Most State Broadband Offices have decided that DSL is an obsolete technology, regardless of the bandwidth that it can deliver. This means that for purposes of BEAD grants, homes and businesses served by DSL are considered to be unserved even when the DSL is providing speeds greater than 25/3 Mbps (underserved) or 100/20 Mbps (served).
The reasons for ignoring DSL for purposes of BEAD is that DSL is an obsolete technology. Copper networks are old and dying. Telcos are working diligently to back out of the copper business. Even where DSL might still be working well for customers today, nobody expects those connections to still be functioning a decade from now. States want to make sure that customers whose only choice today is DSL will have a broadband option going into the future.
I think that NTIA and the States should make the same determination for cable networks still using DOCSIS 3.0 technology. There are still a number of small towns and cities where cable networks are deployed with this technology.
DOCSIS technology (Data Over Cable Interface Specification) was created by CableLabs to give cable companies the ability to deliver broadband over a hybrid fiber-coaxial network. There have been several generations of DOCSIS technology. The first generation of the technology was DOCSIS 1.0, released in 1997. This technology allowed cable companies to offer broadband download speeds of 1 Mbps, and was eventually used to boost download speeds to around 6 Mbps broadband.
This was quickly followed by DOCSIS 2.0, released in 2001. This upgrade allowed for more channels to be assigned to broadband and was used over time to offer speeds up to 60 Mbps download. DOCSIS 3.0 was a significant upgrade that allowed the bonding of multiple channels together for the broadband path. This allowed cable companies to increase download bandwidth to several hundred Mbps. But most DOCSIS 3.0 networks have upload speeds under 20 Mbps.
The most commonly deployed configuration of HFC technology in the U.S. is DOCSIS 3.1. This was the upgrade that introduced gigabit download capability. This is the technology deployed in every major city and in most smaller cities and towns. The cable industry is already conducting trials of DOCSIS 4.0. This upgrade will allow for speeds of 5 Gbps download and will also allow for upload speeds of several Gbps. This is the upgrade that cable companies hope will allow them to compete on an even footing with fiber.
It’s not hard to make an argument that DOCSIS 3.0 is obsolete. The technology will soon be two generations of technology behind what will be deployed in most markets. The vast majority of cable customers in the country have already seen an upgrade to DOCSIS 3.1 which brought the ability to buy gigabit speeds. Nobody expects DOCSIS 3.0 networks to still be functioning a decade from now. Any cable company operating this technology will have to eventually upgrade – but until they do, this technology should not qualify for BEAD funding.
It’s possible to tweak and fine-tune a DOCSIS 3.0 network to just squeak by as served for BEAD grants. But in my mind, counting DOCSIS 3.0 as served is equivalent to letting telcos still claim DSL as served.
It won’t take many years for a DOCSIS 3.0 network to degrade in capability as customers use more broadband each year. I always refer back to Open Vault statistics that show that the average usage for broadband customers has increased from 270 gigabytes per month at the end of 2018 to 641 gigabytes per month at the end of 2023. It’s inconceivable to think that a DOCSIS 3.0 network will be able to handle the broadband loads that are coming just a decade from now. That’s the primary reason why the technology is obsolete. If networks with DOCSIS 3.0 technology are classified as providing adequate broadband today, the owners of these networks will have no incentive to make investments to improve the networks.
I’m sure that a decade ago, nobody would have believed that there would be telcos still claiming 100/20 Mbps broadband speeds for DSL today – but I’ve seen pockets of this across the country. State Broadband Offices and the NTIA have recognized that the technology is not sustainable to meet future broadband needs and decided to ignore DSL when defining BEAD-eligible locations. If they apply the same logic to DOCSIS 3.0 networks, I’m positive they will draw the same conclusion.
