ase of only 4,324 access lines. Only 10 percent of NECA's carriers have more than 10,000 access lines in service, which is the threshold at which these connections become economically viable. In some countries with large rural areas, such as Australia, the government subsi- dizes construction of middle-mile networks. In the United States, the FCC is provid- ing grants to some rural carriers through its National Broadband Plan. However, it is anticipated that these grants will not be sufficient to provide adequate, affordable, middle-mile connectivity to all small rural providers. These providers now have high- priced interconnections, the costs of which they pass on to consumers. The relatively low rate of broadband adoption combined with long distances and expensive inter- connection leaves most rural providers without the resources to invest in high-speed broadband service. Carrier Networks A Unique Model for Bringing High-Speed Broadband to Sparsely Populated Areas Many of Utah's municipalities are located in mountainous areas where they have struggled without success to obtain affordable service from large providers. In addition, businesses were moving away from these areas because of the scarcity of broadband service. These municipalities realized that they didn't have exper- tise in the telecommunications business and decided to create a separate, non- profit entity to build and manage the network. In 2003 and 2004, 16 cities formed the Utah Telecommunications Open Infrastructure Agency (UTOPIA), a high- speed, fully fiber-optic network. Each municipality's governing body approved the formation of UTOPIA, and each city has a representative on UTOPIA's board. The UTOPIA member cities look upon the fiber-to-the-premises broadband network as vital infrastructure (similar to roads, electricity, and sewers) needed to attract businesses and jobs, and to allow people to participate more fully in today's world. UTOPIA received initial funding through bond offerings by the member cities. Today, it assesses each resi