CITY OF OXNARD REQUEST FOR PROPOSAL FIBER MASTER PLAN
The City of Oxnard, hereinafter referred to as “City,” is soliciting proposals from qualified telecommunications and information technology consulting firms, hereinafter referred to as “Consultant,” to develop a Fiber Master Plan to guide the design, construction, implementation, maintenance, management, regulation, operation and funding of its fiber optics assets and related technologies in accordance with this Request for Proposal, hereinafter referred to as “Fiber Master Plan.” The City intends to award Consultant a Consulting Service Agreement, hereinafter referred to as “AGREEMENT,” for such efforts.
The Oxnard Community Oxnard, a vibrant and growing community of approximately 200,000 people, is located on the beautiful Southern California coast and is the largest and most populous city in the County of Ventura. Nestled about 60 miles northwest of Los Angeles and 35 miles south of Santa Barbara, Oxnard prides itself on its rich diversity and culture. Oxnard is a full-service city. Incorporated as a general law city in 1903, Oxnard operates under the council-manager form of government. The governing body, the City Council, is composed of five (5) members.
This city by the Pacific Ocean is an ideal place to raise a family; Oxnard residents enjoy a spirit of community pride. With its attractive residential areas located among tree-lined streets, parks and beaches, Oxnard provides a wide variety of housing choices.
Why Fiber? Today, access to broadband internet service is as vital as streets, water, and sewer infrastructure. Broadband connectivity enhances a community’s economic development potential by attracting new, advanced businesses in support of Smart City initiatives, providing existing businesses the tools they need to stay competitive and providing our residents with options for broadband products and services.
While other broadband access technologies exist using copper and wireless, fiber is much more future-proof. Internet speed demand is estimated to reach one gigabit (Gbps) speeds by 2020. The next wave of technologies — especially artificial intelligence, the Internet of Things (IoT) and augmented reality — demand increasingly robust connections from both home and office. Fiber technology easily scales to the estimated 10Gbps speed these services demand. Fiber is critical to the future of the smart home and the Smart City, since many of today’s most connected cities determined that laying fiber is the foundation upon which many of tomorrow’s most connected services will be built.
Oxnard’s Existing Fiber Network The City’s existing network backbone spans 38.45 miles of underground conduit with fiber running through 31.81 miles of that conduit and twisted wire pair running through 34,612 ft. (6.56 miles). In addition, the City maintains thirty-eight fixed wireless links between additional traffic signal locations. There is an additional 6.64 miles of conduit and fiber optic cable designed and planned for the expansion of the traffic signal network and future SCADA system.
The network serves as the communications link between the City’s traffic signal system and Traffic Management Center (TMC). The fiber network also serves as a network backbone between City facilities such as fire stations, IT data centers, remote Police locations, etc.
The original network build, “Phase 1,” occurred in 2013 and connected an Intelligent Transportation System (ITS) linking 140 traffic signals to the TMC, installed four field gigabit hubs, eighteen Closed Circuit TV (CCTV) cameras, sixteen video detection systems and also connected seventeen Public Safety and City administration buildings. “Phase 2” commenced in 2016 and connected an additional twenty five traffic signals, one field gigabit hub, six CCTV cameras and three City buildings.
The City has a unique opportunity to capitalize on its existing fiber network by expanding from a closed, private network supporting limited City buildings and systems to a more open network platform that can be leveraged for public economic and social benefit. This opportunity was documented in the City’s Information Technology Master Plan completed in 2015. The Plan’s Recommendation #3 states in part:
“The City should consider leveraging its current fiber infrastructure and resources, including shared resources available through agreements with other public agencies, in order to position itself to become a “Fiber City.”
Mayor Flynn summarized the opportunity and vision in a Fiber Master Plan funding request in 2016. From the Measure O Budget Program description:
“The City of Oxnard needs infrastructure to attract investment and support business growth. Access to robust, high-speed Internet and data networks is as vital as streets, water and sewer infrastructure. High-speed connectivity enhances a community’s economic development potential by attracting new, advanced businesses and providing existing businesses the tools they need to expand.”
The Fiber Master Plan funding was approved, and in January of 2017 the City’s IT Department established a Technology Governance (Tech Gov) Fiber Master Plan Subcommittee to steer the
City through the Plan RFP process. The Committee identified the following key motivations in expanding Oxnard’s fiber network:
- Become a “Tech City” and a “Fiber City” to encourage high-tech businesses and employees to locate in Oxnard, enhancing economic development
- Use the network to foster educational and other social benefits
- Deploy public Wi-Fi and other Smart City initiatives to enhance Quality of Life
- Bridge the “digital divide” between Oxnard and other cities and between businesses within the City with access to high-speed Internet infrastructure and those without
- Use the network as a tool to entice businesses to economic development zones
- Reduce spend on leased lines and other communications services
- Generate a return on investment (ROI), running the network as a revenue-generating enterprise to fund further expansion and eventually contribute to the General Fund
Proposed Model Through extensive research including reviewing other municipal fiber master plans, discussions with other cities in various stages of fiber network builds and conversations with consultants in the municipal broadband space, the Tech Gov Fiber Master Plan Subcommittee identified the following build model as most appropriate in terms of meeting our stated goals:
- Publicly (City) owned “middle mile” infrastructure with potential partnership opportunities for “last mile” connections
- Proceed with the intent to lease or otherwise make available, fiber infrastructure (conduit, dark or lit fiber, vertical and other assets) to other municipal entities, telecommunications carriers, other service providers or businesses
- Connect to an Internet peering Point of Presence (POP) and offer a choice of Internet Service Providers (ISPs) to partnership entities and end-users on the network through either wholesale, retail, revenue sharing or passive network access
- Deploying the network and associated services where areas of demand (both social and economic) will be strongest
- Realizing a financial return on investment in terms of economic development impact, infrastructure enhancement, leased line or other communications service savings and revenue generation
- Focusing on social return on investment in terms of enhancing Quality of Life via educational, Public Safety and Smart City initiatives
Deploy the network in stages to target:
- City/municipal buildings and facilities, evaluating leased-line savings, communications and operational enhancements
- Community Anchor Institutions (CAIs) such as large businesses, hospitals, learning institutions, etc.
- Business economic development zones or corridors and the broader business community
- Public Wi-Fi areas, public safety and other smart city services requiring a fiber backbone or otherwise enhanced by high-speed access
- Eventual possibility of residential communities including multi-dwelling units (MDUs), low-income housing and the broader community at large
Other guiding or operating principles affecting the model and build considerations:
- Leverage the existing network, including adding redundancy and resiliency, building the network to carrier-grade levels, monetizing current assets including leasing infrastructure
- Capitalize on joint-trench opportunities and other Right of Way access opportunities in conjunction with other Public Works projects to expand network infrastructure
- Investigate opportunities for a mutually profitable partnership in connecting to the Ventura County VCNet or with other nearby municipalities
Fiber Master Plan Project Goal The City’s goal in developing a Fiber Master Plan is to document a detailed, actionable plan to build a carrier-class, highly-available redundant fiber network that provides Oxnard anchor institutions, businesses and eventually key residential areas with high-speed Internet access, data and Smart City services, thereby improving the quality of life of our constituents, boosting economic development and enhancing the infrastructure of our City.
City of Oxnard Request for Proposal Fiber master Plan
SCOPE OF SERVICES – OVERVIEW
The Consultant shall perform certain services necessary for development of the Fiber Master Plan, which services shall include the following:
- Validation of the selected business model, identification and vetting of any possible public-private partnership opportunities, other municipal interconnection agreements or wholesale partner lease opportunities (such as telecommunications carriers)
- Thorough market assessment including investigation of market opportunity, evaluation of the competitive landscape and partnering with the City to identify CAIs,
- Inventory and assessment of current assets and direction as to how the current infrastructure (and/or what additional infrastructure) would be needed to prepare the City to deploy a fiber network in support of the stated objectives
- System-level design including proposed routes, infrastructure, technical specifications, build timing, associated costs, and schematic diagrams
- Business case analysis including return on investment (ROI) timeline, funding and financing options for a phased build, staffing requirements and pro forma financial statements
- A specific, detailed, actionable, phased implementation plan, with timelines and costs to build the network including interim steps we can take to prepare for network expansion and specific options and actions to monetize current network
- Governance, ownership and management guidance including zoning and Right of Way (ROW) ordinances, potential legal ramifications and roadblocks to the Plan, leasing and asset sharing guidelines and templates
- A Master Plan document comprised of all section requirements
SCOPE OF SERVICES – DETAIL
- Fiber Network Build Model
Throughout the course of completing the tasks and deliverables in this RFP it is expected that the Consultant will assess and verify the appropriateness of the model and build direction outlined by the City above or recommend an alternative model and build approach. Validation of any recommended or endorsed model should be accompanied by specific examples of similar cities that have successfully deployed a fiber network along a similar model including services deployed to enhance quality of life and financial ROI and timeframes to meet ROI.
In addition, in this section the Consultant shall:
- Investigate potential public-private partnership opportunities and options for Oxnard with specific, actionable proposals modeled in the business plan if applicable
- Investigate opportunities for a mutually-profitable partnership in connecting to the Ventura County VCNet or with other nearby municipalities
- Report on the criticality of fiber networks as a key component of municipal infrastructure including relevant economic and social data from cities with similar demographics
- Address and consider the use of wired vs. wireless and the longevity of fiber networks
- Address the technological, legal and regulatory direction of fiber networks, as well as the longevity and cost benefit of fiber networks versus other media and how the City should plan for developments as they impact stated goals
- Market Assessment
Oxnard Community Anchor Institution Identification The Consultant shall work with the City of Oxnard Tech Gov Subcommittee, Departments and Administration to identify CAIs across education, health care, municipal, Public Safety, State, regional and other organizations that would benefit from a fiber broadband network.
Opportunity Assessment Conduct a comprehensive outreach to City Administration and Departments, anchor institutions and businesses to develop a detailed and statistically-relevant broadband needs assessment, tailored specifically to Oxnard’s goals using a combination of online surveys, focus group interviews and meetings.
- City of Oxnard Administration The Consultant should engage with all major City Departments and identify needs and opportunities that could be realized by deploying a fiber network including but not limited to:
o Learning/educational opportunities o Business functions, services and operations that could be realized,
enhanced, or improved o Public Safety functions and initiatives that could be deployed more
readily, efficiently, effectively and/or at lower cost o Leased-line or other communications service costs that could be reduced
or eliminated o Other Smart City applications relevant to stated current, intermediate or
long-term Departmental plans
- Oxnard Anchor Institutions
o Interview identified anchor institutions to assess detailed understanding of
current and future broadband and fiber-based service usage, satisfaction levels, current and future technology plans and identify opportunities that could be leveraged by a municipal fiber network.
o Identify opportunities with telecommunications and other service
providers who may wish to connect to the City network and purchase dark fiber
Market Survey The Consultant should perform a statistically-relevant market survey involving two distinct Oxnard communities – community anchor institutions (CAIs), and the general business community. Each community should be surveyed as to the following points at minimum:
- How significant is the availability of high-speed Internet, data and communications to their business operations?
- What is the community group’s assessment of available Internet, data and communications infrastructure in Oxnard?
- Rate their current provider in terms of speed, cost, value, service availability, reliability, service issues, and overall satisfaction
- Rate the availability of choice of providers
- What is the community group’s assessment regarding available Internet, data, and communications in Oxnard as compared to other cities?
- How significant a factor are highly-available, cost effective high-speed Internet, data and communications services in remaining in Oxnard or locating additional employees and/or resources in Oxnard?
- What technology, business or other initiatives do you intend on deploying over the next five years that will require a high-speed Internet or communications backbone?
- Assess whether the specific community would be likely to support the construction of a municipally-owned, open-access network making cost-effective high-speed Internet (and communications) service(s) available, purchase service, and if so at what price and speed?
- What do the segment constituents need, want and hope to realize or otherwise see improved or enhanced via a fiber-optic network?
- Survey data should support an estimated uptake rate
Additionally in this section:
- Identify and discuss fiber-based applications used by other cities that generate the most financial and social benefit
- The Consultant should document the statistical relevance of all survey data.
The format for interviews may be one-on-one in some cases or group in other cases, depending on the size of each community anchor and importance to the project.
Competitive Analysis In this section the Consultant should research, evaluate and document the current supply of broadband communication assets, products, capacity and services in the City. The analysis should include at minimum:
- An overview of current public and private telecommunications and competitive providers for broadband, dark fiber, lit fiber, services and type
- Route maps of applicable services
- Speeds and associated costs
- Identification of service opportunities on the City’s network
Data including route maps, broadband speed and associated costs should be made available and loaded into the City’s GIS database.
- Asset Inventory and Management
The objective of this task is to review City assets, infrastructure, data and information required to support deployment of a carrier-grade fiber optic network, facilitate the preparation of an engineering study, network design, deployment-cost model and build of the fiber optic network.
- Review of the City’s fiber optic system documentation, software and hardware systems, GIS data and storage, current uses of fiber network, policies and procedures and make specific recommendations
- Advise on the City of Oxnard’s progress in mapping the current fiber infrastructure in GIS, specify additional layers required to support the City’s goals
- Perform a physical inventory of missing and/or relevant fiber network infrastructure, and provide that data to Oxnard’s GIS team
- Identify what constitutes a carrier-grade network and specify if the City’s network and infrastructure is usable as a carrier-grade network to support long-term objectives
- Evaluate assets and capabilities of current network
- Identify specific shortcomings in the existing infrastructure
- Recommend an applicable asset management system in light of the build model and goals
- Network Design
Within this section, the Consultant should develop a system-level network design based on goals, design parameters, information produced in the scope of work and data provided by the City. Documentation should include technical specifications encompassing the proposed infrastructure, cost estimations for completion and schematic diagrams. The section report should:
Proposed Routes and Infrastructure
- Make recommendations on routes and locations of fiber infrastructure, equipment and points of connection,
- Discuss how the proposed route(s) will utilize, leverage or supplant existing network infrastructure and connectivity resources
- Determine key factors needed to create a critical mass of network customers, service providers and asset owners
- Identify infrastructure and other technical requirements for the network build
- Include a design for Internet peering and connectivity including connection points, routes, hardware and other facilities to manage an open-access network
Planned Infrastructure To paint as complete a picture as possible of the City’s future opportunities for cost- effective underground fiber and conduit expansion, investigate and identify any planned underground construction in the City that would represent a “dig once” opportunity for the City to add conduit or fiber including:
- Planned public works projects, including streets, water or wastewater involving road or other right of way access, excavation, renovation, resurfacing and other construction
- Traffic signal upgrades
- Projects for which there are current and planned permits issued for underground construction by utilities, telecommunications service providers and private contractors
- Other construction that will disrupt the ground
- Specify what existing fiber, hardware or other components need to be updated, enhanced for increased capacity or replaced and where redundancies need to be added
- Provide the City with recommendations on the kind and type of telecom and broadband infrastructure needed to support and attract service providers and support City government and Public Safety needs and requirements;
- Identify hardware and software needed to support an open-access build model
- Identify key technical requirements, hardware and software needed to support “open” network operations
- Provide recommendations on operations, management and monitoring of any infrastructure (e.g. telecom conduit, dark fiber, etc.) owned by the City.
- Include conceptual maps and schematic diagrams outlining and indicating all of the above
- Provide detailed cost estimates on the type and location of infrastructure and construction costs needed to develop the fiber optic network
- Provide associated detailed cost estimation of all components in all phases
- Estimate costs for engineering diagrams and build
- Governance, Ownership and Management Strategy Analysis
The objective in this section is to provide the City of Oxnard with knowledge and application of best practices in policy development and organizational structure for implementing and operating broadband networks and Smart City initiatives.
Zoning and Right of Way Management Ordinances The section report should include the following:
- An overview of how relevant policies are structured in other cities and counties and an evaluation of their effectiveness, legal and economic impact, different models, costs and the best strategy and approach with specific recommendations for Oxnard
- Assessment of current Oxnard Right of Way (ROW) Management policies and specific recommendations for change
- An evaluation of “dig once,” “joint trench” or “open trench” policies and specific policy recommendation for Oxnard
- An overview of pole-attachment guidelines and policies and recommendations on how to change or otherwise structure policy
- Address the use of wired vs wireless, including ROW and pole-attachment issues, legal concerns around above-ground versus underground
Leasing Fiber and other Infrastructure The City is also interested in guidance monetizing the current network by leasing key infrastructure, and in leveraging other City assets relating to telecommunications projects, such as small cell deployments and 5G. The section report should:
- Identify what City assets may be utilized by private firms in an asset-sharing model with revenue potential for the City.
- Provide guidance in establishing lease terms around the City’s leasing of fiber assets in an open-access market
- Business Model and Financial Analysis
The objective in this section is to analyze funding requirements, identify funding sources and perform a full financial analysis based on the build model and rollout plan as determined by the market assessment results, uptake rate and ROI, including pro forma financials.
Specifically, the business model and financial analysis should include:
- Review of potential financing structures and related governance and collateral models available to the City, which may include network ownership vehicles such as joint powers, agencies, public/private partnerships, economic development corporations and others;
- Provision of an analysis of a variety of funding options including, but not limited to, public/private partnerships, federal/state/private/philanthropic grants, general obligations bonds, revenue bonds and others where appropriate;
- Analysis of the advantages and disadvantages of each financing option and the potential impact of the different strategies on the business plan
- Discussion of financing network build-out and operation, maintenance and administration options, estimates for engineering diagrams and build costs
- Identification of and/or recommendations for required staffing, competencies and timing required to deploy the network
- Identification of legal strategies related to potential project risks;
- Provision to the City of a ten-year financial pro forma (including a profit and loss statement, balance sheet and income statements) for the provision of a community
gigabit fiber network. This pro forma will provide officials with a highly-detailed projection of revenue, expenses, debt costs, take rate projections, capital expenses and build-out plans. The analysis should provide detailed schedules that show:
o Operating income and cash flow o Net present value analysis o Projected revenues and benefits o Uses and sources of funds o Operational expenses o Depreciation schedule o Debt service analysis o Key Assumptions
- Phased Implementation Plan or Roadmap for Deployment
The objective of this task is to lay out the next steps for implementing the Master Plan including: identifying and prescribing the development of City-wide policies, regulations, procedures, and engineering standards needed to implement the master plan or facilitate the building of broadband infrastructure. The plan should also provide estimates on the cost of each implementation phase.
- Outline a phased approach, if recommended, to building the network, based on priority and opportunity,
- Creating master fund to manage and reinvest savings
- Provide guidance in coordinating budgets for smart city projects and applications
- Political will development strategies
- Master Plan Compilation
The objective of this task is to aggregate the findings, recommendations and documentation prepared in all previous tasks into a comprehensive Master Plan document. This document shall include:
- An Executive Summary
- Final technical memoranda from each previous task
- Final Recommendations and implementation roadmap
Maps and specific location data provided in the Master Plan should be GIS compatible so that construction can be coordinated with other City infrastructure projects.
The Consultant shall also prepare a PowerPoint presentation and conduct presentations to the Fiber Master Plan Tech Gov Subcommittee Team, Economic Development, Public Works, Development Services and the City Council in support of the document’s approval. The Consultant shall also attend meetings or teleconferences, if requested, with employees and officials to refine and clarify components of the Master Plan.