DISASTERRESPONSEANDRECOVERYWORKINGGROUP

REPORTANDRECOMMENDATIONS:COVID-19Response

Disaster Response and Recovery Working Group

Presented to the Broadband Deployment Advisory Committeeof the Federal Communications Commission

October 29, 2020

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Contents 1 Executive Summary 12 Introduction 32.1 WorkingGroupFormationandOrganization 32.2 FCCChargestotheWorkingGroup 52.3 RelationshiptoPreviousWorkingGroupRecommendations 5

3 Background 73.1 COVID-19 in the U.S. 73.2 Societal Impacts of the Pandemic 7

3.2.1 Remote Work 93.2.2 Distance Learning 103.2.3 Telehealth 113.2.4 Other Societal Impacts 11

3.3 Local Jurisdiction Impacts of the Pandemic 123.3.1 Stay at Home Orders and Access Restrictions 123.3.2 Effect on Municipal Workforces and Processes 133.3.3 Work with Critical Infrastructure Owners/Operators 14

3.4 Impact to Networks and Infrastructure 153.4.1 Overall Network Performance 153.4.2 Wireless Network Performance 173.4.3 Cable Network Performance 203.4.4 Wireline Broadband Network Performance 22

4 Broadband User Preparedness and Response 264.1 Pre-Incident Preparedness and Actions 264.2 Pandemic Response 27

4.2.1 Transitioning to Work-from-Home 274.2.2 Deciding If, How, and When to Return to Work 284.2.3 Remote Learning 304.2.4 Communication with Stakeholders 31

4.3 Recommendations/Best Practices Related to End-Users 324.3.1 TakeStepstoImproveBroadbandAvailability 324.3.2 TakeStepstoImproveBroadbandAdoption 334.3.3 ImplementDistanceEducationBestPractices 34

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4.3.4 ImplementVirtualWorkforceBestPractices 355 Municipal Permitting Preparedness and Response 35

5.1 Pre-Incident Preparedness and Actions 355.2 Pandemic Response 375.3 Recommendations/Best Practices Related to Municipal Permitting 375.3.1Establish Non-Emergency Permitting Practices that can Transition to Emergency Situations 375.3.2 Identify Necessary Staff and Resources to Transition to Emergency Permitting Processes 385.3.3Foster Good Relationships and Communications with Other Stakeholders 385.3.4 Implement Steps Prior to the Pandemic or Related Emergency 38

6 Provider Perspectives and Detail 396.1 Pre-Incident Preparedness and Actions 39

6.1.1 Network Overview 396.1.2 Sector Coordinating Mechanisms 406.1.3 Pandemic and Business Continuity Planning 40

6.2 Pandemic Response 416.2.1 Network Engineering and Optimization 416.2.2 Capital Investment 416.2.3 Field Work 436.2.3.1 Necessary Field Operations 436.2.3.2 Travel and Access Issues 436.2.3.3 Minimal Touch Installation and Maintenance Procedures 446.2.4 Shift to Telework for Non-Essential Personnel 456.2.5 Protective Measures for Essential Office and Field Staff 466.2.5.1 Physical Protective Measures 466.2.5.2 Alternative Scheduling and Logistics 466.2.6 Retail Activities 476.2.7 Coordination Efforts 476.2.8 Service Provider Community Support 48

6.3 Transition to the “New Normal” 486.4 Recommendations/Best Practices Related to Provider Resilience 49

6.4.1 Consider Additional Expedited Use of Special Temporary Authorizations 496.4.2 Use Pandemic Response Funds Flexibly to Address Availability and Adoption Issues 506.4.3 Provide More Effective Coordination and Communications with Respect to Access Letters 506.4.4 Continue Collaboration and Coordination Between Providers and Federal Stakeholders 50

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6.4.5 Implement More Effective Use of ESF#2 Communications 506.4.6 Update Emergency and Disaster Response Plans and Activities 506.4.7 Continue Sound Traffic Engineering Practices to Manage Network Traffic 50

7 Use of Future Technology and Innovations 518 Conclusion 53

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1 Executive Summary Thecoronavirusdisease2019(COVID-19)wasfirstidentifiedattheendofthe2019calendaryearanddeclaredaglobalpandemicinMarch2020.Becauseoftheneedforphysicaldistancingandotherpreventativemeasurestocurbtransmission,theCOVID-19pandemichasmadeAmericansmorereliantthaneveronbroadbandnetworksforwork,education,healthcare,accesstonewsandentertainment,andotheraspectsofeverydaylife.InlightofthisincreasedsignificanceofbroadbandinAmericans’lives,theFederalCommunicationsCommission(FCCorCommission)chargedtheDisasterResponse&RecoveryWorkingGroup(DRRWGorWorkingGroup)oftheBroadbandDeploymentAdvisoryCommittee(BDAC)toexaminehowbroadbandnetworksaidedthoseworkingandlearningfromhome,howpermittingchallengesarisingoutofthepandemicmayhaveaffectedbroadbanddeployment,howproviderssustainedtheirnetworksinthefaceofincreasingandshiftingdatademands,andwaysthattechnologycouldbeleveragedtomitigatesimilarchallengesinthefuture.1ThisWorkingGroupconsistsofabroadrangeofstakeholdersrepresentingagencies,companies,andorganizationsfromaroundthecountrythateachoffertheirownperspectivesonthedeploymentandusesofbroadbandinthefaceofthepandemic.Thefullimpactofthepandemicwillnotbeknownforyearstocomeandmanylessonsarestillbeinglearned.Nonetheless,astheFCCrecognizedinissuingitschargesandseekingrecommendationsthisyear,theDRRWG’sworktodateoffersrecommendationsandidentifiesbestpracticesinatimelymannerprovidingvalueevenasmuchofthecountrycontinuestorespondtothepandemic.Thereport’sprincipalfindingsinclude:

• Networksperformedwelloverallduringthepandemic.• Availabilityandadoptionchallengeswereintensifiedinapandemicenvironmentwheremany

criticalsocietalfunctionstransitionedtoonline,changingconsumerneedsalmostovernight.• Municipalitieswereabletoensurethatpermittinggenerallywasnotanobstacletomaintaining

and,asneeded,expandingbroadbandnetworksduringthepandemic.• Thenationalresponsetothepandemicpromptedrapidandsignificantsocialchanges,including

remotework,distanceeducation,andtelemedicine,whicharebecomingingrainedandwilllikelyleadtolong-termchangesinbroadbandusageandadoption.

Thepublichealthcrisisbroughtonbythepandemicledtomanyteleworkingsituations,remotelearningshifts,increasedtelehealth,virtualizedevents,andotherchangesaimedatminimizingtheneedforin-personactivities.Thesechangesineverydayactivitiesinturnincreasedusageanddemandonbroadbandnetworksacrossthecountry.Manyemployerstransitionedworkforcestoteleworkwherepossible,andmanygovernmentsimplementedstayathomemandatesorsaferathomeguidance,closedschools,andclosednon-essentialofficesordelayedin-personactivitiessuchasapplyingforadriver’slicenseoralibrarycard.Thisshiftinteleworkingwasmorecomplicatedforsomeduetofactorssuchaslimitedspaceinlivingquartersandthepresenceofmultipleresidentsinasinglehouseholdallworking

1FCCChairmanPaiAnnouncesNewChargesandSolicitsAdditionalNominationsfortheDisasterResponseandRecoveryWorkingGroupoftheBroadbandDeploymentAdvisoryCommitteetoAddressChallengesPresentedbyCovid-19,GNDocket17-83,PublicNotice,35FCCRcd3553,3553-3555(2020),https://www.fcc.gov/document/fcc-tasks-bdac-working-group-addressing-covid-19-challenges.

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andlearningfromhome.Additionally,businessandgovernmenttransitionedserviceslargelyonline,whichintroducedanewneedandurgencytobeabletoaccesstheinternet.TheWorkingGroupfoundtwooutstandingchallengesassociatedwithbroadband:(1)availability–thelackofsufficientconnectivityforuserstoparticipateasneededinteleworkingorremotelearningfunctions;and(2)adoption–thecircumstanceinwhichsufficientconnectivityexistsatagivenlocationbuttheuserdoesnotsubscribe.Thechallengeofadoptioncanbeattributedtoseveralpotentialbarriers,including(a)themonthlycostoftheservice;(b)thecostofaninternetcapabledevice;(c)knowledgeofhowtouseincreasinglycomplexdevicesandservices;and/or(d)lackofrelevancefromtheuser’sperspective.Whiletacklingavailabilityrequiressubstantialplanningandsignificantcapitalinvestment,itmustalsobenotedthat,baseduponcurrentbroadbandcoveragemapsandestimates,thereareapproximatelysixtimesmoreAmericansthathaveconnectionsavailablebutcurrentlydonotsubscribetobroadbandthanareconsideredunservedattheminimumbroadbandspeedmetricusedbytheFCCtoday.Thisreportincludesrecommendationsonstepsthatmightbeconsideredtoaddressbothchallenges,aswellasmeasurestopromotemoreeffectiveteleworkingandremotelearningenvironments.TheDRRWGalsoexaminedthepreparednessoflocalgovernments,focusingonhowtheseentitiescanmanageeffortsinamassteleworkingenvironmentandcontinueperformingessentialfunctions,suchaspermitting.Thisreportcontainsseveralrecommendationsintendedtoprovideguidancetolocalgovernmentsintheexecutionofthesefunctionseveninemergencysituationslikeapandemic.ThisreportfindsthatbroadbandnetworksintheUnitedStatesperformedwell,especiallyascomparedtonetworksinotherpartsoftheworld,despitesignificantincreasesindemandandmarkedshiftsinusagepatternsduringthepandemic.Thehighperformanceofthenetworksresultedfromseveralkeyfactors,includingthecontinuousinvestmentsmadebyproviderstostayaheadofprojecteddemands,networksengineeredtohandlepeakdemands,advancementsintechnologiesthatallowedfornetworkstoadjusttonewdemandsdynamically,andadditionalspectrummadeavailabletoprovidersbytheFCC.TheDRRWGalsoexaminedtheinnovativewaysinwhichserviceproviderscontinuedtoperformcriticalfieldinstallationandrepairfunctionsforusersduringthepandemicandearlychallengesinsecuringsufficientpersonalprotectiveequipment.Thisreportcontainsaseriesofrecommendationsforcommunicationsprovidersandfederal,state,local,tribal,andterritorialgovernmentstoadoptnewpoliciesandadaptexistingpracticesasthepandemiccontinues.Finally,theDRRWGevaluatedwaysinwhichtechnologymightbeusedtomitigatethevariouschallengesidentifiedelsewhereinthisreport,identifyingseveralpromisingtechnologiesworthyoffurtherconsiderationanddevelopment.ThisreportcontainsthefollowingrecommendationsforconsiderationbytheBDACandtheFCC:Recommendationstoimproveend-userresilienceduringpandemicresponseRecommendation4.3.1:TakeStepstoImproveBroadbandAvailabilityRecommendation4.3.2:TakeStepstoImproveBroadbandAdoptionRecommendation4.3.3:ImplementDistanceEducationBestPracticesRecommendation4.3.4:ImplementVirtualWorkforceBestPractices

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RecommendationstoenhancestateandlocalsupportforprovideremergencyactionsRecommendation5.3.1:EstablishNon-EmergencyPermittingPracticesthatcanTransitiontoEmergencySituationsRecommendation5.3.2:IdentifyNecessaryStaffandResourcestoTransitiontoEmergencyPermittingProcessesRecommendation5.3.3:FosterGoodRelationshipsandCommunicationswithOtherStakeholdersRecommendation5.3.4:ImplementStepsPriortothePandemicorRelatedEmergencyRecommendationstoensureeffectiveproviderresponseduringpandemiceventsRecommendation6.4.1:ConsiderAdditionalExpeditedUseofSpecialTemporaryAuthorizationsRecommendation6.4.2:UsePandemicResponseFundsFlexiblytoAddressAvailabilityandAdoptionIssuesRecommendation6.4.3:ProvideMoreEffectiveCoordinationandCommunicationswithRespecttoAccessLettersRecommendation6.4.4:ContinueCollaborationandCoordinationBetweenProvidersandFederalStakeholdersRecommendation6.4.5:ImplementMoreEffectiveUseofESF#2:CommunicationsRecommendation6.4.6:UpdateEmergencyandDisasterResponsePlansandActivitiesRecommendation6.4.7:ContinueSoundTrafficEngineeringPracticestoManageNetworkTraffic

2 Introduction 2.1 Working Group Formation and Organization InAugust2018,theFCCsoughtnominationsforthenewDisasterResponseandRecoveryWorkingGroup.2DRRWGmemberswereannouncedbytheFCCinNovember2018,3andthegroup’sinitialreportwasapprovedbytheBDAConMarch27,2020.4ThisreportrespondedtotheFCC’schargesforrecommendationsonmeasurestoenhancetheresiliencyofbroadbandcommunicationsinfrastructurebeforeadisasteroccurs,responsestrategiestominimizeanydisaster’simpactonbroadbandcommunicationsservices,actionsthatcanbetakentomorequicklyrestorebroadbandcommunicationsinfrastructureduringdisasterrecovery,andbestpracticesforcoordinationamongwirelessproviders,backhaulproviders,andpowercompaniesduringandafterdisasters.Adifferentkindofdisasterthananyseeninperhapsacentury,however,strucktheUnitedStatesinearly2020.WhiletheFirstDRRWGReportrecognizedthat“notwoemergenciesordisastersarethesame,”consistentwithchargesfocusedonphysicalnetworkinfrastructureandservicerestoration,itfocusedprimarilyandlogicallyondisasterssuchas“hurricanes,...tornadoes,earthquakes,and

2FCCSolicitsNominationsforNewDisasterResponseandRecoveryWorkingGroupoftheBroadbandDeploymentAdvisoryCommittee,GNDocketNo.17-83,PublicNotice,33FCCRcd8096,8096(2018),https://www.fcc.gov/document/fcc-seeks-applicants-bdac-disaster-response-and-recovery-group.3ChairmanPaiAnnouncesMembersofBDACDisasterResponseandRecoveryWorkingGroup,GNDocketNo.17-83,PublicNotice,33FCCRcd11006,1106-1108(2018),https://www.fcc.gov/document/chairman-pai-announces-members-bdac-disaster-response-working-group.4FCC,ReportandRecommendations,DisasterResponseandRecoveryWorkingGroup(Mar.27,2020)(“FirstDRRWGReport”),https://www.fcc.gov/sites/default/files/bdac-disaster-response-recovery-approved-rec-03272020.pdf.

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wildfires”–thekindsofincidentsseenmostoftenintheUnitedStatesoverthecourseofmanyyears.5JustastheFirstDRRWGReportwasbeingfinalized,however,theCOVID-19pandemicstruck.InApril2020,ChairmanPaiannouncednewchargestotheDRRWGaimedatassisting“theBDACindocumentingthevariousstrategiesandsolutionsthatstakeholdersaredevelopingandimplementinginrealtimetoaddressthedeployment-relatedchallengespresentedbythecoronavirus(COVID-19)pandemic.”Atthesametime,theFCCsolicitednominationsforadditionalDRRWGmemberstoassistincarryingoutthesenewcharges,6andnewmemberswereannouncedinJune2020.7ThemembersoftheDRRWGarelistedinAppendixAtothisreport.ThisincreasedtheDRRWGmembershipto41organizations,representingacomprehensivemixofgovernments,providers,associations,andotherstakeholders.TheWorkingGroupcreatedthreesubgroupstobeasefficientaspossibleinfocusingdiscussiononindividualcharges.Wedidnottrackmembershipofthesubgroupsasparticipationwasencouragedacrossanyorallofthembasedonindividualmembers’interestinthetopic.Thesubgroupsare:

• SubgroupA–“TeleworkingChallenges”OriginallybornoutoftheideaofaddressingCharges1,2,and5asdescribedfurtherbelow,thesubgroupfocusedprimarilyonend-userrelatedchallenges–includingbothresidentialandbusinessend-usersastheywereforcedtoadapttoaremote-workand/oraremote-schoolenvironment.Thisgroupwasco-ledbyToddGourdandDavidHartshorn.

• SubgroupB–“MunicipalChallenges”ThisgroupfocusedonCharges3and5asdescribedfurtherbelow,lookingtoaddressthechallengesrelatedtothecontinuityofgovernmentfunctionsintheremote-workenvironment.Thisgroupwasco-ledbyAndrewAfflerbachandTonyFischer.

• SubgroupC–“ProviderChallenges”ThisgroupfocusedonCharges4and5asdescribedfurtherbelowandexaminedbroadbandproviders’effortsinthefaceofthepandemic.Thisgroupwasco-ledbyKaylaGardnerandMelissaSlawson.

TheDRRWGdeterminedthatCharge5inparticular—waysthattechnologycouldbeusedtomitigatetheseandothersimilarchallengesinthefuture—wasrelevanttotheworkofallthreesubgroupsandspannedthescopeofeach.Moreover,theWorkingGroupobservedthatcertainotherchallenges,relatedspecificallytonetworkcapabilitiesandresiliencyanduseraccesstobroadband(incorporatingbothadoptionandavailabilityasseparateissues),cutacrossmanyoftheissuesdiscussedbythevarioussubgroups.

5FirstDRRWGReportat2.6FCCChairmanPaiAnnouncesNewChargesandSolicitsAdditionalNominationsfortheDisasterResponseandRecoveryWorkingGroupoftheBroadbandDeploymentAdvisoryCommitteetoAddressChallengesPresentedbyCOVID-19,GNDocketNo.17-83,PublicNotice,35FCCRcd3553,3553(2020),https://www.fcc.gov/document/fcc-tasks-bdac-working-group-addressing-covid-19-challenges.7FCCAnnouncesAdditionalMembershipofBroadbandDeploymentAdvisoryCommitteeDisasterResponseandRecoveryWorkingGroup,GNDocketNo.17-83,PublicNotice,35FCCRcd5669,5670(2020),https://www.fcc.gov/document/new-bdac-disaster-response-and-recovery-working-group-members-released.

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TheDRRWGcreatedasmallerfourthsubgroup—anEditors’Subgroup—inJulytoassistspecificallywithpreparationofthisreport.Thissubgroupwouldprovidearoughoutlineforthereport,managethecollaborativedraftasmembersaddedcontent,reviewthevariouscontributionsforacohesiveflow,andultimatelyformatthereport.Thissubgroupwasco-ledbyChrisAndersonandMikeRomano.TheDRRWGconductedfortnightlyconferencecallstocollaborateandhearupdatesfromthesubgroups.Thesubgroupsestablishedtheirownmeetingcadence,witheachmeetingweeklyduringthemonthsofJulyandAugusttoproducethisreportbytherequesteddeadline.

2.2 FCC Charges to the Working Group InApril2020,ChairmanPaiannouncednewchargesfortheDRRWGtoconsider:“Specifically,theWorkingGroupwillassisttheBDACindocumentingthevariousstrategiesandsolutionsthatstakeholdersaredevelopingandimplementinginrealtimetoaddressthedeployment-relatedchallengespresentedbytheCOVID-19pandemic.ItwillalsoenabletheBDACtoreportonbestpracticesandlessonslearnedfromtheresponsetoCOVID-19tohelpwiththeongoingresponsetothepandemic,andtoassiststakeholders,includingtheCommission,inpreparingforandrespondingtoanycomparablefuturecrises.”8TheWorkingGroupwastaskedwithconsideringandreportingonfivecharges:

1. Thechallengesassociatedwithshelter-in-placeandstayathomeenvironments;2. Usefulresponsestoamassteleworkingscenario,includinganystepsthatcanbetakeninadvance

toprepare;3. Bestpracticeswithregardtopermittingchallenges,includingthosecausedbythephysicalclosure

ofmunicipaloffices,ashifttoteleworkformunicipalemployees,andothercomplicationsarisingfromCOVID-19andsimilaremergencies;

4. Stepsprovidershavetakentosuccessfullyaddressthephysicalimpactsofthepandemiconbroadbandproviders,includingincreaseddemandforbandwidth,limitedstaffavailability,andlimitedabilitytoperforminstallations,maintenance,andrepairs;and

5. Waysthattechnologycouldbeusedtomitigatetheseandothersimilarchallengesinthefuture.TheDRRWGwasdirectedtoaddressdifferentchallengesfacingbroadbandproviders,stateandlocalgovernments,entitiesresponsiblefortheconstructionofbroadbandinfrastructure,thepublic,andotherstakeholders.TheWorkingGroupwasalsoaskedtoexaminehowallstakeholderscouldworktogethermosteffectivelytoensurethatbroadbandnetworkscontinuetoservevitalfunctionsandtoinclude,totheextentpossible,concretestepsandproceduresthatstakeholders,includingtheFCC,couldadopt.Giventhelimitedtimeavailableandhighvalueoftimelycompletionofitswork,theWorkingGroupwasinstructedtolimititsreporttothechargesnotedaboveandtobepreparedtopresentitsreporttothefullBDACatthatcommittee’sfinalmeetingof2020.

2.3 Relationship to Previous Working Group Recommendations TheBDACapprovedtheinitialReportandRecommendationsoftheDRRWGonMarch27,2020.Inthatreport,basedonthechargesgiven,theDRRWGfocusedondisastersthataffectthephysicalbroadbandinfrastructure.TheinitialreportwascompletedduringtheearlydaysoftheCOVID-19pandemicinthe

8SeeFCCTasksBDACWorkingGroupwithAddressingCovid-19Challenges,35FCCRcdat1.

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UnitedStateswhenstayathomeordershadnotyetbeenissued;thereportwasfinalizedandsubmittedforconsiderationattheendofFebruarytomeetrelevantdeadlinesfortheMarchBDACvote.TheDRRWGfindsthatthefollowingfiverecommendationsfromtheFirstDRRWGReportarerelevanttoapandemicresponse.

• Recommendation#1(PLAN1)-RelationshipBuildingandMaintainingFormalRelationships“Industryandgovernmentstakeholdersshouldfosteropportunitiesforongoingrelationshipbuildingactivitiesbetweenkeypersonnelfromallinterestedstakeholders,includinginformingpublicandprivateentitiesondisasterpreparednesspractices.”9

• Recommendation#2(PLAN5)-GovernmentApprovalProcesses“Industryandgovernmentstakeholdersshouldcontinuetodevelopandutilizegovernmentalprocessestofacilitatepreparatoryactivitiesinadvanceofemergencyordisasterevents,includingexpeditedpermittingprocessesforthetransportoffuel,generatoroperations,communicationsandconstructionsupplies,andtemporaryhousingandworkforces.Suchprocessesshouldalsoincludeproceduresforobtainingevent-specific,time-limitedwaiversandphysicalaccesstoinfrastructure.”10

• Recommendation#3(RESP2)-EmergencyOperationsCenter(EOC)Coordination“EOCsshouldincluderepresentativesfromcommunicationsandpowerstakeholdersinmeetingsanddiscussionsrelatedtoserviceresponseandrestorationactivitiestotheextentpossible.RobustparticipationinEOCcoordinationactivitiesbyallaffectedstakeholdersiscriticaltoensuringtimelymaintenanceandresponseactivities.”11

• Recommendation#4(RCOV1)-After-ActionAssessments“After-actionassessmentsareanimportantcomponentofpromotingbroadbandinfrastructureresiliency.Thereisnosubstituteforreal-worldexperience,whichcannotbefullysimulatedindrillsandexercises.Interestedstakeholdersshouldconductindividual,joint,and/orsectorspecificafter-actionreviewstohelpimproveresiliencypracticesandpolicies,learnfromeventexperience,andimproveplansforfutureevents.After-actionassessmentsshouldbeconsideredbystakeholdersandimplementedintoemergencypreparednessplanswhereappropriate.Anyrecommendationsfromafter-actionassessmentsshouldbeconsideredbytherelevantcommitteesandstakeholdersforimplementationintofutureplans,trainings,andprocedures.”12

• Recommendation#5(RCOV3)-InformationSharing“Continuingafteradisaster,communicationsandpowerstakeholdersshouldparticipateinrelevantsectorcoordinatingcouncilstoimproveinformationsharinganddecision-making.Robustparticipationwillresultinthesharingofinformationaboutkeyfacilitiesandoutageareasthatneedpriorityelectricandcommunicationssupportincludingthelocationsofhospitals,ECCs,policeandfiredepartments,municipalEOCs,andshelters.”13

9FirstDRRWGReportat2.10Id.11Id.at15.12Id.at20.13Id.at20.

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IntheconclusionoftheFirstDRRWGReport,westatedthat:

“WehopethediscussionsthatoccurredduringthecourseofthisWorkingGroupcanbeusedasaspringboardtocontinuethedialoguebetweenindustry,government,andotherstakeholdersaswelooktowardsthefutureofcommunicationsandpowerinfrastructureandinmaintainingaconnectedsociety.”14

WebelievethechargesfromtheFCCwithrespecttotheCOVID-19pandemicandtheopportunitytoprepareasecondreportfocusedonthepandemic’simpactsforourconnectedsocietyrepresentjustthiskindofnecessarycontinuingdialogue.

3 Background 3.1 COVID-19 in the U.S. OnDecember31,2019,theChinaCountryOfficeoftheWorldHealthOrganization(WHO)wasinformedofcasesofpneumoniawithunknowncauseinWuhanCityintheHubeiProvinceofChina.15OverthenextseveralweeksthediseasecontinuedtospreadinandaroundWuhan,whileadditionalcasesweredetectedinThailand,Japan,andSouthKorea.TheCentersforDiseaseControlandPrevention(CDC)reportedthefirstcaseintheUnitedStatesonJanuary21.OnJanuary31,WHOdeclaredaGlobalHealthEmergency,afterwhichmanycountriesbeganrestrictingglobalairtravel.OnMarch11,theWHOdeclaredthedisease,bythendesignatedCOVID-19,apandemic.OnMarch13,theU.S.declaredCOVID-19anationalemergency.Bythen,manyschoolsandbusinessesbeganplanningforandtransitioningtoworkfromhomeanddistanceeducation.Overthenextseveralmonths,statesenactedvariousprotectivemeasuressuchaslimitinggatherings,encouragingtelework,andclosingnon-essentialbusinesses,particularlythosethatrequiredcloseinteractionsamongemployeesandcustomers.NewCOVID-19infectionsintheU.S.increasedthroughearlyApril,peakingatjustover32,000newcasesperdaybeforedroppingbacktoaround20,000perdaybyearlyJune.Newcaseratespickedupinmid-Juneuntilhittingasecondpeakjustunder70,000newcasesperdayinlateJuly.JohnsHopkinsUniversityreported,asofSeptember23,2020,therehadbeenover6millionconfirmedcasesresultinginover200,000deathsintheU.S.16 3.2 Societal Impacts of the Pandemic Unliketraditionaldisasterssuchashurricanes,floods,orfireswhichhaveaspanofdaysorweeks,theCOVID-19pandemichasalreadyspannedmonthsandthereisnocleartimeframeyetforthepandemictoend.Accordingly,Americansocietycouldnotsimplywaitfor“thestormtoclearorthefloodwaterstorecede”andreturntonormal.Instead,schools,governments,employers,andothersneededtorapidlyadapttothechallengesposedbythepandemic.Similarly,andunlikeahurricane,providerscouldnot

14Id.at21.15WorldHealthOrganization,NovelCoronavirus(2019-nCoV)SituationReport-1,(Jan.20,2020).https://www.who.int/docs/default-source/coronaviruse/situation-reports/20200121-sitrep-1-2019-ncov.pdf?sfvrsn=20a99c10_4.16UnitedStatesOverview,JOHNHOPKINSUNIVERSITY,https://coronavirus.jhu.edu/region/united-states,(lastvisitedSept.23,2020).

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andcannotsuspendnetworkbuildoutforthedurationoftimethatCOVID-19maypersist.AsCOVID-19begantospreadintheU.S.inMarch,manyemployerstransitionedworkforcestoteleworkwherepossible.Manyjurisdictionsimplementedstayathomeguidanceandclosedschools,furtherpushingwork,school,healthcare,consumer,andsocialinteractionstoremoteandonlinevirtualengagements.Overthefollowingmonths,thesetrendscontinuedasAmericansadaptedtotheconditionsofthepandemic.Remotework,distancelearning,andtelehealthsawprofoundchangesoverthisperiodasdetailedbelow.COVID-19affectedtheAfricanAmericancommunityatagreaterratewhencomparedtootherracial/ethnicgroupsformanyreasonsthatwedonotwanttodiminishbutfalloutsideofthescopeofthisreport,includingworkinginjobsthatdonotofferpaidleaveorlacktheopportunitytoworkfromhome.17Asdiscussedindetailbelow,remotework,distancelearning,andtelehealthputaspotlightonthecriticalityofbroadbandinternetaccessforsocietalresilience.Collectively,theserequirethecapacityandlatencytosupportmultiplemembersofahouseholdsimultaneouslylearningorworkingonline,whichmayrequiretwo-way,real-timevideostreams.Unfortunately,adigitaldividepersists;millionsofAmericanhouseholdsdonothavebroadbandservice,eitherbecausetheirlocationslacktheinfrastructure(availability)orbecausetheyhavenotsubscribedand/ormaybeunabletosubscribetoservicewheretheinfrastructureisavailable(adoption).ThechartbelowhelpstoilluminatetherelativeestimatedmagnitudeoftheseconcernsbasedupondatasetforthintheFCC’s2020BroadbandDeploymentReport.18

17TabiaAkintobi,TheresaJacobs,DarrelSabbs,KishaHolden,RonaldBraithwaite,L.NeiceyJohnson,DanielDawes&LaShawnHoffman,.CommunityEngagementofAfricanAmericansintheEraofCOVID-19:Considerations,Challenges,Implications,andRecommendationsforPublicHealth,CENTERSFORDISEASECONTROLANDPREVENTION(Apr.13,2020),https://www.cdc.gov/pcd/issues/2020/20_0255.htm.18InquiryConcerningDeploymentofAdvancedTelecommunicationsCapabilitytoAllAmericansinaReasonableandTimelyFashion,GNDocketNo.19-285,Report,FCC-20-50(Apr.24,2020),https://www.fcc.gov/document/new-fcc-report-shows-digital-divide-continuing-close-0.

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Availabilityisapersistentandfoundationalconcernthat,asdiscussedelsewhereinthisreport,likelyrequiressomecombinationoffederal,state,andlocalgovernmentalinitiativesandprivatesectoreffortstoovercome—especiallyinareaswheredistanceanddensitypresentsignificantandexpensivechallengestoboththebusinesscaseforinvestmentinnetworksandthesustaineddeliveryofuniversalservice.Meanwhile,non-adoption—baseduponcurrentmappingdataanddefinitionsofbroadband—affectsmanymoreAmericansthanavailability(measuredattheFCC’scurrentminimumbroadbandmetric).19Adoptionisitselfacomplexissuewithmultiplefacetsthatlikelyrequirediscreteandtailoredsolutions,includingaddressingalackofinterestorperceivedpurposeforbroadbandoraninabilitytoaffordservice.Evenasthesolutionstoeachchallengemustbetailored,thisdivide,whetheravailabilityoradoption-driven,largelyhasthesameimpactonpeoplewholackthesameabilitytowork,study,andmanagehealthcareneedsonline.3.2.1 Remote Work Theresponsetothepandemicinducedamassivesurgeoftelework.20Whilemanycompaniesandworkershadpreviouslyadoptedteleworktovaryingdegrees,thisrapidandsustainedsurgecausedmanyorganizationsandindividualstostruggletoimplementteleworkinginchallenginglogisticalenvironmentalcircumstances.Astheadagegoes,necessityisthemotherofinvention;acrosstheeconomy,companieslargeandsmallandgovernmentalentitiesatalllevelsfoundthatinpractice,theycouldbroadlyengagelarge-scaleandlong-termteleworkeffectively.Thisteleworkshifthasalreadyhadsomeradical,disruptive,andunforeseensocietalimpacts.Theabilityofalargesegmentoftheworkforcetoworkremotelylessenedtheeconomicdownturn,relativetowhatitwouldotherwisehavebeen.Work-from-homehassubstantiallyreducedautomobiletrafficandpublictransportuseinmanyareas.Althoughteleworkhadthedesiredeffectofreducingpopulationdensityinofficebuildings,thisreductionhadsecondorderimpactstolocalservicebusinessessurroundingthoseoffices.Whileteleworkwasaboontosomeworkersandemployers,manyoccupationsandbusinessesbytheirnaturerequirein-person,on-sitepresence,includingmanufacturing,services,healthcare,emergencyservices,andnationalsecurity.21Theinabilityofmanyworkerstoworkremotelymayultimatelyresult

19Asbroadbandavailabilitymapsimprovetoidentifyservicesavailableatindividuallocationsratherthanatthecensus-blocklevel,itisexpectedthatsomeAmericanscurrentlyshownasnotadoptingwillactuallybeshowntobelimitedbynon-availability.Regardlessoftheexactratioofavailabilityandadoptionasarootcause,thefactremainsthatmorethan100millionAmericansdonothavebroadbandinthehomebaseduponcurrentdefinitions.20SupplementalDataMeasuringtheEffectsoftheCoronavirus(COVID-19)PandemicontheLaborMarket,U.S.BUREAUOFLABORSTATISTICS(Sept.4,2020),https://www.bls.gov/cps/effects-of-the-coronavirus-covid-19-pandemic.htm#highlights.21RakeshKochhar&JefferyPassel,TeleworkMaySaveU.S.JobsinCOVID-19Downturn,EspeciallyAmongCollegeGraduates,PEWRESEARCHCENTER(May6,2020),https://www.pewresearch.org/fact-tank/2020/05/06/telework-may-save-u-s-jobs-in-covid-19-downturn-especially-among-college-graduates/(citingJonathanDingel&BrentNeiman,HowManyJobsCanBeDoneatHome?,NATIONALBUREAUOFECONOMICRESEARCH(Apr.2020)(estimatingthat60%ofjobsasofFebruary2020couldnotbeperformedremotely),https://www.nber.org/papers/w26948.pdf).

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insignificantdistributionalimpactsacrosstheeconomyandsociety;generallywhite-collaroccupationsaremoreconducivetoteleworking,whileblue-collarandpink-collarjobsarelessconducive.Unlikemostdisastereventswhichshortlyallowforareturntonormal,itappearsthattheshifttoteleworkinducedbythepandemiccouldhaveasubstantialandpermanentimpactonsociety—becomingasignificantpartofanewnormal.22Thismayhavesignificantsecondaryeffectsonseveralsectorsincludingtransportationinfrastructure,commercialrealestate,andevenhousingpatternsasteleworkde-linksworkfromofficelocation.Further,currentlyunseeneffectsmayfollowsuchasshiftsinworkskillsdemanded.Greatermovementfromdenseurbancorestolessdenselypopulatedareasmayalsobeobserved.3.2.2 Distance Learning COVID-19significantlyimpactedschoolsystemsacrosstheU.S.Associaldistancingrequirementsmaderemotelearninganecessity,manyschoolsanduniversitiestransitionedtoremotelearningmodelswithlittleornotimeforsuchatransition;indeed,manyschoolssentstudentshomeforanexpectedweekofspringbreakwhoneverreturnedtoin-personclassesfortheremainderoftheschoolyear.Asthe2020-21schoolyearbegins,communitiesareagainwrestlingwithopeningschoolssafelyandbalancingpandemicriskmitigationthroughdistancingagainstthebenefitsofin-personinstructionandlearning.Unfortunately,thedigitaldividelimiteddistanceeducationopportunitiesformanyAmericans.InLosAngeles,forexample,localofficialsstatedthatthelackofbroadbandaccessathomecontributedtoover40,000studentsintheirmunicipalitynotcomplyingwithCOVID-19onlinelearningmandatesinSpring2020.StudentsinHolland,Michiganwhodidnothavereadilyavailableaccesstobroadbandathomewereoftenforcedtositalongsidetheroadorinschoolandlibraryparkinglotstogetasignaltocompletetheirhomework.InRochester,NewYork,wherethehomeworkgaphashadadisproportionateimpactonAfricanAmericanandHispanicstudents,thecityandschooldistrictpartneredtoprovidebothtechnologyandconnectivitysolutions.Despitemanyeffortstodatetoclosethesedivides,theypersistinmanyplaces.InFortCollins,Colorado,wherestudentsinmobilehomeparksrarelyhavewirelinebroadband,theCitydistributedhotspotsandotherportableconnectivitysolutionstoconnectstudentstobroadband.LocalofficialsinLouisville,Kentucky,acknowledgedthatshort-termdigitalinclusionprograms,implementedinthewakeofCOVID-19,mayultimatelybeunsustainableifremotelearningcontinuesintotheFall.Unfortunately,studentswhocouldbenefitfromstate,local,orfederalbroadbandprograms,suchasLifeline,maynotevenknowthattheyareeligible;forexample,inKingCounty,Washington,whereoneinfourhouseholdsdonothaveminimumbroadbandspeeds,47%ofhouseholdswhowouldqualifyforlow-costequipmentandinternetprogramsaresimplyunawareofthem.23Whileresolvinglimitationstoavailabilityandadoptionareobviouslycriticaltoclosingthedigitaldivide,thesearenottheonlyobstacles.Theneedforbroadbandaccessdevices,affordableserviceplans,anddigitalliteracytraining—innativelanguages—forteachers,students,parents,andgrandparentsmust

22KatherineGuyot&IsabelSawhill,TelecommutingWillLikelyContinueLongAfterthePandemic”,THEBROOKINGSINSTITUTION(Apr.6,2020),https://www.brookings.edu/blog/up-front/2020/04/06/telecommuting-will-likely-continue-long-after-the-pandemic/.23ASpotlightonKingCounty,Washington,NEXTCENTURYCITIES(July28,2020),https://nextcenturycities.org/king-county-wa-where-digital-equity-is-fundamental-to-social-justice/.

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alsobeengagedtoincreaseopportunitiesforallAmericanstobenefitfromeffectivedistancelearning.Additionally,sustainabledistancelearningwilllikelyrequiresubstantialinvestmentsandupgradesinschoolsystemvirtualprivatenetworks(VPNs)andotherinformationtechnology(IT)resources,virtualhelpdesks,internetsecurityprotections,andameanstocommunicateavailableresources,suchasfunding,maps,andinternetusageplans,tosupporttheonlinelearningactivities.AsCOVID-19continuestoimpactcommunitiesthroughoutAmerica,thecommunicationsindustryhassteppedintohelpprovidecriticalaidandsupporttothoseinneed,includingbyprovidingaccesstodistancelearningtechnologies.3.2.3 Telehealth InresponsetoCOVID-19,thehealthcareindustrytransformedaspectsofitsservicedeliverymodel.Thetraditionalmodelofin-personpatientandphysicianinteractionelevatedtheriskofspreadingCOVID-19.Byquicklyadoptingtheuseofexistingtechnologies,healthcareprovidersacceleratedsolutionstoincreaseremotevisitstopatienthomesorataggregationsitesset-upatschoolsorworkplaces.Additionally,thehealthcareindustryneededtoquicklyimplementothervirtualhealthcaresupportfunctions,suchasexpandinginsurancepaymentstocovervirtualvisits,enablingaremoteadministrativeworkforce,digitizingpatientrecords,andadoptingelectronicsignatures.AMay2020McKinseyreportdocumentedthegrowingrelianceontelehealthduringthepandemic.Overalladoptionoftelehealthsurgedfrom11percentofpatientsleveragingitin2019to46percentofpatientsnow.Healthcareprovidersreporttheyareseeing50to175timesasmanypatientsviatelehealthastheydidbeforethepandemic.Longerterm,expertspredictthatannualtelehealthrevenuecouldgrowfrompre-COVID-19$3billionto$250billion.24Asnotedabovefordistanceeducationandremotework,two-wayvideotelepresencereliesonbroadbandinternetservice.Thismadedeliveringtelehealthserviceschallenging,especiallyinrural,remotecommunitieswithoutorwithlimitedbroadband.Whilenotthecaseforeveryruralarea,toomanyruralcommunitiesdidnothavebroadbandinfrastructureorservicesavailabletoeffectivelydeliverhealthservicesremotely.Basedontheprojectedgrowthoftelemedicine,thereisagreatneedtoensurethataffordable,reliablebroadbandconnectivityisavailabletoallAmericans.3.2.4 Other Societal Impacts DuringCOVID-19,broadbandconnectivitywasnotjustcriticalforlearning,working,andgettinghealthcare;broadbandprovidedacriticalmechanismforpeopletostayconnected.Whenpublichealthconcernsendedhopesofhighschoolgraduationceremonies,2020graduatesfromcommunitiesnationwidefoundawayto“GraduateTogether”withanationallytelevisedceremonythatalsostreamedonline.25Weddingceremonies,oncemarkedbylargegatherings,forcedcouplesinself-isolationtofindnewwaystoshareritualswithfamilyandfriends.Churchesturnedtosocialmediatoreachcongregants

24OlegBestsennyy,GregGilbert,AlexHarris&JenniferRost,Telehealth:aQuarter-Trillion-DollarPost-COVID-19Reality?,”MCKINSEY&COMPANY(May,2020),https://www.mckinsey.com/industries/healthcare-systems-and-services/our-insights/telehealth-a-quarter-trillion-dollar-post-covid-19-reality#.25XQInstitute,GraduateTogether2020,YOUTUBE(May16,2020),https://www.youtube.com/watch?v=MMBEdVG2P6Q.

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forreligiousceremoniessuchasweddingsandfunerals.Lessconnectedpopulations,suchasseniors26andthedisabled,27whomaystrugglewithisolationinnormaltimes,wereatheightenedriskduringthispandemic.3.3 Local Jurisdiction Impacts of the Pandemic Localgovernmentsareresponsibleforavarietyofessentialservicesthatremainvitalduringapandemic.Inadditiontotheseessentialgovernmentfunctions,localgovernmentsalsofacilitateservicesandindustriessuchascommunications,financial,manufacturing,construction,transportation,andenergy.Inresponsetothepandemic,manylocalgovernmentstransitionedtoteleworkandlimitedaccesstogovernmentbuildingsbyvisitorsandnon-essentialstaff.Inadjustingtothesechanges,localgovernmentshaveworkedhardtobalancetheimperativetoprotectthepublichealthandsafetywiththeneedtoensurethatmunicipalservicesandprocessescontinuetotheextentreasonablypossibleunderthecircumstances.3.3.1 Stay at Home Orders and Access Restrictions Justasthepandemicrequiredmanybusinessestoclose,itrequiredmanygovernmentbuildingstoclosetheirdoorstovisitorsandtotransitionnon-essentialgovernmentemployeestotelework.Thetransitionrequiredstateandlocalgovernmentstoquicklyestablishnewpoliciesandprocedures,includingteleworkpolicies,remoteaccess,andcybersecurityprotocols,toensureessentialservicesremainedavailable.Forexample,tocontinuetodobusiness,localgovernmentcouncilsandboardsneededtofigureouthowtoconductmeetingsincompliancewithopenmeetingsrequirements.Thisisparticularlyimportantbecausemanyexistinglocalrequirementscouldnotbealteredorimplementedtoaddressthepandemicwithoutactionbythecouncilorboard.Inaddition,thewidespreadclosuresandstayathomeordershadeconomicconsequencesthatimpactedstateandlocalgovernmentbudgets.Manygovernmentagencieswereormaybeforcedtofurloughorlayoffstaff.Withrespecttobroadbanddeployment,stayathomeordersrequiredthetransitionofin-personactivities,includingpermitting,payment,meetings,andinspections,toremoteorsociallydistantprocesses.Whereonlinepermittingandpaymentprocessesalreadyexisted,thistransitiongenerallyrequiredlittleaction,providedthatgovernmentnetworksandemployees’broadbandservicesweresufficienttoaccessandutilizetheonlinesystem.Wheresuchsystemsdidnotexist,localgovernmentseitherimplementedonlineprocessesororganizedanotherpermittingsystem,asdescribedbelow.Acrossallgovernmentagencies,acriticalfactoristheabilityforstafftosecurelyaccessthenetworkandhavesufficientbroadbandaccessathometocompletenecessarytasks.

26DebraBerlyn,OlderAdults,BroadbandandCOVID-19,MORNINGCONSULT(Apr.15,2020),https://morningconsult.com/opinions/older-adults-broadband-and-covid-19/.27MonicaAnderson&AndresPerrin,DisabledAmericansAreLessLikelytoUseTechnology,PEWRESEARCH(Apr.7,2017),https://www.pewresearch.org/fact-tank/2017/04/07/disabled-americans-are-less-likely-to-use-technology/.

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3.3.2 Effect on Municipal Workforces and Processes Duringthepandemic,manymunicipalitieswerefacedwithavarietyofnewchallengesinadditiontoadaptingtoteleworkandotherworkplacechangesnecessitatedbythepandemic.Forexamples,municipalitiesoftenwereattheforefrontof:

• PreventingthespreadofCOVID-19,particularlyamongat-riskandvulnerablecommunities.• Addressinghealthcarefacilities,equipmentandstaffingshortagesandneedsintheevolving

pandemic.• Providingmealstostudentsthatrelyonfreeandreduced-pricemealsatschoolsthatareclosed.• Providingguidance,education,andresourcesforcitizensaboutCOVID-19.• Helpingcitizensunderstandthebenefitsofsocialdistancing,wearingfacecoverings,andother

safetypractices.• Providingpublicsafety,publichealth,andemergencypersonnelwiththeresourcesandtoolsto

addressthiscrisiswhileprotectingtheirownhealth.• Supporting,housing,andshelteringhomelessfamilies,veterans,andindividuals.• Ensuringutilityandwaterresources.• Deliveringpublicworksandtransportationfunctionstomaintainroads,removetrash,and

managetherights-of-way.

Inadditiontothesepandemic-relatedservices,localgovernmentsretainedtheirday-to-dayservices,includingpermitting.Localgovernmentshandlemanycriticalpermitsandprocessesforresidents’dailylives:businesspermitsandlicenses,constructionandrenovationpermits,animallicenses,amongothers.Continuingtoaccept,process,andissuelocally-requiredpermitsisoneaspectofteleworkingthatlocalgovernmentshadtoaddress.Insomecommunities,thisprocesswaslargelyonlinepriortothepandemicandthuslittle,ifany,changewasnecessary.Forothers,limitedaccesstobuildingsandstaffrequiredatleasttemporarychangestothetypicalpermittingprocesstoenablepermitstobeissuedwhereappropriate.Withrespecttopermitsrelatedtobroadbanddeployment,thevastmajorityofmunicipalitieswereabletotransitiontoteleworkandmakeotherprocesschangestoensurethatpermittingwasnotanobstacletomaintainingand,asneeded,expandingbroadbandnetworksduringthepandemic.Municipalitiesthatfacedmorechallengesinmaintainingservicesgenerallyweresmallerjurisdictionswithlimitedresources,resultingindelayswhen:(a)necessarystaffbecameillorwerereassignedtoothercriticalworkandcouldnoteasilybereplaced;(b)therewasalackofsufficientnetworkcapacityorhardware(e.g.,laptops)forteleworkingstaff;(c)softwareandprogramsforonlinepermittingwerenotyetimplemented;and/or(d)budgetimpactsresultedinfurloughedemployees.Asdescribedabove,whereonlinepermittingprocessesalreadyexisted,thepandemichadlittleimpactonmanyaspectsofthepermittingprocess.Whereonlineprocessesdidnotexist,municipalitiesenactedarangeofsolutions,suchascreatinganemailaddresstowhichpermitsshouldbesent,designatingastaffmemberasthepointofcontactforallsubmittals,orestablishingdropboxesoutsidegovernmentbuildingstoallowpaperapplicationstobesubmitted,collected,andreviewedwithoutcontactoraccesstobuildings.Inspectionswereabletobeconductedusingsocialdistancingor,insomecases,videos/photossubmittedbytheapplicant.

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3.3.3 Work with Critical Infrastructure Owners/Operators Fromtheoutsetofthepandemic,stateandlocalgovernmentsworkedwithcriticalinfrastructureownersandoperatorstoensurebroadbandservicesremainedavailabletoresidents,necessaryupgradescouldbeaccomplished,andservicescouldbeextendedasneeded.Nationalmunicipalorganizations,includingtheNationalLeagueofCitiesandtheNationalAssociationofTelecommunicationsOfficersandAdvisors,workedwithprovidersandtheirassociationstodiscusschallengesinrespondingtothepandemic.Stakeholdersidentifiedandworkedtoresolvedeploymentissues,including:

• Changestomunicipalcodesandprocessestoaddressstayathomeorders,teleworkingandotherpandemic-relatedimpactstoexistingprograms:Stakeholdersrecognizedthatfacilitatinggovernmentmeetingsthatcomplywithopen/publicmeetingslaws,whichoftenwerenecessarytochangeexistingprocesses,generallyrequiredactionatthestateleveltoadjustopenmeetingrequirementsandnewtechnicalsolutionstocomplywiththoseadjustments.Stakeholdersalsorecognizedpotentiallimitationsonresources,suchasfundingforlegalcounsel,toreviewandreviseordinancestoaddressthenewlimitations.

• Lackofcapacitytocreatenewonlinesystemsoralternativepermittingprocesses:Manyindustryrepresentativesofferedassistanceandtechnicalsupporttojurisdictionsthatlackedtheresourcestotransitiontoonlineandoffsitepermitprocesses.Forexample,stakeholdersrecognizedsomelocalgovernmentslackedthecapacitytoacceptlargefilesthataretypicalofdocumentsrequiredforsitingapplicationsandindustryofferedtoestablishcloudstorageaccountstoaddressthisissue.

• Prioritizingcriticalwork:Recognizingthemanydemandsongovernmentstaffandthepotentialforimmediatebroadbandneedsforunservedresidents,newlyestablishedfieldhospitals,andothertemporaryfacilitiestoaddressthepandemic;stakeholderssuggestedthatapplicantsimplementameansofdocumentingpermitsthatrequiredexpeditedprocessingtoaddresspandemic-relatednetworkissuesthatimpactpublichealthandsafety.Closecoordinationbetweenprovidersandmunicipalitieshelpedensurethatallpriorityandcriticalworkcouldgetdoneinatimelyandefficientmanner.Insomecases,mutuallytollingshotclocksonpermitsallowedmunicipalitiestoprioritizeworkwithoutconcernsaboutmissingdeadlinesordeemed-grantedpermits.

• Deferringsubmissionofsomehardcopydocumentationorfees:Stakeholdersrecognizedthat,whereconsistentwithlocalcodes,documentsthatcannotbesubmittedelectronically,suchasoriginalsignaturesorraisedseals,couldbesubmittedatalaterdatesothattheydonotdelaynecessarypermits.Similarly,wherethereisnoprocessforonlinefeepaymentsorotheravailableprocessestosubmitpermitfees,itmaybeappropriatetoallowfeestobepaidatalaterdateortoacceptevidencethatchecksweresenttodesignatedlocations.

• Safetyandsufficientstaffingforinspections:Stakeholdersrecognizedtheneedtocontinueinspectionsofsitesselectedbyapplicantsandtocontinuethepracticeofconsideringanddiscussingalternativelocationswithapplicants.Inspectorsdidnotreportdelaysordifficultiesgoingtositesasthisworkandstaffareconsideredessential,thoughsomejurisdictionsmayhavelimitedstaffavailableduetoillness,quarantinerequirements,orotherpressingassignments.Stakeholdersrecommendedprioritizinginspectionsforinfrastructurethatserveemergencyandpublicsafetycommunications,mutually-tollinginspectiondeadlines,industryfinancialassistancetohirethirdpartyinspectorswhereappropriate,and/orinsomecircumstances,allowinginspectorstoreviewtheinstallationvirtuallyfromaremotecomputerterminalorthroughphotosofthesite.

• Invokinglocalemergencyworkprotocols:Stakeholdersrecognizedthatfederal,state,local,tribalandterritorialgovernmentsdetermineif/whenthepandemicconstitutedanemergencyunderexistingordinances,regulations,andagreementsandworkedtoresolvenovelquestions

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regardingemergencyworkprotocolimplementation.StakeholderssuggestedthatlocalgovernmentsconsiderguidanceissuedbytheCybersecurityandInfrastructureSecurityAgency(CISA)undertheDepartmentofHomelandSecurity(DHS)andNationalCoordinatingCenterforCommunications(NCC)letters28toallowtelecommunicationstechnicianstoaccessinfrastructuretomaintainservice;however,thisguidancedoesnotrelieveprovidersoftheneedtoobtainrequiredpermitspriortoperformingwork.

3.4 Impact to Networks and Infrastructure WhilethetransitionofsomanyAmericanstoremotework,distanceeducation,andtelemedicinedrovesignificantshiftsindemandfornetworkcapacity,U.S.serviceproviders’networksheldupwell.Asnotedbelow,independentthirdparties(suchasSamKnowsandothers)wereconsistentintheirresultsthatU.S.broadbandnetworksperformedwelldespitesignificantincreasesindemandandmarkedshiftsinusagepatterns.Asdetailedinthesectionsthatfollow,severalfactorsunderpinnedthehighperformanceofU.S.networks:

• U.S.providersmakecontinuoussignificantinvestmentsincapacityandcapability,generallyplanningtostay12to18monthsaheadofdemand.

• U.S.networksareengineeredandbuilttohandlepeaktraffic,whichhastypicallybeendrivenbystreamingvideoentertainmentdemandsduringtheeveninghours;remoteworkanddistancelearningdemandsweretypicallyearlierintheday,resultinginalongerperiodofhighdemandandalargeraveragedemand,butamoremodestincreaseinpeakdemand.

• Tore-balancetrafficloadsonthenetworks,U.S.providersleveragedtraditionalnetworktrafficengineeringaswellasadvancementsinnetworkengineeringincludingsoftwaredefinednetworks,networkfunctionvirtualization,cloudandedgecomputingaswellasartificialintelligence.

3.4.1 Overall Network Performance Manynewsoutlets,publicpolicyorganizations,andspeedtestcompaniesanalyzedU.S.broadbandperformanceasthenationadaptedtoCOVID-19.Whilespecificsvariedslightlybasedonmethodologyanddifferenttimeperiodsusedforbenchmarksorcomparisons,theconsistentresultwasthatU.S.broadbandnetworksperformedwelldespitesignificantincreasesindemandandmarkedshiftsinusagepatterns.SamKnows,apartnerwiththeFCConMeasuringBroadbandAmerica,29publishedtheresultsfor500,000homesrunningautomateddownloadspeedtestswhereeachspeedtestused16concurrentTransmissionControlProtocol(TCP)sessionsandmeasuredthespeedtoamajorU.S.ContentDeliveryNetwork(CDN)fortheperiodMarch12,2020,toMarch24,2020.SamKnowsreportedthatamajority

28Seesection6.2.3.2ofthisReportformorediscussionofCISAGuidanceandNCCLetters.29MeasuringBroadbandAmerica-OpenMethodology,FEDERALCOMMUNCATIONSCOMMISSION(2017,July11),https://www.fcc.gov/general/measuring-broadband-america-open-methodology(lastvisitedSept.8,2020).

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ofthetestsonlysawabout1%declineinthedownloadspeedwiththelargestdeclinebeing3.9%inMichigan.30Similarly,Dr.Anna-MariaKovacs,aVisitingSeniorPolicyScholarattheGeorgetownCenterforBusinessandPublicPolicy,usedOokladatatoconductacomparativeanalysisofU.S.andEuropeanbroadbandnetworksduringtheresponsetoCOVID-1931andfound:

• U.S.networksoutperformedEuropeanpeersinabsolutedownloadspeedsacrossbothfixedandwirelessnetworks.

• U.S.networkssufferedlesscongestion-basedslowdownthanEuropeanpeersacrossbothfixedandwirelessnetworks.

• U.S.fixedandwirelessnetworksmaintained97.5%and100%ofpre-COVID-19baselinedownloadspeedsrespectivelyduringtheperiodofMarch2throughJune7,2020.

BroadbandNowstudiednetworkperformanceinthe200largestUScitiesduringthekeyMarch15-21,2020transitiontostayathomeengagements.32SomeresearchersarguethatBroadbandNow’ssingle-TCPconnectionmethodologyleadstolowerthanactualspeedmeasurements33butevensotheirfindingsshowednetworksoverwhelminglymetCOVID-19-inducedchangesindemand:

• Usersinmostofthecitiesanalyzedwereexperiencingnormalnetworkconditions,suggestingthatInternetServiceProviders(ISPs)(andtheirnetworks)helduptotheshiftingdemand.

• Evenforthecitiesthatshowedsomedecrease,thevastmajorityofthemwerestillwellwithinspeedsthatcansupportcrucialremoteworkandlearningtasks.

• Eveninthecitiestheyjudgedtohavethebiggestimpacts,providersstillmaintainedmediandownloadspeedsnearlytwicetheFCC’s25Mbpsbroadbandthreshold.

AdditionalsourcescorroborateeffectiveperformanceofU.S.broadbandnetworksinthefaceofshiftingandincreasedoveralldemands.Forexample,datafrom“SmartHome”providerPlumeshowsthatthenumberofU.S.consumersthatwereactiveonlineduringtheworkdaybeforeCOVID-19jumpedfromanaverage22.6milliontonearly50millionconsumersoverthesummerbeforedecliningtojustunder40millionbytheendofSeptember.34ManycitiesincludingLosAngeles,SanFrancisco,Seattle,andPhiladelphiahaveseenthenumberofusersonlineincreaseby80%ormoreduringtheworkday.35InaFiberBroadbandAssociationMarch-April2020PandemicBroadbandUsagestudy,90%ofrespondentsreportedtheinternetaseithersomewhatorveryimportanttotheirhousehold,citingusingtheinternet

30SamKnowsCriticalServicesReport:FixedSpeed(USA),SAMKNOWS(2020,April14),https://www.samknows.com/blog/samknows-critical-services-report-fixed-speed-usa(lastvisitedSept.8,2020).31Anna-MariaKovacs,U.S.BroadbandNetworksRisetotheChallengeofSurgingTrafficDuringthePandemic(June2020),https://www.ustelecom.org/wp-content/uploads/2020/06/PP-2020-06-Kovacs-internet-performance.pdf.32TylerCooper,InternetSpeedAnalysis:Top200Cities,March15th–21st,BROADBANDNOW(Mar.25,2020),https://broadbandnow.com/report/internet-speed-analysis-march-15th-21st/.33DougBrake,LessonsfromthePandemic:BroadbandPolicyAfterCOVID-19,INFORMATIONTECHNOLOGY&INNOVATIONFOUNDATION(July13,2020),https://itif.org/publications/2020/07/13/lessons-pandemic-broadband-policy-after-covid-19.34PeopleActiveOnlineatHomeDuringtheWorkDay,PLUME,https://discover.plume.com/wfh-dashboard(lastvisitedSept.23,2020).35Id.

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duringthepandemicforcommunication,newsandinformation,provisioning,entertainmentandwork.36Theemergenceofthevideoteleconferencingphenomenawasevidentasinternetusageshiftsalsooccurrednotablyforapplicationsthatrequiregreateruseoftwo-directionaltransmissionsuchasvideoconferencingforfamilyconnections,education,healthcareandbusiness–up10to20%andexpectedtocontinuetoclimb.37TheClevelandClinicsawmonthlytelehealthvisitsjumpfrom3,400toover60,000—anincreaseofmorethan1,700%.38TrafficvolumeforCisco’sWebexweb/videoconferencingservicespiked24timesabovenormal.39Onenationwideprovidersawa1,200%increaseinonlinecollaborationtools,40andeducationalapplicationtrafficjumpednearly150%.Inadditiontosignificantdemandincreasesnotedabove,thepandemicalsoshiftedtheratioofdownstream-to-upstreamtraffic.Evenaftertheshift,however,overalldownstreamtrafficcontinuedtofaroutpaceupstreamdemands.OpenVaultreported41thatduringtheearlytransitiontovirtualpresenceduringthestayathomephaseofthepandemic,downstream-to-upstreamtrafficratiosdecreasedslightlyfrom20:1to16:1,likelyattributedtotheincreaseduseofupstreamvideoconferencingduringthedaytimehoursfortele-workandtele-school,withasmallershiftduringthepeakbusyhourslikelyduetoincreasedupstreamusagebeingoffsetbyincreaseddownstreamvideoconsumption.OpenVaultalsofoundinitsreport,however,that“consumersarecontinuingtoincreaserelianceonupstreambandwidthandareoptingforfasterspeedstomeetdramaticallychangingusagehabits.”Upstreamconsumptionrose5.3%fromtheendofthefirstquarterof2020totheendofthesecondquarter,likelyreflectingincreaseduseofvideoconferencingforbusiness,educationalandlifestylepurposesduringtheCOVID-19pandemic.”42Withinthisgeneraloverallindustryperformance,industrysegmentssawvariousuniqueaspectstopandemic-inducednetworktrafficshifts.

3.4.2 Wireless Network Performance Asnotedabove,COVID-19promptedsuddenandsignificantchangesinhowAmericanslive,work,andeducateourchildren.Overapproximatelyoneweekinmid-March,muchoftheU.S.—hundredsofmillionsofpeople—quicklytransitionedfromtheirnormallivestostayingathomeasmuchas

36FiberBroadbandAssociation(FBA),U.S.BroadbandInternetAccessinthe2020Pandemic:BroadbandImportance,Shifts,Differences,Stresses,andDividesat4(Apr.20,2020),(“FBAPandemicBroadbandUsageStudy”),https://www.fiberbroadband.org/d/do/3791.37FBAPandemicBroadbandUsageStudyat5.38Id.(citingMarkDzuban,3TelehealthLessonsLearnedfromCOVID-19Pandemic,HITConsultant(Apr.10,2020),https://hitconsultant.net/2020/04/10/telehealth-lessons-learned-from-covid-19-pandemic/).39Id.(citingAlexVillela,OnlineistheNewNormalandConnectivityisKing(ReaderForum),RCRWIRELESSNEWS(May1,2020),https://www.rcrwireless.com/20200501/opinion/readerforum/connectivity-amidst-covid-19-reader-forum).40Id.(citingJacobKnutson,VerizonSaysCollaborationToolsUseup1,200%duringcoronavirus,AXIOS(Apr.30,2020),https://www.axios.com/verizon-says-collaboration-tools-use-up-1200-duringcoronavirus-0c94e19d-8335-43ea-8652-72302a1a796b.html).41COVID-19BroadbandUsage“ReachingaPlateau,”saysOpenVault,OPENVAULT(Apr.7,2020),http://openvault.com/covid-19-broadband-usage-reaching-a-plateau-says-openvault/.42BroadbandInsightsReport,OPENVAULT(2Q2020),https://openvault.com/complimentary-report-2q20/.

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possible.Accordingtoawirelessindustryreport,43thismonumentalshift,occurringoverjustafewdays,meantawidespreadandrapidtransformationinhowAmericansusedtheirwirelessdevicesandnetworks.

• Voicetrafficandtextingrosesignificantly.Voicetrafficincreasedfrom20to40%onwirelessnetworks.44Thisgrowthisallthemoresignificantsincenearly80%ofvoiceconnectionsintheU.S.arewireless.45Majorwirelessprovidersalsosawa25%increaseintexting.46Thegraphicbelowillustratesthisriseinvoicetrafficandtextingonwirelessnetworks:

• Mobiledatausejumped.COVID-19drovesignificantincreasesinwirelessbroadbanddemand,withmobiledatatrafficupnearly20%.Forsomewirelessproviders,thatwaslikeaddingalmosteightmonthsofdataincreasespracticallyovernight,yetU.S.wirelessnetworkshandledthisabruptspikeintrafficwithrapidreconfigurationofcapacity.ItisimportanttonotethatthisCOVID-19-trafficincreasewasontopoftheregularrisingmobiledatatraffictrends,whicharesignificantintheirownright.Forinstance,theincreaseinmobiledatatrafficin2019from2018alonewasgreaterthantheentiretyofmobiledatatrafficjustfouryearsago.Thegraphicbelowillustratesthisriseindatauseonwirelessnetworks:

43HowWirelessKeptAmericansConnectedDuringCOVID-19,CTIA(June23,2020)(“CTIAReport”),https://www.ctia.org/news/report-how-wireless-kept-americans-connected-during-covid-19).44Id.at2(citingMikeDano,USWirelessNetworksareHoldingUptoCOVID-19,LIGHTREADING(Mar.24,2020),https://www.lightreading.com/4g-3g-wifi/us-wireless-networks-are-holding-up-to-covid19/d/d-id/758446).45Id.(citingUSTelecom,TheBroadbandAssociation,USTelecomIndustryMetricsandTrendsat10(Feb.2020),https://www.ustelecom.org/wp-content/uploads/2020/02/USTelecom-State-of-Industry-2020.pdf).46Id.(citingMikeDano,USWirelessNetworksareHoldingUptoCOVID-19,LIGHTREADING(Mar.24,2020),https://www.lightreading.com/4g-3g-wifi/us-wireless-networks-are-holding-up-to-covid19/d/d-id/758446).

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• Trafficpatternschangedovernight.Wirelessprovidersbuildnetworksonwell-establishedtraffic

patterns;forinstance,mobiledatauseflowsintocommercialdistrictsincitiesduringbusinesshours.Withsomanypeoplestayinghome,datatrafficpatternsoftenshifted—quiterapidly—fromdensebusinessareastootherareassuchasresidentiallocations,withoutdegradingthenetwork.Onewirelessprovidersawan86%jumpinsubscribersconnectingtocellsitesonlyintheirprimarylocation—likesomeone’shome—andanotherprovidersawanearly30%declineinmobilehandoffs,whichoccurwhenconsumers’dataconnectionsshiftcellsites.47

• Mobilehotspotusesoared.Onenationwideproviderfoundcustomerswereusingtheirmobile

devices’hotspotsnearly40%morethanaveragetosharethosemobiledataconnectionswithotherdevices.48

Importantly,America’smobilespeedskeptpaceandconsumerswereabletomaintaintheirwirelessexperiencethroughouttheCOVID-19response.Thenation’swirelessnetworksfaredwellevenasprovidersworkedtokeepconsumersconnected,offeredmorewirelessdataasdemandsurged,andprovidedsupporttomillionsofsubscribersimpactedbyCOVID-19’seconomicchallenges.Notably,wirelessnetworksinothercountriesstrainedtomaintainqualityandspeed.49Thewirelessindustryreportalsonotedthat:

• U.S.mobiledataspeedskeptpace.Infact,mobiledownloadspeedsintheU.S.wentupslightlyinApril50andsomeresearchersfoundthatAmerica’swirelessnetworksactuallyhada“statistically-significantincreaseindownloadspeeds.”51

47Id.at3.48Id.49Id.at2,7.50Id.(citingOokla,TrackingCOVID-19’sImpactonGlobalInternetPerformance(July2020),https://www.speedtest.net/insights/blog/tracking-covid-19-impact-global-internet-performance/#/United%20States).51Id.(citingGeorgeS.Ford,Covid-19andBroadbandSpeeds:AMulti-CountryAnalysis,PhoenixCenterPolicyBulletinNo.49at1(May2020),https://www.phoenix-center.org/PolicyBulletin/PCPB49Final.pdf).

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• Consumerssatisfiedwithwireless.83%ofAmericanssaidtheirwireless/mobileinternetservicemettheirneeds.52

• WirelessconsideredaleaderinrespondingtoCOVID-19.AmericansviewedtheU.S.wireless

industryasaleadingindustryhandlingCOVID-19,alongsidehospitalsandthetechnologyindustry.53

TheperformancebyU.S.wirelessnetworkswasparticularlyimportantforthenearly20%ofAmericanswhoownasmartphonebutdonotsubscribetofixedbroadbandathome.54TheseindividualsrelyonwirelessnetworkswithouteasyaccesstoadditionaloptionslikeWi-Fiathometokeepthemconnected,andwirelessprovidersworkedhardtomeettheirconnectivityneeds.WirelessprovidersalsocompetedtomaintainsubscribersduringCOVID-19.Fromwaivingoveragechargesandaddingdatatomanywirelessplans,toprovidingservicetokidswhodonothaveinternetaccess,andofferingfreeservicetofront-linehealthworkers,nationalandregionalwirelessoperatorsdeliveredneworenhancedservicestomillionsofwirelessconsumers.Ofnote,theU.S.wirelessindustryhasforyearsinvestedhundredsofbillionsofdollarstostrengthenwirelessnetworks,andasaresult,wirelessproviderswerealreadybuildingforAmerica’swirelessneedsin2021andbeyond.Inaddition,withwirelessusepatternsshiftingthroughoutthedayandnightduetoaCOVID-19-drivendropoffincommutingtimesandasurgeinteleworkandvideoconferencing,theimportanceofnetworktrafficmanagementbecameevenmoreimportant.Wirelessnetworkengineersmonitorednetworktraffic24/7andshiftedresourcestooptimizethenetworkandtoensureconnectivitythatAmericansneedtolive,work,andlearn.55Movingforward,wirelessproviderswillcontinuetotakestepstomaintainnetworksasAmericansincreasetheirrelianceonwirelessservicetostayconnected,continuelearning,andworkfromhome.Toprovideinsightintohownetworksareperforming,CTIAhasbegunreportingchangesinvoiceanddatatrafficonaweeklybasis.56ThisinformationdrawsontheworkofengineersatAT&T,T-Mobile,U.S.Cellular,andVerizonwhoarecloselymonitoringtheirnetworksandmakingadjustmentstoaddressshiftingdemand.

3.4.3 Cable Network Performance DuringtheCOVID-19pandemic,thenation’scablebroadbandnetworkscontinuedtooperatenormallytomeetsubscriberneeds.Over72millionhomesandbusinessesacrossAmericasubscribetobroadbanddeliveredbycableproviders.Asmillionsofsubscribersbeganworkingfromhome—engaginginincreaseduseofvideoconferencing,distancelearning,andstreamingingeneral—cableoperatorsmettheincreasingdemand.

52Id.at4(citingMorningConsultSurvey,May2-3,2020(2200adultsnationwide)).53Id.(citingHarrisXCOVID-19DailyTMTConsumerPulseSurvey(Apr.4,2020)).54Id.(citingPewResearchCenter,Internet&Technology,MobileFactSheet(June12,2019),https://www.pewresearch.org/internet/fact-sheet/mobile/).55Id.at4-5(notingwirelessindustryinvestmentinstrongandresilientnetworksandnetworkmanagementefforts).56SeeTheWirelessIndustryRespondstoCOVID-19,CTIACHANNEL(July30,2020)(“Toprovideinsightintohowthesenetworksareperforming,CTIAisnowreportingchangesinvoiceanddatatrafficonaweeklybasis.”),https://www.ctia.org/covid-19#network-performance.

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Aswithothernetworkproviders,cableoperatorsworkedaroundtheclocktomaintainrobustservicequalityandtoensurethatconsumersstayedconnected.Engineersandtechnicianscontinuouslymonitoredthedemandsplacedonthenetworks,andwhenisolatedissuesaroseduringtheinitialmonthsofCOVID-19,operatorsalreadyhadprocessesandtoolsinplacetoensurethattheywerequicklyaddressed.Asaresult,cablebroadbandnetworksprovidedexcellentservice,andcontinuetoperformwellinthefaceofCOVID-19,despitechangesinonlineactivity.Tobetterunderstandhowconsumerdemandaffectednetworkusageandperformance,NCTAmembersandothercableprovidersjoinedtogethertoreportkeymetricsinaCOVID-19dashboardtoinformthepublicregardingusagetrendsandnetworkperformance.57Thedashboardshowsthatintheearlyweeksofthepandemic,downstreampeaktrafficutilizationgrew20.1%beforeslightlydeclininginearlysummer.Overall,sinceMarch1,nationaldownstreampeakutilizationhasbeenup9.1%.Similarly,upstreampeakutilizationinitiallysurged35.1%beforedecliningslightlythissummer,yieldinganoverallnationalupstreampeakutilizationup22.1%sinceMarch1.NCTA’sCOVID-19dashboarddemonstratesthatthenetworkscontinuedtoprovideoptimumperformanceduringthistimeperiod.TwochartsareshownfromthatdatathatillustratechangesinpeakupstreamanddownstreamutilizationobservedbyNCTAmembercompaniesandothercableproviders.58ThepurplelineillustratesthenetchangeinpeakutilizationsinceMarch1,2020whilethebluebarshowstheweek-over-weekchange.

57Covid-19:HowCables’InternetNetworksArePerformingMetrics,Trends&Observations,NCTAhttps://www.ncta.com/COVIDdashboard(lastvisitedSept.23,2020).58Id.

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Cablenetworksareengineeredtoprovidesuperiorperformancethroughouttheday,someasuringdemandduringtimesofpeakusageisusefulinmakingsurethatconsumersexperiencerobustconnectionswhentrafficisheavyaswellaswhentrafficislight.Wi-FidatatrafficandWi-Ficallingincreasedasbroadbandnetworkscontinuetosupporttheoffloadofmobiledatatraffic.59DuringtheCOVID-19pandemic,thenation’scablebroadbandnetworkscontinuedtooperatenormallytomeetsubscriberneeds.3.4.4 Wireline Broadband Network Performance Thepandemicsignificantlyincreasedtrafficacrossfixedresidentialnetworks,especiallyintheupstreamdirection,asfamilymemberswhowerepreviouslyatworkandschoolstayedathome.EPB,aproviderinChattanooga,Tennessee,showsarepresentativeexampleofthissurgeinthegraphbelowcomparing24hoursofaggregateinternettrafficoveritsnetworkonMarch4beforemostAmericanshadshiftedtoworkingandstudyingfromhome,andMarch30,afteritscustomersbeganstayinghomeinresponsetothepandemic.

59Covid-19NetworkUpdate,COMCAST(May20,2020),https://corporate.comcast.com/covid-19/network/may-20-2020.

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USTelecomanditsmemberscloselymonitorednetworktrafficgrowthonbroadbandnetworksduringtheCOVID-19crisisastheinternethasemergedasthecentralmeansofkeepingAmericansconnected.Theresultingdata60showedtrafficincreasesoverbaselinereachingahighof27%onApril16.Usagehassincebackedoffofthatpeak,asshowninthechartbelow,withJuneandJulyusagerangingfrom10%to14%overthepre-COVID-19baseline.

60NetworkPerformance,USTELECOM,https://www.ustelecom.org/research/network-performance-data/(lastvisitedSept.23,2020).

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Fibernetworks,withtheirhighcapacity,performedwellandwereabletoeasilyabsorbspikesinnetworktraffictomeetthesechallengesquicklyandwithlittleinterruption.Asthechartbelowdemonstrates,videoconferencingfromhomenearlydoubledduringthepandemic.61Duetothesymmetricnatureoffiber,usersreportedneitherdegradationintheupstreamnorbandwidthconstraints.Becauseofcharacteristicsofhighbandwidth,reliableuptimeandlowlatency,fibernetworks’overallperformancedeliveredfulldefinitionforat-homeworkandschoolexperiencesaswellasvideoplatforms,telemedicine,andotherapplications.Inaddition,manyfiber-basedproviders,especiallyinruralandlowincomeareas,wereabletoleveragethecapacityoftheirnetworkstoturnupservicetonewmedicalclinics,neighborhoods,andotherplacesswiftlyandenablemorepeopletogetonlinefaster.

61FBAPandemicBroadbandUsageStudyat5.

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Similarly,duringthefirstmonthofthepandemic,INCOMPAS’fibermemberssawa25%increaseinresidentialnetworkbandwidthusageduringthedaycomparedtousagepriortoCOVID-19disruptions.62Streamingandinternettrafficincreasedduringthepandemic.Asthechartbelowdemonstrates,streamingminutesincreasedsignificantlyduringthefirstmonthreflectingmoreAmericansareworkingfromhomeviavideoconferencingtools,movingtoonlinegroceriesdeliveredthroughAmazon,gettinghealthnewsviaTwitter,connectingwithlovedonesoverFacebook,orstayinghomewithNetflix.Likeothernetworkoperators,ruralbroadbandproviderssawsignificantchangesintheirtrafficpatterns.FromMarch13throughMarch31,NTCAmembersindicatedonaveragetheirnetworksexperienced:

• 23%increaseinoveralldownstreambandwidthdemand• 24%increaseinoverallupstreambandwidthdemand• 21%increaseinpeakdownstreambandwidthdemand• 21%increaseinpeakupstreambandwidthdemand

62Competition:We’reBUILTforThis:BroadbandandVoiceNetworkPerformanceDuringCOVID-19Crisis,NETWORKPERFORMANCE,https://www.incompas.org/networkperformance(lastvisitedSept.23,2020).

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Follow-upreportsindicatedthatdemandstabilizedandevenretrenchedslightlyaftertheinitialfewweeksfollowingthedeclarationofanationalemergency(althoughtheywerestillhigherthanpriortotheemergency);specifically,whenaskedaboutdemandincreasesfromMarch13throughApril30,NTCAmembersreportedonaverage:

• 20%increaseinoveralldownstreambandwidthdemand• 17%increaseinoverallupstreambandwidthdemand• 15%increaseinpeakdownstreambandwidthdemand• 17%increaseinpeakupstreambandwidthdemand

NTCAnoted93%ofrespondentsindicatednomaterialshiftinpeakutilizationwindows,butnearlyallrespondentsstatedthattheaverageutilizationoftheirnetworkswasmuchhigheroverthecourseoftheentireday.Finally,NTCAhighlightedthatmorethan40%ofrespondentsreportedtakingstepstoaugmentcapacityonmiddlemile,transit,orotherbackhaulconnectionstoanticipateandaccommodateincreasedoveralldemand,buttherewerenoreportsofcongestionordisruptionarisingoutoftheincreaseddemand.

4 Broadband User Preparedness and Response InitsfirstchargetotheDRRWG,theCommissionaskedforreviewandrecommendationswithrespectto“[t]hechallengesassociatedwithshelter-in-placeandstayathomeenvironments.”IntheCommission’ssecondcharge,theWorkingGroupwastaskedwithidentifying“[u]sefulresponsestoamassteleworkingscenario,includinganystepsthatcanbetakeninadvancetoprepare.”IndecidinghowtoaddresstheCommission’sfivecharges,theWorkingGroupdecidedtopairthesefirstandsecondchargestogether,giventhatbothimplicatedthe“enduserexperience.”Morespecifically,takentogether,thesefirsttwochargesrequireconsiderationofhowrequirementstostayathomeaffectedbroadbandusers,whatlessonscanbelearnedfromtheseuserexperiences,andwhatrecommendationsmighthelpbroadbandusersinteractmeaningfullywithwork,school,andotheraspectsofsocietyinthefaceofsuchlimitationsinthefuture. 4.1 Pre-Incident Preparedness and Actions Therelativelysuddenonsetofthepandemichadvaryingimplicationsandimpactsamongbroadbandusersofallkinds—individuals,enterprises,andgovernments.Forexample,ashifttoteleworkingcouldbemorecomplicatedforindividualsthanitmighthaveinitiallyappearedforanumberofreasons.Someworkershadspaceintheirhomeforadedicatedhomeofficeorlearningarea,whileothersinsmallerspacesneededtocarveoutworkspaceatkitchentablesorincornersofbedrooms.Importantlyforthisreportspecifically,broadbandconnectivitytothehome—andthendistributionofbroadbandconnectivitywithinthehome,typicallyviaWi-Fi—variedincapabilityandreliability.Moreover,giventhesimultaneousshutdownofcommerce,schools,andgovernment,manyhomelocationsneededtosupportsimultaneousbroadbandconnectionsforconcurrentusersperformingmultiplefunctions.Furthercomplicatingmatterswasthatsomeusersdecidedtomigratefromtheirusualhomelocationstosecondaryhomes,shiftingtheirrequirementsandconnectivityneedstoanout-of-the-ordinary,seasonallocation.Anadditionalcomplicationstillwasthat,insomecases,abroadbandconnectionmayhavebeenavailable,buttheusercouldnotaffordtosubscribedespiteneedingtodosoforworkorotherreasons.

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Enterprisesfacedtheirownpreparednesschallenges.Insomecases,organizationsmaynothavehadlaptopsorotherdevicesforemployeestouseathome—ortheymaynothaveaddresseduseofpersonalhomecomputersforworkpurposes,implicatingcomplexitiesrelatedtoaccesstoproprietaryinformationorevenpublicrecordsaccessforgovernmentworkers.Moreover,employersmaynothavebeenpreparedtosupportwidespreadremoteaccessbytheirworkforceintheformofVPN,remotesecuritytokens,andotherremotenetworkandcapacityissues.Similarconsiderationsariseinconnectionwithpreparationforremotelearning.Concernsabouttheavailabilityofhigh-speedbroadband,theabilitytopayforserviceplans,accesstothedevicesneededtolearnremotely,and/orgeneraldigitalliteracy,allpresentchallengesintransitiontoalearn-from-homeenvironment.Moreover,aswithteleworking,schoolsmaynothavebeenpreparedinallcasesforthestrainsthatawholesalemigrationinaveryshortperiodtoremotelearningcanplaceonavailablebandwidthfortheschoolsystemitself,cybersecuritypractices,andinternalnetworksystemsandITinfrastructure.4.2 Pandemic Response 4.2.1 Transitioning to Work-from-Home Thework-from-homedecision-makingprocessvariesacrossdifferentgovernmentsandbusinesses.ManycompaniesmadedecisionstotransitiontoworkfromhomeinthefirstfewweeksofMarchandquicklytransitionedtheirworkforceinamatterofdays.Toreachthisdecision,organizationalleadersconsidered:

• GuidancefromtheCDCandstateorlocalmedicalofficials• Governororotherstate/localstayathomemandates• Restrictionsorlimitationsimposedbyitslandlordorbuildingcomplex• Locationandlogisticsneedsofthephysicalplant(e.g.,theneedformasstransituseby

employees,useofcommonelevatorsandlobbiesandstairwells)• Availabilityofschoolanddaycareoptions;manyemployeessimplyhadnorealisticchildcare

options,drivingwork-from-homedecisionsfromthe“groundup”formanyemployers

Whiletheinitialtransitiontoteleworkmayhavebeenrapid,onesignificantwaytheCOVID-19pandemichasdifferedfromotherrecentdisastersisitslongandindefiniteduration.Mostdisastereventslasthoursorafewdays—perhapsaweekattimes—andtherestorationdurationisfairlypredictableafterassessmentoftheinitialincident.Thus,whenworkersaresentorforcedtostayhome,thereisafairlygoodideaofthetimehorizonforareturntotheoffice(e.g.,whenpowerisrestoredtoanofficebuilding).ButCOVID-19,withnoclearlydefinedtimeframeyetfor“restoration”andfullresumptionofthe“normalcourseofbusiness,”leftserviceproviders,otherkindsofbusinesses,governments,andorganizationswithlittledirectlyapplicableexperienceonwhichtodraw.Unquestionably,whenorganizations’leaderswereconsideringtheneedtoaskemployeestoworkfromhome,fewanticipatedthatmajoremployerswouldsubsequentlyannouncethatemployeesmightnotreturntotheofficeforanadditionalyear.Thetransitiontolarge-scaleteleworkalsobroughtuniquecybersecurityriskstoenterprises.63TeleworkersgenerallyconnectoverahomeWi-Fiorethernetrouter,whileoftenalsousingpersonalcomputingdevicesandphones.This“BringYourOwnDevice”(BYOD)environmentlacksthefocusanddisciplineofregularsystemupdatesandpatchescharacteristicofmostcorporateITenvironments–and

63COVID-19ExploitedbyMaliciousCyberActors,CYBERSECURITY&INFRASTRUCTURESECURITYAGENCY(Apr.8,2020),https://us-cert.cisa.gov/ncas/alerts/aa20-099a.

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evenwell-patchedhomesystemslackenterprise-levelfirewallsandothercyberthreatdetectionandmitigationsystems.Inadditiontothesetechnicalrisks,thenewteleworkenvironmentopenedupnewsocialengineeringopportunitiesasbadactorssentphishingemails,setupfakewebsites,andevenmadephonecallsmasqueradingascompanyleaders,ITandhumanresourcespersonnel,orCOVID-19-relatedcharitableorganizations.Tominimizetheserisks,manyenterprisesadoptedarangeofbestpractices,64including(1)adoptedlayeredsecuritycontrolssuchasmulti-factorauthenticationanddata-at-restencryptionfordevicesoutsideofcorporatecontrol;(2)conductedtelework-specifictrainingonbestpracticestomitigatecyberthreatsandremoteworkrisks;and(3)carefullybalancedoperationalneedsandenterprisecapacitywithappropriatesecureconnectionssuchasVPNs,portals,andcloudservicesforendusers.COVID-19createdarangeofuniquechallengestothepublicsafetycommunity,particularlyintermsofworkingremotelyorfromhometoenablesocialdistancinginordinarilydenselyspacedEmergencyCommunicationsCenters(ECCs).65E-9-1-1calltakingandcommunicationwithfirstrespondersrequirespriorityaccesstonetworkresourcestoensurereliableconnectivitywithoutdelayevenduringtimesofpossiblecongestion.ThereareexamplesofECCsthathaveproactivelytakenstepstoutilizeprioritizedpublicsafetynetworkstoenabletheirstafftoreceive9-1-1callsfromremotelocationstherebyfreeingupspaceintheECC66andprovidingasaferenvironmentwhilestilldeliveringanessentialemergencyservice.TofurtherassistECCsinadaptingtothepandemicenvironment,DHS/CISAreleasedasetofguidelinestosupportpublicsafetypartnersacrossalllevelsofgovernmentindevelopingplansandactionsregardinggovernance,procedures,staffing,andcleaninganddisinfectinginresponsetoapandemic.674.2.2 Deciding If, How, and When to Return to Work Manybusinesseshaveannouncedcriteriaforif,how,andwhentheywillallowemployeestoreturnphysicallytotheofficeduringtheCOVID-19emergency,andtheCDChasissuedguidelinesonthis

64KarenScarfone,JefferyGreene&MurugiahSouppaya,SecurityforEnterpriseTelework,RemoteAccess,andBringYourOwnDevice(BYOD)Solutions,NATIONALINSTITUTEOFSTANDARDSANDTECHNOLOGY(Mar.2020),https://csrc.nist.gov/CSRC/media/Publications/Shared/documents/itl-bulletin/itlbul2020-03.pdf.65TheWorkingGroupnotesthatan“EmergencyCommunicationsCenter”or“ECC”isafacilitywithcapabilitiesthatincludeintelligencecollectionandmonitoring,9-1-1multimediatrafficprocessing,fullscaledispatch,andincidentcommandcapabilities.TherulesandregulationsoftheFCCoftenusetheterm“PublicSafetyAnsweringPoint”or“PSAP.”Theliterallanguageoftheterm“PublicSafetyAnsweringPoint”hasbecomeoutdatedinabroadbandenvironment,as9-1-1centersareincreasinglyandappropriatelybeingcalledECCs.ThetermEmergencyCommunicationsCenterisindicativeoftheincreasedworkloadthataPublicSafetyTelecommunicator(“PST”)facesasthe9-1-1industryincreasinglyreceivesandprocessesmoreinformation.66LoriStone,CityofAlexandria,VAUtilizesFirstNetfor911RemoteCallTakingDuringPandemic,FIRSTNET(May5,2020)https://firstnet.gov/newsroom/blog/city-alexandria-va-utilizes-firstnet-911-remote-call-taking-during-pandemic.67EmergencyCommunicationPandemicGuidelines,CYBERSECURITY&INFRASTRUCTURESECURITYAGENCY,https://www.cisa.gov/emergency-communications-pandemic-guidelines(lastvisitedSept.24,2020).

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topic.68Generally,theCDChasoutlinedengineeringcontrols,administrativecontrols,andpersonalprotectiveequipment(PPE)foremployerstoconsidertohelppreventthespreadofCOVID-19intheworkplace.TheCDCalsonotedthatthosebusinessesseekingtoresumenormalorphasedbusinessoperationsshouldconsider:

• Conductingdailyhealthchecks• Conductingahazardassessmentoftheworkplace• Encouragingemployeestowearclothfacecoveringsintheworkplace,ifappropriate• Implementingpoliciesandpracticesforsocialdistancinginandcleaningoftheworkplace• Improvingthebuildingventilationsystem

Additionalfactorsmustbeconsideredaspartofareturntowork,especiallyinenterprisesthatarecustomer-facing.Theseincludelimitationsonthenumberofvisitorsintheoffice,limitationsorrestrictionsonmeetings,theinstallationofdividersbetweenworkstationsandsanitizerdispensers,andPPEforemployees.Manybusinessesarealsopostingnoticesinofficetoremindtheiremployeestofollowtheguidelinesand/orpublicexplanationsofthestepstheyaretakingtohelppreventthespreadofCOVID-19.Suchmethodsmayhelpalleviateanyfearsforcustomersandothervisitorsregardingsafeworkpracticesandinstillasenseoftrustthatthebusinesswillbeabletooperateandperformeffectivelyinmeetingcustomers’needsdespitethepandemic.Asoneexampleofreturn-to-workexecution,aWashingtonD.C.-basedassociationmanagementfirmaskedemployeestostartreturningtoworkinpersoninSeptember2020butonlyat25%capacityatatime—settingoutascheduleforwhocouldbeintheofficewhentomaintainsocialdistancing.Moreover,thefirmimplementedotheraspectsoftheCDCguidanceforitsemployeesinthenewin-personworkenvironment,includingarequirementthatmasksbewornintheoffice;socialdistancing;limitationsonthenumberofemployeesthatcanbelocatedatthesametimeinelevators,conferencerooms,andothercommonareas;increasedandmorefrequentcleaningprocessesespeciallyonhigh-touchareas;restrictionsonofficevisitors;specifiedtrafficflowthroughouthallwaysandcommonareas;newclearsignageannouncingallchanges/processes;andmodificationstomonitoringofbuildingfreshairintake.Asanotherexample,onetribalentitytolditsbusinessesthat,whenlookingatwhetheremployeesshouldcomebacktotheoffice,theyshouldaskquestionssuchas:

1)State/LocalCommunityStatus–Isourstate/localcommunityconsidereda“hotzone”or“closedforbusiness”?2)COVID-1914DayTrend–Lookingatthe14-daytrendofa7day-average,areweseeinganincreasingtrendinthenumberofcaseswithinourstate/localcommunities?3)ICUBedAvailabilityForecast–DoestheforecastofavailableICU/criticalcarebedsshowavailability?

Thetribalentityalsomadecleartheneedtoprotectemployeesatagreaterrisk(e.g.,thosewithunderlyinghealthconditionsorofhigherage).Suchindividualsarebeingprovidedadministrativeleaveortheabilitytocontinuetoworkremotely.

68InterimGuidanceforBusinessesandEmployersRespondingtoCoronavirusDisease2019(COVID-19),CENTERFORDISEASECONTROLANDPREVENTION(May6,2020),https://www.cdc.gov/coronavirus/2019-ncov/community/guidance-business-response.html.

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Meanwhile,somecompaniessuchasGoogle,SonyMusic,andAmazonCorporatehavetoldtheiremployeestonotreturntotheirofficesuntil2021.69Othercompanies,suchasTwitter,havegivenemployeestheoptiontoteleworkpermanently.70Relatedly,giventhelongcycleofwork-from-homeanticipatedformany,thereareincreasingsignsofasystematicshiftinemployers’perspectivesregardingtheamountofofficespaceneededtoaccommodateachangedworkforce.Itispossiblethatsomesignificantportionoftheemployeeswhoarecurrentlyworkingfromhomemayneverreturntotheofficeoratleastnotonafull-timebasis.Theremaybesignificanteffectsfromthisparadigmshift,includingeffectsoncommercialrealestate,transitandcommutingpatterns,andeventheenvironment.4.2.3 Remote Learning Duringthepandemic,theneedforamulti-modalapproachtoremotelearningthatcapitalizesonexistinginfrastructure,innovativeprograms,andacombinationofdifferentlearningmediumshasbecomeapparent.TheWorldBankEducationGlobalPracticearticulatesthefollowing71whenitcomestoexecutingeffectivelywithrespecttoremotelearning:

• Developashort-andlong-termremotelearningplanthatconsiderseacheducationalsystem’scapacityandresourcestosupportamulti-facetedremotelearningmodel,includingacombinationoftechnologiesanddeliverymechanisms.Policymakersshouldconsultoutsidestakeholders,likeministries,broadcastregulators,andcompanies,todeterminewhatresourcesareavailableforremotelearning.

• Implementaradio/televisionbroadcastremotelearningmodelincontextswherebroadbandaccessisnotwidelyavailableorwhereonlinelearningissimplynotaviableoption;thesemediumscanbepairedwithotherlearningmaterialssuchastextmessaginganddigitaldownloads.

• Increaseaccesstodigitalresourcesbypartneringwithmobileoperators,telecomproviders,andnon-for-profitstoincreaseaccesstodigitalresources.

• Provideaconsolidated,one-stop-shoptoaccesscontentthatlistsavailablecontent,tools,applications,andplatforms,togetherwithsupportingmaterialsandguidanceforstudents,teachersandcaregivers.

• Makecontentavailablethroughavarietyofdevicesthatrunonavarietyofoperatingsystemsandsoftwareapplications.

• Createavirtualhelpdesktosupportcaregivers,teachers,andstudents,enablingstudentsandcaregiverstoaskquestions,sharefeedbackandcommunicate.

Moreover,whileatfirstglancethemigrationtohome-basedlearningenvironmentsmightseemtorelievestrainsonbandwidthatschoolsthemselves,remotelearninghasputgreaterpressureontheITsystemsandbandwidththatschoolsneedtoprovidetheirservicesforsomanymoreremoteusers.As

69SeeAlexisBeneveniste,TheseCompaniesareWorkingfromHomeUntil2021–orForever,CNN(Aug.2,2020),https://www.cnn.com/2020/08/02/business/companies-work-from-home-2021/index.html.70SeeRachelSandler,TwittertoAllowEmployeestoWorkfromHomeAfterCoronavirus,FORBES(May12,2020),https://www.forbes.com/sites/rachelsandler/2020/05/12/twitter-to-allow-employees-to-work-from-home-after-coronavirus/#54366eea3e9f.71TheWorldBankEducationGlobalPractice,GuidanceNote:Learning&COVID-19(Apr.7,2020),http://documents1.worldbank.org/curated/en/531681585957264427/pdf/Guidance-Note-on-Remote-Learning-and-COVID-19.pdf.

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such,ifpossible,schoolsmayconsiderupgradingITinfrastructurebyeitheraddingmoreresources(e.g.bandwidth,VPNconnections,servers,etc.)ormovingtoacloud-basedenvironmentthatmorereadilysupportsdynamicsizingtomeeteverchangingdemands.Regardless,bandwidthneedsshouldbeassessedregularly.Ofcourse,broadbandavailabilityandadoptionareimportantaswelltomakeforsuccessfulremotelearning.Forsomeavailabilityissues,partiesmadeeffortstostanduppublicWi-Fihotspotsforstudentsinneed,requiringstudentstodrivetoparkinglotsoutsideoflibrariesorschoolstoperformschoolwork,whichwasnotaneffectivelong-termsolutiontodigitallearning.Asinthecaseofteleworking,deployingbroadbandtomoreAmericanhouseholds,andincreasingbroadbandadoptionbyhouseholdswhereitisavailable,mustbeseenasanessentialpartofacomprehensivestrategyforremotelearningduringapandemic.Finally,muchasinthecontextofteleworking,thenumberofteachersandstudentssuddenlyteachingandlearningathomehasraisedseveralcybersecurityvulnerabilitiestoschooldistrictsandeducationalinstitutions.Lawenforcementagencieshavewarnedthatschoolnetworksarewidelyconsideredtobethemostvulnerabletoattackofanylargenetworks.Specifically,inthelastfewmonthsduringthepandemic,theFederalBureauofInvestigationissuedwarningsaboutransomware,72unwantedintrusionbyoutsidersondistancelearningsessions,73studentdataprivacyconcerns74andotheroverallsecurityconcernsduetotheamountofstudentsensitivedataheldbyeducationalinstitutionsandthelackofdefensemechanismsinplacetowardoffattacks.75Notonlycanmoredevicesintroducemoresecurityrisks,butschoolsoftensetuptotunnelalltrafficbackfromstudentsandteachersthroughtheschoolnetworkbeforeitgoestotheinternet—soevenwheresuchcapabilitiesexist,theymaynotberobustenoughtoaccommodatealloftheincreaseddatatraversingtheVPNs.ItisimportanttonotethatCISAspecificallyadvisestouseasplitVPNtunneltoreducethisrisk.764.2.4 Communication with Stakeholders Goodemergencymanagementincludestimelycommunicationwithkeystakeholders—inthiscase,employees,students,orotherstakeholders.Organizationsshouldhaveanemergencycommunicationsplanthatprovidesguidelines,contactinformation,andproceduresforhowinformationshouldbe

72CatalinCimpanu,FBIwarnsK-12schoolsofransomwareattacksviaRDP,ZERODAILY(June25,2020),https://www.zdnet.com/article/fbi-warns-k12-schools-of-ransomware-attacks-via-rdp/.73KristenSetera,FBIWarnsofTeleconferencingandOnlineClassroomHijackingDuringCOVID-19Pandemic,FBI(Mar.30,2020),https://www.fbi.gov/contact-us/field-offices/boston/news/press-releases/fbi-warns-of-teleconferencing-and-online-classroom-hijacking-during-covid-19-pandemic.74ElieZimmerman,FBIIssuesWarningforK-12SchoolsonStudentDataPrivacy,EDTECH(Sept.21,2018),https://edtechmagazine.com/k12/article/2018/09/fbi-issues-warning-k-12-schools-student-data-privacy.75AdinahBrown,SchoolsonRedAlertAfterFBIIssuesCybersecurityWarning,DEEPINSTINCT(Aug.6,2020),https://www.deepinstinct.com/2020/08/06/schools-on-red-alert-after-fbi-issues-cybersecurity-warning/.76Alter(AA20-073A)EnterpriseVPNSecurity,CYBERSECURITY&INFRASTRUCTURESECURITYAGENCY(Mar.13,2020),https://us-cert.cisa.gov/ncas/alerts/aa20-073a.

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sharedduringallphasesofanunexpectedoccurrencethatrequiresimmediateaction.77Communicationsmustbeinclusiveandaccessibletopeoplewithdisabilitiesand,inmanycases,multi-lingual.78Ataminimum,suchacommunicationprotocolshould:

• Becreatedandmanagedbyacrisiscommunicationtaskforce;• Identifywhomustbeincludedinthehierarchy/chainofcommunicationwithrolesmappedout

inadvanceandwithupdatedprimaryandsecondarycontactinformationoftheparticipants;• Determinewhenandwhattypeofinformationwillbesharedwiththoseinthecommunication

chain;and• Identifytheplatformsthatwillbeusedtoconveythemessages.

Becauseofthelong-termnatureoftheCOVID-19pandemic,communicationscanbetailoredtothemediumthatwillbemosteffectiveinreachingallstakeholders,butthecommunicationgenerallyshouldbefrequentwithsimplemessagesandupdatesandallowfortwo-waydialogue.Surveysandassessmentscanbesenttostakeholderstoconfirmthattheinformationiscommunicatedcorrectlyandthateverystakeholderreceivesandunderstandsit;thesurveyscanhelptoaddressanygapsinthecommunicationprocesses.Effectivecommunicationsmustalsoguidetowardcrediblesources,suchastheCDCorstateorlocalhealthofficials,foraccurateuptodateinformationonthepandemic.Stakeholdersarealsohelpedmosteffectivelywhentheorganizationcanserveasacommunicationfacilitatorfornon-work-relatedissuesthataffectemployeewell-beingandproductivity,likelocalresourcesforfoodsupplies,childcare,ormedicalfacilities,etc.794.3 Recommendations/Best Practices Related to End-Users 4.3.1 Take Steps to Improve Broadband Availability Expandingtheavailabilityofhigh-qualitybroadbandserviceataffordablerateshasbeenanationalgoalformanyyears.Overthepastdecade,theFCChasupdatedallfourofitsuniversalserviceprogramstoreorientthemforabroadbandfocusandhasdistributedbillionsofdollarstohelpmakethebusinesscasefornetworkinvestmentandtherebyconnectandkeepconnectedmillionsofAmericans.Similarly,theU.S.DepartmentofAgriculture(USDA)hasdistributedbillionsofdollarsovermanyyearstofinancetheconstructionofbroadband-capablenetworksinsomeofthemostruralpartsoftheUnitedStatesthroughitsvarioustelecommunicationsprograms,includingtheReConnectinitiativecreatedinthepastfewyears.Evenwiththisprogress,however,thepandemichasshownthattoomanyAmericansstilldonothavethebroadbandtheyneedtoworkandlearnathome.

77MargaretRouse&PaulCrocetti,EmergencyCommunicationsPlan(ECPlan),SEARCHDISATERRECOVERYTECHTARGET(Jan.16,2020),https://searchdisasterrecovery.techtarget.com/definition/emergency-communications-plan-EC-plan.78COVID-19PandemicOperationalGuidanceforthe2020HurricaneSeason,FEMA(Mar.2020),https://www.fema.gov/media-library-data/1589997234798-adb5ce5cb98a7a89e3e1800becf0eb65/2020_Hurricane_Pandemic_Plan.pdf.79SeealsoJohannaSchneider,TipsforCommunicatingtoEmployeesDuringaDisaster,BUSINESSROUNDTABLE,https://www.businessroundtable.org/archive/media/news-releases/tips-for-communicating-to-employees-during-a-disaster(lastvisitedSept.232020);JenCiraldo,5ActionableTipsforCommunicatingwithEmployeesDuringaCrisis,BEEKEEPER(Aug.13,2020),https://www.beekeeper.io/blog/5-actionable-tips-for-communicating-with-employees-during-a-crisis/.

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EvenastheFCCpreparestoconductitsfirstRuralDigitalOpportunityFundauctionlaterthisyearandtheUSDAcontinuestoawardloansandgrantsthroughReConnectandotherprograms,itisclearthatthesemechanismswillnotreachalloftheAmericansinneedofbroadbandconnectivity–andwaitingdecadestoobtainbroadbanddoesnotoffersignificantpromiseforthoseinneedofbetterservicenow.TheFiberBroadbandAssociationcoststudyfoundthatitwouldcost$70billionoveradecadetoreachthemajority(90%)oftheU.S.householdswithfiber.80Evenassumingamixoflesscostlybroadbanddeploymenttechnologies,morefundingisclearlyneededtocompletethejobinatimelyandeffectivemanner.ThemostobviousandimmediatemeansofinfusingthenecessarycapitaltoaddresstheseavailabilitychallengesisforCongresstoappropriatetheadditionalfundsneededtodeploybroadbandinunservedareasinatimelymanner.Avarietyofproposalshavebeenintroducedtomakesubstantialamountsoffundingavailable,upwardsof$80to$100billion,includingproposalswithbipartisanandbicameralsupport.ActiononproposalssuchasthesewillbecriticaltohelpdeployandsustainbroadbandnetworksinruralareaswheretodatetheeconomicsoflowdensityandlongdistanceshaveprecludingensuringAmericanshaveequitableaccesstoonlineopportunities.4.3.2 Take Steps to Improve Broadband Adoption Whilebroadbandinternetadoptionhasgrownsteadilyoverthelasttwodecades,thepandemichighlightedasignificantsegmentofthepopulationthatdoesnot,andmaybeunableto,subscribetobroadbandevenwhereitisavailable.TheeconomiccrisisarisingoutoftheCOVID-19pandemic,withahighofover20millionAmericansunemployedasofApril,hasonlyexacerbatedsuchconcerns.ThePewResearchCenterrecentlyestimatedthat10%ofU.S.adultsstilldonotusetheinternet,81findingthatinternetnon-adoptionislinkedtodemographicvariablesincludingage,educationalattainment,householdincome,andcommunitytype.Importantly,thismetrichasbeenheadingsteadilydownwardovertime,fallingfrom48%in2000,downto10%in2019,andfallingacrossdemographicvariables.AccordingtoanApril2019reportfromtheNationalTelecommunicationsandInformationAdministration(NTIA),22%ofU.S.households,approximately28millionhouseholds,stilldonotusetheinternetfromhome.Closingthebroadbandadoptiongapmustbeviewedasacriticalcomponentofachievinguniversalbroadband.Pairedwiththeeffortsofserviceproviders,agovernmentfocusonpromotingbroadbandadoptioncandramaticallyincreasethenumberofhouseholdsacrossthecountryparticipatingintheeducational,healthcare,civic,andcommercialopportunitiesmadeavailablebyinternetaccess–functionsthatareparticularlyimportantwhenteleworkandremotelearningareprevalentinthefaceofthepandemic.Studieshaveshownthatthereareavarietyofreasonswhysomeonedoesnotsubscribetoalreadyavailablebroadbandservice—including,inroughlyequalpart:alackofrelevance,digitalliteracy,orthecostofserviceoracomputingdevice.82Accordingly,aspolicymakersformulateprogramstopromotebroadbandadoption,arobustvarietyofprogramsandapproachesshouldbeconsidered,

80FBA,All-FiberDeploymentCostStudy2019(Sept.10,2019),https://www.fiberbroadband.org/d/do/3748.81MonicaAnderson,AndrewPerrin,JingJingJiang&MadhumithaKumar,10%ofAmericansDon’tUsetheInternet.WhoAreThey?,PEWRESEARCHCENTER(Apr.22,2019),https://www.pewresearch.org/fact-tank/2019/04/22/some-americans-dont-use-the-internet-who-are-they/.82Id.

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ratherthanasolutionthatonlyaddressesoneprongofthechallenge.Importantly,programsshouldincludeeducation,outreach,awareness,training,andequipment,andshouldincludepartnershipswithbothprovidersandkeycommunityanchorinstitutionssuchasschools,libraries,andagenciesservingvulnerablepopulations.Totacklemorespecificallyaffordabilityconcerns,CongressandtheFCCshouldexaminewaystoenhanceandimprovetheworkingsoftheLifelineprogramand/orconsidersupplementingthatprogramthroughappropriatedmeasuresthatwouldprovidebroadbandbenefitsformorelower-incomeconsumersadverselyaffectedbytheeconomiccrisisarisingoutoftheCOVID-19pandemic.Areasidentifiedforreviewwouldbetoconsiderhowtheprogrammightbeimprovedtoallowparticipationbymorebroadbandproviders,streamlinedtoremoveprovidersfromverificationprocesses,andhowtoimplementamoredirectconsumerbenefitstructure.4.3.3 Implement Distance Education Best Practices TobepreparedforandtorespondeffectivelytoadisastersuchastheCOVID-19pandemicinthefuture,schoolsmustmakeassessmentsamongstudentsandteachersoftheiraccesstohigh-speedbroadbandanddigitaldevicesandtheirabilitytopayforserviceplans.OnerecentexampleofthisisaninitiativebetweenNCTA,NTCA,USTelecom,andEducationSuperHighwaytoidentifyandfillconnectivitygapsforK-12schoolstudentsinlow-incomefamiliesthroughoutthecountrysotheycanbenefitfromremotelearning.83ThewirelessindustryisalsocommittedtoconnectingAmerica’sstudents,includingthroughCTIA’sConnectingKidsInitiative,aresourceforschoolsandschooldistrictstohelpkeepkidslearningintheseunprecedentedtimes.84Similarly,EPB,aproviderinChattanooga,recentlyannounceditwillworkwithlocalnon-profitstoprovideInternetaccessfor100%oflow-incomechildren(measuredbyfreeandreducedlunch)inthecountygoingforward.85Schoolsystemsshoulddevelopshort-andlong-termremotelearningplansthatconsidertheireducationalsystem’scapacityandresourcestosupportamulti-facetedremotelearningmodel,includingacombinationoftechnologiesanddeliverymechanisms.Aspartofthisexercise,schoolsshouldcreateaninventoryofexistingcontenttobedeployedviaremotelearningfocusingonavailable/existingcontentandaligningittothecurriculum.Inadditiontothecoremissionofteaching,inaremotelearningenvironment,schoolswillbecompelledtohelpstudentsovercometechnicalandaccesschallenges.Amongmeasuresthatschoolsystemsshouldconsidertoaidinthesefunctionsis:(1)creatinga“helpdesk”tosupportcaregivers,teachers,andstudentstoaskquestions,sharefeedback,andcommunicate;(2)findingalternatemethods–suchasprintedmaterialandstudyguides,readinglists,radio,andtelevisionbroadcasts–wherestudentshavelimitedtechnologyorwherebroadbandaccessisnotwidelyavailableforonlinelearning;(3)seekingoutpartnershipswithnon-profits,serviceproviders,andotherentitiesforaccesstointernetservice,discountedserviceplansorotherarrangementtopromoteadoption,andasasourceofcomputers,tabletsandotherdigitalequipment;(4)ensuringadequateVPNandotherITcapabilitiesareinplaceto

83ChairmanPaiWelcomesConnectivityInitiativeforK-12RemoteLearning,NewsRelease(2020),https://www.fcc.gov/document/chairman-pai-welcomes-connectivity-initiative-k-12-remote-learning;seealso,K-12BridgetoBroadband,DIGITALBRIDGEK-12,https://digitalbridgek12.org/k-12-bridge-to-broadband-program/(lastvisitedonSept.23,2020).84ConnectingKidsInitiative,CTIA,https://www.ctia.org/the-wireless-industry/connecting-kids-initiative(lastvisitedonSept.23,2020).85MoniqueBrand,EFBtoProvideInternetforHamiltonCountySchoolsStudentsatNoChargeforLow-IncomeFamilies,TIMESFREEPRESS(July29,2020),https://www.timesfreepress.com/news/local/story/2020/jul/29/epb-provide-internet-hamiltcounty-schools-stu/528574/.

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handlegreatlyincreasedremotestudentandteacheraccess;and(5)identifyingfederal,state,andlocalprogramsthatcanatleasttemporarilyimproveaccesstobroadbandwhereamorerobustnetworkcannotbeimmediatelydeployed,suchasWi-FihotspotsandWi-Fionbuses. 4.3.4 Implement Virtual Workforce Best Practices Forbusinessesandgovernmentstofunctionmosteffectivelyandprotectemployeesandcustomersinthefaceofapandemicorsimilardisasterincident,theseentitiesshouldconsiderandaddresstheseaspectsofmanagingthevirtualworkforce:Staff/Personnel

• Establishanorganization-wideplanorguidelinestoassurebothemployeeandcustomersafetyincludingteleworkingoptions,reducedtravel,andtheuseofPPEbystaffinallinteractionswithothers;

• Regularcommunicationbetweenleadershipandstafftocoverrelatedupdates;e.g.,bi-weeklyormonthlycheck-upcalls;

• Requireemployeeparticipationintrainingsessionsorpresentationstoreviewcompanyprotocol/changes(eitherinpersonorvirtually);and

• Assignacontactpersonortaskforceforhandlingemergencyresponsetothecrisis,customerquestions,and/orreviewingnewpolicies.

Technology

• WorkwithbroadbandproviderstoensuresufficiententerprisebandwidthcapabilitiesandprotectedVPNserveraccessonthebusinesssidetomaintainday-to-dayoperations;

• Consideroptionstofacilitatenecessarybroadbandrequirementsforwork-from-homeemployees;

• Providenecessarytechnologytoensureremoteuseforemployeesincludinglaptops,monitorscreens,tablets,cellphones,andotherdevices;

• AssignkeycontactpersonnelforvirtualITassistance;and• Implementnetworksafeguardstomitigatesecuritythreatsandallowemployeestouse

encryptedpasswordsforsharinginformationelectronically.

5 Municipal Permitting Preparedness and Response 5.1 Pre-Incident Preparedness and Actions Takingintoaccountdifferentsizesofandresourcesavailabletolocalgovernments,thefollowingconsiderationsandactionsmayhelplocalgovernmentsprepareforapandemicorsimilaremergencythatrequiresamassteleworkingscenario:

• ContinuityofPublicMeetings:Municipalitiesshouldbeprepared,consistentwithapplicablestatelaws,tocontinueholdingpublicmeetingswithoutaccesstomunicipalbuildings.Considerhowtoallowforpublicparticipationviatelephoneorachatfunctionforvideoconferences,providingtoll-freedial-inaccessifneeded,includinghowtorecognizeandgivethefloortomembersofthepublicwhoarenotinperson;controlbackgroundnoise,securingthemeetingsothatparticipationiscontrolledandauthorizedparticipantscanspeak,allowforparticipationinvideoconferencesbythosewithoutbroadband,andcreatecontingencyplansshouldvideoconferencingorothertechnologybeinoperableatthetimeofthemeeting.Arrangementsmay

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beneededtopresentmeetingsliveforcablebroadcast.Municipalitiesalsomustconsiderhowtorecordandarchivemeetingsifandasrequired.

• HardwareDeploymentPreparation:Considerif/how/whichstaffmemberswillhaveemployer-issuedhardwaretouseforteleworkingand,wheremunicipalhardwareisnotavailable,whetherpersonalequipmentwillbeusedforworkpurposes.Considerhowemployeeworkflowprocesseswillbeimpactediftheyareunabletoprint/scan/faxfromhome.Duringtheearlystagesofthepandemic,manyhardwareperipheralsbecamedifficulttoacquire,insomecasesbecauseofenforcedretailclosings,andwereoutofstocksopreparationsshouldbemadeinadvancewherepossible.Specialconsiderationshouldalsobegiventohavingsomearrangementforretailoutletstooperateduringpandemics,potentiallywithanappointmentsystem.

• RemoteAccess:Establishaplanforaccesstomunicipalnetworks(e.g.,VPNs,tokens)andforsufficientingressbandwidthtothecorporatedatacenter(s)forthehigherthannormalVPNaccesswithconsiderationgiventotheuseofsplitVPNstoavoiddisruptionstoservicesandallowconsistentconnectivitytoworkmaterials.Prepareacybersecurityplantoprotectdocumentsandprovidenetworkaccesstoonlythosewhoareclearedforsuchaccess.Municipalitiescurrentlywithoutonlinepermittingprocessesandportalstoallowforfullyonlineacceptance,internalrouting,review,andissuanceofpermitsshouldalsoconsiderinitiatingprocessestodevelopsuchservices,includingviapublic/privatepartnershipswithindustrystakeholders.

• TeleworkPoliciesandAgreements:Municipalitiescandraftteleworkpoliciesand/oragreementsthatoutlineexpectationsofemployeesthataddress,amongotherissues:

o Workschedulesandavailabilityo Productionoutputo Responsetimeso Workingovertimeand/oroutsideusualhourso Solutionforclockinginandoutremotelyo Workingappropriatelywithmaterialthatissubjecttopublicrecordsrequestso Useoflaptops,phonesandotherequipmentnecessaryforteleworko Protocolstoensuresoftwareupdatesareprocessedandguidelinesregardingwhat

softwaremaybedownloadedonemployer-issuedlaptopso Subscribingtobroadbandandhavingtechnicalsupportatalevelneededtodotheir

jobs;reimbursementpoliciesregardingbroadbandplans,datacaps,installationcosts,etc.

o Establishingrotatingschedulesforbothpresentialandvirtualworktomaintainsocialdistancinginjobsiteandavoidburnoutathome.

• InformationSharing:Governmentandindustrystakeholdersshouldcontinuouslyevaluatewhethertheexistingvenuesandprocessesforcollectingandsharinginformation(e.g.,CISA’sNCC,statelevelEOCs,andtheDisasterInformationReportingSystem(DIRS))aresufficientorshouldbeadaptedtomeettheneedsofthevariousstakeholdergroups,whileprotectingthepublic’sinterestinprotectingthesecurityofcommunicationsinfrastructurefrombadactorsandensuringthatconsumerprivacyandcompetitivelysensitiveinformationareprotected.Informationsharingprocessesshouldbecontinuallydevelopedforsharingofsituationalawarenessamonginterestedstakeholders,includingcommunicationsproviders,powercompanies,publicsafetyofficials,andfederal,state,andmunicipalgovernmentstakeholdersresponsiblefordisasterpreparednessandrecovery.

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5.2 Pandemic Response Takingintoaccountdifferentsizesofandresourcesavailabletolocalgovernments,thefollowingconsiderationsandactionsmayhelplocalgovernmentscontinuepermittingprocessesduringapandemicorsimilaremergencythatrequiresamassteleworkingscenario:

• Assessneedsandresources:Identifystaffavailabletoaddresspermittingdemands;providethemwithappropriateresourcesforcontinuingpermitprocesseswhileteleworkingormaintainingappropriatesocialdistancingorothersafetymeasures.

• Communicatewithstakeholders:Updatewebsiteswithinformationaboutadjustmentstopermittingprocessesandcontactinformationforstaffdesignatedtoaddresspermittingissues.Considerdirectcommunicationwithprovidersregardingrevisedorupdatedprocesseswherepossible.

• Prioritizecriticalwork:Workwithapplicantstoimplementameansofdocumentingessentialpermitsthatrequireexpeditedprocessingtoaddresspandemic-relatednetworkissuesthatimpacthumanhealthandsafety,whilecommunicatingwithapplicantsonthestatusofotherpendingpermitapplications.

• Addressshotclocks:Workwithapplicantstotollshotclocksonsomepermits.

5.3 Recommendations/Best Practices Related to Municipal Permitting TheWorkingGrouprecommendsthefollowingbestpracticesforstate,local,andterritorialgovernmentsandtribestoaddressbroadbandpermittingchallenges,includingthosecausedbythephysicalclosureofmunicipaloffices,ashifttoteleworkformunicipalemployees,andothercomplicationsarisingfromapandemicandsimilaremergencies.86TheWorkingGrouprecognizesthatavarietyoffactors,includingthesizeofandresourcesavailabletoamunicipality,willimpacteachjurisdiction’sabilitytoimplementthesebestpracticesandthatsomesuggestionswillbeinfeasibleorineffectiveinsomecommunities.Forexample,onlinepermittingmaynotbeafeasibleoreffectivesolutionforacommunitythatlacksreliablebroadbandatitsmunicipalofficesand/oratemployees’homes.5.3.1 Establish Non-Emergency Permitting Practices that can Transition to Emergency

Situations Totheextentpossible,non-emergencypracticesthatcaneasilytransitiontoemergencysituations,includingteleworkandofficeclosures,arerecommended.Forexample:

86See,e.g.,AngelinaPanettieriandNancyWerner,KeepingLocalPermitsandLicensesMovingDuringCOVID-19,NAT’LLEAGUEOFCITIES(May4,2020),https://citiesspeak.org/2020/05/04/keeping-local-permits-and-licenses-moving-during-covid-19/(“identif[ying]someprocesseslocalgovernmentshavesuccessfullyimplementedtoenablethecontinuedacceptanceandprocessingofpermits,aswellasconsiderationsforimplementingsimilarprocessesandadditionalinformationrelatedtotelecommunicationspermitting”).

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• Onlinepermittingprocessesandportalsthatallowforfullyonlineacceptance,internalrouting,reviewandissuanceofpermits;

• Electronicsignatures;• Electronicpaymentoptions;• Identifystaffnecessarytosupporttheprocessremotelyandensurethatstaffhashardware,

softwareandaccessnecessarytocontinuework;and• Identifya“champion”or“czar”inthemunicipalitytohandlecommunicationswithindustry,city

staff,andotherstakeholders(e.g.,powercompany,poleowner)inemergencyandnon-emergencycircumstances.

5.3.2 Identify Necessary Staff and Resources to Transition to Emergency Permitting

Processes Particularlywherefullyonlineprocessesarenotavailable,municipalitiesshouldconsiderestablishingplansthatprovideforthecontinuationofnecessarypermittingprocessesduringastayathomeorderorotherlimitationsonaccesstomunicipalbuildings.Forexample:

• Createadesignatedemailaddressorportaltoreceiveallpermitapplications;• Considerdropboxesforpermitapplications,paymentorotherdocumentationthatcannotbe

submittedonlineorelectronicallyanddesignatestaffwhowillchecktheboxesatappropriateintervals;

• Establishpracticesforinspectionstocontinue,suchasdistancingrequirementswhileinspectingormeetingapplicants,sothatpre-andpost-workinspectionsmayoccurtoverifythepre-constructionandas-builtconditions;

• Considerworkingwithapplicantstorequesttollingagreementsonsomepermitstosuspendapplicableshotclocksduringtheemergencytopreventviolationsordeemed-grantedpermits;and

• Identifystaffnecessarytosupportanyonlineaspectsoftheprocessandensurethatstaffhashardware,software,andaccessnecessarytoworkfromhome.

5.3.3 Foster Good Relationships and Communications with Other Stakeholders Preexistingrelationshipswithapplicantsandclearcommunicationregardinganychangestothepermittingprocessesduringanemergencycaneasethechallengesduringanemergency.Forexample:

• Establishasinglepointofcontactatthemunicipalityforpermitting-relatedissues;• Canvasscitystaffattheoutsetofanemergencytoinventorywhattaskscanandcannotbedone;

communicatelimitationstostakeholdersandworktoidentifyalternatives,ifpossible;and• Communicateclearlyaboutwhetherandwhenanyemergencyorforcemajeureclausesarein

effect;oftenthesetypesofprovisionsarenottriggeredbypandemicsandsimilaremergencies.5.3.4 Implement Steps Prior to the Pandemic or Related Emergency ThePre-IncidentPreparednessandActionssetforthinsection5.1aboveprovidesuggestionsforactionsthatcanbetakeninadvancetoprepareforteleworkandmunicipalbuildingclosures.

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6 Provider Perspectives and Detail 6.1 Pre-Incident Preparedness and Actions 6.1.1 Network Overview Networkprovidershaveinvestedanenormousamountofcapitalandtechnicalexpertisebuildingflexibleandresilientnetworks.Atthebackbonelevel,providerscontinuallymonitortheirnetworksfromvirtualNetworkOperationsCenters.Mostprovidershavetremendousflexibilitytoaddcapacity,modifypaths,andadjusttrafficbasedonutilization,continuallyrefiningapproachesminute-by-minuteastrafficpatternschange.CDNsoperatedbynetworkprovidersandplatformoperatorsmovehugeamountsoftrafficandcachecontentclosertothe“edge”andthefinalusers,avoidingpotentialbottlenecksonthecoreinternet.Similartocorenetworks,CDNoperatorsconstantlymonitorforpotentialbottlenecks,movingtraffictolesscongestedroutesorincreasingcapacityoncommonlyusedroutes.CableISPsdeployavarietyofnetworktopologiesincludingfiber,coaxialcable,andfixedwirelessconnectionstothehome.Traditionalcablesystemsarebasedonahybridfibercoaxialnetwork(HFC),thattransportssignalsoverfiberintosubscriberareastofiber“nodes.”Atthefibernodeallsignalsareconvertedfromlightenergytoelectricityandthencarriedashortdistancetothesubscriber’shomeovercoaxialcable.Cableoperatorscontinuallyadjusttheirnetworkstogainadditionalbandwidthadvantagesthroughvarioustechniquessuchasnodesplitting,whichdecreasesthenumberofsubscribersbeingservedfromasinglenodebycreatingmultipleservicegroupsinsteadofonelargergroup.Cableoperatorsarealsodrivingfiberdeeperintoneighborhoodsandphysicallyclosertosubscribers,decreasingtheamountofcoaxialcablerequiredandreducingoreliminatinganyamplifiersinthesignalpath.CommunicationsbetweensubscribersandthenetworkoccurusingcablemodemsandaprotocolreferredtoasDOCSIS(DataOverCableServiceInterfaceSpecification).Fixedwirelessnetworksoperateinasimilarfashiontoafiberortraditionalwirednetworkatbackhaul/middlemilelevelinthatconnectionsarepointtopoint.Usingmicrowaveandpinpointedwirelesstechnology,wirelessISPscantransmithighspeedbroadbandsignalsfromfiberbackendstofixedpointswithintheirnetworksanduseadditionalpoint-to-pointwirelessconnectionstoextendtransmissiontoreachlastmileconnectionpoints.Lastmileservicescanbeprovisionedinasimilarwayorviapoint-to-multipointconnections,whereinbroadbandsignalscanbetransmittedtonumerousenduserpointsfromonelastmileradio.Smallerruralwirelineprovidershavemadeeffortsoverthepastdecadetoincreasecapacityintheirlastmilenetworks,typicallyintheformoffiberwhereverpossible,alongwithcarefulmanagementofbackhaul/middlemileandtransitcapacity.Inmostcases,providersaredeployingGigabit-CapablePassiveOpticalNetworkfiber-to-the-premise(FTTP)networkswithdedicatedfiberbetweencentrallylocatedOpticalLineTerminationsandtheOpticalNetworkTerminationsateachcustomerpremiseinordertominimizetheneedforfieldelectronics.Asof2019,forexample,NTCAmembersreportedthatnearly64%oftheircustomerswereservedviaFTTPconnections,while32%wereservedviaDSL,2%bycablemodemtechnology,and2%viafixedwireless;nearlythreeyearsearlier,reportsindicatedthat41%ofcustomerswereservedviaFTTP,45%byDSL,12%bycablemodems,and1%viafixed

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wireless.87Inmorethantwodozenstates,smallruralwirelineprovidershavealsobandedtogethertoformjointlyownedstatewidefibernetworksthatprovidebackhaulandmiddlemilecapability.Wirelessproviderslikewisehaveinvestedheavilytostrengthenwirelessnetworksandpreparefor5G.Sincethebeginningof2010,wirelessprovidershaveinvestedover$286billioninAmerica’swirelessnetworks.88Notably,5G-focusedinvestmenthashelpedpreparewirelessnetworkstomeetAmericans’mobileconnectivitydemandsduringCOVID-19.And5Gconnectivityitselfwillboostnetworkcapacityandbemuchmoreefficientinhowitusesspectrum.Tooptimizethenetworkandensureconsumersgettheconnectivitytheyneedtolive,work,andlearn,wirelessnetworkengineersmonitortraffic24/7andshiftnetworkresourcesasnecessary.Wirelessengineersandtechniciansalsocontinuetoworktirelessly—andassafelyaspossiblebytakingimportantsafetyprecautionsandfollowingCDCguidelines—tofurtheroptimizeandaddnetworkcapacity.Thatmeanscontinuingtodeploynewwirelessinfrastructureincludingcellsitesandadditionalspectrumassetsquicklyandefficiently.

6.1.2 Sector Coordinating Mechanisms PrivatesectorcommunicationsprovidersparticipateinarangeofcoordinatingmechanismsfacilitatedthroughtheU.S.DepartmentofHomelandSecuritytohelpensuresecureandresilientcommunicationsfornationalsecurity,emergencypreparedness,andtheoveralleconomicandsocialwell-beingofallAmericans.PresidentialPolicyDirective21:CriticalInfrastructureSecurityandResilienceandtheNationalInfrastructureProtectionPlanscopeoutastructurethatincludescommunications-focusedprivatesectorandgovernmentcoordinatingcouncilstocollaborativelyaddresspolicy-levelissuesofsecurityandresilience,aswellasamoreoperationally-focusedCommunicationsInformationSharingandAnalysisCenter(COMM-ISAC).Duringsteady-stateconditions,theseelementscometogetherwithintheNationalCoordinatingCenterforCommunications(NCC).Atthemosttacticallevel,thecommunicationssector’sprimarycoordinatingmechanismfor“typical”incidentresponseisEmergencySupportFunction(ESF)#2(Communications)undertheNationalResponseFrameworkissuedbytheFederalEmergencyManagementAgency(FEMA).ESF#2wasnotuniversallyactivatedatallgovernmentlevelsaspartofresponsetothepandemic,whichmaypartlyexplainthelackofcoordinationonsectorstatusreportingincertainjurisdictionsdiscussedelsewhereinthisreport.6.1.3 Pandemic and Business Continuity Planning Asoperatorsofadesignated“lifeline”criticalinfrastructuresector,communicationsprovidershavelonginvestedconsiderableanalysis,planning,andmaterialeffortindevelopingrobustandresilientnetworkstoprovidereliablecommunicationsinthefaceofvariousthreatstonetworkperformance—includingthethreatofpandemicdisease.Whileeachcommunicationsprovidermanagestheirbusinesscontinuityprocessesbasedontheirinternalbusinessjudgment,thereareresourceseachcompanycanleveragetoassisttheirplanningandpreparednessforapandemicevent.Forexample,theAllianceforTelecommunicationsIndustrySolutions(ATIS)NetworkReliabilitySteeringCommitteecompiledachecklistofvoluntaryindustryBestPracticesandrelevantlinksasareferenceinpreparationfora

87NTCA-TheRuralBroadbandAss’n,Broadband/InternetAvailabilitySurveyReport(Dec.2019),https://www.ntca.org/sites/default/files/documents/2019-12/2019%20Broadband%20Survey%20Report.pdf.882020AnnualSurveyHighlights,CTIA(Aug.25,2020),https://www.ctia.org/news/report-2020-annual-survey-highlights.

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pandemicevent;themostrecent“version2”waslastupdatedin2015.89TheFCC’sCommunicationsSecurity,ReliabilityandInteroperabilityCouncil(CSRIC),studiedtheimpactofpandemiceventsonPriorityTelecommunicationsServicesin2010.90Andoperatorshaveincorporatednumerousotherindustryandmulti-stakeholder-recommendedpracticesandrecommendationsintotheirinternalpolicies. 6.2 Pandemic Response 6.2.1 Network Engineering and Optimization Asdescribedearlierinthisreport,thepandemicgaverisetounprecedentedchangesindatademandsonnetworks,andtheseshiftshighlightedtheessentialimportanceofnetworktrafficmanagement.Evenundernormalconditions,providersmonitortraffic24/7ontheirnetworks,groomingnetworkresourcesandshiftingresourcestooptimizenetworksandensureconsumersreceivetheconnectivitytheyneedtolive,work,andlearn.Thetechnologicaltoolsandhumanexpertiseprovidersleverageeverydayprovedthecriticalfirstlineofdefensetorapidlyadaptnetworkstochangingconditions.Theinnovationsthatoperatorshavebeenworkingonforseveralyearshaveresultedintheirabilitytobetterhandlepeakdemand.Forexample,providersleveragedCDNinfrastructuretoalleviatepotentialnetworkstrainsandensurethatpandemic-relatedsurgesorshiftsindemandwouldnotaffectuserexperience.Providersoptimizedtrafficflowonnetworksfromglobaltolocalbyactivatinghostcircuits,upgradingcapacity,revisingdatalimits,strategicallyplanningpatchreleases,utilizingoverflowroutingandrebalancingtrafficasnecessarytofacilitatehighperformanceontheirnetworks.91InmanycasesthisrapidflexibilitywasenabledbytoolssuchasSoftwareDefinedNetworkingandNetworkFunctionVirtualization(SDN/NFV). 6.2.2 Capital Investment

ServiceproviderinvestmentinthreecriticalareasleddirectlytomeetingsuccessfullythedemandsoftheCOVID-19environment:(a)Sustainedsignificantinvestmentincapacity;(b)rapidincrementalinvestmentstoheadoffpandemic-inducednetworkcongestion;and(c)long-terminvestmentsintechnologyandinnovation.

● SustainedInvestment:PerhapsthefundamentalreasonthatexistingbroadbandnetworksperformedsowellduringCOVID-19wasthecontinuedinvestmentincapacityandcapabilitytostaywellaheadofgrowthindemand.Intheaggregate,U.S.broadbandproviders(wireline,wireless,andcablebroadband)investanestimated$70to$80billionannuallytoconnectnewcommunities,upgradeinfrastructure,andinnovateintheirnetworks.92Asexamples,overthe

89AllianceforTelecommunicationsIndustrySolutions,ATISStandardOnNetworkReliabilitySteeringCommittee(NRSC)PandemicChecklist(Feb.23,2015),https://access.atis.org/apps/group_public/download.php/44316/ATIS-0100018.pdf.

CSRIC,PlanningforNSEPNextGenerationNetworkPriorityServicesDuringPandemicEvents(Dec.2010),https://transition.fcc.gov/pshs/docs/csric/CSRIC_WG7_Final_Report_NGN_Priority_20101216.pdf.91AndrewDugan,ANewTypeofCrisis:WhatHappenstoaNetworkWhenWeUnexpectedlyHaveToStayatHome?,LUMEN(Mar.27,2020),https://news.centurylink.com/index.php?s=34146&item=30584.92TestimonyofJonathanSpalter,PresidentandCEO,USTelecom–TheBroadbandAssociation,beforetheSenateCommerceCommittee:TheStateofBroadbandAmidtheCOVID-19Pandemic(May13,2020)https://www.commerce.senate.gov/services/files/AA40703E-52A3-46C8-A6E7-FCD653D05B26).

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past20years,thecableindustryhasinvested$290billionininfrastructureandnetworks,93andCTIAestimatesthatwirelessprovidershaveinvestedover$286billioninAmerica’swirelessnetworkssincethestartof2010.Manyprovidersandassociationsdescribedcapitalinvestmentstrategiesasworkinginadvancetobuildnewcapacitybeforeitisneeded,insomecases18monthsormoreaheadofprojecteddemand.Accordingly,thenetworkcapacitywaslargelyalreadyinplacewhenpandemic-induceddemanddroveayear’sworthofdemandgrowthinjustafewweeks.

● IncrementalInvestment:Providersquicklyandefficientlydeployednewinfrastructureandaugmentedcapacitywhereneededtopromotecontinuityofservice.Forexample,wirelessprovidershavedeployednewcellsitesandadditionalspectrumassetsinadditiontoregularlyscheduleddeploymentactivities.Theseincludedportable“CellonWheels”sites,knownasCOWs,thatarenormallyusedtokeeppeopleconnectedduringnaturaldisasters.94TheFCC’spromptactiontoallowwirelessprovidersadditionalspectrumresources—upto100megahertz,anearly14%increaseinlow-bandspectrumavailability—toboostcapacityinkeyregionsofthecountry.Importantly,wirelessproviderswerealreadyaddingcapacityandenhancingnetworkresiliencyinpreparationforthedeploymentof5G,andmanyprovidersincreasedcapitalspendingtomeetCOVID-19-drivennetworkdemands.95Cableandfiberoperatorssimilarlyaugmentedcapacitytomeetthegrowingneedsofhospitals,temporarymedicalfacilities,andCOVID-19testingsitestoenablethesefacilitiestofunctionwellstartingintheearlystagesofthepandemiccrisis.Theyalsoheightenedcoordinationwithstateandlocalemergencymanagerstopromotepandemicresponse.

● TechnologyInvestment:Providerinvestmentshavenotbeenlimitedtojustbuildingmorewiredandwirelessconnections,butalsoincludefundamentalinvestmentsinthetechnologythatenablestheirnetworks.AccordingtotheBrookingsInstitute,whilemanyindustrialprocessesincreaseinincrementalsteps,networkslargelyimprovethroughbigtransitionstonext-generationtechnologies.Forexample,telephonecompaniesthatmodernizedfromcoppertelephonelinestofiberincreasedbandwidthby60times;cableoperatorstransitioningfromDOCSIS3.0toDOCSIS3.1,enabledatenfolddownloadspeedincrease;andwirelessprovidersupgradingfrom4Gto5G,shouldincreasepotentialtopspeedby100times.Eachstep,however,requiressignificantupfrontcapitalexpenditures,whichtakesyearstorecoup.96

93InvestinginAmerica,NCTA,https://www.ncta.com/sites/default/files/2019-07/investing_in_america_factsheet.pdf(lastvisitedSept.23,2020).94Seeinfrasection7(discussingCOWs,aswellastechnologiesforadditionalcapacityandconnectivity).95HowWirelessKeptAmericansConnectedDuringCOVID-19at5,CTIA(June23,2020),https://api.ctia.org/wp-content/uploads/2020/06/How-Wireless-Kept-Americans-Connected-During-COVID-19-2.pdf.96BlairLevin,COVID-19ProvesWeNeedtoContinueUpgradingAmerica’sBroadbandInfrastructure,THEBROOKINGSINSTITUTION(Mar.30,2020),https://www.brookings.edu/blog/the-avenue/2020/03/30/covid-19-proves-we-need-to-continue-upgrading-americas-broadband-infrastructure/.

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6.2.3 Field Work 6.2.3.1 Necessary Field Operations Asprovidersofadesignated“lifeline”criticalinfrastructure,communicationsprovidershavealwaysunderstoodtheneedtokeepmaintenanceandrepairfieldcrewsworkingduringtimesofdisastertoprovidetheresilient,stable,andreliablecommunicationsonwhichAmericansrely.TheCOVID-19responsewasnodifferent,exceptthenormalchallengesofdisasterresponsewerecomplicatedbytheindefinitedurationofthepandemicandtheneedtoalsobuildoutcapacityupgradesmadenecessarybytheeventitself.Providersfrommajornationaloperatorstosmallruraloperatorsreportedincreasesinfieldactivityinthewakeofthepandemicforseveralreasons.Ascustomersmovedtoworkandlearnfromhome,thosethatlackedbroadbandorrequiredadditionalcapacityneededserviceinstalledorupgradedrapidly.Businesscustomersoftenrequiredupgradestosupporttheenterprisesideofemployeevirtualconnectivity.Providersalsobuiltoutcorenetworkcapacitynecessarytosupportthedemandshiftsoftheirresidentialandenterprisecustomers.Finally,withlesstrafficonroadsasresidentsremainedincreasinglyatorclosetohome,providersleveragedtheopportunitytoundertakeoutsideplantnetworkconstructionprojects.Incarryingoutfieldwork,providersreportedtakingarangeofsafetyprecautionsasdetailedinthefollowingsections,includingdispatchingtechniciansfromhometominimizecontactsatgaragesorservicedepots;eliminatingorlimitingtechnicianentryintocustomerpremiseswherepossible;minimizingnon-essentialpersonnelincompanyfacilitiestoincreasesocialdistancing;andprovidingPPEtofieldpersonnel.6.2.3.2 Travel and Access Issues Duringtheearlyphasesofthepandemic,asmanystateswereinstitutingmandatory“StayatHome”guidance,manyprovidersreportedconcernsregardingtheirabilitytomovefieldcrewstoconductnecessarywork.Sincethisissueaffectedarangeofcriticalinfrastructuresectors,DHS,throughCISA,issuedguidancetostateandlocalauthoritieson“EssentialCriticalInfrastructureWorkers.”97TheCommunicationsSectorCoordinatingCouncil(CSCC),thepublic-privatepartnershiporganizationthatcoordinateswiththeDHS,workedwithCISAtoensurethatkeycommunicationsemployeeswerecategorizedasessentialworkers.CISA’sNCChasproducedofficiallettersaskingState,Local,Tribal,andTerritorial(SLTT)governmentstoprovideanexemptionforcommunicationscriticalinfrastructureoperationswithregardtoanyrestrictionsimposedduringadisasteroremergencysinceHurricaneKatrina.SupplementaltotheCISAguidance,NCCissuedthesenon-bindingrequestletterstofurtherfacilitatetravelandaccessbycommunicationssectorworkers.OnMay26,2020,FCCChairmanPaiandCISADirectorKrebssentalettertoall56stateandterritorygovernorsencouragingthemtoprovide

97MemorandumfromDirectorChristopherKrebs,CISA,onGuidanceontheEssentialCriticalInfrastructureWorkforce(Aug.18,2020),https://www.cisa.gov/publication/guidance-essential-critical-infrastructure-workforce.

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necessaryaccessandresourcestocommunicationsprovidersduringthepandemictoenable9-1-1service,telehealth,distancelearning,andtelework.98Whiletheyprovedtobeeffective,theCISAguidanceandNCClettershavelimitations.Thelettersarenon-binding,andstateandlocalauthoritiesareundernoobligationtohonorthemormayestablishtheirownsystemforaccessandcredentialingofcriticalinfrastructureworkers.Further,thelettersaremeanttofacilitateaccessandfreedomofmovementduetophysicalorcurfewrestrictions,notasasubstituteforothermunicipalrequirementssuchaspermitsrequiredtoworkintheright-of-way.Providersreportedthatthelettersprovedvitalinanumberofreportedcasestohelpstafftraversestatebordersinanefficientmanner.ThereisanopportunityformoreoutreachandcoordinationassomeSLTTgovernmentswerenotfamiliarwithNCCletters.TheWorkingGrouprecommendsthatSLTTgovernmentsincorporatetheNCCLettersintotheirplansforanyresponseaswellasthespecificCOVID-19relatedguidancereleasedbyCISA.6.2.3.3 Minimal Touch Installation and Maintenance Procedures Socialdistancingmitigationsfurthercomplicatedinstallationandmaintenanceprocedures.Providersnotedissuesrangingfromcustomersthatcancelappointmentsduetohealthriskfactors,stateorlocalrestrictionsthatinitiallyputapauseonon-premiseinstalls,difficultynavigatinglandlordorsharedfacilityrequirements,andaccesstoPPE.Despitethesechallenges,serviceprovidersandinstallfirmsreportedthatwithcarefulplanningofandengineeringofinstallation/repairactivities,priorpre-existinggoodrelationshipsandcoordinationwithcommunitiesandcustomers,andflexibleuseoftechnologytoassistcompletion,installationandrepairworkwasmostlyabletoproceed.Clearcommunicationsandexpectationswereessentialtosuccess,bothinternallysothatemployeesfullycommittointernalpoliciesforsafeinstallationproceduresandwithcustomerstosetexpectationsbeforeaminimumorno-touchinstalloccurs.Communicationsshouldbeclearanddirectinoutliningprecautionsbeingtakenandoptionalmethodsforinstallstomeetemployeeorcustomerconcerns.Additionally,communicationsshouldbeongoing;someinstallersconductapre-callscreentoidentifyanycustomerhealthrisks,withaconfirmationscreeningthedayoftheinstallorcallwhenthetechnicianisonthewaytothecustomerlocation.Ifacustomeridentifieshealthrisksatanystage,theinstallationshouldberescheduled.Thespecificinstructionsonhowtoconductsafeminimumorno-touchinstallshavebeendescribedintwomajorbuckets:

1)Noentry/nocontactinstallation:Aself-installationordelayedinstallation(someworknowandfinishlater)utilizingexistingpremisespenetrationpoints.UsuallythiswouldbeaNetworkInterfaceDevice,OpticalNetworkTerminal,coaxialorphonepoint,buttominimizepremisesentry,sometimesevengoingthroughawindowsealtogetlinesintothehouse.Insomecases,anewpenetrationpointwouldberequiredwithassistancefromthecustomerontheinsidework.Somefirmsduringthepandemiccreatedhomeinstallationkitswalkingthecustomerthroughtheinstallprocesswithtechsupport,includinglivevideochatwithinstallationprofessionalsandeasytofollowpre-recordedinstallationvideos.

98LettersfromChairmanAjitPai,FCC,&DirectorChristopherKrebs,CISA,toGovernorsKayIveyETAL.(May26,2020),https://docs.fcc.gov/public/attachments/DOC-364566A1.pdf.

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2)Premisesentryinstallation:ThisprocessrequirestechniciansarrivingatthecustomerhomeorbusinesswithCDC-compliantPPEandfollowingsocialdistancingguidelines.Thetechniciancanstillcommunicateatasafedistancefromthecustomerwitheveryoneinmasks;optionallythetechnicianandcustomerarephysicallyseparatedandusephoneorvideoforcommunications.

Mostcommunicationssectorentitiesfollowedoneorbothoftheseinstallation/repairparadigms,butwithsomespecificmodifications.Mostfixedwirelessinstallationandrepairproceduresdonotrequirein-personcontactasinstallationoccursonarooforoutsidelocationandoftenapplicableequipmentisgenerallynothousedinsideahomeorfacility,sotechnicianscouldinstalloroftenmakenetworkrepairs/maintenanceasnormalwithouttheneedforin-personinteraction.Manyprovidersinitiallyseverelylimitedorcurtailedaltogetherentryintocustomerpremises,especiallyinlightofconcernsaboutsufficientaccesstoPPE.Asofmid-April,forexample,25%ofNTCAmembersreportedceasingentryintocustomerpremisesforinstallationactivity,and20%reportedthesameforrepairactivityaswell.Othersadoptedpoliciesonlytoenterintheeventofservice-affectingvoiceorbroadbandservices(ascomparedtovideooutages,forexample).6.2.4 Shift to Telework for Non-Essential Personnel AsthepandemicspreadacrosstheU.S.inMarch,manynetworkprovidersrapidlytransitionedtheirworkforcestomaximizeremoteworkwhereverpossible.Transitioningemployeestoworkfromhomewherepossiblereducedpopulationdensityinofficelocationstoallowgreatersocialdistancingforthoseemployeeswhocontinuedtoworkfromofficeandfieldlocations.Additionally,manyprovidersrestrictedtravelandlimitedin-personmeetings,contributingtothisvirtualizedremoteworkoperationalenvironment.Robustcybersecuritypracticesforthesedispersedworkforceswerecriticalinmaintainingtheconfidentiality,integrity,andavailabilityofproviderinternalandexternalnetworks.AsCISAandothersnotedtheuptickofCOVID-19-relatedcyberattacks,99trainingforremoteemployeesstressedtheneedtomaintain“cybersituationalawareness”andencouragedemployeestoidentifysuspiciouscyberactivityandreferittotheirITsecurityteamsforinvestigation.Providersleveragedlayeredsecuritycontrolssuchasmulti-factorauthenticationanddata-at-restencryptionfordevicesoutsideofcorporatefacilities(e.g.,desktopcomputersnormallyincompanyfacilities).Finally,intherapidtransitiontolarge-scaletelework,companiestieredtheirfunctionstoensurethemostsecureconnectionsareavailableforthosewhorequirethem,conservinginitiallylimitedcorporateVPNconnectionswhennecessaryandleveragingITresourcesviaportalsand/orcloudapplications.SomeprovidersfurtherreducedstrainonVPNresourcesbydivertingnon-securetrafficoutsideoftheVPN,atechniqueknownassplittunneling.

99DefendingAgainstCOVID-19CyberScams,CYBERSECURITY&INFRASTRUCTURESECURITYAGENCY(Mar.6,2020),https://us-cert.cisa.gov/ncas/current-activity/2020/03/06/defending-against-covid-19-cyber-scams.

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6.2.5 Protective Measures for Essential Office and Field Staff 6.2.5.1 Physical Protective Measures Manyprovidereffortsregardingprotectivemeasuresarediscussedinmoredetailelsewhereinthereport,butthissectionprovidesarecapofkeyprotectivemeasuresputinplacebyproviders.Forallworkers:

• Minimizein-personcontacts• ProvideappropriatePPEandguidance/training• Giveemployeesdiscretiontoavoidcircumstanceswhererecommendedsafetyprocedureswere

notpossibleorifacustomerwasdisplayinganyindicationoforrespondedadverselytoquestionsaboutCOVID-19-relatedsymptoms

• Establishcompanypoliciesandenforcerequirementsforprotectivemeasuressuchasmaskwearing,oftenasrequiredbystateandlocaldirection

• Eliminateorseverelylimitnon-essentialbusinesstravel• Implementregularpre-worksymptomscreeningandreporting

Additionalmeasuresforofficeandretaillocations:• Useadditionalspacefromemployeesworkingfromhometoincreasespaceforsocialdistancing• Implementadditionalcleaningandsafetyprocedures• Dividetheirworkforceintoshiftsand,wheretheyhaveallowedorrequiredstafftoreturnto

offices,alternatingin-officeschedulingonadailyorweeklybasistolimitcontactsandpromotetracing

• Closeofficestovisitorsandcustomerswherepossible

Additionalmeasuresforfieldstaff:• Homegaragingtoavoidcongregationsatcompanyfacilities• Limitationsonemployeespervehicle

ProvidersreportedconcernswithacquiringbasicPPE(handsanitizer,disinfectantwipes,masks,gloves)earlyinthepandemic.SmallruralwirelineprovidersinparticularreportedsignificantconcernswithobtainingsufficientaccesstoPPEandsanitizing/cleaningresources.6.2.5.2 Alternative Scheduling and Logistics Providersacrossindustrysegmentstookstepstoensureemployeesafetythroughalternativeschedulingandlogisticalchangestohelpkeepemployeessaferthroughsocialdistancing.Insomecases,communicationprovidersupdatedpoliciestoallowfieldoperationsstafftokeepacompanyvehicleattheirhomeratherthanpickitupanddropitoffeachdayatthejobsite.Crewsneededtoarriveinmultiplevehiclesratherthanthesamevehicletolimittransmissionofthevirus.Providersstaggeredshiftsforconstructionandinstallationcrewstominimizeoverlapwithotheremployeesandensurefewerpeopleatajobsitesimultaneously.Thiswasaccomplishedbyaddingmoreshiftsorspreadingshiftsouttostartearlierandendlater.Officestaffacrossallindustrysegmentsalsoreportedstaggeringworkschedulestofacilitatesocialdistancing.Forcommercialinstalls,coordinatingwithbuildingmanagementwascriticaltoensureavoidingothertenantsofthebuildingandminimizing

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interaction.Outsideplantconstructionteamssuchasin-groundfiberinstallationreportedabetterabilitytominimizecontactwithotheremployeesthanteamsconductingresidentialinstalls.6.2.6 Retail Activities Acrossindustrysegments,retailstoresprovidecriticalfunctionsnecessarytoestablishneworexpandedservice,repairorreplaceequipment,andfacilitatebillpayment.Inruralareas,thesestorefrontsprovideimportantconnectionsbeyondtheirfunctionalpurposes,providingimportantpresencesintowncentersinparticular.Asretailestablishments,however,somelocationswererestrictedfromopeningbystatestayathomeordersandbusinessrestrictions.Somebrick-and-mortarretailstoresremainedopentovaryingdegreesbystate,butwirelessstoresinindoormallsandotherpop-uplocationsinparticularremainedlargelyclosedduetostatestayathomeorders.Retailstoresthatremainedopentookprotectivemeasurestokeepemployeesandcustomerssafe.Manyusedcurbsideservicesandsecuredremoteequipmentdrop-offlocationstominimizecustomertrafficinthepremises.Manyreconfiguredstorestomaximizesocialdistancing—installingplexiglassatcustomer-facingcounters,designatingsociallydistantwaitingareasforcustomers,andprovisioningPPEtoemployeesstaffingtheseareas.Manylocationsrequiredthatmasksbewornbystaffandcustomers,andsomelocationsrequiredglovesforcertainstaffmembers.Manyprovidersreportedregularlydisinfectingthestoreaswellasanydevicesreceivedorbought.6.2.7 Coordination Efforts Interconnectednessisafundamentalpartofthemoderncommunicationsecosystem,andaccordinglyprovidersregularlyandroutinelycoordinatetoresolvepotentialcongestionpointsthroughexpandingcapacityatpeeringlocationsorothermeasures.TechnologysubjectmatterexpertsfromcommunicationnetworkserviceprovidersoftheCOMM-ISAChostedbi-weeklyindustry-onlycallswithtechnologysubjectmatterexpertsfromplatformprovidercompanies.Thesecallsfocusedongeneralupdatesfromeachcompany,andstrategiesforaddressingoperationalandmessagingrelatedissuesforCOVID-19.Earlyon,informationonexperiencesfrominternationalproviderswasextremelyusefulinprojectingpotential/realimpactsbeforeCOVID-19spreadtotheUnitedStates.Thesesessionshelpedtodevelopcontactsbetweenthetwodisciplines,whichultimatelyprovidedforincreasedawarenessandsolutionstotechnologyissues.Accesstotelecommunicationsequipmentandsupplieswillbecriticaltoensurecontinuedprogressonbroadbanddeploymentobjectivesandtomaintainservicesalreadyinplace.Earlierthisyear,morethan90%ofNTCAmembersreportedplanstocontinueconstructionconsistentwithinitialcapitalbudgetplansfor2020—althoughinarecentsurvey,morethan90%ofprovidersreportedincreasingconcernsaboutsupplychainimpactssincethestartofthepandemic.Forexample,32%ofsurveyrespondentsindicateddelaysofgreaterthan12weeksinobtainingfiber,and58%reporteddelaysofbetween9and12weeksinsecuringconsumerpremisesequipmentelectronics.Continuedcoordinationwithsuppliersandanindustry-widefocusonsupplychainimpactswillbeessential.EvenbeforethepandemicbegantospreadintheU.S.,communicationssectorincidentresponseprocessesswungintomotion.ThroughroutineweeklycoordinationcallswiththeNCCandtheCOMM-ISAC,governmentandindustrywerediscussingpreparationsandpotentialresponseactionsearlyin2020.TheCSCCwasalsoengagedindevelopingsectorconsensusonpolicy-levelperspectivesontopics

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rangingfromPersonalProtectiveEquipmentsectorneedstoconsolidatingresourcesfor“ReturntoNormal”planning. 6.2.8 Service Provider Community Support DuringtheCOVID-19pandemic,inadditiontoallofthesignificanteffortsdocumentedthroughoutthisreporttoensuretheirnetworkscouldsupporttheircustomersandkeeptheiremployeessafe,allindustrysegmentstookadditionaleffortstohelpnationalresiliencyinthefaceoftheglobalemergency.Notably,onMarch13,2020,inresponsetothepandemicandanychallengesconsumersmayface,FCCChairmanAjitPaiaskedbroadbandandserviceproviderstosigntheKeepAmericansConnectedPledgeinordertoensureAmericansremainconnectedduringtheseunprecedentedtimes.ThepledgewaslaterextendedtoJune30,2020withmorethan800companiessigningon.100Manyentitiesreportedgoing“aboveandbeyond”thepledgetohelpkeepthecommunitiesinwhichtheyliveandserveconnectedandsafeduringthepandemic.101Amongotherthings,providerswaivedlatefeesanddisconnectnotices;providedfreeservices,freeupgradesandincreasedspeeds;establishedneededcommunityhotspots;establishedteleworksolutions;andacceleratedconstructionandinstallationprojectstoconnectnewand/orcriticalbusinessesincludingremoteandnewhealthlocations.Indeed,allindustrysegmentsreportvoluntarilydoingevenmorebeyondensuringneededcommunicationsservicesduringthepandemic.Entitiesreport,forexample,establishingtechnicalroadmapsforbroadbandprovidersandschooldistrictsastheyswitchedtoremotelearning,fundingcommunityeducationalcampaignsaboutthehealthimpactsofCOVID-19,andevensteppingintofeedthefoodinsecureandestablishprocessesforcheck-insonelderlyandothervulnerablepopulationsintheircommunities.Otherproviderstookstepstosupportpublicsafetyofficialsandemergency/frontlinepersonnel,deliveringneededphonechargersorotherdevicestofrontlineworkersandhospitalpatientsordonatingandsupplyingcriticalprotectiveequipment,likefaceshieldsandotherdonatedsuppliesformedicalstaff. 6.3 Transition to the “New Normal” Evenasthepandemiccontinuestorepresentapublichealthandeconomiccrisis,providershavestartedtoexaminehowtomovefromadisasterresponseandrecoveryoperatingstatustoa“newnormal”intermsofoperationsandreturningemployeestotheworkplace–bothduringthepandemicitselfandthereafterintermsofnewpracticesandproceduresthatreflectlessonslearnedand/orefficienciesgained.Withsucheffortsinmind,onJuly1,2020,theCSCCreleasedadocumententitled“ReturntoNormal:GuidanceandResourcesforCommunicationsProviders.”102Thestatedpurposeofthereportisto“provideguidancetoonlineresourcesavailabletoassistcommunicationsprovidersestablishandimplementaplanastheyconsiderreturningtotheworkplacefollowingCOVID-19closures...includ[ing]stateandfederalgovernmentrecommendations,industrybestpractices,articles,and

100ChairmanPaiLaunchestheKeepAmericansConnectedPledge,NewsRelease(2020),https://docs.fcc.gov/public/attachments/DOC-363033A1.pdf.101CompaniesHaveGoneAboveandBeyondtheCalltoKeepAmericansConnectedDuringPandemic,FCC(Sept.10,2020),https://www.fcc.gov/companies-have-gone-above-and-beyond-call-keep-americans-connected-during-pandemic.102Commc’nSectorCoordinatingCouncil,ReturntoNormal:GuidanceandResourcesforCommunicationsProviders(Sept.2020),https://www.comms-scc.org/return-to-normal-guidance.

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questionnairesthatmaybeusefulwitheffortstocreateasafeworkenvironmentandmitigatingthespreadofCOVID-19.”Inadditiontoprovidinglinkstomanyresourcesthatcanassistprovidersinreturningtotheworkplace,keyrecommendationsofthereportinclude:

• Identifyinganddesignatingareturn-to-workcoordinationteam• CreatingaplanthatincorporatesfederalCDCandOSHAguidanceandstateandlocalguidance

specifictotheprovider’sbusinesslocationsandaddressesroll-backproceduresandphase-inoptions.

• Consideringtheneedfortestinganddefiningprotocolsifitisdeterminedthattestingisnecessaryinanygivencase.

• DetermininghowtoimplementCDCguidelineswithrespecttosocialdistancingintheworkplace,includingplacementofworkstations,interactionswithcustomers,treatmentofcommonareas,andlimitationsonface-to-facemeetings.

• ImplementingcontacttracingprotocolsconsistentwithCDCguidancetomitigateemployeetransmission.

• Addressingcompliancewithanyfederalorstatequarantineorders.• Adoptingpolicieswithrespecttosupplyandtheproperuseofpersonalprotectiveequipmentin

companyoperations,includinginteractionswithcustomers.• Reviewingcybersecuritypracticestomitigateagainstrisksthatbadactorsusethenew

environmenttoexploitweaknesses.

TheCSCCguidancealsoprovidesasampleframeworkfordecision-making,showinghowconfirmationofcertaincriticaldecisionpointsforeachofsixdifferentworkstreams–government,healthandsafety,facilities,ecosystem,businessreadiness,andemployeereadiness–shouldbeobtainedbeforemovingtoworkplacere-entry.Inaddition,providersareconsideringhowtoapply“lessonslearned”fromthisperiodinamoreregularcourseofoperationsmovingforward.Asoneexample,ratherthanrequiringfieldoperationsstafftoreporttoacentralizedlocationpriortodispatchingforcustomerservicecallssuchasinstallationsandrepairs,anumberofprovidersreportmigratingtoa“dispatchfromhome”model.Whileoriginallyimplementedoutofadesiretolimitinteractionsbetweenstaffduringthepandemic,providersarefindingthistobeanefficientpracticethatsavestraveltimefortechniciansandmaximizesemployeeresources.Providersaresimilarlyevaluatingwhetherotheroperationalchangesdrivenbythepandemic—suchasincreasedwork-from-homecapabilitiesforcustomerservicerepresentativesorotherofficepersonnel—canandwillbesustainedmovingforwardaspartof“normalized”operations. 6.4 Recommendations/Best Practices Related to Provider Resilience 6.4.1 Consider Additional Expedited Use of Special Temporary Authorizations TheFCCshouldcontinuetolookatSpecialTemporaryAuthorizationsthatcanbeexpeditedtosupportnetworkdeploymentsinspectrumthatmightonlybeavailableinlimitedareas,foralimitedtime,orcontainotherrestrictionsinordertohelpkeepAmericansconnected.

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6.4.2 Use Pandemic Response Funds Flexibly to Address Availability and Adoption Issues

TheFCCandotherfederalagenciesthathavefundingsourcesavailableforapandemicresponseshouldusesuchfundsflexiblytoaddresstherootissuesofavailabilityandadoptionnotedinthisreport. 6.4.3 Provide More Effective Coordination and Communications with Respect to Access

Letters Accesslettersarevitalforcriticalinfrastructureproviders’teamstocarryouttheirdutiesandservicesduringdisastersandpandemicswhenrestrictionsexistthatcouldimpedesuchwork.Assuch,theWorkingGrouprecommendsfutureDHSengagementwithSLTTpersonnelonaccessletterqualificationsandrelatedrightsforcriticalinfrastructureprovidersthroughsuchprogramsordocumentsastheInteroperabilityCommunicationsTechnicalAssistanceProgram,theNationalEmergencyCommunicationsPlan,andFEMA’sNationalResponseFramework.SLTTgovernmentshouldclearlycommunicatetoproviderstheexpectationsandacceptableuseofaccesslettersfromtheNCC.6.4.4 Continue Collaboration and Coordination Between Providers and Federal

Stakeholders ThesupportthecommunicationssectorreceivedfromDHSandCISAthroughtheNCCgreatlyfacilitatedsectorresponseactions.DHS/CISAshouldcontinuesupportingthecommunicationssectorthroughtheNCC,andtheNCCshouldcontinuetocoordinateoncommunicationssectorpreparednessandresponsewiththeCommission’sPublicSafetyandHomelandSecurityBureau(PSHSB).ClosecoordinationbetweenNCCandPSHSBisimportantandshouldcontinueaswell. 6.4.5 Implement More Effective Use of ESF#2 Communications State,tribal,andterritorialgovernmentsshouldofficiallyactivateESF#2communicationstocoordinateanyneedswithinthestate,tribe,orterritory.Thisactivationcouldbedonevirtuallyandatalimitedactivationlevelthatfollowsnormalbusinesshoursbutestablishesapointofcontactandprocessforcoordinatingcommunicationneedsbeingaddressedduetothepandemic.Thisisespeciallyhelpfultoaddressothercommunicationneedsthatmightariseduetoadifferentdisasterthatoccursduringthepandemic.6.4.6 Update Emergency and Disaster Response Plans and Activities Communicationsprovidersshouldupdateemergencyanddisasterresponseactivitiestorespondtoconcurrentseasonalweatherandpandemiceventstoaccountforpandemic-relatedfactors(e.g.,shelteringforworkers,PPEavailability,socialdistancing,etc.).6.4.7 Continue Sound Traffic Engineering Practices to Manage Network Traffic Communicationsprovidersshouldestablishorcontinuetrafficengineeringpracticestoeffectivelymanagenetworktrafficasnecessaryonacase-by-casebasis.Companiesshouldreviewtheseproceduresasapandemiccausesashiftinusagehabitsbothfortime-of-dayandthroughputneeds.

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7 Use of Future Technology and Innovations InitsthefifthchargetotheDRRWG,theFCCaskedtheWorkingGrouptoevaluate“[w]aysthattechnologycouldbeusedtomitigate[thechallengesidentifiedinothercharges,suchasmassteleworking]andothersimilarchallengesinthefuture.”Asnotedintheintroductionofthisreport,andascontemplatedintheverywordingofthischargeitself,thisfifthchargeisinextricablylinkedwiththeotherchargesdiscussedinsections4through6ofthisreportasthosesectionsdescribevariouswaysinwhichendusers,enterprises,governments,andserviceprovidersleveragedtechnology.Thefollowingareexampleswherefurtheranalysisandinvestigationcouldbeconducted.Somearealreadyunderinvestigationbyotherworkinggroupsorentities,suchastheFCCTechnologicalAdvisoryCouncil,theCSRIC,theDHSInformationCommunicationTechnologySupplyChainRiskManagementTaskForce(DHSICTSCRMTF),andNTIA,orintheDepartmentofCommerce’ssupplychainproceedings.

• IncreaseConsumerUseofVideoconferencingandVirtualPrivateNetworks–Asmanyworkersandstudentswereforcedtoteleworkandlearnremotely,andasmorepatientselectedtoconsultwithmedicalprofessionalsremotely,videoconferencingVPNapplicationsbecameincreasinglyimportant.WhileVPNapplicationsdonothaveanyspecialrequirementsotherthanproperaccessthroughfirewalls(e.g.properportsopen),videoconferencingoftenrequiresmorebandwidththanatypicalinteractivewebapplication.Thebandwidthrequirementsforvideoconferencingbythemselvesdidnotnecessarilyincreasebandwidthdemandsonthenetworkinspiteofvideoconferencingusagegrowingmorethan350%afterthefirstweekoftheshutdownandbyasmuchas700%onsomenetworks.103Asdescribedearlierinthisreport,however,broadbandnetworksintheUnitedStatesprovedlargelyuptothechallenge,withpriorinvestments,proactiveengineering,andsomenewtechnologiesdescribedfurtherbelowhelpedtoensurethattheadditionaldemandsdidnotexceedunderlyingnetworkcapabilities.Thepracticesandtechnologiesthatcontributedtothisoverallrecordofsuccessarediscussedintheseprecedingsections,andtheseformthekindofbestpracticesthattheWorkingGroupbelievesserviceproviderscanlooktoforfuturenetworkplanning.Yet,eveninthefaceofthisoverallrecordofsuccess,asdescribedfurtherbelow,individualusersmaystillhaveexperienced“connectivity”problems—thatincludedeitherlimitedserviceavailabilityoreconomicorotherbarrierstotheirabilitytogainaccesstobroadbandconnectiontotheinternet.

• InnovationinInstallationandRepairPractices–Whilethepandemiccausedmanyproviderstoceasephysicaloperationsaltogetherorseverelylimitentryintocustomerpremisesforinstallationorrepairactivity,“necessitybecamethemotherofinvention.”Asdescribedinsection6,manyprovidersdeployedandusedvideo-assistedinstallationandrepaircapabilitiesor“contactless”broadbandself-installationkitstoenablecontinuityofoperationsandservicedeliverydespitethepandemicandconcernsaboutenoughaccesstoprotectivepersonalequipmentforcustomerfacingworkers.

• SupplyChainResiliency–Thesustainabilityofadvancementsinnetworkcapabilitiestokeeppacewithgrowingdemandsandtoaddressgeographieswherenetworksmustbeupgradedtokeeppacewithgrowingdemandscouldbeadverselyaffectedifanysupplychainconcernscametofruition.IndustryworkedcloselywithDHSduringtheshutdowntomonitorforanycriticalsupplychainissues.Therewerenoreportsofcriticalsupplychainissues,butthisisoneareatomonitorgoingforwardasreportsofincreaseddelayshavebeennotedearlierinthisreport.The

103CraigLabovitz,PandemicImpactonGlobalInternetTrafficNANOG(June2020),https://storage.googleapis.com/site-media-prod/meetings/NANOG79/2208/20200601_Labovitz_Effects_Of_Covid-19_v1.pdf(lastvisitedJuly,172020).

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DHSICTSCRMTFcharteredafifthworkinggrouptodoapost-mortemanalysisoftheICTsupplychain.

ThenewtechnologiestheWorkingGroupidentifiedasworthyofsuchfurtherconsiderationanddevelopmentbeyondthosealreadyhighlightedaboveandinothersectionsofthisreportinclude:

• SoftwareDefinedNetworkingandNetworkFunctionVirtualization–ProvidersfoundthatSoftwareDefinedNetworkingandNetworkFunctionVirtualizationplayedimportantrolesinmaintainingnetworkperformanceduringCOVID-19asthetechnologiesallowedoperatorstoquicklyscaleandadjusttheirnetworkstomeetthechangesindemand.Networksoperatedandmanagedbysoftware,coupledwithevolvingartificialintelligencecapableofinformingnetworkmanagement,cangiveserviceprovidersincreasingabilitytoscalefordemandinreal-timeandadapttounexpectedeventsthatdriverapidshiftsincustomerdemand.Software-definednetworking(e.g.,TemporospatialSDN)willalsoplayanimportantroleinenablingtheflexibledeploymentandorchestrationofemergingaerospacenetworks,suchashigh-altitudeplatformstations(HAPS)andnon-geostationarysatelliteconstellations,inresponsetoemergencysituationsandchangingdemands.

• ArtificialIntelligenceandMachineLearning–SomeoperatorsreportedusingAI(artificialintelligence)toassistwithdetectingnetworkanomaliesandaidingindetermininghowtoaddressthem.104

• BroadbandConnectivityforUsers–Asdescribedelsewhereinthisreport,serviceprovidernetworksweredesignedtomeetandabletoeffectivelymanagethesignificantincreasesintheuseofsuchapplicationspromptedbystayathomeordersandotherpandemic-relateddemands.Thepandemicexposedcertain“connectivity”challengesfacedbysomeend-users.Asnotedearlier,these“connectivity”challengescanbebroadlycharacterizedasissuesof:(1)availability—thelackofsufficientconnectivityforuserstoparticipateasneededinteleworkingorremotelearningfunctions;and(2)adoption—thecircumstanceinwhichsufficientconnectivityexistsatagivenlocationbuttheuserelectednottoorisunabletosubscribe.Thepandemicchangedperspectivesformanywhopreviouslydidnothaveaninterestinorwereunabletomaintainasubscriptiontoabroadbandservicewereconfrontedwithapressingneed.

• TechnologiesforAdditionalCapacityandConnectivity–Broadbandproviders,infrastructureproviders,andequipmentmanufacturersaredevelopingnewtechnologiestoprovidecontinuousconnectivityevenduringdisasters.Broadbandprovidershaveworkeddiligentlytomaketheirfacilitiesmoreresilient.Nevertheless,disasterscanleadtoalossofconnectivity.Inthesesituations,especiallyifcertainwirelessantennasarenotinservice,wirelessprovidersemployportable“CellonWheels”sites,knownasCOWs,aswellas“CellsonLightTrucks,”knownasCOLTs,toprovideserviceuntilthetowercomesbackonline.COWsandCOLTsareoftenusedbyemergencyservicesandfirstresponderstoprovideadditionalcapacityandconnectivityastheyperformtheirlifesavingoperations.Theyarealsousedtoservethepublicforbothemergencyandnon-emergencyneeds.Newtechnologies,likeaerostats,blimps,balloons,andunmannedaerialvehicles,canalsoprovideconnectivityinhard-to-reachareas.

• EffectiveUseofWirelessEmergencyAlerts–AsofJuly2020,CTIAreportsthatmorethan380WirelessEmergencyAlerts(WEAs)weresenttomillionsofwirelesscustomerstoprovidecriticalinformationrelatedtoCOVID-19.Forexample,alertoriginatorsusedWEAstoinformconsumersaboutstayathomeorders,quarantineguidance,curfews,theavailabilityofCOVID-19testandscreeningsites,andthelocationsoffoodbanksandshelters.WEAsprovedtobeacriticaltoolinhelpinglocalpublicofficialsinformtheircitizensandencouragecommunitiestominimizethespreadofCOVID-19.TheuseofWEAcapabilitiestorespondtothepandemicalso

104JaredNewman,AsRemoteWorkExploded,ComcastTurnedtoAItoKeeptheInternetRunning,FASTCOMPANY(July24,2020),https://www.fastcompany.com/90519167/as-remote-work-exploded-comcast-turned-to-ai-to-keep-the-internet-running.

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suggeststhatadditionalbestpracticesforalertoriginatorsmayhelpmaintaintheeffectivenessofWEA.WhilealertoriginatorsshouldhavediscretiontodeterminewhenandhowWEAmessagesareappropriatefortheirjurisdictionandcommunities,alertoriginatorsshouldalsoconsiderbestpracticesthatminimizetheriskofover-alertingandmaximizetheeffectivenessofWEA.

8 Conclusion Becauseoftheneedforphysicaldistancingandotherpreventativemeasurestocurbtransmission,theCOVID-19pandemicmadeAmericansmorereliantthaneveronbroadbandnetworksforwork,education,healthcare,accesstonewsandentertainment,andotheraspectsofeverydaylife.InlightofthisincreasedsignificanceofbroadbandinAmericans’lives,theFCCchargedthisWorkingGroupwithexamininghowbroadbandnetworksaidedthoseworkingandlearningfromhome,howpermittingchallengesarisingoutofthepandemicmayhaveaffectedbroadbanddeployment,howprovidersoperatedandsustainedtheirnetworksinthefaceofchangesindatademandscausedbythepandemic,andwaysthattechnologymightbeleveragedtoaddresssimilarchallengesinthefuture.AfterthoroughreviewoftheFCC’schargesandexaminationofinformationfromawidevarietyofsources,theDRRWGhasputforthaseriesofrecommendationsandidentifiedbestpracticesthatithopeswillprovidevaluetostakeholdersofallkindsevenasthecountrycontinuestorespondtothepandemic.Thisreportfindsthat:(a)networksperformedwelloverallduringthepandemic;(b)availabilityandadoptionchallengeswereintensifiedascriticalsocietalfunctionstransitionedonline,almostovernight;(c)municipalitieswereabletoensurethatpermittinggenerallywasnotanobstacletomaintainingand,asneeded,expandingbroadbandnetworksduringthepandemic.;and(d)therapidandsignificantsocialchangesbroughtonbythepandemic,suchasincreasedteleworking,remotelearning,anduseoftelemedicine,arebecomingingrainedandwilllikelyleadtolong-termchangesinbroadbandusageandadoption.

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Appendix A

DisasterResponseandRecoveryWorkingGroupMembers*indicatesamemberoftheBroadbandDeploymentAdvisoryCommitteeAlternatemembersoftheWorkingGrouparealsoprovidedbelow.Chair:RedGrasso,FirstResponderEmergingTechnologiesProgramDirectorNorthCarolinaDepartmentofInformationTechnologyVice-Chair:JonathanAdelstein,President&ChiefExecutiveOfficer*Alternate:JohnHowes,GovernmentAffairsCounselWirelessInfrastructureAssociationMembers:AndrewAfflerbach,ChiefExecutiveOfficerandDirectorofEngineering,CTCTechnologyandEnergyAlternate:NancyWarner,GeneralCounsel*NationalAssociationofTelecommunicationsOfficersandAdvisorsChrisAnderson,PrincipalAdvisor,NationalSecurityandEmergencyPreparednessLumenAllenBell,DistributionSupportManager,GeorgiaPowerCompany*SouthernCompanyElizabethBowles,CEO&President*AristotleUnifiedCommunications,LLCRobCantu,Director,CybersecurityAlternate:MatthewGerst,VicePresident,RegulatoryAffairsAlternate:ArielDiamond,Associate,DLAPiperCTIARickCarlisle,DirectorofInformationTechnologyPuebloofPojoaqueMichaelChauffe,MayorVillageofGrosseTête,LouisianaWilliamCheck,Ph.D.,SeniorVicePresidentofTechnologyandCTOAlternate:MattTooley,VicePresidentofBroadbandTechnologyNCTA-TheInternet&TelevisionAssociationSkylerDitchfield,ChiefExecutiveOfficer*Alternate:MelissaSlawson,GeneralCounsel,VicePresidentofGovernmentAffairsandEducationGeoLinks

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AlexandraFernandez-Navarro,CommissionerPuertoRicoPublicServiceRegulatoryBoardTonyFischer,Director,InformationTechnologyCityofGermantown,TennesseeMonicaGambino,VicePresident,LegalCrownCastleToddGourd,ChiefInformationOfficer&SeniorVicePresidentCherokeeNationLarryHanson,ExecutiveDirector*GeorgiaMunicipalAssociationDavidHartshorn,ChiefExecutiveOfficerGeeksWithoutFrontiersGregHauser,CommunicationsBranchManager/StatewideInteroperabilityCoordinatorEmergencyManagementDivision,NorthCarolinaNationalEmergencyManagementAssociationKurtJacobs,CorporateDirector,EmergingTechnology&SolutionsJMAWirelessJeremyJohnson,CISATelecommunicationsSpecialistDepartmentofHomelandSecurityJulieKearney,HeadofRegulatoryAffairs*Alternate:JamesonDempsey,GovernmentAffairsCounselLoonLLCRichard“Kent”Kildow,DirectorofBusinessContinuity&EmergencyManagementVerizonFrankKorinek,DirectorofGovernmentAffairsMotorolaSolutionsWyattLeehy,InformationTechnologyManagerGreatPlainsCommunicationsSteveLeese,SeniorConsultant,CommunicationCenter/9-1-1ServicesAssociationofPublicSafetyCommunicationsOfficials(APCO)JimMatheson,ChiefExecutiveOfficer*Alternate:BrianO’Hara,Director,RegulatoryAffairsAlternate:MarthaDuggan,SeniorPrincipal,RegulatoryAffairsNationalRuralElectricCooperativeAssociationKellyMcGriff,VicePresident&DeputyGeneralCounsel*UnitiGroup

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AndrewMincheff,GovernmentRelationsDirectorINCOMPASChrisNurse,AssistantVicePresidentforStateLegislativeandRegulatoryAffairs*AT&TFrancellaOchillo,ExecutiveDirectorNextCenturyCitiesFrankRamirez,NationalAmericanIndianVeteransEddieReyes,PrinceWilliamCountyEmergencyCommunicationsCenterNationalPublicSafetyTelecommunicationsCouncilDeniseRiedl,ChiefInnovationOfficer,DepartmentofInnovationandTechnologyCityofSouthBend,IndianaMikeRomano,Sr.VicePresident–IndustryAffairs&BusinessDevelopmentNTCA–TheRuralBroadbandAssociationSanjaySaggere,ChiefInformationOfficerConfederatedTribesoftheColvilleReservationRikinThaker,VicePresident,TelecommunicationsandSpectrumPolicy*MulticulturalMedia,TelecomandInternetCouncilPeteTomczak,Manager,SpectrumCoordinationandClearanceFirstNetRockyVaz,DirectorofEmergencyManagementCityofDallas,TexasJosephViens,SeniorDirectorofGovernmentAffairsCharterLisaYoungers,President&CEOFiberBroadbandAssociationFormerMembers:KaylaGardner,SeniorManagerofGovernmentAffairsWirelessInfrastructureAssociationMeganBixler,TechnicalProgramManagerAssociationofPublicSafetyCommunicationsOfficials(APCO)