State Association Hosts First-Ever Broadband Technology Day

HARRISBURG – To educate lawmakers, state officials and the public about the complexities of connecting, building and operating broadband networks, the Broadband Communications Association of Pennsylvania (BCAP) hosted its first-ever Broadband Technology Day at the state Capitol.

The exhibit, consisting of seven BCAP members, was designed to tell the story of broadband by showcasing the complex technologies used to build and operate broadband networks. With fiber as the one of the leading technologies in the delivery of broadband, two exhibits included demonstrations of fiber splicing. Other portions of the exhibit detailed the process to connect broadband in communities across Pennsylvania, the latest equipment to operate smart home devices and wifi, and certification and education programs to train the newest generation of broadband workers.

Exhibits were set up by the following BCAP members: Service Electric Cablevision, Blue Ridge Communications, Comcast, PCN, Society for Telecommunications Engineers, USIC and Breezeline.

“Part of developing good public policy is understanding the industry, knowing why certain things are needed and seeing how things work. That’s why we are here today,” said BCAP Chairman Fran Bradley of Breezeline. “Our goal today is to explain what goes into a network, how fiber is spliced, how we design systems, and how we create backups for the backups in case of power failures or natural disasters. Our companies have been working continuously to build out broadband networks in communities that have not been previously served, and we remain dedicated to that goal.”

BCAP President Todd Eachus explained that during the COVID pandemic, the need for reliable connectivity turned a bright light upon the fact that a quarter million Pennsylvania homes and businesses lack access to broadband connectivity.

Congress recognized the challenges of getting broadband networks to these often rural, and by definition, uneconomic areas and provided the necessary funds to help get the job done. Through the US Treasury Capital Projects Fund and the IIJA Broadband Equity, Access and Deployment (BEAD) program, Pennsylvania is slated to be the recipient approximately $1.3 billion. Monday marked 1,050 days since the passage by Congress of the BEAD program, and yet, not one customer has been served.

“BCAP has stated clearly that success depends upon those at both the federal and state governments to maintain a laser focus on the singular goal of ensuring broadband access to every corner of our Commonwealth and to every home and business in between,” Eachus said. “The imposition of unnecessary and burdensome requirements, such as climate change mandates, price controls, and labor provisions all serve to distract from our common goal. Even in Pennsylvania, the state’s refusal to even consider the creation of proper job classifications and wage rates, and pseudo rate regulation chill the incentive to invest and place the goal at risk.”

BCAP leaders noted that all of its system members have invested millions of dollars of private capital to expand their networks over the past several years and are committed to future investments.

Chuck Duncan, vice president of Government and Regulatory Affairs for Comcast, noted that during the last three years, Comcast has invested $2.7 billion in technology and infrastructure in Pennsylvania. As part of that, Comcast’s Xfinity network has expanded across the Commonwealth through its own private capital investment and through partnerships with local governments to connect unserved communities.

“We believe in the power of connection and our goal at Comcast is simple: keep our customers connected – always – and deliver reliable, gig-speed Internet to as many Americans as possible,” said Duncan. “We have all witnessed the transformative power partnerships can have on our community – and today we’re here to demonstrate how those partnerships have impacted broadband accessibility in communities across Pennsylvania.”

A key part of the exhibit involved training the next generation of workers.

“As we continue to innovate and expand our broadband and telecommunications networks, it is essential to have a highly educated and skilled workforce,” said Steve Harris, Global Commercial Relationships, SCTE. “At SCTE, we are committed to working closely with Pennsylvania’s network operators to ensure that their teams are not only properly certified but also equipped with the critical hands-on skills needed to support the industry’s growth and meet the evolving demands of modern connectivity.

“In spite of the hurdles before us, BCAP members continue to seek opportunity in the communities they have served for generations. Our members know better than any government official, better than any regulator and bureaucrat, what is takes to build, operate and maintain networks that are safe, resilient and sustainable,” Eachus concluded. “They know better than anyone what it takes to get to the most rural and sparse corners of our commonwealth. BCAP members are ready to be part of the solution. There is no time like today to dispense with the sound bites and get on with the business of delivering the gigabytes.”

PLEASE CONSIDER USING THE FOLLOWING CAPTION WITH THE ACCOMPANYING PHOTO.

The Broadband Communications Association of Pennsylvania hosted its first-ever Broadband Technology Day at the Capitol to showcase the various technologies to building and sustain networks. Pictured are (at podium) BCAP President Todd Eachus and BCAP Chairman Fran Bradley of Breezeline; (standing from left) BCAP Board Members Sam Haulman, Service Electric Cablevision; Mike Starner, Service Electric Cable TV and Communications; Associate Member Steve Harris, SCTE; and Board Members Chuck Duncan, Comcast; and Joe Lorah, Blue Ridge Communications.

The Broadband Communications Association of Pennsylvania, a member-driven organization based in Harrisburg, actively promotes broadband cable and telecommunications industry issues in Pennsylvania. BCAP – the nation’s first state cable association – represents cable operators, programmers and equipment suppliers that collectively provide service to nearly 3 million Pennsylvania households and businesses.

# # #

Broadband Communications Association of Pennsylvania
127 State St., Harrisburg PA 17101
717.214.2000 * www.BCAPA.com  * @BCAPisBroadband
First in Broadband. The Future of Broadband. ®

NEWS RELEASE
AUGUST 7, 2024
Media Contact: Jennifer Algoe Keaton
717.214.2000 or 717.979.3986
jkeaton@bcapa.com

ALTOONA – The Broadband Communications Association of Pennsylvania (BCAP) expressed its concern and frustration with the federal Broadband Equity, Access and Deployment program directly to FCC Commissioner Brendan Carr during a roundtable discussion hosted by Congressman John Joyce (R-Blair) in Altoona on Tuesday.

“The No. 1 issue in Pennsylvania is the prevailing wage statute,” said BCAP President Todd Eachus. “The state is applying the wrong classification to these projects which ultimately drives up project costs. We have simply asked for an appropriate classification of teledata lineman or cable splicer instead of the vastly more expensive electric lineman.”

Eachus explained that broadband workers are not trained in the high-voltage space on poles and have different responsibilities during builds that should not be compared to electric linemen. The increased hourly rate stresses the finite amount of funding, resulting in fewer locations being served.

Eachus, along with other broadband representatives, also touched upon the federal government’s definition of affordability and how those artificially low rates would prevent providers from applying for BEAD funding. The rate should be market driven and not set by government.

In addition to labor concerns, the group, consisting of business, education, agriculture and health care leaders, spoke about permitting processes at the local level. Couple that with pole attachment delays, providers do not see deployment reaching unserved locations any time soon.

“It has been 995 days since the bill was passed but not a single home or business has been connected or a single turn of the shovel with this money,” Carr said. “It’s definitely not too late to course correct.”

Carr said that federal permitting must be addressed: “They’re stepping on the gas while applying the brakes at the same time.”

“We need all potential providers to step up,” Joyce said. “We can all agree that almost 1,000 days is unacceptable. We are committed to working together to make this happen.”

The Broadband Communications Association of Pennsylvania, a member-driven organization based in Harrisburg, actively promotes broadband cable and telecommunications industry issues in Pennsylvania. BCAP – the nation’s first state cable association – represents cable operators, programmers and equipment suppliers that collectively provide service to nearly 3 million Pennsylvania households and businesses.

# # #

Broadband Communications Association of Pennsylvania
127 State St., Harrisburg PA 17101
717.214.2000 * www.BCAPA.com  * @BCAPisBroadband
First in Broadband. The Future of Broadband. ®

NEWS RELEASE
MAY 15, 2024
Media Contact: Jennifer Algoe Keaton
717.214.2000 or 717.979.3986
jkeaton@bcapa.com

HARRISBURG – The Broadband Communications Association of Pennsylvania (BCAP) issued the following statement after the National Telecommunications and Information Administration (NTIA) approved Volume II of the Broadband Equity, Access and Deployment (BEAD) Initial Proposal for Pennsylvania.

The statement can be attributed to BCAP President Todd Eachus:

“BCAP wishes to extend its congratulations to the Pennsylvania Broadband Development Authority (PBDA) for its tireless work in developing the Initial Proposal for BEAD Volume II. With the NTIA approving it this week, the clock now starts to distribute $1.16 billion in federal funds and connect the 276,000 unserved and underserved locations across Pennsylvania. This is welcome news to the communities that will benefit from this historic public-private investment.

“This approval, coupled with the $204 million in Capital Projects Fund awards last month, are two significant milestones in bringing broadband access to every corner of our Commonwealth. In the coming months, we will be intently focused on our efforts to ensure every dollar is used to its maximum benefit and to lift any unnecessary regulatory burdens or obstacles from standing in the way of ‘Internet For All.’ We are confident that by working together with PDBA and our partners, we will be successful.”

# # #

The Broadband Communications Association of Pennsylvania, a member-driven organization based in Harrisburg, actively promotes broadband cable and telecommunications industry issues in Pennsylvania. BCAP – the nation’s first state cable association – represents cable operators, programmers and equipment suppliers that collectively provide service to nearly 3 million Pennsylvania households and businesses.

Broadband Communications Association of Pennsylvania
127 State St., Harrisburg PA 17101
717.214.2000 * www.BCAPA.com  * @BCAPisBroadband
First in Broadband. The Future of Broadband. ®

HARRISBURG – The Broadband Communications Association of Pennsylvania (BCAP) issued the following statement after the Federal Communications Commission (FCC) voted to reclassify broadband as a Title II service.

The statement can be attributed to BCAP President Todd Eachus:

“The game of regulatory ping pong continues, as the FCC has once again instituted a regulation that is a solution in search of a problem. When net neutrality was first considered, proponents argued that if broadband wasn’t reclassified, the internet would come to a stop. Providers would block, throttle and discriminate traffic, and users would have to pay to visit each and every website. That never happened.

“In fact, FCC Commissioner Brendan Carr this morning called it ‘one of the greatest hoaxes in regulatory history.’ We couldn’t agree more. This ill-advised move places ISP investment in broadband networks at risk and could not come at a worse time. ISPs are working hard to reinvest in their networks to ensure sustainability while looking to close the digital divide. With this overreach of government intrusion, the goal of internet for all is in serious jeopardy.”

# # #

The Broadband Communications Association of Pennsylvania, a member-driven organization based in Harrisburg, actively promotes broadband cable and telecommunications industry issues in Pennsylvania. BCAP – the nation’s first state cable association – represents cable operators, programmers and equipment suppliers that collectively provide service to nearly 3 million Pennsylvania households and businesses.

# # #

Broadband Communications Association of Pennsylvania
127 State St., Harrisburg PA 17101
717.214.2000 * www.BCAPA.com  * @BCAPisBroadband
First in Broadband. The Future of Broadband. ®

Of the $204 million in grants awarded to 12 unique applicants, four are BCAP members: Adams Cable in Carbondale; Armstrong Telecommunications of Butler; Blue Ridge Communications in Palmerton; and Comcast of Philadelphia. Collectively, they received 16 of the winning projects serving the following counties: Adams, Beaver, Berks, Blair, Butler, Cambria, Chester, Cumberland, Indiana, Luzerne, Monroe, Washington, Wayne, Wyoming and York.

“Today’s approval of these grant funds is terrific news for the communities across Pennsylvania that have cried out for broadband service and have felt left behind for far too long,” said BCAP President Todd Eachus. “Now that a significant amount of grant funding will directly support broadband infrastructure, the communities benefiting from the grants announced today can begin to look to the future and prepare for any number of exciting economic, telehealth, educational and technological opportunities that await them.”

The awards were voted on today (Thursday) by the PDBA Board of Directors at its quarterly spring meeting in Harrisburg.  The CPF program is a $205 million broadband infrastructure program established to facilitate the deployment of high-speed broadband service infrastructure in unserved and underserved areas of the Commonwealth. Projects must be executed between July 2024 and December 2026.

“We want to thank our members and their partners for submitting applications and for working diligently through the CPF process,” Eachus continued. “Now that the grants have been announced and money will start to flow for projects, we will work closely with PBDA and our members to help ensure project completion and address any issues that may arise. At this point in time, we also call on project partners – pole owners, railroad companies, and local governments – to work with all grantees and ensure the projects move as expeditiously as possible.

“We are also hopeful that as we all move forward, that the lessons learned in the CPF process will be applied for the $1.16 billion in additional federal funding available to Pennsylvania in 2025,” Eachus concluded.

In addition to the CPF grants, Pennsylvania is expected to receive $1.16 billion in federal Broadband Equity, Access and Deployment (BEAD) funds in the next two years. The federal government is currently reviewing Pennsylvania’s guidelines for that program.

The Broadband Communications Association of Pennsylvania, a member-driven organization based in Harrisburg, actively promotes broadband cable and telecommunications industry issues in Pennsylvania. BCAP – the nation’s first state cable association – represents cable operators, programmers and equipment suppliers that collectively provide service to nearly 3 million Pennsylvania households and businesses.

# # #

Broadband Communications Association of Pennsylvania

127 State St., Harrisburg PA 17101

717.214.2000 * www.BCAPA.com  * @BCAPisBroadband

First in Broadband. The Future of Broadband. ®

Visit the website TODAY!

JANUARY 4, 2024
Media Contact: Jennifer Algoe Keaton
717.214.2000 or 717.979.3986
jkeaton@bcapa.com

HARRISBURG – The Broadband Communications Association of Pennsylvania (BCAP) is saddened to learn about the loss of cable pioneer and Armstrong chairman, Jay L. Sedwick of Butler, who passed away Jan. 1, 2024.

BCAP President Todd Eachus shared the following thoughts:

“Jay Sedwick was a man before his time, known for his keen engineering abilities and formidable passion for technology. In the early 1960s, he helped to diversify the family business by adding cable operations to their already growing profile. As a pioneer in the cable industry, Jay helped to lead Armstrong into becoming one of the largest, family-owned cable systems in the United States, and assisted in the creation of our organization, then the Pennsylvania Cable and Television Association (PCTA).

“Throughout his many roles within the Armstrong company, including President, CEO, and most recently as Chairman of the Board, Jay has held firm to the values of strong relationships with its employees and close ties to the communities it serves, along with the company’s excellence for engineering. The cable and broadband industry will forever be grateful to Jay for his extraordinary talents and abilities and leadership.  He will be missed. On behalf of the BCAP Board of Directors, staff and members, our hearts, prayers and thoughts are with Jay’s family at this time.” 

The Broadband Communications Association of Pennsylvania, a member-driven organization based in Harrisburg, actively promotes broadband cable and telecommunications industry issues in Pennsylvania. BCAP – the nation’s first state cable association – represents cable operators, programmers and equipment suppliers that collectively provide service to nearly 3 million Pennsylvania households and businesses.

# # #

Broadband Communications Association of Pennsylvania
127 State St., Harrisburg PA 17101
717.214.2000 * www.BCAPA.com  * @BCAPisBroadband
First in Broadband. The Future of Broadband. ®

Submitted to the Pennsylvania Boradband Development Authority

November 14, 2023

Comments on Requirement 1: Objectives 

BCAP appreciates the ability to offer comments to Pennsylvania’s BEAD Initial Proposal Volume 2 (“Draft Proposal”), and the continued opportunity to provide feedback on this critical initiative to connect all Pennsylvanians across the Commonwealth to ubiquitous high-speed broadband.  On behalf of BCAP members, we want to highlight PBDA’s goal of “[f]ocusing deployments on networks managed by entities that will have the technical and financial capacity to maintain assets and ensure security” as a strategy that should remain a lynchpin for Pennsylvania’s BEAD implementation.

BCAP applauds the safeguards contained throughout the Draft Proposal against waste and overbuilding.  Specifically, BCAP appreciates PBDA’s proposals regarding project areas and the final application process, where PBDA explicitly acknowledges the risk of overbuilding and allows potential subgrantees to raise it as an objection to the requirement that all unserved and underserved BSLs in a Census Block Group be served under the same project.  While BCAP recognizes that this approach does allow some flexibility for ISPs, BCAP requests that applicants be allowed to define their own proposed project areas, including on a per-location basis as permitted by the NOFO, because unserved and underserved areas – and existing infrastructure to help connect those areas – may not map neatly onto existing geographic units like pre-defined Census Block Groups.  Additionally, applicants’ determination of the appropriate geographic level for their proposals may be influenced by a variety of location-, project-, and provider-specific factors, such as difficult terrain, man-made obstacles like multilane highways and railroad crossings, or right-of-access issues.  Although PBDA recognizes this to some extent, the Authority may be underestimating the difficulties for an administrative body – rather than a provider itself – to propose efficient alternatives.  Allowing applicants to define their own project areas will permit applicants to develop more economical proposals that leverage their existing networks and facilities, maximize network efficiency, and reflect the geographic level at which providers can successfully deploy and sustainably operate their proposed networks.  In turn, these proposals will allow Pennsylvania to minimize BEAD Program outlay and fulfill the NOFO’s directive to connect all unserved locations and, if possible, all underserved locations.

To further ensure that the PBDA can efficiently and effectively utilize Pennsylvania’s BEAD funding to bring high-speed broadband to the Commonwealth’s remaining unserved and underserved areas, BCAP offers these comments to PBDA for consideration and in the spirit of continued collaboration and partnership.  BCAP believes that these critical and targeted improvements to the draft proposal will support PBDA’s goal of ubiquitous connectivity across the Commonwealth.

Comments on Requirement 2: Local, Tribal, and Regional Broadband Planning Processes

CURRENTLY N/A

Comments on Requirement 4: Local Coordination

CURRENTLY N/A

Comments on Requirement 8: Deployment Sub-Grantee Selection

Minimal BEAD Outlay.  PBDA proposes to award 40% of available points to three sub-criteria: “Per BSL cost scoring” (20%); “Network Resiliency” (10%); & “Scalability of Technology” (10%).  The proposed scoring violates the NOFO.  Minimal BEAD Outlay is effectively afforded only 20% of total available points through the “Per BSL cost scoring” which means that the points allocated to primary criteria do not reach the requisite 75% threshold.  Nor does the fact that PBDA has allocated 80% rather than 75% to the overall primary criteria cure this; PBDA would still need to allocate at least another 15% to “Per BSL cost scoring” for “Minimal BEAD Outlay” (raising the criterion to 35% of total available points) to meet the minimum 75% threshold).  With respect to scalability of technology, PBDA proposes to award points for projects demonstrating scalability beyond one gigabit symmetrical service, providing the “maximum award” for services that reach “10G” speeds, despite there being no basis in the NOFO to do so. “Network Resiliency” & “Scalability of Technology” are no more relevant to the efficient use of BEAD funds than any other criterion included in the rubric. BCAP opposes the dilution of points awarded to Minimal BEAD Outlay & urges PBDA to ensure that its scoring rubric conforms with the mandates of the NOFO. 

With respect to non-fiber projects, PBDA reduces the points awarded for Minimal BEAD Outlay to 35% of available points, with “Per BSL cost scoring” & “Scalability of Technology” as sub-criteria.  The consideration of “Scalability of Technology” under the Minimal BEAD Outlay criterion not only dilutes it but is also duplicative of the separate requirement to consider the “Speed of Network & Other Technical Capabilities” criterion for non-fiber projects.

Affordability.  PBDA’s proposal to only provide points to applicants that commit to specific, arbitrary prices for symmetrical gigabit service is rate regulation, prohibited in the BEAD provisions of the IIJA. PBDA’s methodology for calculating an “affordable” price for middle-class households is specious & raises significant concerns about whether this proposal is lawful.

Fair Labor Practices.  PBDA proposes to award 15% of total available points for this criterion, based on the applicant’s record of compliance with federal labor & employment laws & forward-looking labor commitments.  PBDA wants to require applicants to “describe a series of projects that demonstrate compliance with” labor laws, which goes beyond the requirements of the NOFO. PDBA also requires the applicant’s provision of a “preliminary detailed cost estimate certifying the inclusion of prevailing wages,” in furtherance of PA law.  Points will also be separately awarded for the “Equitable Workforce Development & Job Quality” criterion. 

Secondary Selection Criteria: Speed to Deployment.  PBDA proposes to award 5% of total available points for this criterion, & full points will be awarded for projects proposing completion within a year of the contract being signed.  BCAP encourages PBDA to weigh this criterion more heavily, given that it is an IIJA-mandated selection criterion. 

Equitable Workforce Development & Job Quality.  PBDA proposes to award 10% of available points for this & incorporates several gating requirements, including at least two letters of support from a Workforce Development Board, local union, local CAIs, or other workforce development organizations.  Such mandates increase costs & risk excluding some of the most qualified providers from competing for BEAD projects.  The Proposal also provides that applicants be awarded bonus points for demonstrating the use of the S.M.A.R.T.I.E. framework but does not provide details on how bonus points will be awarded.  BCAP opposes the inclusion of this optional criterion, which effectively raises the points awarded to labor-related factors to 25% of the total available points. 

Open Access.  BCAP urges PBDA to delete this criterion entirely.  Prioritization of open access will deter participation by qualified providers, jeopardize the quality & sustainability of funded networks, & result in higher BEAD outlays per project.  If open access is included as a selection criterion, PBDA needs to award a nominal fraction of the total pointsavailable.

ISPs committing to open access must have demonstrable plans for doing so by requiring ISPs to demonstrate that it has letters of commitment or contracts involving at least two unaffiliated retail ISPs to use the wholesale access for delivering home broadband service once the network is constructed. 

Priority to Higher Poverty Areas.  PBDA should state how it will prioritize such locations in the subgrantee selection process. 

Comments on Requirement 9: Non-Deployment Sub-Grantee Selection

CURRENTLY N/A

Comments on Requirement 10: Eligible Entity Implementation Activities

Letter of Credit.  Under the Draft Proposal PBDA will require applicants to submit a letter of credit and does not contemplate waiving this requirement or providing alternative methods of establishing creditworthiness.  At a minimum, PBDA should adhere to NTIA’s recently released guidance interpreting the letter of credit requirement and setting forth alternatives as part of a conditional waiver.  See NTIA, Notice of Programmatic Waiver (Nov. 1, 2023), https://broadbandusa.ntia.doc.gov/funding-programs/policies-waivers/BEAD-Letter-of-Credit-Waiver.

BCAP notes that the LOC requirement may have an adverse effect on smaller providers and could prevent them from participating in the BEAD program. To address these concerns, BCAP proposes the following modifications to the LOC requirement for subgrantees of all Eligible Entities in the following ways:

• Allow Credit Unions to Issue LOCs. The NOFO requires subgrantees to obtain a LOC from a U.S. bank with a safety rating issued by Weiss of B− or better. The waiver permits subgrantees to fulfill the LOC Requirement (or any alternative permitted under the waiver) utilizing any United States credit union that is insured by the National Credit Union Administration and that has a credit union safety rating issued by Weiss of B− or better.   
• Allow Use of Performance Bonds. The waiver permits a subgrantee to provide a performance bond equal to 100% of the BEAD sub-award amount in lieu of a letter of credit, provided that the bond is issued by a company holding a certificate of authority as an acceptable surety on federal bonds as identified in the Department of Treasury Circular 570.  
• Allow Eligible Entities to Reduce the Obligation Upon Completion of Milestones.  The waiver allows an Eligible Entity to reduce the amount of the letter of credit obligation below 25% over time or reduce the amount of the performance bond below 100% over time, upon a subgrantee meeting deployment milestones specified by the Eligible Entity. 
• Allow for an Alternative Initial LOC or Performance Bond Percentage. The NOFO requires that the initial amount of the letter of credit be 25% of the sub-award (or the initial amount of the performance bond be 100% of the sub-award under the option described above). The waiver allows the initial amount of the letter of credit or performance bond to be 10% of the sub-award amount during the entire period of performance when an Eligible Entity issues funding on a reimbursable basis consistent with Section IV.C.1.b of the NOFO and reimbursement is for periods of no more than six months each.

In addition, BCAP encourages PBDA to consider alternative means for applicants to demonstrate creditworthiness without having to obtain a letter of credit for each project because such letters can be expensive and burdensome to obtain.  For example, like other grant programs, applicants could submit a parent company guarantee assuring that the construction will be completed as approved in the application.  To the extent letters of credits are utilized, the PBDA should specify that a single letter of credit will suffice for all applications submitted by an applicant and that a single letter of credit for a parent company will suffice if different subsidiaries are applicants.

Professional Engineer Certification.  PBDA expects applicants to engage the services of a professional engineer to certify various attachments in their Final Applications.  PBDA concurs that grants should only be provided where the recipient’s proposal is sound, and the operator is capable.  However, as written, this is an unnecessarily burdensome requirement.  Where an applicant already has an established history of deploying broadband networks and providing broadband service on a larger scale – i.e. has (i) operated as a broadband provider in Pennsylvania for more than ten (10) years; or (ii) currently serves more than 20,000 Pennsylvania broadband customers – the applicant should be allowed to certify its network designs and diagrams using a Society of Cable Telecommunications Engineers (“SCTE”)-certified in-house engineer who designs and oversees the implementation of those designs in the regular course of business.  If, however, an applicant does not have an established prior track record of similar deployment projects, that applicant should be required to provide a certification from a licensed professional engineer that the applicant’s network design and diagram reflects a network capable of meeting program requirements.  At a minimum, PBDA should specify what it considers to be a “professional engineer” for purposes of this requirement. 

Comments on Requirement 11: Labor Standards and Protection

The PBDA proposal imposes troubling labor-related obligations on subgrantees.  BCAP urges adherence to the NOFO’s labor standards, giving subgrantees flexibility to promote workforce development & fair labor practices.

Record of Compliance. PBDA incorporates the NOFO’s requirements of the applicant’s record & plans for future compliance. PBDA will require more detailed information regarding applicants’ plans to implement workforce safety committees & “mitigation/resolution practices in the event of a labor violation during the project.

Workforce Development.BCAP opposes several proposed gating requirements for applicants. Specifically, applicants must provide a letter of support from two or more of the following entities: a local workforce development board; local union/worker organizations; local CAIs; & other workforce development organizations. This is not mandated by the IIJA or NOFO & will add complexity, burdens, & cost. If this requirement remains, the letters may come from any combination of entity, including separate CAIs. Additionally, “40% of the subgrantee’s workforce [must be] comprised of one or more of the following: [d]irectly [e]mployed by sub-grantee; [r]egistered [a]pprenticeships & [p]re-[a]pprenticeships; [j]oint [l]abor [m]anagement [p]artnerships with a local union; [o]n-the-job training opportunities for new employees; [o]ffers high-quality industry-recognized credentialing & training for new employees.” These are on top of the requirement that applicants provide a detailed workforce development plan. PBDA should re-emphasize that any one of these practices is sufficient. The Commonwealth should take a broad view & provide applicants flexibility when defining “workforce,” understanding that broadband workforces go beyond field construction & design to those necessary to sustain a high-quality broadband network.

Regarding apprenticeships & training, the Draft Proposal states that if a subgrantee “has yet to establish partnerships [with registered or pre-apprenticeship & other industry-recognized labor training programs], a description of how partnership & industry-recognized credentials will be considered & a timeline for implementation prior to start of the BEAD project is required.” BCAP seeks clarification that applicants will not be required to establish partnerships with apprenticeship or labor training programs if an applicant can demonstrate that it has robust on-the-job training & participates in industry-recognized programs such as those with SCTE.

Elsewhere in the Draft Proposal, PBDA states that it will “prioritize subgrantees that directly employ local & regional workforces as opposed to the sub-contracted,” & that subgrantees are “encouraged to use at least 40% of a directly employed workforce.” Subgrantees will be required to provide a justification if 40% or more of the workforce is subcontracted. PBDA should recognize that many existing ISPs in Pennsylvania have successfully worked with specialized construction & make-ready contractors to complete broadband deployments efficiently & promptly. PA’s BEAD Program will benefit from more competitive proposals if applicants have maximum flexibility to use directly employed workers, contractor & subcontractor workers, or both in any combination the applicant finds most efficient. To the extent that an applicant demonstrates a good track record, this should be considered favorably. In addition, it should provide equal priority to an applicant’s commitment to use a directly employed workforce for operating, maintaining & providing services to consumers after the network is deployed.

Worker Protections. PBDA will require subgrantees to demonstrate they have a “direct investment in worker protections.” This may be shown by establishing two or more of the following: completion of a Worker Protection & Investment Certification Form; project labor agreements; & demonstration of local hiring provisions. This appears to effectively mandate that applicants either use union labor, which would be unlawful, or demonstrate local hiring provisions since all applicants will be required to submit the Certification Form. The Draft Proposal is unclear whether this “worker protection” investment requirement overlaps with, or is separate from, other PBDA labor-related requirements. BCAP encourages PBDA to delete this requirement or expand the ways for how applicants can demonstrate direct investment in worker protections, such as evidence that the applicant has a history of strong worker protections, & to clarify the relationship between this requirement & other PBDA labor-related requirements.

Comments on Requirement 12: Workforce Readiness

CURRENTLY N/A

Comments on Requirement 13: Minority Business Enterprises, Women’s Business Enterprise/Labor Surplus Area Firms Inclusion

CURRENTLY N/A

Comments on Requirement 14: Cost and Barrier Reduction

PBDA proposes to waive Act 183 of 2002 and all laws concerning broadband, utility services, or similar subjects, whether they predate or postdate enactment of the Infrastructure Act, that either (a) preclude certain public sector providers from participation in the sub-grant competition or (b) impose specific requirements on public sector entities, such as limitations on the sources of financing, the required imputation of costs not actually incurred by the public sector entity, or restrictions on the service a public sector entity can offer.  BCAP questions the legality of this waiver and respectfully requests PDBA describe what legal authority it has to waive laws duly enacted by the Pennsylvania General Assembly.  Absent such authority, this proposed waiver presents significant separation of powers questions that could expose PBDA to a legal challenge.

PBDA has identified measures to reduce costs and barriers to deployment, including: 

Municipal Coordination.  PBDA will develop a Broadband Ready Communities program, which BCAP supports.

Permitting.  The Pennsylvania Governor’s Office of Transformation and Opportunity has already begun coordinating permitting across multiple Commonwealth agencies and governmental bodies and PBDA is establishing a working group to regularly meet regarding streamlining grant processes.  PBDA is considering other incentives for efficiency and will encourage local governments and permitting authorities to incorporate timeline guidance into local ordinances.  BCAP supports this effort.

Rights of Way.  PBDA will coordinate across state agencies for access to rights-of-way, including the Public Utility Commission, who has jurisdiction over utility rights-of-way within the Commonwealth.  BCAP supports this effort to streamline this process.

Comments on Requirement 16: Low-Cost Broadband Service Option

BCAP recommends that the PBDA revise the definition of the low-cost broadband service option to: (a) ensure that providers’ existing low-income plan offerings satisfy this requirement; (b) adopts an eight-year definition of the “useful life of the network” for which the low-cost service option must remain available, aligned with Treasury’s definition of the same for ARPA broadband grant projects; and (c) account for potential price increases due to inflation and government fees, an adjustment that recent NTIA guidance expressly encourages.  See NTIA, Internet for All – Frequently Asked Questions & Answers Version 4.0 62 (Nov. 2023), https://broadbandusa.ntia.doc.gov/sites/default/files/2023-11/Broadband_Equity_Access_Deployment_Program_Frequently_Asked_Questions_Version_4.0.pdf  (“Regardless of approach, Eligible Entities are permitted to allow for reasonable cost adjustments over time. This could be tied to any number of reasonable metrics including CPI, the Urban Rate Survey, or others as Eligible Entities may prefer.”).

Comments on Requirement 20: Middle Class Affordability Plans

PBDA’s affordability proposals violate the IIJA, set specific “affordable” pricing, & penalize applicants who do not do so. Congress addressed broadband affordability through the ACP Program & the requirement that subgrantees offer a low-cost broadband service option. IIJA’s affordability initiatives focus on direct financial assistance for families in need – data show affordability is the biggest barrier to adoption.

Statutory prohibitions against rate regulation apply where a state either specifies the rates that must be charged for specific levels of service or freezes prices/restricts providers from adjusting rates. The Draft Proposal sets impermissible rate regulation under both.

Affordability Scoring. PBDA proposes scoring based on the applicant’s willingness to commit to price caps which cannot be an “introductory rate, subject to arbitrary cost escalation or part of a bundle.” Using a sliding scale, PBDA will award the full 25 available points to applicants offering 1G/1G service for $54 or less per month, including all equipment, taxes, fees & charges. No points will be awarded if the cost of the service is $95+. The methodology for determining the $54 price is specious & arbitrary, taking the $30 ACP benefit as how much of a low-income household’s income should be used for broadband & applying it to households with incomes between 201% & 400% of the poverty level. Congress established $30 as appropriate to subsidize the cost of broadband for low-income families. The unreasonableness of the arbitrary $54 figure for 1G/1G service is made more apparent by the PBDA’s adoption of the same dollar amount for 100/20 Mbps service.

PBDA’s use of specific prices for plans amounts to unlawful rate regulation. PBDA can avoid this legal pitfall by requiring providers to offer broadband pricing in BEAD-funded service areas consistent with their broadband pricing in unsubsidized areas within PA.

Middle-Class Affordability Plan. PBDA, without any explanation, defines “middle class” households as those with an income between 201%-400% of the poverty level. Then the PBDA uses the median income for households in the middle class to determine a price applicable to ALL consumers, regardless of whether they are in the newly created middle class. Such a proposal is arbitrary, capricious, & unlawful. The Draft Proposal includes the following three-pronged approach to ensure middle-class affordability:

“Recommended Plan.” PBDA will require that all grant applications include a “robust affordability plan” & a “sustainability plan that ensures affordability is maintained for at least 5 years following project completion.” It includes a “recommended service plan” with a monthly cost of $54 or less for 100 Mbps/20 Mbps service; latency of no more than 100 milliseconds; & no data caps, surcharges, or usage-based throttling. PBDA encourages sub-grantees to make the option available across their entire service territories.

Although the Draft Proposal claims that the 5-year price “sustainability” & $54/month service plan are “recommended,” any applicant failing to comply with them significantly jeopardizes its ability to win what is supposed to be a fair & competitive process for selecting subgrantees. An applicant’s refusal of the price mandates will receive no more than a 75% score, meaning that the rest of the scoring criteria needs to be near perfect to even have a chance to win. These proposals implicate the IIJA’s prohibition on rate regulation, especially given PBDA’s encouragement that the affordable service option be available across a subgrantee’s entire service territory—regulating non-BEAD-funded areas.

BCAP recommends removing this component or, at minimum, removing the $54 mandate from its scoring criteria & that offering such a plan is not a BEAD requirement. BCAP recommends that the middle-class affordability plan can be met by an applicant’s commitment to provide service based on rates consistent with the pricing it makes available in unsubsidized areas of the Commonwealth. This is consistent with the approach that the FCC has taken with the Universal Service Fund. It also will allow PA to address the BEAD Program’s affordability goals by prioritizing providers offering service plans to consumers in BEAD-funded project areas at rates comparable to those charged to consumers in unsubsidized areas.

Continued Monitoring & Public Reporting. BCAP supports PBDA’s commitment to continued monitoring & public reporting throughout the grant process.

Affordability Selection Criteria. PBDA will ensure compliance with the middle-class affordability standards through its scoring criteria which BCAP believes is highly problematic.

Comments on Requirement 17: Use of 20 Percent of Funding

CURRENTLY N/A

Comments on Requirement 18: Eligible Entity Regulatory Approach

CURRENTLY N/A

Comments on Requirement 19: Certification of Compliance with BEAD Requirements

CURRENTLY N/A

Additional Comments on Volume II 

Ownership Disclosures.  The Draft Proposal requires ownership information that goes beyond the NOFO’s requirements.  The NOFO requires disclosures of ownership information consistent with 47 C.F.R. §§ 1.2112(a)(1)-(7). Yet, the Draft Proposal reproduces the text of 47 C.F.R. §§ 1.2112(b)(1)-(2).  These additional code provisions are beyond the ambit of the BEAD program & are wholly irrelevant & inapplicable here.  The Draft Proposal should only require applicants to provide the information specified in 47 C.F.R. §§ 1.2112(a)(1)-(7), consistent with the NOFO.

Confidentiality.  In describing its transparency measures, the Draft Proposal provides that subgrantees will be subject to “requests made pursuant to the Pennsylvania Right-to-Know Law.”  Additionally, referencing PA Act 96 of 2021, PBDA will post the Final Applications & associated materials it receives on its website, as well as Preliminary Screening Application submissions & associated .csv files.  The Draft Proposal makes no mention of protections for confidential or proprietary information.  BCAP encourages the Commonwealth to explicitly allow applicants to deem portions of their applications confidential,  &/or include other confidentiality protections.  Doing so consistent with NTIA guidance, the approaches taken by other states in their Initial Proposals & is required under Pennsylvania law governing public access to trade secrets.  Moreover, to avoid competitive harms that could compromise the fairness of the selection process, PBDA should not publish any part of the applications until it has a plan in place to ensure service to every unserved & underserved location in the Commonwealth.

Monitoring & Accountability.  PBDA will utilize a variety of compliance measures, including conducting site visits on a “random & periodic basis,” desk reviews, internal compliance review, & “comprehensive invoice reviews”; requiring subgrantees to submit quarterly & annual progress reports, in addition to a final project report; & utilizing Ookla, M-Lab, & other speed test data to “evaluate changes in speed service levels.”  Additionally, PBDA will “hold the ability to inspect all work, invoices, materials, [etc.] at reasonable times & places.”  BCAP reminds the PBDA that NTIA has proposed to treat BEAD projects as “fixed-amount subawards” that are not subject to the Part 200 Federal Uniform Guidance Cost Principles.  BCAP suggests that PBDA provide reasonable notice of its intent to conduct an inspection to ensure that any such inspections are as productive & efficient as possible.  BCAP also suggests that, with respect to speed test data, PBDA should ensure it adheres to rigorous methodologies for evaluating such data, consistent with the methodology provided by NTIA’s Model Challenge Process Guidance. 

Cybersecurity & Supply Chain.  BCAP commends the Draft Proposal for incorporating the NOFO’s requirements on cybersecurity & supply chain risk management from pages 70-71 of the NOFO.  PBDA also provides that subgrantees’ plans for cybersecurity risk management & supply chain risk management will be “reevaluated & updated on a periodic basis & as events warrant.”  PBDA should not underestimate the complexity of protecting broadband networks & subscribers from ongoing & increasingly sophisticated cyberattacks.  In addition to ongoing monitoring of awardee compliance, PBDA on the front end should closely scrutinize applicants’ experience implementing such cybersecurity plans as a gating factor for BEAD participation.

Climate.  PBDA will require that all grant applications include an emergency response plan to ensure “structured response[s]” to extreme weather events.  Additionally, PBDA will prioritize field & compliance checks of funded infrastructure in disaster-prone areas to ensure best practices are followed.  The PBDA should clarify what sources it will consider to determine such best practices & should afford significant deference to experienced providers with experience maintaining resilient networks.

Community Anchor Institutions.  The Draft Proposal refers to CAI service status as “served, unserved, [or] underserved.”  This is an incorrect – designations of unserved or underserved do not apply to CAIs.  The only distinction for CAIs in the NOFO is whether they are eligible for BEAD funding (i.e., lacking access to 1G symmetrical service).  BCAP requests that the PBDA make this correction.  BCPA also urges the PBDA to undertake an iterative process to review & continue to update the list of eligible CAIs for BEAD to ensure limited funds are allocated only to those locations that are eligible under the IIJA.

Increasing the 911 fee by 19.4% ($1.65 to $1.97 per month), followed by annual adjustments based on the Consumer Price Index, burdens families that have multiple cell phones and are already struggling with high inflation rates. Today, Pennsylvania collects more revenue from 911 fees than any other state. If HB 1304 is enacted, consumers in Pennsylvania will pay the second highest state 911 fee in the nation, and the most of any populated state. While a 911 fee increase may be justified, tying future funding to the Consumer Price Index is not. Before the General Assembly locks in guaranteed emergency funding, there needs to be more accountability at the state and county levels for unrestrained cost increases. The proposed extension of the sunset until 2029 removes legislative oversight over an emergency communications system with limited cost controls. BCAP would respectfully recommend a one-year extension of the sunset with a 911 fee increase to $1.97 per month.

The extension will give us time to take a more comprehensive view of emergency services in the Commonwealth and how we pay for them. The Pennsylvania General Assembly, emergency service professionals, representatives of county government, and the telecommunications industry need to be integrally involved in the process to develop the best long-term solution for Pennsylvania.

In terms of future efficiencies, where is the plan to consolidate 911 centers? Consumers should not foot the bill for 911 centers in every county – this is particularly relevant since many 911 centers cannot fill their current positions with trained responders. With today’s technology, a handful of PSAP facilities in Pennsylvania would be more than enough to handle the Commonwealth’s needs.

FCC Commissioner Michael O’Rielly said back in 2015, “If we were to build a Public Safety Answering Point (PSAP) system today from scratch – knowing what we know about network architecture and emergency communications – there would be considerably fewer PSAPs. By some estimate, the current structure would be able to operate at optimal efficiency with as few as three [PSAPs] nationwide. Others argue that there should be no more than one [PSAP] per state. Part of your task is to help determine the number of PSAPs that are necessary to operate an efficient network and do so to the best of your ability, absent political considerations.”

What county is next in line to build a state-of-the-art emergency services facility and at what cost? BCAP members around the state are active in local fire departments and as emergency responders. We treasure these folks. It’s incumbent on us to safeguard and maximize every tax dollar. Unfortunately, 911 funding linked to CPI ensures PEMA and local agencies have no incentive to consolidate services and responsibly use the dollars taken from the wallet of every Pennsylvanian. BCAP opposes HB 1304 as introduced. 

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Broadband Communications Association of Pennsylvania

127 State St., Harrisburg PA 17101

717.214.2000 * www.BCAPA.com  * @BCAPisBroadband

First in Broadband. The Future of Broadband. ®

This is from ACA Connects

As States and Territories develop their Initial Proposals for the BEAD program, one of their most consequential decisions is determining how project service areas will be defined.  States and Territories may allow applicants to design their own project areas – which is the standard practice for unsubsidized network builds – or they may solicit applications at a geographic level of their choosing, such by county, census tract or census block.  

In a White Paper released today, ACA Connects and its partner, the business consulting firm Cartesian, explain that defining the minimum biddable area at a granular level – preferably by individual location, but if not, then by census block (with very high cost locations removed) – is the most cost-effective approach because it will maximize competition for funds, especially from smaller providers who may be deterred from participating if that meant agreeing to serve all of the eligible locations in an entire census tract or county.  While smaller biddable units may increase the chances that applicants will submit partially overlapping applications,  States have demonstrated they can resolve such overlaps.  In addition, if project areas leave out higher-cost individual locations, the program gives State and Territories leeway to find solutions to connect them.

The White Paper also touches on a related issue – setting and applying the extremely high-cost per-location threshold.  As the White Paper explains, the threshold should be set and applied at a granular geographic level.  If too large an area is used – such as a county –  the threshold would be set too low and many “fiber-viable” locations are likely to fall above the threshold if they happen to be located in the same county as very high cost locations.

ACA Connects urges State and Territory Broadband Offices to use this White Paper as a resource as they finalize their Initial Proposals.  We stand ready to discuss the White Paper in detail and answer any questions.