The Maine School and Library Network

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1 The Maine School and Library Network June 2009 What follows is a case study of a successful library broadband network in this case, Maine runs a statewide network. This document is in pre-publication, draft format; it will be published later this year in a longer document that will include other case studies and supplementary materials. These case studies are being created to assist libraries in their development of connectivity and sustainability plans under the Opportunity Online Broadband Grant Program of the Bill & Melinda Gates Foundation and hopefully, they will be useful for other purposes. Maine implemented one of the first statewide networks to provide connections to the Internet for all schools and libraries. After a concerted planning effort by the library and school communities, the Maine Public Utility Commission created the Maine School and Library Network (MSLN) in 1996 using overearning funds from NYNEX, the phone service provider during this period. The MSLN was later codified by the state legislature and is now funded by a combination of federal (E-rate) and state surcharges on telephone bills. As a result, Maine s libraries have very high connectivity compared to most states; about 75 percent of Maine s libraries that participate in the MSLN have one T1 (bps) and the remainder have two T1 lines (the maximum available through the MSLN). In contrast to most other states, the MSLN does not depend upon a hierarchical structure that connects each community to a central backbone network. Instead, the MSLN funds direct local connections from each school and library to two aggregation points operated by the State of Maine s Internet Service Provider (UNET). The network uses standard T1 connections, which are easy to provision and to troubleshoot. By aggregating its purchasing power, the MSLN can obtain prices for these circuits at rates that are far lower than an individual library could expect. However, the network design and technologies used by MSLN are now under stress because of the growth in Internet demand. Maine is now considering shifting to a new network design that relies on local fiber optic and wireless connections to the Maine research and education backbone network. History of the Maine School and Library Network 1 The Maine School and Library Network (MSLN) was created after a coordinated two-year planning effort led by Maine s library and education communities. In the fall of 1994, three organizations in the library community the Maine Library Association, Maine Educational 1 Much of this background of the Maine network is based on Schroeder, P. (1996). Organizing Advocacy for Network Services in Maine: Political Background for a Successful Initiative. Proceedings of INET96: The Internet-Transforming Our Society Now. (available at 1

2 Media Association (representing school librarians), and the Maine Library Commission joined together to represent the interests of the largely independent and autonomous public libraries before the Maine Public Utilities Commission (MPUC). 2 The result of these efforts was the creation of the MSLN, one of the earliest and most comprehensive state programs to improve libraries Internet connections. The advocacy effort focused on an investigation by the MPUC into allegations that NYNEX 3 had overcharged its customers. After the libraries formally intervened and participated actively in the case, MPUC Chair Thomas Welch announced on May 1, 1995 that he wanted to permit NYNEX to use up to $4 million [a year for five years] of the [$15 million] rate reduction we require to provide rate reductions [including equipment] or other services to the libraries and schools of Maine. It was left to NYNEX to work with others, including schools and libraries, to develop a plan to implement this rate reduction. A group led by librarians (representing schools and libraries), the MPUC, telecommunications carriers, the cable companies, and the University of Maine negotiated furiously over the summer of Ultimately, the group settled on a plan to provide 56 Kbps frame relay connections for all public schools and libraries in the state, with free Internet access, including equipment and free network support services. The Internet Service Provider (ISP) would be the University of Maine System Network (UNET). The MPUC adopted the plan proposed by the librarians and others on January 5, The initial MSLN plan called for an allocation of $20 million to connect more than a thousand public schools and libraries in Maine for five years. Maine s Supreme Court upheld the Commission s decision on March 15, 1996, when it issued a decision refusing to consider an appeal to the ratepayer case. A parallel effort was undertaken in the state legislature to establish the legitimacy of the MPUC action. To guide this effort, the library organizations formed a Joint Legislative Committee to advocate for the expansion of the MPUC s authority to grant discounted rates and services for libraries. A few weeks later after the Supreme Court decision, LD 828 was passed by the Maine Legislature. 5 In 1999, the Maine Legislature codified the program and provided funding to continue the MSLN beyond its initial five-year period. The legislation allowed the MPUC to collect a surcharge on intrastate telephone services and deposit the revenues into the Maine 2 According to Schroeder, the entire effort began when a single public librarian from mid-coast Maine asked the MPUC staff why libraries had to pay commercial (business) rates for telephone service. The PUC staff told her that was the charge in the telephone company tariff, but also advised her that she could form a group of 10 ratepayers to file a formal complaint with the MPUC that would initiate an investigation. The librarian asked the state library association to assist in filing the complaint. This initiated a round of discussion and analysis that ultimately led to the decision by the three organizations to join forces and intervene in the MPUC rate proceeding. 3 NYNEX later became known as Verizon. In 2008, Verizon sold its service in Maine, New Hampshire and Vermont to FairPoint. FairPoint is now the dominant provider of local telephone service in Maine and is the primary provider for the MSLN. 4 Maine s state budget was relatively balanced in the mid-1990s, but it had little impact on the decision to build and fund the MSLN because the costs of the MSLN were funded by the telephone company s overearnings. Instead, the library community and others were responsible for generating public support in using these ratepayer funds to provide connectivity to schools and libraries, rather than returning the funds to the public. 5 The Schroeder article notes that at one point in the process, the MPUC held a hearing at remote Presque Isle at which only four members of the public appeared all of whom were from the library and school community. The paper concludes as follows: A basic lesson of public advocacy was learned again through the process: Don t be deterred from speaking up even when up against overwhelming odds, and speak loud enough to be heard. Schroeder, p. 9. 2

3 Telecommunications Education Access Fund (MTEAF). 6 Once the legislature authorized this new source of funding, the Maine School and Library Network became known as MSLN2. 7 Governance and Management of the MSLN The MPUC is the governing body of the MTEAF and the MSLN. The Commission decided to retain ultimate responsibility and authority over the project since ratepayer monies were being used to support the network. However, it created an Advisory Board with limited defined functions necessary to administer the fund and the network. In 2007, the Legislature disbanded the MSLN advisory board. The State Librarian and the Commissioner of the State Department of Education (DOE) are now responsible for policy and for representing the interests of libraries and schools before the MPUC. Each agency has staff members responsible for assessing the needs of libraries and schools and preparing an annual report to the MPUC that outlines the network s needs and a budget request for the next year. The project manager provides day to day management of MSLN, including oversight of schools and libraries regarding the use of MSLN Internet bandwidth, development recommendations to the Department of Education and Maine State Library on future bandwidth growth, coordination of circuit moves, and changes of circuits. The project manager also consults with school and library personnel on the impact on bandwidth of their technology initiatives. MSLN is funded by two surcharges on telecommunications services: the federal E-Rate program on interstate services and the MTEAF surcharges on intrastate services. E-Rate discounts pay for approximately 60 percent of network costs and the state program supports funds 40 percent of the total cost. No later than March 1 of each year, the DOE and the State Library file a joint proposal for MTEAF support for the next fiscal year beginning on July 1. After a prescribed comment period, the Commission issues an order by May 1 that establishes the amount to be collected from contributing state telecommunication carriers and a level of funding for libraries that do not apply for the federal E-Rate program. 8 MSLN funding should remain steady for the foreseeable future as the network s revenue is generated through the federal and state universal services funds and not through state appropriations. The MTEAF collection changes from year to year depending on MSLN 6 Codified in 35-A M.R.S.A B. The rule implementing the Maine Telecommunications Education Access Fund is contained in Chapter Notwithstanding the official name change to MSLN2 that resulted from the legislature s action, the network is still commonly known as the MSLN. 8 The most recent joint request from the DOE and State Library is available at Final%20report%20turned%20into%20PUCl.pdf. 3

4 needs. MSLN administrators are aware of the need to keep the assessment rate as low as possible, and they lowered the request rate for FY In FY 2007, the annual cost for MSLN was approximately $4.4 million. Funds from MTEAF pay for telecommunications services, Internet access, internal connections, computers, training and content. In addition, MTEAF also funds: a. A circuit rider, who primarily helps small schools and libraries; b. A consultant to assist with the federal E-rate process; c. An administrator to collect the surcharges from telecommunications carriers; d. A Project Manager to work with schools and libraries and track needs; and e. Free access to a variety of databases. The following chart shows the MSLN funding totals for FY 2008 and the library request for FY MSLN E-Rate Funding Year 2008 (Schools and Library Combined Application) Cost of Service Discount* Amount Funded Telecommunications Services $3,409, % $2,284, Internet Access (ISP Services) $1,127, % $755, Totals $4,537, $3,040, E-Rate Funding Year 2009 (Library Only Application)** Cost of Service Discount Amount Requested Telecommunications Services $1,199, % $827, Internet Access (ISP Services) $240, % $168, * Discounts depend on poverty level and urban/rural status of library s service area ** No funding commitments yet Participation in MSLN is voluntary and 49 of Maine s 271 public libraries do not receive MSLN Internet services. These 49 libraries have other connections, often through their community s cable company contract; a few have no Internet connection. Since 2007, the State Library has been a community partner in WebJunction, the web-based training service for the library community. In addition, Maine s three Regional Library Systems offer workshops and other continuing education activities to member libraries. The State Library also offers limited training through their Coordinator of Learning and Technology, who coordinates training efforts with the Regional Library Systems. The Maine 4

5 Association of School Libraries also provides some training opportunities for school library media specialists. MSLN provides a Circuit Rider service that provides advice and assistance by phone, , and in person to solve MSLN members technical problems. Currently, MSLN funds a single circuit rider position. The Circuit Rider visits schools and libraries to assist them, assess their future broadband needs, and hear concerns. The Circuit Rider focuses on the sites with the most serious problems and with the fewest local resources to solve those problems. Because the Circuit Rider cannot address the needs of every library, the program tries to train local libraries to develop their own sustainable uses of the MSLN without ongoing technical dependence on Circuit Rider, and to integrate Circuit Rider efforts with those of other training programs through the State Library and DOE. Network Architecture and Operations The network supporting Maine s libraries is an interesting case study since it defies the typical rules around the establishment of a network. Almost invariably, networks grow up around a need to access a resource or application. The need exists before the network is built or significantly modified because few have the vision or the resources to build it first. The state of Maine took the unusual step of creating the network first, when libraries were only beginning to need access to the Internet. Maine thus developed a very simple design to serve its needs. Network Design Two main themes that define successful library networks are aggregation and centralization. MSLN achieves both of those key elements, but in an unusual way. Rather than three distinct layers that aggregate traffic (a Local Access Connection, an Aggregation Point, and a Core), MSLN allows each school and library to use a local access circuit (56 Kbps or Mbps circuit) to connect directly to UNET (the ISP) and to the Internet. The flat MSLN network makes it easier for individual sites to connect directly to each other through the Internet. As such, any library could host a resource that any or all MSLN libraries could access. (A hierarchal design does not necessarily prohibit direct connections between locations, but it often narrows the opportunities.) As noted earlier, the original plan called for each school and library to have a 56 kbps frame relay circuit connecting the school/library to UNET. In 1998, the Commission approved upgrading schools and libraries to a T1 connection if they were exceeding the capacity of their 56 kbps connection. As shown in the diagram below, the network aggregates library traffic to two UNET nodes within the state (located in Portland and Bangor) rather than a library system s main library. That design, coupled with standard, ubiquitous transport (T1) allows the MSLN to offer a consistent service across the state for any library to use. An additional upside in aggregating all the library traffic is a lower monthly recurring expense for Internet access. The average cost of Internet access measured by the megabit always decreases as more traffic is aggregated. 5

6 UNET POP Bangor UNET POP Portland Internet The downside of a flat network that has only two aggregation points is that traffic destined for a centrally managed library resource (or for another library) must traverse the Internet to reach its destination. This means greater physical distance, which adds latency, and a potential drop in the quality of the Internet service. That is, the Internet will treat all traffic using best efforts and will not recognize any traffic a library marks as high priority and, therefore, will not ensure that those packets are delivered over lower priority packets. While these can be genuine issues, they have not affected libraries on the MSLN. MSLN Network Topology The topology in MSLN is a technical support person s dream. The only transport type in the network is a carrier provided T1 circuit, which is less complicated to install, maintain and repair. The fewer the variables involved in the network, the faster problems are to diagnose and shorter the mean-time-to-repair average is going to be. A T1 circuit is a standard carrier industry service that has been available since the 1960s. That is to say, it is very easy for a carrier to provision and install this service because it has been doing so for almost fifty years. Another advantage of a consistent deployment is the consistency of the routers configured by UNET, the libraries ISP. Rather than a series of templates to chose from depending on the topology (or worse yet an individual router configuration for each device), UNET can use the same router configuration for each library site through the state. This reduces the complexity of implementing a new site. It also greatly reduces the risk of a unique configuration causing an issue throughout the network. Aggregate Purchasing Libraries choosing to participate in the MSLN have the advantage of requesting service from a contract held jointly between the Maine Department of Education and the State Library. 6

7 When compared to other library systems, Maine is unique in many respects but not when it comes to aggregating their purchasing power. Maine offers a significantly lower price for T1 service than an individual library could ever hope to receive for exactly the same service because it offers the telephone company the opportunity to provide the service on statewide basis. The cost for a carrier to offer 900 T1s will be more economical than providing one T1, and its contract pricing reflects that cost savings. In Maine, T1 services are purchased from FairPoint (formerly Verizon) for any location in the state, even if the provider is an independent telephone company. MSLN can offer a fixed price for T1 service to any library in the state regardless of the local provider. This also relieves the individual library of the burden of requesting and evaluating proposals for connectivity to meet the federal E-rate requirements. Certainly one of the factors for success for libraries in Maine is the ability to purchase or upgrade standard service from an existing contract anywhere in the state. The Future of the MSLN Maine is now considering how to upgrade the MSLN to accommodate the growth in Internet usage. 9 The bandwidth available through MSLN is now at its practical limits and is no longer meeting current needs of schools and libraries; in its current structure, it cannot scale to meet future needs. 10 The Department of Education and the Maine State Library are considering how to provide 100 Mbps capacity to all schools and libraries, but acknowledge that doing so will require a new strategy in procuring service and a recognition that no single technology will best serve all regions of the state. Schools and libraries are consolidating traffic in central locations to reduce costs, but these central locations require more bandwidth than is currently available. As a result, some schools have opted out of MSLN and negotiated alternative connections from ISPs that are able to provide them greater bandwidth. This may solve the individual school s needs, but it does not allow for economies of scale and cost efficiencies that come from a homogeneous network. 11 The DOE believes that it should develop an upgrade strategy based on optical fiber technology. It finds that optical fiber is a future proof technology that can scale to very high data rates by upgrading only the end equipment. To wit: To deliver the required capacity in the new network most commonly requires fiber optic cabling to each building. On the surface this appears to be an unrealistic goal, but it is not. In fact, many schools and libraries already have fiber to their buildings as part of their cable TV franchisees [sic] although it is often not being used for their Internet access. For example, many towns in Penobscot Valley have fiber distribution from a central point to all their schools, libraries, and municipal buildings. A single high speed connection to these central points of fiber 9 See, A Framework for the Next Generation Maine School and Library Network, Prepared by University of Maine System ITS at the request of the Commissioner of the Maine Department of Education. (available at 10 Id., at The document notes several examples of such cost efficiencies, such as coordinated application support, connections to Internet2 backbones, more efficient traffic management, more efficient allocation of Internet address space, and use of a single centralized Help Desk. 7

8 connections can very quickly provide from 10 Mbps to 100 Mbps to each location with very minimal investment in equipment. 12 The paper goes on to note that private enterprises can be hired to install fiber. While the upfront expenditure is significant, the costs can be averaged over time (5-10 years) so that the cost is not appreciably different than the cost of delivering current MSLN services. 13 It also acknowledges that fiber may be too expensive in some areas. It notes that wireless service can be a practical solution for service to islands off the coast of Maine as well as some very rural communities. Regarding the middle mile (the connections from the local community to the Internet backbone), the paper notes that the Maine Research and Education (R&E) backbone network is currently expanding beyond its existing communities of Bangor and Orono and will be more accessible to other areas of the state. 14 Communities have the option of negotiating interconnection from the local cable or telecommunications firm, or building their own private fiber connection to connect to that backbone. To move forward on this approach, the DOE recommends engaging in a collaborative effort with the research and education community. It notes that several other states are doing so, particularly Connecticut, Rhode Island, Missouri and Iowa. According to one observer: The concept for Maine as has been envisioned so far is a central entity, that would be a business branch of the University of Maine System, would contract to run a statewide telecommunications delivery system that would ultimately support education, research, public service, government, and economic development agencies. The agency would be overseen by a council consisting of staff from the Maine State Library, DOE, UMS, and the office of Maine Information Services. The new entity, tentatively named NetworkMaine, would put out RFP's to build regional networks for schools and libraries with local connections between local schools and libraries that would then back-hall [sic] to a central point for connection to the statewide network. The type of connection would be up to the local transport provider and would not be limited by type. While regional networks may not be possible at all locations, encouraging local service providers to do so would facilitate the movement of fiber to all sites over time and should provide sites with more bandwidth per student than they currently have access to. Where T1's are the only solution limitations would be based on a per pupil basis not a flat limit of 2 T1's. 15 According to one observer, Maine s goal is to finalize a plan for this new network this summer, issue requests for proposal in the fall, and sign contracts before February 1, 2010 (which is the deadline for E-Rate purposes). 12 Id., at Id., at See,