May 18, 2022
Bridging the Digital Divide: Broadband Workforce
Considerations for the 117th Congress
As classrooms, workplaces, and social activities migrated
networks across many types of terrain. Broadband
online during the Coronavirus Disease 2019 (COVID-19)
workforce training may require a focus on adaptability and
pandemic, the digital divide—the gap between those who
scalability for different deployment areas and technologies.
have access to broadband (i.e., high-speed internet) and
Broadband service is most commonly delivered to end-
those who do not—highlighted the importance of
users at a particular location (e.g., household) at a fixed
broadband availability. The Federal Communications
point—known as fixed broadband—through cable and fiber
Commission’s (FCC’s) Fourteenth Broadband Deployment
technologies, rather than mobile broadband delivered to
Report released in January 2021 estimates that 14.5 million
devices often through a cellular network. According to the
Americans lack access to broadband—which the FCC
FCC’s 2020 Communications Marketplace Report, cable
defines as a connection that provides speeds of at least 25/3
broadband can reach 88.8% and fiber 40.7% of U.S.
megabits per second (Mbps). Since March 2020, Congress
households. To deploy fiber or cable, technicians lay
has provided $78 billion to address the digital divide and
conduit underground or between poles, splice and join the
broadband availability. More specifically, Congress passed:
conduit, and connect the conduit to network equipment
such as routers and end-use modems.
The Coronavirus Aid, Relief, and Economic Security Act
(CARES Act; P.L. 116-136) which provides $100 million
Broadband Workforce Training
for broadband programs at the U.S. Department of
Broadband workforce training is typically conducted on-
Agriculture (USDA);
the-job or through apprenticeship programs that combine
on-the-job training and coursework. The federal
The Consolidated Appropriations Act, 2021 (CAA, 2021;
government has supported broadband workforce training.
P.L. 116-260) which provides $6.2 billion for broadband
For example, the Telecommunications Industry Registered
programs at the FCC, National Telecommunications and
Apprenticeship Program (TIRAP)—which focuses on
Information Administration (NTIA), and USDA;
developing apprenticeship programs for training and career
development of the telecommunications workforce—was
The American Rescue Plan Act of 2021 (ARPA; P.L. 117-
created by telecommunications employers and is recognized
2) which provides $7.2 billion for broadband programs at
by the Department of Labor.
the FCC; and
States also play a role in broadband workforce development
The Infrastructure Investment and Jobs Act (IIJA; P.L. 117-
by establishing job training programs. For example, in
58) which provides $64.4 billion for broadband programs at
September 2021, the Ohio Lieutenant Governor announced
the FCC, NTIA, and USDA.
a new program to train students as fiber optic technicians as
part of a state effort to “…outline[s] a plan for increasing

broadband industry career awareness and creating more
There may be workforce challenges associated with the
training and education programs in the state.”
broadband deployment projects funded under the laws
above—particularly with the $64.4 billion provided in the
The federal government and states could consider working
IIJA. Identifying current and future broadband workforce
together on broadband workforce training. A February 2022
needs may be a consideration for the 117th Congress.
report prepared by the U.S. Department of Commerce and

U.S. Department of Homeland Security on Assessment of
This In Focus describes the broadband workforce and
the Critical Supply Chains Supporting the U.S. Information
potential challenges, including varying stakeholder
and Communications Technology Industry recommended
perspectives on the sufficiency of the existing workforce;
that states “develop and fund” programs to attract and train
summarizes selected broadband workforce legislation in the
the broadband workforce through their allocation of the
117th Congress; and provides considerations for Congress.
$42.5 billion Broadband Equity, Access, and Deployment
(BEAD) program funded in the IIJA.
Broadband Workforce and Potential
Challenges
Varying Stakeholder Perspectives on the Existing
Broadband Workforce
Broadband Deployment Geographical Constraints
There are differing perspectives on whether broadband
Many unserved areas without access to broadband have
workforce shortages will pose a challenge to closing the
geographic features (e.g., mountain range) that make
digital divide. Some stakeholders contend shortages may
serving them challenging. Achieving broadband coverage
hinder broadband deployment. For example, the Broadband
nationwide will require workers with the skills to install
Deployment Advisory Committee—a (no longer active)
https://crsreports.congress.gov

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Bridging the Digital Divide: Broadband Workforce Considerations for the 117th Congress
FCC working group—stated in an October 2020 report,
telecommunications industry by January 14, 2023. The act
“considerable doubt has arisen among broadband
also requires the Government Accountability Office (GAO)
infrastructure industry stakeholders as to whether they can
to submit a report to Congress by May 15, 2022, which
meet build-out projections due to current workforce
“estimates the number of skilled telecommunications
challenges.” In a January 2021 joint letter to the White
workers required to build and maintain broadband
House and Congress, a coalition of organizations
infrastructure in rural areas—including estimates based on
representing the telecommunications industry urged support
current and projected need ... ” Additionally, by November
for broadband-related job skills development stating, “The
15, 2022, the Secretary of Labor is to “…establish and issue
U.S. currently faces a shortfall of skilled workers needed to
guidance on how states can address workforce needs and
deploy broadband across the country, to win the race to 5G,
safety of the telecommunications industry.”
and to ensure robust fiber, mobile, and fixed wireless
networks.”
Other bills introduced in the 117th Congress include grants

to develop a skilled workforce for deployment of high-
Other industry stakeholders appear to disagree that a
speed broadband (S. 2071), grants to prepare minority
broadband workforce shortage exists. An October 2020
students to participate in the telecommunications workforce
report by the Economic Policy Institute, Decades of Slow
(S. 996), telecommunications workforce development for
Wage Growth for Telecommunications Workers, concluded,
women and minorities (H.R. 4413), and promotion of
“wage patterns in telecommunications show none of the
workforce development programs tailored to the
standard signs of a labor shortage.” Further, skilled
telecommunications industry (S. 3288).
technicians might be readily available, but may be under-
utilized due to union affiliations. According to the labor
Considerations for Congress
union Communications Workers of America (CWA),
The 117th Congress has a variety of considerations should it
telecommunications companies have been cutting
choose to further support the broadband workforce. For
thousands of jobs since 2017. In February 2021 testimony
example, Congress may consider whether to direct federal
before the U.S. House Energy and Commerce Committee,
agencies to collect additional data on the broadband
CWA President Christopher Shelton stated
workforce to help determine whether a workforce shortage

exists, and, if so, how the workforce shortage impacts
efforts to close the digital divide. If it is determined that a
I know many of you have heard about alleged
workforce shortage exists, Congress may want to know the
worker shortages in the telecommunications
reason for the shortage, which might include a lack of
industry in recent months. I urge you to be skeptical
career path awareness, a lack of federal programs, or a lack
of these claims. AT&T and other telecom
of nationwide standardized training programs, among other
companies have laid off tens of thousands of
things. Additionally, Congress may direct FCC, NTIA, and
workers in the past few years, including thousands
USDA to collect information from grant recipients on any
of well-trained construction technicians, while non-
difficulty experienced in securing skilled technicians for
union contractor companies claim they cannot find
deployment projects, as part of reporting requirements.
qualified workers.… When wireless infrastructure
companies and their lobbyists start talking about
Congress may examine whether to develop legislation
workforce shortages, ask them for proof.
based on recommendations that come out of the agency
reports and guidance pursuant to the TSWA in the IIJA.
Broadband Workforce Availability for Certain
Congress may consider commissioning a study, perhaps by
Regions
an independent organization, to measure performance
Geographic variability may affect broadband workforce
metrics to gauge the effectiveness of existing training
availability. For example, there may be a sufficient
programs. Other options may include establishing a new
broadband workforce in large metropolitan areas where
program or amending an existing broadband program to
there is less demand for broadband deployment due to the
include requirements for broadband workforce training and
existing infrastructure. Tribal and rural areas are less likely
development. Congress also might consider whether
to have broadband than urban and suburban areas. While
potential broadband workforce resources and federal
the FCC’s Fourteenth Broadband Deployment Report
training programs should target tribal and rural areas.
reported 98.8% of urban areas in the U.S. as served with
Congress may also consider the option to not pursue any of
these efforts and maintain the status quo.
fixed broadband at speeds of 25/3 Mbps, that figure is lower
in rural areas—82.7%—and on tribal lands—79.1%. Tribal
Additional CRS Resources
and rural areas could have a potentially smaller trained
CRS Report R46613, The Digital Divide: What Is It, Where
broadband workforce.
Is It, and Federal Assistance Programs
Legislation in the 117th Congress
CRS Report R46967, The Infrastructure Investment and
The 117th Congress introduced multiple bills related to the
Jobs Act (P.L. 117-58): Summary of the Broadband
telecommunications workforce in some capacity—with one
Provisions in Division F
bill enacted, the Telecommunications Skilled Workforce
Act (TSWA) contained in the IIJA. Specifically, the act
requires the FCC to establish an interagency working group
Colby Leigh Rachfal, Analyst in Telecommunications
to draft and submit a report to Congress on
Policy
recommendations to address the workforce needs of the
https://crsreports.congress.gov

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Bridging the Digital Divide: Broadband Workforce Considerations for the 117th Congress

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