value Summary for Library Connectivity
Examples from State Library Agencies
Effective processes for evaluating and acquiring broadband connectivity are built around functions like policy,
leadership, market analysis, procurement, evaluation and ongoing management. The resulting network
implementations, business arrangements and partnerships can be quite different. Projects can be led by the State
Library Agency, led locally by individual libraries, or regional systems. Implementation or contracting can be
through a single vendor, a regional apportionment, or bid library-by-library. The service provider can be a
traditional commercial vendor or a not-for-profit vendor. In some cases, the State Library manages contracts
directly; in other cases they work through partners. While IP backbone networks are nearly always fiber, the
access circuits can be fiber, cable, twisted pair, satellite or fixed wireless. Contract terms and conditions, and
service measures differ.
Considerations in Defining SLA Roles
7
In recent years some states have moved away from consortia purchasing and others have moved towards
consortia. Some states partner with commercial providers and others work with nonprofit providers. Some use
satellite connections, others are striving for fiber. What these projects have in common is strong attention to
process: evaluating library needs, assessing market options, building partnerships, setting goals, managing
contracts, monitoring performance, and then re-assessing and adjusting as needed. Here are some network
models in play now and represented in the following sections of this guide.
JerseyConnect is the state-wide technology services organization and network infrastructure delivered through
the New Jersey State Library, an affiliate of Thomas Edison State College. Although the SLA signs a master
agreement with Verizon Business Network Services setting the terms and conditions for Verizon‘s services to
libraries, each participating library signs their own participation agreement with Verizon and billing is directly
managed at the library rather than state level. E-Rate participation is up to the individual libraries, but
JerseyConnect provides personalized E-Rate filing assistance to connected customers at no charge. JerseyConnect
operates a Help and Support Desk for the libraries, escalating issues to the provider as needed. The network also
offers Value-Added Services such as cloud storage, email service, bandwidth monitoring and reporting, and
firewall management all at no cost to libraries. Roughly 221 of New Jersey‘s 326 libraries participate on an opt-in
basis.
Alaska OWL (Online With Libraries) was originally created by the Alaska State Library as part of the federal
stimulus Broadband Opportunities Technology Program (BTOP), providing upgraded bandwidth at 67 libraries,
video-conferencing at 97 libraries, and technology support and training for staff at all libraries. Broadband was
bid as a part of the state contracting process, managed in partnership with the University of Alaska Office of
Information and Technology, with the contract award going to a single provider, General Communications Inc.
With excellent support from the SLA, E-Rate covers the majority of the $2.9M annual expense. This contract and
a broad set of services supported by the Alaska State Library added significantly to library community services,
resulting in a new funding appropriation from the State Legislature — funding that will continue to support these
broadband connections, assuring that OWL will soar beyond BTOP.
In the Georgia Broadband Project, the Georgia Public Library Service (GPLS) took a careful look at how a
long-standing master services contract with a single vendor met library and community needs. The resulting
analysis prompted the state to terminate their single-vendor statewide contract in favor of separate contracts with
providers that were able to offer better Internet speeds at decreased costs. With the previous master contract,
business-class services were provided by a large telecommunications provider that served all libraries at
postalized rates (meaning that each circuit is based on an average cost, so libraries in higher cost areas pay the
same rate as those in lower cost areas.) The new contracts, managed and supported by GPLS and signed with each
library, cut cost in half and increased speeds from an average of 3 Mbps to 28 Mbps. However, some of the new
services are not business-grade and QoS measures are uneven. GPLS looked carefully at the tradeoffs in moving
from a single vendor master contract to separate contracts. Having reset the table, they are now looking at a
hybrid arrangement that will offer some economies of scale but still be able to leverage a handful of vendors with
broad coverage across the state.
Ohio Public Library Information Network (OPLIN) is defined in the Ohio Revised Code as "... an
independent agency within the state library of Ohio, for the purpose of ensuring equity of access to electronic
information for all residents of this state." (ORC Sec. 3375.65) While OPLIN may procure ―last mile circuits‖ to
connect to libraries, OPLIN owns and manages the majority of network connections and services, partnering with
nonprofit and commercial providers in the state to provide libraries with a full suite of services. OPLIN provides
database services through its partnership with Libraries Connect Ohio and additional services for webhosting,
email, storage, reporting and technical support.
8
High-speed Broadband in California Public Libraries —a 2014 report from the California State Library
proposes a new approach for connecting California‘s libraries. The analysis recommends moving away from
separate contracts for library broadband to a single state-wide library consortia supported by the nonprofit
Corporation for Education Network Initiatives for California (CENIC). The State Librarian estimates current costs
of $14.5M for connectivity and targets planned cost at $4.5M annually after a one-time cost of $2M. Equally as
important, CENIC is able to offer libraries high quality and high-speed access with a regular path for continued
upgrades and improvements.
Maine School and Library Network (MSLN) linked all Maine libraries and schools to the Internet in 1996 at
56Kbps. This connectivity was funded by a rate case settlement before Maine‘s Public Utilities Commission. In
June 2009, Networkmaine was created through a Memorandum of Understanding (MOU) signed by the Maine
State Library; Maine Department of Education; State of Maine Office of Information Technology; and University
of Maine System to ―operate and manage a statewide telecommunications delivery system and services to support
education, research, public service, government and economic development.‖ Networkmaine issues RFPs for
connectivity and for Internet service for the Maine School and Library Network. Any vendor may bid on a
coverage area from a few schools and libraries to the entire state. Multiple contracts have been awarded.
Connectivity speed is currently between 10 Mbps and 1 Gbps. In 2010, a middle-mile fiber project named the
Three Ring Binder was funded through the America Recovery and Reinvestment Act, expanding fiber connections
to many Maine libraries. This investment has been further supported by commercial network deployment and
several municipal broadband fiber projects. Local libraries are connecting to these with assistance from
Networkmaine. Maine’s goal is one-gigabit connectivity for all schools and libraries.
2. Federal and State Policy
Federal, state and local policies provide context for the telecommunications market and for library connectivity
options and incentives. At best, library leaders can influence policies to be supportive of library public access
technology resources and services; at a minimum, a basic understanding of telecom related policies is needed to
evaluate, plan, fund, acquire and manage broadband connectivity for libraries.
Policies can be implemented through legislation, regulation, budget appropriations, or executive order. One of the
most significant impacts that can be felt at the state or federal level is legislation or regulation that provides direct
funding, subsidies or discounts for library broadband connectivity. As Charles Benton, CEO of the Benton
Foundation, says, ―Money is policy.‖ At the federal level, regulations regarding open Internet, competition, and
rural access influence competition, broadband availability and pricing. Arguably the most important federal
policies for public library connectivity are those related to the federal E-Rate program.
States laws and activities concerning broadband vary greatly. State policies and programs can provide an excellent
source for funding, partnership and market leverage. Many states have taken active steps to promote broadband
availability and use. Some have laws limiting community options for broadband deployments; others encourage
governmental or community deployments. Some states have prioritized broadband by creating State Broadband
Offices or built broadband expertise in offices for economic development or information technology. While State
Broadband Initiatives were funded for five years through federal stimulus funds, states like Virginia, North
Carolina and California had offices in place before the stimulus and many states will maintain these offices going
forward. However, many of the state broadband offices are in flux. Some states will close these offices and address
broadband issues only ―as-needed.‖ Staying abreast of local broadband opportunities and related policies requires
active engagement with state partners.
9
At the local level, some communities include the public libraries in city or school network purchase agreements for
telecommunications right-of-ways. In others, these arrangements provide relatively modest cable connections as
part of regional right-of-way agreements. In communities such as Chattanooga, Tennessee, and Kansas City,
Missouri, the cities‘ priority on fiber access have created an environment where community institutions have
relatively easy access to high-capacity, high-quality, affordable broadband.
While the policy framework outside the SLA impacts the work of the agency, policies set by the agency are equally
important. For example, does the Agency collect information on broadband connectivity as part of annual
reporting? What level of detail is expected, and how is it collected? How is technology planning covered in regular
meetings and strategic plans? For this Planning Guide, we‘ll explore local policies and data collection more fully in
Section 4, Leadership, and Section 5, Market Analysis.
Taken together, policies either enable state-level broadband capacity planning or undermine such efforts. Before
reviewing state policy examples, we‘ll review the Federal E-Rate program and identify sources for librarians to
stay current on federal telecommunications policy.
2.1 The Federal E-Rate Program
―E-Rate is the commonly used name for the Schools and Libraries Program of the Universal Service Fund, which
is administered by the Universal Service Administrative Company (USAC) under the direction of the Federal
Communications Commission (FCC).‖ ―The program provides discounts to assist most schools and libraries in the
United States (and U.S. territories) to obtain affordable telecommunications and Internet access… Discounts for
support depend on the level of poverty and the urban/rural status of the population served and range from 20% to
90% of the costs of eligible services. Eligible schools, school districts and libraries may apply individually or as
part of a consortium.‖ (Wikipedia, 2014)
Since the inception of the E-Rate program in 1996, the funding has been instrumental in helping libraries procure
and fund telecommunications services. In fact, more than 90 percent of public libraries have used the program,
according to 2014 analysis from the Institute of Museum and Library Services. In fact, most SLAs include a state
e-rate coordinator on staff and/or contract out for consulting assistance to provide a range of services—from
advice to coordinating statewide applications—to local libraries applying for E-rate discounts. The American
Library Association manages a listserv of all the e-rate coordinators to support peer sharing, coordinates monthly
calls with USAC staff and engages an E-rate Task Force made up of state e-rate coordinators to advise on
policymaking related to the federal program. One requirement of schools and libraries that receive E-rate funding
that inhibits some libraries from using these funds is that libraries filter content to comply with the Children's
Internet Protection Act (CIPA). CIPA was signed into law on December 21, 2000, to protect children from obscene
or illegal content. A 2014 report from the American Library Association, Fencing Out Knowledge, examines the
law and its impacts in detail. Recent regulatory changes in the E-Rate program will tilt funding toward high
capacity broadband and away from traditional telephony, making these policies especially important to libraries
and library leaders.
The policies that created the Universal Service Fund and E-Rate were enacted by Congress as part of the
Telecommunications Act of 1996.
Section 254 codified provisions for universal service, a principle that broadly means everyone should
have access to advanced telecommunications services at reasonable rates regardless of their location.
Two measures were included to advance this goal specifically for libraries and schools.
Telecommunications providers were ordered to supply their services to schools and libraries at
discounted rates determined by the FCC (S.652, Section 254(h) (1)(B)). More generally, the FCC was
directed to establish rules “to enhance... access to advanced telecommunications and information
services for all public and nonprofit elementary and secondary school classrooms, health care
providers, and libraries” (Section 254(h) (2)(A)).
10
This act also directed the Federal Communications Commission (FCC) to ―establish and periodically evaluate what
services qualified for support under both measures according to four broad criteria (Section 254(c) (1)). Funding
was to be provided by contributions from telecommunications providers through an unspecified but ―equitable
and nondiscriminatory‖ mechanism (Section 254(b) (4)).‖
The FCC has made incremental adjustments to the fund since 1996, but the National Broadband Plan, issued
March 17, 2010, called for the FCC to ―improve the connectivity to schools and libraries by upgrading the FCC‘s ERate program to increase flexibility, improve program efficiency and foster innovation by promoting the most
promising solutions and funding wireless connectivity to learning devices that go home with students.‖ The Plan
also defined a broader goal, that by 2020 ―Every American community should have affordable access to at least 1
gigabit per second broadband service to anchor institutions such as schools, [libraries], hospitals and government
buildings.‖ (FCC Omnibus Broadband Taskforce, 2010)
Additional changes were made when the FCC adopted the E-rate Modernization Order on July 11, 2014
implementing reforms that will take effect in the 2015 planning year. The Order makes significant changes in
three major areas and asks for additional input as the Commission continues to consider more regulatory changes,
including the possibility of raising the price cap on the E-Rate Fund. The American Library Association OITP
published A Summary of Major Changes in the E-Rate Order from the July 11th Report and Order. (Boucher,
2014)
Broadly, the E-Rate Modernization order:



Significantly expands Wi-Fi funding for all libraries and schools
Improves E-rate program cost-effectiveness through pricing transparency, encouraging consortia and
bulk purchasing
Streamlines and simplifies the E-rate application process and program administration
While the main focus of this order is to increase the availability of funding for ―internal connections‖ or wireless
networks, the Order also includes a number of rulings that streamline the application process and encourage
consortia applications. These new regulations could further strengthen the SLA‘s role in broadband procurement.
Here are some of the highlights of the E-Rate Modernization Order:

The FCC has directed USAC, the administrator of the E-rate program, to prioritize application review for
state and regional consortia applicants, so consortia applications filed by the SLA will get priority over
smaller applications.

The FCC amended its E-rate rules to permit a consortium lead to identify on its consortium‘s FCC Form
470 the schools, school districts and libraries for which it has authority to seek competitive bids for E-rate
eligible services even if it does not have authority to order services for those entities. This means that the
SLA can ask for proposals on behalf of local libraries even if services are contracted at the local level.

The FCC reminds applicants that E-rate rules do not require a consortium to solicit or select a single
vendor to provide service to all consortium members. A consortium may invite vendors to bid on services
to a subset of consortia members, and may find that a combination of different service providers offer the
most cost-effective solution for consortium members. This reminds SLAs that they can send out a single
RFP and award contracts to vendors that provide partial service coverage.

The FCC is simplifying the application process for funding requests that involve multi-year (no longer
than five years) contracts for eligible services. This will enable the state to consider broadband contracts
every 2, 3, 4 or 5 years, instead of annually.
11

The FCC created an exemption in competitive bidding rules for applicants seeking E-rate support to
purchase commercially available, business-class Internet access services that cost $3,600 or less for a
single year. An Internet access service will be eligible for this exemption only if it offers bandwidth speeds
of at least 100 Mbps downstream and 10 Mbps upstream for a pre-discount price of $3,600 or less
annually, including any one-time installation and equipment charges, and the service and price are
commercially available. This provides an incentive to work with service providers to get high capacity
affordable broadband in place – without an RFP process.

The FCC finds that more extensive government-to-government consultation with Tribal Nations is
necessary to understand both the need for E-rate support on Tribal lands and how to successfully connect
Tribal schools and libraries with modern high-speed communications. The Order includes provisions for
enhanced consultation, training and outreach to tribal governments, schools and libraries. This sets the
stage for SLAs to work directly with tribal governments on broadband planning.
Appendix C contains links to resources with more information on federal telecommunications policies and E-Rate
modernization.
While federal policy and E-Rate is important, there are many local polices that affect library broadband. The
following sections explore state level policies that impact library broadband.
2.2 Library Broadband Policy in California
By ―charging‖ the State Librarian to assess the current and required broadband needs of California‘s public
libraries and develop estimated costs for meeting those needs, the California State Legislature and Governor
instituted a policy that required that the California State Library Agency take an active role in broadband
connectivity planning for libraries in the state. The resulting report, High-speed Broadband in California Public
Libraries - Needs Assessment & Spending Plan, provides an excellent model for one state‘s broadband capacity
planning process (Maginnity & Keller, 2013).
The initial policy directive said:
The State Librarian shall prepare a needs assessment and spending plan to connect local public libraries
to a statewide high-speed Internet network. The needs assessment, at a minimum, shall (1) evaluate
local public libraries’ current Internet connectivity and expenditures; (2) identify the requirements of
connecting all public libraries to the Internet using available options, including the Corporation for
Education Network Initiative in California (CENIC); and (3) estimate the cost of the identified
connectivity options. The spending plan, at a minimum, shall identify total project costs, broken down
by onetime and ongoing costs, and identify available funding sources, including non-General Fund
sources. The assessment and spending plan shall be submitted to the Department of Finance, the
Legislative Analyst’s Office, and the chairs and vice chairs of the budget subcommittees on education by
February 1, 2014. – 2013/2014 budget bill, Chapter 20, Statutes of 2013 AB 100
This new policy didn‘t come out of the blue. According to Jarrid Keller, Chief Information Officer, California State
Library, ―It has been a long journey.‖ Keller said that that journey started back in 2009, when the state held the
Opportunity Online Broadband Summit for California public libraries to increase awareness of the issues involved
in acquiring and maintaining broadband connectivity.3 That Summit helped clarify and catalyze the importance of
broadband in public libraries. Keller said, ―Even though most public libraries provide basic Internet access, only a
3
This Summit was supported by a grant from the Bill & Melinda Gates Foundation as part of the Opportunity Online Grant Program.
12
small percentage has sufficient high-speed broadband connectivity. Growth trends, and bandwidth demands from
emerging services, indicate that public libraries will need high-speed broadband connections that can handle
gigabit transmission speeds.‖ Then in January 2012, at the ―Public Library Director Summit, participants
developed ideas regarding what should be supported by the state in terms of funding for libraries. One of its
highest priorities was technology infrastructure. Through the efforts of the California Library Association in 2013,
the State was made aware of how becoming a member of CENIC could fill a critical broadband need for libraries.
Subsequently, through the 2013/14 State of California budget bill, AB110, the following direction was given: ‗The
State Librarian shall prepare a needs assessment and spending plan to connect local libraries to a statewide highspeed Internet network.‘‖
2.3 Library Broadband Policy in Oklahoma
Soon after the creation of the federal E-Rate program, the Oklahoma Corporation Commission considered
establishing a complementary program with a portion as part of the Oklahoma Universal Service Fund (OUSF).
Representatives from the Oklahoma Department of Libraries were at every meeting and in 1997, the Commission
established a Special Universal Service Fund - School, Libraries and Telemedicine to provide financial support for
broadband connections to schools and libraries. Legislation passed in 2011, after a member of House of
Representatives learned more about how people are using library connectivity, doubled the Oklahoma Universal
Service Fund‘s financial support for library connectivity, moving OUSF support for bandwidth from 56 Kbps to 1.5
Mbps. These state funds complement the federal funding and further increase broadband affordability for
libraries. A library that needs a higher capacity connection (and of course many libraries do) can use the
―equivalent dollar‖ credit towards higher levels of service than the minimum required in the law. Most schools
and libraries use the state universal service fund after drawing on the federal universal service fund so they are
often able to use the state universal service fund for a much higher broadband connectivity at no additional cost to
them.
The Oklahoma law 17 O.S. 139.109 now specifies:
4. Each public school building wherein classrooms are contained and each public library in the state
shall, upon written request, receive one access line, free of charge, with the ability to connect to an
Internet service provider at 1.5Mbps, in the most economically efficient manner for the carrier, or an
equivalent dollar credit to be applied by the public school or public library toward similar services
provided by the same carrier, for the purpose of accessing the Internet. In no case shall the Oklahoma
Universal Service Fund reimburse an entity for an Internet subscriber fee or charges incurred as a
result of services accessed via the Internet…
State Library Director Susan McVey says, ―The important part of the ruling is the increased state support for
library broadband. Our library broadband connectivity goals are different for each library. For example, we were
able to open 36 room-based video conferencing centers in public libraries as part of a federal Broadband
Technologies Opportunity Program grant. Those libraries have an average broadband connection speed of 61.5
Mbps and most of the connections are symmetrical business-class circuits.‖
13
2.4 Library Broadband Policy in Wisconsin
Existing policies can also be leveraged to strengthen broadband access, as was done in Wisconsin, when the state
Department of Public Instruction, the Department of Administration and the Governor all supported an
agreement with the incumbent telecom vendors to install fiber connectivity to all libraries on the state's
BadgerNet network. In a press release dated February 4, 2014, state superintendent Tony Evers stated, 'Fiber is a
wise investment in networking infrastructure, and it will greatly help our libraries serve their community‘s needs
for ever faster Internet connectivity.' Under the public private partnership with AT&T and other telecoms libraries
will get a minimum 10Mbps BadgerNet broadband connection for $100 per month and up to 100Mbps for $250
per month."
2.5 Broadband Policy in Alaska
The principle that ―money is policy‖ was demonstrated in the State of Alaska when the Governor‘s proposed
budget, submitted on January 22, 2014, included a $761,800 appropriation for OWL (Online With Libraries)
(page 8, line 30) and $138,200 for Live Homework Help (line 31.) These lines represent state appropriations for
broadband connections to Alaskan librarians and additional educational cloud services at the library. This funding
is expected to be added as a continuing increment to the Department of Education and Early Development
budget, thereby instituting a new ―policy‖ for the state to provide matching funding for library broadband
connectivity.
2.6 Broadband Policy in Ohio
The Ohio Public Library Information Network (OPLIN) gains its statutory authority via the Ohio Revised Code as
"... an independent agency within the state library of Ohio, for the purpose of ensuring equity of access to
electronic information for all residents of this state" (ORC Sec. 3375.65). Stephen Hedges, OPLIN Director, echoes
Benton‘s sentiment that "money is policy" noting ―The State of Ohio pays for the OPLIN Internet connection to
the main library in each public library system, and that is a very powerful policy statement.‖
Within OPLIN, policy is set through Ohio Public Library Information Network 2014-2015 Strategic Plan which
lists a number of specific objectives to ―connect OPLIN participants to the Internet.‖ These objectives could also
be considered state level policies that define broadband connectivity for Ohio‘s libraries.
OPLIN will connect OPLIN participants, as defined by O.R.C. 3375.64, to the Internet so Ohioans can
access the diverse resources of Ohio's public libraries and, through the libraries, access international,
federal, state, regional, and local information resources.
Objective: Provide an adequate Internet connection to every OPLIN participant
OPLIN will:
 provide a backbone of broadband telecommunications to every OPLIN participant, with a goal
of providing Ethernet connections to all OPLIN participants;
 maintain the health of the network, with a goal of no failures or bottlenecks, to support the
activities of libraries and their users; and
 prevent degradation of network service.
This objective is achieved if every OPLIN participant has an Internet connection that is working
properly at least 99% of the time.
14
Objective: Provide Internet bandwidth to every OPLIN participant
OPLIN will:
 provide Internet access bandwidth and circuit capacity to each OPLIN participant proportional
to the participant's needs; and
 provide each OPLIN participant with the means to filter Internet bandwidth to remove obscene
and illegal content.
This objective is achieved if every OPLIN participant has an Internet connection that is large enough to
insure that the participant's average circuit utilization does not exceed 70% during peak hours…
2.7 Policy Summary
Federal and state telecommunications policies can have a huge impact on
the availability, pricing, and openness of high-quality, high-speed
broadband. When library leaders become actively engaged in these
discussions, their voices are heard. It may be a ―long journey‖ and the scope
of policy options available depends significantly on the politics and
economy of each state. Policy awareness is essential. Influence is possible.
Impacts can be substantial.
3. Leadership and Partnerships
Broadband connectivity programs require unique leadership
characteristics. In addition to needing all of the traditional leadership
attributes of vision, stakeholder engagement, and project management,
broadband projects require technical knowledge, experience with contracts
and vendor management, and the ability to build partnerships and allies.
Consider the following guidelines for leaders involved in implementing
comprehensive technology programs:
1.
2.
3.
4.
5.
Determine the program‘s objectives before planning proceeds
Develop a compelling vision or mission statement
Involve program stakeholders in the planning process
Collect and evaluate the data needed to support decision-making
Assign an effective leader, with appropriate decision-making authority
and experience
6. Develop processes to re-evaluate outcomes and drive continuous
improvement
Taking a Seat at the Head
of the Policy Table
When the Nevada Governor
formed the Nevada State
Broadband Taskforce in 2009,
he invited State Librarian,
Daphne DeLeon, to join the
team to represent rural
libraries. Daphne joined 12
other members including
representatives from K-12
education, higher education,
the departments of
transportation and Indian
Commission and local
vendors. As the chair of the
Task Force, Daphne has been
involved in all of the state’s
broadband projects while
managing the task force and
overseeing the work of the
state’s broadband designee,
Connect Nevada. Does it make
a difference? Daphne says,
“Yes! It’s really about
communication and
partnership. Now, libraries
are much more plugged into
all of the state’s broadband
projects. We have filled some
service gaps and upgraded
bandwidth at some libraries.
It also gives us a chance to be
more directly engaged in state
initiatives, like the rural
health initiative and education
reforms.”
Goal setting is an important part of broadband leadership, but much more
is needed. Goals need to be grounded in market realities – on both the
supply side (vendors) and the demand side (libraries). Goals need to be
supported with detailed project plans and staff or consultants that have
expertise in telecommunication, business, project management and
collaborative problem solving. In the April 25, 2012 study of State Library
functions conducted by The Parthenon Group, technology support was the
top need expressed by local libraries in their requests for additional support
from State Agencies. If your SLA does not currently have a position for a Director of Information Technology,
consider this for the future, partner with another state agency to share this expertise, or augment your staff with
contractors that have core IT planning and purchasing experience.
15
As broadband and IT moves from the sidelines to center stage, it may be difficult to know which stakeholders need
to be engaged in the planning process. You are likely to need local library IT staff, state IT experts, financial and
contract experts, and program staff. One SLA leader who ruffled a few feathers by failing to involve some key
stakeholders upfront advised, ―Take some time and do an environmental scan or a risk management exercise.
Make sure to ask the initial stakeholders if the omission of anyone would risk a negative impact on the project.‖
Another key leadership responsibility is in setting the stage and building effective partnerships. Partnering is an
arrangement in which parties agree to cooperate to advance their mutual interests. There is a continuum of
partnership models from informal collaborations to more formal business arrangements defined and codified with
a letter of agreement, memorandum of understanding, or contract. Core to any successful partnership is a welldefined agreement that defines roles and responsibilities, service expectations, and success criteria.
In the context of broadband connectivity planning and acquisition, SLAs often have formal agreements with the
libraries in their state in order to perform consortia purchasing on their behalf, agency partnerships within state
government such as those with the Office of Information Technology or Broadband Office, and contracts with forprofit or non-profit network vendors that specify pricing and terms of service.
Effective leadership is demonstrated in vision statements, objectives, project plans, communications packages,
meeting notes, partnership agreements, and data analytics, just to name a few sample outputs.
3.1 Leadership and Partnerships in Georgia
In making the move from a state-wide contract for broadband connectivity to a series of local contracts and then
evaluating a further move to a hybrid arrangement, IT Director Emily Almond started with the facts. Her
document, Re-building Internet Access Services in Georgia‘s Public Libraries, lays out a vision and case for
change. That document discusses:
The Library in the Networked World
2010 Public Library Funding & Technology Access Study
Current State of Georgia’s Library Network
Samples from Wireless Usage & Traffic Study in GA Public Libraries
Current State of Georgia’s Library Network Business Model
Strategic Plan
The planning process and ongoing engagement model employed by the IT Director at Georgia Public Library
Service is described in the September 13, 2013 District Dispatch post ―State-wide library consortiums: Are you
sure you‘re getting the best deal?‖
3.2 Leadership and Partnerships in Oklahoma
In creating the plan for OK Connect, the Oklahoma Department of Libraries defined a vision for the OK Connect
video conferencing services and for the bandwidth needed to support these centers.
OK Connect provides access and opportunity for all Oklahoman. Our network of libraries are
community anchors that build and sustain communities by improving people’s lives. We provide highspeed broadband access and video conferencing to local, state, national and international resources for
online education, e-government, health consultations, job seeking and training opportunities. Our
libraries are congenial, technology-enabled, information hubs that bring people together to convene,
connect and learn more about the world around them.
16
The state library set specific bandwidth targets for each library based on requirements for the video conferencing
application and the libraries‘ ability to sustain funding after the grant period. Targets were between 4.6 Mbps and
45 Mbps – figures that were exceeded in all cases! The average connection speed for libraries in the OK Connect
project is currently 61.5 Mbps, and 19 of the 44 libraries involved in the project upgraded their connections to 100
Mbps.
3.3 Leadership and Partnerships in Idaho
As part of the Broadband Opportunities Technology Project, the Idaho Commission for Libraries (ICfL)
―appointed a statewide technical contract specialist to handle the bid process and contract negotiations for
expanded bandwidth for libraries, as individual installations, ensuring compliance with E-Rate rules and
appropriate technical plans for each library.‖ This expertise was needed to provide in-depth understanding of the
telecommunications requirements and bidding process.
The partnership between local libraries and the Idaho Commission for Libraries was defined by a Memorandum of
Understanding: Idaho Commission for Libraries and Participant Libraries and a Letter of Agency. The
memorandum of understanding defines the respective responsibilities of the public library and of ICfL for data
collection, training, promotion and public computer center services. The letter of agency states:
This is to confirm our participation in the Commission’s above referenced BTOP grant as the recipient of
upgraded computer and connectivity capacity. I hereby authorize the Idaho Commission for Libraries to
procure on behalf of our public library the computer equipment described in the grant (or better) and
the telecommunications equipment and services selected after an open bidding process and consultation
with this public library.
3.4 Leadership and Partnerships Summary
The above section provides only a few of the many examples of leadership, engagement and partnership
development employed by SLAs who are committed to supporting libraries in maintaining the technology
infrastructure needed to offer robust library services. Attributes that make for good leaders in this small slice of
State Library Agency services are vision, persistence, engagement, expertise and excellent project management.
4. Market Analysis
Market analysis is a foundational element of any broadband capacity project. The Gale Encyclopedia of Small
Business says ―market analysis is a tool companies use in order to better understand the environment in which
they operate.‖ This understanding of the operating environment for broadband connectivity is crucial to creating
specifications and agreements that provide libraries with best-in-class connectivity. Telecommunications market
conditions, provider choices, governmental supports, and purchasing climates vary greatly from state-to-state,
across the county, and a broadband connectivity plan must be based on local market conditions. Regardless of the
planned business arrangement, SLAs are uniquely positioned to conduct the type of analysis that considers local
conditions and creates opportunities for collective purchasing at scale.
17
Market analysis for broadband connectivity needs to review both the supply side of the market and the demand
side of the market. On the supply side, consider broadband providers such as telecommunications companies,
Internet Service Providers (ISPs), Research and Education networks, state networks, and services provided by
partner agencies. On the demand side, consider the broadband connection needs of public libraries. As a baseline,
SLAs need to understand current Internet connections at libraries (including network type, speed, vendor, service
quality agreements, terms, and pricing).
It is also important to understand utilization rates. Some providers add capacity when access circuits reach 70%
utilization to avoid contention for transmission bandwidth. In addition to measuring current utilization, planning
needs to project what capacity will be needed for the future—including emerging services. Kansas City Public
Library, for instance, is considering software lending via its fiber connections. Other libraries are leveraging their
broadband to enable television white space pilots. In addition to understanding the supply and demand side of the
broadband connectivity market, it is important to understand the ability to make consortia purchase decisions at
the state level. Even in states where purchasing is handled locally, SLAs can play a valuable role helping ensure
good purchasing plans for those local contracts.
4.1 Market Analysis in California
The California State Library recently produced a comprehensive study titled, High-speed Broadband in California
Public Libraries: An Initiative of the California State Library – Needs Assessment & Spending Plan. This report
includes: 1) an in-depth market analysis, 2) a study of alternative broadband connectivity plans for public
libraries, and 3) recommendations for moving from individual per-library contracts to a comprehensive
consortium implemented in partnership with California‘s high-speed Research and Education Network (CENIC).
In this report, you‘ll find information on:





Current Internet services in California‘s public libraries
o Network speeds
o Upload and download speeds
o Form of network, e.g. DLS, fiber, cable, satellite
o Bandwidth utilization
o Internet network supplies, i.e. vendors or providers
o Length of contract terms for network contracts
Cost expenditures and projections for Internet Services at public libraries
Facilities and equipment supporting Internet service
Staff support for Internet service and use of E-Rate and CTF (California Teleconnect Fund) funds
Planned use of high-speed broadband to support patrons
You‘ll also find information on the methodology used to conduct the study, including the collaborating
organizations, project team, survey design, survey administration, and survey analysis.
4.2 Market Analysis in Georgia
After negotiating with existing state vendors to increase network bandwidth and manage costs, the Georgia Public
Library Service launched a study to consider alternative broadband connectivity options for Georgia‘s libraries.
Emily partnered with the Georgia Broadband Project to learn more about supply-side of the market, finding 207
vendors operating in parts of Georgia; many were eager to partner with the SLA and with local libraries to provide
service. Prior to doing any local contracting, she also worked with libraries to help them understand their current
connectivity and to consider their future needs. Tools used for the Georgia Public Library Service market analysis
are available at Network Project FAQs.
18
Through this process, Georgia decided that the consortia model for state-wide purchasing from a single vendor
was no longer cost-effective. The State Library coordinated a bidding process with vendors and local libraries
requesting proposals that covered on a per library basis. Going forward, Georgia expects to implement a hybrid
model that will leverage scale at a regional level and allow the state and local libraries to work with providers that
are most able to offer high-value, high-quality connectivity. Georgia Public Library Service expects to reduce total
annual expenses by $1M (for an after-E-Rate savings of $180k) and increase bandwidth from an average of 3.0
Mbps per library to an average of 28 Mbps, a nearly 9x increase. For a project summary and a discussion of
moving from the consortia model to a hybrid model, please see Network Page of the Georgia Libraries Tech Center
website.
4.3 National Broadband Map and State Broadband Offices
Many states collect data on broadband availability, adoption, vendors and speed as part of the federally-funded
State Broadband Initiatives. This information is consolidated at the federal level in the National Broadband Map,
which is currently produced jointly by the Federal Communications Commission and the National
Telecommunications and Information Administration, with support from states and territories. Although states
and service providers have improved these maps over the past four or five years, the lack of consistency and
priority of reporting connectivity to community anchor institutions makes the data somewhat suspect. When
available, the most accurate data for libraries is often the data supplied by SLAs. (See Section 4.5.) The State and
National Broadband mapping process will change in the future when the FCC assumes full responsibility for the
data collection and mapping, but it is likely to remain a valid source for learning about specific broadband
providers in your state.
Another partner that can provide insight on broadband providers is your state broadband office. Some examples
of progressive programs can be found at the Washington State Broadband Office, Colorado Broadband Data and
Development Program, California Broadband and Digital Literacy Office.
4.4 State Library Agencies’ Broadband Data Collection
From a management perspective, we measure what is important. Although the State Data Coordinators have
elected not to offer a standard set of measures on library broadband connectivity and wireless capacity, a number
of states include metrics on broadband connectivity in their annual data collection process. By including
broadband metrics as part of a state‘s annual statistics, the SLA is gathering meaningful market data and making a
policy statement about the importance of tracking broadband connectivity in libraries.
The Montana State library began collecting broadband connectivity data as part of their annual public library
statistics data collection in FY2013. This connectivity data complements data collected on PC availability and
usage. The dataset is located here. This correlation between usage (PC‘s connected to wired Internet, PC‘s
connected via wireless, staff PCs, and open wireless access) and bandwidth is critical. Broadband bandwidth needs
to be sized for a given load. Adding more devices without upgrading bandwidth degrades service for all users. The
Montana State Library collects the following broadband statistics for each library:







Does library have different bandwidth for staff and for the public? (True or False)
Patron Upload Wired
Patron Upload Wireless
Patron Download Wired
Patron Download Wireless
Staff Upload Wired
Staff Upload Wireless
19





Staff Download Wired
Staff Download Wireless
Library has Internet Access (True or False)
Type of Internet Connection
Does your library provide Wireless Public Access? (True or False)
Each spring, the State Library of Ohio asks all the public libraries in the state to update basic information about
their Internet connections and use of Internet within their library buildings. This data may also reflect contracted
services that are in the process of being installed. You can download a summary of the latest data in Excel (link) or
OpenDocument (link) spreadsheet format, or simply view the summary data online.
Like Montana, Ohio collects information on computers, filtering, and computer usage. They also collect data on
Internet connection type, pricing and E-rate.




Report the total number of uses (sessions) for Internet computers in the library during the last year
Type of Internet Connection at this Outlet
Is Free Public Wireless Internet Access Provided at this Outlet?
Monthly Cost (after E-Rate) to the Library of Internet Connection at this Outlet? (Cost would be $0 for
OPLIN-provided connections.)
Although all of this data is immensely helpful, a bit of interpretation wisdom is needed. While ―connection type‖
often implies certain service characteristics, service measures and terms are seldom collected directly. A 10 Mbps
residential-class connection on a contended (shared) coaxial cable is much different from a 10 Mbps businessclass connection over fiber that supports data burstability (short periods with traffic great than 10 Mbps) and is
easily scalable. Any connection must be considered in the context of the offered load from devices, services and
systems. Ideally, connections should be sized to manage peak-busy-hour traffic with headroom (extra capacity to
avoid contention and accommodate growth).
The New York State Library tracks broadband measures at public libraries. In some cases, local libraries
accidentally misreport broadband information due to lack of knowledge or access to information. To help correct
and clean up these measures over time, the SLA keeps record of ―corrected‖ figures as they work with a local
library staff to better understand and address connectivity needs.






Broadband Service (Y, N, Unsure)
Broadband Provided Name
Transtech (SKL, Cable, Fiber, etc.)
Maximum Download Speed
Maximum Upload Speed
Public wifi






Broadband Service (Y, N, Unsure) - Corrected
Broadband Provided Name - Corrected
Transtech (SKL, Cable, Fiber, etc.) - Corrected
Maximum Download Speed - Corrected
Maximum Upload Speed - Corrected
Public wifi - Corrected
20
4.5 Market Analysis Summary
The broad field of Information and Communications Technology (ICT) continues to experience unprecedented
growth and innovation. A technology solution that works today may be out of date or out of capacity in six months
or a year. Staying abreast of broadband needs and options requires awareness of supply side options (e.g. vendors,
services, subsidies, new projects, possible partners) and demand side needs (e.g. current capacity, bottle-necks,
service requirements, trends). State Library Agencies are uniquely positioned to build the partnerships and
knowledgebase needed to understand the market and take action. However, more effort is needed to ensure that
the information collected from libraries on a regular basis is accurate and supports forward-looking technology
planning.
5. Specifications, Bidding and Procurement
Understanding the market informs the procurement process, which includes: specifications, bidding, contracts
and vendor management. Well-defined specifications and bid documents ensure that contracted broadband
services meet library and patron needs. The specification and bidding process shapes market responses. Final
contracts set terms for speed, quality, support and ongoing upgrades. In some cases, statewide bidding and
contracting implies that final contracts and budgets are managed at the state level. Alternatively, a state-level
purchasing process and master agreement can require separate local contracts and direct local payment. Hybrid
or regional structures split contract management and funding responsibilities between local, regional and state
entities.
Specification and bidding processes are governed by state procurement rules. Additionally, in order to obtain
request for proposals (RFPs) for services to libraries across the state, some state libraries need to first procure
letters of agreement or memorandums of understanding with the libraries that will be candidates for the service.
A state-level procurement process need not result in a single state-level vendor contract. Some states invite partial
proposals covering portions of the state and then apportion services among a few vendors. Some state libraries
manage and coordinate a series of separate RFPs requesting service for each local library. Other RFPs request a
single service proposal covering all libraries in the state.
The other area that differentiates specifications and ultimately contracts is the level of detail specified for
broadband services. At the simplest level, proposals consider speed, price and terms. When considering businessclass services, specifications include measure of service quality, support for data burstability, upload and
download bandwidth, costs for incremental upgrades within the contract terms, reporting on utilization and
availability, help desk support, technology type, and even additional ―value added services,‖ such as cloud services
and video conferencing.
5.1 Procurement Experience in Georgia
After departing from a state-level consortia for broadband connectivity that necessarily narrowed the vendor field
to only one major supplier, Georgia Public Library Service bid library contracts individually, using a process that
was fully supported by the SLA. A sample Request for Proposal (RFP) is available here. Having made a decision
not to require business-grade services, the specifications captured in a 16-page RFP for Georgia libraries were
straightforward:
21
Requested Bandwidth for each library:
Library name
Address
Requested Bandwidth
Catoosa County Library
108 Catoosa Circle
30MB Minimum
Ringgold, GA 30736
Proposals should also include bandwidth pricing for additional 10MB increments above the requested
bandwidth, up to 100 MB.
In 2013, as a result of this process, the GPLS moved from a single master contract with guaranteed service levels
and postalized rates to a series of individual contracts with a total of 6 major ISPs and 16 local providers, totaling
22 different vendors for the state. The resulting contracts, managed and supported by GPLS and signed with each
library, cut cost in half and increased speeds from an average of 3 Mbps to 28 Mbps. However, some of the new
services are not business grade and QoS measures are uneven. IT Director Emily Almond says, ―This is an
experiment. We are monitoring the services and making sure that they do meet library needs. In the future, we are
looking to move to a hybrid arrangement where we have a handful of contracts with major vendors providing
services to libraries in various portions of the state.‖
5.2 Procurement Experience in Alaska
The Alaska State Library developed specifications for upgrades to 93 libraries as part of the Broadband
Opportunities Technology Program. Their 120 page RFP, Alaska OWL Wide Area Network (WAN) with
Broadband Internet Services for Alaska Public Libraries, is based on the state‘s Core Telecommunications Services
RFP of 2007. This RFP includes detailed specifications, evaluation criteria, appeal processes, vendor
qualifications, schedules and a myriad of other terms. Consistent with the Core Telecommunications Services
RFP, Alaska elected to narrow the field of response by forbidding partial proposals:
“Where competition is available, SOA is unable to accept proposals in smaller lots and geographical
areas as part of the formal response to this RFP.”
The Scope of Work for telecommunications services included:












Network Endpoint location information
Quality of Service requirements
Authorization for limited VSAT deployment
Pricing for symmetrical and non-symmetrical bandwidth
Management of Internet Network services performance and operations
Quality of Services with individual Service Level Agreements suitable for video conferencing
Technology disclosure for each segment in the end-to-end circuit path
Internet2 connectivity
IP multicasting
Traffic shaping
Centralized or local filtering with local control
Network Operations Center/Help Desk
22
5.3 Procurement Experience in Idaho
The RFP used by the Idaho Commission for Libraries as part of their BTOP program provided a good check list of
topics to consider in a request for broadband connectivity. These requirements include both the Internet
connection and requirements for vendor-provided Consumer Premises Equipment (CPE) and Domain Name
Servers (DNS) as well as specifications for service availability, monitoring and remediation. Some illustrative
specifications are listed below, taken from a longer excerpt available in Appendix D.










The broadband access link from the library to the Internet services provider location must initially
support at least 9 Mbps between the library and the Internet services provider location. Quote for a
larger capacity broadband access link is encouraged and will result in more points awarded in the
evaluation. Quote the total non-recurring and the monthly recurring charges assuming a sixty month
contract term.
Ethernet transport over fiber, wireless radios, bonded T-1s, DS3, SONET, or Cable is preferred.
Ethernet over ATM is acceptable as well. Any other viable cost-effective technology will be considered.
Describe transport technology being proposed.
A 10/100 Ethernet connection at the point of demarcation (connection between service provider and
library).
Service Level Agreement to 99.9% up time and full bandwidth is required. Describe up time standards
of the proposed service and remedies if they are not met. Also describe how the library can expect full
use of the bandwidth proposed at all times.
Equipment installed for the broadband access link ideally will be capable of providing transmission
rates of up to 100 Mbps in the more distant future when and if required. Describe the CPE proposed,
including make and model.
Scalable Internet bandwidth: Initial Internet downstream bandwidth must be at least 9 Mbps.
Describe the bandwidth being proposed, including up-stream and down-stream rates if different.
Quote for a larger capacity broadband access link is encouraged and will result in more points
awarded in the evaluation.
Provide results of running the FCC speed test tool at http://www.broadband.gov/qualitytest/ using
the M-Lab version of the tool on a week day between 8:00 am and 9:00 am, between 11:00 am and
noon, and between 5:00 pm and 6:00 pm.
Maintenance and Support. The library requires that the CPE equipment be maintained during the
term of the contract. This is to include repairs needed if equipment fails and hardware and software
updates released by the equipment vendor installed.
Service outage response. It is important that the library have service restored as quickly as possible
following a service outage, or if service is compromised (e.g. less than contracted bandwidth service is
delivered). Describe service outage process to be followed when the Internet service fails, including
contact information, average response times, and hours of availability. Describe service outage
process to be followed when delivered bandwidth falls below 9 Mbps.
Technical support. Describe technical support available to the library staff to resolve problems with
the Internet service, performance issues, or Internet access software configuration information and
questions, including contact information and hours of availability.
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5.4 Procurement Summary
If the Internet must be available for library services such as public access technology, e-books, databases, and
maker-spaces, then libraries need to specify requirements for availability, monitoring, repair processes, and
problem escalation. A robust specification, rigorous bidding process, detailed contracts, and strong vendor
management underpin a solid technology infrastructure. While libraries can go through these processes
individually, it is highly likely that a coordinated process will deliver better overall results. If the SLA can negotiate
for multiple libraries in a consortia, it is more appealing to service providers who often prefer larger contracts.
The SLA can provide focused expertise in broadband procurement even if contracts are held locally.
6. Technology Training, Network Management and Support
While technology training is seldom focused only on the broadband connectivity from the library to the Internet,
library leaders often need training and resources to help them understand and manage library technology
infrastructure. Given the critical nature of this connection, clear Service Level Agreements and a Help Desk are
important components in a broadband support plan.
Whether the cost of broadband connectivity comes from the local library budget or is provided by the state, a base
knowledge of broadband connectivity is needed at every library. In order for local libraries to be good partners in
state-level plans, they need to be comfortable with the terms that define and describe broadband network type:
DSL, Cable, T1, Fiber, symmetrical services, hosted services, jitter, latency… The market is also muddied by
measures of ―advertised speed‖ versus ―actual upload or download speed‖ or ―peak load.‖ As broadband becomes
even more critical to all library services, a broadband primer provides common language for measurement and for
communication. While not a complete ―primer,‖ refer to Appendix B for a glossary of common terms. 4
Sometimes it‘s difficult to determine where a problem is in a network. Is the problem in the library Local Area
Network (LAN) or is the problem associated with the broadband circuit? A Help Desk will help troubleshoot the
problem and rapidly restore any failed network connections. According to Stephen Hedges, Director, Ohio Public
Library Information Network (OPLIN), “In our experience, about two-thirds of the time when a library
complains about slow bandwidth, the problem can be traced to a misconfigured internal firewall that is
blocking the library from using its full Internet circuit capacity.” Ideally the technical support team will also
track bandwidth utilization so the library has data to support planning for upgrades before connections become a
bottleneck to library services.
6.1 Training and Support in Georgia
The Georgia Libraries Tech Center is a good place to go for tech information about libraries – even if you don‘t live
in Georgia. With blogs on hosted services, 3D printing, Google Chrome, the Edge Initiative, Technology Boot
Camp and an effective Search function, this site is loaded with just-in-time technical support. Start with The
Network page to learn about the Georgia Network Project.
4
State Library Agency technology boot camps and network primers will be covered in more depth in a subsequent Planning Guide.
24
6.2 Training and Support in New Jersey
Support and network monitoring are key features of the JerseyConnect network. Services are available through
the Help Desk, with response times defined via a posted Service Level Agreement. Jersey Connect also provides
network customers with the following management services:




Proactive router and circuit monitoring
Cisco router and firewall management
Real-time and historical bandwidth reporting
Out of Service guarantees for services hosted by JerseyConnect
6.3 Training and Support Summary
Not too long ago, most of us had never heard of a CPU and when people spoke of clouds, we expected rain. As
technology becomes more pervasive and as broadband becomes more central to library services, more expertise is
needed. Luckily, librarians do not need to become IT managers, but more people need to understand the basics of
procuring and maintaining adequate network connections. Deep expertise needs to exist somewhere: at a help
desk, through a partner, or as part of the libraries telecommunications service contracts.
7. Additional Considerations
7.1 Evaluation
Libraries use a range of techniques to evaluate collections, community needs and overall strategy, but technology
evaluation is new. Emily Almond describes it this way:
“Libraries have never before been asked to justify broadband use. Of course, libraries are used to doing
community needs assessments and gathering metrics on lots of traditional uses (circulation, door
counts, etc.) but use of the Internet connection is new. We’ve been counting how many patrons use the
public access machines, but that’s hardly the whole picture. So, we’re at a juncture where we don’t yet
gather metrics on wireless use in any consistent way, yet we’re being asked to not only provide those
metrics but also, increasingly, to justify the use of a high-bandwidth network. It’s a Field of Dreams
question – if we build it, patrons will use it and we will use it – we know we’ll do programming, mobile
outreach, maker spaces, etc. And we know patrons will use it for classwork, MOOCs (Massive Open
Online Courses), training, professional development, etc. But we don’t have the qualitative data or the
evaluation plan to know if our networks are truly meeting service needs because, heretofore, our
networks have been so saturated that neither we nor our patrons could actually make that plan. Now
we need to make that plan.”
In recent years, we have seen California explore moving from individual local library contracts to establish a statelevel partnership with the nonprofit research and education network, CENIC, to connect all libraries. In the same
time frame, Georgia abandoned a statewide commercial contract in favor of local library contracts with an
assortment of vendors. Wisconsin extended the state's BadgerNet network to bring a minimum of 10 Mbps fiber
connections to each library, with the intention that those connections can be easily scaled beyond 10 Mbps in the
future. The Ohio Public Library Information Network (OPLIN) has committed to deliver ―whatever is needed‖
with upgrades built in when connections are loaded at 70% at peak traffic hours.
The measure of a good connectivity plan is defined by the objectives and vision for your state and your libraries.
That said, we do know that broadband plans need to be evaluated and revised regularly. The references provided
for Georgia Public Library Service and the California State Library include excellent summaries of the types of
25
specific data and processes needed to evaluate broadband connectivity needs and contracts. However more
rigorous evaluation is needed to drive continuous improvement and ensure that today‘s libraries continue to be
the physical and virtual hub for community learning and community information.
One framework for consideration was recently published by the Grantmakers for Effective Organizations (GEO).
While library technology and philanthropy are different in many ways, evaluation considerations are more similar
than different. (Grantmakers for Effective Organizations, 2012) That framework defined Four Essentials for
Evaluation.
1.
LEAD. Create a culture where evaluation is an everyday priority and where it supports and advances
continuous learning.
2. PLAN. Develop a framework to ensure you are ―evaluating with a purpose.‖
3. ORGANIZE. Ensure you and your staff have the necessary infrastructure and systems to support your plan.
4. SHARE. Collaborate with partners, colleagues and others to ensure that evaluation is producing meaningful
results.
State Library staff who took time to review this draft Planning Guide asked for an evaluation checklist for
Broadband Connectivity. While one is not available now, we hope that one will be developed and shared as this
work continues in states and SLAs.
7.2 Edge Benchmarks
The Edge Initiative was developed by a national coalition of leading library and local government organizations,
funded by the Bill and Melinda Gates Foundation, and led by the Urban Libraries Council. It is intended to help
libraries create a path for the continuous growth and development of public technology services. ―Through an easy
to use suite of tools, Edge supports libraries in making strategic decisions and identifying areas for improvement.
The Edge Toolkit gives libraries a look into their local data, from operations to partnerships and programming, to
assess how their community is using the technology and how best practices can be put into place to align future
growth and services with community priorities. It also provides useful resources to package and showcase the data
to other community leaders.‖ (About Edge, 2014)
While Edge benchmark 9.2 ―The library meets or exceeds the minimum bandwidth capacity necessary to support
public user demand,‖ speaks specifically to library bandwidth, all of the metrics together provide a context for how
technology planning and support fits into a community and service context.
7.3 Digital Inclusion Survey
The University of Maryland‘s Information Policy & Action Center has been conducting national surveys on library
technology and usage for a number of years, first as part of the American Library Association‘s Public Library
Funding and Technology Survey (PLFTS) and more recently as part of the Institute of Museum and Library
Services sponsored Digital Inclusion Survey. These surveys and reports provide excellent data – not just for SLAs
but also for state and federal policy makers. Participation in these surveys is voluntary; to ensure that the dataset
provides representative data from your state, encourage a strong response from libraries in your state.
26
8. Connected Libraries; Connected Communities
Policy, leadership, partnerships, market analysis, specifications, bidding and contracts, and technology training
and support are all part of the process needed to create and sustain connected libraries – libraries that connect
communities. While these examples show a great range of implementation possibilities, they also demonstrate the
need to continue to re-evaluate the broadband landscape. The connections that were sufficient six months ago
may be woefully undersized today. Vendor contracts that made business sense last year may or may not be
effective this year, especially if new services are available in your region or growth was not built into the contracts.
COSLA members bring a wealth of expertise to this challenge, best practices to share, use, improve and share
again.
For comments or questions about this report, contact COSLA Executive Director Timothy Cherubini at
[email protected].
27
Appendix A: Works Cited
About Edge. (2014, August 27). Retrieved from Edge Initiative : http://www.libraryedge.org/about-edge
ALA Office of Information Technology and Policy. (2008). Regional Library Cooperative and the Future of
Broadband. Washington DC: American Library Association Office of Information Technology and Policy.
Bertot, J. C., Jaeger, P. T., Lee, J., Dubbels, K., McDermott, A. J., & Real, B. (2014). 2013 Digital Inclusion
Survey:. University of Maryland: Information Policy & Access Center.
Boucher, R. (2014, July). A Summary of Major Changes in the E-Rate Order from the July 11th Report and
Order. Retrieved from District Dispatch: http://www.districtdispatch.org/wpcontent/uploads/2014/07/summary_of_major_e-rate_changes.pdf
Clark, L. (2009, May 5). Study: Public libraries challenged to meet patron needs for high-speed Internet access.
Retrieved from American Library Association:
http://www.ala.org/research/initiatives/connectivity09release
Connections, Capacity, Community: Exploring Potential Benefits of Research and Education Networks for Public
Libraries. (2011, February 21). Resources. Retrieved from Schools, Health and Libraries Broadband
Coalition :
http://www.shlb.org/ckfinder/userfiles/files/Connections%20Capacity%20Community%20RE%20Netw
ork%20Paper%2021feb11.pdf
COSLA Misson. (2014, August 29). Retrieved from Chief Officers of State Library Agencies:
http://www.cosla.org/content.cfm/id/mission
FCC Omnibus Broadband Taskforce. (2010). National Broadband Plan - Connecting America. Washington, DC:
Federal Communications Commission.
Federal Communications Commission. (2010, March 17). National Broadband Plan - Adoption and Utilization .
Retrieved from Federal Communications Commission: http://www.broadband.gov/plan/9-adoption-andutilization/#s9-6
Fiber To The Home Council. (2014, September 8). Community Toolkit. Retrieved from Fiber To The Home
(FTTH) Council Americas: http://toolkit.ftthcouncil.org/
Grantmakers for Effective Organizations. (2012). Four Essentials for Evaluation. USA: Grantmakers for Effective
Organizations.
Information Policy and Action Center. (2014, August 25). Public Libraries and E-Government. Retrieved from
Digital Inclusion Survey:
http://digitalinclusion.umd.edu/sites/default/files/EgovernmentIssueBrief2014.pdf
Maginnity, G., & Keller, J. (2013). High-speed Broadband in California Public Libraries - Needs Assessment &
Spending Plan. Retrieved from California State Library Broadband Project:
http://www.library.ca.gov/lds/broadband.html
Public Library Funding and Technology Survey. (n.d.). Retrieved July 10, 2014, from American Library
Association: http://www.ala.org/research/plftas/2011_2012
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Purcell, K., Rainie, L., & Zickuhr, K. (2013, January 22). Library Services in the Digital Age. Retrieved July 10,
2014, from Pew Internet & American Life: http://libraries.pewinternet.org/2013/01/22/Library-services/
Strauss, V. (2014, July 10). What libraries need from key U.S. technology program. Retrieved July 10, 2014, from
The Washington Post: http://www.washingtonpost.com/blogs/answer-sheet/wp/2014/07/10/whatlibraries-need-from-key-u-s-technology-program/
Taglang, K. (2014, August 25). Benton Foundation Headlines. Retrieved from Benton Foundation :
http://benton.org/headlines
Taglang, K. (2014, August 5). What's in the E-Rate Order? A Request for More Data and Input. Retrieved from
Benton Foundation: http://benton.org/node/198629
Taglang, K. (2014, July 31). What's in the E-rate Order? A Streamlined Process. Retrieved from Benton
Foundation : http://benton.org/node/198253
Visser, M., & Windhausen, J. (2009). Fiber to the Library. Washington DC: American Library Association Office
of Information Technology and Policy.
Wikipedia. (2014, August 25). Business Class. Retrieved from Wikipedia:
http://en.wikipedia.org/wiki/Business_class
Wikipedia. (2014, August 19). E-Rate. Retrieved from Wikipedia: http://en.wikipedia.org/wiki/E-rate
29
Appendix B: Glossary of Terms
802.11: The generic name of a family of standards for wireless networking related to Wi-Fi. The
numbering system for 802.11 comes from the IEEE (Institute of Electrical and Electronic Engineers),
who uses "802" to designate many computer networking standards including Ethernet (802.3). 802.11
specifies an over-the-air interface between a wireless client and a base station or between two wireless
clients, such as in a wifi network.
Bandwidth: Also called capacity, denotes the volume of data an Internet connection can handle over a
given unit of time. The volume of data transmitted is usually measured in bits per second (bps).
Bit: The smallest possible unit of information, usually expressed as a simple binary choice: yes or no,
on or off, one or zero. In a digital system, all information is expressed simply as a very large string of
ones and zeros.
Byte: A sequence of bits. In computer networking, some network protocols send and receive data in the
form of byte sequences. These are called byte-oriented protocols. TCP/IP or Internet Protocol is a byteoriented protocol, meaning that messages are transmitted using a package of bits, or a byte. Bytes are
used not only in networking, but also for computer disks, memory, and central processing units (CPUs).
In all modern network protocols, a byte contains eight bits.
Burstable: A data transmission mode in which data is sent faster than normal.
Busy Hour: The hour during which the maximum traffic load occurs in a given 24 hour period.
Broadband: A general term referring to high-speed communications, regardless of which medium –
fiber, cable, twisted pair or wireless – is used to provide the service. Precisely what speed constitutes
―high-speed‖ broadband is constantly changing as technological capability, applications and user
demands evolve.
Bundled Service: Multiple services provided by a single company.
Cable Modem: A modem (modulator-demodulator) is a device or program that enables a computer to
transmit data over, for example, coaxial cable lines.
CapEx (Capital Expense): Capital expense refers to those expenses that have a useful life of more
than a year. For example, when a library upgrades from a coaxial cable connection to a fiber connection,
the initial installation costs are a capital expense.
Children’s Internet Protection Act (CIPA): CIPA was signed into law by Congress on December
21, 2000, to protect children from obscene or illegal content. It requires that schools and libraries
receiving E-rate funding filter content as designated by the Children's Internet Protection Act (CIPA).
Cloud Computing /Services: Location-independent computing, whereby shared servers provide
resources, software, and data to computers and other devices on demand. Cloud computing is a natural
evolution of the widespread adoption of virtualization, service-oriented architecture and utility
computing.
Contention: Competition for resources. In computer networking, contention describes the situation
where two or more nodes attempt to transmit a message across the same wire at the same time. In a
TCP/IP network, when two packets are colliding, both need to retransmit.
Commercial Service Provider (CSP): An organization that provides service (e.g.,
telecommunications, Internet, IT or consulting services) in return for payments intended to produce a
profit.
Commodity or Commercial Internet: The part of the Internet operated by commercial service
providers.
30
Community Anchor Institution (CAI): Institutions that contribute to communities‘ education,
health, or public safety; examples given by the NTIA include schools, public libraries, community
colleges, hospitals, clinics, and public safety facilities.
Contention (ratio): Ratio of potential maximum bandwidth to actual bandwidth; a higher ratio
indicates that more users are utilizing a designated amount of bandwidth, thereby reducing the effective
bandwidth offered (see also oversubscription ratio).
CPE (Customer Premise Equipment): CPE refers to the equipment that is on a customer location.
It is generally separated from the Internet Service Providers‘ network by a point of demarcation.
Cross-Subsidization: The practice of using higher rates or greater revenue generated by one
customer to subsidize service to another customer.
Dark Fiber: Unused fiber-optic cable. Often governments or companies lay more fiber optical lines
than what's needed in order to curb costs of having to do it again and again. Until fiber has been ―lit‖
(by adding electronics with lasers) it is being held in reserve, and is ―dark.‖
Digital Subscriber Line (DSL): DSL multiplexes a data channel with a capacity typically ranging
from 1.5 Mbps to as much as 40 Mbps onto a voice-grade telephone line, providing a cost-effective use
of ubiquitous copper circuits to provide consumer-grade Internet connectivity. DSL is extremely
distance-sensitive, with rapid signal degradation as distances approach the practical limit of about
18,000 cable feet.
Download: See Upload/Download (also Upstream/Downstream)
Ethernet: Ethernet is a protocol that controls the way data is transmitted over a local area network
(LAN). It uses wires (meaning it is not a wireless technology) and connects to devices via an RJ-45 jack,
which is similar to the jack plugged into your telephone set, but twice as big.
E-rate: The commonly used name for the Schools and Libraries Program of the Universal Service
Fund, administer by the Universal Service Administrative Company (USAC) under the direction of the
Federal Communications Commission. The E-rate fund was created by Congress as part of the 1996
Telecommunications Act.
Fiber Optic: A glass-based transmission medium (as opposed to copper) with electronics that use
laser optical signals. Fiber optics can provide significantly larger capacity over longer distances than
copper, coax or wireless, thus yielding much higher bandwidth.
Fixed Wireless: A type of transmission access that uses radios signals rather than cable or fiber. In
fixed wireless technology, devices or systems that are situated in fixed locations, such as a building or
utility pole.
Information and Communications Technology (ICT): A term often used as an extended
synonym for information technology (IT), but is a more specific term that stresses the role of unified
communications and the integration of telecommunications (telephone lines and wireless signals),
computers as well as necessary enterprise software, middleware, storage, and audio-visual systems,
which enable users to access, store, transmit, and manipulate information.
Internet Protocol (IP): The primary network protocol used on the Internet, developed in the 1970s.
On the Internet and many other networks, IP is often used together with the Transport Control Protocol
(TCP) and referred to interchangeably as TCP/IP. Data on an Internet Protocol network is organized
into packets. Each IP packet includes both a header (that specifies source, destination, and other
information about the data) and the message data itself.
Intranet: A network that can be used by connectors to transfer data between each other without
travelling over another network; R&E networks function as Intranets within many states.
31
Jitter: In voice over IP (VoIP), jitter is the variation in the time between packets arriving, caused by
network congestion, timing drift, or route changes.
LAN (Local Area Network): A computer network that spans a relatively small area, connecting
computers, servers, printers and other peripherals. Most LANs are confined to a single building or
complex of buildings. However one LAN can be connected to another LAN over any distance, creating a
Wide Area Network (WAN).
Last Mile (also tail or lateral circuit): The segment of the network that is the final leg over which
broadband connectivity is delivered; it connects the endpoint location (e.g. library) to the nearest
network service provider point of presence (e.g., existing fiber splice point, network hub, or central
office).
Latency: In a network, latency, a synonym for delay, is an expression of how much time it takes for a
packet of data to get from one designated point to another. In some usages (for example, AT&T), latency
is measured by sending a packet that is returned to the sender and the round-trip time is considered the
latency.
Lateral Build: Extending network capacities across a community, a campus, or an industrial setting is
often called ―lateral build.‖ Such extensions typically do not involve implementing new circuits to an
Internet Point of Presence, but instead, put more devices and users onto an existing network by
extending that network‘s reach.
Lit Fiber: Often governments or companies lay more fiber optical lines than what's needed in order to
curb costs of having to do it again and again. Until fiber has been ―lit‖ (by adding electronics with
lasers) it is being held in reserve, and is ―dark.‖ ―Lit fiber‖ is ready for service or in-service.
Memorandum of Understanding (MOU): A bilateral or multilateral agreement between two or
more parties. It expresses a convergence of will between the parties, indicating an intended common
line of action.
Member: Denotes a user of, or connector to, an R&E network. Members often participate in network
governance, user forums, and self-organize to share content, etc.
Middle Mile: The segment of the network that links a network operator‘s core network (backbone) to
the local network plant (or last mile). This differs from NTIA use of the term that sometimes includes
(last mile) connections to anchor institutions.
Network: A set of nodes and link interconnections to carries data. Nodes are generally switches or
routers. Links can use any medium (fiber, coax, wireless) to carry data.
Network Effect: The effect that one user of a good or service has on the value of that product to other
people. When network effect is present, the value of an Internet-based application or service increases
as more people use it.
Oversubscription Ratio: (see also contention ratio) it is calculated by adding the potential
bandwidth requirements of a particular path and dividing the total by the actual bandwidth of the path
Peak Busy Hour: In a communications system, the sliding 60-minute period during which occurs the
maximum total traffic load in a given 24-hour period. The concept behind the busy hour is that the
traffic is not leveled throughout the day. There are some peak hours in a day which are busy and have
more traffic than normal hours. During these hours traffic is at maximum level. Systems should
generally be designed to handle Peak Busy Hour traffic loads.
Point of Presence (POP): A physical location where an Internet Service Provider aggregates the
Internet packets from its customers before forwarding them to another location.
32
Postalization (postalized pricing): The establishment of a uniform pricing structure that is held
constant regardless of the distance from end-user site to the aggregation point or variable costs for ―last
mile‖ circuits. That is, all users pay the same rate regardless of how far they are from the point of
aggregation.
Request for Information (RFI): Request made typically during the project planning phase where a
buyer cannot clearly identify product requirements, specifications, and purchase options. RFIs clearly
indicate that award of a contract will not automatically follow.
Request for Proposal (RFP): A proposal or Scope of Work made by an organization inviting bids
from possible suppliers of a product or service.
Request for Quote (RFQ): Similar to an RFP, an RFQ is a document used to solicit price and
delivery quotations that meet minimum quality specifications for a specific quantity of specific goods
and/or services.
Regional R&E Network: A physical network and related non-profit organization dedicated research
and education applications that spans multiple states and connects state R&E networks and institutions
across states. (Note: regional networks sometimes refer to localized networks in a sub-region within a
state, but for the purposes of this paper a regional network is one that covers multiple states.)
Router: A hardware networking device that forwards data packets between computer networks.
Satellite Transmission: A type of transmission that sends a signal to a satellite in orbit. When the
orbiting satellite receives the transmission, it amplifies it and sends it back to earth. Satellite
transmission is often used to provide broadband access to hard-to-reach areas of the country. While it
may be the best solution for some locations, the overall capacity is limited and bits usually experience
high latency.
Service Level Agreement(s) SLA: A contractual obligation between a network or computing service
organization and its customers to provide services meeting specific technical or scheduling objectives.
Examples include available bandwidth, response time for network traffic, guaranteed availability of
support staff and services, and suitability of network services for specific uses.
SONET: A set of protocols and services typically used for multiplexing several discrete data streams
onto a fiber network channel. SONET traffic passes through the network in ―frames‖ of varying sizes,
depending on the overall capacity of the network. SONET line rates can range from 51 Mbps up to 40
Gbps.
State R&E Network: A physical network and related non-profit organization dedicated to research
and education applications that exists mostly within a single state and seeks to connect institutions
across as much of the state as possible.
Symmetrical and Asymmetrical: In a symmetric computer network, all devices can transmit and
receive data at equal rates. Asymmetric networks, on the other hand, support disproportionately more
bandwidth in one direction than the other.
Traffic Management/Traffic Shaping: A form of rate limiting, where libraries can configure
firewalls to prioritize traffic during peak times.
Transmission Control Protocol/Internet Protocol (TCP/IP): Protocol, used to govern the
connection of computer systems to the Internet. Designed in 1999, TCP/IP is a universal networking
standard that provides a vendor-neutral data representation, thereby enabling interconnection and
communication among diverse piece of equipment.
Twisted Pair: A type of copper telephone wiring in which each of the two wires that are twisted
together are coated with an insulator that functions as a ground.
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Upload/Download (also Upstream/Downstream): Two directions involved in delivering
information over a single circuit. In a symmetrical connection, both upstream and downstream
transmission speeds are the same. In an asymmetrical connection, the speed in one direction can be
greater than that of the other.
WAN (Wide Area Network): A WAN typically connects users, devices, and services across a broad
geographic area. In contrast to a Local Area Network (LAN), which might connect users in a building, a
WAN might connect users across a state, a region, or across national boundaries.
WiFi or Wi-Fi or wifi: The popular wireless networking technology that uses radio waves to provide
wireless high-speed Internet and network connections. A common misconception is that the term Wi-Fi
is short for "wireless fidelity," however this is not the case. Wi-Fi is simply a trademarked phrase that
means IEEE 802.11x.
Quality of Service (QoS): QoS refers at one level to the performance of a network, and at a more
technical level, to the methods, protocols and standards employed in networks to ensure performance.
Quality of Service is a critical component of real-time voice and video services, for example. To ensure
QoS for such services, network developers use priority routing and queuing techniques to place timesensitive data at the head of the line and keep it there. Such protocols as IEEE 802.1p help differentiate
between the priority of network packets to ensure that high priority data gets preferential routing and
queuing.
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Appendix C: Resources on Federal Telecommunications Policy & E-Rate
Additional changes were made when the FCC adopted the E-rate Modernization Order on July 11, 2014
implementing reforms that will take effect in the 2015 planning year.
The Order makes significant changes in three major areas and asks for additional input as the Commission
continues to consider more regulatory changes, including the possibility of raising the price cap on the E-Rate
Fund. The American Library Association OITP published A Summary of Major Changes in the E-Rate Order from
the July 11th Report and Order. (Boucher, 2014)
Broadly, the E-Rate Modernization order:



Significantly expands Wi-Fi funding for all libraries and schools
Improves E-rate program cost-effectiveness through pricing transparency, encouraging consortia and
bulk purchasing
Streamlines and simplifies the E-rate application process and program administration
While the main focus of this order is to increase the availability of funding for ―internal connections‖ or wireless
networks, the Order also includes a number of rulings that streamline the application process and encourage
consortia applications. These new regulations could further strengthen the SLA‘s role in broadband procurement.
Here are some of the highlights of the E-Rate Modernization Order:

The FCC has directed USAC, the administrator of the E-rate program, to prioritize application review for
state and regional consortia applicants, so consortia applications filed by the SLA will get priority over
smaller applications.

The FCC amended its E-rate rules to permit a consortium lead to identify on its consortium‘s FCC Form
470 the schools, school districts and libraries for which it has authority to seek competitive bids for E-rate
eligible services even if it does not have authority to order services for those entities. This means that the
SLA can ask for proposals on behalf of local libraries even if services are contracted at the local level.

The FCC reminds applicants that E-rate rules do not require a consortium to solicit or select a single
vendor to provide service to all consortium members. A consortium may invite vendors to bid on services
to a subset of consortia members, and may find that a combination of different service providers offer the
most cost-effective solution for consortium members. This reminds SLAs that they can send out a single
RFP and award contracts to vendors that provide partial service coverage.

The FCC is simplifying the application process for funding requests that involve multi-year (no longer
than five years) contracts for eligible services. This will enable the state to consider broadband contracts
every 2, 3, 4 or 5 years, instead of annually.

The FCC created an exemption in competitive bidding rules for applicants seeking E-rate support to
purchase commercially available, business-class Internet access services that cost $3,600 or less for a
single year. An Internet access service will be eligible for this exemption only if it offers bandwidth speeds
of at least 100 Mbps downstream and 10 Mbps upstream for a pre-discount price of $3,600 or less
annually, including any one-time installation and equipment charges, and the service and price are
commercially available. This provides an incentive to work with service providers to get high capacity
affordable broadband in place – without an RFP process.
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
The FCC finds that more extensive government-to-government consultation with Tribal Nations is
necessary to understand both the need for E-rate support on Tribal lands and how to successfully connect
Tribal schools and libraries with modern high-speed communications. The Order includes provisions for
enhanced consultation, training and outreach to tribal governments, schools and libraries. This sets the
stage for SLAs to work directly with tribal governments on broadband planning.
For more information on this Order and on continued policy changes in Universal Service, refer to the following
resources:
1.
The American Library Association‘s District Dispatch including Marijke Visser‘s July 30, 2012 post, 176 pages
and many hours distilled into a summary of the July 11 E-rate Order
2. COSLA Public Access Technology Ning site including the August 21, 2014: FCC E-rate Modernization Update
3. The FCC web site including the Summary of the July 11, 2014 E-Rate Modernization Order.
4. The Universal Service Administrative Company (USAC) website, webinars and newsletters.
5.
The American Library Association website, blog posts (including a summary of the 2014 E-rate Order) and
official filings. The ALA Office for Information Technology Policy provides direct support to state e-rate
coordinators on technical and policy issues.
6. The Schools, Health and Libraries Broadband Coalition (SHLB) calls, notes and conferences.
7.
The Benton Foundation Headlines and Weekly Round Up which provides excellent summaries of current
policy news. (Taglang, Benton Foundation Headlines, 2014)
Kevin Taglang, Benton Foundation, has also developed a series of pieces exploring the E-rate Modernization
Order. All are worth reading:

FCC Reforms and Modernizes the E-rate

What's in the E-rate Order? Affordable High-Speed Broadband To and Within Schools and Libraries

What‘s in the E-rate Order? Maximizing E-rate Dollars

What‘s in the E-rate Order? A Streamlined Process

What‘s in the E-rate Order? A Request for More Input and Data
Marijke Visser, ALA OITP, tracks all things E-Rate. Refer to the District Dispatch E-Rate section and the ALA
OITP website for up to date information.
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Appendix D: Excerpts from Idaho Commission for Libraries RFP
The following specification is excerpted from Idaho Commission for Libraries ―Broadband Service and Internet
Service‖ Request for Proposal dated September 16, 2010. It is provided for illustrative purposes.
3.1 Broadband access link from the library to the Internet services provider location. Describe the broadband
access link proposed and the path it takes from the library to the Internet services provider location.
3.1.1 The broadband access link from the library to the Internet services provider location must initially support at
least 9 Mbps between the library and the Internet services provider location. Quote for a larger capacity
broadband access link is encouraged and will result in more points awarded in the evaluation. Quote the total
non-recurring and the monthly recurring charges assuming a sixty month contract term.
3.1.1.1 Ethernet transport over fiber, wireless radios, bonded T-1s, DS3, SONET, or Cable is preferred. Ethernet
over ATM is acceptable as well. Any other viable cost-effective technology will be considered. Describe transport
technology being proposed.
3.1.1.2 At the library a 10/100 Ethernet connection is required as the point of demarcation.
3.1.1.3 Service Level Agreement to 99.9% up time and full bandwidth is required. Describe up time standards of
the proposed service and remedies if they are not met. Also describe how the library can expect full use of the
bandwidth proposed at all times.
3.1.1.4 The ideal provider would be able to offer a five year contract with service starting at 9 Mbps with the ability
to ramp up to 20 Mbps or greater without changing the end date of the contract and without any additional nonrecurring charge. Quote the monthly recurring charges assuming a sixty month contract term for bit rates above 9
Mbps to 20 Mbps.
3.1.1.5 Equipment installed for the broadband access link ideally will be capable of providing transmission rates of
up to 100Mbps in the more distant future when and if required. Describe the CPE proposed, including make and
model. Quote the total non-recurring and the monthly recurring charges assuming a sixty month contract term if
applicable.
3.1.1.6 As mentioned in Section 2, the library would like to have the option to purchase any terminating CPE
required in the form of a non-recurring charge. Quote the price to purchase this equipment if this option is
available.
3.2 Scalable Internet bandwidth.
3.2.1 Initial Internet downstream bandwidth must be at least 9 Mbps. Describe the bandwidth being proposed,
including up-stream and down-stream rates if different. Quote for a larger capacity broadband access link is
encouraged and will result in more points awarded in the evaluation. Quote the total non-recurring and the
monthly recurring charges assuming a sixty month contract term.
3.2.1.1 DNS service must be provided; preferably a primary and a secondary DNS server will be identified.
Identify the DNS server(s) available and their location(s).
3.2.1.2 If there are charges for static IP addresses, quote the total non-recurring and the monthly recurring charge
per static IP address assuming a sixty month contract term.
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3.2.1.3 Service Level Agreement to 99.9% up time and full bandwidth. Describe up time standards of the
proposed service and remedies if they are not met. Also describe how the library can expect full use of the
bandwidth proposed at all times.
3.2.1.4 The ideal provider would be able to offer a five year contract with service starting at 9 Mbps and then be
able to ramp up to 20 Mbps or greater without changing the end date of the contract. Describe how your proposal
addresses this requirement. Quote the monthly recurring charges assuming a sixty month contract term for bit
rates above 9 Mbps to 20 Mbps.
3.2.1.5 Describe connections from the Internet POP (point of presence) where the library will be connected to the
upstream provider(s). Include the locations of these connections.
3.2.1.6 Provide results of running the FCC speed test tool at http://www.broadband.gov/qualitytest/ using the MLab version of the tool on a week day during the hours indicated on the Vendor Responses sheet, item 3.2.1.6.
Tests should be run from a workstation at the Internet POP (point of presence) to which the library will be
connected.
3.2.1.7 If the library requires email accounts for use by staff members, does the bidder offer email accounts with
its Internet service? If yes, quote the total non-recurring and the monthly recurring charges, if any, assuming a
sixty month contract term for each e-mail account.
3.3 Maintenance and Support
3.3.1 The library requires that the CPE equipment be maintained during the term of the contract. This is to include
repairs needed if equipment fails and hardware and software updates released by the equipment vendor installed.
3.3.1.1 Describe the maintenance process for the CPE equipment.
3.3.1.2 Quote the annual or monthly price for CPE equipment maintenance if it is not included in the MRC for the
broadband access link or the Internet bandwidth assuming the CPE is not purchased by the library from the
vendor or another source.
3.3.1.3 Quote the annual or monthly price for CPE equipment maintenance if the equipment is purchased from the
vendor up front as a NRC.
3.3.1.4 Quote the annual or monthly price for CPE equipment maintenance if the equipment is purchased from a
source other than the vendor; such as purchased under an existing State of Idaho contract.
3.3.2 Service outage response. It is important the library have service restored as quickly as possible following a
service outage, or if service is compromised (e.g. less than contracted bandwidth service is delivered).
3.3.2.1 Describe service outage process to be followed when the Internet service fails, including contact
information, average response times, and hours of availability.
3.3.2.2 Describe service outage process to be followed when delivered bandwidth falls below 9 Mbps.
3.3.3 Technical support
3.3.3.1 Describe technical support available to the library staff to resolve problems with the Internet service,
performance issues, or Internet access software configuration information and questions, including contact
information and hours of availability.
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This guide is brought to you by the Chief Officers of State Library Agencies (COSLA) with
support from The Bill & Melinda Gates Foundation.