There's a big ol thread [0] on this in NANOG with lots of juicy implementation details. I'd hesitate to use the word 'consensus' in relation to a mailing list in any way but my take home is that if the municipality sticks to providing L1 (i.e. a physical fiber as opposed to an 'internet connection') it requires a manageable level of expertise and still vastly lowers the cost of entry for ISPs to provide the rest of the stack.

[0] http://mailman.nanog.org/pipermail/nanog/2014-July/068527.ht...