The Superior Common Council voted 8-2 to adopt a broadband master plan for a municipally owned open-access fiber network after public comment and a lengthy council discussion about funding, consultant independence and project risks.

Patrick Malley, who operates Duluthian Networks, spoke in favor during the public comment period, saying the proposed model would place public infrastructure in the ground and allow multiple internet service providers to offer services over that network. "The role of government, I believe, is to provide infrastructure that would not otherwise feasibly be obtained," Malley said.

Council discussion focused on financing and oversight. Councilor Fennessy said she would vote against the plan if the city were expected to shoulder full risk for bonding, citing a $31,000,000 bond figure as an example of potential exposure. "I don't believe the city should be shouldering 100% of the risk with a $31,000,000 bond for this," she said, warning of the possibility taxpayers could be left repaying debt if take rates were low.

Mayor Payne and plan advocates responded that federal grants, ARPA funds and other funding pathways described in the master plan could cover much of the cost and that the council would proceed with an RFP process to hire a project manager and then a separate, independent review for implementation details. The mayor said he did not foresee a need to issue bonds and that the city could phase development with available grant revenue.

Councilors pressed for safeguards: Councilor Sweeney said an outside, independent financial review of detailed budgets and operational costs would determine her vote. The mayor and supporters agreed the next step, if the plan were adopted, would be to terminate the current consultant relationship (if necessary), issue an RFP for a project management consultant, and prepare more detailed construction budgets, maps and timelines.

The roll-call vote recorded: Councilor Ludwig, yes; Councilor Sutherland, yes; Councilor Kern, no; Councilor Graske, yes; Councilor Ladin, yes; Councilor Van Sickle, yes; Councilor Bender, yes; Councilor Sweeney, yes; Councilor Fennessy, no; Councilor Elm, yes. The motion passed 8 to 2.

Supporters said the open-access municipal model would increase competition among ISPs, expand speeds and reach underserved households. Opponents cautioned that other municipal models cited during debate have struggled with low residential take rates and that financing details must be firmed up before construction.

Next steps identified by the mayor and council include issuing an RFP for project management and conducting an independent implementation and financial review. Council discussion suggested planning and design could take roughly a year, with construction beginning after that on the fastest timeline.

The council adopted the plan and directed staff to return with procurement documents and refined budgets and timelines for council review.