The municipality should own the network and lease bandwidth to private providers. I'm sure private providers would be willing to help lay cable if they got a fixed fee for the work done along with a period of slightly reduced lease rates and first dibs on a fairly sizable chunk of the pipe's leases. The fixed rate would cover work expenses with a little profit and the cherry lease deal would pay out better than a bond and be fungible so it'd be easy to secure credit on that agreement.