The Digital Divide: What Is It, Where Is It, and Federal Assistance Programs

Changes from November 17, 2020 to March 9, 2021

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The Digital Divide: What Is It, Where Is It, and
~~November 17, 2020~~March 9, 2021
Federal Assistance Programs
Colby Leigh Rachfal
As the Coronavirus Disease 2019 (COVID-19) pandemic began to unfold, many federal, local, As the Coronavirus Disease 2019 (COVID-19) pandemic began to unfold, many federal, local,
Analyst in Analyst in
and state governments, in addition to large and small businesses, implemented remote working or and state governments, in addition to large and small businesses, implemented remote working or
Telecommunications Telecommunications
distance learning options to help abate the spread of the virus. As these decisions were made, distance learning options to help abate the spread of the virus. As these decisions were made,
Policy Policy
some of the population had the option and the capability to shift activities online, while others did some of the population had the option and the capability to shift activities online, while others did

not. The digital divide has been used to characterize a gap between those Americans who have not. The digital divide has been used to characterize a gap between those Americans who have
~~Angele A. Gilroy~~
access to telecommunications and information technologies and those who do not. One subset of access to telecommunications and information technologies and those who do not. One subset of
~~Specialist in~~
the digital divide debate concerns access to high-speed internet, also known as broadband. the digital divide debate concerns access to high-speed internet, also known as broadband.
~~Telecommunications~~
Broadband is provided by a variety of technologies (e.g., cable, telephone wire, fiber, satellite, Broadband is provided by a variety of technologies (e.g., cable, telephone wire, fiber, satellite,
~~Policy~~
and mobile and fixed wireless) that give users the ability to send and receive data at volumes and and mobile and fixed wireless) that give users the ability to send and receive data at volumes and

speeds that support a wide range of applications, including voice communications, entertainment, speeds that support a wide range of applications, including voice communications, entertainment,
telemedicine, distance education, telework, ecommerce, civic engagement, public safety, and telemedicine, distance education, telework, ecommerce, civic engagement, public safety, and

energy conservation. energy conservation.
Broadband technologies are currently being deployed, primarily by the private sector, throughout the United States. While Broadband technologies are currently being deployed, primarily by the private sector, throughout the United States. While
the number of new broadband subscribers continues to grow, in general, rural areas—and tribal areas in particular—tend to the number of new broadband subscribers continues to grow, in general, rural areas—and tribal areas in particular—tend to
lag behind urban and suburban areas in broadband deployment and the speed of service offered. Some policymakers, lag behind urban and suburban areas in broadband deployment and the speed of service offered. Some policymakers,
believing that disparities in broadband access across American society could have adverse economic and social consequences believing that disparities in broadband access across American society could have adverse economic and social consequences
on those left behind, assert that the federal government should play a more active role to address the “digital divide” in on those left behind, assert that the federal government should play a more active role to address the “digital divide” in
broadband access, particularly in light of the COVID-19 pandemic, which further revealed discrepancies in broadband broadband access, particularly in light of the COVID-19 pandemic, which further revealed discrepancies in broadband
availability and accessibility. availability and accessibility.
Federal support for broadband infrastructure occurs mainly through the Universal Service Fund (USF) programs under the Federal support for broadband infrastructure occurs mainly through the Universal Service Fund (USF) programs under the
Federal Communications Commission (FCC)Federal Communications Commission (FCC) ~~and~~, the broadband and telecommunications programs at the Rural Utilities the broadband and telecommunications programs at the Rural Utilities
Service (RUS) of the U.S. Department of Agriculture (USDAService (RUS) of the U.S. Department of Agriculture (USDA), and newly established broadband programs within the Consolidated Appropriations Act, 2021 (P.L. 116-260) at the National Telecommunications and Information Administration (NTIA). The USF, which was originally designed to ensure rural, ). The USF, which was originally designed to ensure rural,
high-cost areas have access to voice service, is undergoing a major transition, which is targeted to the deployment, adoption, high-cost areas have access to voice service, is undergoing a major transition, which is targeted to the deployment, adoption,
and utilization of both fixed and mobile broadband. As currently designed, the USF consists of four programs: the High and utilization of both fixed and mobile broadband. As currently designed, the USF consists of four programs: the High
Cost/Connect America Fund Program; the Schools and Libraries Program; the Rural Health Care Program; and the Low Cost/Connect America Fund Program; the Schools and Libraries Program; the Rural Health Care Program; and the Low
Income (Lifeline) Program. While the overall purpose of each program is to help ensure the universal availability of Income (Lifeline) Program. While the overall purpose of each program is to help ensure the universal availability of
telecommunications and broadband services, each program addresses specific aspects of that goal to fulfill the universal telecommunications and broadband services, each program addresses specific aspects of that goal to fulfill the universal
service mandate and help to close the digital divide. The USDA, through its Rural Utilities Service, administers five service mandate and help to close the digital divide. The USDA, through its Rural Utilities Service, administers five
programs that provide loans and grants to increase access to broadband service in rural areas. These programs include the programs that provide loans and grants to increase access to broadband service in rural areas. These programs include the
Community Connect Program, the ReConnect Program, the Rural Broadband Access Program, the Telecommunications Community Connect Program, the ReConnect Program, the Rural Broadband Access Program, the Telecommunications
Infrastructure Program, and the Distance Learning and Telemedicine Program. Infrastructure Program, and the Distance Learning and Telemedicine Program.
Three new broadband programs are to be administered by the NTIA—a pilot program to connect minority communities, a grant program to support broadband connectivity on tribal lands throughout the country, and a grant program to support broadband infrastructure deployment to areas lacking broadband. Funding for the USF does not come from appropriations, but from a mandatory fee on telecommunications carriers that Funding for the USF does not come from appropriations, but from a mandatory fee on telecommunications carriers that
provide interstate service and on certain other providers of telecommunications services. The fee is based on a percentage of provide interstate service and on certain other providers of telecommunications services. The fee is based on a percentage of
the providers’ end-user interstate and international telecommunications revenues. Approximately $8.3 billion from the USF the providers’ end-user interstate and international telecommunications revenues. Approximately $8.3 billion from the USF
was disbursed in 2019, with all 50 states, the District of Columbia, and all territories receiving some benefit. Congress was disbursed in 2019, with all 50 states, the District of Columbia, and all territories receiving some benefit. Congress
reauthorized and modified the RUS broadband programs in the Agriculture Improvement Act of 2018 (P.L. 115-334). In reauthorized and modified the RUS broadband programs in the Agriculture Improvement Act of 2018 (P.L. 115-334). In
recent years, Congress has provided additional funding for the RUS broadband programs. recent years, Congress has provided additional funding for the RUS broadband programs. ~~Specifically,~~ For example, most recently, Congress provided Congress provided
~~$600~~$635 million for the ReConnect million for the ReConnect ~~Program in the Consolidated Appropriations Act, 2018 (P.L. 115-141);~~program in the Consolidated in the Consolidated
Appropriations Act, Appropriations Act, ~~2019 (P.L. 116-6) Congress provided another $550 million for ReConnect; and in the Coronavirus Aid,~~
~~Relief, and Economic Security Act (CARES Act, P.L. 116-136, Division B, Title I, §11004) Congress provided an additional~~
~~$100 million for ReConnect grants~~2021 P.L. 116-260). .
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Appendixes
Appendix. Broadband Legislation in the 116th Congress .............................................................. 22

Contacts
Author Information ........................................................................................................................ 23

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The Digital Divide: What Is It, Where Is It, and Federal Assistance Programs

Introduction
The internet became publicly available in the 1990s and has become essential for accessing and The internet became publicly available in the 1990s and has become essential for accessing and
carrying an increasing volume of digital information critical to everyday life (e.g., job carrying an increasing volume of digital information critical to everyday life (e.g., job
applications and government forms). Broadband is high-speed internet access that is faster than applications and government forms). Broadband is high-speed internet access that is faster than
traditional dial-up access, always on, and relies on high-speed transmission technologies, such astraditional dial-up access, always on, and relies on high-speed transmission technologies, such as:
 Digital Subscriber Line (DSL),  Digital Subscriber Line (DSL),
 Cable modem,  Cable modem,
 Fiber optic cable,  Fiber optic cable,
 Wireless,  Wireless,
 Satellite, and  Satellite, and
 Broadband over Powerlines (BPL).1  Broadband over Powerlines (BPL).1
Broadband is currently deployed throughout the United States, primarily by the private sector. Broadband is currently deployed throughout the United States, primarily by the private sector.
While the number of new broadband subscribers continues to grow, studies and data indicate that While the number of new broadband subscribers continues to grow, studies and data indicate that
the rate of broadband deployment in urban/suburban and high-income areas is outpacing the rate of broadband deployment in urban/suburban and high-income areas is outpacing
deployment in rural and low-income areas.2 deployment in rural and low-income areas.2
The term “digital divide” is used to describe the gap between those who have adequate broadband The term “digital divide” is used to describe the gap between those who have adequate broadband
internet access and those who do not.3 The Telecommunications Act of 1996 (P.L. 104-104) internet access and those who do not.3 The Telecommunications Act of 1996 (P.L. 104-104)
acknowledged the digital divide, with Section 706(a) directing the Federal Communications acknowledged the digital divide, with Section 706(a) directing the Federal Communications
Commission (FCC) to encourage the deployment on a reasonable and timely basis of advanced Commission (FCC) to encourage the deployment on a reasonable and timely basis of advanced
telecommunications services to all Americans. Additionally, Section 254 of the act provided for telecommunications services to all Americans. Additionally, Section 254 of the act provided for
universal service support to further improve access to these services. universal service support to further improve access to these services.
This report discusses the concept of the digital divide, the status of broadband availability in the This report discusses the concept of the digital divide, the status of broadband availability in the
United States, and the federal programs that provide funding to support broadband infrastructure United States, and the federal programs that provide funding to support broadband infrastructure
deployment and adoption—the Universal Service Fund (USF) programs under the FCC, the deployment and adoption—the Universal Service Fund (USF) programs under the FCC, the
broadband and telecommunications programs at the Rural Utilities Service (RUS) of the U.S. broadband and telecommunications programs at the Rural Utilities Service (RUS) of the U.S.
Department of Agriculture, and the National Telecommunications and Information Administration Department of Agriculture, and the National Telecommunications and Information Administration
(NTIA) within the Department of Commerce (DOC). (NTIA) within the Department of Commerce (DOC).
Status of Broadband in the United States
Prior to the late 1990s, Americans at home accessed the internet at maximum speeds of 56 Prior to the late 1990s, Americans at home accessed the internet at maximum speeds of 56
kilobits per second by using a dial-up method to reach an Internet Service Provider over the same kilobits per second by using a dial-up method to reach an Internet Service Provider over the same
copper telephone lines used for traditional voice service. A relatively small number of businesses copper telephone lines used for traditional voice service. A relatively small number of businesses

1 DSL uses copper telephone wires. Cable modem uses coaxial cables—the same used for cable television. Fiber uses 1 DSL uses copper telephone wires. Cable modem uses coaxial cables—the same used for cable television. Fiber uses
pulses of light shot by lasers through thin strands of glass. Wireless uses a radio connection between the consumer and pulses of light shot by lasers through thin strands of glass. Wireless uses a radio connection between the consumer and
the service provider’s terrestrial antennae. Satellite uses a radio connection to a space-based antenna. BPL uses power the service provider’s terrestrial antennae. Satellite uses a radio connection to a space-based antenna. BPL uses power
lines to deliver broadband to consumers. For further information, see FCC, “Types of Broadband Connections,” June lines to deliver broadband to consumers. For further information, see FCC, “Types of Broadband Connections,” June
23, 2014, https://www.fcc.gov/general/types-broadband-connections. 23, 2014, https://www.fcc.gov/general/types-broadband-connections.
2 The Office of Management and Budget (OMB) defines nonmetropolitan (rural) areas as areas with a population of 2 The Office of Management and Budget (OMB) defines nonmetropolitan (rural) areas as areas with a population of
fewer than 50,000 persons, and not economically tied to a metropolitan area. See https://www.ers.usda.gov/topics/rural-fewer than 50,000 persons, and not economically tied to a metropolitan area. See https://www.ers.usda.gov/topics/rural-
economy-population/rural-classifications/what-is-rural/. economy-population/rural-classifications/what-is-rural/.
3 The term “digital divide” can also refer to international disparities in access to communications and information 3 The term “digital divide” can also refer to international disparities in access to communications and information
technology. This report focuses on domestic issues only. technology. This report focuses on domestic issues only.
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and institutions used broadband or high-speed4 connections through the installation of special and institutions used broadband or high-speed4 connections through the installation of special
“dedicated lines,” typically provided by their local telephone company. Starting in the 1990s, “dedicated lines,” typically provided by their local telephone company. Starting in the 1990s,
cable television companies began offering cable modem broadband service to homes and cable television companies began offering cable modem broadband service to homes and
businesses, while telephone companies were offering DSL service. Growth in broadband service businesses, while telephone companies were offering DSL service. Growth in broadband service
has been steep, rising from 2.8 million high-speed lines reported as of December 1999 to 441 has been steep, rising from 2.8 million high-speed lines reported as of December 1999 to 441
million connections as of December 2018.5 million connections as of December 2018.5
The FCC has set a current speed benchmark of 25 megabits per second (Mbps) (download The FCC has set a current speed benchmark of 25 megabits per second (Mbps) (download
speed)/3 Mbps (upload speed) as the measure by which it determines whether a fixed service speed)/3 Mbps (upload speed) as the measure by which it determines whether a fixed service
provides advanced telecommunications capability.provides advanced telecommunications capability. Table 1 depicts advanced telecommunications depicts advanced telecommunications
capability by types of broadband technologies. capability by types of broadband technologies.
Table 1. Percentage of Broadband Technologies That Offer Advanced
Telecommunications Capability
Speed Measured in Megabits per second (Mbps) Speed Measured in Megabits per second (Mbps)
Fixed
Residential fixed
connections at
connections at

least 25/3 Mbps
least 25/3 Mbps
Cable modem Cable modem
75.8% 75.8%
75.9% 75.9%
DSL DSL
5.8% 5.8%
5.9% 5.9%
Fiber Fiber
16.6% 16.6%
16.5% 16.5%
All other All other
1.8% 1.8%
1.6% 1.6%
Source: Federal Communications Commission, Federal Communications Commission, Internet Access Services: Status as of December 31, 2018, released , released
September 2020, pp. 19-22September 2020, pp. 19-22, available at https://docs.fcc.gov/public/attachments/DOC-366980A1.pdf. available at https://docs.fcc.gov/public/attachments/DOC-366980A1.pdf.
Notes: 25/3 means 25 Mbps download/3 Mbps upload. Totals may not sum due to rounding. Fixed means non-25/3 means 25 Mbps download/3 Mbps upload. Totals may not sum due to rounding. Fixed means non-
mobile and delivered through a stationary connection. Connections include both residential and business mobile and delivered through a stationary connection. Connections include both residential and business
connections. connections.
Fixed Broadband Availability
FCC data indicate where fixed broadband service is and is not being deployed.6FCC data indicate where fixed broadband service is and is not being deployed.6 Table 2 shows shows
percentages of Americans in urban, rural, and tribal areas with access to terrestrial fixed percentages of Americans in urban, rural, and tribal areas with access to terrestrial fixed
broadband at speeds of 25 Mbps/3Mbps, as presented in the FCC’s broadband at speeds of 25 Mbps/3Mbps, as presented in the FCC’s ~~2020~~2021 Broadband Deployment
Report.7 According to the most recent FCC deployment data, as of December .7 According to the most recent FCC deployment data, as of December ~~2018, 94.4~~2019, 95.6% of the % of the
overall population had access to fixed terrestrial broadband at speeds of at least 25 Mbps/3 Mbps. overall population had access to fixed terrestrial broadband at speeds of at least 25 Mbps/3 Mbps.
Table 3 shows the percentage of Americans as of December shows the percentage of Americans as of December ~~2018~~2019 with access to fixed 25 with access to fixed 25
Mbps/Mbps/~~3Mbps~~3 Mbps terrestrial broadband by state. terrestrial broadband by state.

4 Dial-up internet is the only connection that is not considered high speed. 4 Dial-up internet is the only connection that is not considered high speed.
5 Federal Communications Commission, 5 Federal Communications Commission, Internet Access Services: Status as of December 31, 2018, released September , released September
2020, p. 2, available at https://docs.fcc.gov/public/attachments/DOC-366980A1.pdf. 2020, p. 2, available at https://docs.fcc.gov/public/attachments/DOC-366980A1.pdf.
6 6 ~~See~~ Federal Communications Commission, Federal Communications Commission, Fixed Broadband Deployment, available at https://broadbandmap.fcc.gov/, available at https://broadbandmap.fcc.gov/
. .
7 Federal Communications Commission, 7 Federal Communications Commission, ~~2020~~2021 Broadband Deployment Report, , ~~June 8, 2020, pp. 1, 186~~January 19, 2021, p. 20, available at , available at
https://docs.fcc.gov/public/attachments/FCC-https://docs.fcc.gov/public/attachments/FCC-~~20-50A2~~21-18A1.pdf..pdf.
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Table 2. Percentage of Americans with Access to Fixed Terrestrial Broadband at
~~Minimum Speed~~Speeds of 25 Mbps/3 Mbps

~~2013~~
2014
2015
2016
2017
2018
2019 All U.S. All U.S.
~~83.6%~~
89.4% 89.4%
89.9% 89.9%
91.9% 91.9%
93.5% 93.5%
94.4% 94.4%
~~Urban~~
~~92.3%~~95.6% Urban
96.4% 96.4%
96.7% 96.7%
97.7% 97.7%
98.3% 98.3%
98.5% 98.5%
~~Rural~~
~~47.6%~~98.8% Rural
60.4% 60.4%
61.5% 61.5%
67.8% 67.8%
73.6% 73.6%
77.7% 77.7%
~~Tribal~~
~~37.1%~~82.7% Tribal
57.2% 57.2%
57.8% 57.8%
63.1% 63.1%
67.9% 67.9%
72.3% 72.3%
79.1% Source: Federal Communications Commission, Federal Communications Commission, ~~2020~~2021 Broadband Deployment Report ~~Appendix~~~~, April 24, 2020, pp.~~
~~1, 186,~~ , January 19, 2021, p. 20, available at https://docs.fcc.gov/public/attachments/FCC-available at https://docs.fcc.gov/public/attachments/FCC-~~20-50A1~~21-18A1.pdf..pdf.
Table 3. Percentage of Americans with Access to Fixed Terrestrial Broadband
by State
(December (December ~~2018~~2019 data, minimum speed of 25 Mbps/3 Mbps) data, minimum speed of 25 Mbps/3 Mbps)
% of population
% of population
% of population
with access,
with access,
with access,

all areas
rural areas
urban areas
United States United States
~~94.4~~95.6%
~~77.7~~82.8%
98.58%
Alabama Alabama
87. 87.3
~~72.2~~6 73.0
97. 97.98 Alaska 85.2 63.7 97.2 Arizona 94.8 66.5 98.9 Arkansas 81.0 63.3 95.2 California 98.5 84.2 99.4 Colorado 97.2 86.4 99.3 Connecticut 99.2 99.3 99.2 Delaware 97.8 96.0 98.2 Florida 96.3 78.6 98.2 Georgia 93.8 81.0 98.1 Hawaii 97.9 84.7 99.3 Idaho 95.3 86.5 99.4 Il inois 98.0 88.0 99.3 Indiana 96.1 87.4 99.4 Iowa 96.0 91.2 98.7 Kansas 95.7 87.3 98.7 Kentucky 94.3 86.7 99.6 Louisiana 88.4 65.0 97.1 Maine 96.5 94.7 99.6 Maryland 97.5 93.8 98.1 Massachusetts 98.0 93.3 98.4 Michigan 95.8 86.3 99.1 Minnesota 97.5 91.4 99.8
~~Alaska~~
~~83.8~~
~~59.8~~
~~98.3~~
~~Arizona~~
~~88.7~~
~~46.9~~
~~94.6~~
~~Arkansas~~
~~78.7~~
~~59.1~~
~~94.4~~
~~California~~
~~98.1~~
~~79.5~~
~~99.3~~
~~Colorado~~
~~94.9~~
~~76.3~~
~~98.4~~
~~Connecticut~~
~~99.2~~
~~99.5~~
~~99.1~~
~~Delaware~~
~~97.8~~
~~95.7~~
~~99.1~~
~~District of Columbia~~
~~98.1~~
~~N/A~~
~~98.1~~
~~Florida~~
~~96.6~~
~~80.3~~
~~98.3~~
~~Georgia~~
~~93.6~~
~~80.3~~
~~97.9~~
~~Hawaii~~
~~96.6~~
~~76.6~~
~~98.6~~
~~Idaho~~
~~84.9~~
~~58.1~~
~~97.1~~
~~Il inois~~
~~95.3~~
~~67.6~~
~~98.9~~
~~Indiana~~
~~94.1~~
~~80.3~~
~~99.4~~
~~Iowa~~
~~93.2~~
~~84.2~~
~~98.3~~
~~Kansas~~
~~92.5~~
~~77.0~~
~~97.8~~
~~Kentucky~~
~~93.3~~
~~84.9~~
~~99.2~~
~~Louisiana~~
~~87.0~~
~~62.1~~
~~96.1~~
~~Maine~~
~~95.4~~
~~92.8~~
~~99.5~~
~~Maryland~~
~~97.4~~
~~92.9~~
~~98.1~~
~~Massachusetts~~
~~97.9~~
~~92.5~~
~~98.4~~
~~Michigan~~
~~94.7~~
~~82.2~~
~~99.0~~
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% of population
% of population
% of population
with access,
with access,
with access,

all areas
rural areas
urban areas
~~Minnesota~~
~~96.2~~
~~88.1~~
~~99.1~~
~~Mississippi~~
~~78.8~~
~~61.1~~
~~97.0~~Mississippi 80.3 63.4 97.8
Missouri Missouri
~~90.2~~
~~69.8~~
~~99.0~~93.1 79.0 99.2
Montana Montana
~~87.1~~
~~74.1~~
~~98.1~~86.7 73.6 98.0 Nebraska 96.3 87.0 99.8 Nevada 97.1 66.1 99.6
~~Nebraska~~
~~89.5~~
~~65.2~~
~~98.4~~
~~Nevada~~
~~94.0~~
~~49.4~~
~~97.4~~
New Hampshire New Hampshire
96. 96.0
~~92.1~~8 94.0
98.6 98.6
New Jersey New Jersey
~~99.2~~
~~98.2~~
~~99.3~~
~~New Mexico~~
~~84.8~~
~~50.1~~
~~95.9~~98.5 97.8 98.6 New Mexico 87.1 58.0 96.5
New York New York
98. 98.8
~~90.7~~
~~100.0~~7 94.3 99.3
North Carolina North Carolina
95.5 95.5
~~86.8~~87.0
99. 99.87
North Dakota North Dakota
~~94.0~~
~~89.5~~
~~97.7~~
~~Ohio~~
~~95.3~~
~~81.2~~
~~99.4~~
~~Oklahoma~~
~~83.8~~
~~61.0~~
~~95.8~~
~~Oregon~~
~~93.7~~
~~74.5~~
~~98.7~~
~~Pennsylvania~~
~~95.4~~
~~84.8~~
~~98.2~~
~~Rhode Island~~
~~98.5~~
~~97.6~~
~~98.6~~
~~South Carolina~~
~~89.7~~
~~75.0~~
~~97.2~~
~~South Dakota~~
~~91.6~~
~~82.3~~
~~99.3~~
~~Tennessee~~
~~92.2~~
~~79.7~~
~~98.6~~
~~Texas~~
~~94.1~~
~~75.3~~
~~97.9~~
~~Utah~~
~~94.8~~
~~67.9~~
~~98.7~~
~~Vermont~~
~~92.2~~
~~88.1~~
~~98.7~~
~~Virginia~~
~~92.5~~
~~75.9~~
~~97.9~~
~~Washington~~
~~95.4~~
~~79.3~~
~~98.8~~
~~West Virginia~~
~~82.4~~
~~70.3~~
~~95.1~~
~~Wisconsin~~
~~92.9~~
~~77.3~~
~~99.7~~
~~Wyoming~~
~~86.8~~
~~65.9~~
~~99.5~~
Source: Federal Communications Commission, 2020 Broadband Deployment Report, April 24, 2020, Appendix 1,
~~available at https://docs.fcc.gov/public/attachments/FCC-20-50A2.pdf.~~
96.8 94.2 99.0 Ohio 97.2 88.4 99.7 Oklahoma 87.8 71.8 96.3 Oregon 94.9 79.5 98.9 Pennsylvania 95.9 86.7 98.4 Rhode Island 98.6 97.6 98.7 South Carolina 91.3 78.7 97.7 South Dakota 95.0 89.3 99.7 Tennessee 93.7 84.0 98.6 Texas 95.8 83.9 98.2 Utah 95.7 72.3 99.3 Vermont 93.1 89.6 98.8 Virginia 94.2 82.2 98.1 Washington 96.3 83.6 99.0 West Virginia 82.2 71.3 93.5 Wisconsin 93.2 78.2 99.8 Wyoming 92.7 81.0 100.0 Source: Federal Communications Commission, 2021 Broadband Deployment Report, January 19, 2021, Appendix A, available at https://docs.fcc.gov/public/attachments/FCC-21-18A1.pdf. Another broadband availability metric is the extent to which there are multiple broadband Another broadband availability metric is the extent to which there are multiple broadband
providers offering competition and consumer choice. Typically, multiple providers are more providers offering competition and consumer choice. Typically, multiple providers are more
prevalent in urban than in rural areas or tribal areas (seprevalent in urban than in rural areas or tribal areas (see Table 4). Percentages may be overstated . Percentages may be overstated
because broadband providers report data at the census block level, and may not offer service to because broadband providers report data at the census block level, and may not offer service to
every home in every block in which they report service. every home in every block in which they report service.
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Table 4. Percentage of Americans with Multiple Options for Fixed Terrestrial
Broadband (25/3 Mbps)

No provider
1 provider
2 providers
3 or more
Nationwide Nationwide
0.04% 0.04%
0. 0.161% %
~~5.62%~~
~~94.18~~4.56% 95.3% %
Urban Urban
0.02% 0.02%
0. 0.151% %
1. 1.~~94%~~
~~97.89~~44% 98.44% %
Rural Rural
0.12% 0.12%
0. 0.~~20%~~
~~20.75%~~
~~78.92~~12% 17.28% 82.49% %
Tribal Tribal
1. 1.4644% %
0. 0.~~58%~~
~~23.70%~~
~~74.25~~54% 20.33% 77.69% %
Source: CRS, derived from Federal Communications Commission Fixed Broadband Deployment Map, data as of CRS, derived from Federal Communications Commission Fixed Broadband Deployment Map, data as of
~~June~~December 2019 (https://broadbandmap.fcc.gov/). 2019 (https://broadbandmap.fcc.gov/).
Notes: Broadband providers report data at the census block level, and may not offer service to every home in Broadband providers report data at the census block level, and may not offer service to every home in
every block in which they report service. The calculations used treat every location as having service, and may every block in which they report service. The calculations used treat every location as having service, and may
therefore overestimate broadband coverage, particularly in areas with large census blocks. therefore overestimate broadband coverage, particularly in areas with large census blocks.
Fixed Broadband Adoption
In contrast to broadband In contrast to broadband availability, which refers to whether or not broadband service is offered, , which refers to whether or not broadband service is offered,
broadband broadband adoption refers to the extent to which an individual uses fixed broadband.8 Pew refers to the extent to which an individual uses fixed broadband.8 Pew
Research Center reports that 10% of adults did not use the internet in 2019, down from 48% in Research Center reports that 10% of adults did not use the internet in 2019, down from 48% in
2000.9 The most recent survey data from the Pew Research Center show that populations 2000.9 The most recent survey data from the Pew Research Center show that populations
continuing to have lower rates of internet use include people with low incomes, seniors, the less-continuing to have lower rates of internet use include people with low incomes, seniors, the less-
educated, and households in rural areas (seeducated, and households in rural areas (see Table 5).10 .10
Table 5. Percentage of U.S. Adults Who Did Not Use the Internet in 2019
U.S. Adults U.S. Adults
10% 10%
Men Men
10% 10%
Women Women
9% 9%
White White
8% 8%
Black Black
15% 15%
Hispanic Hispanic
14% 14%
18-29 age 18-29 age
0% 0%
30-49 30-49
3% 3%
50-64 50-64
12% 12%
65+ 65+
27% 27%
Less than $30K income Less than $30K income
18% 18%
$30K-$50K $30K-$50K
7% 7%
$50K-$75K $50K-$75K
3% 3%
$75K+ $75K+
2% 2%

8 For more information, please see CRS Report R46108, 8 For more information, please see CRS Report R46108, Demand for Broadband in Rural Areas: Implications for
Universal Access, by Brian E. Humphreys. , by Brian E. Humphreys.
9 Pew Research Center, 9 Pew Research Center, 10% of Americans Don’t Use the Internet. Who Are They?, April 22, 2019, survey conducted , April 22, 2019, survey conducted
January 8-February 7, 2019, available at https://www.pewresearch.org/fact-tank/2019/04/22/some-americans-dont-use-January 8-February 7, 2019, available at https://www.pewresearch.org/fact-tank/2019/04/22/some-americans-dont-use-
the-internet-who-are-they/. the-internet-who-are-they/.
10 Ibid. 10 Ibid.
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Less than high school Less than high school
29% 29%
High school High school
16% 16%
Some col ege Some col ege
5% 5%
Col ege or higher Col ege or higher
2% 2%
Urban Urban
9% 9%
Suburban Suburban
6% 6%
Rural Rural
15% 15%
Source: Pew Research Center, Pew Research Center, 10% of Americans Don’t Use the Internet. Who Are They?, April 22, 2019, survey , April 22, 2019, survey
conducted January 8–February 7, 2019, available at https://www.pewresearch.org/fact-tank/2019/04/22/some-conducted January 8–February 7, 2019, available at https://www.pewresearch.org/fact-tank/2019/04/22/some-
americans-dont-use-the-internet-who-are-they/. americans-dont-use-the-internet-who-are-they/.
Fixed Broadband in Rural and Tribal Areas11
While the number of new broadband subscribers continues to grow, the rate of broadband While the number of new broadband subscribers continues to grow, the rate of broadband
deployment in urban areas has outpaced deployment in rural and tribal areas. In general, rural deployment in urban areas has outpaced deployment in rural and tribal areas. In general, rural
areas—and tribal areas in particular—tend to lag behind urban and suburban areas in broadband areas—and tribal areas in particular—tend to lag behind urban and suburban areas in broadband
deployment and the speed of service offered. deployment and the speed of service offered.
For example For example
 According to the FCC’s  According to the FCC’s ~~2020~~2021 Broadband Deployment Report, “We find that , “We find that
Tribal lands continue to face significant obstacles to broadband deployment Tribal lands continue to face significant obstacles to broadband deployment, as the Commission has in the past. As . As
reflected in reflected in ~~both the 2018 Report and 2019 Report,~~ the three most recent Reports, deployment of advanced deployment of advanced
telecommunications capability on certain Tribal lands, particularly rural Tribal telecommunications capability on certain Tribal lands, particularly rural Tribal
lands, lags behind deployment in other, non-Tribal areas.”12 lands, lags behind deployment in other, non-Tribal areas.”12
 According to the FCC’s  According to the FCC’s ~~2020~~2021 Broadband Deployment Report, “Section 706(a) , “Section 706(a)
mandates that we continue to promote deployment of advanced mandates that we continue to promote deployment of advanced
telecommunications capability to all Americans, and even though telecommunications capability to all Americans, and even though ~~‘remarkable~~
~~progress has been made[,]’ it remains the case that ‘many people, particularly~~
~~rural and Tribal areas, do not enjoy the fastest possible broadband speeds or even~~
~~access to advanced telecommunications services.’~~“current data continue to demonstrate significant ongoing progress,” it remains the case that rural and Tribal areas continue to lag behind in broadband deployment.”13 ”13
The comparatively lower population density and more difficult topography of rural and tribal The comparatively lower population density and more difficult topography of rural and tribal
areas contributes to the relative lack of broadband deployment in contrast to more highly areas contributes to the relative lack of broadband deployment in contrast to more highly
populated urban and suburban areas. Particularly for wireline broadband technologies—such as populated urban and suburban areas. Particularly for wireline broadband technologies—such as
cable modem and fiber—greater geographical distance between customers results in the inability cable modem and fiber—greater geographical distance between customers results in the inability
to spread costs over a larger subscriber base. Thus, there is often less incentive for companies to to spread costs over a larger subscriber base. Thus, there is often less incentive for companies to
invest in broadband in rural areas than in urban areas. An additional added cost for remote areas invest in broadband in rural areas than in urban areas. An additional added cost for remote areas
can be the expense of “backhaul” (e.g., the “middle mile”). Backhaul refers to the installation of a can be the expense of “backhaul” (e.g., the “middle mile”). Backhaul refers to the installation of a
dedicated line that transmits a signal to and from an internet backbone, which is typically located dedicated line that transmits a signal to and from an internet backbone, which is typically located
in or near an urban area. in or near an urban area.

11 For more information on rural broadband and broadband programs at the Rural Utilities Service, see CRS Report 11 For more information on rural broadband and broadband programs at the Rural Utilities Service, see CRS Report
RL33816, RL33816, Broadband Loan and Grant Programs in the USDA’s Rural Utilities Service, by Lennard G. Kruger and , by Lennard G. Kruger and
Alyssa R. Casey. Alyssa R. Casey.
12 Federal Communications Commission, 12 Federal Communications Commission, ~~2020~~2021 Broadband Deployment Report, , ~~April 24, 2020~~January 19, 2021, p. 11, available at , p. 11, available at
https://docs.fcc.gov/public/attachments/FCC-https://docs.fcc.gov/public/attachments/FCC-~~20-50A1~~21-18A1.pdf..pdf.
13 Ibid., 13 Ibid., ~~pp. 4-5~~p. 4. .
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COVID-19 and the Digital Divide
The Coronavirus Disease 2019 (COVID-19) pandemic compelled many federal, local, and state The Coronavirus Disease 2019 (COVID-19) pandemic compelled many federal, local, and state
governments, in addition to large and small businesses, to implement policies for remote working governments, in addition to large and small businesses, to implement policies for remote working
or distance learning options to help mitigate the spread of the virus. While some portion of the or distance learning options to help mitigate the spread of the virus. While some portion of the
population had the option and the capability to shift activities online, others did not, further population had the option and the capability to shift activities online, others did not, further
revealing discrepancies in broadband access. revealing discrepancies in broadband access.
As an example, in spring 2020 the COVID-19 pandemic drove nearly 125,000 schools in the As an example, in spring 2020 the COVID-19 pandemic drove nearly 125,000 schools in the
United States to close their doors—tasking 55 million teachers and students with quickly adapting United States to close their doors—tasking 55 million teachers and students with quickly adapting
to distance learning in the final weeks of the school year.14 According to the Pew Research to distance learning in the final weeks of the school year.14 According to the Pew Research
Center’s April 7-12, 2020, survey of U.S. adults, some parents reported worries about how their Center’s April 7-12, 2020, survey of U.S. adults, some parents reported worries about how their
children would be able to complete their schoolwork from home. One in five of the surveyed children would be able to complete their schoolwork from home. One in five of the surveyed
parents said it was at least somewhat likely their children would not be able to complete their parents said it was at least somewhat likely their children would not be able to complete their
schoolwork because they did not have access to a computer at home (21%) or would have to use schoolwork because they did not have access to a computer at home (21%) or would have to use
public Wi-Fi to finish their schoolwork because there was not a reliable internet connection at public Wi-Fi to finish their schoolwork because there was not a reliable internet connection at
home (22%).15 home (22%).15
The divide between students that have access to adequate broadband at home and those that do The divide between students that have access to adequate broadband at home and those that do
not is known as the Homework Gap. As many schools shifted classes to online instruction at not is known as the Homework Gap. As many schools shifted classes to online instruction at
home, some have experienced challenges due in part to the varying levels of access to broadband. home, some have experienced challenges due in part to the varying levels of access to broadband.
For instance, as instruction moved online in the Saranac Central, NY, school district, some For instance, as instruction moved online in the Saranac Central, NY, school district, some
teachers and students did not have adequate internet access at home in the mountainous teachers and students did not have adequate internet access at home in the mountainous
Adirondack region. As a result, some teachers and students accessed wireless networks from Adirondack region. As a result, some teachers and students accessed wireless networks from
public library parking lots.16 Additionally, some schools may have the resources to lend devices, public library parking lots.16 Additionally, some schools may have the resources to lend devices,
such as laptops or tablets, along with hotspots, to provide broadband to students; but others may such as laptops or tablets, along with hotspots, to provide broadband to students; but others may
not—which is likely to place those students at a disadvantage to their peers who have not—which is likely to place those students at a disadvantage to their peers who have
connectivity. connectivity.
Congress enacted the Coronavirus Aid, Relief, and Economic Security Act (CARES Act) (P.L. Congress enacted the Coronavirus Aid, Relief, and Economic Security Act (CARES Act) (P.L.
116-136) to provide additional funding to help address concerns that arose from the pandemic. 116-136) to provide additional funding to help address concerns that arose from the pandemic.
Included among the provisions in the CARES Act are those that attempted to address Included among the provisions in the CARES Act are those that attempted to address
discrepancies in broadband access that were magnified by social distancing requirements enacted discrepancies in broadband access that were magnified by social distancing requirements enacted
due to the pandemic. For example, the RUS was given $25 million for the Distance Learning and due to the pandemic. For example, the RUS was given $25 million for the Distance Learning and
Telemedicine (DLT) Program and $100 million for grants under the ReConnect broadband pilot Telemedicine (DLT) Program and $100 million for grants under the ReConnect broadband pilot
program.17 program.17
~~The FCC has taken a number of actions to help meet the broadband and telecommunications~~
~~connectivity needs exacerbated by the COVID-19 pandemic. The FCC has, to a large extent,~~
~~turned to its four Universal Service Fund programs to address the nation’s growing connectivity~~On December 27, 2020, Congress enacted the Consolidated Appropriations Act, 2021 (P.L. 116-260), which includes provisions to increase broadband availability and accessibility for underserved areas and populations of the United States.18

14 NCTA—The Internet and Television Association, “U.S. Cable Industry Announces New ‘K-12 Bridge to 14 NCTA—The Internet and Television Association, “U.S. Cable Industry Announces New ‘K-12 Bridge to
Broadband’ Initiative to Help Connect Students to Broadband for Remote and Hybrid Learning,” press release, Broadband’ Initiative to Help Connect Students to Broadband for Remote and Hybrid Learning,” press release,
September 10, 2020, available at https://www.ncta.com/media/media-room/k12bridgetobroadband. September 10, 2020, available at https://www.ncta.com/media/media-room/k12bridgetobroadband.
15 Emily A. Vogels, 15 Emily A. Vogels, 59% of U.S. Parents with Lower Incomes Say Their Child May Face Digital Obstacles in
Schoolwork, Pew Research Center, September 10, 2020, available at https://www.pewresearch.org/fact-tank/2020/09/, Pew Research Center, September 10, 2020, available at https://www.pewresearch.org/fact-tank/2020/09/
10/59-of-u-s-parents-with-lower-incomes-say-their-child-may-face-digital-obstacles-in-schoolwork/. 10/59-of-u-s-parents-with-lower-incomes-say-their-child-may-face-digital-obstacles-in-schoolwork/.
16 Elaine S. Povich, 16 Elaine S. Povich, Virtual Learning Means Unequal Learning, Pew Charitable Trusts, July 29, 2020, available at , Pew Charitable Trusts, July 29, 2020, available at
https://www.pewtrusts.org/en/research-and-analysis/blogs/stateline/2020/07/29/virtual-learning-means-unequal-https://www.pewtrusts.org/en/research-and-analysis/blogs/stateline/2020/07/29/virtual-learning-means-unequal-
learning. learning.
17 See CRS Insight IN11391, 17 See CRS Insight IN11391, USDA Rural Development and COVID-19: Supplemental Funding and Agency Actions, ,
by Alyssa R. Casey. by Alyssa R. Casey.
18 For more information see CRS Report R46701, The Consolidated Appropriations Act, 2021 Broadband Provisions: Congressional Research Service Congressional Research Service

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link to page 17 link to page 17 The Digital Divide: What Is It, Where Is It, and Federal Assistance Programs

~~needs.18~~The FCC has taken a number of actions to help meet the broadband and telecommunications connectivity needs exacerbated by the COVID-19 pandemic. The FCC has, to a large extent, turned to its four Universal Service Fund programs to address the nation’s growing connectivity needs.19 Initiatives taken include increasing program funding levels, temporarily lifting or Initiatives taken include increasing program funding levels, temporarily lifting or
suspending program recertification and reverification rules, waving gift rules, and enacting suspending program recertification and reverification rules, waving gift rules, and enacting
temporary licensing waivers, among others.temporary licensing waivers, among others.1920
Broadband Access and the Federal Role
Section 706 of the Telecommunications Act of 1996
Section 706(a) of the Telecommunications Act of 1996 (P.L. 104-104) directs the FCC to Section 706(a) of the Telecommunications Act of 1996 (P.L. 104-104) directs the FCC to
encourage the deployment on a reasonable and timely basis of advanced telecommunications encourage the deployment on a reasonable and timely basis of advanced telecommunications
capability to all Americans.capability to all Americans.2021 Section 706(b) is the follow-up to that directive and requires the Section 706(b) is the follow-up to that directive and requires the
FCC to regularly initiate an inquiry assessing the availability of broadband to all Americans and FCC to regularly initiate an inquiry assessing the availability of broadband to all Americans and
to determine whether broadband “is being deployed to all Americans in a reasonable and timely to determine whether broadband “is being deployed to all Americans in a reasonable and timely
fashion.” If the determination is negative, the act directs the FCC to “take immediate action to fashion.” If the determination is negative, the act directs the FCC to “take immediate action to
accelerate deployment of such capability by removing barriers to infrastructure investment and by accelerate deployment of such capability by removing barriers to infrastructure investment and by
promoting competition in the telecommunications market.” promoting competition in the telecommunications market.”
Since 1999, the FCC has issued Since 1999, the FCC has issued 1314 reports on Section 706, each providing a snapshot and reports on Section 706, each providing a snapshot and
assessment of broadband deployment.assessment of broadband deployment.2122 To help establish whether broadband is being deployed in To help establish whether broadband is being deployed in
“a reasonable and timely fashion,” the FCC has set a minimum broadband speed that essentially “a reasonable and timely fashion,” the FCC has set a minimum broadband speed that essentially
serves as the benchmark the FCC uses to define what it considers broadband service for the serves as the benchmark the FCC uses to define what it considers broadband service for the
purposes of its Section 706 determination. In 2015 the FCC, citing changing broadband usage purposes of its Section 706 determination. In 2015 the FCC, citing changing broadband usage
patterns and multiple devices using broadband within single households, raised its minimum patterns and multiple devices using broadband within single households, raised its minimum
fixed broadband benchmark speed from 4 Mbps (download)/1 Mbps (upload) to 25 Mbps/3 fixed broadband benchmark speed from 4 Mbps (download)/1 Mbps (upload) to 25 Mbps/3
Mbps. The designation of minimum benchmark speeds for fixed broadband, and how mobile Mbps. The designation of minimum benchmark speeds for fixed broadband, and how mobile
broadband speeds should be benchmarked and factored into an overall determination of broadband speeds should be benchmarked and factored into an overall determination of
broadband deployment, has proven controversial.broadband deployment, has proven controversial.2223
On On ~~April 20, 2020, the FCC adopted and~~ January 19, 2021, the FCC released its latest 706 report, the released its latest 706 report, the ~~2020~~2021 Broadband Broadband
Deployment Report.Deployment Report.2324 In the In the ~~2020~~2021 report, the FCC concluded that the speed benchmark of 25/3 report, the FCC concluded that the speed benchmark of 25/3
~~Mbps continued to be the appropriate measure to assess whether fixed services provide advanced~~
~~telecommunications capability. Moreover, for a third consecutive year, the FCC concluded that~~
~~advanced telecommunications capability is being deployed to all Americans in a reasonable and~~
~~timely fashion. This determination was based on evaluating progress—comparing deployment in~~

18Mbps In Brief, coordinated by Colby Leigh Rachfal and CRS Insight IN11612, The Emergency Broadband Benefit: Implementation and Future Policy Directions, by Brian E. Humphreys. 19 See the section entitled See the section entitled “The Universal Service Fund Programs” below for a discussion of the four USF programs. below for a discussion of the four USF programs.
1920 For additional information on actions taken by the FCC, including those under the USF programs, see Universal For additional information on actions taken by the FCC, including those under the USF programs, see Universal
Service Administrative Company, Service Administrative Company, COVID-19 Response, https://www.usac.org/about/usacs-covid-19-response/; Federal , https://www.usac.org/about/usacs-covid-19-response/; Federal
Communications Commission, Communications Commission, Keep Americans Connected, https://www.fcc.gov/keep-americans-connected; and CRS , https://www.fcc.gov/keep-americans-connected; and CRS
In Focus IF11520, In Focus IF11520, The Universal Service Fund and COVID-19: The FCC and Industry Response, by Angele A. Gilroy. , by Angele A. Gilroy.
2021 Section 706(d)(1) defines “advanced telecommunications capability” as “high-speed, switched, broadband Section 706(d)(1) defines “advanced telecommunications capability” as “high-speed, switched, broadband
telecommunications capability that enables users to originate and receive high-quality voice, data, graphics, and video telecommunications capability that enables users to originate and receive high-quality voice, data, graphics, and video
telecommunications using any technology.” telecommunications using any technology.”
2122 An archive of notices of inquiry and released broadband progress reports is available at https://www.fcc.gov/general/ An archive of notices of inquiry and released broadband progress reports is available at https://www.fcc.gov/general/
archive-released-broadband-progress-notices-inquiry. archive-released-broadband-progress-notices-inquiry.
2223 See CRS Report R45039, See CRS Report R45039, Defining Broadband: Minimum Threshold Speeds and Broadband Policy, by Lennard G. , by Lennard G.
Kruger. Kruger.
2324 Federal Communications Commission, Federal Communications Commission, ~~2020~~2021 Broadband Deployment Report, , ~~April 20, 2020~~January 19, 2021, available at , available at
https://docs.fcc.gov/public/attachments/FCC-https://docs.fcc.gov/public/attachments/FCC-~~20-50A1~~21-18A1.pdf..pdf.
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~~the present year to deployment in previous years. According to the 2020 report, as the~~
~~Commission has previously found:~~
~~[A]nalyzing progress to determine whether deployment is occurring in a reasonable and~~
~~timely fashion is the approach that is most consistent with the language of section 706, as~~
~~the analysis of such progress enables the Commission to determine whether advanced~~
~~telecommunications capability “is being deployed” in the manner that section 706 requires.~~
~~The use of the present progressive tense—“is being deployed”—as well as the language~~
~~requiring an evaluation of whether that deployment is “reasonable and timely” indicates~~
~~that Congress intended that the~~ continued to be the appropriate measure to assess whether fixed services provide advanced telecommunications capability. Moreover, for a third consecutive year, the FCC concluded that advanced telecommunications capability is being deployed to all Americans in a reasonable and timely basis. This determination was based on evaluating progress—comparing deployment in the present year to deployment in previous years. According to the 2021 report, as the Commission has previously found [A] progress-based approach ... is most consistent with the language of section 706—and enables the Commission to determine whether advanced telecommunications capability “is being deployed” in the manner that section 706 requires.... Congress intended that the Commission evaluate the current state of deployment to all Americans; it did not ask us to determine whether each and every American is served at this moment.25 The latest 706 determination was released a day before the change in Administration~~Commission evaluate the current state of deployment to all~~
~~Americans, not a rigid requirement that each and every American be served at this~~
~~moment.24~~
~~The latest 706 determination was approved by the three Republican FCC commissioners, with the~~
~~remaining two Democratic commissioners dissenting~~. According to FCC Commissioner . According to FCC Commissioner
~~Rosenworcel~~Starks’s dissent’s dissent:
~~This report is baffling. We are in the middle of a pandemic. So much of modern life has~~
~~migrated online. As a result, it has become painfully clear there are too many people in the~~
~~United States who lack access to broadband. In fact, if this crisis has revealed anything, it~~
~~is the hard truth that the digital divide is very real and very big. But you’ll find no evidence~~
~~acknowledging that in today’s Broadband Progress Report from the Federal~~
~~Communications Commission. Instead, you’ll find a glowing assessment that all is well.~~
~~According to this rosy report the nation’s broadband efforts are all good. They are~~
~~proceeding in a reasonable and timely fashion and they are reaching all Americans. This is~~
~~just not right.25~~ Over the last two years, I have decried the unwarranted victory laps these reports seem to spawn. Now—as tens of millions of Americans find themselves unable to access online school, work, and healthcare during the pandemic—patting ourselves on the back is particularly unseemly. My views on the flaws in the data and analysis underlying this Report are well documented, and I will not repeat them here. But I am compelled to note that this Report should not have been released at all. After the election in November, congressional leaders wrote to Chairman Pai to demand that the Commission stop work on all partisan and controversial items during the presidential transition. This item is both.26
On August 19, 2020, the Commission released the Sixteenth Broadband Deployment Report On August 19, 2020, the Commission released the Sixteenth Broadband Deployment Report
Notice of Inquiry (Notice), inviting all interested parties to submit comments and information to Notice of Inquiry (Notice), inviting all interested parties to submit comments and information to
guide the FCC’s analysis in the 2021 Broadband Deployment Report.guide the FCC’s analysis in the 2021 Broadband Deployment Report.2627 The comment and reply The comment and reply
periods are closed. periods are closed.
Broadband Access Data and Mapping
Improving the quality of broadband deployment data has become an issue of congressional Improving the quality of broadband deployment data has become an issue of congressional
interest, as policymakers recognize that more accurate broadband availability maps could help interest, as policymakers recognize that more accurate broadband availability maps could help
ensure that federal broadband programs target unserved areas of the country that are most in need ensure that federal broadband programs target unserved areas of the country that are most in need
of assistance. Since the initial deployment of broadband in the late 1990s, two federal agencies of assistance. Since the initial deployment of broadband in the late 1990s, two federal agencies
have implemented broadband availability data collection and mapping initiatives: NTIA and the have implemented broadband availability data collection and mapping initiatives: NTIA and the
FCC. FCC.
National Telecommunications and Information Administration
In 2008, the Broadband Data Improvement Act (P.L. 110-385) directed the Department of In 2008, the Broadband Data Improvement Act (P.L. 110-385) directed the Department of
Commerce to establish a state broadband data and development grant program, and to use the Commerce to establish a state broadband data and development grant program, and to use the
data gathered by the states to create a broadband inventory map. The NTIA’s State Broadband data gathered by the states to create a broadband inventory map. The NTIA’s State Broadband
Initiative (SBI),Initiative (SBI),2728 which was funded by the American Recovery and Reinvestment Act of 2009 which was funded by the American Recovery and Reinvestment Act of 2009
(ARRA, P.L. 111-5), was used to develop the first National Broadband Map, which was launched
2425 Ibid., p. 4. Ibid., p. 4.
2526 Ibid., p. Ibid., p. ~~52.~~
26290. 27 Federal Communications Commission, Federal Communications Commission, Sixteenth Broadband Deployment Report Notice of Inquiry, August 19, 2020, , August 19, 2020,
available at https://docs.fcc.gov/public/attachments/FCC-20-112A1.pdf. available at https://docs.fcc.gov/public/attachments/FCC-20-112A1.pdf.
2728 P.L. 110-385, §106. P.L. 110-385, §106.
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~~(ARRA, P.L. 111-5), was used to develop the first National Broadband Map, which was launched~~
in 2011. In 2015, the SBI program ended, collecting its last data as of June 30, 2014. The in 2011. In 2015, the SBI program ended, collecting its last data as of June 30, 2014. The
National Broadband Map was decommissioned on December 21, 2018, due to the age of the data. National Broadband Map was decommissioned on December 21, 2018, due to the age of the data.
Mapping responsibility shifted to the FCC.Mapping responsibility shifted to the FCC.2829
The Consolidated Appropriations Act, 2018 (P.L. 115-141) appropriated $7.5 million to NTIA to The Consolidated Appropriations Act, 2018 (P.L. 115-141) appropriated $7.5 million to NTIA to
develop a National Broadband Availability Map (NBAM) to determine which parts of the country develop a National Broadband Availability Map (NBAM) to determine which parts of the country
remain unconnected. The Consolidated Appropriations Act, 2019 (P.L. 116-6), provided an remain unconnected. The Consolidated Appropriations Act, 2019 (P.L. 116-6), provided an
additional $7.5 million to NTIA to maintain the NBAM. In October 2019, NTIA released a pilot additional $7.5 million to NTIA to maintain the NBAM. In October 2019, NTIA released a pilot
version of the NBAM. The map is made available exclusively to state and federal partners, as it version of the NBAM. The map is made available exclusively to state and federal partners, as it
includes non-public data that may be business sensitive or have licensing restrictions.includes non-public data that may be business sensitive or have licensing restrictions.2930
Federal Communications Commission
The FCC requires fixed broadband providers to submit data twice a year on where they provide The FCC requires fixed broadband providers to submit data twice a year on where they provide
broadband service. The FCC uses that data to populate and update the current Fixed Deployment broadband service. The FCC uses that data to populate and update the current Fixed Deployment
Broadband Map.Broadband Map.3031 One of the major criticisms of the FCC’s Fixed Deployment Broadband Map One of the major criticisms of the FCC’s Fixed Deployment Broadband Map
is that broadband availability can be overstated because fixed broadband deployment data are is that broadband availability can be overstated because fixed broadband deployment data are
collected at the census block level.collected at the census block level.3132 A census block is considered served if there is broadband A census block is considered served if there is broadband
service (or the strong potential of broadband service) to at least one location within the block. service (or the strong potential of broadband service) to at least one location within the block.
This may be especially problematic in rural areas, which have large census blocks and may be This may be especially problematic in rural areas, which have large census blocks and may be
considered served if, for example, a single neighborhood in that large census block has broadband considered served if, for example, a single neighborhood in that large census block has broadband
service. service.
Some Members of the 116th Congress have questioned the accuracy and completeness of the data Some Members of the 116th Congress have questioned the accuracy and completeness of the data
used by the FCC to develop the Fixed Deployment Broadband Map and called for the FCC to used by the FCC to develop the Fixed Deployment Broadband Map and called for the FCC to
improve its broadband data collection and reporting initiative.improve its broadband data collection and reporting initiative.3233 On August 1, 2019, the FCC On August 1, 2019, the FCC
adopted a Report and Order introducing a new process, called the Digital Opportunity Data adopted a Report and Order introducing a new process, called the Digital Opportunity Data
Collection (DODC), for collecting fixed broadband data.Collection (DODC), for collecting fixed broadband data.3334
Broadband Deployment Accuracy and Technology Availability Act
On March 23, 2020, the Broadband Deployment Accuracy and Technological Availability Act On March 23, 2020, the Broadband Deployment Accuracy and Technological Availability Act
(Broadband DATA Act) was signed into law (P.L. 116-130). This law requires the FCC to change (Broadband DATA Act) was signed into law (P.L. 116-130). This law requires the FCC to change
the way it collects, verifies, and reports broadband data. Specifically, it directs the FCC tothe way it collects, verifies, and reports broadband data. Specifically, it directs the FCC to:  Collect and disseminate granular broadband service availability data from wired, fixed-wireless, satellite, and mobile broadband providers. To do this, the FCC is

2829 Rich Mansfield, “Decommissioning of the National Broadband Map and Its APIs,” FCC, December 7, 2018, Rich Mansfield, “Decommissioning of the National Broadband Map and Its APIs,” FCC, December 7, 2018,
https://www.fcc.gov/news-events/blog/2018/12/07/decommissioning-national-broadband-map-and-its-apis. https://www.fcc.gov/news-events/blog/2018/12/07/decommissioning-national-broadband-map-and-its-apis.
2930 Andy Spurgeon, “NTIA Releases New Broadband Availability Map Pilot for Policymakers,” National Andy Spurgeon, “NTIA Releases New Broadband Availability Map Pilot for Policymakers,” National
Telecommunications and Information Administration, October 2, 2019, https://www.ntia.doc.gov/blog/2019/ntia-Telecommunications and Information Administration, October 2, 2019, https://www.ntia.doc.gov/blog/2019/ntia-
releases-new-broadband-availability-map-pilot-policymakers. releases-new-broadband-availability-map-pilot-policymakers.
3031 For more information on broadband data and mapping, see CRS Report R45962, For more information on broadband data and mapping, see CRS Report R45962, Broadband Data and Mapping:
Background and Issues for the 116th Congress, by Colby Leigh Rachfal. , by Colby Leigh Rachfal.
3132 Next Century Cities, “Discussion Guidelines—Broadband Mapping,” February 28, 2019, available at Next Century Cities, “Discussion Guidelines—Broadband Mapping,” February 28, 2019, available at
https://nextcenturycities.org/discussion-guidelines-broadband-mapping/. https://nextcenturycities.org/discussion-guidelines-broadband-mapping/.
3233 Letter from Senators Shelley Moore Capito, Jerry Moran, Brian Schatz, and Jon Tester, to The Honorable Ajit Pai, Letter from Senators Shelley Moore Capito, Jerry Moran, Brian Schatz, and Jon Tester, to The Honorable Ajit Pai,
Federal Communications Commission Chairman, July 11, 2019, https://www.tester.senate.gov/files/Letters/Federal Communications Commission Chairman, July 11, 2019, https://www.tester.senate.gov/files/Letters/
071019_Letter%20to%20FCC%20on%20Broadband%20Mapping%20and%20Shapefiles.pdf. 071019_Letter%20to%20FCC%20on%20Broadband%20Mapping%20and%20Shapefiles.pdf.
3334 Federal Communications Commission, Federal Communications Commission, In the Matter of Establishing the Digital Opportunity Data Collection, Report , Report
and Order and Second Further Notice of Proposed Rulemaking, August 1, 2019, https://docs.fcc.gov/public/and Order and Second Further Notice of Proposed Rulemaking, August 1, 2019, https://docs.fcc.gov/public/
attachments/FCC-19-79A1.pdf. attachments/FCC-19-79A1.pdf.
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~~ Collect and disseminate granular broadband service availability data from wired,~~
~~fixed-wireless, satellite, and mobile broadband providers. To do this, the FCC is~~
required to establish the Broadband Serviceable Location Fabric (a dataset of required to establish the Broadband Serviceable Location Fabric (a dataset of
geocoded information for all broadband service locations, atop which broadband geocoded information for all broadband service locations, atop which broadband
maps are overlaid) as the vehicle for reporting broadband service availability maps are overlaid) as the vehicle for reporting broadband service availability
data. data.
 Put forth specified requirements for service availability data collected from  Put forth specified requirements for service availability data collected from
broadband providers, and create a challenge process to enable the submission of broadband providers, and create a challenge process to enable the submission of
independent data challenging the accuracy of FCC broadband maps. independent data challenging the accuracy of FCC broadband maps.
 Conduct regular audits of information submitted by telecommunications  Conduct regular audits of information submitted by telecommunications
providers, and develop a process whereby entities or individuals may submit providers, and develop a process whereby entities or individuals may submit
information about the deployment and availability of broadband service to verify information about the deployment and availability of broadband service to verify
and supplement information submitted by providers. and supplement information submitted by providers.
 Provide data collection and submission assistance to Indian tribes; small service  Provide data collection and submission assistance to Indian tribes; small service
providers; consumers; and state, local, and tribal governments. providers; consumers; and state, local, and tribal governments.
~~To implement the provisions of the Broadband DATA Act, the FCC has asked that Congress~~
~~appropriate funding specifically for that purpose. In testimony before a June 24, 2020, hearing in~~
~~the Senate Committee on Commerce, Science, and Transportation on FCC oversight, FCC~~
~~Chairman Ajit Pai stated that the Broadband DATA Act prohibits the FCC from tapping the~~
~~Universal Service Administrative Company34 for the new mapping effort, and the FCC lacks the~~
~~$65 million it will need to implement the act’s requirements.35 The House passed the following~~
~~bills that would provide funding to implement the Broadband DATA Act:~~
~~ Division G Title I of the Moving Forward Act (H.R. 2), introduced on June 11,~~
~~2020, included $24,000,000;~~
~~ Division D Titles V and IX of Defense, Commerce, Justice, Science, Energy and~~
~~Water Development, Financial Services and General Government, Labor, Health~~
~~and Human Services, Education, Transportation, Housing, and Urban~~
~~Development Appropriations Act, 2021 (H.R. 7617), introduced on July 16,~~
~~2020, included $73,000,000; and~~
~~ Division A Title V of The Heroes Act (H.R. 8406), introduced on September 29,~~
~~2020, included $24,000,000.~~
The Consolidated Appropriations Act, 2021, P.L. 116-260, appropriated $98 million to implement the Broadband DATA Act. On January 19, 2021, the FCC released the DODC Third Report and Order, which is the next step in collecting more precise broadband mapping data and implementing the Broadband DATA Act.35 Additionally, on February 17, 2021, the FCC announced the establishment of a Task Force dedicated to implementing long-overdue improvements to the agency’s broadband data and mapping tools.36 Federal Broadband Programs
Federal support for broadband deployment occurs primarily through the USF programs Federal support for broadband deployment occurs primarily through the USF programs
administered by the FCC, and the broadband and telecommunications programs of the RUS. administered by the FCC, and the broadband and telecommunications programs of the RUS.
Historically, the NTIA provided funding for broadband deployment under the American Recovery Historically, the NTIA provided funding for broadband deployment under the American Recovery
and Reinvestment Act of 2009 (P.L. 111-5)and Reinvestment Act of 2009 (P.L. 111-5).
and is to administer three broadband programs created in the Consolidated Appropriations Act, 2021 (P.L. 116-260).37 A number of other federal programs also provide subsidies to expand broadband. On January 21, A number of other federal programs also provide subsidies to expand broadband. On January 21,
2020, NTIA released an updated guide that provides summary and contact information for a 2020, NTIA released an updated guide that provides summary and contact information for a

~~34 The Universal Service Administrative Company was established in 1997 by the FCC to administer the Universal~~
~~Service Fund programs. See “The Universal Service Fund Programs.”~~
~~35 John Eggerton, Pai to Hill: FCC Will Vote on Broadband Mapping Item in July, Multichannel News, June 24, 2020,~~
~~available at https://www.multichannel.com/news/pai-to-hill-fcc-will-vote-on-broadband-mapping-item-in-july.~~
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~~variety of federal programs that may fund projects involving broadband infrastructure, adoption,~~
~~access, planning, or research.36~~
~~The Universal Service Concept and the FCC~~
~~Since its creation in 1934, the FCC has been tasked with “mak[ing] available, so far as possible,~~
~~to all the people of the United States ... a rapid, efficient, Nation-wide, and world-wide wire and~~
~~radio communications service with adequate facilities at reasonable charges.”37~~variety of federal programs that may fund projects involving broadband infrastructure, adoption, access, planning, or research.38 The Universal Service Concept and the FCC Since its creation in 1934, the FCC has been tasked with “mak[ing] available, so far as possible, to all the people of the United States ... a rapid, efficient, Nation-wide, and world-wide wire and 35 Federal Communications Commission, Third Report and Order , In the Matter of Establishing the Digital Opportunity Data Collection, January 19, 2021, https://docs.fcc.gov/public/attachments/FCC-21-20A1.pdf. 36 Federal Communications Commission, Acting Chairwoman Rosenworcel Establishes Broadband Data Task Force, News Release, February 17, 2021, available at https://docs.fcc.gov/public/attachments/DOC-370049A1.pdf. 37 National Telecommunications and Information Administration, Overview of Consolidated Appropriations Act, 2021, https://broadbandusa.ntia.doc.gov/ntia-common-content/overview-consolidated-appropriations-act-2021. 38 National Telecommunications and Information Administration, BroadbandUSA, Broadband Funding Guide, January 21, 2020, available at https://broadbandusa.ntia.doc.gov/sites/default/files/bbusa_federalfunding_all_200511.pdf. NTIA also provides an online broadband federal funding search tool, available at https://broadbandusa.ntia.doc.gov/new-fund-search. Congressional Research Service 11 The Digital Divide: What Is It, Where Is It, and Federal Assistance Programs radio communications service with adequate facilities at reasonable charges.”39 This mandate led This mandate led
to the development of what has come to be known as the universal service concept. to the development of what has come to be known as the universal service concept.
The universal service concept, as originally designed in the Communications Act of 1934, called The universal service concept, as originally designed in the Communications Act of 1934, called
for the establishment of policies to ensure that telecommunications services are available to all for the establishment of policies to ensure that telecommunications services are available to all
Americans, including those in rural, insular, and high cost areas, by ensuring that rates remain Americans, including those in rural, insular, and high cost areas, by ensuring that rates remain
affordable. Over the years this concept has evolved and expanded, fostering the development of affordable. Over the years this concept has evolved and expanded, fostering the development of
various FCC policies and programs that target both providers of and subscribers to various FCC policies and programs that target both providers of and subscribers to
telecommunications and, more recently, broadband services. The Telecommunications Act of telecommunications and, more recently, broadband services. The Telecommunications Act of
1996 (P.L. 104-104) codified the long-standing commitment by U.S. policymakers to ensure 1996 (P.L. 104-104) codified the long-standing commitment by U.S. policymakers to ensure
universal service in the provision of telecommunications services, and directed the FCC to universal service in the provision of telecommunications services, and directed the FCC to
establish a federal USF to meet the expanded objectives and principles contained in the act. establish a federal USF to meet the expanded objectives and principles contained in the act.
Established in 1997, the USF is administered by the Universal Service Administrative Company Established in 1997, the USF is administered by the Universal Service Administrative Company
(USAC), an independent not-for-profit organization, under the direction of the FCC. (USAC), an independent not-for-profit organization, under the direction of the FCC.
Funding for the USF comes from mandatory fees assessed on telecommunications carriers that Funding for the USF comes from mandatory fees assessed on telecommunications carriers that
provide interstate service and certain other providers of telecommunications services. The fees are provide interstate service and certain other providers of telecommunications services. The fees are
based on a percentage of the carriers’ end-user interstate and international telecommunications based on a percentage of the carriers’ end-user interstate and international telecommunications
revenues; the USF receives no federal revenues. Carriers may, but are not required to, pass these revenues; the USF receives no federal revenues. Carriers may, but are not required to, pass these
charges directly to their subscribers. The USAC disbursed approximately $8.3 billion from the charges directly to their subscribers. The USAC disbursed approximately $8.3 billion from the
USF in 2019, with all 50 states, the District of Columbia, and all territories receiving some USF in 2019, with all 50 states, the District of Columbia, and all territories receiving some
benefit.benefit.3840
Universal Service and Broadband
One of the major policy debates surrounding universal service in the last decade was whether One of the major policy debates surrounding universal service in the last decade was whether
access to advanced telecommunications services (i.e., broadband) should be incorporated into access to advanced telecommunications services (i.e., broadband) should be incorporated into
universal service objectives. The 1996 Telecommunications Act authorized the federal-state Joint universal service objectives. The 1996 Telecommunications Act authorized the federal-state Joint
~~Board39~~Board41 and tasked it with defining the services that should be included in the definition of and tasked it with defining the services that should be included in the definition of
services to be eligible for universal service support. The Joint Board’s recommendation, which services to be eligible for universal service support. The Joint Board’s recommendation, which
was adopted by the FCC in May 1997, largely limited the definition to voice telecommunications was adopted by the FCC in May 1997, largely limited the definition to voice telecommunications
services. Some policymakers expressed concern that the FCC-adopted definition was too limited services. Some policymakers expressed concern that the FCC-adopted definition was too limited
and did not take into account the importance and growing acceptance of advanced services such and did not take into account the importance and growing acceptance of advanced services such

~~36 National Telecommunications and Information Administration, BroadbandUSA, Broadband Funding Guide, January~~
~~21, 2020, available at https://broadbandusa.ntia.doc.gov/sites/default/files/bbusa_federalfunding_all_200511.pdf. NTIA~~
~~also provides an online broadband federal funding search tool, available at https://broadbandusa.ntia.doc.gov/new-~~
~~fund-search.~~
~~37 Communications Act of 1934, as amended, Title I §1 (47 U.S.C. 151).~~
38as broadband and internet access. They pointed to a number of provisions contained in the universal service principles of the 1996 act to support their claim. Specifically, the universal service principle contained in Section 254(b)(2) states, “Access to advanced telecommunications services should be provided to all regions of the Nation.” The subsequent principle (b)(3) calls for consumers in all regions of the nation, including “low-income” and those in “rural, insular, and high cost areas,” to have access to telecommunications and information services including “advanced services” at a comparable level and a comparable rate charged for similar services in urban areas. Such provisions, they state, dictate that the FCC expand its universal service definition. 39 Communications Act of 1934, as amended, Title I §1 (47 U.S.C. 151). 40 Universal Service Administrative Company, Universal Service Administrative Company, 2019 Annual Report, p. 8. Total funding approved for disbursement for , p. 8. Total funding approved for disbursement for
the months of January-December 2019, available at https://www.usac.org/about/reports-orders/annual-report/. the months of January-December 2019, available at https://www.usac.org/about/reports-orders/annual-report/.
3941 In compliance with the 1996 Telecommunications Act (Section 254(a)(1)), the FCC, in March 1996, established a In compliance with the 1996 Telecommunications Act (Section 254(a)(1)), the FCC, in March 1996, established a
Federal-State Joint Board on Universal Service to make recommendations to implement the universal service Federal-State Joint Board on Universal Service to make recommendations to implement the universal service
provisions of the act. This Joint Board is composed of three FCC Commissioners, four State Utility Commissioners, provisions of the act. This Joint Board is composed of three FCC Commissioners, four State Utility Commissioners,
and a consumer advocate representative. and a consumer advocate representative.
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~~as broadband and internet access. They pointed to a number of provisions contained in the~~
~~universal service principles of the 1996 act to support their claim. Specifically, the universal~~
~~service principle contained in Section 254(b)(2) states, “Access to advanced telecommunications~~
~~services should be provided to all regions of the Nation.” The subsequent principle (b)(3) calls for~~
~~consumers in all regions of the nation, including “low-income” and those in “rural, insular, and~~
~~high cost areas,” to have access to telecommunications and information services including~~
~~“advanced services” at a comparable level and a comparable rate charged for similar services in~~
~~urban areas. Such provisions, they state, dictate that the FCC expand its universal service~~
~~definition.~~
The 1996 act does take into consideration the changing nature of the telecommunications sector The 1996 act does take into consideration the changing nature of the telecommunications sector
and allows, if future conditions warrant, for the modification of the universal service definition. and allows, if future conditions warrant, for the modification of the universal service definition.
Section 254(c) of the act states that “universal service is an evolving level of telecommunications Section 254(c) of the act states that “universal service is an evolving level of telecommunications
services” and that the FCC is tasked with “periodically” reevaluating this definition, “taking into services” and that the FCC is tasked with “periodically” reevaluating this definition, “taking into
account advances in telecommunications and information technologies and services.” account advances in telecommunications and information technologies and services.”
Furthermore, the Joint Board is specifically authorized to recommend “from time to time” to the Furthermore, the Joint Board is specifically authorized to recommend “from time to time” to the
FCC modifications in the definition of the services to be included for federal universal service FCC modifications in the definition of the services to be included for federal universal service
support. In November 2007, the Joint Board concluded such an inquiry and recommended that the support. In November 2007, the Joint Board concluded such an inquiry and recommended that the
FCC change the mix of services eligible for universal support. The Joint Board recommended, FCC change the mix of services eligible for universal support. The Joint Board recommended,
among other things, that “the universal availability of broadband Internet services” be included in among other things, that “the universal availability of broadband Internet services” be included in
the nation’s communications goals and hence be supported by federal universal service funds.the nation’s communications goals and hence be supported by federal universal service funds.4042
The ARRA called for the FCC to develop, and submit to Congress, a national broadband plan to The ARRA called for the FCC to develop, and submit to Congress, a national broadband plan to
ensure that every American has “access to broadband capability.”ensure that every American has “access to broadband capability.”4143 In its national broadband plan In its national broadband plan,
Connecting America: the National Broadband Plan, the FCC recommended that access to and , the FCC recommended that access to and
adoption of broadband be a national goal.adoption of broadband be a national goal.4244 Furthermore, the national broadband plan proposed Furthermore, the national broadband plan proposed
that the USF be restructured to become a vehicle to help reach this goal. In an October 2011 that the USF be restructured to become a vehicle to help reach this goal. In an October 2011
decision, the FCC adopted an Order that calls for the USF to be transformed, in stages, over a decision, the FCC adopted an Order that calls for the USF to be transformed, in stages, over a
multiyear period, from a mechanism to support voice telephone service to one that supports the multiyear period, from a mechanism to support voice telephone service to one that supports the
deployment, adoption, and utilization of both fixed and mobile broadband. This transformation deployment, adoption, and utilization of both fixed and mobile broadband. This transformation
includes the phase-out of the USF’s legacy High Cost Program and the creation of a new fund, includes the phase-out of the USF’s legacy High Cost Program and the creation of a new fund,
the Connect America Fund, to replace it, as well as an expansion and modification of the Schools the Connect America Fund, to replace it, as well as an expansion and modification of the Schools
and Libraries, Rural Health Care, and Low Income programs.and Libraries, Rural Health Care, and Low Income programs.4345
The Universal Service Fund Programs
As currently designed, the USF consists of four programs: the High Cost/Connect America Fund As currently designed, the USF consists of four programs: the High Cost/Connect America Fund
Program; the Schools and Libraries Program; the Rural Health Care Program; and the Low Program; the Schools and Libraries Program; the Rural Health Care Program; and the Low
Income (Lifeline) Program. While the overall purpose of each program is to help ensure the Income (Lifeline) Program. While the overall purpose of each program is to help ensure the
universal availability of telecommunications and broadband services, each program addresses specific aspects of that goal to fulfill the universal service mandate and help to close the digital divide. The High Cost/Connect America Fund Program Historically the High Cost Program provided support for eligible telecommunications carriers to help offset the higher-than-average costs of providing voice telephone service in rural, insular, or other high cost areas. This mechanism has been the largest USF program based on disbursements 42
40 The Joint Board recommended: (1) that the FCC expand the definition of those services that qualify for universal The Joint Board recommended: (1) that the FCC expand the definition of those services that qualify for universal
service support and (2) the nation’s communications goals include the universal availability of mobility services (i.e., service support and (2) the nation’s communications goals include the universal availability of mobility services (i.e.,
wireless), broadband internet services, and voice services at affordable and comparable rates for all rural and nonrural wireless), broadband internet services, and voice services at affordable and comparable rates for all rural and nonrural
areas. The recommendation is available at http://hraunfoss.fcc.gov/edocs_public/attachmatch/FCC-07j-4A1.pdf. areas. The recommendation is available at http://hraunfoss.fcc.gov/edocs_public/attachmatch/FCC-07j-4A1.pdf.
4143 American Recovery and Reinvestment Act of 2009, P.L. 111-5, Section 6001 (k)(2)(D). American Recovery and Reinvestment Act of 2009, P.L. 111-5, Section 6001 (k)(2)(D).
4244 Federal Communications Commission, Federal Communications Commission, Connecting America: The National Broadband Plan, March 16, 2010, , March 16, 2010,
available at https://transition.fcc.gov/national-broadband-plan/national-broadband-plan.pdf. For additional information available at https://transition.fcc.gov/national-broadband-plan/national-broadband-plan.pdf. For additional information
on the National Broadband Plan, see on the National Broadband Plan, see “The National Broadband Plan” below. below.
43 45 For a detailed discussion of this Order and USF transition, see For a detailed discussion of this Order and USF transition, see In the Matter of the Connect America Fund, et al., WC , WC
Docket No. 10-90 et al., Report and Order and Further Notice of Proposed Rulemaking, FCC 11-161, adopted October Docket No. 10-90 et al., Report and Order and Further Notice of Proposed Rulemaking, FCC 11-161, adopted October
27, 2011, and released November 18, 2011, available at http://hraunfoss.fcc.gov/edocs_public/attachmatch/FCC-11-27, 2011, and released November 18, 2011, available at http://hraunfoss.fcc.gov/edocs_public/attachmatch/FCC-11-
161A1.pdf. 161A1.pdf.
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~~universal availability of telecommunications and broadband services, each program addresses~~
~~specific aspects of that goal to fulfill the universal service mandate and help to close the digital~~
~~divide.~~
~~The High Cost/Connect America Fund Program~~
~~Historically the High Cost Program provided support for eligible telecommunications carriers to~~
~~help offset the higher-than-average costs of providing voice telephone service in rural, insular, or~~
~~other high cost areas. This mechanism has been the largest USF program based on disbursements~~
and has been particularly important to rural areas due to the lack of subscriber density often and has been particularly important to rural areas due to the lack of subscriber density often
combined with higher costs. The High Cost Program is undergoing a transition from one that combined with higher costs. The High Cost Program is undergoing a transition from one that
primarily supports voice communications to one that supports a broadband platform that enables primarily supports voice communications to one that supports a broadband platform that enables
multiple applications, including voice. The High Cost Program is being phased out in stages and multiple applications, including voice. The High Cost Program is being phased out in stages and
replaced by the Connect America Fund (CAF), which will support the provision of affordable replaced by the Connect America Fund (CAF), which will support the provision of affordable
voice and broadband services, both fixed and mobile, in high cost areas. The CAF is designed to voice and broadband services, both fixed and mobile, in high cost areas. The CAF is designed to
eventually replace all of the existing support mechanisms in the High Cost Program. According to eventually replace all of the existing support mechanisms in the High Cost Program. According to
data released by USAC, approximately $5.1 billion in funding was disbursed under the High Cost data released by USAC, approximately $5.1 billion in funding was disbursed under the High Cost
Program in 2019.Program in 2019.4446
Two new programs, the Rural Digital Opportunity Fund (RDOF) and the 5G Fund, have been Two new programs, the Rural Digital Opportunity Fund (RDOF) and the 5G Fund, have been
established as part of the CAF. The FCC, on January 30, 2020, adopted the Report and Order established as part of the CAF. The FCC, on January 30, 2020, adopted the Report and Order
establishing RDOF, a $20.4 billion fund to help subsidize broadband service to high-cost rural establishing RDOF, a $20.4 billion fund to help subsidize broadband service to high-cost rural
areas lacking fixed broadband. Through it, the FCC plans to commit to bringing high-speed fixed areas lacking fixed broadband. Through it, the FCC plans to commit to bringing high-speed fixed
broadband service to rural homes and small businesses in two phases. The RDOF Phase I Auction broadband service to rural homes and small businesses in two phases. The RDOF Phase I Auction
(Auction 904) is a reverse (Auction 904) is a reverse ~~auction45~~auction47 in which bidders in which bidders ~~will compete~~competed for up to $16 billion in for up to $16 billion in
support, over 10 years, to provide fixed broadband service to unserved high cost rural areas. The support, over 10 years, to provide fixed broadband service to unserved high cost rural areas. The
Phase I Auction commenced on October 29, 2020Phase I Auction commenced on October 29, 2020. and winning bidders were announced on December 7, 2020.48 The Phase II Auction is estimated to provide The Phase II Auction is estimated to provide
$4.4 billion in subsidies, plus unallocated funds from Phase I. This Phase II Auction will target $4.4 billion in subsidies, plus unallocated funds from Phase I. This Phase II Auction will target
partially served areas and areas not awarded in the Phase I auction.partially served areas and areas not awarded in the Phase I auction.4649 The FCC has not announced The FCC has not announced
a timeline for the Phase II auction. a timeline for the Phase II auction.
The FCC adopted, on October 27, 2020, a report and order (RO) establishing a 5G Fund to The FCC adopted, on October 27, 2020, a report and order (RO) establishing a 5G Fund to
support the deployment of 5G mobile wireless services for rural America. The RO is to distribute support the deployment of 5G mobile wireless services for rural America. The RO is to distribute
up to $9 billion over 10 years, through a two-phase reverse auction, to support the deployment of up to $9 billion over 10 years, through a two-phase reverse auction, to support the deployment of
5G wireless broadband connectivity in rural America.5G wireless broadband connectivity in rural America.4750 Eligible areas are to be determined based Eligible areas are to be determined based
upon data gathered through the FCC’s Digital Opportunity Data Collection Proceeding (see upon data gathered through the FCC’s Digital Opportunity Data Collection Proceeding (see
“Federal Communications Commission” section above). The 5G Fund builds upon an earlier section above). The 5G Fund builds upon an earlier
fund, the Mobility Fund. The Mobility Fund Phase I Auction (Auction 901), held September 27, fund, the Mobility Fund. The Mobility Fund Phase I Auction (Auction 901), held September 27,
2012, distributed $300 million through a reverse auction, to support the provision of 3G or better 2012, distributed $300 million through a reverse auction, to support the provision of 3G or better
mobile voice and broadband service to areas lacking such service.mobile voice and broadband service to areas lacking such service.4851 The Tribal Mobility Fund Phase I Auction (Auction 902), held February 25, 2014, distributed an additional $50 million to be used solely for Tribal lands.52 The 5G Fund is to replace a planned Mobility Fund Phase II, which would have provided $4.5 billion in support over 10 years to areas lacking 4G LTE service. ~~The Tribal Mobility Fund~~

4446 For additional information and data on this program, see Universal Service Administrative Company, For additional information and data on this program, see Universal Service Administrative Company, 2019 Annual
Report, pp. 8 and 11, available at https://www.usac.org/about/, pp. 8 and 11, available at https://www.usac.org/about/ reports-orders/annual-report/ and reports-orders/annual-report/ and
https:/www.usac.org/high-cost/. https:/www.usac.org/high-cost/.
4547 In a reverse auction, the lowest bid, all things being equal, wins the bid. In a reverse auction, the lowest bid, all things being equal, wins the bid.
4648 Federal Communications Commission, Rural Digital Opportunity Fund Phase I Auction (Auction 904) Closes; Winning Bidders Announced; FCC Form 683 Due January 29, 2021, December 7, 2020, available at https://www.fcc.gov/document/auction-904-winning-bidders. 49 For additional information on the Rural Digital Opportunity Fund, see https:/www.fcc.gov/auction/904 and CRS For additional information on the Rural Digital Opportunity Fund, see https:/www.fcc.gov/auction/904 and CRS
Report R46501, Report R46501, Rural Digital Opportunity Fund: Requirements and Selected Policy Issues, by Colby Leigh Rachfal. , by Colby Leigh Rachfal.
4750 For additional information on the 5G Fund, see Federal Communications Commission, “FCC Establishes a 5G Fund For additional information on the 5G Fund, see Federal Communications Commission, “FCC Establishes a 5G Fund
for Rural America,” available at https://www.fcc.gov/document/fcc-establishes-5g-fund-rural-america. for Rural America,” available at https://www.fcc.gov/document/fcc-establishes-5g-fund-rural-america.
4851 For additional information on Auction 901, see Federal Communications Commission, “Auction 901: Mobility Fund For additional information on Auction 901, see Federal Communications Commission, “Auction 901: Mobility Fund
Phase I,” available at https://www.fcc.gov/auction/901. Phase I,” available at https://www.fcc.gov/auction/901.
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~~Phase I Auction (Auction 902), held February 25, 2014, distributed an additional $50 million to~~
~~be used solely for Tribal lands.49 The 5G Fund is to replace a planned Mobility Fund Phase II,~~
~~which would have provided $4.5 billion in support over 10 years to areas lacking 4G LTE service.~~52 For additional information on Auction 902, see Federal Communications Commission, Auction 902: Tribal Mobility Fund Phase I, available at https://www.fcc.gov/auction/902. Congressional Research Service 14 The Digital Divide: What Is It, Where Is It, and Federal Assistance Programs
The Schools and Libraries and Rural Health Care Programs
Congress, through the 1996 act, not only codified but also expanded the concept of universal Congress, through the 1996 act, not only codified but also expanded the concept of universal
service to include, among other principles, that elementary and secondary schools and service to include, among other principles, that elementary and secondary schools and
classrooms, libraries, and rural health care providers should have access to telecommunications classrooms, libraries, and rural health care providers should have access to telecommunications
services for specific purposes at discounted rates. (See §§254(b)(6) and 254(h) of the 1996 services for specific purposes at discounted rates. (See §§254(b)(6) and 254(h) of the 1996
Telecommunications Act, 47 U.S.C. 254.) Implementation of these provisions resulted in the Telecommunications Act, 47 U.S.C. 254.) Implementation of these provisions resulted in the
establishment of the Schools and Libraries and Rural Health Care Programs. establishment of the Schools and Libraries and Rural Health Care Programs.
The Schools and Libraries (E-Rate) Program
Under universal service provisions contained in the 1996 act, elementary and secondary schools Under universal service provisions contained in the 1996 act, elementary and secondary schools
and classrooms and libraries are designated as beneficiaries of universal service discounts. and classrooms and libraries are designated as beneficiaries of universal service discounts.
Universal service principles detailed in Section 254(b)(6) state, “Elementary and secondary Universal service principles detailed in Section 254(b)(6) state, “Elementary and secondary
schools and classrooms ... and libraries should have access to advanced telecommunications schools and classrooms ... and libraries should have access to advanced telecommunications
services.” The act further requires in Section 254(h)(1)(B) that services within the definition of services.” The act further requires in Section 254(h)(1)(B) that services within the definition of
universal service be provided to elementary and secondary schools and libraries for education universal service be provided to elementary and secondary schools and libraries for education
purposes at discounts, that is, at “rates less than the amounts charged for similar services to other purposes at discounts, that is, at “rates less than the amounts charged for similar services to other
parties.” parties.”
The FCC established the Schools and Libraries Division within USAC to administer the Schools The FCC established the Schools and Libraries Division within USAC to administer the Schools
and Libraries or “E (education)-Rate” Program to comply with these provisions. Under this and Libraries or “E (education)-Rate” Program to comply with these provisions. Under this
program, eligible schools and program, eligible schools and ~~libraries50~~libraries53 receive discounts ranging from 20% to 90% for receive discounts ranging from 20% to 90% for
telecommunications services depending on the poverty level of the school’s (or school district’s) telecommunications services depending on the poverty level of the school’s (or school district’s)
population and its location in a high cost (i.e., rural) telecommunications area. Two categories of population and its location in a high cost (i.e., rural) telecommunications area. Two categories of
services are eligible for discounts: category one services (telecommunications, services are eligible for discounts: category one services (telecommunications,
telecommunications services, and internet access), and category two services that deliver internet telecommunications services, and internet access), and category two services that deliver internet
access within schools and libraries (internal connections, basic maintenance of internal access within schools and libraries (internal connections, basic maintenance of internal
connections, and managed internal broadband services). According to data released by USAC, connections, and managed internal broadband services). According to data released by USAC,
approximately $2 billion in funding was disbursed under the E-Rate Program in 2019.approximately $2 billion in funding was disbursed under the E-Rate Program in 2019.5154
The Rural Health Care Program
Section 254(h) of the 1996 act requires that public and nonprofit rural health care providers have Section 254(h) of the 1996 act requires that public and nonprofit rural health care providers have
access to telecommunications services necessary for the provision of health care services at rates access to telecommunications services necessary for the provision of health care services at rates
comparable to those paid for similar services in urban areas. Subsection 254(h)(1) further comparable to those paid for similar services in urban areas. Subsection 254(h)(1) further
specifies that “to the extent technically feasible and economically reasonable” health care specifies that “to the extent technically feasible and economically reasonable” health care
providers should have access to advanced telecommunications and information services. The providers should have access to advanced telecommunications and information services. The

~~49 For additional information on Auction 902, see Federal Communications Commission, Auction 902: Tribal Mobility~~
~~Fund Phase I, available at https://www.fcc.gov/auction/902.~~
50FCC established the Rural Health Care Division (RHCD) within USAC to administer the Rural Health Care (RHC) Program to comply with these provisions. The goal of the RHC Program is to improve the quality of health care for those living in rural areas by ensuring access to broadband and telecommunications services. Under FCC established rules, only public or nonprofit health care providers are eligible to receive funding.55 53 For a detailed definition of “school” and “library” for the purpose of eligibility requirements, see Universal Service For a detailed definition of “school” and “library” for the purpose of eligibility requirements, see Universal Service
Administrative Company, Administrative Company, School and Library Eligibility, available at https://www.usac.org/e-rate/applicant-process/, available at https://www.usac.org/e-rate/applicant-process/
before-you-begin/school-and-library-eligibility/. before-you-begin/school-and-library-eligibility/.
5154 For additional information and data on this program, see Universal Service Administrative Company, For additional information and data on this program, see Universal Service Administrative Company, 2019 Annual
Report, pp. 8 and 9, available at https://www.usac.org/about/reports-orders/annual-report/ and https://ww.usac.org/e-, pp. 8 and 9, available at https://www.usac.org/about/reports-orders/annual-report/ and https://ww.usac.org/e-
rate/. rate/.
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~~FCC established the Rural Health Care Division (RHCD) within USAC to administer the Rural~~
~~Health Care (RHC) Program to comply with these provisions. The goal of the RHC Program is to~~
~~improve the quality of health care for those living in rural areas by ensuring access to broadband~~
~~and telecommunications services. Under FCC established rules, only public or nonprofit health~~
~~care providers are eligible to receive funding.52~~55 The Rural Healthcare Connectivity Act of 2016, Title II (P.L. 114-182) added skilled nursing facilities to the list of health care providers eligible to receive RHC program support. This change became effective June 21, 2017. Congressional Research Service 15 The Digital Divide: What Is It, Where Is It, and Federal Assistance Programs
The RHC Program consists of two permanent subprograms—the Telecommunications Program The RHC Program consists of two permanent subprograms—the Telecommunications Program
and the Healthcare Connect Fund—and one pilot program, the Connected Care Pilot Program. and the Healthcare Connect Fund—and one pilot program, the Connected Care Pilot Program.
The Telecommunications Program, established in 1997, provides discounts for The Telecommunications Program, established in 1997, provides discounts for
telecommunications services to ensure that eligible rural health care providers pay no more than telecommunications services to ensure that eligible rural health care providers pay no more than
urban providers for telecommunications services. The primary use of the funding is to provide urban providers for telecommunications services. The primary use of the funding is to provide
reduced rates for voice and other telecommunications services necessary for the provision of reduced rates for voice and other telecommunications services necessary for the provision of
health care. health care.
In December 2012, the FCC created the Healthcare Connect Fund, In December 2012, the FCC created the Healthcare Connect Fund,5356 a program to expand health a program to expand health
care provider access to broadband, particularly in rural areas, and replace the previously care provider access to broadband, particularly in rural areas, and replace the previously
established Rural Health Care Pilot Program with a permanent program.established Rural Health Care Pilot Program with a permanent program.5457 The Healthcare The Healthcare
Connect Fund program supports high-capacity broadband connectivity and encourages the Connect Fund program supports high-capacity broadband connectivity and encourages the
development of state and regional networks. This program provides a 65% discount on eligible development of state and regional networks. This program provides a 65% discount on eligible
expenses related to broadband connectivity and is available to individual rural health care expenses related to broadband connectivity and is available to individual rural health care
providers and consortia. Consortia can include non-rural providers, but at least 50% of providers providers and consortia. Consortia can include non-rural providers, but at least 50% of providers
must be located in a rural area. According to data released by USAC, approximately $251 million must be located in a rural area. According to data released by USAC, approximately $251 million
was disbursed under the RHC Program in 2019.was disbursed under the RHC Program in 2019.5558
The Connected Care Pilot Program is a temporary program, established in April 2020, to The Connected Care Pilot Program is a temporary program, established in April 2020, to
distribute $100 million over three years to subsidize the cost of connected care services for select distribute $100 million over three years to subsidize the cost of connected care services for select
pilot projects. The program is limited to public and non-profit eligible healthcare providers pilot projects. The program is limited to public and non-profit eligible healthcare providers
located in rural or non-rural areas. The program is to emphasize support for low-income located in rural or non-rural areas. The program is to emphasize support for low-income
Americans and veterans and to provide a subsidy of 85% of the cost of eligible services and Americans and veterans and to provide a subsidy of 85% of the cost of eligible services and
network equipment (e.g., routers and servers). The program is not to include funding for end-user network equipment (e.g., routers and servers). The program is not to include funding for end-user
devices (e.g., tablets or laptops, cell phones, or remote patient monitoring devices) or fund devices (e.g., tablets or laptops, cell phones, or remote patient monitoring devices) or fund
medical equipment/supplies or network infrastructure deployment. The FCC adopted final rules medical equipment/supplies or network infrastructure deployment. The FCC adopted final rules
for the program on April 2, 2020.for the program on April 2, 2020.5659 The application filing window for the program opened on The application filing window for the program opened on
November 6, 2020, and November 6, 2020, and ~~closes~~closed on December 7, 2020. on December 7, 2020.57

~~52 The Rural Healthcare Connectivity Act of 2016, Title II (P.L. 114-182) added skilled nursing facilities to the list of~~
~~health care providers eligible to receive RHC program support. This change became effective June 21, 2017.~~
5360 The Low Income Program As initially designed, the Low Income Program provided a discount for voice telephony service for eligible low-income consumers. It is the sole federal program that addresses adoption versus deployment of services. The Low Income Program has two subprograms, Lifeline and Link Up,61 with the Lifeline Program providing the vast majority of support. In March 2016, the FCC 56 For more details on the USF rural health care support mechanism and the Healthcare Connect Fund, see For more details on the USF rural health care support mechanism and the Healthcare Connect Fund, see In the
Matter of Rural Health Care Support Mechanism, WC Docket No. 02-60, Federal Communications Commission, , WC Docket No. 02-60, Federal Communications Commission,
adopted December 12, 2012, available at http://hraunfoss.fcc.gov/edocs_public/attachmatch/FCC-12-150A1.pdf. adopted December 12, 2012, available at http://hraunfoss.fcc.gov/edocs_public/attachmatch/FCC-12-150A1.pdf.
5457 The Rural Health Care Pilot Program was established by the FCC in 2006 to help public and nonprofit health care The Rural Health Care Pilot Program was established by the FCC in 2006 to help public and nonprofit health care
providers build state and region wide broadband networks dedicated to the provision of health care services. It was the providers build state and region wide broadband networks dedicated to the provision of health care services. It was the
precursor to the current Healthcare Connect Fund and is no longer accepting applications. precursor to the current Healthcare Connect Fund and is no longer accepting applications.
5558 For additional information and data on this program, see Universal Service Administrative Company, For additional information and data on this program, see Universal Service Administrative Company, 2019 Annual
Report, pp. 8 and 15, available at https://www.usac.org/about/reports-orders/annual-report/ and https://www.usac.org/ pp. 8 and 15, available at https://www.usac.org/about/reports-orders/annual-report/ and https://www.usac.org/
rural-health-care/. rural-health-care/.
5659 For additional information on the Connected Care Pilot Program, see Federal Communications Commission, For additional information on the Connected Care Pilot Program, see Federal Communications Commission,
“Connected Care Pilot Program,” https://www.fcc.gov/wireline-competition/telecommunications-access-policy-“Connected Care Pilot Program,” https://www.fcc.gov/wireline-competition/telecommunications-access-policy-
division/connected-care-pilot-program. division/connected-care-pilot-program.
5760 Federal Communications Commission, Federal Communications Commission, Connected Care Pilot Program Application Window to Open on Nov. 6, ,
November 5, 2020, https://www.fcc.gov/document/connected-care-pilot-program-application-window-open-nov-6. November 5, 2020, https://www.fcc.gov/document/connected-care-pilot-program-application-window-open-nov-6.
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~~The Low Income Program~~
~~As initially designed, the Low Income Program provided a discount for voice telephony service~~
~~for eligible low-income consumers. It is the sole federal program that addresses adoption versus~~
~~deployment of services. The Low Income Program has two subprograms, Lifeline and Link Up,58~~
~~with the Lifeline Program providing the vast majority of support. In March 2016, the FCC~~
61 The Link Up program assists eligible low-income subscribers to pay the costs associated with the initiation of service and is no longer available except for on Tribal Lands. Congressional Research Service 16 The Digital Divide: What Is It, Where Is It, and Federal Assistance Programs adopted an Order to expand the Lifeline Program to support mobile and fixed broadband internet adopted an Order to expand the Lifeline Program to support mobile and fixed broadband internet
access services on a stand-alone basis, or with a bundled voice service. Households must meet access services on a stand-alone basis, or with a bundled voice service. Households must meet
needs-based criteria for eligibility. The Lifeline Program provides assistance for only one line per needs-based criteria for eligibility. The Lifeline Program provides assistance for only one line per
eligible household (either wired or wireless), in the form of a monthly subsidy of, in most cases, eligible household (either wired or wireless), in the form of a monthly subsidy of, in most cases,
$9.25.$9.25.5962 Support is not given directly to the subscriber but to the designated service provider. Support is not given directly to the subscriber but to the designated service provider.
According to data released by USAC, approximately $1 billion in funding was disbursed under According to data released by USAC, approximately $1 billion in funding was disbursed under
the Low Income Program in 2019.the Low Income Program in 2019.6063
Rural Utilities Service Programs
The U.S. Department of Agriculture, through its Rural Utilities Service, administers five The U.S. Department of Agriculture, through its Rural Utilities Service, administers five
programs that provide loans and grants to increase access to broadband service in rural areas. programs that provide loans and grants to increase access to broadband service in rural areas.
Four programs primarily fund broadband deployment, and one program funds distance learning Four programs primarily fund broadband deployment, and one program funds distance learning
and telemedicine software and equipment. Congress funds RUS broadband programs through and telemedicine software and equipment. Congress funds RUS broadband programs through
annual agriculture appropriations bills. The 115th Congress reauthorized, modified, and authorized annual agriculture appropriations bills. The 115th Congress reauthorized, modified, and authorized
funding for RUS broadband programs as part of the 2018 farm bill (Agriculture Improvement Act funding for RUS broadband programs as part of the 2018 farm bill (Agriculture Improvement Act
of 2018, P.L. 115-334).of 2018, P.L. 115-334).6164 Congress also provided additional funding for the RUS in the CARES Congress also provided additional funding for the RUS in the CARES
Act (P.L. 116-136)Act (P.L. 116-136)~~.62~~ and the Consolidated Appropriations Act, 2021 (P.L. 116-260).65
The Community Connect Program
The Community Connect Program provides grants to fund the construction, acquisition, or The Community Connect Program provides grants to fund the construction, acquisition, or
leasing of facilities or land used to deploy broadband service in rural areas. The program also leasing of facilities or land used to deploy broadband service in rural areas. The program also
funds the construction or improvement of community centers that provide broadband access to funds the construction or improvement of community centers that provide broadband access to
the public, and the cost of providing free broadband service to certain critical community the public, and the cost of providing free broadband service to certain critical community
facilities (such as public safety facilities or public schools) for up to two years. facilities (such as public safety facilities or public schools) for up to two years.

~~58 The Link Up program assists eligible low-income subscribers to pay the costs associated with the initiation of service~~
~~and is no longer available except for on Tribal Lands.~~
59 The ReConnect Program The ReConnect Program is a pilot program that provides loans, grants, or loan/grant combinations to fund the construction, acquisition, or improvement of facilities and equipment that provide broadband service in rural areas. The Rural Broadband Access Program The Rural Broadband Access Program, also known as the Farm Bill Loan Program, provides loans to fund the construction, acquisition, or improvement of facilities and equipment that 62 Tribal Lands Lifeline provides an additional discount of up to $25 for eligible low-income consumers living on Tribal Lands Lifeline provides an additional discount of up to $25 for eligible low-income consumers living on
Tribal Lands, for a total discount of up to $34.25. Tribal Lands, for a total discount of up to $34.25.
6063 For additional information and data on this program, see Universal Service Administrative Company, For additional information and data on this program, see Universal Service Administrative Company, 2019 Annual
Report, pp. 8 and 13, available at https://www.usac.org/about/reports-orders/annual-report/ and , pp. 8 and 13, available at https://www.usac.org/about/reports-orders/annual-report/ and
https:/www.usac.org/lifeline/. https:/www.usac.org/lifeline/.
6164 For more information on how the 2018 farm bill addressed RUS broadband programs, see CRS Report RL33816, For more information on how the 2018 farm bill addressed RUS broadband programs, see CRS Report RL33816,
Broadband Loan and Grant Programs in the USDA’s Rural Utilities Service, by Lennard G. Kruger and Alyssa R. , by Lennard G. Kruger and Alyssa R.
Casey. Casey.
6265 Congress included supplemental funding for, and provisions related to, rural development programs in the Congress included supplemental funding for, and provisions related to, rural development programs in the
Coronavirus Aid, Relief, and Economic Security Act (CARES Act, P.L. 116-136). Division B of this act includes $25 Coronavirus Aid, Relief, and Economic Security Act (CARES Act, P.L. 116-136). Division B of this act includes $25
million for the Distance Learning and Telemedicine Program and $100 million for grants under the ReConnect million for the Distance Learning and Telemedicine Program and $100 million for grants under the ReConnect
broadband pilot program. See CRS Insight IN11391, broadband pilot program. See CRS Insight IN11391, USDA Rural Development and COVID-19: Supplemental
Funding and Agency Actions, by Alyssa R. Casey. , by Alyssa R. Casey.
The Consolidated Appropriations Act, 2021 (P.L. 116-260, div. A, title VII, §775) provided $635 million for the ReConnect program. Congressional Research Service Congressional Research Service

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The Digital Divide: What Is It, Where Is It, and Federal Assistance Programs

~~The ReConnect Program~~
~~The ReConnect Program is a pilot program that provides loans, grants, or loan/grant~~
~~combinations to fund the construction, acquisition, or improvement of facilities and equipment~~
~~that provide broadband service in rural areas.~~
~~The Rural Broadband Access Program~~
~~The Rural Broadband Access Program, also known as the Farm Bill Loan Program, provides~~
~~loans to fund the construction, acquisition, or improvement of facilities and equipment that~~
provide broadband service in rural areas. Historically, the program provided loans, but the provide broadband service in rural areas. Historically, the program provided loans, but the
Agriculture Improvement Act of 2018 (2018 farm bill; P.L. 115-334) authorized the program to Agriculture Improvement Act of 2018 (2018 farm bill; P.L. 115-334) authorized the program to
provide grants in addition to loans. As of FY2020, Congress has not appropriated funding for provide grants in addition to loans. As of FY2020, Congress has not appropriated funding for
Rural Broadband Access grants. Rural Broadband Access grants.
The Telecommunications Infrastructure Program
The Telecommunications Infrastructure Program provides loans to fund the construction, The Telecommunications Infrastructure Program provides loans to fund the construction,
acquisition, or maintenance of systems or facilities that provide telephone or broadband service in acquisition, or maintenance of systems or facilities that provide telephone or broadband service in
rural areas. The program was first authorized in 1949 to finance rural telephone service. Since rural areas. The program was first authorized in 1949 to finance rural telephone service. Since
1995, RUS has required that networks funded by this program offer broadband service as well. 1995, RUS has required that networks funded by this program offer broadband service as well.
The Distance Learning and Telemedicine Program
The Distance Learning and Telemedicine Program provides grants to fund software and The Distance Learning and Telemedicine Program provides grants to fund software and
equipment that enable people in rural areas to access distance learning and telemedicine services. equipment that enable people in rural areas to access distance learning and telemedicine services.
P.L. 111-5: The American Recovery and Reinvestment Act of 2009
Programs
On February 17, 2009, President Obama signed P.L. 111-5, the American Recovery and On February 17, 2009, President Obama signed P.L. 111-5, the American Recovery and
Reinvestment Act of 2009 (ARRA). Broadband provisions of the ARRA provided a total of $7.2 Reinvestment Act of 2009 (ARRA). Broadband provisions of the ARRA provided a total of $7.2
billion, for broadband grants, loans, and loan/grant combinations. The total consisted of $4.7 billion, for broadband grants, loans, and loan/grant combinations. The total consisted of $4.7
billion to NTIA/DOC for a newly established Broadband Technology Opportunities Program billion to NTIA/DOC for a newly established Broadband Technology Opportunities Program
(BTOP; grants) and $2.5 billion to the RUS/USDA Broadband Initiatives Program (BIP; grants, (BTOP; grants) and $2.5 billion to the RUS/USDA Broadband Initiatives Program (BIP; grants,
loans, and grant/loan combinations). loans, and grant/loan combinations).
Regarding the $2.5 billion to RUS/USDA broadband programs, the ARRA specified that at least Regarding the $2.5 billion to RUS/USDA broadband programs, the ARRA specified that at least
75% of the area to be served by a project receiving funds shall be in a rural area without sufficient 75% of the area to be served by a project receiving funds shall be in a rural area without sufficient
access to high-speed broadband service to facilitate economic development, as determined by the access to high-speed broadband service to facilitate economic development, as determined by the
Secretary of Agriculture. ARRA directed the USDA to give priority to projects that provide Secretary of Agriculture. ARRA directed the USDA to give priority to projects that provide
service to the most rural residents that do not have access to broadband services. Priority was also service to the most rural residents that do not have access to broadband services. Priority was also
given to borrowers and former borrowers of rural telephone loans. given to borrowers and former borrowers of rural telephone loans.
Of the $4.7 billion appropriated to NTIA Of the $4.7 billion appropriated to NTIA
 $4.35 billion was directed to a competitive broadband grant program, of which  $4.35 billion was directed to a competitive broadband grant program, of which
not less than $200 million was directed at competitive grants for expanding not less than $200 million was directed at competitive grants for expanding
public computer center capacity (including at community colleges and public public computer center capacity (including at community colleges and public
libraries); not less than $250 million was to encourage sustainable adoption of libraries); not less than $250 million was to encourage sustainable adoption of
broadband service; and $10 million was transferred to the Department of broadband service; and $10 million was transferred to the Department of
Commerce Office of Inspector General for audits and oversight; and Commerce Office of Inspector General for audits and oversight; and
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~~link to page 23~~ ~~The Digital Divide: What Is It, Where Is It, and Federal Assistance Programs~~

 $350 million was directed for funding the Broadband Data Improvement Act  $350 million was directed for funding the Broadband Data Improvement Act
(P.L. 110-385) and for the purpose of developing and maintaining a broadband (P.L. 110-385) and for the purpose of developing and maintaining a broadband
inventory map, to be made accessible to the public no later than two years after inventory map, to be made accessible to the public no later than two years after
enactment. Funds deemed necessary and appropriate by the Secretary of enactment. Funds deemed necessary and appropriate by the Secretary of
Commerce were to be transferred to the FCC for the purposes of developing a Commerce were to be transferred to the FCC for the purposes of developing a
national broadband plan, which was released on March 17, 2010.national broadband plan, which was released on March 17, 2010.6366 66 Federal Communications Commission, Connecting America: The National Broadband Plan, released March 17, Congressional Research Service 18 link to page 23 The Digital Divide: What Is It, Where Is It, and Federal Assistance Programs
Final BTOP and BIP program awards were announced by September 30, 2010. With a few Final BTOP and BIP program awards were announced by September 30, 2010. With a few
exceptions, all ARRA broadband projects were concluded as of September 30, 2015.exceptions, all ARRA broadband projects were concluded as of September 30, 2015.6467
BroadbandUSA
BroadbandUSA is housed at NTIA. Using the expertise gained during administration of the BroadbandUSA is housed at NTIA. Using the expertise gained during administration of the
ARRA Broadband Technology Opportunities Program (BTOP), the BroadbandUSA program ARRA Broadband Technology Opportunities Program (BTOP), the BroadbandUSA program
offers one-to-one technical assistance to communities seeking to plan and implement broadband offers one-to-one technical assistance to communities seeking to plan and implement broadband
initiatives. BroadbandUSA is intended to leverage knowledge of federal funding and its network initiatives. BroadbandUSA is intended to leverage knowledge of federal funding and its network
of contacts to help communities identify and leverage funding opportunities; provide support to of contacts to help communities identify and leverage funding opportunities; provide support to
communities seeking public-private partnerships; review, analyze, and provide recommendations communities seeking public-private partnerships; review, analyze, and provide recommendations
and guidance associated with community-level reports, studies, and procurements; and provide and guidance associated with community-level reports, studies, and procurements; and provide
background information and training to organizations that need assistance navigating the background information and training to organizations that need assistance navigating the
broadband landscape.broadband landscape.6568 BroadbandUSA also organizes regional events and workshops bringing BroadbandUSA also organizes regional events and workshops bringing
together broadband stakeholders and publishes guides and tools that can serve as resources for together broadband stakeholders and publishes guides and tools that can serve as resources for
communities seeking to launch broadband initiatives.communities seeking to launch broadband initiatives.6669
The National Broadband Plan
As mandated by the ARRA (P.L. 111-5), on March 16, 2010, the FCC released its report As mandated by the ARRA (P.L. 111-5), on March 16, 2010, the FCC released its report
Connecting America: The National Broadband Plan..6770 The National Broadband Plan (NBP) The National Broadband Plan (NBP)
sought to “create a high-performance America,” which the FCC defined as “a more productive, sought to “create a high-performance America,” which the FCC defined as “a more productive,
creative, efficient America in which affordable broadband is available everywhere and everyone creative, efficient America in which affordable broadband is available everywhere and everyone
has the means and skills to use valuable broadband applications.”has the means and skills to use valuable broadband applications.”6871 In order to achieve this In order to achieve this
mission, the NBP recommended that the country set six goals for 2020: mission, the NBP recommended that the country set six goals for 2020:
 Goal 1: At least 100 million U.S. homes should have affordable access to actual  Goal 1: At least 100 million U.S. homes should have affordable access to actual
download speeds of at least 100 megabits per second and actual upload speeds of download speeds of at least 100 megabits per second and actual upload speeds of
at least 50 megabits per second. at least 50 megabits per second.
 Goal 2: The United States should lead the world in mobile innovation, with the  Goal 2: The United States should lead the world in mobile innovation, with the
fastest and most extensive wireless networks of any nation. fastest and most extensive wireless networks of any nation.

~~63 Federal Communications Commission, Connecting America: The National Broadband Plan, released March 17,~~
 Goal 3: Every American should have affordable access to robust broadband service, and the means and skills to subscribe if they so choose.  Goal 4: Every American community should have affordable access to at least 1 gigabit per second broadband service to anchor institutions such as schools, hospitals, and government buildings. 2010, available at https://transition.fcc.gov/national-broadband-plan/national-broadband-plan.pdf. For more 2010, available at https://transition.fcc.gov/national-broadband-plan/national-broadband-plan.pdf. For more
information, see information, see “The National Broadband Plan,” below. ” below.
6467 For more information on implementation of the broadband provisions of the ARRA, see CRS Report R40436, For more information on implementation of the broadband provisions of the ARRA, see CRS Report R40436,
Broadband Infrastructure Programs in the American Recovery and Reinvestment Act, by Lennard G. Kruger. For , by Lennard G. Kruger. For
information on the distribution and oversight of ARRA broadband grants and loans, see CRS Report R41775, information on the distribution and oversight of ARRA broadband grants and loans, see CRS Report R41775,
Background and Issues for Congressional Oversight of ARRA Broadband Awards, by Lennard G. Kruger. , by Lennard G. Kruger.
6568 For more information on the types of technical assistance BroadbandUSA offers, see “How We Can Help,” available For more information on the types of technical assistance BroadbandUSA offers, see “How We Can Help,” available
at https://broadbandusa.ntia.doc.gov/ntia-common-content/how-we-can-help. at https://broadbandusa.ntia.doc.gov/ntia-common-content/how-we-can-help.
6669 See BroadbandUSA, “Resources,” available at https://broadbandusa.ntia.doc.gov/ntia-resources/publications. See BroadbandUSA, “Resources,” available at https://broadbandusa.ntia.doc.gov/ntia-resources/publications.
6770 Federal Communications Commission, Federal Communications Commission, Connecting America: The National Broadband Plan, March 16, 2010, , March 16, 2010,
available at https://transition.fcc.gov/national-broadband-plan/national-broadband-plan.pdf. available at https://transition.fcc.gov/national-broadband-plan/national-broadband-plan.pdf.
6871 Ibid., p. 9. Ibid., p. 9.
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  ~~Goal 3: Every American should have affordable access to robust broadband~~
~~service, and the means and skills to subscribe if they so choose.~~
~~ Goal 4: Every American community should have affordable access to at least 1~~
~~gigabit per second broadband service to anchor institutions such as schools,~~
~~hospitals, and government buildings.~~
 Goal 5: To ensure the safety of the American people, every first responder should Goal 5: To ensure the safety of the American people, every first responder should
have access to a nationwide, wireless, interoperable broadband public safety have access to a nationwide, wireless, interoperable broadband public safety
network. network.
 Goal 6: To ensure that America leads in the clean energy economy, every  Goal 6: To ensure that America leads in the clean energy economy, every
American should be able to use broadband to track and manage their real-time American should be able to use broadband to track and manage their real-time
energy consumption. energy consumption.
The National Broadband Plan was categorized into three parts: The National Broadband Plan was categorized into three parts:
  Part I (Innovation and Investment), which “discusses recommendations to , which “discusses recommendations to
maximize innovation, investment and consumer welfare, primarily through maximize innovation, investment and consumer welfare, primarily through
competition. It then recommends more efficient allocation and management of competition. It then recommends more efficient allocation and management of
assets government controls or influences.”assets government controls or influences.”6972 The recommendations address a The recommendations address a
number of issues, including spectrum policy, improved broadband data number of issues, including spectrum policy, improved broadband data
collection, broadband performance standards and disclosure, special access rates, collection, broadband performance standards and disclosure, special access rates,
interconnection, privacy and cybersecurity, child online safety, poles and rights-interconnection, privacy and cybersecurity, child online safety, poles and rights-
of-way, research and experimentation (R&E) tax credits, and research and of-way, research and experimentation (R&E) tax credits, and research and
development funding. development funding.
  Part II (Inclusion), which “makes recommendations to promote inclusion—to , which “makes recommendations to promote inclusion—to
ensure that all Americans have access to the opportunities broadband can ensure that all Americans have access to the opportunities broadband can
provide.”provide.”7073 Issues identified include reforming the Universal Service Fund, Issues identified include reforming the Universal Service Fund,
intercarrier compensation, federal assistance for broadband in tribal lands, intercarrier compensation, federal assistance for broadband in tribal lands,
expanding existing broadband grant and loan programs at the Rural Utilities expanding existing broadband grant and loan programs at the Rural Utilities
Service, enabling greater broadband connectivity in anchor institutions, and Service, enabling greater broadband connectivity in anchor institutions, and
improved broadband adoption and utilization, especially among disadvantaged improved broadband adoption and utilization, especially among disadvantaged
and vulnerable populations. and vulnerable populations.
  Part III (National Purposes), which “makes recommendations to maximize the , which “makes recommendations to maximize the
use of broadband to address national priorities. This includes reforming laws, use of broadband to address national priorities. This includes reforming laws,
policies and incentives to maximize the benefits of broadband in areas where policies and incentives to maximize the benefits of broadband in areas where
government plays a significant role.”government plays a significant role.”7174 National purposes include health care, National purposes include health care,
education, energy and the environment, government performance, civic education, energy and the environment, government performance, civic
engagement, and public safety. Issues include telehealth and health IT, online engagement, and public safety. Issues include telehealth and health IT, online
learning and modernizing educational broadband infrastructure, digital literacy learning and modernizing educational broadband infrastructure, digital literacy
and job training, smart grid and smart buildings, federal support for broadband in and job training, smart grid and smart buildings, federal support for broadband in
small businesses, telework within the federal government, cybersecurity and small businesses, telework within the federal government, cybersecurity and
protection of critical broadband infrastructure, copyright of public digital media, protection of critical broadband infrastructure, copyright of public digital media,
interoperable public safety communications, next generation 911 networks, and interoperable public safety communications, next generation 911 networks, and
emergency alert systems. emergency alert systems.

~~69 Ibid., p. 11.~~
~~70 Ibid., p. 11.~~
~~71 Ibid., p. 11.~~
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~~There has been some discussion in Congress72~~ There has been some discussion in Congress75 and within public interest and within public interest ~~groups73~~groups76 about updating about updating
the 2010 National Broadband Plan. On June 22, 2020, the National Broadband Plan for the Future the 2010 National Broadband Plan. On June 22, 2020, the National Broadband Plan for the Future
Act of 2020 (S. 4022) was introduced, along with the companion bill (H.R. 7520) on July 9, Act of 2020 (S. 4022) was introduced, along with the companion bill (H.R. 7520) on July 9,
2020. The legislation would require the FCC to update the National Broadband Plan to include 2020. The legislation would require the FCC to update the National Broadband Plan to include
72 Ibid., p. 11. 73 Ibid., p. 11. 74 Ibid., p. 11. 75 See S. 4022 and H.R. 7520. 76 Blair Levin, The National Broadband Plan at 10: What’s Next?, Benton Institute for Broadband and Society, March 19, 2020, available at https://www.benton.org/blog/national-broadband-plan-10-what’s-next. Congressional Research Service 20 link to page 26 link to page 13 The Digital Divide: What Is It, Where Is It, and Federal Assistance Programs  assessment of the progress in achieving the goals of the original national  assessment of the progress in achieving the goals of the original national
broadband plan, broadband plan,
 examination of the effects of the COVID-19 pandemic on how people learn,  examination of the effects of the COVID-19 pandemic on how people learn,
work, receive medical information and treatment, and participate in civic work, receive medical information and treatment, and participate in civic
communications, and communications, and
 analysis of the change in reliance people will have on services enabled  analysis of the change in reliance people will have on services enabled
by by broadband internet access service as a result of COVID-19.broadband internet access service as a result of COVID-19.7477
116th Congress
In the 116th Congress, numerous broadband bills In the 116th Congress, numerous broadband bills ~~have been~~were either enacted or passed in the Senate either enacted or passed in the Senate
or House that could potentially impact the digital divide (see or House that could potentially impact the digital divide (see the the Appendix). For example, . For example,
gathering data about where broadband is and is not has been a major challenge. Congress enacted gathering data about where broadband is and is not has been a major challenge. Congress enacted
the Broadband Deployment Accuracy and Technological Availability Act (Broadband DATA Act, the Broadband Deployment Accuracy and Technological Availability Act (Broadband DATA Act,
P.L. 116-130) to address this issue.P.L. 116-130) to address this issue.7578 As another example, Congress provided an additional $100 As another example, Congress provided an additional $100
million for ReConnect grants “to prevent, prepare for, and respond to coronavirus,” in the million for ReConnect grants “to prevent, prepare for, and respond to coronavirus,” in the
CARES Act (P.L. 116-136, Division B, Title I, §11004).CARES Act (P.L. 116-136, Division B, Title I, §11004).7679
Concluding Observations
The The ~~116th~~117th Congress has a wide variety of options for oversight and legislation to address the Congress has a wide variety of options for oversight and legislation to address the
digital divide. Congress could contemplate various approaches to providing support for digital divide. Congress could contemplate various approaches to providing support for
broadband infrastructure deployment and adoption as COVID-19 social distancing further broadband infrastructure deployment and adoption as COVID-19 social distancing further
revealed differences in broadband availability and accessibility across the United States. revealed differences in broadband availability and accessibility across the United States.
Support to address the digital divide could include subsidies, loans, loan guarantees, and grants. Support to address the digital divide could include subsidies, loans, loan guarantees, and grants.
Additionally, a wide array of policy instruments could be considered, including tax incentives to Additionally, a wide array of policy instruments could be considered, including tax incentives to
encourage private sector deployment, broadband bonds, demand-side incentives (such as encourage private sector deployment, broadband bonds, demand-side incentives (such as
assistance to low-income families for purchasing computers), reducing regulatory barriers to assistance to low-income families for purchasing computers), reducing regulatory barriers to
broadband deployment, and spectrum policy to spur rollout of wireless broadband services. broadband deployment, and spectrum policy to spur rollout of wireless broadband services.

~~72 See S. 4022 and H.R. 7520.~~
~~73 Blair Levin, The National Broadband Plan at 10: What’s Next?, Benton Institute for Broadband and Society, March~~
~~19, 2020, available at https://www.benton.org/blog/national-broadband-plan-10-what’s-next.~~
7477 Additionally, the FCC would be required to report annually on its progress toward achieving the goals of the updated Additionally, the FCC would be required to report annually on its progress toward achieving the goals of the updated
national broadband plan. national broadband plan.
7578 See See “Broadband Access Data and Mapping” section, above. section, above.
7679 See CRS In Focus IF11262, See CRS In Focus IF11262, USDA’s ReConnect Broadband Pilot Program, by Alyssa R. Casey. , by Alyssa R. Casey.
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Appendix. Broadband Legislation in the 116th
Congress
The following are selected broadband-related bills potentially impacting the digital divide that The following are selected broadband-related bills potentially impacting the digital divide that
~~have~~were either either ~~been~~ enacted into law, passed in the Senate, or passed in the House in the 116th enacted into law, passed in the Senate, or passed in the House in the 116th
~~Congress, as of November 17, 2020~~Congress. .
Enacted into Law
P.L. 116-130 (Wicker), enacted on March 23, 2020, as the Broadband Deployment Accuracy and P.L. 116-130 (Wicker), enacted on March 23, 2020, as the Broadband Deployment Accuracy and
Technological Availability Act (Broadband DATA Act), requires the FCC to issue rules to collect Technological Availability Act (Broadband DATA Act), requires the FCC to issue rules to collect
more granular broadband coverage data, including a decision on whether to collect verified more granular broadband coverage data, including a decision on whether to collect verified
information from others, including state, local, and tribal governmental entities that are primarily information from others, including state, local, and tribal governmental entities that are primarily
responsible for mapping or tracking broadband internet access service coverage for their responsible for mapping or tracking broadband internet access service coverage for their
respective jurisdictions. respective jurisdictions.
P.L. 116-136 (Courtney), enacted on March 27, 2020, as the Coronavirus Aid, Relief, and P.L. 116-136 (Courtney), enacted on March 27, 2020, as the Coronavirus Aid, Relief, and
Economic Security Act (CARES Act), provides additional appropriations for broadband grants Economic Security Act (CARES Act), provides additional appropriations for broadband grants
and specifies requirements for the grants. and specifies requirements for the grants.
P.L. 116-260 (Cuellar), enacted on December 27, 2020, as the Consolidated Appropriations Act, 2021, provides appropriations for broadband provisions at the FCC and NTIA. Passed in the Senate
S. 1289 (Klobuchar), introduced on May 2, 2019, as the Measuring the Economic Impact of S. 1289 (Klobuchar), introduced on May 2, 2019, as the Measuring the Economic Impact of
Broadband Act of 2019, would require the Secretary of Commerce to conduct an assessment and Broadband Act of 2019, would require the Secretary of Commerce to conduct an assessment and
analysis of the effects of broadband deployment and adoption on the economy of the United analysis of the effects of broadband deployment and adoption on the economy of the United
States. Passed by the Senate on June 5, 2019. States. Passed by the Senate on June 5, 2019.
Passed in the House
H.R. 1328 (Tonko), introduced on February 25, 2019, as the Advancing Critical Connectivity H.R. 1328 (Tonko), introduced on February 25, 2019, as the Advancing Critical Connectivity
Expands Service, Small Business Resources, Opportunities, Access, and Data Based on Assessed Expands Service, Small Business Resources, Opportunities, Access, and Data Based on Assessed
Need and Demand Act (ACCESS BROADBAND Act), would establish the Office of Internet Need and Demand Act (ACCESS BROADBAND Act), would establish the Office of Internet
Connectivity and Growth within NTIA at the Department of Commerce. The Office would Connectivity and Growth within NTIA at the Department of Commerce. The Office would
provide outreach to communities seeking improved broadband connectivity and digital inclusion; provide outreach to communities seeking improved broadband connectivity and digital inclusion;
track federal broadband dollars; and facilitate streamlined and standardized applications for track federal broadband dollars; and facilitate streamlined and standardized applications for
federal broadband programs. Passed by the House on May 8, 2019. federal broadband programs. Passed by the House on May 8, 2019.
H.R. 1644 (Doyle), introduced on March 8, 2019, as the Save the Internet Act of 2019, includes H.R. 1644 (Doyle), introduced on March 8, 2019, as the Save the Internet Act of 2019, includes
provisions that would require Government Accountability Office to prepare reports on broadband provisions that would require Government Accountability Office to prepare reports on broadband
internet access service competition, ways to improve broadband infrastructure in rural areas, internet access service competition, ways to improve broadband infrastructure in rural areas,
challenges to accurate broadband mapping, and the benefits of standalone broadband. It would challenges to accurate broadband mapping, and the benefits of standalone broadband. It would
require the FCC to engage with tribal communities to address broadband needs, to not release its require the FCC to engage with tribal communities to address broadband needs, to not release its
706 report until broadband data inaccuracies are corrected, and to submit to Congress a report 706 report until broadband data inaccuracies are corrected, and to submit to Congress a report
containing a plan for how the FCC will evaluate and address problems with Form 477 broadband containing a plan for how the FCC will evaluate and address problems with Form 477 broadband
data. Passed by the House on April 10, 2019. data. Passed by the House on April 10, 2019.
H.R. 6800 (Lowey), introduced on May 12, 2020, as the Health and Economic Recovery H.R. 6800 (Lowey), introduced on May 12, 2020, as the Health and Economic Recovery
Omnibus Emergency Solutions Act (HEROES Act), would modify or expand a wide range of Omnibus Emergency Solutions Act (HEROES Act), would modify or expand a wide range of
programs and policies, including broadband service. Passed by the House on May 15, 2020. programs and policies, including broadband service. Passed by the House on May 15, 2020.
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H.R. 2 (DeFazio), introduced on June 11, 2020, as the Moving Forward Act, would provide funds H.R. 2 (DeFazio), introduced on June 11, 2020, as the Moving Forward Act, would provide funds
to promote competition for broadband internet infrastructure to unserved and underserved rural, to promote competition for broadband internet infrastructure to unserved and underserved rural,
suburban, and urban communities, connect children to remote learning with digital equipment and suburban, and urban communities, connect children to remote learning with digital equipment and
affordable broadband options, and close other gaps in broadband adoption and digital skills. affordable broadband options, and close other gaps in broadband adoption and digital skills.
Passed by the House on July 1, 2020. Passed by the House on July 1, 2020.
H.R. 7608 (Lowey), introduced on July 13, 2020, as the State, Foreign Operations, Agriculture, H.R. 7608 (Lowey), introduced on July 13, 2020, as the State, Foreign Operations, Agriculture,
Rural Development, Interior, Environment, Military Construction, and Veterans Affairs Rural Development, Interior, Environment, Military Construction, and Veterans Affairs
Appropriations Act, 2021, would appropriate funding for RUS broadband programs. Passed by Appropriations Act, 2021, would appropriate funding for RUS broadband programs. Passed by
the House on July 24, 2020. the House on July 24, 2020.
H.R. 7617 (Visclosky), introduced on July 16, 2020, as the Defense, Commerce, Justice, Science, H.R. 7617 (Visclosky), introduced on July 16, 2020, as the Defense, Commerce, Justice, Science,
Energy and Water Development, Financial Services and General Government, Labor, Health and Energy and Water Development, Financial Services and General Government, Labor, Health and
Human Services, Education, Transportation, Housing, and Urban Development Appropriations Human Services, Education, Transportation, Housing, and Urban Development Appropriations
Act, 2021, would provide funding to implement the Broadband DATA Act. Passed by the House Act, 2021, would provide funding to implement the Broadband DATA Act. Passed by the House
on July 31, 2020. on July 31, 2020.
H.R. 8406 (Lowey), introduced on September 29, 2020, as The Heroes Act, would modify or H.R. 8406 (Lowey), introduced on September 29, 2020, as The Heroes Act, would modify or
expand a wide range of programs and policies, including broadband service. The House passed expand a wide range of programs and policies, including broadband service. The House passed
H.R. 8406 on October 1, 2020, as a House amendment to the Senate amendment to H.R. 925. H.R. 8406 on October 1, 2020, as a House amendment to the Senate amendment to H.R. 925.

Author Information

Colby Leigh Rachfal Colby Leigh Rachfal
~~Angele A. Gilroy~~
Analyst in Telecommunications Policy Analyst in Telecommunications Policy
~~Specialist in Telecommunications Policy~~

Acknowledgments Angele Gilroy, former CRS analyst, originally coauthored this report.
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