Tucson spent nearly $7 million during the pandemic to create its own internet network that was used by fewer than 1,000 households, something officials called an βembarrassmentβ that might continue to be a drain on taxpayer dollars.
The Community Wireless Program used federal relief funds to create a broadband system similar to those operated by Cox or Comcast. The goal was to provide free internet for low-income residents so they could attend school and work when COVID-19 shutdowns began in 2020.
But only 995 households β which accounted for less than a fifth of the internet routers purchased by the city β actually participated in the program, meaning Tucson spent cash at a rate of nearly $7,000 for each family served by the initiative. Thatβs more than six times the typical yearly cost for internet service in the area.
The city could have funded eight years of free internet for the 5,000 homes targeted under its plan through an alternative option, which would have cost $2 million less than it sunk into the unsuccessful Community Wireless Program.
βI think we blew it when we invested several million dollars and connected 1,000 homes. Thatβs indefensible,β Councilman Steve Kozachik said. βItβs certainly not something that any of us in the city should be proud of. Any of us.β
Tucsonβs strategy didnβt entirely jibe with its goals from the onset. The city didnβt want to become an internet provider indefinitely, yet officials bought equipment β like network towers, routers and interior cabling β that will last βforeverβ and cost local taxpayers about $300,000 to maintain each year.
It also took the city six months to begin accepting applications for the program and about a year to build the network, raising questions about why it was initially viewed as a βquickβ solution by many officials.
βThis wireless project was really just meant to be a quick temporary solution to keep people in school during that time immediately when the pandemic started,β Councilwoman Nikki Lee said about the program.
Other strategies, like partnering with private internet companies, were also available. It would have cost about 12 times less to get each of the target households online, required no long-term maintenance and secured internet access for needy residents βimmediately.β
That approach was successfully used by other local governments and school districts while Tucson kept pouring money into its new network, failing to change course when it became clear the program wasnβt effective.
But council members said they didnβt get that chance. They contend that the information needed to βpivotβ toward better solutions was never made available to them, despite requesting it multiple times.
βI never received the actual data I was looking for to be able to filter through and get an educated understanding of the true utilization of the network, which I needed to inform my own actions,β said Lee, who said she became βfrustratedβ when her requests for information were consistently ignored.
City Manager Michael Ortega said the data was βdifficult to gatherβ and added that the city βdid not do as well as we could have.β
Colin Boyce, the former head of Tucsonβs IT department who oversaw the project, declined the comment on the program and resigned just days before the Star obtained program data.
The question of what to do with the pricey infrastructure still remains, however, and Ortega said it will be at least three months until officials identify a viable solution.
He hopes it could aid future broadband efforts, though itβs unclear why residents would need the city-run service at this point: a new βlonger-termβ federal program has dedicated billions to subsidizing private internet plans for low-income families across the country.
The city is also working with Pima County to find a solution, and leasing the system to private companies could still be an option if worse comes to worst. But until those decisions are made, residents will just have to keep footing the bill.
βPart of the plan has always been to analyze and make sure that the ongoing costs make sense,β Ortega said. βThat is something that is ongoing and Iβll have more information probably in the next three months to really dissect that investment going forward.β
Digital divide
Tucson launched the Community Wireless Program in May 2020, only a couple of months after COVID-19 shutdowns began. Residents were still learning the basics of working and learning online, and local organizations were figuring out how to operate without in-person meetings.
City Councilwoman Nikki Lee
The impact of the βdigital divideβ β a gap in tech resources that runs along socioeconomic lines β became glaringly obvious at that point, when kids from poorer parts of the city struggled to get online for school.
βThere was a huge concern that these families, these kids, would start to fall behind academically and financially if they couldnβt work (online),β Lee said. βWe heard instances of families having to sit in McDonaldβs parking lots to use their free Wi-Fi and realized that we had to do something in the immediate time frame to alleviate that situation.β
Tucson had received millions in federal relief funds as part of the CARES Act, so officials just had to choose how they wanted to tackle the issue: fund internet plans through a private company or provide services directly with a new city-owned network.
Low-price plans through Cox would have cost about $120 for each household and been available right away because the companyβs network was already established. But internet speeds on those plans were βvery slow,β according to city officials who said it wasnβt sufficient for online schooling.
βOne of the focal points early on from the council was making sure that we provide the service not only in an affordable way but also at a high-speed rate,β Ortega said. βThe actual access speeds for downloading (on Coxβs plan), we had gotten complaints that they were very slow.β
Building a city-owned network, on the other hand, would secure free high-speed internet for residents as long as they needed it β and the city went all-in on that option.
Council members first invested $750,000 in the network and then kept spending money on it over the next seven months. By the end of 2020, they had shelled out more than $5.5 million.
During that spending spree local school districts were creating their own initiatives. The Sunnyside District partnered with Raytheon and Cox to provide free internet for hundreds of students in fall of 2020, for example, and Tucson lost its biggest target demographic β students β in the blink of an eye.
βWhen we started the program we made some assumptions about the number of users, not factoring in at the time that the school districts also had similar programs that took a lot of the users who were able to use the schoolβs infrastructure as opposed to the cityβs,β Ortega said. βIt gave the user an opportunity to choose. They chose the schools.β
Applications for the Community Wireless Program opened on Dec. 9, 2020, about a month after Sunnysideβs initiative was announced and just nine days before the federal government launched a similar effort called Emergency Broadband Benefits.
EBB provided big discounts on private internet plans and represented yet another program that rendered Tucsonβs network virtually useless, but city officials persisted.
They believed the funding for those outside initiatives would dry up relatively quickly and that the cityβs network would then become the next best option for those in need of free broadband.
β(School districts) got federal money and we got some federal money, but at some point the expectation was that money would go away and then they would come have a conversation with us,β Ortega said.
That never happened. Sunnyside instead formed a partnership with Pima County and Cox in the spring of 2021, which secured internet for 1,000 students in the Summit View neighborhood β an area with particularly low broadband access β without the cityβs involvement.
Around that time it became clear that Tucsonβs program was in trouble. The city had bought 5,000 routers for qualifying homes, but just 628 had been distributed and only about 800 households had even applied, according to a city memo from April 2021.
Staffers suggested at the time that the reason there had been βsuch few applicantsβ was because residents werenβt aware of the program, so they planned future outreach efforts to turn things around.
βWe are confident with the next round of outreach working through community-based organizations and nonprofits, we can build awareness regarding the program and reach more of those in need,β the April memo read.
That was the last time the Community Wireless Program was ever discussed at a council meeting. Only 367 more households would end up participating in the program, meaning a total of just 995 homes were served by Tucsonβs multimillion-dollar network.
βTo have connected fewer than 1,000 homes with (millions of dollars) β itβs horrible,β Kozachik said about the outcome. βItβs a terrible effort.β
Connection issues
Many who did participate in the program signed on before the cityβs network went live in mid-2021. Their routers were still able to access the internet using AT&T, a practice called βroamingβ that allows a device to connect to nearby networks when others arenβt available.
For example, a Verizon phone might use roaming mode to connect with T-Mobileβs network in an area where Verizon has no coverage.
It was expected that the cityβs routers would depend on roaming at first β that was always part of the plan. Installing 70-foot-poles and cables all around the city takes time, and that construction had to happen before the public network could become available.
Most of those routers stayed in roaming mode well after the cityβs network was supposed to be finished, however, suggesting the system has been offline more often than not.
βWe have a lot of folks who have that device set in roaming mode on other networks because for whatever reason β and again, I donβt know the technical side of why β but theyβre not able to connect to the cityβs network,β Lee said. βWhy are we not able to connect to the cityβs network?β
Construction issues were the main culprit. Tucson installed its broadband infrastructure and developed a network that covered a third of the city in less than a year, and staffers said the rapid installation meant some of it wasnβt done correctly.
In one instance, for example, a network pole was struck by lightning and went offline because it wasnβt properly grounded.
City data suggests this has been a massive problem over the past six months. Of the 604 city routers that were used during that time, less than a third connected directly to Tucsonβs broadband network.
The other 423 β 70% of the city routers that went online in the past six months β werenβt able to access city broadband, so they connected to other networks instead.
βWhat were we sold? Did it work? Is it working as designed, and if not, what course of action do we have on behalf of the taxpayers?β Lee asked. βI donβt know if it has worked as designed or is working as designed (now), but I canβt get these answers.β
Left in the dark
Lee requested network information from city staff throughout the program, but said it βnever happened.β She has worked in technology fields for two decades and said other council members were βreally relying on my expertise to help understand what we needed to do.β
City staff couldnβt provide key information on the program, including data that showed how well the network was working and how many people were actually using it.
βI was really trying to get a sense of how many people in Tucson still need access to this type of system and to what extent (they needed that access). Those were really the only two things I was trying to understand,β Lee said. βIt never happened.β
City staffers said the type of network Tucson used, called Citizens Broadband Radio Service, or CBRS, is a relatively new technology and that it was difficult to gather the basic information Lee wanted at the time. The same data was provided to the Daily Star last month in response to a public records request.
βI just know that it was difficult to gather,β Ortega said about the issue. βWe did not do as well as we could have, and should have, in addressing questions that were posed by the council member.β
The problem is that without the program data, council members couldnβt have made an informed decision about whether the city had to change strategies β even after Cox βupped their gameβ and started offering high-speed internet packages for cheap.
Interviews with multiple council members suggest they were open to that idea and even preferred it in some cases, so a strategy change may have happened if they had all the information.
βWhen (Cox) started making offers, the strength of their signal was inferior to what we were offering, but then they upped their game without upping the price,β Kozachik explained. βIβve said this to our city manager and our city attorney, is this really an area that we ought to be investing significant dollars to get in the game? Do we really need to run an internet network as the city of Tucson?β
The city could have funded a year of free Cox internet for 41,000 homes with about $5 million, or provided nearly a decade of internet for the 5,000 households it hoped to serve under the Community Wireless Program.
Instead, at least another $1 million β as well as an extra $200,000 from Tucsonβs general fund β was injected into the city-run network between early 2021 and today, bringing the total program cost to around $7 million.
Ortega said he did speak with private internet companies after the program was already βwell on its way.β He added that it wasnβt too late to change course at that point and that it βcould have been a conversation (he) had during that time.β
βI asked some of the providers if there was an opportunity and I know they worked on that. I do not know any of the specifics, to be honest with you,β he said. βThere was some discussion about that, but I donβt know the outcome.β
A possible change in the programβs direction was never brought to the council publicly. Itβs unclear when exactly Ortegaβs discussions took place and how much money the city could have recovered if it βpivotedβ to another broadband strategy at that time.
Yearly costs
Now, two years after the Community Wireless Program began, the city has a broadband network that will cost $300,000 to maintain each year and no solid plan for how to use it.
Tucson doesnβt have an IT director to pick up the pieces, either. Boyce, who formerly held that position and also served as project manager for the Community Wireless Program, resigned April 1, only four days before the city shared program data with the Daily Star.
Boyce had been earning an annual salary of $180,000 in the directorβs role since he was appointed in May 2019. He declined to comment on the program and said he resigned for personal reasons during a brief phone call with the Star.
As for the cityβs network, Ortega is βstill very confidentβ that Tucson might use it to provide internet access for local students in the future. He maintains that the city-owned system will get more users when federal funding ends for other programs.
βMy expectation is that when the external dollars to the school districts and the private sector start to either go away or be used for other things, people will still have that need,β he said. βWeβll be available and ready to provide that service as needed.β
Those dollars arenβt going away any time soon, though. The feds doubled-down on their broadband efforts last November with the Affordable Connectivity Program, a $14.2 billion βlonger-termβ initiative that will allow poor families to get cheap internet services for the foreseeable future.
Officials couldnβt have known that those federal benefits would be extended when the city began its initiative two years ago, but βthe landscape has changedβ and itβs hard to see how Tucsonβs network could make a significant impact on closing the digital divide at this point.
βWhen we first started down this path (those programs) didnβt exist,β the city manager said. βI think itβs important to look at that and recognize that the decisions were made based on the snapshot in time.β
One positive development is that Tucson began formally working with Pima County to come up with a solution a few months ago. City staff have teamed up with the countyβs Strategic Planning Taskforce for Digital Access, a group thatβs trying to βget everybody in the county equitable access to the internet.β
Michelle Simon, a member of the countyβs task force, said Tucsonβs broadband infrastructure could still play an βinvaluableβ role in the regional effort.
βThis is going to provide us a bridge to get people their own internet access in the future,β said Simon, who is also the deputy director of support services for the countyβs public library. βWe can make sure that they have devices, they have the understanding of how to use those devices and then that they use programs like the Affordable Connectivity Program to subsidize their own internet access plan.β
Simon added that Tucsonβs network is now βready to go and can be implemented easilyβ in places where some homes donβt have internet. The idea is that those households can get on the cityβs system while theyβre waiting to be enrolled in federal subsidy programs.
It isnβt clear if using Tucsonβs network as a placeholder for other programs will create enough value to justify the ongoing maintenance expenses for the city, however.
Ortega also mentioned using the network to reach unincorporated areas of Pima County where private internet services might not be available, though he couldnβt point to any specific neighborhoods that could benefit from the effort.
βI see other opportunities (the task force) will develop as a part of the partnership β meaning our staff and their staff,β he added. When asked again to specify what βother opportunitiesβ he saw, Ortega went on to say, βI just donβt know, to be honest with you. Those meetings have gone on for a couple of months now, and I donβt know that I canβt point to one and say βhereβs where weβre headed.ββ
Another potential option is to use the network for βsmart citiesβ initiatives, which can involve installing things like gunshot detectors and other high-tech infrastructure throughout the city.
It had been one of the Community Wireless Programβs selling points because the public network would save costs if Tucson wanted to implement smart city systems down the line, a benefit that featured heavily in city staffβs early project pitches and memos.
Multiple city officials said it wasnβt a main goal of the program, however, and it would also require another significant investment in high-tech equipment such as air quality sensors and traffic light systems that can use real-time driver data.
βThe logic is that if we had this (broadband) infrastructure there might be some cost savings there if itβs already available and the city has it up and running,β Lee explained about the smart cities connection. βTo me, that was not part of the initial vision of the motion of moving forward with internet connectivity.β
Tucson could also just cut its losses and lease the network to a private provider, though city officials couldnβt explain why a company would want the system given that many local providers already have existing infrastructure throughout the area.
But if officials can find a buyer, it could eliminate the $300,000 maintenance costs local taxpayers are now stuck with. Itβs also possible that Tucson could work out a deal with a private company to provide free or low-cost plans for certain families in exchange for using the cityβs infrastructure.
βIt isnβt just a matter of unplugging it and saying, βwell, weβre done,ββ Ortega explained. βItβs a function of making sure we look at how we can continue to partner with Pima County and, now that the landscape has changed, how we can continue looking for ways to leverage that equipment in our relationships with other providers and agencies.β
City officials expect to have a more specific plan for the network in about three months. In the meantime, theyβve planned to put another $3.2 million from the American Rescue Plan Act β a more recent tranche of federal relief money thatβs separate from the CARES Act β into βdigital literacy and accessβ programs.
Those future initiatives may share similar goals with the cityβs earlier broadband effort, though the specifics havenβt been fleshed out. Council members are expected to review that planned allocation in the coming weeks given how poorly the Community Wireless Program performed.
βWe have a planned $3.2 million investment in digital literacy and access. We need to have a conversation about where thatβs going. Our first attempt at that did not generate a tremendous return on investment,β Kozachik said at Tuesdayβs council meeting. βBefore we just go and allocate those dollars out to whoever is going to get them, we should have that conversation.β