ontario’s far north study: broadband best practices and benefits … · 2004. 7. 30. ·...

Ontario’s Far North Study: Broadband Best Practices and Benefits

MBS and Industry Canada January 5, 2004 Bay Consulting Group

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in Fort Severn and Big Trout Lake

Submitted to:

Connect Ontario: Broadband Regional Access (COBRA) Management Board Secretariat

and

Broadband for Rural and Northern Development (BRAND)

Industry Canada

Submitted by: H. Jansen and G. Bentley

JANUARY 5, 2004



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Table of Contents

I. EXECUTIVE SUMMARY ................................................................................................. 3

II. INTRODUCTION................................................................................................................. 3

III. OUR APPROACH TO THE ASSIGNMENT.................................................................... 6

IV. FINDINGS: BEST PRACTICES ........................................................................................ 7

V. FINDINGS: BENEFITS..................................................................................................... 26

VI. CONCLUSION ................................................................................................................... 40



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I. Executive Summary Fort Severn and Big Trout Lake have gained experience in broadband that other communities can benefit from. Best practices identified include the following:

1. Clear and far-reaching vision 2. Strategic planning 3. Effective leadership 4. Community engagement 5. Local control 6. Cost-effective infrastructure 7. Technical innovation 8. Creation of informed users 9. On-line services 10. Performance measurement and sustainability.

Both communities developed a clear and far-reaching vision and engaged in the planning and execution of effective implementation strategies. Residents of both communities were fully engaged in the planning and execution of their broadband systems and these systems are now owned locally and provide reliable service. Users are well-informed about the capabilities. These and the other best practices identified, have led to significant benefits for each community. The benefits include advances in health care for residents, the availability of videoconferencing, better access to research, improved training opportunities and reductions in outlays for air travel.

II. Introduction The objectives of this comparative study were to examine the best practices and benefits associated with the planning and implementation of broadband infrastructure in Fort Severn and Big Trout Lake and to compare these with Fort Albany. On July 30, 2003, an RFP was issued for this study with the terms of reference identified to be as follows:

1. Examine the best practices in the planning and implementation of the broadband infrastructure in Fort Severn and Big Trout Lake. Specifically, this element of the study will:

a. Address the process followed in the planning and building of broadband

infrastructure; and b. Identify and describe the ownership and operating models deployed by the

networks under study.



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2. Evaluate the benefits of broadband accrued to Fort Severn and Big Trout Lake. The focus will be on the following areas:

a. Health, social and educational services provided by the federal and provincial

governments; and b. Economic development opportunities.

In addition, the terms of reference called for a comparison of best practices and benefits in Fort Severn and Big Trout Lake with those in the un-served community of Fort Albany. Below, we will first briefly describe the communities of Fort Severn and Big Trout Lake. Fort Severn Fort Severn is located about 720 km northeast of Sioux Lookout, Ontario and has about 450 on-reserve individuals. Local government consists of elected chief Roy Gray and three Band Councillors. The indigenous language is Cree, while school-educated members of the community speak English as well. Transient workers include seven teachers, two nurses, the Northern Stores Manager and the Band Manager. The community is located on the Hudson Bay, on top of a high riverbank overlooking the Severn River. There are approximately 115 homes in the community, which is double the number in 1982, approximately 90% of the residents own a television, a radio and a telephone. From the air, Fort Severn looks as follows:

Source: Fort Severn First Nation

Wasaho First Nation School offers Kindergarten through Grade 8 classes within the community. Since September 2000, students have also been able to attend Keewaytinook Internet High School (KIHS) in its dedicated one-room building. Presently, KIHS offers Grade 9, Grade 10 and some Grade 8 courses.



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Big Trout Lake Big Trout Lake or Kitchenuhmaykoosib Inninuwug is located about 525 km north of Thunder Bay in NW Patricia district on a 45 km long and 32 km wide lake of the same name. The population within 10 km of the centre of the community is approximately 800 persons and the language spoken is Oji-Cree as well as English. The following map shows the location of Big Trout Lake relative to the other communities:

Source: A. Chapman Education Centre

The community is accessible by air and in season, by winter road. Flights are offered every day of the week, except on Sunday by Wasaya/Bearskin Airlines. The winter road is open for



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approximately six weeks annually and connects Big Trout Lake and several other communities to Pickle Lake. The trip from Big Trout Lake to Sioux Lookout by winter road takes about twelve hours. The section between Pickle Lake and Sioux Lookout is an all-season road. The local government in Big Trout Lake consists of an elected chief and a Band Council. The chief and council supervise a range of services, including education, social services and communications. Keewaytinook Internet High School is available for Grade 9 and Grade 10 students. The First Nation School, called the Aglace Chapman School, is large and located in the centre of the community. The e-Centre, which includes cable operations, is located near the school. Social services available include the nursing station and nursing services, community healthcare, seniors’ services and Tikanagan family services. Communications services include the cable system and the high-speed broadband system. Fort Albany Fort Albany is located 416 km north of Timmins and has a population of approximately 450 persons within 10 km of the centre of the community. The closest major wired centre is Kapuskasing, which is 315 km away. The community has two schools, two clinics and three Community Access Program (CAP) sites, but has no broadband service yet. The current analogue telephone system uses microwave towers and connects Fort Albany with Moose Factory. OnTelecom-owned circuits are too limited to provide adequate dial-up services to local residents and institutions. The fibre-optic cable from Cochrane buried along the Ontario Northland Railway stops at Moose Factory. Mushkegowuk Council, a not-for-profit organization, has become the community champion for broadband access and is working with the Fort Albany First Nation to improve broadband connectivity. High-speed telecommunications services are needed to meet the current and future demand for:

• e-education, • telehealth, • residential and business IP and regular telephone, and • data services.*

Fort Albany will be the un-served community used as a reference for comparative purposes in analysing broadband best practices and benefits. Note *: The community is trying to obtain funding through BRAND, the Province of Ontario, the Northern Ontario Heritage Fund and FedNor. BRAND is expected to make a decision in May 2004 and the Mushkegowuk Council’s Project Committee is expected to make a go/no go decision by September 2004.



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III. Our Approach to This Assignment The methodology used for the research included both desk and field research components. The specific stages were as follows:

1. We conducted desk research into the characteristics of the communities and the history of their broadband systems;

2. We determined who should be interviewed in Fort Severn and Big Trout Lake; 3. We identified who should be interviewed from outside these communities; 4. We conducted focus groups and one-on-one personal interviews to collect data; 5. We analyzed the findings; and 6. We prepared documentation of the findings.

The specific activities that were completed are described in Appendix A.

IV. Findings: Best Practices The key findings about best practices in Fort Severn and Big Trout Lake are as follows:

KEY FINDINGS ABOUT BEST PRACTICES

Fort Severn Big Trout Lake No DIMENSION BEST PRACTICE 1 CLEAR AND FAR-REACHING VISION

Vision The Fort Severn Nation Developed and Documented A Clear Vision

The Big Trout Lake Nation Developed A Clear Vision

2 STRATEGIC PLANNING

Planning Principles of Strategic Planning Were Applied

Principles of Strategic Planning Were Applied

3 EFFECTIVE LEADERSHIP

Leadership Effective Leadership Was Provided, As Evidenced By The Success Of Implementation

Effective Leadership Was Provided, As Evidenced By The Success Of Implementation

4 COMMUNITY ENGAGEMENT

Engagement Community Was Fully Engaged In Planning and Execution

Community Was Engaged Well In Planning and Execution

5 LOCAL CONTROL

Control Local Ownership and Control Of The Distribution System

Local Ownership and Control Of The System

6 COST-EFFECTIVE INFRASTRUCTURE

Choice “Best Practice” Choice Was Satellite Delivery

“Best Practice” Choice Was Microwave Delivery



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7 TECHNICAL INNOVATION

Portal Development “Best Practice” Steps in Portal Development for Were Followed

“Best Practice” Steps in Portal Development Were Followed

Management of Bandwidth

Bandwidth Allocations Managed Well

Bandwidth Allocations Managed Well

8 CREATION OF INFORMED USERS

Users Were Well-informed on Benefits Well-informed on Benefits

Links with Other Communities

Links with Other Smart Communities to Widen Their Networks and Learning Developed

Links with Other Smart Communities to Widen Their Networks and Learning

9 ON-LINE SERVICES

Telehealth Fort Severn Now Has Modern Telehealth Capabilities.

Big Trout Lake Will Have Modern Telehealth Soon.

Keewaytinook Internet High School (KIHS) + Computers in the Classroom

Operating Successfully Operating Successfully

e-Government Services and Program Delivery

System Used Successfully to Deliver Government Services Electronically, Including e-Health and Band Operations Services

System Used Successfully to Deliver Government Services Electronically

Funding for On-Line Services

Multiple Sources of Revenue Have Been Accessed

Multiple Sources of Revenue Have Been Accessed

10 PERFORMANCE MEASUREMENT AND SUSTAINABILITY

Sustainable Funding Multiple Sources of Funding Found Multiple Sources of Funding Found

Planning for Sustainability

Performance Measurement and Broadband System Sustainability Plans Being Developed

Performance Measurement and Sustainability Plans Being Developed

11 NETWORK/TECHNICAL

Bandwidth Management Bandwidth Is Managed Effectively Bandwidth Is Managed Effectively

Network Solution Network Solution Is A Model For Other Communities

Network Solution Is A Model For Other Communities

Internal Defences Patch-Management In Place Patch-Management In Place

External Defences Anti-virus Signature Files and other Defences Are Kept Up-to-Date

Anti-virus Signature Files and other Defences Are Kept Up-to-Date

Security and Acceptable Use Policies

Policies Endorsed by Band Council Policies Endorsed by Band Council

Multi-Layered Security Approach In Place In Place



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By comparison, Fort Albany has not yet achieved any of the results that accrue from applying the “best practices” summarized above and described in more detail below. 1. CLEAR AND FAR-REACHING VISION The First Nations in Fort Severn and Big Trout Lake developed a clear vision of what was needed for broadband connectivity after it became clear that the Incumbent Local Exchange Carrier (ILEC) could not provide broadband service in the Far North at an affordable monthly subscription rate without incentives. This vision for broadband connectivity – which was formalized and documented – found its best final expression in the “Smart Communities” application document. Components of the “vision” best practice were as follows:

• A community champion was put in place; • Partnerships with government and agency stakeholders were developed; • A committee was formed and roles and responsibilities were developed; and • A collaboration and partnership model was structured.

To implement the components of this Vision, the two communities and K-Net

• Prepared an assessment of strengths, weaknesses, threats and opportunities; • Identified the strategic options available; • Conducted research to gain an understanding of the implications of each of the available

options; and • Selected the option most likely to lead to success.

It was decided to implement a collaboration and partnership model based on satellite for Fort Severn and terrestrial microwave for Big Trout Lake. The two communities and K-Net developed productive relationships with, among others:

• Other First Nations, • FedNor/Industry Canada, • SchoolNet, and • Community Access Program (CAP).

The vision was developed in each of the two communities on an iterative basis. In practice, this meant that certain visioning approaches were tested for effectiveness and elements that proved to be less useful, were discarded. The vision became part of a formal strategy to make Fort Severn and Big Trout Lake become broadband-connected.



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2. STRATEGIC PLANNING Managers and staff in Fort Severn, Big Trout Lake and within the K-Net organization are not necessarily conscious of having done – and are continuing to practice -- strategy management. Yet it is clear that the principles of strategic planning were applied to prepare for the introduction of broadband in these communities. Components of this Strategic Planning which the Northern Chiefs’ Council, K-Net and the two communities implemented were as follows:

• Encouraged a culture of collaboration; • Acquired knowledge about broadband; • Developed the strategy to support the delivery of essential public and community-based

services; • Promoted the idea of sustainable community development through better connectivity; • Developed the strategies to secure funding for government-sponsored demonstration

projects for innovative connectivity solutions; • Designed strategies with respect to SchoolNet, Smart Communities, CAP, Tele-medicine,

Tele-education and e-Government; and • Through K-Net, developed strategies to implement the projects selected.

Strategic planning took place at both the formal and informal levels. 3. EFFECTIVE LEADERSHIP Effective leadership was provided in both communities to make the broadband ventures a success. Together, the Band Councils, K-Net, FedNor and Industry Canada provided effective leadership in planning and building the two new broadband systems. Representatives from these key organizations collaborated effectively in establishing the vision, developing the new systems, addressing issues and barriers and gaining support among the key players and partners. As a result of effective leadership, broadband service systems in Fort Severn and Big Trout Lake were realized. Specifically:

• Big Trout Lake is now served by Bell Canada via microwave towers and has local cable and Internet distribution. The local system is owned and managed by the Big Trout Lake First Nation. A schematic diagram showing the Big Trout Lake broadband system and its location in the terrestrial network portion of K-Net has been included in Appendix B attached to this report.

• Fort Severn is now one of twelve very remote Ontario communities where voice and data

needs are served by satellite. Local distribution of Internet data takes place via the cable plant.

Also as a result, the broadband systems in Fort Severn and Big Trout Lake can now offer a number of key services to local residents and organizations. These services include:



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1. A telehealth initiative, including tele-diagnostic initiatives (existing in Fort Severn, planned in Big Trout Lake);

2. Community information technology centres, with multi-station computer access; 3. K-Net portal, an interactive, high-speed gateway to community services and information; 4. A data gateway to allow for storage and retrieval of information; and 5. Keewaytinook Internet High School.

Broadband services in Fort Severn were the more advanced of the two communities. Big Trout Lake, however, was closely behind in terms of development. The main point of difference was the telehealth capability. The new telehealth unit is not yet installed in Big Trout Lake. In the area of leadership with respect to local distribution (i.e. the “outside plant”), we found the communities to be similar. Past leadership has led to a situation where each community has a cable plant that “passes” virtually every home. In other words, nearly every family that wishes to have high-speed Internet access has the option to subscribe for service and can now receive it. 4. COMMUNITY ENGAGEMENT Both communities were fully engaged in the planning and execution of vision and strategies. The band councils, K-Net, Telesat and Industry Canada/FedNor understood that community engagement in planning and building broadband systems is an inclusive process. The key components of community engagement were as follows:

• Support for broadband was developed through formal and informal information meetings. • A vision was developed through community engagement that was long-term, realistic,

adaptable and achievable.

• A needs analysis was completed.

• Goals and objectives were defined.

• Expected results were described and dates of expected delivery were set.

• Sub-projects were listed and defined.

• Signed agreements were achieved with groups in the community.

• Quantitative and qualitative indicators (including homes passed, homes subscribing, technologies enabled, funding achieved and budgets) were established.

• Flexible project teams were established.

• Formal and informal leaders were recognized and mobilized.

• Sustainability issues were anticipated and addressed and a business case was developed.



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Industry Canada managed the process of releasing funding in a staged fashion: it would release some funding and see how effective the community teams were in reaching their objectives. Once demonstrated success was achieved, IC would release more funding. In some cases, it would take the community more than a year to reach a specific objective, but it knew that once reached, more funding would be forthcoming.

The community partnerships were effective as broadband “champions” and were active in building support and in getting the “Smart Communities” and other proposals prepared and submitted. Inclusivity was a fundamental principle that was adhered to in both the planning and execution stages. The processes developed and followed in the planning and building of broadband structure in Fort Severn and Big Trout Lake are described throughout this documentation of best practices. These processes were developed in response to the needs of the communities involved. The process of getting the broadband networks in place and working took a reasonable amount of time to get done, especially considering that a project like this – with so many remote communities and so many novel technologies employed -- had never been done before. The major elements of the processes completed during the past nine years were as follows:

• 1994: Coordinator appointed and K-Net, the technology arm of Keewaytinook Okimakanak/Northern Chiefs’ Council, established.

• 1994: the Wildcat Bulletin Board System established. This system allowed residents of Northern Communities that did not yet have a telephone system, to prepare electronic messages and to have them compressed on a floppy disk. This disk was then flown to Sioux Lookout, where the messages uploaded on the system in the K-Net offices and distributed on the Internet.

• 1996: Northern Help Desk established under the First Nation Schoolnet Program. • 1997: First year of training of local technicians implemented under the area management

board completed. • 1998: Wide Area Network established to make tools available to young people and to

support health care and education band office operations. • 1998: Terrestrial wireless links north of Red Lake upgraded. Bell Canada was

implementing an upgrade for its own telephony and network management purposes. Two communities needed phone service, so digital service was made available.

• 1999: K-Net application to the federal government’s “Smart Communities” initiative to provide broadband connectivity through Toronto to Fort Severn, Deer Lake, Poplar Hill, McDowell Lake, Keewaywin and North Spirit Lake, submitted.

• 2000: Keewaywin received phones and broadband • 2000: North Spirit Lake provided with telephone service and broadband service at the

same time. • 2000: The K-Net “Smart Communities” application declared a winning proposal by

Industry Canada. • 2000: Slate Falls and Shibogama Lake provided with broadband connectivity. • 2001: Telehealth application submitted. • 2002: Telehealth project added to the services roster.



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• 2002: Access to the “Public Benefit Satellite Transponder” secured. • 2003: Improvements made in aggregating bandwidth and new arrangements negotiated

with Bell Canada. • 2003: Installed and implemented the Digital Video Broadcasting (DVB) feature on the

K-Net Satellite Network Management System. DVB conversions were completed in Weagamow, Fort Severn, Sachigo, Webequie, Kasabonika, Cat Lake and Slate Falls.

Not only were the communities engaged effectively, but resources such as the Communications Research Centre Canada -- an agency of Industry Canada -- were also used productively, specifically in solving some very severe technical problems that could not have been resolved locally. Both communities have a program of marketing and communications, although the program in Big Trout Lake has not been entirely effective in reaching its target group. We found that not all potential subscribers (e.g. relative newcomers in the nursing centre) were aware that broadband was available in the community. The interview respondents reacted in an elated fashion when they found out such service was available to their residence if they wanted it.

With respect to telehealth, the lessons learned in Fort Severn and four other K-Net communities are expected to result in the approval of $5 million from Health Canada to extend telehealth services to 16 other communities. This approval is expected to be announced by the end of 2003 or during the first months of 2004. In summary, the two communities have been involved and engaged from the early stages of the project to bring broadband services to Northern Ontario and continue to be supportive of the respective smart visions and plans. 5. LOCAL CONTROL The local systems in Fort Severn and Big Trout Lake are owned locally and control of the K-Net network is in the hands of a community grouping – the Northern Chiefs’ Council. The major components of “local control” are as follows:

• The cable/e-service company owns the equipment and the community, in turn, owns

the cable/e-service company. • A close integration exists between the cable company and the e-service/learning

centres.

In Fort Severn and Big Trout Lake – as in a significant number of other rural and remote communities in Ontario – the private sector finds it uneconomical to provide broadband service at the rates charged in urban centres. Typically, the number of potential subscribers in these communities is low and the distances to be covered are great. It appeared axiomatic to our interview respondents that in these situations, assistance from governments is required and that community ownership and control of broadband systems represents the best practice.



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Characteristics of “community ownership and control” in Fort Severn and Big Trout Lake are as follows:

• Both communities demonstrate that local control can work very well at both the strategic and operational level.

• Both First Nations were able to secure funding for capital costs. • Both were able to access management teams and get the systems built. • The satellite and terrestrial wireless network links and the local distribution plants in both

communities are operating successfully. • The reliability of the systems at the present seems to be comparable to – or even better

than – that of systems in the largest urban centres. (During the project engagement period, we tested the systems in Fort Severn and Big Trout Lake more than thirty times at different time intervals and we were able to get a high-speed Internet connection in every case).

• Troubleshooting and maintenance are more and more frequently handled locally. • The Sioux Lookout central office of the K-Net operation is providing good support in

those cases where the local capability needs to be supplemented. • The central office operation is able to train the local staff well. • All subscribers we talked to are very happy, even ecstatic, with the fact that they now

have broadband connectivity. • These subscribers clearly prefer local control over absentee ownership. • The monthly cost to subscribers in the two communities is reasonable compared to the

rates they would pay to commercial internet/cable operations if they lived in urban centres.

Subscribers do, however, raise an issue of mild concern. Like Internet users anywhere, they want the speed of uploads and downloads, particularly in the case of larger files, to be better. Industry Canada and K-Net are gradually addressing this issue by installing newer satellite dishes, including a higher-capacity satellite earth station in Sioux Lookout. 6. INFRASTRUCTURE CHOICES MADE ON THE BASIS OF COST-EFFECTIVENESS The components with respect to infrastructure choices in and for the two communities are as follows:

• Terrestrial and satellite solutions were used to provide service to Big Trout Lake and Fort Severn, respectively.

• The initial reluctance of the private sector to invest in broadband connectivity in remote

communities led to the determined efforts by the Fort Severn and Big Trout Lake First Nations to secure broadband and get around the obstacles.

“It’s an amazing Far North phenomenon. When the private-sector proved to be uninterested, the communities and their supporters made sure they still got themselves a system that works.”

Focus group participant



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• The infrastructure was built in spite of the long distances involved and the costs to the

subscribers in the community-owned system were kept affordable. In other words, the monthly fee that the residential and institutional customers pay is lower than it would be if a commercial company tried to provide service.

“K-Net is charging $400 per month per community for satellite time management services now. The commercial rate is $650. K-net charges each community $200 per month for the shared facilities (the dish and video bridge). The commercial rate for these services would be substantially higher. The communities are charged $100 per month for technical support for the backhaul from Toronto and $300 per month for Internet access. Again, commercial charges for the same services would be much higher.”

Focus Group Respondent

“Before the Nations had their own network, things were expensive at $650 per site. Now that they own it, Internet service is much more affordable.”


“KRG in Quebec gets K-Net-type services for free because they provide staff time. Having the Quebec Nations helps make the K-Net viable”.

Interviewee in Sioux Lookout

“The costs of network management control costs can now be shared better.”

Interviewee in Sioux Lookout

“Socio-economic development was being stifled because Bell costs were, and are, so high. In the Bell Operating Territory, satellite rates are about ten times as high as terrestrial rates. The rate for a T1 line in Moosennee, Ontario is $2,335 per month. In Sioux Lookout a T1 is $1685 per month while in Balmertown, the same service is $2035 per month. In Toronto, on the other hand, the cost is “only” $1035 per month. So the aggregating of demand which K-Net is doing is a good idea.”

Focus Group Respondent “Across the Ontario border, it is even worse. Just 512 K costs $2,900 in Thomson, Manitoba and $3,300 in Lorange, Saskatchewan.”


“Remoteness shouldn’t count for so much in these pricing decisions. In other areas of endeavour, remoteness is considered and adjustments are made. For example, the division rules around the allocation of Casino Rama profits include a formula that takes into account the degree of remoteness of the Aboriginal



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community. Industry Canada, however, has not updated its formula at all. It doesn’t have the dollars.”

Focus Group Respondent “I envisage a situation where (1) Health Canada is paying its share (2) the schools are paying their share and (3) the police department is paying its share for bandwidth services. This will help cover gaps in available funding.”

Focus Group Respondent “Giving people broadband up north is easy. Giving investing companies the opportunity to make money on commercial investments in this area is very hard without some kind of outside funding.”


• The physical facilities, including buildings, are also controlled by the K-Net partners and new investments continue to be made. A small new climate-controlled building is being constructed next to the current K-Net headquarters in Sioux Lookout to house hardware. This hardware and its associated network and operations software will serve the communications needs of Fort Severn, Big Trout Lake and the other communities for years to come.

The software side of the operation uses measurement tools to track page hits, usage, system reliability, errors and number of returning visitors and time to complete a given task, among others. The number of page hits on the K-Net portal is now over 10 million per month for the entire portal that includes the other K-Net communities, including the hits on the home pages of users. The system’s speeds are, in general, satisfactory when compared with similar systems and will increase when the new dish in Sioux Lookout will be operational. In summary, institutions and homes in Fort Severn and Big Trout Lake are connected via a cable modem to a common community network. The community network links to K-Net in Sioux Lookout and the Internet backbone. Commercial operators were not interested in providing service to remote communities on the same basis as in less remote areas, so the community model of ownership of the infrastructure became desirable. 7. TECHNICAL INNOVATION The important components of technical innovation in Fort Severn were as follows:

• In Fort Severn and other very remote communities where the telephone exchange must be served by satellite, subsidized use of satellite transponders proved to be the best solution for providing Internet access.

• Preparing proposals as opportunities arose proved to be critical.



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• Innovative partnerships between Keewaytinook Okimakanak, Industry Canada and Telesat Canada were instrumental in ensuring access to multimedia services in Fort Severn.

• Improvements in satellite capacity gave Fort Severn and other remote communities better

high-speed services. They received more affordable bandwidth needed for telehealth, secondary education, post-secondary education, IP telephony, on-line forums, e-mail and other types of web-based communications tools.

• In a more recent development, in advance of the launch of Anik F3, Telesat made one C-

band transponder available on the existing Anik E2 satellite on February 14, 2002. Fort Severn and Slate Falls First Nations were the first K-Net communities to use this additional satellite capacity.

In Big Trout Lake, terrestrial microwave represented the best technology for achieving T1 speeds. Relevant components of the technology for Big Trout Lake are as follows:

• The manner in which the network was designed has proven to be an important determinant of success.

• Specifically, the decision about the location of the Internet hub turned out to be critical.

• The decision to use Internet service provider EMO in Toronto has proven to be a good

one. In terms of implementation, the critical success factors were identified on a regular basis and security standards were identified and met. Budgets were prepared and submitted and budgeted expenses were not exceeded. The development of the portals and the implementation of the overall network will be completed well within budget. 8. THE CREATION OF INFORMED USERS Without informed users, a broadband community does not exist. In Fort Severn and Big Trout Lake, we found that users:

1. Are interested in the tools; 2. Know how to use them; 3. Believe that these tools can be beneficial in social, economic and political aspects of their

lives; 4. Are convinced that the tools can add to their quality of life; and 5. Are using them.

The communities and K-Net used a portal development process based on the following steps:



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1. Obtained “stakeholder” buy-in in Fort Severn, Big Trout Lake and the other communities.

2. Developed ideas about the content to be delivered. 3. Determined which local (band) websites already existed. 4. Confirmed that the K-Net framework organization was the appropriate one. 5. Identified local content, including links to local websites, names of community

organizations, community descriptions, photographs and stories. 6. Assembled content. 7. Sought and obtained public input. 8. Promoted the portal in talks, speeches, printed materials and on the web.

The two nations and K-Net have designed attractive portal sites with information about the communities, opportunities for users to create their own home page, tools, tips and suggestions. The users with home pages can customize their content, have access to different features and can offer different types of information, including background music. In general, sharing of information – and having access to the right kinds of information -- is what makes a community smarter. The two communities and K-Net have considered the importance of users and are taking active steps to enhance user perceptions and access to the Internet:

• e-Centres have been created; • a volunteer pool has been set up in Fort Severn to enable the e-Centre to stay open longer

in the evenings and on the weekends; • interactive video capabilities have been created; and • user experiences are being enhanced by identifying and responding to changing needs.

In the focus groups and interviews, we found a generally high level of satisfaction among users with the levels of technical innovation and with the broadband communications capabilities offered in Fort Severn and Big Trout Lake. 9. ON-LINE SERVICES We found respondents to be enthusiastic about the service innovations introduced in Fort Severn and Big Trout Lake. The key on-line services available to users in the communities are:

• e-mail and conferences, • news, • chat, • homepages, • Turning Point, • Training and Tutorials, • First Nation Schools, • Nishnawbe-Aski e-services, and • Keewaytinook Okimakanak e-services.

“Turning Point” offers a space in cyberspace for Aboriginal and non-Aboriginal people in Canada to have open and direct communication with each other. The site is a respectful meeting



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place for First Nations, Inuit, Metis, and diverse non-Aboriginal peoples. The web site is run by volunteers and includes a Talking Circle, an Action Forum, an Indigenous Literatures Forum, a Book Club and an Environmental Forum. “Training and Tutorials” is a site that provides K-Net Multimedia production tutorials and helps with planning and creating web sites and web pages. “First Nation Schools” lets students and teachers connect with other members of their school by meeting on-line and exchanging information. They can post information about cultural activities, recent events, school plays and sports team activities. “Nishnawbe-Aski” e-services are directed at the NAN First Nations. The e-services of the NAN district agencies include:

• Whasa Distance Education, • Ojibway and Cree Cultural Services, • Aboriginal Nutritional Advisory Services, • Job Connect, • Tuberculosis Prevention Services, and • Wakenagun Community Futures Development.

“Keewaytinook Okimakanak”, provides e-services directed by the Chiefs of Northern First Nations that include Deer Lake, Fort Severn, Keewaywin, McDowell Lake, North Spirit Lake and Poplar Hill. Its e-services include the following:

• Telehealth services, • Keewaytinook Internet High School, • Network and K-Net services, and • Smart Communities.

Telehealth is currently receiving the most attention in the community as an advanced application. TELEHEALTH Modern telehealth services are operating successfully in Fort Severn. The station is used for tele-radiology, tele-dermatology, tele-psychiatry and other medical services.

“Although it is early in the process, staff at the nursing station has already been using the telehealth link effectively.”

Focus Group Respondent, re: Fort Severn

In Big Trout Lake, the telehealth station is about to be installed. Telehealth is the culmination of Internet innovations offered in the community and the telehealth lessons learned in Fort Severn and four other K-Net communities with telehealth have been shared with communities that are about to install such systems. The lessons have been taken into account in planning the introduction of telehealth in 16 other communities.



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KEEWAYTINOOK INTERNET HIGH SCHOOL AND COMPUTERS IN THE CLASSROOM The Internet high school is operating successfully.

“There are 13 communities that benefit from KIHS”

Focus Group Respondent, re: Fort Severn “The funding has allowed for the creation of an Internet high school and has improved access to government and cultural resources. In fact, in Big Trout Lake and Fort Severn, two of Ontario’s most northern communities, the term “access” now has a new meaning”.

Focus group participant Computers with broadband connectivity are also used extensively in non-KIHS schools in Fort Severn and Big Trout Lake. These schools are experiencing a shortage of machines because demand for them is high. Teachers are also longing to have more computers in their own classrooms.

“We really would like to have 23 computers in the computer lab so that every student in the class has his or her own computer.” (Editor’s note: there were 18 computers in the lab at the time of the interview).”

Teacher of Grade 3 class at the private band-run school in Fort Severn

“I would like to have two to three computers in my class. I have 23 students and I often like to show them something during the class. It used to be that the students had access to the computers in the computer lab outside the classroom for 35 minutes every second day. But recently, it has been even less.”

Teacher of grade 3 class at the private band-run school in Fort Severn “The kids love their computer class and internet access. In grade 2 all of them are familiar with browser use and can do a simple research project using “search” functions and the Internet.”

Teacher of grade 3 class at the private band-run school in Fort Severn “At the start of the year the teacher’s aide shows the young students how to do research on the Internet. These children like these tools.”

Glenda Matthews, Fort Severn

“The important thing initially is to get them on-line. At the beginning of the year, only 5 to 6 kids had computer access at home. During the school year, 20 to 22 children got connected to the Internet at home. As teachers, we notice it. They learn research skills and writing skills on the Internet.”




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Both students and teachers like the KIHS Internet high school and the connected computers in the classroom. TRAINING Local staff members are becoming role models for young people in the communities because they are knowledgeable about Internet activities and are visible success stories.

“The technical guy at the e-Centre is on the video link virtually every day. It could be to Keewaywin, to Deer Lake or to North Spirit Lake. If they have a problem, he can walk them through to a solution.”


“When a technological issue needs to be solved, Angus, the technical guy at the e-Centre can walk them through to a solution – by video link if necessary.”

Focus Group Respondent, re: Fort Severn “Four days ago I was over at the Nursing station. The regular technical specialist was out of town. We used the video conferencing feature to connect to Balmertown and easily solve a problem. The telemedicine person could show via video how to connect the wiring in the right places.”


“The capacity to learn is life-long.” Grade School Teacher, Fort Severn

The training initiatives at the e-Centre have already been successful and are expected to continue to have a positive impact. The other two service categories listed, specifically, network and K-Net services, and Smart Communities, have already been discussed elsewhere in this report. E-GOVERNMENT SERVICES AND PROGRAM DELIVERY The use of K-Net to deliver Internet-based services in Fort Severn and Big Trout Lake is a best practice government services delivery model. Virtually all of these services – including those in health care, transportation licensing, consumer relations, enterprise development and education – are less expensive to provide through Internet-based Alternate Service Delivery (ASD) solutions. FUNDING FOR ON-LINE SERVICES Multiple sources of revenue have been accessed and services that generate sustainable revenues are being offered. The sources of revenue in Fort Severn and Big Trout Lake for the next fiscal



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year have been determined as part of this study and have been submitted to Industry Canada and Management Board Services of the Province of Ontario under separate cover. 10. PERFORMANCE MEASUREMENT AND SUSTAINABILITY K-Net is tracking usage metrics very well and is now beginning to focus on the process of measuring and assessing the effectiveness, the focus, the learning capability and the achieved successes of the operations it has implemented. In general, the right information is getting to the right decision makers at the right time and at a reasonable cost. Sometimes, reports are late but that is to be expected in a busy, somewhat understaffed organization. Early performances measurement approaches concentrated on connectivity and Internet metrics, including the number of communities connected, degree of reliability, total up time, number of page hits, number of unduplicated visitors and the total number of e-mails sent. Now, managers are becoming more appreciative of the difference between project management and performance management. Application tools are being introduced to capture, retain and present data on how well the customers are being served, how well service delivery is facilitated by various management projects and what decisions need to be made to advance the success of the operation and to avoid impending problems. At this moment, sustainability is a topic for performance management because of the upcoming sunset of Smart Communities and the need to establish operational funding for fiscal 2004/05. A sustainability strategy is required to support ongoing activities that will assure the long-term financial maintenance of the local broadband system in Fort Severn and Big Trout Lake. Technology maintenance, continuous service improvement, cost management and customer relations will be even more important components of a long-term sustainability strategy than they are now. Already, K-Net is using performance management to mobilize continuous improvement in technology and systems, to develop better customer relationships, to introduce new services and to deploy Internet technology to better analyze information. The latter information sometimes is made available on the web (see www.knet.ca).

“Most of the K-Net objectives have already been achieved and the whole project will be completed within the budget of $9.3 million (including salaries).”

Focus Group Respondent The broadband systems in general and the performance management aspects of it in particular are working in each of the communities. Moreover, the Band Offices, businesses, institutions and residents that wish to have service are able to receiving it. BANDWIDTH MANAGEMENT In remote communities, where the effective cost of bandwidth can be high, it is necessary to have capabilities and policies in place that allow network management to impose limits on the use of bandwidth.



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Specifically, K-Net needs to have the capability to limit the downloading of large entertainment-oriented files such as peer-to-peer music and movie files at peak times of traffic. K-Net is doing this.

“Fort Severn has limited the amount of music which can be downloaded on the Internet. This was a good thing, I think.”

Focus Group Respondent This policy has worked well and will be continued. THE NETWORK SOLUTION The network solution, including the continuous introduction of innovative technologies of which Fort Severn and Big Trout Lake are a part, is an excellent model for such initiatives in other, un-served communities.

“K-Net works effectively on behalf of Fort Severn, Big Trout Lake, Wapekeka and fifteen other communities.”

Focus Group Respondent “Other communities have benefited from K-Net’s experiences.”


“We learned about budgeting and how to respond to changes in the external environment. For instance, we found that the amounts put in for administration of this kind of project typically is too low. Requirements can and do change mid-way through.”

“There is the perception and the reality that connectivity in this remote community makes all the difference. Life would be much more difficult without it.”

Focus Group Respondent K-Net is a venture that is improving the social, cultural, economic and educational landscape of Fort Severn, Big Trout Lake and the other participating First Nations. The K-Net network has seen a very substantial growth in traffic and activity and the system is becoming so successful and full of traffic that speeds are beginning to slow down. The community, as a result, badly needs new bandwidth. INTERNAL DEFENSES Fort Severn, Big Trout Lake and K-Net have a patch-management policy in place to address imminent threats. Priority is given to critical servers and processes are in place to move patches to systems in the communities.



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EXTERNAL DEFENSES Anti-virus signature files are kept as up-to-date as possible and ports to the Internet that are not essential are not kept open. To address new threats, external access policies and emerging needs are reviewed regularly, either formally or informally. SECURITY AND ACCEPTABLE USE POLICIES Fort Severn and Big Trout Lake – through K-Net -- have developed good security and acceptable use policies that are endorsed by Band Council. K-Net has an awareness program that ensures that staffers adhere to the policies. MULTI-LAYERED SECURITY APPROACH The band councils of Fort Severn and Big Trout Lake understand that no single security device is sufficient to completely protect their broadband networks. Therefore, a multi-layered approach is used, using anti-virus software, firewalls, network-monitoring devices and patch management software. Other best practices identified in the study are listed below. These best practices are of a network or technical nature and do not require further explanation because they are self-explanatory.



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OTHER FINDINGS ABOUT BEST PRACTICES

Fort Severn Big Trout Lake

Network Engineering Engineering and Operations Provided by Telesat, K-Net and Fort Severn First Nation

Engineering and Operations Provided by K-Net, Bell Canada and Big Trout Lake First Nation

Customer Premises Equipment Provided At An Affordable Rate Provided At An Affordable Rate

Management Systems Hardware and Software

On-going Modernization of Hardware and Software

On-going Modernization of Hardware and Software

Central Services Provided by K-Net and Fort Severn First Nation

Provided by K-Net and Big Trout Lake First Nation

Employment, Training and Skills

Commitments For the Provision of Technical Skills Training to Fort Severn First Nation Secured

Commitments For the Provision of Technical Skills Training to Big Trout Lake Secured

Partnerships Agreements

Transfer of Ownership of CPE, Network Components and Software to Fort Severn First Nation Secured Via Grants Etc.

Transfer of Ownership of CPE, Network Components and Software to Big Trout Lake First Nation Secured

Support for Early Adopters

Technical and Other Support for Early Adopters of Technology

Support for Early Adopters of Technology

Interactive Video Teleconferencing

Interactive Video Teleconferencing Available

Interactive Video Teleconferencing Available

Video on Demand Video on Demand Being Introduced Video on Demand Being Introduced

High Speed Application Software

Application Software Which Requires High Speed Available


High Speed Application Services


Application Software Which Requires High Speed Available, except Telehealth

Competitive Environment for Prospective Small Businesses

Improved Competitive Environment for Prospective Businesses That Need Internet Access

Improved Competitive Environment

Minimal Impact Re: Public Rights-Of-Way; No Parallel Builds

A Full Telecommunications Infrastructure Has Been Built with Minimal Disruptions; No need for a Parallel Build in This Small Community

A Full Telecommunications Infrastructure Has Been Built; No need for a Parallel Build



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In summary, there were clearly identifiable “Best Practices” in Fort Severn and Big Trout Lake.

V. Benefits Our findings about broadband benefits realized in Fort Severn and Big Trout Lake can be categorized as follows:

1. Information about native history and traditions can be preserved and shared via broadband.

2. The system advances health care for patients. 3. Young people can acquire skills more easily. 4. Access to broadband technology reduces feelings of isolation. 5. Sources of research are better and more accessible. 6. Video conferencing is now possible. 7. e-Banking is now an option. 8. Internet connectivity enhances family and band communications. 9. Connectivity improves socio-economic development opportunity. 10. Many kinds of training can now be provided within the community. 11. Certain individual travel, health care and other costs are foregone, resulting in savings. 12. The communities get services they would not normally get and they don’t have to take all

the risks in one step. 13. Broadband availability increases the effectiveness of band management. 14. New jobs and new spending have been created.

Our research found that the two communities were simply too small and had too limited an economic base to already have experienced a quantifiable level of socio-economic benefits, other than the creation of those benefits identified below. Many variables are responsible for improvements in small communities and the causes for improvement are variables that co-mingle. It is therefore not possible to state that broadband reduced alcoholism by percentage x and the rate of suicide by percentage y. However, we found that five new jobs had already been created and that savings in medivac costs can be expected to grow rapidly (from a small base). We also found a range of benefits now available to Fort Severn and Big Trout Lake that are not yet available in Fort Albany. Our respondents voiced compelling opinions about these benefits. It is clear that the most significant benefits are difficult to quantify because they are inherently qualitative. On the basis of all the data collected to-date, we have, however, developed a taxonomy and an initial comparative model for calculating savings resulting from the availability of broadband in the two communities. This model also takes into account the fact that a geographic information system needs to be implemented for the Far North and calculates the potential savings that are accrued because of the availability of broadband.



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A COMPARISON OF THE POTENTIAL SAVINGS ASSOCIATED WITH THE INTRODUCTION OF G.I.S. IF A BROADBAND SYSTEM IS IN PLACE

Cost-Efficient System which Broadband

Makes Possible

Higher-Cost System

Necessary If No Broadband Is In Place

Savings

Hardware Costs $9,000* $27,500** $18,500 Storage Costs $450 $28,100 $27,650 Image Handling Software Non-ESRI Web Server

Software: $10,000 ESRI Software: $62,000 $62,000

Database Software $1000 $95,000 $94,000 Client End Software $100 $10,000 $9,900 Training Costs Per year, on average:

$3,000 Per year, on average: $8,000 Per year:

$5,000 On-going Maintenance Per year: $4,000 Per year: $37,000 $33,000 System Support Staff Per year: $15,000 Per year: $45,000 $30,000 Data processing staff Per year: $21,000 Per year: $42,000 $21,000

Total one-time costs $20,550 $222,600 $202,050 On-going costs (yearly) $43,000 $132,000 $89,000

Skills for Young People: Travel and Lodging for Young People Who Wish to Stay in the Community

Estimated extra spending for an incremental 15 students

(15 x $6,500 per year for travel and lodging): $97,500

$97,500 Medivacs Estimated extra spending per

year (40 trips x $5400 per trip): $216,000

$216,000 Training

Estimated extra costs per year because no broadband

link is available: $40,000

$40,000 Business travel by Band Managers

Est. extra costs per year because no video

conferencing is available: 25 trips x $1,300: $32,500

$32,500 Privately-paid travel by community members

Estimated extra costs per year because no video conferencing or other

broadband services are available: 75 trips x $1,300

$97,500

Total initial capital cost savings $202,050 Additional average savings each year $599,650 The assumptions with respect to hardware needs are as follows: * A Dual Xeon computer with 512K base memory. ** A Proliant Computer with 2 GB of base memory, a 72 Gig Hard Drive and 2.8 Xeon MP processor. *** It currently costs about $7100 to send an air ambulance to Fort Severn.



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Detailed findings about each of the qualitative benefits are provided below. 1. INFORMATION ABOUT NATIVE HISTORY AND TRADITIONS CAN BE PRESERVED AND SHARED

In Fort Severn and Big Trout Lake, residents have access to documentation about native history, traditions and the modern history of their community via broadband.

For the two communities, web pages are available which document, communicate and preserve information about the community and its past and current residents.

“Young people are finding archival photos and stories and are posting them. Elders are willing to tell their stories and have them documented for the next generation. “


For instance, one well-known member of the community, an elderly lady, had given home-knitted caps to every baby born in the community for over thirty years. She also had kept a photograph of each baby with each cap. Her photo albums were made available and pictures from them were scanned and posted on K-Net web sites. This picture collection now gives great pleasure to members of the community and has become a part of the regional history.”

Focus Group Respondent “The K-Net technology is also helping young people to learn about the traditional ways. Because in many cases, the only exposure young people get to traditional life is in a class presentation, it is important to provide support with technology that appeals to them. K-Net is doing this.”

Focus Group Respondent “The technology is also helping people make their own connection with the past.”

Focus Group Respondent “The greatest benefit is EMPOWERMENT.”

Focus Group Respondent With respect to future benefits, Fort Severn and Big Trout Lake have identified the need to gain more benefits by better Internet presentation of available cultural and tourism information. First Nation cultures are intimately tied to cultural beacons and there is a need to identify where these beacons are. In this context, the benefit of broadband connectivity is its ability to present cultural heritage in ways that were previously impossible. With broadband availability in the communities, a true “smart community” can be created. For instance, broadband allows for detailed and accurate mapping of spatial and socio-cultural information by the First Nations themselves on electronic maps and enables them to distribute this information over the Internet. Specifically, the Fort Severn and Big Trout Nations can gain the benefit of using the existing broadband infrastructure to:



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• create and maintain digital collections with user friendly tools that do not require changes

to code such as Java programming, • integrate zoomable maps that use scalable satellite imaging, aerial photography and local

thematic maps without requiring scarce GIS technicians, • implement a system of posting of new information by authorized local people “on the

map”, including documents, images and video and audio clips, and • enable the searching of digital information about the community by selected map area

and the integration with “Google-style” searches over the Internet. Broadband availability provides the benefit of allowing for the documentation of inventories of socio-cultural data using community resources. The Fort Severn and Big Trout Lake Nations can now propose to be the first Aboriginal groups to document cultural assets in digitized files on the map of the community-centred area and to use the full power of the Internet to make the documentation of their cultural and spatial resources available. Aboriginal culture and heritage is increasingly becoming a major tourism draw nationally and internationally. The digitization of images of the land and the artefacts of these nations will be important in telling the stories from antiquity through present times. Accurate maps and records of cultural, traditional use and wildlife features are invaluable to the Aboriginal communities in Ontario’s Far North. The availability of broadband allows for the development and Internet-presentation of community databases with enhanced capabilities:

• integrated map and text search tools to find mapped features and related content; • detailed and accurate collection and map presentation; • public domain access to less resolute mapping and secure community access to most

resolute mapping; • a secure user interface for map “posting” of map drawings and related map labels, text

data-field entry, documents and media clips; • teachers’ curriculum resources for digitizing, authoring and posting of additional local

collections by students and community participants; and • user-friendly administration tools.

The nations’ elders see an opportunity to use broadband to preserve information about the places within the territories identified in traditional oral records as having high spiritual and cultural value. The information will help in protecting the culture and in educating and training the young people of the Nations in cultural practices. The overall benefits of broadband within the “heritage” category are as follows:

• on-line communities, including databases of traditional history can now be developed and presented on the web;

• Documents can be digitized; • Audio records can be transcribed into Aboriginal written languages and into English and

French. • Supporting images and text documents can be machine-readable and accessible.



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The availability of broadband in Fort Severn and Big Trout Lake allows for the use of new tools for creating smart communities and for groundbreaking methods of on-line data entry and presentation of maps, map drawing and other content. Such approaches provide the benefit of displaying the richness of the cultural heritage and can include the use of “Voices”. “Voices” of the oral tradition have been used to carry the culture and its stories for more than a thousand years. The new broadband access systems and associated web-based technologies can store and forward the voices of chiefs and elders and their visions for their land and the people who live there. These voices can empower images and will result in feelings, sentiments, memories and meanings. They will reflect the imagination and provide new means to spread the knowledge of a culture of oral tradition. Thus, broadband can contribute to cultural heritage by providing the “pipe” to traditional language content and through the presentation of information in their spatial context. 2. THE BROADBAND SYSTEM ADVANCES HEALTH CARE FOR PATIENTS We estimate that the effective “participation rate” in broadband within the populations of Fort Severn and Big Trout Lake is over 90%. People without access to the Internet services in their own homes will use the e-Centres to access services or will use family members or friends to access information and e-mail services for them. While a “digital divide” exists between Northern and Southern Ontario, we found that the divide has been overcome entirely in Fort Severn and Big Trout Lake. In fact, comfort levels around broadband appear to be higher in the two Far North communities than in parts of Southern Ontario. Because of their relative isolation, residents are more open to the technology’s potential and are more aware of its benefits. We also found that all individuals and focus group members we interviewed spoke in glowing terms about the current and future impact of broadband in their own lives, especially in the area of health information and health care. In the opinion of our respondents, broadband increases the level of community health services, helps reduce the socio-economic and health care “gap” which exists in the Far North, reduces isolation for First Nation health care workers and reduces the other health care challenges stemming from low population density and physical remoteness from cities. The new telehealth equipment in Fort Severn and Big Trout Lake is providing specific benefits to the communities and its patients in the form of improved cardiology, radiology, ultrasound, orthopaedic, psychiatric and other medical services. In the two served communities, telehealth is resulting in faster diagnosis and more rapid and appropriate treatment for patients in local health care facilities. Through broadband/video links with health care specialists in hospital facilities and private practice offices in, among others, Sioux Lookout, Thunder Bay, Winnipeg, Toronto, Ottawa and Vancouver, trusted physicians and



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psychiatrists can provide initial diagnosis and follow-up care. Such care would not be possible without the technology. Residents of the two communities are also eager to point out that broadband makes it possible for healthcare workers already located in Fort Severn and Big Trout Lake to receive training and other support from specialist practitioners in urban medical centres. Respondents in our informal focus group meetings were very vocal about the positive benefits which broadband connectivity through K-Net has brought:

“Doctors coming to the community are more confident in their work. They now have the high-speed Internet connection available. They can consult with colleagues.”

Focus Group Respondent “It is a powerful tool for upgrading the medical skills of people already working in the community.”

Focus Group Respondent “A database has been set up with health information in Cree and Ojibway. This information can be accessed via broadband”


“K-Net has improved access to telehealth services.”

Focus Group Respondent in Fort Severn

“A child here had surgery [recently]. Instead of flying the child out to do the follow-ups, they did all the follow-up consultations via video conferencing”.

Focus group participant

“With K-Net it is possible to place more emphasis on prevention and health promotion.”

Focus Group Respondent We found that specific benefits include the following:

• When X-rays and other digital images are transferred electronically to the Menoyawin Health Centre in Sioux Lookout, the Regional Hospital in Thunder Bay or to other centres, radiologists and other specialists in the receiving hospital can decide instantaneously whether a patient with, for instance, a severe fracture needs to be airlifted from Fort Severn or Big Trout Lake.

• Aggregate transportation costs for medical care are lower due to the foregone travel costs.

• Patient satisfaction levels are much higher because there is no unnecessary travel and

because care can be provided close to home. For instance, a recent survey indicated that



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80% of all patients in Ontario’s Far North preferred the telemedicine approach of taking ultrasound scans within the community.

In short, the benefits of telehealth are demonstrable and widely recognized in Fort Severn and Big Trout Lake. 3. YOUNG PEOPLE CAN AQUIRE SKILLS MORE EASILY The broadband systems in Fort Severn and Big Trout Lake provide significant benefits to young people through the provision of communications resources and the ability to send and receive media-rich files. Teachers in the two communities reported to us during the interviews that writing skills of young people in Fort Severn and Big Trout Lake have improved because e-mail and other applications require keyboarding. Availability of broadband has also increased students’ interest in written communication skills and the availability of fast Internet has allowed students to acquire writing skills in a less painful, more playful fashion.

“Communications have improved. The kids are writing better now.”

Focus Group Respondent in Fort Severn (A Teacher) “Teenagers use the Internet link to socialize with teenagers in other communities and, in the process, are honing their skills in communications and in the use of technology.”

Focus Group Respondent, re: Fort Severn “K-Net recently passed the mark of 10 million-hits-per-month, including home pages. Many young users have their own home page on the system. It is improving their writing.”

Focus Group Respondent Young people in Fort Severn and Big Trout Lake are also acquiring more skills through research assignments that require the use of the Internet. They have become the early adopters of the technology and, as elsewhere, are showing the way to their parents and grandparents. Broadband technology also provides access to cross-curricular skills development resources. Curriculum-based lesson plans, student activities and quizzes or games can be offered now in a manner that fits within the school curriculum framework and provides students with real-life learning as they capture and reflect uniquely local perspectives of their own communities’ cultural heritage. A specific future benefit of broadband connectivity is the fact that students and instructors can add new technology and benefits at the local level. They can do this by using newly available teachers’ resources. These resources help

• to stimulate a personal sense of stewardship of projects, • to develop important real-life skills, and • to excite student interest and facilitate a lasting on-going contribution to the community.



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Teachers’ resources include community portraits. These portraits provide a way to uncover the personal recollections of members of the community and to make that record permanently available. The personal history of each long-time community member has links to specific places and buildings in the community and the areas around Fort Severn and Big Trout Lake. By using a digital map associated with the community portrait modules, memories and memoirs of members of the community can be linked to the relevant locations. One of the most powerful benefits of broadband and the implementation of educational programs such as these is that students come to realize that people from every lifestyle can and do make significant contributions to their community. In short, broadband provides the benefit of helping preserve the history and traditions of the Fort Severn and Big Trout Lake nations. The two communities can build on existing and new technology to create true “smart communities”. 4. ACCESS TO BROADBAND TECHNOLOGY REDUCES FEELINGS OF ISOLATION Many respondents in the Big Trout Lake and Fort Severn focus groups said that that the availability of broadband technology made them feel less isolated. With the only road access to their communities provided by ice road during the winter, Internet connectivity in a relative sense is even more important than it is to residents of more southern regions of Ontario. To quote one respondent:

“Having this technology really can improve everyone, I think. People express to me that they feel less isolated … me being one.”


Respondents like this focus group member expressed these feelings with emphasis and without prompts by the interviewer. Further research is required to obtain statistically valid information about the positive effect of broadband on socio-economic conditions in the communities. A multi-year longitudinal study would be required to determine quantitatively what the effect of broadband is on reducing socio-economic problems in the Far North of Ontario. The data obtained from the current round of interviews, however, indicates that community residents are very encouraged by the benefits they have seen to-date. 5. SOURCES OF RESEARCH ARE BETTER AND MORE ACCESSIBLE Respondents in Fort Severn and Big Trout Lake frequently referred to the power of broadband Internet to provide them with improved research tools and “Google-style” search engine capabilities.



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To quote interviewees:

“People want to do research. In addition to the regular (paid) e-Centre staff we have 4 to 5 individuals in a volunteer pool. So sometimes we can keep the e-Centre open on the weekend, as well, for the people who want to do research or use the Internet for e-mail or other purposes.”

Focus Group Respondent, re: Fort Severn “People in adult learning programs did not have the options to do research that they have now following the creation of Internet access by K-Net.”


For our respondents, research was one of the most-used applications of the broadband Internet. The Smart Communities program allowed K-Net to improve local connectivity and bandwidth more rapidly than would otherwise have been the case. The improvements benefited all local users and uses of the Internet, including research. 6. VIDEO CONFERENCING IS NOW POSSIBLE The video conferencing capabilities allow for the sharing within Fort Severn and Big Trout Lake of ideas, information and solutions in an information-rich and bandwidth-rich environment. Parents with children in high school in other communities treasure the ability to “visit” via the link and professionals find the broadband connectivity helpful in their work.

“Parents with children away at school have been using the videoconferencing capabilities. Before, you had to wait until December before you saw your child who was going to school outside the community.”


“Since we have had the video link, we interview teacher-candidates from down South during the spring months for appointment in the fall of the same year. This saves thousands of dollars because we don’t have to fly all the candidates up.”

Multimedia Producer, Fort Severn “I find it interesting and educational to share with my peers via the Internet. We share ideas.”

Multimedia Producer, Fort Severn The Videoconferencing capabilities are used by individuals, families and groups. 7. E-BANKING IS NOW AN OPTION



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Respondents consider the ability to complete banking transactions a major benefit. Parents and others appreciate the new found ability to conduct transactions quickly and efficiently:

“I can e-mail the CIBC and they will transfer payments.” Interviewee, Fort Severn

Besides banking transactions, respondents report that ordering goods and services through e-commerce portals has become an important improvement for them.

8. INTERNET CONNECTIVITY ENHANCES FAMILY AND BAND COMMUNICATIONS

In a relative sense, the benefits of being able to regularly contact family members and friends not living in the same community is greater if that community is distant and isolated and if the cost of travel is very high. Respondents are very pleased – even enthusiastic – about their ability to reach children and other loved ones.

“My children can now reach me from anywhere.” Multi-media Producer, Fort Severn

At the professional level, contacts are enhanced by the capabilities of the broadband network and negotiations can take place more easily, even if the issues being negotiated are difficult.

“The primary tribal organization for the Big Trout Lake band is the Nishinnabwe-Aski Nations. The band is a member of the Independent First Nations Alliance. There are territorial issues between the Big Trout Lake community and the Fort Severn community. But the Internet helps us to communicate better.”

Interview respondent, Big Trout Lake

The ability to maintain contacts, which the broadband networks offer is, in the perception of our respondents, one of the key advantages of the system. 9. CONNECTIVITY IMPROVES SOCIO-ECONOMIC DEVELOPMENT OPPORTUNITIES We found that the “Smart Communities” and “SchoolNet” programs of the federal government have sped up the introduction of broadband in the Fort Severn and Big Trout Lake communities considerably. Without this program, it is unlikely that Fort Severn and Big Trout Lake would have access now.

“We couldn’t do without broadband anymore. It is critical for managing the band office and the community development initiatives.”

Focus Group Respondent (Band Chief)



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“The younger kids have a more regular schedule than the children in, say grade 5 and 6, and they are doing quite well. The Internet connectivity really helps in the education process.”

Focus Group Respondent (a teacher)

“Socio-economic development requires broadband”. Focus Group Respondent

Interview respondents clearly are impressed with the broadband-driven capabilities of Fort Severn and Big Trout Lake Internet services. 10. MANY KINDS OF TRAINING CAN NOW BE PROVIDED WITHIN THE

COMMUNITY Broadband through K-Net has the benefits of new capabilities, capacities, skill sets and opportunities. K-Net has trained people in broadband use and has supported the creation of connectivity and educational services in communities that had none before.

“K-Net provides effective training services.”

Focus Group Respondent “Keewaytinook Internet High School has dramatically improved schooling opportunities for students, allowing them to attend grade 9 and 10 in their community rather than away at an urban centre. Grades 9 and 10 were offered for the first time during the school years 2000/2001 and 2002/2003, respectively. A grade 8 native studies program was first offered on a pilot basis during the spring 2000.”

Focus Group Respondent Thus, e-learning is seen by our respondents as another critically beneficial application of Internet technology in the two served communities. 11. CERTAIN INDIVIDUAL TRAVEL, HEALTH CARE AND OTHER COSTS ARE

FOREGONE While it was not within the scope of this small study to try to quantify costs foregone, it is clear from our interviews and observations that the availability of broadband connectivity is lowering required expenditures in many cost categories in the two communities. Health costs, for instance, are an issue not only for the provincial government but, in these areas, also (and primarily) for the federal government. There is, for instance, a federal hospital in Sioux Lookout providing services to residents of these communities. Because telehealth facilities make remote diagnosis more precise, fewer patients are airlifted south. Recent examples illustrate this:

1. Several patients with mood disorders could be followed-up by a psychiatrist in “remote” sessions.



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2. A patient with a large swelling in the neck was considered for a medical evacuation. After the specialist doctor made a diagnosis via the telehealth link remotely, this patient was told there was no need for a costly flight to the hospital and the associated return trip.

3. A patient who was suspected of having a broken bone was examined via the X-ray telehealth machine in Fort Severn and was told to spare himself the trip.

The broadband capability not only saves money in travel for medical reasons, but also in travel for management and administrative purposes:

“Two days ago, our finance officer needed to participate in discussions at the First Nations Management Board meeting in Sioux Lookout. Before the video link, she would have had to go there, at a cost of three days of her time and $1100, plus tax, in airfare. Now, she could fully participate and, with the video link, do it in three hours.”


The costs associated with not providing these services via broadband would have been high at the individual level. 12. THE COMMUNITIES SECURE SERVICES THEY WOULD NOT NORMALLY

OBTAIN AND THEY DO NOT HAVE TO TAKE ALL THE RISKS IN ONE STEP At the outset of the broadband program in the two communities, the community champions identified what was needed. They understood that the process would take several years and that it would be risky. With perseverance and through incremental investment, the communities obtained services they would not normally have obtained. For example, the private sector would not have invested in telehealth infrastructure and connectivity services during the past two years. Private investors have to consider, of course, whether they can obtain sufficient hard-dollar returns on their investment. In short, one benefit of the broadband system is that it allows rollouts at a measured pace. 13. BROADBAND AVAILABILITY INCREASES THE EFFECTIVENESS OF BAND

MANAGEMENT The positive effects of broadband in the area of band management are evident. The bands are the major employer in these communities and broadband has given band managers the benefits of better administrative tools and better access to necessary information. Communications with outsiders and with members of the community are observably more efficient. Videoconferences and e-mail provide quick access from band offices in Big Trout Lake and Fort Severn to government policy makers in Ottawa, Toronto and elsewhere. According to interview respondents, accounting, reporting and community service needs are easier to satisfy with broadband. It is also easier to create a supportive environment among band managers.



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We found that band members who are trained technicians are able to lever the broadband system to provide benefits not only to their own community but to other remote communities as well. The following quotations provide some specific examples:

“The e-Centre technician in Fort Severn was communicating via the Internet with a person in North Sprit Lake who had trouble with a server. The technician got on the video and explained how to take the server apart and put it together again. They got the system working without Sioux Lookout getting involved or even knowing about it.”


“Somebody in North Spirit Lake had a BIOS problem and couldn’t get his computer to work. The e-technician had him focus the web camera on the monitor of his machine and talked him through the problem.”

Focus Group Respondent “We were sharing technical information between Poplar Hills and Keewaywin. We have videoconferencing to do it.”


“We are now able to get first-level technical support from an e-technician from within the community.”


Band managements would like to see more training at the community level but are pleased with the way broadband has improved their own effectiveness and the way that the number of users has grown on the K-Net system as a whole.

“We need more training at the community end to get people more independent.”

Focus Group Respondent “K-Net moves a lot of e-mail. It has 10,000 users.”


“K-Net’s SMART program is highly effective and is suitable as a model for other Aboriginal communities or groups of communities.”

Focus Group Respondent The Fort Severn and Big Trout Lake nations could not have implemented the broadband connectivity project on their own. While C-band technology was the commercially tested satellite product for remote communities, backhaul was expensive. Subsequently, Bell Canada offered K-Net some free space, but the backhaul still proved too expensive.



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Next, K-Net was able to obtain the interest of the Communications Research Centre in Ottawa. Following revisions to the project plan and a submission to FedNor, funding of $250,000 was obtained. Following initial success, FedNor invested another $400,000. Eight Northern Quebec communities are also using the Sioux Lookout hub -- with six more hooking in during December 2003. These recent additions to the system allows for very high efficiencies. The sharing of bandwidth between nations has increased the cost-effectiveness of the network.

“They always share the bandwidth, particularly once they were connected to satellite service. Sharing is much more efficient. You don’t have to do upgrades so quickly, either.”

Focus group participant Broadband has also provided band administrations another tool in their attempts to reduce the incidence of alcoholism. Access to broadband gives young people more hope. It is unfortunately not possible to quantify the effect of broadband on reducing alcoholism and other social problems because so many concurrent initiatives, including band-instigated alcohol-temperance measures and other initiatives act as determining factors as well. The effect of broadband cannot be isolated in a non-longitudinal study.

In short, Band Councils have gained benefits and other communities have already benefited from the experience gained.

14. NEW JOBS AND NEW SPENDING HAVE BEEN CREATED The investments in the broadband systems in Big Trout Lake and Fort Severn have resulted in increased job opportunities and increased spending. While further research is required, our best current estimate is that five to six full-time equivalent positions have been created in the two communities in the Internet industry as a result of the introduction of broadband. While the broadband project has effectively demonstrated the value of telecommunications applications in the two communities, it also has also created role models for young people: Representative comments form interviewees are as follows:

“Communities now see the e-Centre staffers not only as valuable local resources, but also as role models.”

Focus Group Respondent “If there is a computer problem, or other problem, we can help each other now that we have broadband connections.”




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“K-Net connectivity is a tool for communities to help each other. For instance, in North Spirit Lake they needed to run cable connections. [In response to a need], staff show the people there how to do it. We don’t have to fly people in from Thunder Bay at high cost anymore.”

Focus Group Respondent “If we cut off K-Net now, it would be more than chaos. I couldn’t imagine it being cut off from broadband Internet.”


Fort Severn, Big Trout Lake and the rest of the K-Net communities have become part of a highly effective collaborative effort. These collaborative communities also have created a place where human needs and technological capabilities are shared. Specifically, the e-Centre in Fort Severn acts as a de-facto back-up technology centre for the K-Net one in Sioux Lookout. K-Net has taken the lead in terms of providing standards, a systems architecture, security safeguards and delivery mechanisms. It also has built a central office, installed ground station facilities and created an infrastructure that enables the provision of administrative services. We also found that K-Net manages to keeps its systems as robust, reliable and secure as is possible within the resources which it has available. The implementation of broadband in the two served communities has led to significant benefits for its residents, but multi-year research is required to determine the beneficial impacts quantitatively.

VI. Conclusion The strategic application of broadband technology in Big Trout Lake and Fort Severn is giving the communities, community leaders, students and other residents a desired advantage in Ontario’s knowledge-based society. We found that best practices associated with the introduction of broadband in the two communities could be clearly identified. These included a clear and far-reaching vision, community engagement and local ownership and control. In general, we found users to be well informed about the capabilities of the local systems. Evidence from other remote communities indicates that many of them have invested and are significantly investing in broadband. Other communities that are not included in this group can take advantage of the experience gained in Fort Severn and Big Trout Lake. In the Far North, the private sector was encouraged to build as much as it could justify and involvement of government departments was concentrated – with remarkable success – on those areas were their involvement was essential. The telecom architecture in Fort Severn and Big Trout Lake has been improved at a fraction of what other approaches might have cost.



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The ability to deliver reliable broadband connectivity and associated learning technologies in un-served communities is particularly important at this stage in the evolution of their communications systems. The experience in served communities indicates that pent-up demand for high-speed services is high. Usage levels are very high and continue to grow rapidly. The implementation of broadband in the two served communities has led to significant benefits for its residents, but further research is required to determine impacts quantitatively. In comparison, Fort Albany has not yet achieved any of the results that stem from applying “broadband” best practices. BAY CONSULTING GROUP



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Appendix A

Approach to This Assignment The methodology we used for the research was as follows:

1. We conducted desk research; 2. We determined who should be interviewed in Fort Severn and Big Trout Lake; 3. We identified who should be interviewed from outside these communities; 4. We conducted focus groups and one-on-one personal interviews to collect data; 5. We analyzed the findings; and 6. We prepared documentation of the findings.

The specific activities that were completed were as follows:

• Reviewed project scope and issues with MBS.

• Travelled to Fort Severn and interviewed:

o Roy Gray, Chief, fort Severn First Nation o Kathleen Thomas, Councillor o Tommy Miles, Councillor o Dennis Bluecoat, Councillor o Madeleine Stoney, Fort Severn Smart Team member o Angus Miles, Technician in the e-Centre and Fort Severn Smart Team member o Barney Turtle, Fort Severn Smart Team member o George Ricardo, outside communications specialist and video trainer o Jessie Matthews, Coordinator, Telehealth o Trudy Winkelaar, Nurse o Susan Validen, Nurse in Charge o Allan Boyce, Keewaytinook Internet High School Teacher o Teacher in the community high school o Students o Teacher in the Internet High School

• Travelled to Sioux Lookout and Big Trout Lake, met with and interviewed:

o Carl Seibel, Telecommunications Officer, FedNor, Industry Canada o J. Cutfeet, Member of Council o S. Cutfeet, User of broadband in the community o Leon Cutfeet, User of broadband in the community o W. Sainnawap, Member of Council o J. Sainnawap, User of broadband in the community o Jeannie Beardy, Member of Council in Charge of Education o Robert Hunter, GIS/Architectural Specialist, K.O. Public Works Unit o Jessie Fiddler, Multimedia Applications Specialist



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o Dan Pellerin, Network Manager for K-Net o Brian Beaton, Administrator o Les Meekis, Community Manager, Northern Chiefs Council o Lisette Cere, Nurse o Marea Spray, Nurse o Teachers o Students o Other users of broadband in the community o John Rolandson, Consultant

− For each of the two communities with broadband, started analyzing the information collected.

The next phase of the project involved the final analysis of all the data collected and the preparation of the draft report. The specific activities undertaken were as follows:

• Described the sources of information (e.g. chiefs, band staff, council members, members

of previous councils, community administrators, community elders, K-net staff, community clinic staffs, school administrators and staff in Fort Albany).

• Analyzed all the information collected. • Described the findings. • Confirmed financial information prepared the draft report.

• Incorporated comments from MBS and Industry Canada into the report, where

appropriate. • Conducted any additional research required to fine-tune the report.

• Prepared the final report.

The approach outlined above allowed for the completion of the required deliverables within the specified timeframe.



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Appendix B

SCHEMATIC OF THE NETWORK

Source: Dan Pellerin, K-Net