HomeMy WebLinkAbout12-07-1994 City Council agendaU
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13777 FRUITVALE AVENUE SARATOGA, CALIFORNIA 95070 (408) 867 -3438
COUNCIL MEMBERS:
DATE: December 7, 1994 Ann Marie Burger
Paul E. Jacobs
TO: City Council Gillian Moran
Karen Tucker
Donald L. Wolfe
FROM: City Manager
SUBJECT: Proposed Telecommunications Policy
RECOMMENDED ACTIONS
1. Discuss this subject with staff and the public and consider
the possible content of a Telecommunications Policy.
2. Continue discussion of this matter under Old Business to the
meeting of January 4, 1995, for further consideration.
3. At that time adopt the Telecommunications Policy of the League
of California Cities by reference with amendments as
necessary. Direct the City Manager that he, the City Attorney
and the City staff are to be guided b said policy in
considering any future application for the development of
fiber optic systems in the City of Saratoga.
Since the subject of the TELECOMMUNICATIONS SUPER HIGHWAY arrived
on the national scene, local government umbrella organizations,
including the League of California Cities and the Association of
Bay Area Governments, have been urged by a number of members to
address what the TELECOMMUNICATIONS SUPER HIGHWAY will mean to
local agencies. This has included what kinds of policy local city
councils should be developing to guide city staff in dealing with
the desire of cable companies, telephone companies and others to
wire local communities for the capability envisioned by the
development of the TELECOMMUNICATIONS SUPER HIGHWAY.
As a result, proposed policies have been developed by the League
and ABAG. In addition the Institute for Local Self Government
developed, in 1991, a resource document entitled, "A
Telecommunications Framework for Cities." Some of the members of
the City Council have already reviewed a copy of a videotape
prepared by the City of Milpitas on its recent telecommunications
workshop. In addition the staff has attended two League- sponsored
staff workshops this fall regarding this subject: and plans by Pac
Bell to begin its fiber optic system conversion in various parts of
the state. At this point we expect that Pac Bell will be
presenting its proposals to the City staff in the next few months.
Printed on recycled paper.
Proposed Telecommunications Policy
December 7, 1994
Page 2
Accordingly, staff seeks general guidance from Council in the form
of a policy to use in reviewing proposals from Pac Bell and any
other fiber optic plant developer. Also, South Bay CableVision is
in the midst of constructing its own fiber optic network as
required by its current franchise agreement. It: is expected this
network will be complete in the Spring of 1995.
Finally, this entire area of emerging technology is complicated by
current federal regulation, ongoing court challenges to those
regulations, and the prospect of federal legislation and revised
federal regulations as to who is going to be allowed to do what,
when and where.
For these reasons staff feels it is appropriate at this time for
Council to consider adopting some form of t: elecommunications
policy, such as those proposed, to guide staff.
DISCUSSION
As set forth in the ABAG document and others, the themes most often
presented in terms of local interest are five in number. These
are:
1. Universal Access
2. Local Control
3. Compensation
4. Consumer Protection
5. Technological Concerns
Here is how these concerns relate to Saratoga:
1. Universal Access Neither the cable system nor the Pac Bell
system propose to provide access to all residents, businesses
and institutions, both public and private, in Saratoga. Our
franchise agreement with South Bay limits their system build
requirement to a density of 20 homes per 1/2 mile of cable
plant. An amendment to the agreement would be required to
have the company build into all areas of the City. The Pac
Bell service area granted by the PUC does not cover all areas
of the City. The southeast section of the City is in a
General Telephone area and would not be getting the new Pac
Bell system.
2. Local Control At the present time the City has a large
measure of local control over the cable company through the
franchise ordinance and the franchise agreement. This
includes service standards and limited rate determination. We
also control the use of the City's right -of -way for the
purpose of construction of the physical plant. This utility
coordination control is an essential element in the
furtherance of our pavement management program.
Proposed Telecommunications Policy
December 7, 1994
Page 3
3. Compensation Currently the cable company must pay the city
a franchise fee of 5% of gross revenue to off set the costs of
administration of the franchise, rental of public rights -of-
way and to support-community access television. The company
is also required to provide space on the system" for PEG
(public access, education and government) access and
participate, as required by the franchise agreement, in
providing equipment and wiring of public facilities. The City
has no such ability with Pac Bell and, in fact, is precluded
under current law from requiring a franchise from them.
Nevertheless, it has been argued by some that other forms of
compensation such as equipment and access and encroachment
fees for use of the right -of -way should be pursued locally.
4. Consumer Protection Concerns in this area center around
protection of confidential information transmitted with new
technology, the possible development of cross subsidies by
companies who provide video dial tone, and competitive pricing
to all consumers regardless of status.
5. Technological Concerns Examples of concerns which come to
mind center around insuring that cities have the opportunity
to access and use the technology for governmental operations,
that various networks are interconnected and not developed in
isolation or with limited inter operability capacity, and that
existing technology is not rendered obsolete by design.
FINDINGB AND CONCLUSIONS:
This entire area.of technology is in a constant state of flux at
the present time. In order for the interests of the City to be
protected it is important for the City Council to establish a broad
policy framework as a backdrop against which proposals for
development of the capacity for the INFORMATION SUPER HIGHWAY can
be judged. This will allow the City to be proactive rather than
reactive to the extent that it can be, given the circumstances.
Being in a proactive position will, I believe, create the best
environment for the City to get what it wants out of any future
application to build a portion of the INFORMATION SUPER HIGHWAY in
the City of Saratoga.
Al'�
Harry V Peacock
City Manager
HRP:hrp:jm
Proposed Telecommunications Policy
December 7, 1994
Page 4
Attachments
1. Telecommunications Policy League of California Cities
2. Telecommunications Policies ABAG
3. Resolutions of the City of Milpitas regarding the National
Information Infrastructure. Supporting the League's
Telecommunications Policy and Adopting a Telecommunications
Policy for the City of Milpitas
4. Institute for Local Self Government A Telecommunications
Framework for Cities
League of
California Cities
f
Telecommunications
Policy
As adopted April, 1994
Executive Summary
The 1990s will witness the rapid development and deployment of advanced
telecommunications services. The telecommunications industry is developing digital
technology to enhance its traditional delivery system copper wire for voice, coaxial cable
for video -to support a host of new services. These industries are also developing high
speed /high capacity networks, commonly referred to as broadband networks, that are
capable of integrating voice, data, video services along a single wire. The development
of advanced telecommunications infrastructure, often referred to as the information
superhighway, promises to increase competition and to stimulate economic development
as new products and services are introduced into the telecommunications marketplace.
California cities can look forward to using these innovative technologies to enhance
public services and streamline government operations.
While the information superhighway presents considerable opportunities, it also carries
an element of uncertainty and risk, and has significant fiscal and policy implications for
cities. For example, under current law, cable operators are subject to municipal
franchise agreements, which include local control over rates and customer service
standards, as well as franchise fees. Telephone companies, on the other hand, are
exempt from these franchise provisions. As advanced telecommunications technology
makes telephone service less discernable from cable service, cities' franchising authority
may be in jeopardy.
The telecommunications industry is already leveraging to take advantage of the changes
in the marketplace. Regional telephone companies are merging with cable TV
companies in order to circumvent the existing "cross- ownership" ban which prohibits
telephone companies from providing video services, and cable operators from providing
telephone service. In California, Pacific Bell has filed suit to challenge this ban as it
deploys a $16 billion plan to wire residential areas in the state with broadband capacity.
Furthermore, the Clinton Administration has stated its intent to remove regulatory
"barriers" at all levels of government in order to streamline the development of advanced
telecommunications services. As these events unfold, the regulatory powers cities enjoy
are becoming increasingly vulnerable, and cities must take steps to ensure that their role
in protecting the interests of their communities is not sacrificed in the interest of
developing the information superhighway.
Principles that Guide League Telecommunications Policy
The League of California Cities has developed the following principles that reflect the
interests of cities in the development of telecommunications policy:
Cities must have certain regulatory powers over
telecommunications service providers in order to protect city
infrastructure, ensure open access to telecommunications
League of California Cities 1 Telecommunications Policy
r
services, protect the privacy of consumers of these services,
and correct the market inequities that will occur when the
advanced telecommunications services market becomes open
and competitive.
Cities should receive compensation for use of the public
right -of -way from all users of the public right -of -way,
including telecommunications service providers. Cities should
also receive compensation for the short- and long -term
negative impacts of installing fiber -optic and other
telecommunications wire in city streets and in the public
right -of -way. Securing these revenues will be especially
important if municipal franchises for cable service are
eliminated due to a softening of the existing regulatory and
franchise powers.
Cities recognize that broadband capacity has considerable
value, in that it can be used both to support city operations
and to streamline delivery of a variety of public services.
Cities should receive an appropriate allocation of all
advanced telecommunications resources, such as bandwidth
on broadband networks, fiber -optic wiring, and spectrum on
the 800 Mhz radio frequency, that operate within their sphere
of influence.
Summary of the Telecommunications Policy Statements
Universal Access
Legislation enacted to facilitate the development of the National Information
Infrastructure, and the California Information Infrastructure, should ensure that access to
advanced telecommunications services is available to all citizens, as well as the
commercial, education, and government sectors.
Role of City in_Regulatory Structure
The League supports efforts to establish an open, competitive marketplace for
telecommunications services, including the lifting of the cross ownership ban and a level
playing field for telecommunications service providers. An integral component of this
open marketplace is the symmetrical application of regulations to all telecommunications
service providers, including wireless service providers. The League also supports the
preservation of local authority over matters of local impact.
League of California Cities 2 1 Telecommunications Policy
Compensation for Use of Public Rights -of -Way and Negative Impact on Local
Infrastructure
The use of public streets and rights -of -way via the installation of pipes, conduits and
wires to engage in private, for profit enterprise demands a fair payment, for the use of
the public's asset. The League supports a symmetrical application of right -of -way fees
for all users of the public right- of:way, including telecommunications service providers.
Cities should also receive compensation for the short- and long -term negative impacts of
installing fiber -optic and other telecommunications wire in city streets and other
locations in the public right -of -way.
Cities as Users /Providers of Telecommunications Services
The League recognizes that advanced telecommunications resources have considerable
value. Cities should help safeguard citizens against market inequities in the advanced
telecommunications marketplace by maximizing their ability to utilize and facilitate
access to telecommunications resources.
Adequate Spectrum Capacity for Public Safety and Other Public Use
Cities should be allocated adequate spectrum on the 800 Mhz radio frequency for public
safety, emergency services, public works, and other public use.
FCC Certification of Local Franchising Authority
The League encourages cities to certify their local cable TV franchising authority to
protect the interests of their. citizens. Federal and state law should secure the rights of
local franchise authorities to regulate cable service rates if they have received
certification from the FCC.
Privacy
The League supports the protection of privacy and security for consumers of advanced
telecommunications services.
League of California Cities 3 Telecommunications Policy
League of California Cities
Telecommunications Policy
Table of Contents
EV4
Foreword............................. .............................ii
Background........................................................ 1
Telecommunications Policy at the Federal Level 1
Telecommunications Policy at the State Level 2
Telecommunications Policy at the Local Level 2
"A Telecommunications Framework for Cities" 3
Policy Statements 4
Universal Access 4
Role of the City in Regulatory Structure 5
Compensation for Use of Public Rights -of -Way
and Negative Impact on Local Infrastructure 5
Cities as Users /Providers of Telecommunications Services 6
Adequate Spectrum Capacity for Public Safety and Other Public Use 7
FCC Certification of Local Franchising Authority 7
P 8
League of California Cities i Telecommunications Policy
Rarely a day goes by that one does not hear some reference to the so called "information
superhighway". The rapid development .of advanced telecommunications resources, such
as fiber optic networks that will carry, voice, video and data signals, carries the promise
of new economic prosperity and new tools for streamlining the delivery of both public
and private services. While California. cities can look forward to enjoying these benefits
in the near future, we must also be mindful of the impact of the emergence of this
spawning industry both on cities, and on the citizens they serve. To this end, the League
of California Cities has developed a comprehensive telecommunications policy that will
help. cities define their roles as user, provider, regulator, and consumer advocate on the
information superhighway.
The policies outlined in this report area product of the knowledge, experience and
values of several dozen city officials who make up the League's Telecommunications
Task Force. A primary objective of the Telecommunications Task Force has been to
increase city officials' awareness of the relevance of telecommunications policy in the
business of local government.. The Task Force has spent the past five years addressing
telecommunications issues as they relate to cities. Over the years, their work has
included educational forums, pilot projects for telecommuting and facilities sharing, and
a comprehensive report entitled A Telecommunications Framework for Cities which was
developed by the Institute for Local Self Government and adopted by resolution at the
League Annual Conference in 1991.
The policy statements contained in this report are the latest work product in a continuing
effort to develop meaningful resources for cities to use in dealing with the complex and
ever changing arena of advanced telecommunications. Cities should use these policies to
guide their discussions and negotiations with telecommunications providers who wish to
do business in their city.
While these policies cover a wide range of telecommunications issues, the League is
mindful that this is a "living" document that will change and evolve continuously to
reflect the evolution of the advanced telecommunications industry. The League invites
cities to share ideas and concerns regarding it's telecommunications policy. Input from
the telecommunications industry, our partners in the development of a California
Information Infrastructure, is also welcome. Most important, the League urges cities to
participate in the work of the Telecommunications Task Force so that we can expand
both the scope and the depth of these policies.
League of California Cities ii Telecommunications Policy
Background
Telecommunications Policy at the Federal Level
The National Information Infrastructure The Clinton Administration, under the direction
of Vice President Al Gore, is promoting the development of the National Information
Infrastructure (NII). According to its advocates, the NU will be an integrated network
system that will "ultimately connect the nation's businesses, residences, schools, health
care facilities, and other public information and social service providers through a
broadband, interactive, telecommunications and information network." Citing the need
for a new policy framework to streamline the development of the NH, Vice President
Gore outlined a legislative agenda.that will create a "flexible, adaptable approach" to the
telecommunications industry. The Administration's initiatives reflect the following
objectives:
Increase competition and private investment in
communications by removing unnecessary regulations and
artificial barriers to participation by private firms in all
communications markets. For example, the Administration
proposes to permit cable companies and others to provide
local telephone service;
Secure open access to the network for consumers and service
providers. For example, the legislation requires all local
telephone companies, upon reasonable request, to
interconnect their networks with the facilities of competing
providers on nondiscriminatory terms;
Preserve and advance universal service for all Americans
across all sectors of society. Because full and productive
participation in American society will increasingly depend on
access to information, the Administration is committed to
promoting the availability of information resources to all
people at affordable prices;
Develop a new regulatory framework that is flexible and fair
by allowing the FCC to reduce regulation for
telecommunications carriers that lack market power.
1992 Cable Act In addition to establishing benchmark rate regulations for cable TV
service, the 1992 Cable Act strengthened local governments' role in regulating cable
television by outlining local franchise authority over cable service. The Act allows local
governments to certify franchising authority with the FCC and, based on approval of
certification, to regulate basic cable service rates in their area. Local franchise
authorities may also establish and enforce customer service standards and construction
schedules.
League of California Cities 1 Telecommunications Policy
Telecommunications Policy at the State Level
California PUC Report A November, 1993 report from the California Public Utilities
Commission entitled "Enhancing California's Competitive Strength: A Strategy for
Telecommunications Infrastructure," makes the following findings:
Public networks should be linked in an integrated,
interoperable infrastructure
Universal access is a key component of the infrastructure that
includes affordable applications, low cost customer
equipment, education and training programs. Universal
service should be transformed from a subsidized monopolistic
model to a competitive, multi provider model.
Competitive forces should drive the infrastructure and
minimize the potential for publicly funded infrastructure.
All telecommunications markets should be open and
regulatory process should be streamlined. The report
specifies a three -year time frame in which to eliminate cross
domain barriers. The report also places the bulk of
regulatory authority with the PUC.
The state should create 'open competition zones" to assess
the impact of open competition in the telecommunications
market.
Telecommunications Policy at the Local Level
City Efforts to Comply with the Cable Act As stated previously, the 1992 Cable Act
outlines specific regulatory roles for local governments. A key issue facing local
governments is that cities must obtain certification from the FCC in order to secure
regulatory authority of basic cable service rates. For many cities, the rate review analysis
required as part of the certification process has been complex and difficult to complete.
To date, approximately half of the cities in California that could certify have done so.
While federal and state officials continue to urge cities to certify, the recent statements
regarding removing regulatory barriers to a competitive telecommunications market raise
an important question: Does it make sense for cities to obtain FCC certification if the
regulatory powers the certification process seeks to establish are going to be eliminated
or significantly reduced to open the telecommunications marketplace?
League of California Cities 2 Telecommunications Policy
'A Telecommunications Framework for Cities"
This report, presented by the Telecommunications Task Force in 1991, outlines
telecommunications issues and trends, and provides options available to cities acting as
telecommunications user, consumer and policy- maker. A Telecommunications Framework
for Cities prepared by the Institute for Local Self Government makes the following
observations:
Effective use of telecommunications can increase efficiency
and provide new solutions to city problems.
Cities' current investment in telecommunications is significant
and will grow, but lack of coordination among city
departments results in inefficient use of these resources and a
lack of planning for future needs.
Municipal governments are dependent now on transportation
and communications to conduct the public business while the
community depends on the same combination to access vital
services and information. This reliance of communications
will increase as city governments and citizens alike are forced
to find alternatives to automobile travel.
Many cities are unprepared to utilize the full potential of
available telecommunications technologies effectively:
Current uses are concentrated in a few departments. There
are few central resources for planning and implementing new
applications.
Consumer decisions are often motivated by mistake
avoidance rather than meeting the needs created by new
applications. Development programs are inhibited by the
lack of knowledge about total telecommunications costs,
invested capital, and physical plant.
Local telecommunications policies beyond the cable
television franchise are rare, and cable television policy in
many cities fails to address community needs.
Federal and state legislatures and regulatory agencies are
changing the rules governing telecommunications markets to
create competition and spur innovation. These changes will
affect pricing and impact long- standing public policy, such as
universal phone service. Cities lack a coherent,
comprehensive position on the role of cities in a competitive
telecommunications marketplace.
League of California Cities 3 Telecommunications Policy
Policy Statements
Universal Access
One of the most important policy issues `surrounding telecommunications is that of
universal access to telecommunications services. Policy- makers at all levels of
government have expressed concern over the potential for creating a system of
information "haves and have- nots." However, while terms such as open access and
interoperability are used frequently in discussions of the National Information
Infrastructure, a working definition of universal access has not been adopted at any level
of government. The League's definition. of universal access is reflected in its policy
statement:
Policy Statement Legislation enacted to facilitate the development of the National
Information Infrastructure, and the California Information Infrastructure, should
ensure that access to advanced telecommunications services is available to all
citizens, as well as the commercia4 education, and government sectors. Elements of
universal access should include.
Open access to consumers as well as service providers
Connectivity to business and government, as well as residential
areas
Uniform and indiscriminate wiring of all locations in a business
or residential area
Affordability of services, equipment and training
Flexibility of service options and delivery mechanisms to reflect
the needs of individual communities
Competitive choice in consumer service options
Fees or charges to fund universal service provision
Ability to send and receive information at transmission rates
that are adequate for broadband applications
Ability to communicate with any individual on a network
(addressable communications)
1 The League recommends a minimum bandwidth of ten (10) megabytes per second, bi- directionally.
League of California Cities 4 Telecommunications Policy
Role of the City in Regulatory Structure
The impetus for removing regulatory barriers to a competitive telecommunications
marketplace is strong. Recent federal and state policy reports suggest that regulatory
authority over service delivery, rates, and customer service standards should be
consolidated either at the federal or state level. While there are sound arguments for
streamlining regulations, the fact remains that telecommunications services will be
delivered locally and the nature and scope of these services will be different from
community to community. The deployment of advanced telecommunications networks
will also have considerable impact on the economic development and vitality of
communities, as well as an impact'on local infrastructure. Hence, the League's policy on
streamlining regulation seeks to preserve cities' ability to secure telecommunications
services that reflect the needs of their communities and to preserve and enhance city
infrastructure.
Policy Statement The League supports efforts to establish an open, competitive
marketplace for telecommunications services, including the lifting of the cross
ownership ban and a level playing field for telecommunications service providers An
integral component of this open marketplace is the symmetrical application of
regulations to all telecommunications service providers, including wireless service
providers. The League also supports the preservation of local authority over matters
of local impact, including:
Construction standards permitting, scheduling, and cost
recovery
Customer service standards
Rate regulation for cities that choose to regulate
1 Negative impact on local infrastructure and cost recovery
City use of telecommunications resources (local PEG access, I-
Nets)
Method of installation (pedestals, overhead, under ground)
Compensation for Use of Public Rights -of -Way and Negative Impact on Local
Infrastructure
The traditional right of franchising includes the power of a city to choose who may enter
the market by granting or withholding a franchise. Franchising powers contain implicit
2 Includes the provisions of California PUC Rule 20A, (Undergrounding Program) which would require
telecommunications facilities to participate by placing underground all overhead facilities within any underground
district legislated by a city.
League of California Cities 5 Telecommunications Policy
legal barriers to market entry, which some argue are inconsistent with the policy. of an
open and competitive market. One mechanism that has been proposed to remove the
legal barriers to telecommunications markets, while preserving the regulatory powers
cities need to protect the interests of their communities, is to replace the franchise. fee
element of the 1992 Cable Actwlth a right way.compensation statute In addition ao
compensation for use of right of-way:cities:should receive.compe'nsation for,the short-
and long -term negative impacts, of:installing fiber- opric ;and_other.telecommunications
wire, such as street degradation and the increased maintenance costs that occur.when
streets are opened.
Policy Statement The use of public streets and rights -of -way via the installation of
pipes, conduits and wires to engage in private, for profit enterprise demands a fair
payment for the use of the public's asset. The League supports a symmetrical
application of right -of -way fees for all users of the public right -of -way, including
telecommunications service providers. 'Cities should also receive compensation for the
short- and long -term negative impacts of installing fiber -optic and other
telecommunications wire in city streets and other locations in the public right -of- way...
Cities as Users /Providers of Telecommunications Services
One element of many cable franchise agreements is the development of institutional
networks (I -NETS) that give municipalities cable TV facilities and'other
telecommunications resources. Advanced telecommunications technology will make
many of these I -NET systems obsolete. However, cities have the opportunity to acquire
a portion of a broadband network (commonly referred to as bandwidth), as well as other
advanced telecommunications resources through franchise or other agreements.'
Acquiring bandwidth on a broadband network would allow municipalities to develop a
wide range of telecommunications -based applications both for internal use, and for
providing services to their communities. City- provided telecommunications services
could also help mitigate market inequities in the telecommunications market. For
example, if the costs of installing and operating broadband networks prices the access to
these networks beyond the incomes of certain citizen groups, cities could create public
access systems, ,such as information kiosks or library terminals to facilitate access.
Policy Statement The League recognizes that advanced telecommunications
resources have considerable value. Cities should help safeguard citizens against
market inequities in the advanced telecommunications marketplace by maximizing
their ability to utilize and facilitate access to telecommunications resources. Strategies
to accomplish these objectives include.
Negotiate for an appropriate allocation of all advanced
telecommunications resources, including bandwidth on
broadband networks, fiber -optic wiring, and spectrum on the.
800 Mhz radio frequency, that operate within the city's sphere of
influence.
League of California Cities 6 Telecommunications Policy
Install and operate city-owned broadband networks, and /or
form partnerships to install and operate regional broadband
networks.
Explore and develop public service applications that employ
advanced telecommunications capabilities, so that these
resources can be put to use as soon as they are available.
Secure public access to advanced telecommunications networks
by way of existing PEG access requirements
Identify and inventory unused and /or abandoned conduit that
exists in the public right -of -way, in easements, or on property
owned by the city, and develop strategies to leverage the use of
these resources.
Adequate Spectrum Capacity for Public Safety and Other Public Use
During the conversion of city police, fire, emergency and public works radio services to
the 800 Mhz spectrum, not enough spectrum was allocated to cities. As a result, in
metropolitan areas, there has been a deterioration in transmission quality and the ability
for police, fire, and public works departments to broadcast. With the coming of
enhanced wireless, cellular, and personal communications services (PCN /PCS), cities
may lose again if adequate spectrum for these services is not reserved for city uses.
Policy Statement Cities should be allocated adequate spectrum on the 800 Mhz
radio frequency for public safety, emergency services, public works, and other public
use.
FCC Certification of Local Franchising Authority
As stated previously, the 1992 Cable Act outlines the requirements and procedures for
cities to request certification as local franchising authority in order to regulate basic
cable TV service rates. In the interest of protecting the interests of their citizens, it is
desirable for cities to continue to regulate cable service rates in their communities.
However, for many cities, the rate review analysis required as part of the certification
process has been complex and difficult to complete. Cities must also decide if it makes
sense to obtain- FCC certification if their regulatory powers are going to be preempted by
new federal or state laws.
Policy Statement The League encourages cities to certify their local cable TV
franchising authority to protect the interests of their citizens. Federal and state law
should secure the rights of local franchise authorities to regulate cable service rates if
they have received certification from the FCC.
League of California Cities 7 Telecommunications Policy
Privacy
A fundamental issue surrounding the development of the National Information
Infrastructure (NII) is the need to assure the privacy and security of its users. While
cities may not play a primary role in enforcing laws that govern privacy, they can be
active participants in the policy debater
Policy Statement The League supports the following principles that govern the.
issues of privacy and security for consumers of advanced telecommunications services.
Protection and reliable identification of the "digital signature"
that identifies the sender and recipient of electronic transactions
Transaction security for financial and other personal
transactions
Control over the sale of subscriber information'
Freedom of choice in the use of encryption technology to ensure
privacy and security
League of California Cities 8 Telecommunications Policy
Joseph ,ort MetroCenter Mailing Address:
i Eighth &Oak Streets P.O. Box 2050
iDAR4d Oakland Oakland. CA 94604 -20E
(510) 464 -7900 Fax: (510) 464 -7970
Date: October 20, 1994
To: Executive Board
From: Mayor Peter W. Snyder, Legislation and Governmental Organization
Committee Chair
Re: Telecommunications (Information Superhighway) Policies
On April 21, 1994, the General Assembly adopted Resolution No. 1 -94, calling
for ABAG to "develop policy guidelines and a model ordinance to promote
installation of the Information Superhighway in all new construction projects..."
In response to that directive, the Legislation and Governmental Organization
Committee has prepared the following list of policies for distribution to cities and
counties in the Bay Area.
These policies have been compiled from a variety of sources:
National Association of Counties (,NACQ)
202/393-6226
League of California Cities _(LCC)
Telecommunications Task Force
Councilmember Linda Perry (City of San Leandro), Chair
510/577-3200
City of Milpitas
Cecilia Quick, Assistant City Attorney
408/942-3236
Sacramento Cabletelevision Commission (SCC)
Richard Esposto
916/440 -6661
Common themes raised by those sources include:
A. Universal access
B. Local control
C. Compensation
D. Consumer protection
E. Technological concerns
1
A. UNIVERSAL ACCESS
1. Ensure universal access and interconnectivity to residents, businesses, and public
agencies and institutions in the City. (Milpitas)
2. Ensure the maximum number and variety of telecommunications services to
residents, businesses, and public agencies and im>titutions in the City. (Milpitas)
3. Universal Access Legislation enacted to facilitate the development of the
National Information Infrastructure and the California Information Infrastructure
should ensure that access to advanced telecommunications services is available to
all citizens, as well as the commercial, education,, and government sectors.
Elements of universal access should include:
Open access to consumers as well as service providers
Connectivity to business and government, as well as residential areas
Uniform and indiscriminate wiring of all locations in a business or
residential area
Affordability of services, equipment and training
Flexibility of service options and delivery mechanisms to reflect the needs
of individual communities
Competitive choice in consumer service options
Fees or charges to fund universal service provision
Ability to send and receive information at transmission rates that are
adequate for broadband applications
Ability to communicate with any individual on a network (addressable
communications) (LCC)
4. Local governments may require universal services which include
nondiscriminatory pricing and equal access to all its citizens as a requirement for
granting a franchise. (NACo)
B. LOCAL CONTROL
5. Local government has the right to control the use of its public rights -of -way which
cannot be used without permission of the responsible local government authority.
(NACo)
6. In order to use the right -of -way, a private telecommunications company,
including a telephone company, must enter into a franchise agreement with local
government which sets the terms and conditions of such use /access. (NACo)
2
7. Local governments should have control over allocation of the rights -of -way and
be able to ensure that transportation is not disrupted nor the useful life of the right
of -way diminished. (NACo)
8. Local governments have the right to review mergers and acquisitions when such
activity might result in the reduction of competition in the marketplace.
(NACo)
9. Local governments shall have the right to require the highest standards for video
platforms in order to ensure capability for integrating telecommunications
providers. (NACo)
10. Minimize disruption to Public Property and ensure efficient use of the City's
streets. (Milpitas)
11: Role of the City in Regulatory Structure The League supports efforts to establish
an open, competitive marketplace for telecommunications services, including the
lifting of the cross ownership ban and a level playing field for telecommunications
service providers. An integral component of this open marketplace is the
symmetrical application of regulations to all telecommunications service providers,
including wireless service providers. The League also supports the preservation of
local authority over matters of local impact, including:
Construction standards, permitting, scheduling, and cost recovery
Customer service standards
Rate regulation for cities that choose to regulate
Negative impact on local infrastructure
City use of telecommunications resource (local PEG access; I -nets)
Method of installation (pedestals, overhead, underground) (LCC)
12. Streets and Right -of -Way Protection
*Encroachment Permits: scheduling of work; street markings; USA notification;
property owner notification; permit copy available on -site; street trench plan; street
boring plan; street improvement plan coordination; other utility coordination;
permit clearance and warranty.
Construction Codes: general; PUQ electrical; local; noise, dust, environmental.
*Use of Above and Below Ground Pedestals: property owner notification;
placement mitigation.
Insurance and Bonding
Inspection and Impact Fees: fee schedule; inspector availability.
3
Safety Practices: worker safety; passer -by safety; traffic control.
Tree and scrub trimming.
Work site communications
Inspector's Authority /Inspection logs.
Work site clean -up (SCC)
C. COMPENSATION
13. Local governments must'be paid a fee for the commercial use of a right -of -way by
a telecommunications provider. (NACo)
14. Require telephone companies offering video dialtone cable services to be subject
to the same franchise requirements and regulations as existing cable companies.
(NACo)
15. If state law permits, local governments may impose taxes on wireless
telecommunications providers. (NACo)
16. Receive fair compensation to the City for the use of Public Property and for City
participation in development of a Telecommunications System. (Milpitas)
17. Compensation for Use of Public Rights -of -Way and Negative Impact on Local
Infrastructure The use of public streets and rights-of-way the installation of
pipes, conduits, and wires to engage in private, for -profit enterprise demands a fair
payment for the use of the public's asset. The League supports a symmetrical
application of right -of -way fees for all users of the public right -of -way, including
telecommunications service providers. Cities should also receive compensation for
the short- and long -term negative impacts of installing fiber -optic and other
telecommunications wire in city streets and other locations in the public right -of
way. (LCC)
D. CONSUMER PROTECTION
18. A framework must be set forth for the protection of confidential information.
(NACo)
19. Companies wishing to provide telecommunications of video services must _be
subject to safeguards to protect consumers against cross subsidies. This includes
video dialtone services. (NACo)
4
20. Ensure reliable telecommunications services to the lowest cost to residents,
businesses, and public agencies and institutions in the City. (Milpitas)
21. Privacy The League supports the following principles that govern the issues of
privacy and security for consumers of advanced telecommunications services:
Protection and reliable identification of the "digital signature" that
identifies the sender and recipient of electronic transactions.
Transaction security for financial and other personal transactions
Control over the sale of subscriber information
Freedom of choice in the use of encryption technology to ensure privacy
and security (LCC)
E. TECHNOLOGICAL CONCERNS
22. Cities as Users /Providers of TelPrnmmttni ations Services The League
recognizes that advanced telecommunications resources have considerable value.
Cities should help safeguard citizens against market inequities in the advanced
telecommunications marketplace by maximizing their ability to utilize and facilitate
access to telecommunications resources. Strategies to accomplish these objectives
include:
Negotiate for an appropriate allocation of all advanced telecommunications
resources, including bandwidth on broadband networks, fiber -optic wiring,
and spectrum on the 800 Mhz radio frequency, that operate within the city's
sphere of influence.
Install and operate city -owned broadband networks, and /or form
partnerships to install and operate regional broadband networks.
Explore and develop public service applications that employ advanced
telecommunications capabilities, so that these resources can be put to use as
soon as they are possible.
Secure public access to advanced telecommunications networks by way of
existing PEG access requirements.
Identify and inventory unused and /or abandoned conduit that exists in the
public right -of -way, in easements, or on property owned by the city, and
develop strategies to leverage the use of these resources. (LCC)
23. "Connectivity" or "Interog b' Provisions should be made to ensure that
individual networks can communicate with one another; that systems established
by competing service providers (telephones/ cable) will be compatible and not
mutually exclusive; and that systems or services approved by a city or county will be
compatible with neighboring jurisdictions. The Bay Area, as a region, should
achieve a compatible, if not a uniform, telecommunications system. (ABAG)
5
24. Compatibility with Existing Technology Provisions should be made to
incorporate current hardware and existing technologies to the extent feasible and
practicable. (ABAG)
25. Adequate Spectrum Capacit4 for Public Safety and Other Public Use Cities
should be allocated adequate spectrum on the 800 Mhz radio frequency for public
safety, emergency services, public works, and other public use. (LCC)
26. Receive appropriate allocation of telecommunications services, equipment and
bandwidth, including spectrum space for police, fire and City services. (Milpitas)
F. OTHER ISSUES
27. Local governments shall have the right to analyze the legal, financial and
technical qualifications of any telecommunications provider wanting to use the
public right -of -way and shall have the right not to issue a franchise to an
unqualified applicant. (NACo)
28. Public education and governmental access serving the local community shall be
a requirement that must be imposed on telecommunications providers. (NACo)
29. The Information Superhighway must include the delivery of services and
connection of major public facilities, such as schools, libraries, hospitals and other
government facilities. (NACo)
30. FCC Certification of Local Franchising Authority The League encourages cities
to certify their local cable TV franchising authority to protect the interests of their
citizens. Federal and state law should secure the rights of local franchise authorities
to regulate cable service rates if they have received certification frem the FCC. (LCC)
31. Enhance the City's economic development programs. (Milpitas)
A
of M �t #�1 of ilyita8
�j y 455 E. Calaveras Blvd.
Milpitas, California 95035
September 23, 1994
The Honorable Mayor Ann Marie Burger and Council Members
The City of Saratoga
13777 Fruitvale Ave.
Saratoga, CA 95070
Dear Mayor Burger:
This letter is to inform you that the City of Milpitas has adopted two
resolutions regarding the National Information Infrastructure, also referred
to as the Information Super Highway.
For more information, please call the City Manager's Office at (408) 942 -2317.
Sincerely,
Eliren Pasion
Cable Television
Public Information Specialist
AS/20830/L
An Equal Opportunity Employer
RESOLUTION NO. 6352
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF MILPITAS
SUPPORTING THE LEAGUE OF CALIFORNIA .CITIES
TELECOMMUNICATIONS POLICY
WHEREAS, the City of Milpitas "City recognizes the importance of the
emerging National Information Infrastructure, also referred to as the Information
Superhighway; and
WHEREAS, the City believes that development of this new infrastructure
raises important social, economic and public service policy questions; and
WHEREAS, the City believes that development of this infrastructure will be a
massive public works project, resulting in traffic disruption, noise and air pollution, and
reduced street pavement life; and
WHEREAS, the City believes that cities should have a voice in the
development of this infrastructure; and
WHEREAS, the City believes that cities need to protect the public rights -of-
way, receive compensation for the use of the street by private companies and receive a fair
allocation of services, resources and bandwidth from companies developing this new
infrastructure; and
WHEREAS, the League of California Cities has adopted a
Telecommunications Policy, attached as Exhibit 1; and
WHEREAS, the City fully supports and endorses the efforts of the League of
California Cities to preserve and protect the rights of cities and to address cities' concerns
with respect to this new infrastructure.
NOW, THEREFORE, BE IT RESOLVED as follows:
1. The City of Milpitas supports and endorses the League of California
Cities Telecommunications Policy.
2. The City of Milpitas agrees with the tenets set forth in 'the League of
California Cities Telecommunications Policy, specifically that:
a. Access to advanced telecommunications services must be
available to all citizens, as well as the commercial, education
and government sectors.
b. There should be an open, competitive marketplace for
telecommunications.
C. Cities must have a role in the regulatory structure to preserve
their local authority over matters of local impact.
-2-
r
d. Cities must be compensated for use of public rights -of -way and
negative impact on local infrastructure.
e. Cities should help safeguard citizens against market inequities
in the advanced telecommunications marketplace by
maximizing cities' ability to utilize and facilitate ,access to
telecommunications resources, including the option of cities
becoming providers.
Cities should be allocated adequate spectrum capacity for public
safety, emergency services,*public works and other public use.
2. NOW THEREFORE, BE IT FURTHER RESOLVED by the City Council
of the City of Milpitas that the City Manager is directed to transmit this
resolution to the National League of Cities, the California League of
Cities, to state and federal elected officials representing the City of
Milpitas, and to mayors and city councils within Santa Clara County.
PASSED AND ADOPTED this 6thiay of Sept. 1994, by the following vote:
AYES: (5) Mayor McHugh, and Councilmembers Lawson, Lee,
Livengood and Skyrud
NOES: (0) None
ABSENT: (0) None
ABSTAIN: (0) None
ATTEST:
Gail Blalock, City Clerk
APPROVE AST FORM:
2
D v arse ity Attorney
APPROVED:
Peter A. McHugh, Ma
AS 20274/ G
RESOLUTION NO. 6353
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF MILPITAS
ADOPTING A TELECOMMUNICATIONS POLICY FOR THE CITY OF MILPITAS
WHEREAS, the City of Milpitas "City") perceives the recent advances in
telecommunications, including fiber -optic deployment, as the beginning of a new utility
which will have social, economic, service and physical impacts on the City and its
residents; and
WHEREAS, as telephone, cable companies and others use new technologies
to make newcservices available, the City must be in a position to take advantage of these
new technologies to serve the .public and to ensure that no one in the City is
disenfranchised and unable to obtain access to these new technologies; and
WHEREAS, the City recognizes the benefits that will accrue to its citizens and
businesses as a result of the development of this utility in a fashion that assures open access
to a wide range of competitive services for business, citizens and public agencies; and
WHEREAS, the public streets, rights -of -way, pole space and other public
assets (Public Property) are a limited, finite public resource the use of which is critical to the
development of this utility; and
WHEREAS, private businesses seeking to use this limited resource for profit
should compensate the public treasury for the use of this resource; and
j WHEREAS, the City further desires to minimize unnecessary street -cuts
which would deteriorate pavement life, create noise and air pollution, and cause traffic
interruptions during installation of such infrastructure; and
WHEREAS, California cities have traditionally employed their police power
to protect the public interest in the use of the public streets.
NOW, THEREFORE, BE IT RESOLVED THAT the City adopts the following
principals as its Telecommunications Policy to guide the development of a
Telecommunications Utility in the City:
1. Minimize disruption to Public Property and ensure efficient use of the
City's streets.
2. Ensure reliable telecommunications services at the lowest cost to
residents, businesses, and public agencies and institutions in the City.
3. Ensure universal access and interconnectivity to residents, businesses,
and public agencies and institutions in the City.
-2-
4. Ensure the maximum number and variety of .telecommunications
services to residents, businesses, and public agencies and institutions
in the City.
5. Enhance the City's economic development programs.
6. Receive fair compensation to the City for the use of Public Property
and for City participation in development of a Telecommunications
System.
7. Receive appropriate allocation of _telecommunications services,
equipment and bandwidth, including spectrum space for police,, fire
and City services.
NOW, THEREFORE, BE IT FURTHER RESOLVED by the City Council of the
City of Milpitas that the City Manager is directed to transmit this resolution to the National
League of Cities, the California League of Cities, to state and federal elected officials
representing the City of Milpitas, and to mayors and city councils within Santa Clara
County.
PASSED AND ADOPTED this6th day of Sept. 1994, by the following vote:
AYES: (5) Mayor McHugh and Councilmembers Lawson, Lee,
Livengood and Skyrud
NOES: (0) None
ABSENT: (0) None
ABSTAIN: (0) None
ATTEST:
Gail Blalock, City Clerk
APPROVED S T FORM:
D ejl&s'ervltity Attorney
APPROVED:
Peter A. McHugh, May
AS/20276/G
v
S
1 .v *''1f��Y VR"•.}c i 'If Y '7'�'+I�'3 y4yV
OVA 7
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�XV
ILSG INSTITME FOR LOCAL SELF GOVERNMENT
A Telecommunications
Framework tor Cities
Wit <1 ;:'4.
i,_ •gyp
TI'EM 4,10/5/94
1■
v i =a 0' T 0 Y E a N p E M.
I?-
Established 4.7 1955 as a non profit, non-
partisan and tax exempt 501(c)(3) organization,
the Institute for Local Self Government is affiliated
with the League of California Cities. ILSG is
engaged in research and education to promote
and strengthen local self governance.
Reports published by the ILSG on the subject
of telecommunications include:
"Now to Make Telecommunications
Work for Your City"— a comprehen-
sive syllabus used in workshops
J1990),'S25 plus appropriate sales tax
"Telecommunications Issues for Local
Government" (1990), $10 plus
appropriate3ales tax-
"A Telecommunications framework
for Cities" (1991), $10 plus appropri-
ate sales tax
r Copies of these reports may be purchased by
sending a check payable to the Institute for Local
Sell Gavowad-1400 K Street, Suite 400,
,.:.',Pcramento; CA,9St)1d.
I N S T I T U T E F R L 0 C A L S E .L F 0 Y E R N M E R T
TELECOMMUNICATIONS
FRAMEWORK
FOR CITIES
NOVEMBER 1991
Copyright 1991. All rights reserved. No part of this document may be reproduced without written permission.
Institute for Local Sell Government
1400 K Street, Suite 400
Sacramento, CA 95814
(916) 443 -4 136
Supported by funds from the Telecommunications Education Trust established by the California Public Utilities Commission
0 Printed on Recycled Paper
I N S T I T U T db F O R L 0 C A L S
1F G O V E R N M E N T
A TELECOMMUNICATIONS FRAMEWORK FOR CITIES
TABLE OF CONTENTS
Foreword...............................:.............: ..............................1
Executive Summary ..............................3
Chapter I Vision of Telecommunications in 2000 .............4
Strategic Telecommunications for the 1990's ......................5
Increase administrative efficiency ..............................5
Develop adequate budgets ....................:.........6
Improve democratic governance ..............................7
Ensure delivery of municipal services ........................7
Reduce air pollution, traffic congestion and
Energy consumption ..............................8
Encourage economic development ............................9
Chapter 11- City as Telecommunications User ..................10
Definition............................................. .............................10
Currentstatus .............................10
Trends.................................................. .............................11
Actions: City as User .............................11
Chapter III City as Telecommunications Consumer ........13
Definition............................................. .............................13
CurrentStatus .............................13
Trends.................................................. .............................14
Actions: City as Consumer .............................14
Chapter IV City as Policy Maker .............................16
Definition............................................. .............................16
CurrentStatus ...........16
Trends.........................:........................ .............................16
Actions: City as Policy Maker .............................17
Municipal Policy .............................17
StatePolicy .............................18
FederalPolicy .............................18
League of California Cities .............................18
I N S T I T U T E F O R L 0 C A L S E G O V E R N M E N T
FOREWORD
Telecommunications technologies and applications
offer an important opportunity for cities to cut costs, increase
efficiencies and provide new solutions to the cities' critical
problems. Many cities am unprepared to utilize the full
potential of available telecommunications technologies
effectively.
Telecommunications can help cities develop innova-
tive solutions to the challenges of the 1990's in at least six
j strategic areas:
A. Increase administrative efficiency
B. Help balance budgets
C. Improve democratic governance
D. Ensure delivery of municipal services, especially
to low and moderate income constituencies
E. Reduce air pollution, traffic congestion and energy
consumption
F. Encourage economic development within environ
mental constraints
This report, "A Telecommunications Framework for
Cities," looks at cities from three perspecuves:
The city as a Telecommunications user: A
city uses telecommunications to provide services and
information to the citizenry. For example, a city may
cablecast their council meetings, give the community
access to public documents using computers, enable
interested parties to fax their concerns directly to the
Council member or provide low cost data transmission
to nonprofit agencies by linking them onto the
government institutional network.
Telecommunications technologies can provide the
city with the means of delivering more services to
more people in less Lime for less money. Telecommu-
nications permits a city to reorganize how and where
these communications are performed and can increase
the efficiency of the municipal corporation.
The city as a Telecommunications consumer:
The municipal corporation routinely "consumes"
telecommunications to conduct the business of the
city. For example, the city owns, rents or purchases
telecommunications services, handsets, building
wiring, microwave systems, etc.
The city must manage these resources efficiently,
must develop effective purchasing procedures and
acquire technologies that serve both short and long
term needs.
1
I N S.T. I T U T E R L v C A L S E L F M6 O Y E R N M E N T.
The city as a Telecommunications policy
maker: The city needs to operate at two levels as a
policy maker. The city can establish local telecommu-
nications policies (for example, the cable TV
franchise). It can also use its other police powers to
influence the development of telecommunications
locally (for example, using its right to regulate land
use). Secondly, the city must represent local interests
as state and federal agencies redefine the telecommu-
nications marketplace. For example, the current
debate on the entry of the telephone companies into
cable and other information services has had minimal
city input.
This report is divided into two basic parts:
Chapter I discusses telecommunications
innovations that cities can employ to respond to the
critical issues of the day.
Chapters II through IV review the current status
of telecommunications, trends within cities and
outlines action steps to help cities become more
effective users, consumers and policy makers.
This policy framework is the result of over two years
of work by the Institute for Local Self Government. The
ILSG initiated an intensive education program for elected
officials and executives in 1989. The program consisted of a
series of intensive one -day workshops entitled, "How to
Make Telecommunications Work for Your City." The focus
of these workshops was on the relationship of telecommuni-
cations planning and the existing needs of city officials and
its citizens, especially those most dependent on city services.
Based upon the research which led to the development of the
workshop, input from a panel of telecommunications experts
and League of California Cities leadership, an issues paper,
"Telecommunications Issues for Local Government" was
published'and distributed to all of California's 463 cities.
The Institute for Local Self Government is indebted to
the League of California Cities Telecommunications Task
Force for their important contribution to the preparation of
this report. Members include:
Jacki Bacharach, Mayor Pro Tem, City of Rancho
Palos Verdes (Chair;
Shirley Cobb, Public Information Officer,
City of Thousand Oaks
Stephen Ferguson, Director, Corporate Information
Services, City of Oakland
Bobbie Landers, Council Member City of Orinda
Adelia Lines, Librarian, City of Richmond
Dave Mora, City Manager, City of Salinas
Gary Orton, Vice Mayor, City of Belmont
Linda Perry, Council Member, City of San Leandro
Gordon Phillips, City Attorney, City of Redondo Beach
Mike Preston, Council Member, City of San Marcos
Mike Stover, Assistant City Attorney, City of Lakewood
Art Takahara, Mayor, City of Mountain View
Howard Zelefsky, Planning Director,
City of Huntington Beach
Special acknowledgement goes to Kathleen T. Schuler
and Walter Siembab, Co-Directors of the ILSG Telecommu-
hications Project, for their expertise, commitment and vision
and to Daniel Wright, Research Assistant Finally, the
Institute for Local Self Government wishes to express its
deepest appreciation to the Telecommunications Education
Trust which was established by the California Public
Utilities Commission to fund telecommunications consumer
education projects throughout California.
Clark Goecker,
Execrative Director
2
1 :I S T I T U T 7 0 R L 0 C A L S E F S 0 V E R N M E N 1
�fE�i1T1VE
SUMMARY
�Tt'x decade of tl:e i 990' wdl nreseni sonic o(tne
Yost c,nlniex and.pressing problems kno »•n to socien.
'.../!tnlunitics today Iace cnucai vrobienrs. rronz iundine
>>r;a; es and enrironmertai deterioration to housing
anal u :ransportatton crtsis. U confront these issues
.-ud -tin requires innovation and undaiink of the tried and
r. w! t L` 90'r
Local telecommunications policies beyond the
::able television franchise are rare, and cable
television policy in marry cities fails to address
community needs.
Federal and state lceislatures and regulatory
agencies are changing the rules governing telecommu-
nications markets to create competition and spur
innovation. These chanties may affect pricing and
inay impact long standing public policy, such as
universal phone service. Cities lack a coherent,
comprehensive pdsiuon on the role of local govern-
ments in a competitive telecommunications market-
place.
J HE RESPONSE
:ur.,'.yor►: i.; _aided by ui, pnnriplc oral
,,....,auon.i s1:pIX ?rLS In II( :aUons 111.11 :1_ C11i,s
L:::!, !L :,s Ccit t „r n!or, pct ;ic.
iE :�'ROBLEAY
u(i�_'ct ivaitauons are furcin_ circtcLl clticiais
:u ;tiff to Manage existing resources more clfec-
:i� anti to seek ailcmauye revenue sources. Ciucs'
1:7ren1 inVesunent in tcleconimunicauons is
::a and Ili z:ro nut lack of ctordinauon ,anom!
p ::r'_91LMS resuiu in inefficient utilization of dtcse
and a la, k of rlanning i or fuiure needs.
3 '.lunicip'.6 government.; are ;l,c,ndcnt now on
:ra;port:auuri :uitt cummum: Lions to
:till i :i(ii: ut, ,umnwnit: (:,tk'nu.; Oil the
na, C!`Illpm :Ila!n to a „cS; vita!
:::formation. I iris reli (`t conimuni wili
at inrrcas, ,!:y governmcnts anu citizens alike
:rc forced to find altemaUves to automobile truyel.
Many cities are unprepared to utilize the full
potential of available telecommunications tcchnolo-
gies effectively:
Current uses are concentrated in a few depart-
ments. Therc arc few central resources for
planning and implementing new applications.
Consumer decisions are often motivated by
mistake avoidance rather than meeting currait
and future needs. Considcmbon of tcl(-
nications applications are inhibited by the lack
of knowledge about total telecommunications
costs, invested capital and physical plant.
Ciucs may implement needed innovations through
inore,Ifecuye use of teiecommunicauons. Telecommunica
,)ns supports Innovations uaat can cut costs, increase
iciencies and provide ne•.v solutions to cities' critical
problems.
i he "Telecommunications Framework” is a guide for
cl,cted officials and stalf anti outifncs action steps to (a) use
telecommunications more cifectiveiy to improve city
services, (b) manage total telecommunications investment
nmre eiiecuyeiy, and (c) integrate telecommunications into
local policies and planning and reguiatory powers. The
Framework recommends that cities:
Institute comprehensive interdepartmental
planning and identify a single entity within the city
iut tic authority to monitor and coordinate telecom-
munications planning and implementation.
a assess current and future communications
nceus, not only of the city but of the community.
i Develop plans for each municipal function
which includes applications of new telecommunica-
tions tools from voice processing to video
conferencing.
Evaluate the total current telecommunications
investments and expenses and of vendor evaluation
procedures to ensure that a variety of factors (i.e., cas
of use, reliability, flexibility) are considered along
with price.
Examine purchasing options, especially by
smaller cities (i.e., regional telecommunications
consortia or joint powers agreements).
0
I N S T I T U T E F• R L C C A L S E L F I P O V E R N M E N T
Examine revenue options such as fees for value
added service, lease of conduit and marketing of
excess capacity of city owned telecommunications
networks (i.e., institutional networks, radio systems,
etc.).
Make telecommunications issues explicit in the
General Plan so that telecommunications require-
ments can be built into new developments (under-
ground cabling, information kiosks, telework centers,
etc.).
Ensure that all present and subsequent telecom-
munications franchises require vendors meet local
communications needs and satisfies telecommunica-
tions plans.
Ensure legislative authorization to franchise
telecommunications vendors using the public rights of
way.
Seek funding to support telecommunications
planning and development similar to funding. for
transportation systems.
The Framework further proposes that the League of
California Cities continue to play a leadership role in
telecommunications issues and legislative policies, and that
it seek foundation grants to fund further education, research
and development.
CHA MR 1.
Visions OF
TELECOMMUNICATIONS
IN 2000
The Framework provides cities with options for
performing their roles of user, consumer, and policy maker.
A framework for these roles supports the possibility of
a unified vision of telecommunications in each city. With a
vision, performance in these roles can become a set of
mutually reinforcing actions toward a common strategic
direction.
For example, the Framework can help coordinate the
city's purchasing power with the cable television franchise in
order to satisfy the communication needs associated with
local problems: the city's current expenditures on leased
lines for'data communications can be combined with a
franchise requirement to allocate bandwidth (or a number of
fibers) to the city, enabling the city to develop and support
an institutional network for the transmission of data, video
and voice.
A framework can also guide the city's lobbying
position so that federal and state legislation and policies
promote the ability of cities to acquire and use telecommuni-
cations to address the specific needs of the community
(promote competition, protect the cities' interests in cable
TV franchising, ensure universal telephone service, etc.).
Benefits are derived most directly through use.
Therefore, the initial question is, what are the purposes for
which a city would use telecommunications?
The answer involves the manner in which cities will
cope with the future. Therefore, the long run or strategic
view of telecommunications depends on answers to two
other questions:
1. How will the municipal corporation be structured
in 2000 and what functions will it perform?
2. How will the city /metropolitan area/region be
structured in 2000 and how will its functions be
performed?
Answers to these complex questions are, of course,
beyond the scope of this report As substitutes for these
answers, the League of California Cities strategic plan,
I N S T I T U T. E F O R L 0 C A L S E �..F G O V E R N M E N T
Action for the 90's, provides a list of strategic actions that
must occur this decade in order to maintain an acceptable
quality of life statewide.
These innovations are our starting point.
I ELECOMMUNICATIONS FOR THE 19905
Action for the 90's identified priority issues that must
1;- addressed in order to sustain a reasonable quality of life
luring what might be trying times for many people and
institutions. The potential contribution of telecommunica-
uons to this agenda was demonstrated in tic paper entitled
Teiecommunications Issues For Local Government.
by the Institute for Local Self Government
iLSG) (December 1990).
The problems facing cities can be summarized in the
;Ilo�kin_ terms:
A faltering private economv, that has already
failed to produce an acceptable standard of living for
the poorest 20°% of California families, must struggle
to regain its strcngdt while complying with increas-
ingly expensive environmental constraints. Thcsc
include water shortages, air water- building pollution
cleanup and prevention programs. and resiliently high
per capita Ic% of expensive energy consumption.
The public sector, essentially dependent upon
tfte private economy for revenue, faces rapidly
increasing numbers of young, old, and ethnically
diverse people that it must satisfv with municipal
services and include in governance.
their fundamental organizational characteristics. Large
bureaucracies, private and public, are being "downsized" and
restructured. Urban designers, environmentalists, transporta-
don planners and others arc rethinking land use assumptions
and proposing a new, more efficient restructured urban form.
Telecommunications can help cities develop innova-
tive solutions to the challenges of the 1990's in at least six
strategic areas:
A. Increase administrative efficiency
B. Help balance budgets
C. Improve democratic governance
D. Ensure delivery of municipal services, especially
to low and moderate income constituencies
E. Reduce air pollution, traffic congestion and energy
consumption
F. Encourage economic development within environ-
mental constraints
A. INCREASE ADMIN1s1RAT1 vE EFRc1ENCY
Most cities need to increase efficiency in administra-
tion and service delivery, because revenue fails to adequately
meet the escalating needs for service. Cities need to become
more responsive while:
communities are becoming more ethnically
diverse,
mobility is increasingly expensive and difficult,
and
Virtually all institutions are faced with re-
source shortages, including major airlines, computer
manufacturers, philanthropic organizations, educa-
tional institutions and governments at local, state and
federal levels. While these shortages might be the
result of an economic recession, it may be prudent to
act as if the condition will, in some degree, last
throughout the decade.
For example on the expense side, as the environ-
ment is priced at its true long term cost, many re-
sources such as clean air and water and many practices
such as solid waste disposal will all become much
more expensive. Additional turbulence in the Gulf
Region could suddenly set off another round of energy
based inflation.
Many institutions have responded to the short term
crisis and the long term conditions by rethinking some of
local government is having to become more
responsible for the city's social conditions.
There are at (cast four possibilities:
1. Uncouple and decentralize service production
from service delivery. For the most part, municipal
services are produced and delivered through a central
location such as city hall. A physical decentralization
of the municipal corporation would allow some
municipal services to be produced closer to where the
municipal workers live.
This decentralization is accomplished by having
some of the workforce work all or part of the time in
home offices, regional telework centers (equipped
with telephones, fax machines, duplicating machines
and other office support and supported by a number of
private and/or public agencies), or the public facilities
of neighboring cities. Telecommunications re-
integrates the off -site workers, tying them to the home
office through computers, modems, fax machines and
the telephone. "Mode shifted navel" (such as walking
or bicycling) or no travel at all reduces the number of
I N S T I T U T E F• R L G C A L S E L F ft 0 V E R N M E N T
cars on the road, raises the average vehicle ridership
and reduces vehicle miles travelled.
Some cities are piloting telecommuting projects,
especially the City of Los Angeles and other commu-
nities in Los Angeles County. Honolulu and surround-
ing smaller cities are joining with the private sector in
testing telework sites. The Honolulu example may be
of special interest to smaller cities that are "housing
rich and job poor" or to those cities whose high
housing costs require most municipal workers to
commute long distances.
2. Deliver service as close to the point of consump-
tion as possible. Now municipal information is
provided primarily by a city worker talking to a
constituent, either on a face- to-face basis or over the
telephone. Some of this information delivery can be
automated and distributed using automated telephone
systems (interactive voice response phone systems,
audiotext), home computers and public kiosks
(videotext) and fax networks. These systems can be
designed to provide information in several foreign
languages 24 hours a day at a relatively low cost over
the public telephone network or through local munici-
pal networks (such as an institutional network).
Utilizing these delivery systems would improve the
city's responsiveness to its constituents as well as
reduce the number of vehicle trips and vehicle miles
to access municipal services. Since end users would
be engaged in "co- producing" the service (compa-
rable to a person accessing banking services using an
Automated Teller Machine or ATM) and more people
can be served, the cost to the city of producing the
service would decrease.
3. Use network services to increase the productiv-
ity and /or the effectiveness of the city work force.
Voice mail, e-mail and video conferencing can all
increase productivity. Norfolk, Virginia, estimates
that it saves $25,000 a month through the use of e-
mail. The City of Auburn, Washington, (population
33,000) faced gridlock manually issuing and tracking
25 different kinds of permits in five different offices.
Callers waited hours for status reports on permits.
With the new automated system and less staff
callers get responses while still on the phone, and the
city maintains current parcel information through a
link to the county's assessor's office.
Improvements in mobile telecommunications
continue to dramatically increase effectiveness of
police and fire departments. Such improvements
would prove equally effective with parks and recre-
ation, public works, building inspections and other
field personnel.
4. Provide direct access to information without
personnel. Information on status of permits, city
services, eligibility for programs such as welfare or
health, council meetings, recreation program registra-
tion, etc. are being provided now cuing municipal
channels, 24 hour "information kiosks," and voice
directed phone systems.
B. DEVELOP IIDwum BUDGETS
Adequate budgets can be realized in two general ways.
Costs can be reduced or revenue can be rased. Telecommu-
nications can contribute to both.
Cost reductions can occur in three ways.
1. Telecommunications can be used more exten-
sively in service delivery (making information more
readily available to the public, offering services closer
or in the home, etc.) and in administration (use of e-
mail and voice mail, electronic "filing cabinets" to
reduce storage and increase access to records, etc.) to
increase overall productivity as discussed above. For
example, an electronic filing cabinet system now on
the market can automatically scan, index, and store
130,000 pages (or a three to six drawer filing cabinet)
on one 14" disk. The documents can be accessed by
multiple users simultaneously.
2. The costs of telecommunications can be more
effectively managed to ensure a least cost technical
solution: interdepartmental planning, centralized
oversight and purchasing, compatible interdepartmen-
tal computer systems, local area networks, etc.. City
officials often mistakenly believe that their city's
current telecommunications expenses are insignifi-
cant, because expenses are usually embedded in
department budgets and total telecommunications
costs are frequently unknown.
3. Inter -city cooperation could enable smaller
cities to share in the costs of telecommunications
applications that would otherwise be unavailable to a
single municipality. Small cities now enter into joint
powers agreements for a wide variety of services,
including cable television. County governments and
local fie and police agencies have been the leaders in
developing joint projects, such as computerized
geographic information mapping systems. These
systems permit a number of localities or agencies (for
example, planning departments, fire and police,
transportation) to share a common in -depth database
on a given area. The Portland Metropolitan Commu-
nications Commission manages an institutional
network on behalf of 14 small communities in
addition to portions of the County.
I H S T I T U T .r F O R L 0 C A L S E F G 0 V E R N M
Revenue can raised in two ways.
1. Private telecommunications markets can be
required to generate consumer tax revenue.
franchise fees or business taxes. These and other
onuons to increase "regulatory revenue" through a
spectrum tax, for example) are discussed more fully in
Chapter iv.
Many cities own one or more telecommunications
resources: radio, microwave and/or insutuuonal
networks (INET), underground conduits, etc.. In
some cases, excess capacity on these resources can
be leased to other public and nonprofit entities or
to the private sector. Opportunibes include leasing
_itannei capacity from die city's poruon oi,the cable
!NET, selling switching services to small businesses
city hall, selling transmission capacity: from the
s private nctwork(s), basing space m cif•; owned
::td,r _round conduit to telecommunic ;aions vendors.
fomh.
Cities could also include nonprofit grantees of the
its tin leased services to -mail and voice mail, fur
:x ;unpic) at minimal cost. For example. tine City of
incinnau includes punlic and private sctuxnfs.
hospiLais, and United Way agencies on its I NET,
-_h rL only ti)r hookup.
Tl:cre are soine barriers to this more cntrcureneur-
::1 approach. Cities must invest to a certain level of
;,ct:ni,al expertise. And. local governments are
rmctimes reluctant to provide services normally in
domain of die private sector. I lowevcr, there are
:1recedcnts. Cities routinely charge tic private sector
use public rights of way or to use city m%ncei
;Ilduit_s. The ll::dc (:runty Offiec of Comnuter
S,:r•ices and Informabon Systems (CSIS) is sell
1::pponing by Icasinu voice and data lines on its INET
otlrcr county and state agencies and a nonprofit
hospital. After obtaining permission from the state to
rc -sell value added public information, CSIS also
delivers such information to the private sector for a
fee. Other ciucs and counucs are adding non-
goycmmental agencies to their INETs, because
increasing the number of users of the system de-
creases the per user costs.
C. IMPROVE DEMOCRATIC GOVERNANCE
Govcmance problems have at least two dimensions:
reports. official policy documents, policy outcomes
a nd so forth. Delivery of this information is compli-
cated when many constituents do not speak English, or
have mobility problems due to age or income.
Language translation capabilities can be acquired from
the State of California or commercially fora per
minute fcc over a telephone equipped with
conierencing capabilities. Video coverage of city
council and commission meetings can be distributed
over the cable television government channel. Public
notices and staff documents can be distributed over
electronic mail networks such as Santa Monica's PEN
and accessed by computers and telephone (State of
Hawaii).
Inter -city cooperation -,%hick could diminish
the need for regional agencies that frequently
infringe on local self determination.
Communication is necessary to improve inter -city
ctxnperauon in regional issues. Growth management,
transportation, crime prevention and economic
development are all examples of issues which require
such cooperation and significant inter -city communi-
cations. Audio and video conferences, c -mail, and
data and graphics communications available to city
representauyes, neighborhood organizations and the
public could decrease the cost and improve the
,ffe:uvencss of public decision making in these
regional issues.
One of the most likely areas for potential inter -city
coopernuon may in fact be Joint development,
planning and management of telecommunications
systems (ex., tic Portland Metropolitan Communica-
ti,xts Commission coordinates a 14 community INET;
a five city joint powers agreement for cable TV
franchising in tic Palo Alto area; Reno and Washoe
County project to build a six mile fiber network).
A ENSURE DELIVERY OF MUNICIPAL SERVICES, ESPEa4uy TO
LOW AND MODERATE INCOME CONSTITUENTS AND TO THOSE KM
LIMITED MOBILITY.
Action for the 90's predicted that cities will need to
accept increased responsibility for social conditions that
involve safe neichborhoods, citizen participation, health
care, cultural diversity, recreation and youth and senior
programs.
I. Effective participation by residents in munici- Many cities now use their municipal channels to
pal decision making. Every city has extensive provide mul6language information to non English speaking
responsibilities for providing information to the residents, to teach literacy skills, deliver special exercise
public. These include mecung notification, staff programs to the frail elderly. Some school districts keep
home bound students "in school" through live, interactive
I N S T I T U T E D R L 0 C A, L S E L F G O V E R N M E N T
video instruction using INETS, interactive channels on the
cable system or their instructional television fixed systems
(ITFS). Other communities have linked local health clinics
to major hospitals through fax networks to improve the level
and speed of diagnoses.
As the demand for municipal services expands, the
unit cost of producing services must be decreased. Service
costs can be decreased through increasing productivity of
the work force, by reducing the cost of the technical
overhead (i.e., better management of telecommunication
costs) and by facilitating end user co- production with the
city of some services..
For example, Neighborhood Watch is a recent
innovation that engages community members in co-
producing neighborhood safety. Many municipalities have
initiated Neighborhood Watch programs on the municipal
cable channel. Other approaches to safety could include
equipping neighborhood watch groups with more powerful
communications and more timely police information
(linking them on the e-mail system, for example). Similar
organizational innovations can be applied to other services.
All information and transactions that can be provided
through the public telephone network, cable television or
ATM -like kiosks engage the constituent in co- production of
the service., Valuable municipal labor can be freed to
engage in more productive activities.
Increased work force productivity, more efficient
administration and reduction of telecommunication costs
have been discussed above.
E. REDUCE AIR POLLUTION, TRAFRC CONGESTION AND ENERGY
CONSUMPTION WITHOUT STOPPING THE PHYSICAL DEVELOPMENT
NECESSARY TO ACCOMMODATE THE GROWTH PROJECTED FROM
NATURAL INCREASE AND IMMIGRATION.
Action for the 90's states that innovation will be
needed in order to protect the quality of life as the popula-
tion increases by 6 million people in the 90's and ap-
proaches 40 million by 2020. Local governments will have
to provide affordable housing, natural resources, infrastruc-
ture, waste disposal/recycling and open spaces while
minimizing the environmental costs.
A reduction in air pollution, traffic congestion and
energy consumption means less vehicle miles travelled in
personal automobiles that use fossil fuels for the journeys to
work, shop, recreate and to acquire services. This reduction
can be accomplished by re- organizing single occupant into
multiple occupant trips through ride sharing, shifting the
mode of travel to mass transit or some non polluting mode
such as bicycles, or eliminating the need for the vehicle trip
altogether.
The ride sharing option tends to be relatively expen-
sive and has not yielded satisfactory results, at least without
significant penalties for driving alone. Van pooling cur-
rently requires a subsidy of $60 a seat per month in Los
Angeles.
The key to the second and third of these options is
shortening the distances that must be. travelled for any
activity (journey to work, etc.) to as close to zero miles as
possible for as many people as possible.
Neo- traditionalist urban designers such as Peter
CalEhorpe and Andreas Duany are developing new principles
to guide physical development away from. built -in transpor-
tation needs associated with suburban sprawl. They are
using higher residential densities with co- located retail and
employment opportunities. They design to accommodate
the pedestrian and discourage the automobile by, among
other things, narrowing sweet widths. This approach
provides the so- called jobs housing balance that will greatly
reduce the need for transportation.
But such physical (re)development will most likely be
too expensive and provide too little too late. The time and
cost constraints suggest that some sort of retrofit of the
existing physical environment will be necessary.
Innovations in both institutional organization and the
function of land will have to occur. As described above, the
municipal corporation as well as most other employers in a
city will need to decentralize the production and the delivery
of services and products. Not only must the commute of
municipal workers be induced through telecommuting,
telework centers and so on, but the services of the city must
be brought closer to the user. Information kiosks can be
placed in libraries (Santa Monica's PEN) or in Laundromats
(Community Memory in Berkeley), shopping malls can
house satellite city halls (Honolulu) and a citizen can receive
information and file forms through the nearest fax machine
(Oakland). Videoconferencing and training over ][NETS and
community channels can reduce travel and save time. In both
realms, new communication needs will be created, and an
array of new telecommunication services will be required.
47
I N S T I T U T F a n L 0 C A L S E F G O V E R N M E N T
F. ENCOURAGE ECONOMIC DEVELOPMENT WHIN THE
ENVIRONMENTAL CONSTRAINTS.
Cities need to develop local and regionai economics to
;:rovide iobs to residents and contribute tares to the local
�ovcmment. The most prized iobs arc high paying and often
mound in the information services sector. The State of
l iawaii, for example, has an unemployment rate of under
but the maiority of the available jobs arc low paid (food
and hotel service, for ex.). The need to develop alternative,
utter paving employment opponunitics is one factor driving
the State's siznificant investment in telecommunications
%%*hich includes a statewide microwave backbone for voice,
data and video communications and 1NETs on each island.
city and county governments— where success
at solving traffic congestion problems, maintaining
low taxes with high service levels and reducing per
capita energy consumption may become prerequisites
for economic growth
An economic development strategy based on telecom-
munications would incorporate the following:
T�Iccommunicadons can contribute to economic
(i:vclonment in only one way. however effective use by
ac I.(xal organizations, institutions and entrepreneurs that (1)
:cake tin the current economic base, and are kev to
r: _cnerann2 the economic base in the lone term.
`.lanv telecommunications advocates urge develop
ntent of new infrastructure as insurance for success in the
infonmation economy. The problem is, infrastructure without
clients prepared to Use it Will lead to nothine except the
t.mporary jobs needed to build it. The existence of con
.:ructcd. but unutilized, institutional networks, vacant
ommunity cable TV channels and dormant instructional
t.lcvision systems ITFS) are evidence of this problem. In
fact, in the mid 80's the FCC released unused but valuable
ITFS channels for commercial use and allowed nonprofit
hi cnsc holders to (case unused channel time to commercial
vendors.
Lc act of usint telecommunications to lxcome a
:imre citicicnt and effective crcanizabon %viii produce
1:.nnc► its. The kev organizations in anv community include:
Stan -up and other small businesses
educational institutions including universities,
colleges, community colleges, primary and secondary
public schools, vocational schools and specialized
schools or associations that offer continuing education
for professionals
libraries
business resource organizations such as
chambers of commerce, downtown business associa-
tions, or tourist bureaus
Use. Ensure that the key institutions are cost effec-
tively using the telecommunications tools currently avail-
able. The biggest barriers to expanded utilization are
insurance of need, inadequate management of current use
and inability to plan and manage new applications. Train-
ing, education and comprehensive planning are the best
tactics to improve use.
Markets. High market prices are often the next
barrier to use. If needed services (as determined in 1.) are ne
affordable. regulatory action to control prices or direct
provision by the public actor to increase supply are the best
tactics to improve use.
Telecommunication markets are also "market-
places" in that telecommunication firms hire labor
some of it should be local), and telecommunications
facilities and services offer new kinds of opportunities
for other entrepreneurs (900 numbers for example).
Infrastructure. Prices may be high, because there is
insufficient capacity. Or needed services may not be
available, because the telecommunications plant has not
been modernized. Infrastructure is rarely the key.problem
now for economic development although it will probably
become more of an issue in the post divestiture environmen
For example, the much touted 1SDN and video conferencin
over phone lines will be available in the central business
districts of maior cities long before they reach the rest of th
county. It is deficiencies such as these that may require an
investment in infrastructure. Cities are beginning to make
that investment by building their own networks or requiring
them in their cable franchise agreements.
convention centers, airports or sea pons (found
in large cities)
social service and other nonprofit organizations
providing vital community services
I N S T I T U T E F•R 1 0 .0 A L S E L F• 0 V E R N M E N T
CSR ll.
Ci7y AS USER
DERNlTIt7N
The city as a telecommunications user: A city uses
telecommunications to provide services and information to
the citizenry. For example, a city may cablecast their
council meetings, give the community access to public
documents using computers, enable interested parties to fax
their concerns directly to the Council member or provide low
cost data transmission to nonprofit agencies by linking them
onto dtc government institutional network.
Telecommunications technologies can provide the city
with the means of delivering more services to more people in
less time for less money. Telecommunications permits a city
to reorganize how and where these communications are
performed and can increase the efficiency of the municipal
corporation.
CURRENT STATUS
Telecommunications use is relatively concentrated in a
few departments. The distribution of resources has created
telecommunication haves and have -nots.
The resources in any given city might follow the
following h,podtctical distribution:
THE HAVES
Police and lire departments. Public safety has the
longest tradition of telecommunications use, because a) such
services require mobility and arc delivered near their point
of consumption (i.e., beat patrol or the site of a crime or
fire), and b) their services are generally urgently needed, and
response time is an important factor.
As a result police cars are virtually mobile nodes in a
complex voice and data network using radio and microwave
frequencies. The next gcncration_of hand held radios will
make the individual field officer a mobile node in the
network, able to access many of the same voice and data
services available now only in the police car.
Fire departments have many of the same characteris-
tics as police deployment except that a) fine service units are
larger, and b) fire requires high levels of continuous class-
room training. Fire trainers tend to be the most advanced in-
house users of video for one way lesson distribution and
interactive video conferences.
THE 1wRMEDIATEs
Transportation, computing (perhaps finance),
libraries, public works and city council. Public works is a
traditional user like fine and police due to the dispersal of
facilities and the mobile nature of the services. But, the
problems created by remote maintenance yards and rolling
stock require only modest investments in radio and micro-
wave.
Transportation and computing departments are
comers. Significant aspects of the transportation mission
have become depcndcnt on communications. Transportation
system management techniques from traffic signal control
to smart corridors require two way data communications
between individual intersections and central control.
In the extreme case, Los Angeles is developing a $50
million demonstration project named Automated Traffic
Surveillance And Control System ATSAC). ATSAC will
construct a fiber optic telecommunications system capable of
transmitting video images and high speed data from dozens
of freeway locations and intersections to a central ground
control facility. A series of computer controlled freeway
information signs and a low power AM radio station will
communicate with drivers.
Furthermore, transportation demand management
techniques such as ride sharing rely on computers, local area
networks and the public switched network in order to match
and respond to drivers' requests.
Libraries, having embraced automation in the 70's,
havcinitiatcd a range of projects to bring the library into the
classroom, the home and the work place using phone and
computer access (Pasadena, and Knoxville, Tennessee to
name two). Kem County library, with a grant from the
phone company, now serves the residents of the 8000 square
mile county with three bookmobiles which are connected to
the library's mainframe by packet radio systems.
Computing departments have a short history of sharing
resources on a mainframe or mini computer with remote
terminals connected over dedicated lines (hierarchical
model). Beyond a certain threshold of terminals, this led to
the well known "spaghetti farms" of wire clogged ducts.
The explosion of desk top computing during the
1980's led to the development of communication based
computing known as the client service model. Within this
model, a set of stand -alone computers are connected to
become a network of computers which then evolves into a
computing. network with a variety of special purpose nodes.
Costs of computing have tumbled with the adoption of desk
top. computers.
Ultimately, computing departments (under the
hierarchical model) are the fast users of data circuits on a
city -wide backbone network, however it is defined The
10
I N S T I T U T E 0 R L 0 C A L S E 1, S 0 V E R N M E N T
iient server model is often developed quietly by end user
.:.partments through local area networks (LAWNS). Once a
::::rtain number is retched, communications between the
L:�Ns usually over the city network 'or leased lines is
rcuuircd.
Many city councils now.cablecast their public
Hicetinus. Someare using electronic mail, voice mail or fax
nc_Lworks" to lacilame communications with individual
ronsutucnts.
THE TRAILERS
City manager, planning, and recreation and parks.
"rho city manager often has either high levels of central
ompuung support or a developed local area network, and
iaev
are used for electronic mail and management intonma-
-:um systems.
ii Inning dcpan.ncnts h ave become increasingiv
:,t.:restea in mapping soitwire and goo -based information
stems. In some cases, internal sharing and remote access
utcse resources has begun to occur.
Somc recreation and parks departments became
,ommunicauons users by cablecasting softball games and
bier recreation events with video prouucuon resources and
.:r;; -ovemment channei available throu_h the cable tclevi-
:mi iruichisc.
THE HAVE -HOTS
Social services, aging. community development,
_ontroller, and city attornev. This group includes depart-
:;tents that arc overwhelmed by their tasks and cannot
muster rte resources to consider using new tools, despite
1 ;::ir dcsperatc mood for better communications. It also
includes departments that simply have never had a tradition
,f communications or high technology use. However, the
League's CITYLLNTK, along with a variety of other informa-
bon providers, are developing special databases (legislative
tracking, municipal code updates, etc.) for city attorneys and
onher specialized city departments equipped with a computer
and a modem.
In summary, municipal corporations tend not to have
ucpartments responsible for directing strategic changes and/
or for forecasting and planning for the city's future needs for
telecommunications. Individual departments, therefore, fend
for themselves. As a result, a few departments, like fire and
police, acquire powerful capabilities while most do not.
TRENDS
The trend is to reinforce the existing hierarchy of
resource distribution. This happens in two ways:
a Most cities do not have a central department to
facilitate the organizational strategies of all other
departments. As a result only those departments with
intemai expertise to plan, budget, and implement new
telecommunications systems and, therefore, have the
resources to innovate in service delivery.
is Telecommunications vendors develop and
market innovations primarily to those departments
with expertise and, therefore, with budgets.
As a consequence, departmental innovation in service
production has generally been slow. Telecommuting, for
example, plays a very small roic to date. And, the vendors
are reluctant to develop applications for local government
hen existing demand is low.
Department innovation in service delivery has not only
been slow but tends to be limited to isolated special projects.
Use of the government cable channel for distribution of
public information varies dramatically between cities: few
cities have institutionalized their use of video. There has
hccn little apparent experimentation with information kiosks
or other terminal types for the distribution of public informa-
tion. Using these public terminals or home computers to
transact business (i.e.. to receive and file forms, to obtain
permits, etc.) has been even slower.
Voice messaging and c -mail have begun to appear
inside municipal corporations for the purpose of increasing
staff productivity. Interurban video confcrencing remains
unknown despite its successful demonstration by the
National Science Foundation in the late 70's and by the
private sector.
ACTIONS C17Y As TELECOMMUNICAi/0NS USER:
(Please note: Although the action steps for the "City
as User" and "City as Consumer" are separated out for
purposes of discussion, the steps outlined are closely related
and should be incorporated in any comprehensive planning
process.)
1. For both "City as User" and "City as Consumer" the first
action step is to set up a planning group that: has high level
commitment, has clearly defined responsibilities, has the
necessary authority to complete the tasks and can involve all
city departments. For example, the City Manager could
appoint a Steering Committee of key department heads to
direct and coordinate the planning effort and to ensure that
11
I N S T I T U T E F R L 6 C A. L S E L F 0 V E R N M E N T.
participants receive the necessary training. The Committee
could involve two task forces to provide information to the
Committee, to educate staff, and to develop department
plans. One task force, made up of directors responsible for
service delivery, could focus on "user" needs #2 and #3
below), while a technical task force could work on the
actions outlined under "City as Consumer."
2. Identify the short, mid- and long term communication
needs of the municipal corporation and of the community
and the barriers to meeting those needs. It is important to go
beyond the status quo in identifying these needs. Note that
technology solutions can be found only after the communi-
cation needs have been identified.
3. Given the needs and barriers, identify specific organiza-
tional innovations. Some of those identified include:
a. Physical decentralization of production and
delivery of city services.
b. Fees for service with value added services.
c. Public co- production of municipal services.
d. Strategic change in the mission of certain depart-
mcnts
b. Annual goals for each department to implement
those organizational innovations that have the highest
priorities.
c. Annual capital budgets to acquire the network
tools and technologies that satisfy the initial communi-
cations needs of each department (see Consumer, #4).
The tools might include:
i. Voice processing
ii. Electronic mail
iii. Video conferencing.
6. Establish a permanent mechanism for institutionalizing
telecommunications planning and implementation for all
departments. The options include:
a. An inter departmental committee
b. Planning capacity within each department
c. Central city -wide planning capacity.
It is critical that the authority and responsibility for
planning and implementation be clearly delineated, ideally
with one entity.
e. Cooperation among institutions in the same city
f. Formation of consortium or JPAs between
neighboring cities or between cities and county
agencies.
Once these innovations arc identified, strategics for the
city as a whole and for individual departments can be
developed.
4. Based on these strategics, determine the communication
needs for the municipal corporation as a whole and for
individual departments. Determine in particular the commu-
nication requirements to the home and to neighborhood
institutions.
5. Convert the needs into implementation plans. The plans
should incorporate necessary education and training of key
city staff. Implementation plans include:
a. Long range development of the municipal
network that includes such opportunities as the
renewal of the cable franchise, enforcement of other
telecommunications franchises ,municipal capital
developments, special projects and grants, etc..
7. Seek funding for these activities from a variety of
sources:
a. Savings from becoming a more effective telecom-
munications consumer and more efficient organiza-
tion.
b. Resources acquired from land developers,
franchised telecommunications vendors and federal
programs (see policy maker actions).
c. Revenue from telecommunication enterprises
(including value added services, lease back of
portions of the network)
d. Seek partnerships with private vendors
e. Build communication components into city
proposals for outside funding.
12
I N S T I T U T 1 F O R L .0 C A L S E F G O V E R N M E N T
CHAKER lll:
1�1TYAS CONSUMER
DERNITION
'rhe city as a telecommunications consumer: The
;aunicipal corporation routinely "consumes" telecommuni-
auons to conduct the business of the city. For example, the
city owns, rents or purchases telecommunications services,
:and. s, building wiring, microwave systems, etc.. Tlie city
must manage these resources efficiently, must develop
effective purchasing procedures and acquire technologies
:::at serve moth short and lone term needs.
Centrex is a switching service offered by Pacific Bell
and GTE which is subscribed to by many municipal
governments.
Voice, video and data traffic usually nrn over distinct
physical plants. For example, the public telephone network
maybe used for external communications and the municipal
microwave channels used to carry internal voice communi-
cations while video goes out over the cable tv network and
data over local area networks or dedicated terminal to
mainframe telephone wires.
Fleeted officials and city staff are often uncomfortable
making purchase decisions. They tend to either support
proposals because of staff expertise or oppose proposals
because of expense or perceived risk.
Individual departments frequendy plan, develop and
build independent mini telecommunications systems.
CURRENT STATUS
Ever, city "consumes" a wide variety of tclecommu-
:,.cationsproducts and services. The following list provides
few examples of network components and subsystems
t; pically used by municipal governments.
PBX or Centrex
Inside wiring
Telephone instruments
F :Lx machines
Data ncuvorks
Traffic siunal wiring
Government cable channel
Cable production equipment
Public safety dispatch
Voice mail boxes
Paging devices
Cellular telephones
In some cases, a city owns the component outright and
provides for its maintenance and replacement. The public
safety dispatch system is an example. Or it leases equipment
such as telephone instruments.
In other cases, a city simply subscribes to the services
of a vendor who owns and maintains the technology.
z Traffic sis control systems are usually
planned and operated by the transportation depart-
mcnt,
The emergency dispatch system is controlled by
the police department,
The maintenance yard microwave system is the
responsibility of public works,
Data networks are installed by the computer
department and finance department with other
departments frequently building bootleg local area
networks for their desk top computers.
Duplicative and/or incompatible systems frequently
result. Total capital investment and annual operating costs
are very seldom known by anyone in city government. City
Councils approve developments piecemeal as part of
department budgets. And effective management and cost
control of.the city's existing telecommunications invest-
ments are difficult to achieve.
This fragmentation of responsibility defeats the
strategic objective of acquiring services at least cost. It is
difficult to guarantee security or to ensure that there will be
available capacity for future services. However, centralized
planning and interdepartmental coordination can lead to
comprehensive purchasing guidelines that ensure least cost
expansion to meet future needs or that maximize short tetra
flexibility.
In other words, with no single department in charge of
telecommunications a city is unable to effectively plan,
develop or manage telecommunications resources. The
municipal corporation cannot use its consumer role to
influence the market or to fully develop and utilize its
resources.
13
I N. S T I T
TRENDS
E
9 R L 0 C A L S E L FOG 0 V E R N M E N T
Some cities arc developing departments of telecom-
munications and/or initiating intcrdcpartmcntal planning
efforts (example, San Leandro and Oakland). Others are
acquiring municipal facilities as a way of decreasing
telephone costs, adding video capabilities and increasing
flexibility either by building the system or by having it built
as pan of the cable TV franchise. For example, fifteen small
cities northeast of Portland entered into a joint agreement to
have a 500 mile [NET constructed by their common cable
provider and managed by central communications division.
San Francisco and San Diego County have both dedicated
departments and private networks. Los Angeles has initiated
a study of a private network. However, even in these
jurisdictions, the integration of voice, video and data has not
occurred.
Counties arc taking the lead in local government
telecommunications innovation, driven by budget cuts and
die ceogrtphic dis=cos thev must serve. Some manage
INETS constructed by the cable company which serve not
only county agencies but schools and cities (Montgomery
County, Maryland). Dade Cuunty, Florida, created a county
wide ner.vork incorporating its existing microwave and
coaxial cable and operates the communications system as a
profit center. Counties across California are developing
geographic mapping information systems shared by a
number of departments or by county and city agencies.
The largest public sector entity in the State, the State
of California has taken a private network a step further.
CALNET has built a telephone network and is selling
capacity on dtis state wide network to cities and counties
throu(hout die state. This makes the State of Califomia a.
lone distance provider.
As mentioned, cities can also become providers to
product revenue or provide in -kind subsidies to community
orvanizations who serve the public interest, such as commu-
-1y colleges, transportation management organizations and
ial service agencies.
A new industry has emerged to audit the telephone
bills of largcprivate and public sector consumers. Telephone
auditors review the last three years of bills for errors and
overcharges in exchangefor a portion of the savings identi-
fied. S uch assistance is a small but significant step toward
helping improve municipal man agement of telecommunica-
tions costs.
Substantial cost savings, service responsiveness and
revenue are the benefits of these trends. However, to gain
these benefits a city must develop a core of expertise. While
it appears that size may be an important qualifying criteria,
medium or even small cities need not be excluded from these
benefits. It does suggest regional cooperation through
consortia may be required. As the Portland [NET and many
county telecommunications projects demonstrate, such
intercity or city county cooperation can bring needed
expertise and economies of scale to California's smaller
cities.
Amoms CITY AS TELEcommu i:477 S CONSUMER
(Please refer to "City as User" for a description of a
proposed planning process. These are some of the activities
that would be completed by the technical task force.)
1. Local governments currently own, rent, or lease an
extensive telecommunications network: PBX or
Centrex, voice and data lines, inside wiring, terminal
equipment, traffic signal wiring, video security
systems, government cable channel, microwave to city
maintenance yards, radio dispatch, paging devices,
etc.. Set up a technical task force to identify the
elements of the city's existing telecommunications
networks:
a. Identify existing network components, costs
and invested capital on a department by department
basis.
b. Analyze current telecommunications costs,
which might be available on a city -wide basis only.
C. Determine alternatives to contain costs for the
existing level of service. That is, determine
whether city has purchased the least cost solutions
to the existing communication needs and is
managing its resources efficiently.
2. Assign the responsibility for designing, develop-
ing, managing and maintain the city's future telecom-
munications network based on the identified needs
(sec User, #2).
a. Evaluate the departments' applications plans to
determine their facilities needs, ensuring that the
strategic plans of each department are satisfied.
b. Determine whether to integrate or keep separate
the voice, video and data responsibilities.
c. Determine whether to assign the responsibility
to particular dcpartment(s) that have the appropriate
budget and necessary expertise or to create a city-
wide department.
-1 i
14
I N I T I T U T E F O R L 0 C A L S E .:f G O V E R N M E N T
3. Review the procedures used to evaluate vendors'
proposals to determine whether they are suited for
purchasing high technology. Least cost criterion is no
longer the most effective.. Expandability, ease of use,
features, maintenance, reliability, compatibility,
availability and level of vendor training and support
may be more important than initial cost.
4. Develop a capital budget that reflects the telecom-
munications strategy (see User, #3).
a. Purchase equipment that facilitates the adopted
organizational strategies. For example, lap top
computers with modems may not only make field
personnel more efficient, but may.permit more
staff members to work at home.
b. Evaluate the business case for building a
telecommunications facility in the local business
loop.
c. Develop the required physical facilities. For
example, a new city hall may not serve as well in
the future as a number of public offices and
transaction kiosks connected via the city network.
5. Evaluate the formation of a regional consortium
through a joint powers agreement, for example, with
neighboring cities or with the regionally dominant
city or county organization. As precedent, cities and
ci6zcns have bcnefitted greatly from JPAs formed for
insurance purposes. A consortium might be formed to
cut costs, develop resources too costly for one city,
share existing technologies, develop compatible
standards (for police communications, for example)
and to aid one another in becoming more effective
consumers. Small cities, in particular, may find that
inter -city cooperation is the only vehicle to develop
some telecommunications applications.
6. Evaluate local markets and the revenue benefits to
be gained from selling telecommunications services,
either commercially or as a matter of public policy to
particular groups. Telecommunications enterprise
funds (similar to those established for water, sewers,
airports, and so on) may provide the means of
supporting new applications. Dade County, Florida,
for example, has set up its communications depart-
ment as an enterprise fund using department charge
backs, lease of services to other government agencies
and selling of value added information services.
15
I N S T I T .0 T E
R L O C A L S E L F GOVERN M E N T
CSR IV:
Cirl As Poucy MAKER
DERN177ON
The city as a Telecommunications policy maker:
The city needs to operate at two levels as a policy maker.
The city can establish local telecommunications policies (for
example, the cable TV franchise). It can also use its other
police powers to influence the development of telecommuni-
cations locally (for example, using its right to regulate land
use). Secondly, the city must represent local interests as
state and federal agencies redefine the telecommunications
marketplace. For example, the current debate on the entry of
the telephone companies into cable and other information
services has had minimal city input.
CURRENT STATUS
Cities have regulatory authority over only one
telecommunications industry cable television. State and
Federal government have authority over all others at the
present Lime:
1. Because of the necessity of a national plan for
spectrum allocation, the Federal Communications
Commission (FCC)has sole substantive regulatory
control over spectrum based communications indus-
tries including broadcast radio and television,
mulupoint microwave television, and satellites
including direct broadcast satellites.
2. Interstate long distance telephone voice and data
communications carried by wire, fiber, microwave or
satellite communications are regulated by the FCC
under the authority of the Interstate Commerce Clause
of the U.S. Constitution.
3. Intrastate long distance and local telephone voice
and data transmission is regulated by the California
Public Utilities Commission.
The parameters of local authority over cable television
are set out in the Cable Communications Act of 1984. This
Act basically reduced the scope of city regulatory powers
over cable television.
The franchise agreement is the local cable policy
instrument, but it is seldom based on local communications
policy or on long term community needs to provide for the
future communications needs of the city and the community.
Often, community needs are defined simply in terms of
access channels, and the franchise agreement is borrowed
substantially from a neighboring city.
Cities, of course, have domain over the physical
development of the city including related social and eco-
nomic concerns. There are also corporate and police powers
necessary to promote the health, safety and general welfare
of the public. Telecommunications developments are
closely related to these concerns, but the connections
between them are rarely made in policy and practice.
TRENDS
As with the user and consumer roles, the absence of
centralized telecommunications responsibility within the
municipal corporation insult in telecommunications policy
being a low priority. There is one exception cable
television, and it has been neither innovative nor strategic.
Due to the deregulatory effects of the 1984 Cable Act,
many cable consumers nationwide have complained to their
local franchising authorities about escalating rates and
declining service quality. In California this increase in rates
was felt even earlier, because rate regulation was removed
from California cities by the State legislature in 1979.
As a result, many city representatives have asked the
federal government to provide consumer relief by either a)
encouraging competition to cable operators, or b) returning
rate regulatory authority to cities. This push constitutes the
trend in city telecommunications policy. The response has
been draft federal legislation aimed at partial re- regulation of
the cable industry.
The future of federal re- regulation legislation will be
affected by the Federal Communications Commission's
announcement of somewhat stiffer new standards for
"effective competition." Under this policy, limited rate
regulation would be returned to cities where there is no
effective competition from other multichannel video
providers (a second cable company, direct broadcast satellite
or wireless cable) or there are less than six over the air
signals. Approximately 60% of all cable systems and 30%
of the country's subscribers may be affected.
Also in this congressional session, the "Communica-
tions Competitiveness and Infrastructure Modernization
Act" has been introduced to encourage telephone companies
to invest the estimated $500 billion necessary to provide
fiber optic transmission to every home in America by 2015.
The incentive for this investment is the telco's right to
deliver video entertainment in its own market area
initially as a common carrier. This is known as the video dial
tone proposal.
Conversely, this proposal also invites cable companies
to provide basic telephone service and personal communica-
16
I N S T I T U T! F O R L 0 C A L S E F G O V E R N M E N T
tions services (PCS) in competition with the telephone that will be very difficult to replace. These subsidies may
industry. Cox Cable San Diego, for instance, has already come under attack if competitors succeed in gaining market
applied for a license to provide PCS. I share at cable's expense.
Giving an additional push to the telephone companies
was Judge Green's July 1991 ruling that lifts the prohibition
on the Bell operating companies provision of information
services. If the ruling is upheld by an appellate court, Bell
companies will be able to provide electronic banking,
shopping, yellow pages, classified ads, messaging and so on
as well as build cable systems outside their local service
areas.
It is competition, of course, that is the trend in all
telecommunications markets. Cities should be aware that
revisiting partial cable rate regulation is a temporary political
expedient awaiting an avalanche of competition.
Technological innovation has led to the situation
where the computer (data), telephone (voice), and cable
(video') industries are all developing the same high capacity,
high speed, switched communications capabilities. As a
result, industry boundaries arc dropping, and free for all
compeuuon is occurring.
The communications policies of both the United States
and die State of California are encouraging free market entry
and open competition in order to. increase consumer choices
and to improve the competitive position of the United States
in the international arena.
One result of compctiuon is that the prices for a
service are being adjusted to approach the actual cost of
producing it. This is a radical departure from the history of
tclephone service in the United States. For the last fifty
ycars complex internal subsidies manipulated prices in order
to achieve the goal of universal service:
Long distance rates were increased over cost to
subsidize local service rates that were kept artificially
low.
rates
Business service rates subsidized residential
Urban user rates subsidized rural (or low
density) rates
As these subsidies are removed, questions remain
about the future of universal telephone service and about
equal access to advanced services.
Cable television has also provided service subsidies in
the form of resources and channel capacity for public,
education and government access. Additionally, cable
vendors pay a franchise fee that "competitors" do not pay.
While these subsidies and fees are small in the context of the
investment in cable plant, they have provided cities and
communities with a community network (access channels),
interconnects to schools, institutional networks and funding
In summary, the current trends are toward increasingly
i competitive markets, a breakdown of industry boundaries,
federal/state elimination of the municipal role in telecommu-
nications regulation, and lack of direction for the develop
ment of local telecommunications policies.
ACnoa CRY AS POLICY MAKER
In light of current law and policy trends cities should
formulate their policy positions following some general
guidelines:
Local policy should not restrict entry into the
market. For example, a cable TV franchise must be
non exclusive both in the language of the ordinance
and in the process used to award franchises.
Regulation should be applied uniformly. A
new entrant into the market place must have the
requirements as an incumbent.
Policy should encourage and not restrict new
technologies.
The basis for the city's role in telecommunications
policy is that:
All markets operate imperfectly. As with
housing or transportation markets, telec-
ommunications markets create "haves" and "have
nots."
There are frequently market abuses, which tend
to affect the lower income or less educated consumer
disproportionately.
When the marketplace fails, the insults are felt
locally. When the housing market fails, it is the city
that must deal with homelessness, for example.
MUNICIPAL POLICY.
L Document and analyze the communication needs
of the significant sectors of the community. These
include:
a. The municipal corporation (see User, #2)
b. Key local institutions such as public secondary
schools, vocational schools, community colleges,
libraries and hospitals.
C. The public, particularly low income or informa-
tion deprived households and the organizations
that serve them.
17
I N S T I T U T E F R L^ C A L S E L F 0 V E R M M E M T
d. Special interests that reflect community goals
such as small business as an economic. develop-
ment strategy.
2. Re- evaluate the policies that underlie the land use
and circulation elements found in the General Plan.
Most cities have unconsciously adopted a land form
that requires extensive use of private transportation in
order to function. A communications strategy would
build special telecommunications facilities into each
new regionally significant development and would
structure land use so that local mobility needs can be
satisfied by walking, bicycling, shorter per car trips,
and a variety of public transit alternatives.
3. Develop a telecommunications component for
each element of the General Plan., This harmonizes
the General Plan policies with telecommunications
concepts and maintains the State requirement that
each element reinforce every other element. The
following are options for formal policy adoption:
a. Amend the municipal codes to include telecom
munications infrastructure enhancements for
appropriate new developments. There is a tradeoff
between telecommunications and the load on
existing infrastructure and city services.
b. Include telecommunications strategies as traffic
mitigation options in new development agreements.
c. Add telecommunications objectives and/or
programs to existing elements of the General Plan
such as land use, circulation, economic develop-
ment and air quality.
d. Add a telecommunication element to the
General Plan.
e. Add telecommuting to any air quality and/or
congestion management plan mandated by the
State or required by city ordinance.
4. Ensure that all telecommunications franchises the
city becomes authorized to issue, as well as the cable
television franchise, satisfy local needs and reinforce
the urban strategy (as stated in the General Plan and
reflected in air quality and other programs of the city).
STATE PoUCY.
City interests would be served by the following
amendment to State law:
Ensure legislative authorization to franchise
telecommunications vendors using the public rights
of way.
FEDERAL POUCY.'
City interests would be served by the following
positions on Federal policy:
I. Maintain cable television franchising authority
with the powers now in the Cable Act as a minimum.
2. Seek federal funding to support telecommunica-
tions planning similar to support for transportation
planning. The basis for this funding is the improved
municipal functio economic stimulation to domestic
telecommunications industry. Promote a I% fee to be
charged all commercial users of the spectrum for use
by cities in planning, developing, managing and using
telecommunications.
3. Join national associations advocating municipal
interests in telecommunication policy as a vehicle for
influencing federal policy and legislation.
LEAGUE of CAuFoRAIIA CmEs.
1. Develop and expand the scope of the Telecommu-
nications Task Force as the vehicle for providing the
League of California Cities with leadership in the
telecommunications arena.
2. Assert leadership in research and development in
municipal telecommunications applications, by
developing, for example, a funding base from founda-
tion grants.
3. Educate its members about and develop positions
on telecommunications issues as they emerge in the
legislative and regulatory arenas.
4. Implement telecommunications practices where
feasible.
S. Identify opportunities and barriers for effective
municipal use of emerging telecommunications
applications.
18