Yes but why do you think thats at all a limiting factor? At least 1 strand per building/apartment/house/etc to start thats 16 channels on typical CDWM kit so 8 providers. Even if they break up everything thats 3-4 providers (TV, Internet, Phone, and alarm). Sure a pair is nicer and putting extra glass in the ground up front is never a bad thing. End of the day glass is fairly cheap putting it into the hole and terminating it not so much.

It's by no means perfect but it's gotten well past the point it's a reasonable solution within the capabilities of muni's to do. Plenty of fiber going in for traffic management where they allready have contacts for the service end and bringing the skillset in house is not a bad thing for the muni.