The Metaverse: Concepts and Issues for Congress

The Metaverse: Concepts and Issues for Congress

The Metaverse: Concepts and Issues for
Congress
August 26, 2022
Congressional Research Service
https://crsreports.congress.gov
R47224

The Metaverse: Concepts and Issues for Congress

R47224
The Metaverse: Concepts and Issues for
August 26, 2022
Congress
Ling Zhu
Congress has long paid attention to technologies for users to access computer-simulated
Analyst in
environments and participate in virtual activities on the internet. These technologies include
Telecommunications
augmented reality, mixed reality, and virtual reality technologies (AR, MR, and VR respectively)
Policy
that show potential for innovation in a variety of applications such as entertainment, healthcare,

engineering, real estate, retail, military, education, and collaborative work. AR, MR, and VR
technologies, some enthusiasts argue, may support new ways for users to interact, work,
For a copy of the full report,
socialize, transact, and access services in an immersive virtual world, which is often referred to
please call 7-5700 or visit
as the metaverse.
www.crs.gov.
Some business and technology leaders assert that the metaverse does not refer to any specific technology or set of
technologies, but rather a shift in how users interact with online technologies, services, platforms, and each other. Under this
framework, the metaverse represents changes that, if actualized, might eventually transform the architecture (e.g.,
communications and network infrastructure, hardware and software, and human-computer interfaces) and operation of the
internet (e.g., content production and consumption and user interaction with platforms and services). Some proponents assert
that the metaverse is inevitable, given the shift to virtual environments sparked by the COVID-19 pandemic and the
expansion of online games. Critics maintain that the idea of the metaverse has been over-hyped and its promise and
significance exaggerated. They argue that some companies are merely attaching the label to long-existing human-computer
interaction technologies and their applications. Other critics have raised concerns about the potential inability of metaverse
services to sustain user interest, the lack of sustainable business models, and prevalence of inappropriate and unlawful
content.
Metaverse services are likely to feature three key characteristics that differentiate them from two-dimensional (2D) online
applications: (1) an immersive, three dimensional (3D) user experience; (2) real-time, persistent network access; and (3)
interoperability across networked platforms. The immersive experience provides users with an enhanced feeling of presence
and immersion within a virtual 3D world. Users’ experience of presence in the metaverse could be further enhanced if the
virtual environment is persistent, meaning it does not “disappear” when a user has finished using it. Achieving persistence
would require computing and data architectures capable of hosting always-on, interconnected virtual spaces as well as high-
bandwidth, low-latency, wireless networks to support user devices and access. Metaverse interoperability would provide
users with an immersive and persistent virtual experience and allow them to move seamlessly across multiple networked
virtual spaces, access different platforms and services, and interact with other users and objects using the same human-
computer interface devices and digital assets (e.g., digital identity, currency, and objects). Critics argue that the data
infrastructure needed to support the volume of data that metaverse services and their users would generate and the speed at
which that data would need to be transmitted does not yet exist.
Major technologies that could enable metaverse services include extended reality (XR), advanced wireless communications,
and blockchain. XR is an umbrella term that represents a range of technologies, such as AR devices that project a digital
overlay over physical objects, MR devices that enable users to interact with virtual objects displayed in the real-world
environment, and VR devices that work within a computer-generated virtual environment. Brain-computer interface
technology may provide a new way for users to interact with the metaverse. Fifth-generation (5G) and next-generation (e.g.,
6G) wireless technologies may provide the high-bandwidth and low-latency internet infrastructure required by the metaverse.
Blockchain and block-chain enabled digital assets (e.g., non-fungible tokens (NFTs)) may enable commerce and transactions
in the metaverse.
Some experts have expressed concerns that the immersive, persistent, and real-time environment and large-scale virtual
platforms of the metaverse could reproduce and magnify the issues already surrounding the online platforms, services, and
applications, such as content moderation, privacy, competition, and the digital divide. Members of Congress have shown
interest in each of these issues in the context of current online platforms and may consider addressing them in the specific
context of the metaverse.
This report introduces the concepts associated with potential metaverse services and key enabling technologies, highlights
select companies engaged in metaverse development, and concludes with a discussion of selected policy issues for
congressional consideration.
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Contents
Introduction ..................................................................................................................................... 1
Key Metaverse Concepts ................................................................................................................. 3
Immersive User Experience ...................................................................................................... 4
Persistent Network Access ........................................................................................................ 5
Interoperability .......................................................................................................................... 7
Technologies Supporting the Metaverse .......................................................................................... 7
Extended Reality (XR) .............................................................................................................. 7
Augmented Reality (AR) .................................................................................................... 8
Mixed Reality (MR) ............................................................................................................ 9
Virtual Reality (VR) ........................................................................................................... 11
Brain-Computer Interface (BCI) ....................................................................................... 12
Fifth-Generation (5G) and Next-Generation Wireless Networks ............................................ 13
5G...................................................................................................................................... 13
6G...................................................................................................................................... 14
Blockchain .............................................................................................................................. 14
Non-Fungible Tokens (NFTs) ........................................................................................... 16
Select Companies Developing Metaverse Technologies and Services .......................................... 16
Policy Issues for Congressional Consideration ............................................................................. 18
Content Moderation ................................................................................................................ 18
Data Privacy ............................................................................................................................ 19
Market Power and Competition .............................................................................................. 21
Digital Divide .......................................................................................................................... 22
Opportunities and Challenges ................................................................................................. 23

Figures
Figure 1. Example of Using AR Technology in Navigation ............................................................ 9
Figure 2. Example of User-object Interaction in an MR Environment ......................................... 10
Figure 3. Example of Using VR Technology in Scientific Investigation ....................................... 11

Tables
Table 1. Examples of User Data Captured by XR Devices ........................................................... 20

Appendixes
Appendix. Summary of Legislative Efforts on Metaverse-related Technologies in the
117th Congress ............................................................................................................................ 25

Contacts
Author Information ........................................................................................................................ 25
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Introduction
Congress has maintained an interest in policy issues related to the internet, particularly universal,
reliable, high-speed internet access to support online applications and services. These applications
and services have become essential to economic, educational, research, and social activities in the
United States.1 The internet facilitates communications and data flow that support these activities
as well as the creation of new digital products and services that “now permeate every aspect of
our daily lives.”2 An estimated 91% of the U.S. population3 and 59% of the world’s population
used the internet in 2021.4 Internet users aged 16 to 64 in the United States reportedly spent an
estimated average of seven hours per day online to retrieve and generate information,
communicate and share information, consume multimedia content, and conduct business
transactions.5 The International Telecommunications Union (ITU) has described the internet as a
source of “opportunities for personal fulfilment, professional development, and value creation.”6
Users access the internet through desktop and laptop computers, smartphones, and tablets to use
text-and-image-based websites, email services, social networks, and online marketplaces.7 The
internet also enables computer-simulated environments that users can interact with via an
interface, often referred to as a virtual world, virtual space, or virtual reality.8
There has been sustained congressional interest in technologies for users to access and interact
with computer-simulated environments and participate in virtual activities on the internet.9 These
technologies include augmented, mixed, and virtual reality technologies (see the “Extended
Reality (XR)” section below) that show potential for innovation in a variety of application areas
such as entertainment, healthcare, engineering, real estate, retail, military, education, and

1 Section 60101(1) of the Infrastructure Investment and Jobs Act (IIJA; P.L. 117-58).
2 White House, “A Declaration for the Future of the Internet,” April 28, 2022, p. 1, at https://www.whitehouse.gov/wp-
content/uploads/2022/04/Declaration-for-the-Future-for-the-Internet_Launch-Event-Signing-Version_FINAL.pdf.
3 International Telecommunication Union (ITU), Country ICT Data (Latest Available Data): Percentage of Individuals
Using the Internet, ITU Development Sector (ITU-D) ICT Statistics, December 2021, at https://www.itu.int/en/ITU-D/
Statistics/Documents/statistics/2021/December/PercentIndividualsUsingInternet.xlsx.
4 ITU, Statistics, ITU-D ICT Statistics, November 2021, at https://www.itu.int/en/ITU-D/Statistics/Pages/stat/
default.aspx.
5 Simon Kemp, Digital 2022: Global Overview Report, DataReportal, January 26, 2022, at https://datareportal.com/
reports/digital-2022-global-overview-report.
6 ITU, Measuring Digital Development: Facts and Figures 2021, ITU-D, 2021, p. 1, at https://www.itu.int/en/ITU-D/
Statistics/Documents/facts/FactsFigures2021.pdf.
7 Michael Martin, Computer and Internet Use in the United States:2018, U.S. Census Bureau, American Community
Survey Reports, ACS-49, April 2021, at https://www.census.gov/content/dam/Census/library/publications/2021/acs/
acs-49.pdf.
8 Richard A. Bartle, Designing Virtual Worlds (San Francisco, CA: New Riders, 2004), p. 2. See also N. Burgess and
J.A. King, “Navigation in Virtual Space: Psychological and Neural Aspects,” in International Encyclopedia of the
Social & Behavioral Sciences, ed. Neil J. Smelser and Paul B. Baltes (Pergamon Press, 2001), p. 10417, at
https://doi.org/10.1016/B0-08-043076-7/03564-6.
9 Introduced in 1992, the Information Infrastructure and Technology Act of 1992 (S. 2937 and H.R. 5759, the 102nd
Congress) would have directed the National Institutes of Health to develop “applications of high-performance
computing and high-speed networking in the health care sector,” including “virtual reality technology for simulating
operations and other medical procedures.” Since then, more than 60 bills have been introduced, containing a reference
to the terms “virtual reality,” “augmented reality,” or “mixed reality.” Among these bills, 19 had been introduced in the
117th Congress, as of July 2022.
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The Metaverse: Concepts and Issues for Congress

collaborative work.10 For example, doctors could be trained in a virtual environment11 and view
patients’ biometric information in augmented reality glasses during procedures. Augmented,
mixed, and virtual reality technologies, some enthusiasts argue, may support new ways for users
to interact, work, socialize, transact, and access services in an immersive virtual world, which has
come to be called the metaverse.12
The founding Members of the Congressional Caucus on Virtual, Augmented, and Mixed Reality
Technologies (referred to as the Reality Caucus)13 have asserted that “[a]s these technologies
develop, questions will inevitably rise in privacy, intellectual property, and other areas.”14 Given
the importance of the internet to the domestic and global economy and for health, education,
work, and social interaction, this report seeks to elaborate key concepts, technologies, and
implications of the metaverse to assist Congress in making informed policy decisions.
This report first introduces concepts that many believe will shape the metaverse, focusing on
three core aspects—an immersive user experience, persistent network access, and interoperability.
The report then describes key technologies supporting the metaverse in three categories—
extended reality, fifth-generation (5G) and next-generation wireless communications, and
blockchain.15 Next, the report highlights select companies that currently engage in the
development and investment related to the metaverse. The report concludes with a discussion of
selected policy issues for congressional consideration, including content moderation, data
privacy, market power and competition, and the digital divide.16

10 Heather Bellini, Wei Chen, Masaru Sugiyama, et al., Virtual & Augmented Reality: The Next Big Computing
Platform? The Goldman Sachs Group, Inc., Equity Research, January 13, 2016, p. 16, at
https://www.goldmansachs.com/insights/pages/technology-driving-innovation-folder/virtual-and-augmented-reality/
report.pdf.
11 John Soroushian, Babu Jackson, and Sabine Neschke, Thinking Ahead About XR: Charting a Course for Virtual,
Augmented, and Mixed Reality, Bipartisan Policy Center, April 2022, p. 10, at https://bipartisanpolicy.org/download/?
file=/wp-content/uploads/2022/04/XR-Report_Final-Copy.pdf.
12 Stefan Brambilla Hall and Cathy Li, What Is the Metaverse? And Why Should We Care? World Economic Forum,
Global Agenda Articles: The Metaverse, October 29, 2021, at https://www.weforum.org/agenda/2021/10/what-is-the-
metaverse-why-care/. See also Paul Daugherty, Marc Carrel-Billiard, and Michael Blitz, Meet Me in the Metaverse,
Accenture, The Technology Vision 2022 Report, p. 24, 2022, at https://www.accenture.com/_acnmedia/Thought-
Leadership-Assets/PDF-5/Accenture-Meet-Me-in-the-Metaverse-Full-Report.pdf.
13 In May 2017, Representatives Suzan DelBene, Yvette Clarke, Bill Flores, Darrell Issa, and Ted Lieu formed the
Congressional Caucus on Virtual, Augmented, and Mixed Reality Technologies for the 115th Congress, also known as
the “Reality Caucus.” The purpose of the caucus was to promote the advancing technologies of virtual reality,
augmented reality, and mixed reality to Members of Congress and their staff.
14 Reps. DelBene, Clarke, Flores, Issa and Lieu, “Reps. DelBene, Clarke, Flores, Issa and Lieu Form Reality Caucus,”
press release, May 3, 2017, at https://delbene.house.gov/news/documentsingle.aspx?DocumentID=1953.
15 For an introduction to the 5G technology, see CRS Report R45485, Fifth-Generation (5G) Telecommunications
Technologies: Issues for Congress, by Jill C. Gallagher and Michael E. DeVine; for an overview of blockchain
applications, see CRS Report R47064, Blockchain: Novel Provenance Applications, by Kristen E. Busch.
16 For general information of content moderation related to social media, see CRS Report R46662, Social Media:
Misinformation and Content Moderation Issues for Congress, by Jason A. Gallo and Clare Y. Cho; for an introduction
to data privacy law, see CRS In Focus IF11207, Data Protection and Privacy Law: An Introduction, by Stephen P.
Mulligan and Chris D. Linebaugh; for information and analysis of antitrust issues related to large technology
companies, see CRS Report R45910, Antitrust and “Big Tech”, by Jay B. Sykes. The digital divide refers to “the gap
between those who have access to broadband internet and those who do not.” See CRS In Focus IF12030, The
Broadband Digital Divide: What Comes Next for Congress?, by Colby Leigh Rachfal.
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Key Metaverse Concepts
The concept and idea of a virtual world as we currently understand it can be traced to the 1960s
when scholars proposed a kinesthetic human-computer interface with interactive graphics, force-
feedback, body movements, and sound.17 After decades of advances in computing power and
networking and communication technologies, some technologists, innovators, entrepreneurs,
investors, and journalists believe that the physical world and computer-generated virtual worlds
are converging.18 The term metaverse has been in use since at least 199219 and currently it
generally refers to the concept of an immersive and persistent virtual world where users can
communicate and interact with other users and the surrounding environment and engage in social
activities, similar to interactions in the physical world.
Some business and technology leaders assert that the metaverse does not refer to any specific
technology but rather a shift in how users interact with online technologies, services, platforms,
and each other.20 Under this framework, the metaverse represents changes that, if actualized,
might eventually transform the architecture (e.g., communications and network infrastructure,
hardware and software, and human-computer interfaces) and operation of the internet (e.g.,
content production and consumption and user interaction with platforms and services).21 Others
assert that the metaverse is inevitable, given the shift to virtual environments sparked by the
COVID-19 pandemic and the expansion of massively multiplayer online (MMO) games such as
Fortnite and Roblox.22 These MMO platforms are sometimes seen as “proto-metaverses,” offering
some virtual interactive user experiences (e.g., virtual concerts with fewer than 100 participants),
but limited by current technology and network capabilities from offering truly immersive and
persistent virtual experiences for large numbers (potentially billions) of users simultaneously.23
In contrast, many critics assert that the idea of the metaverse has been over-hyped, and its
promise and significance to the internet have been exaggerated. They argue that some companies
are merely attaching the label “metaverse” to long-existing human-computer interaction

17 Ivan E. Sutherland, “The Ultimate Display,” Proceedings of IFIP Congress, vol. 65, no. 2 (1965), pp. 506-508, at
http://papers.cumincad.org/data/works/att/c58e.content.pdf. See also Tomasz Mazuryk and Michael Gervautz, Virtual
Reality: History, Applications, Technology and Future, Institute of Computer Graphics, Vienna University of
Technology, Austria, Technology Report TR-186-2-96-06, 1996, at https://www.cg.tuwien.ac.at/research/publications/
1996/mazuryk-1996-VRH/TR-186-2-96-06Paper.pdf.
18 See Kian Bakhtiari, “Welcome to Hyperreality: Where the Physical and Virtual Worlds Converge,” Forbes,
December 30, 2020, at https://www.forbes.com/sites/kianbakhtiari/2021/12/30/welcome-to-hyperreality-where-the-
physical-and-virtual-worlds-converge/.
19 CRS conducted a literature search using the term “metaverse” and did not find any technical research articles in
English containing the word before 1992. Many scholars and journalists trace the origin of the term to Neal
Stephenson’s science fiction novel, Snow Crash (New York: Bantam Books, 1992). The metaverse was the author’s
vision of a wireless internet system with three-dimensional graphics and a virtual reality, which was populated by
digital avatars of real people and accessible via terminals on a worldwide fiber-optics network using special goggles.
20 Eric Ravenscraft, “What Is the Metaverse, Exactly?” WIRED, November 25, 2021, at https://www.wired.com/story/
what-is-the-metaverse/.
21 Ibid. See also Paul Daugherty, Marc Carrel-Billiard, and Michael Blitz, Meet Me in the Metaverse, Accenture, The
Technology Vision 2022 Report, p. 24, 2022, at https://www.accenture.com/_acnmedia/Thought-Leadership-Assets/
PDF-5/Accenture-Meet-Me-in-the-Metaverse-Full-Report.pdf.
22 Alexander Lee, “With the Metaverse Hype Cycle at Full Blast, Experts Take the Long View,” Digiday, August 4,
2021, at https://digiday.com/marketing/with-the-metaverse-hype-cycle-at-full-blast-experts-take-the-long-view/.
23 Edd Gent, “What Can the Metaverse Learn from Second Life?” IEEE Spectrum, November 29, 2021, at
https://spectrum.ieee.org/metaverse-second-life.
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technologies and their applications, such as online video games.24 Some skeptics have raised
concerns about the possibility that problems similar to those that some MMO games have faced—
inability to sustain user interest, lack of sustainable business models, and the prevalence of
inappropriate and unlawful content—might be replicated in the development of the metaverse.25
The trajectory of metaverse development is unclear. The myriad devices, platforms, applications,
and services that may contribute to it are developed by a heterogeneous set of global actors with
different business models, objectives, foci, and priorities.26 A single metaverse may emerge with
collective virtual spaces with shared protocols and standards, like the current internet ecosystem,
to support applications and services from different companies and service providers. Some
executives of Meta Platforms, Inc. (formerly Facebook, Inc.) have asserted that the metaverse
will not be created by one company, but rather by many companies, each contributing various
building blocks with a consideration of interoperability with other companies.27 Alternatively,
some experts anticipate “a multiverse of metaverses,” each with different focus, business model,
and form and currently developed by leading platform players in the sectors including online
games, digital commerce, virtual collaboration, and entertainment.28 In the latter scenario, if the
companies that develop metaverse platforms and services opt for proprietary technologies and
standards,29 they may preclude interoperation with the platforms and services of other providers.30
This report uses the term “the metaverse” to refer to the general concept and its related
technologies but not a specific configuration of devices, platforms, applications, and services. The
metaverse is likely to feature three key characteristics that differentiate it from two-dimensional
(2D) online applications: (1) an immersive, three dimensional (3D) user experience; (2) real-time,
persistent network access; and (3) interoperability across networked platforms. The remainder of
this section examines these three concepts.
Immersive User Experience
The concept of an immersive user experience is to provide users with an enhanced, individual
feeling of presence and immersion within a virtual 3D world, expanding the human-computer
interface beyond a 2D (sometimes referred to as “flat”) computer or smartphone screen.31

24 Harry Robertson, “Wall Street Is Pumped About the Metaverse. But Critics Say It’s Massively Overhyped and Will
Be a Regulatory Minefield.” Business Insider, December 25, 2021, at https://markets.businessinsider.com/news/stocks/
metaverse-outlook-overhyped-regulations-facebook-meta-virtual-worlds-genz-2021-12.
25 Leah J. Williams, “The Metaverse Is Not New, and It Won’t Change the World,” GamesHub, November 30, 2021, at
https://www.gameshub.com/news/opinions-analysis/metaverse-facebook-gaming-virtual-worlds-8573/.
26 Paul Daugherty, Marc Carrel-Billiard, and Michael Blitz, Meet Me in the Metaverse, Accenture, The Technology
Vision 2022 Report, p. 7, 2022, at https://www.accenture.com/_acnmedia/Thought-Leadership-Assets/PDF-5/
Accenture-Meet-Me-in-the-Metaverse-Full-Report.pdf.
27 See Mark Zuckerberg, Founder’s Letter, 2021, Meta, October 28, 2021, at https://about.fb.com/news/2021/10/
founders-letter/. The concept of interoperability is discussed in the sub-section of “Interoperability” in this report.
28 Michael Gurau, “A Multiverse of Metaverses,” Forbes, March 22, 2022, at https://www.forbes.com/sites/
forbestechcouncil/2022/03/22/a-multiverse-of-metaverses/.
29 Andrew Morse and Scott Stein, “The Metaverse Is on the Way: Here’s What You Need to Know,” CNET, March 27,
2022, at https://www.cnet.com/tech/services-and-software/the-metaverse-is-on-the-way-heres-what-you-need-to-know/
.
30 Stephen Shankland, “The Metaverse Will Be a Multi-Platform Mess,” CNET, March 26, 2022, at
https://www.cnet.com/tech/computing/features/here-comes-the-multi-metaverse-mess/.
31 Telepresence or virtual presence is a psychological state or subjective perception in which a user does not notice the
role of a technology in the user experience, even though part or all of the experience is generated by the technology.
See International Society for Presence Research, Presence Defined, at https://ispr.info/about-presence-2/about-
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Academic research on virtual presence has shown that the sense of embodiment may contribute to
users’ positive experience in the virtual environment.32 Some enthusiasts describe the metaverse
as the “embodied internet”—where users are within the internet, “not just looking at it.”33
Persistent Network Access
Users’ experience of presence in the metaverse could be further enhanced if the virtual
environment is persistent—it does not “disappear” when a user has finished using it (e.g., when
the user logs off).34 A persistent virtual space would continue to exist and evolve even when no
users interact with it.35 Moreover, it is available to users whenever and wherever they want.36
Achieving persistence would require computing and data architectures capable of hosting always-
on, interconnected virtual spaces as well as high-bandwidth,37 low-latency,38 wireless networks to
support user devices and provide real-time access to the metaverse.39
To achieve this requirement, services and platforms in the metaverse would likely require high-
performance computing devices.40 A virtual environment would generate an immense number of
textured, high definition 3D objects, as well as their positions, motions, sounds, surroundings, and
simulated interactions with other objects and users.41 The amount of data created and transmitted

presence/. See also Paul Daugherty, Marc Carrel-Billiard, and Michael Blitz, Meet Me in the Metaverse, Accenture,
The Technology Vision 2022 Report, p. 24, 2022, at https://www.accenture.com/_acnmedia/Thought-Leadership-
Assets/PDF-5/Accenture-Meet-Me-in-the-Metaverse-Full-Report.pdf.
32 See International Society for Presence Research, About Presence, at https://ispr.info/about-presence-2/.
33 Paul Daugherty, Marc Carrel-Billiard, and Michael Blitz, Meet Me in the Metaverse, Accenture, The Technology
Vision 2022 Report, p. 24, 2022, at https://www.accenture.com/_acnmedia/Thought-Leadership-Assets/PDF-5/
Accenture-Meet-Me-in-the-Metaverse-Full-Report.pdf. See also Mark Zuckerberg, Founder’s Letter, 2021, Meta,
October 28, 2021, at https://about.fb.com/news/2021/10/founders-letter/.
34 Andrew Morse and Scott Stein, “The Metaverse Is on the Way: Here’s What You Need to Know,” CNET, March 27,
2022, at https://www.cnet.com/tech/services-and-software/the-metaverse-is-on-the-way-heres-what-you-need-to-know/
. See also Matthew Ball, The Metaverse: What It Is, Where to Find It, and Who Will Build It, MatthewBall.vc, The
Metaverse Primer, January 13, 2020, at https://www.matthewball.vc/all/themetaverse.
35 Richard A. Bartle, Designing Virtual Worlds (San Francisco, CA: New Riders, 2004), p. 2.
36 Srushti IMX, “Why Commonness and Interoperability Is Critical in Metaverse,” at https://srushtiimx.com/blog/why-
commonness-and-interoperability-is-critical-in-metaverse/.
37 Bandwidth is the data transfer capacity of a digital communications network. In general, multimedia data (e.g.,
graphics, audio, and video) in digital form (i.e., represented by binary codes) consumes more bandwidth than text-
based data does during a data communication.
38 A network latency indicates the amount of time it takes a network to transmit a piece of data between two nodes in
the network. It could be one-way (i.e., the time from the sender to the receiver) or round-trip (i.e., the time from the
sender to the receiver plus the time from the receiver back to the sender). High latencies may affect the quality of some
interactive services perceived by users. Latency is one of the key network performance metrics, particularly for real-
time internet services such as video chat, video conferencing, and online multiplayer games. FCC, Eleventh Measuring
Broadband America Fixed Broadband Report, The FCC Office of Engineering and Technology, December 31, 2021, p.
10, at https://data.fcc.gov/download/measuring-broadband-america/2021/2021-Fixed-Measuring-Broadband-America-
Report.pdf.
39 Derek Robertson, “The Arms Race to Build the Metaverse,” Politico, May 4, 2022, at https://www.politico.com/
newsletters/digital-future-daily/2022/05/04/the-arms-race-to-build-the-metaverse-00030029.
40 Matthew S. Smith, “Is the Metaverse Even Feasible?” IEEE Spectrum, March 21, 2022, at https://spectrum.ieee.org/
is-the-metaverse-even-feasible.
41 See examples of Microsoft Flight Simulator and other online games described in Matthew Ball and Jacob Navok,
Networking and the Metaverse, MatthewBall.vc, The Metaverse Primer, June 29, 2021, at https://www.matthewball.vc/
all/networkingmetaverse.
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in the metaverse at any time would be likely at the gigabyte (GB) scale.42 Data volume could
increase rapidly during a real-time event (e.g., a live online concert) involving a large number of
geographically dispersed participants generating dynamic input (e.g., text and voice comments),
actions (e.g., interacting with others), and reactions (e.g., cheering). An Intel executive suggested
that the metaverse would require “a 1,000-times increase in computational efficiency from
today’s state of the art.”43
The data architecture supporting the metaverse would also need symmetrical network
bandwidth—not only a high download speed but also a high upload speed to transfer user-
generated rich media data from their devices back to the network.44 The current speed benchmark
for fixed broadband service adopted by the Federal Communications Commission (FCC) is
asymmetrical—25 megabits per second (Mbps) for download and 3 Mbps for upload (25/3
Mbps).45 Most broadband services using coaxial cable or digital subscriber line (DSL)
technologies provide greater download speeds than upload speeds, while service providers using
the fiber technology claim their network bandwidths are nearly symmetrical.46
Moreover, to be truly immersive and persistent, a user’s experience of the metaverse should have
an imperceptible lag between the user’s actions and simulated reactions; for example, some
experts suggest a network latency of 20 milliseconds (ms) or less.47 According to the data
collected by the FCC in September and October 2020, latencies of DSL networks ranged from 21
ms to 37 ms; latencies of cable networks were between 12 ms to 26 ms; and latencies were lowest
for fiber networks, from 8 ms to 13 ms.48

42 For comparison, Netflix, an online video streaming platform, estimates that watching high-definition video on its app
consumes between 1 and 3 GB of data per hour, per device. See Netflix, “How to Control How Much Data Netflix
Uses,” at https://help.netflix.com/en/node/87. In an existing example similar to the immersive, virtual environment of
the metaverse, Microsoft Flight Simulator, an amateur flight simulation program, creates 2.5 million GB of data
rendering 2 trillion trees, 1.5 billion buildings, and roads, mountains, cities, and airports around the world in its
simulated environment. See Matthew Ball and Jacob Navok, Networking and the Metaverse, MatthewBall.vc, The
Metaverse Primer, June 29, 2021, at https://www.matthewball.vc/all/networkingmetaverse.
43 Raja Koduri, Powering the Metaverse, Intel, December 14, 2021, at https://www.intel.com/content/www/us/en/
newsroom/opinion/powering-metaverse.html.
44 Mike Dano, “Why 5G Is Uniquely Ill-Equipped to Support the Metaverse,” Light Reading, March 1, 2022, at
https://www.lightreading.com/the-edge/why-5g-is-uniquely-ill-equipped-to-support-metaverse/a/d-id/775668.
45 FCC, Fourteenth Broadband Deployment Report, FCC 21-18, January 19, 2021, pp. 6-7, at https://docs.fcc.gov/
public/attachments/FCC-21-18A1.pdf. In July 2022, FCC Chairwoman Jessica Rosenworcel proposed to increase the
national broadband standard to 100 Mbps for download and 20 Mbps for upload. See FCC, “Chairwoman Rosenworcel
Proposes to Increase Minimum Broadband Speeds and Set Gigabit Future Goal,” press release, July 15, 2022, at
https://docs.fcc.gov/public/attachments/DOC-385322A1.pdf.
46 Jon Brodkin, “100Mbps Uploads and Downloads Should Be US Broadband Standard, Senators Say,” Ars Technica,
March 4, 2021, at https://arstechnica.com/tech-policy/2021/03/100mbps-uploads-and-downloads-should-be-us-
broadband-standard-senators-say/.
47 GSMA Future Networks, Cloud AR/VR Whitepaper, Global System for Mobile Communications (GSM) Association,
April 26, 2019, at https://www.gsma.com/futurenetworks/wiki/cloud-ar-vr-whitepaper/. See also Matthew S. Smith, “Is
the Metaverse Even Feasible?” IEEE Spectrum, March 21, 2022, at https://spectrum.ieee.org/is-the-metaverse-even-
feasible.
48 FCC, Eleventh Measuring Broadband America Fixed Broadband Report, The FCC Office of Engineering and
Technology, December 31, 2021, pp. 17-18, at https://data.fcc.gov/download/measuring-broadband-america/2021/
2021-Fixed-Measuring-Broadband-America-Report.pdf.
As of August 2022, the FCC has not published reports measuring mobile broadband in the United States. According to
Ookla, a network testing and analysis company that operates the Speedtest program, the median mobile download
speed in the United States in July 2022 was 60 Mpbs, the upload speed was 8 Mbps, and latency was 34 ms. See
Speedtest.net, “United States Median Speeds July 2022,” at https://www.speedtest.net/global-index/united-
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Interoperability
Interoperability—the ability to deliver an immersive and persistent virtual experience seamlessly
across multiple networked platforms or interconnected virtual spaces—is a key concept for
proponents of a unified metaverse. Interoperability would allow users to move between virtual
spaces and access different platforms and services using the same devices and digital assets (e.g.,
digital identity, currency, and objects).49 Common technical standards and protocols would be
necessary to enable interoperability and portability of data and content between platforms and
services.50 Some experts argue that mass adoption and success of the metaverse will require it to
be built on open standards and globally accepted protocols.51 This approach could potentially lead
to a unified user experience in an interconnected metaverse system.52 Some technical standards
groups are working on projects for “open metaverse interoperability.”53
Technologies Supporting the Metaverse
While many aspects of the metaverse are emerging, technologies that support an immersive user
experience and other potential metaverse functions exist and are evolving. This section surveys
some of major technologies that could serve as building blocks for the metaverse, including
extended reality, advanced wireless communications, and blockchain.
Extended Reality (XR)
An immersive user experience, as discussed in the previous section, depends on a host of human-
computer interface technologies, known by the umbrella term extended reality (XR). XR—the
extension of the reality perceived by users—refers to any technology that can alter the reality by
adding digital elements to the user’s environment.54 Some experts compare the early adoption of

states#mobile.
49 For example, with interoperability, the digital currency a user owns in one virtual space could be recognized,
accepted, and used in another space. See Rabindra Ratan and Yiming Lei, What Is the Metaverse? 2 Media and
Information Experts Explain, The Conversation, October 29, 2021, at https://theconversation.com/what-is-the-
metaverse-2-media-and-information-experts-explain-165731. See also Will Oremus, “In 2021, Tech Talked Up ‘The
Metaverse.’ One Problem: It Doesn’t Exist,” Washington Post, December 30, 2021, at
https://www.washingtonpost.com/technology/2021/12/30/metaverse-definition-facebook-horizon-worlds/; Akash
Takyar, Interoperability and the Future of the Metaverse, LeewayHertz, at https://www.leewayhertz.com/metaverse-
interoperability/; and Srushti IMX, “Why Commonness and Interoperability Is Critical in Metaverse,” at
https://srushtiimx.com/blog/why-commonness-and-interoperability-is-critical-in-metaverse/.
50 See Merav Ozair, “Interoperability: Unleashing the True Benefits of Web3 and the Metaverse,” Nasdaq, May 2,
2022, at https://www.nasdaq.com/articles/interoperability%3A-unleashing-the-true-benefits-of-web3-and-the-
metaverse.
51 Matthew Ball, The Metaverse: What It Is, Where to Find It, and Who Will Build It, MatthewBall.vc, The Metaverse
Primer, January 13, 2020, at https://www.matthewball.vc/all/themetaverse. See also Yiming Lei and Rabindra Ratan,
What Is the Metaverse? 2 Experts Explain, World Economic Forum, Global Agenda Articles: Fourth Industrial
Revolution, August 17, 2021, at https://www.weforum.org/agenda/2021/08/metaverse-media-information-experts/.
52 Andrew Morse and Scott Stein, “The Metaverse Is on the Way: Here’s What You Need to Know,” CNET, March 27,
2022, at https://www.cnet.com/tech/services-and-software/the-metaverse-is-on-the-way-heres-what-you-need-to-know/
.
53 See W3C, “Metaverse Interoperability Community Group,” at https://www.w3.org/community/metaverse-interop/.
See also W3C, “Immersive Web Community Group,” at https://www.w3.org/community/immersive-web/.
54 Laia Tremosa, Beyond AR vs. VR: What Is the Difference Between AR vs. MR vs. VR vs. XR? Interaction Design
Foundation, February 2022, at https://www.interaction-design.org/literature/article/beyond-ar-vs-vr-what-is-the-
difference-between-ar-vs-mr-vs-vr-vs-xr.
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XR wearable devices to the introduction of personal computers and smartphones, asserting that
XR technologies may become “the next major computing platform,” providing entry points and
means to experience the metaverse.55 XR includes technologies on a spectrum from devices that
project a digital overlay over physical objects (augmented reality, AR); devices that enable users
to interact with virtual objects displayed in the real-world environment (mixed reality, MR); to
devices that work only with a computer-generated virtual environment (virtual reality, VR).56 AR
and MR can use holographic projection technology to render 3D images and superimpose them
on the user’s view of the physical world.57 VR requires more computing power than augmented
reality and mixed reality (both discussed below) to render a real-time, high-definition, 3D virtual
world and process virtual objects and activities in it.58
Augmented Reality (AR)
Within the category of XR, AR provides an enhanced version, not a replacement, of a user’s
perception of physical reality. AR technologies enable the overlay of computer-generated content
(e.g., digital information, images, or sounds) onto physical world objects in real time.59 The level
of augmentation can vary from a simple information display to the addition of virtual objects.60
To access AR functions, users use smartphones or tablets with cameras, wearable see-through AR
glasses, or heads-up displays (HUDs).61 AR technologies often display contextual information
based on the real-world environment (see Figure 1).

55 Stefan B. Hall and Moritz Baier-Lentz, 3 Technologies That Will Shape the Future of the Metaverse—And the
Human Experience, World Economic Forum, February 7, 2022, at https://www.weforum.org/agenda/2022/02/future-
of-the-metaverse-vr-ar-and-brain-computer/. See also Stefan Brambilla Hall and Cathy Li, What Is the Metaverse? And
Why Should We Care? World Economic Forum, Global Agenda Articles: The Metaverse, October 29, 2021, at
https://www.weforum.org/agenda/2021/10/what-is-the-metaverse-why-care/.
56 Mark McGill, Extended Reality (XR) and the Erosion of Anonymity and Privacy, Institute of Electrical and
Electronics Engineers (IEEE), The IEEE Global Initiative on Ethics of Extended Reality (XR) Report, November 2021,
p. 6, at https://standards.ieee.org/wp-content/uploads/import/governance/iccom/extended-reality-anonymity-
privacy.pdf. See also Vasco Pereira, Teresa Matos, Rui Rodrigues, Rui Nóbrega and Joao Jacob, “Extended Reality
Framework for Remote Collaborative Interactions in Virtual Environments,” 2019 International Conference on
Graphics and Interaction (ICGI), Faro, Portugal, November 2019, p. 17, at https://ieeexplore.ieee.org/stamp/stamp.jsp?
tp=&arnumber=8955025&tag=1.
57 Daniel Ackerman, “Using Artificial Intelligence to Generate 3D Holograms in Real-Time,” MIT News, March 10,
2021, at https://news.mit.edu/2021/3d-holograms-vr-0310.
58 Arm Blueprint Staff, xR, AR, VR, MR: What’s the Difference in Reality? Arm, April 1, 2022, at
https://www.arm.com/blogs/blueprint/xr-ar-vr-mr-difference.
59 Oliver Bowling, “The Metaverse: Who Really Wins?” Oxford Business Review, December 9, 2021, at
https://oxfordbusinessreview.org/the-metaverse-who-really-wins/.
60 Fredrik Alriksson, Du Ho Kang, Chris Phillips, et al., “XR and 5G: Extended Reality at Scale with Time-Critical
Communication,” Ericsson Technology Review, no. 8, August 24, 2021, p. 2, at https://www.ericsson.com/4a492d/
assets/local/reports-papers/ericsson-technology-review/docs/2021/xr-and-5g-extended-reality-at-scale-with-time-
critical-communication.pdf.
61 HUD is an information system that “projects information onto a usually transparent surface that sits directly in a
user’s line of vision.” Merriam-Webster.com Dictionary, “Heads-up Display,” Merriam-Webster, at
https://www.merriam-webster.com/dictionary/heads-up%20displays. HUD technology has been used in aircraft and
automobiles to display navigation information directly on the windshield within an operator’s field of view.
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Figure 1. Example of Using AR Technology in Navigation

Source: Miroslav Lysyuk, World-Scale AR Navigation with ODG Wearables, Mapbox, January 19, 2018, at
https://blog.mapbox.com/world-scale-ar-navigation-with-odg-wearables-b344d0b17afc (with permission from the
author and Mapbox.com).
Notes: This image viewed in an AR wearable display integrates maps, location, and turn-by-turn directions with
the physical world around the user.
Some smartphone users have experienced basic forms of AR in mobile games and apps, such as
Pokémon Go and apps that enable shoppers to visualize furniture in their homes before making a
purchase decision.62 While AR provides users with a composite view of digital elements and
physical-world elements, the technology generally does not involve interaction with digital
elements.63 The physical environment acts as a background for the AR-generated view.64
Mixed Reality (MR)
In addition to allowing the projection of digital elements onto the physical environment (as in
AR), MR allows the user to interact with both digital and physical elements.65 This blending of
virtual objects with real environments creates a new, hybrid environment in which digital and
physical elements co-exist and react to each other, to an extent, in real time.66 Some experts assert

62 Fredrik Alriksson, Du Ho Kang, Chris Phillips, et al., “XR and 5G: Extended Reality at Scale with Time-Critical
Communication,” Ericsson Technology Review, no. 8, August 24, 2021, p. 2, at https://www.ericsson.com/4a492d/
assets/local/reports-papers/ericsson-technology-review/docs/2021/xr-and-5g-extended-reality-at-scale-with-time-
critical-communication.pdf.
63 Laia Tremosa, Beyond AR vs. VR: What Is the Difference Between AR vs. MR vs. VR vs. XR? Interaction Design
Foundation, February 2022, at https://www.interaction-design.org/literature/article/beyond-ar-vs-vr-what-is-the-
difference-between-ar-vs-mr-vs-vr-vs-xr.
64 Henrique Centieiro, “The Roles of VR, AR, and MR on the Metaverse,” DataDrivenInvestor, January 7, 2022, at
https://medium.datadriveninvestor.com/the-roles-of-vr-ar-and-mr-on-the-metaverse-593569cfb686.
65 Laia Tremosa, Beyond AR vs. VR: What Is the Difference Between AR vs. MR vs. VR vs. XR? Interaction Design
Foundation, February 2022, at https://www.interaction-design.org/literature/article/beyond-ar-vs-vr-what-is-the-
difference-between-ar-vs-mr-vs-vr-vs-xr.
66 Tiago Andrade and Daniel Bastos, “Extended Reality in IoT Scenarios: Concepts, Applications and Future Trends,”
2019 5th Experiment International Conference, Funchal, Portugal, June 2019, at https://ieeexplore.ieee.org/document/
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that in such a hybrid environment users can experience natural and intuitive 3D human-computer
interactions.67 For example, a user can interact with a digital object in the physical world as if it
were physically present there (see Figure 2).68
Figure 2. Example of User-object Interaction in an MR Environment

Source: Carols Fy, File: Entrenamiento-industrial-Fyware.jpg, Wikimedia Commons, October 11, 2017, at
https://commons.wikimedia.org/wiki/File:Entrenamiento-industrial-Fyware.jpg (used under the Creative
Commons Attribution-Share Alike 4.0 International license, at https://creativecommons.org/licenses/by-sa/4.0/
deed.en).
Notes: This image il ustrates a scenario where a user via a pair of MR glasses can see and interact with virtual
objects in a physical environment; in this example, for training purposes.
MR requires advanced input technologies that can capture a user’s body positions (e.g., head,
hand, and finger movements), objects, surfaces, distances, locations, boundaries, and ambient
lights and sounds.69 Through spatial perception technologies, MR can provide users with a more
natural, dynamic visualization of a digital object than a fixed-distance 2D display does.70 For
example, as a user moves away from a physical table on which a digital vase is placed, the vase
displayed in the user’s MR device would get smaller with increasing physical distance between
the user and the table.71

8876559.
67 Microsoft, What Is Mixed Reality? Mixed Reality: Discover Series, April 28, 2022, at https://docs.microsoft.com/en-
us/windows/mixed-reality/discover/mixed-reality.
68 Ibid.
69 Ibid.
70 Yashar Nezami, What Is the Metaverse and Why Does It Need 5G to Succeed? The Metaverse 5G Relationship
Explained, Ericsson Group, April 21, 2022, at https://www.ericsson.com/en/blog/2022/4/why-metaverse-needs-5g.
71 Ibid. Spatial perception technologies can also be used in AR.
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Virtual Reality (VR)
VR technologies create an immersive, 3D, computer-generated, artificial environment, which
replicates either the physical world or an imaginary world (see Figure 3).72 VR replaces the
user’s physical reality with a simulated one with realistic sounds, images, and other sensations.
Unlike AR and MR, VR does not incorporate the user’s actual physical surroundings.73
Figure 3. Example of Using VR Technology in Scientific Investigation

Source: The National Aeronautics and Space Administration (NASA), Experiments: Technology Development and
Demonstration: Pilote, at https://www.nasa.gov/mission_pages/station/research/experiments/explorer/
Investigation.html?#id=8347.
Notes: NASA’s Pilote program studies remote operation of robotic arms and space vehicles. The image shows a
NASA astronaut participating in the investigation, wearing a VR headset, using hand-held control ers, and
interacting with a computer-generated robotic arm.
A user can see and interact with a VR environment from a first-person perspective or through a
digital avatar—a digital representation of the human user, which facilitates interactions with other
users, virtual objects, or the surrounding environment.74 Users can access VR environments using
hardware such as headsets, hand-held controllers, gloves, body sensors, and motion detectors75
and via software such as computer games, applications, and operating systems. Advances in

72 Oliver Bowling, “The Metaverse: Who Really Wins?” Oxford Business Review, December 9, 2021, at
https://oxfordbusinessreview.org/the-metaverse-who-really-wins/. See also Henrique Centieiro, “The Roles of VR, AR,
and MR on the Metaverse,” DataDrivenInvestor, January 7, 2022, at https://medium.datadriveninvestor.com/the-roles-
of-vr-ar-and-mr-on-the-metaverse-593569cfb686.
73 Henrique Centieiro, “The Roles of VR, AR, and MR on the Metaverse,” DataDrivenInvestor, January 7, 2022, at
https://medium.datadriveninvestor.com/the-roles-of-vr-ar-and-mr-on-the-metaverse-593569cfb686.
74 Kristine L. Nowak and Jesse Fox, “Avatars and Computer-Mediated Communication: A Review of the Definitions,
Uses, and Effects of Digital Representations,” Review of Communication Research, vol. 6, 2018, p. 34, at
https://doi.org/10.12840/issn.2255-4165.2018.06.01.015.
75 Henrique Centieiro, “The Roles of VR, AR, and MR on the Metaverse,” DataDrivenInvestor, January 7, 2022, at
https://medium.datadriveninvestor.com/the-roles-of-vr-ar-and-mr-on-the-metaverse-593569cfb686.
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haptic wearable technologies76 have enabled users to embody their avatars (i.e., make the avatar
move and react in response to the user’s own movements) and use hand-tracking controllers to
interact with virtual objects by making real-world gestures.77
VR currently faces some technical challenges. Current graphic rendering is not truly
photorealistic, so the user experience, while immersive, may not feel completely natural.78
Moreover, some users experience motion sickness after prolonged wearing of a VR headset.
Sensations can include “general discomfort, apathy, drowsiness, headache, disorientation, or
fatigue.”79 To mitigate these sensations, some experts suggest that VR needs improved
technologies that provide users with graphical displays with fast screen refreshing rates and
natural depth and light perception, spatialized audio, and interfaces using natural gestures and
movements.80
Brain-Computer Interface (BCI)
BCI technology, based on research at the intersection of neuroscience and computing, aims to
replace traditional screens and input devices on computers and mobile devices with direct
connections to the user’s brain, by picking up and relaying the brain’s internal electrical activity
either through implantable sensors or by capturing electroencephalographic (EEG) activity at the
scalp through non-invasive wearable devices.81 With BCI, a user’s interaction with a computing
device does not depend on the user’s peripheral nerves and muscles.82 Rather, a BCI device
captures a user’s neural signals and translates the user’s mental intent directly into action. For
example, the user might control and move a drone just by thinking of directional commands.83
BCI technology may provide a better cognitive user interface in the metaverse than existing
AR/MR/VR devices do,84 by enabling users to control digital avatars, objects, and interactions
with brain signals.85 A core element of BCI is an algorithm that converts electrophysiological

76 Haptic technologies enable HCI through touch and external forces. “Unlike traditional interfaces such as displays and
sound devices, haptic devices render mechanical signals (i.e., external force) that stimulate human touch and
kinesthetic channels.” Carlos Bermejo and Pan Hui, “A Survey on Haptic Technologies for Mobile Augmented
Reality,” ACM Computing Surveys, vol. 54, no. 9 (December 2021), pp. 1-35, at https://doi.org/10.1145/3465396.
77 Kyle Orland, “So What Is ‘The Metaverse,’ Exactly?” Ars Technica, November 7, 2021, at https://arstechnica.com/
gaming/2021/11/everyone-pitching-the-metaverse-has-a-different-idea-of-what-it-is/.
78 Louis Rosenberg, “There Are Two Kinds of Metaverse. Only One Will Inherit the Earth,” Big Think, January 11,
2022, at https://bigthink.com/the-future/metaverse-augmented-virtual-reality/.
79 Tiago Andrade and Daniel Bastos, “Extended Reality in IoT Scenarios: Concepts, Applications and Future Trends,”
2019 5th Experiment International Conference, Funchal, Portugal, June 2019, at https://ieeexplore.ieee.org/document/
8876559.
80 Ibid.
81 See Antonio Regalado, “Elon Musk’s Neuralink Is Neuroscience Theater,” MIT Technology Review, August 30,
2020, at https://www.technologyreview.com/2020/08/30/1007786/elon-musks-neuralink-demo-update-neuroscience-
theater/. See also Alexandre Gonfalonieri, “What Brain-Computer Interfaces Could Mean for the Future of Work,”
Harvard Business Review, October 6, 2020, at https://hbr.org/2020/10/what-brain-computer-interfaces-could-mean-for-
the-future-of-work.
82 Jonathan R. Wolpaw (Guest Editor), et al., “Brain-Computer Interface Technology: A Review of the First
International Meeting,” IEEE Transactions On Rehabilitation Engineering, vol. 8, no. 2 (June 2000), p. 164.
83 Marissa Norris, Brain-Computer Interfaces Are Coming. Will We Be Ready? RAND Corporation, August 27, 2020,
at https://www.rand.org/blog/articles/2020/08/brain-computer-interfaces-are-coming-will-we-be-ready.html.
84 See Amir R. Asadi, “BCI for Metaverse,” Association for Computing Machinery (ACM), March 24, 2022, at
https://metaverse.acm.org/bci-for-interaction-with-metaverse/.
85 Niel Patel, “Which Technologies Is Used to Make a Metaverse? Metaverse Development Technologies,”
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input from the user into commands that control devices.86 Recently, such algorithms have used
machine learning and other artificial intelligence (AI) techniques to improve its processing
efficiency, potentially leading to conversions fast enough for real-time interaction.87
Fifth-Generation (5G) and Next-Generation Wireless Networks
As discussed previously in “Persistent Network Access,” the metaverse would require a high-
bandwidth, low-latency, and reliable internet infrastructure to deliver an immersive, persistent,
and interoperable virtual experience. The real-time and portable access to the virtual world via
mobile devices would also require advanced wireless communications technologies. Fourth-
generation (4G) wireless telecommunications technologies do not support the bandwidth, latency,
and reliability required by the metaverse.88 5G89 and next-generation (e.g., 6G) wireless
telecommunications technologies may be able to support data-intensive metaverse applications.
5G
5G represents the next iteration of wireless communications technologies that were designed to
improve 4G mobile networks.90 Some experts assert that the high-speed data transmission in 5G
networks will enable data-intensive XR applications.91 In particular, a high-bandwidth 5G
network could shift some intensive XR processing and functionality (e.g., graphical rendering)
from users’ local devices to high-performance servers at the edge of the 5G network92—a strategy
called edge computing.93 The 5G network could then deliver data from the edge server back to the
user’s mobile XR device with low latency.94 5G networks may also facilitate latency-sensitive
applications such as on-device head tracking, controller tracking, hand tracking, and motion
tracking and thus improve the user experience with lightweight and cost-efficient XR devices.95

MakeAnAppLike, December 26, 2021, at https://makeanapplike.com/top-metaverse-development-technologies/.
86 Jonathan R. Wolpaw (Guest Editor), et al., “Brain-Computer Interface Technology: A Review of the First
International Meeting,” IEEE Transactions On Rehabilitation Engineering, vol. 8, no. 2 (June 2000), p. 164.
87 See Sissi Cao, “Snap’s Latest Acquisition Is a Bet on a Metaverse Controlled by Thoughts,” Observer, March 24,
2022, at https://observer.com/2022/03/snap-acquire-nextmind-brain-computer-interface-metaverse/.
88 AT&T, “AT&T 5G Powers Proof-of-Concept Harry Potter Virtual Reality Experience,” press release, July 14, 2021,
at https://about.att.com/newsroom/2021/5g_harry_potter.html.
89 For more information of the 5G technology, see CRS Report R45485, Fifth-Generation (5G) Telecommunications
Technologies: Issues for Congress, by Jill C. Gallagher and Michael E. DeVine.
90 Ibid.
91 Fredrik Alriksson, Du Ho Kang, Chris Phillips, et al., “XR and 5G: Extended Reality at Scale with Time-Critical
Communication,” Ericsson Technology Review, no. 8, August 24, 2021, p. 2, at https://www.ericsson.com/4a492d/
assets/local/reports-papers/ericsson-technology-review/docs/2021/xr-and-5g-extended-reality-at-scale-with-time-
critical-communication.pdf.
92 Balaji Ethirajulu, How 5G and Edge Computing Can Enhance Virtual Reality, Ericsson Group, April 8, 2020, at
https://www.ericsson.com/en/blog/2020/4/how-5g-and-edge-computing-can-enhance-virtual-reality.
93 Edge computing is a geographically distributed computing concept that enables application services to be processed
and hosted on cloud servers close to end users (i.e., “at the edge of a network”). See Suresh Chitturi, “Enabling Edge
Computing Applications in 3GPP,” 3GPP (The 3rd Generation Partnership Project) HIGHLIGHTS, Issue 01,
September 2020, at https://www.3gpp.org/news-events/2152-edge_sa6.
94 Balaji Ethirajulu, How 5G and Edge Computing Can Enhance Virtual Reality, Ericsson Group, April 8, 2020, at
https://www.ericsson.com/en/blog/2020/4/how-5g-and-edge-computing-can-enhance-virtual-reality.
95 Fredrik Alriksson, Du Ho Kang, Chris Phillips, et al., “XR and 5G: Extended Reality at Scale with Time-Critical
Communication,” Ericsson Technology Review, no. 8, August 24, 2021, p. 3, at https://www.ericsson.com/4a492d/
assets/local/reports-papers/ericsson-technology-review/docs/2021/xr-and-5g-extended-reality-at-scale-with-time-
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According to the International Telecommunication Union (ITU), one version of 5G technology
can yield peak data rates up to 140 gigabits per second (Gbps) in the download link and 65 Gbps
in the upload link.96 According to 3GPP, a global consortium of national and regional
telecommunications standards organizations,97 a 5G system qualifying its wireless service
requirements to support AR/VR applications could achieve an end-to-end latency in the range of
5-10 milliseconds while maintaining high-definition graphical resolution and user-experienced
data rate of 10 Gpbs for both download and upload links,98 and network reliability of data
delivery of at least 99.9%.99
6G
6G represents the next generation of wireless communications technologies projected to follow
and improve 5G data networks. 6G is in the early stage of research and development. Institutions
in the United States, China, India, Japan, South Korea, and countries in the European Union have
launched 6G research initiatives. Various telecommunications providers, equipment makers, and
industry consortia are developing 6G technologies. 6G is expected to achieve a download speed
of one terabit per second (1 Tbps; 1 Tb is equal to 1,000 Gb), 10-100 times faster than 5G;100
latency in the range of 10-100 microseconds (1 microsecond is equal to 1/1000 millisecond), 50-
1,000 times less than 5G;101 and network reliability of 99.999%, versus 5G’s 99.9%.102
Blockchain
Blockchain103 is a technology that permanently records information (e.g., commercial
transactions) in an interconnected database called a ledger.104 Blockchain ledgers rely on a
distributed-network proof system to prevent falsification or double spending.105 All participating

critical-communication.pdf.
96 ITU-R (Radiocommunication Sector of ITU), Detailed Specifications of the Terrestrial Radio Interfaces of
International Mobile Telecommunications-2020 (IMT-2020), ITU, Recommendation ITU-R M.2150-1, February 2022,
p. 24, at https://www.itu.int/dms_pubrec/itu-r/rec/m/R-REC-M.2150-1-202202-I!!PDF-E.pdf.
97 The seven organizations, as 3GPP’s Organizational Partners, are from China, Europe, India, Japan (two
organizations), South Korea, and the United States. They transpose the technical specifications developed by 3GPP into
technical standards. See 3GPP, “Partners,” at https://www.3gpp.org/about-3gpp/partners.
98 3GPP, Service Requirements for the 5G System, 3GPP TS 22.261, version 17.10.0, Release 17, March 2022, p. 58.
99 Reliability is the percentage of data packets successfully delivered to a given device within the time constraint
required by the targeted service out of all the packets transmitted. See ibid., pp. 11, 58.
100 Aarno Pärssinen, Mohamed-Slim Alouini, Markus Berg, et al., White Paper on RF Enabling 6G—Opportunities and
Challenges from Technology to Spectrum, University of Oulu, 6G Research Visions, No. 13, April 12, 2021, p. 7, at
http://jultika.oulu.fi/files/isbn9789526228419.pdf.
101 Rajesh Gupta, Dakshita Reebadiya, and Sudeep Tanwar, “6G-Enabled Edge Intelligence for Ultra-Reliable Low
Latency Applications: Vision and Mission,” Computer Standards & Interfaces, vol. 77, August 2021, at https://doi.org/
10.1016/j.csi.2021.103521.
102 Zoran Bojkovic, Dragorad Milovanovic, Tulsi P. Fowdur, et al., “6G Ultra-Low Latency Communication in Future
Mobile XR Applications,” 6th International Symposium on Signal Processing and Intelligent Recognition Systems,
Chennai, India, October 14-17, 2020, pp. 302-312, at https://link.springer.com/chapter/10.1007/978-981-16-0425-6_22.
103 For more information about blockchain applications, see CRS Report R47064, Blockchain: Novel Provenance
Applications, by Kristen E. Busch.
104 Rabindra Ratan and Dar Meshi, Why You Can’t Have the Metaverse Without a Blockchain, World Economic Forum,
January 20, 2022, at https://www.weforum.org/agenda/2022/01/metaverse-crypto-blockchain-virtual-world.
105 Joshua A.T. Fairfield, “Bitproperty,” Southern California Law Review, vol. 88, 2015, p. 820, at
https://southerncalifornialawreview.com/wp-content/uploads/2018/01/88_805.pdf.
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nodes (i.e., computing devices) in a blockchain network share, maintain, and verify transactional
data published to the network, making records tamper-resistant.106 In order to add a block of new
data to the blockchain, participating nodes must reach a consensus to validate the legitimacy of
the block following the rules of the blockchain.107 This consensus-driven recording system is
cryptographically secured and difficult to defraud.108
Some metaverse enthusiasts argue that the success of the metaverse depends on developing a
virtual economy with profitable businesses, capital mobility, and strong consumer spending,109
enabling companies and individuals to build, trade, and invest in virtual products, goods, and
services.110 These activities would require a viable financial infrastructure to support commercial
transactions parallel to, or extending, those occurring in the physical world. Some metaverse
proponents are optimistic that blockchain-based digital currencies (i.e., cryptocurrency) and
financial services could provide the underlying transaction system for the virtual world.
Blockchain-based cryptocurrencies could serve as a payment method in metaverse transactions.111
Proponents argue that blockchain use in the metaverse could facilitate fast, secure, trusted, and
transparent online transactions without a centralized oversight body.112 Moreover, those who
advocate for a decentralized metaverse (i.e., one not owned and controlled by a handful of
companies) argue that blockchain could also serve as the technological backbone to build
decentralized and distributed applications, services, platforms, and communities in the
metaverse.113
Other experts believe that the metaverse could exist without blockchain technology.114 Users can
complete transactions of digital assets using traditional electronic payment systems.115 Leading
platform players could agree on open and common standards to enable interoperability of digital
assets in the metaverse without blockchain.116 Prices of blockchain-based cryptocurrencies

106 CRS Report R47064, Blockchain: Novel Provenance Applications, by Kristen E. Busch.
107 Ibid.
108 Ibid. See also Rabindra Ratan and Dar Meshi, Why You Can’t Have the Metaverse Without a Blockchain, World
Economic Forum, January 20, 2022, at https://www.weforum.org/agenda/2022/01/metaverse-crypto-blockchain-
virtual-world.
109 Matthew Ball, Payments, Payment Rails, and Blockchains, and the Metaverse, MatthewBall.vc, The Metaverse
Primer, June 29, 2021, at https://www.matthewball.vc/all/metaversepayments.
110 Stefan Brambilla Hall and Cathy Li, What Is the Metaverse? And Why Should We Care? World Economic Forum,
Global Agenda Articles: The Metaverse, October 29, 2021, at https://www.weforum.org/agenda/2021/10/what-is-the-
metaverse-why-care/.
111 See Edd Gent, “What Can the Metaverse Learn from Second Life?” IEEE Spectrum, November 29, 2021, at
https://spectrum.ieee.org/metaverse-second-life.
112 Alexander Lee, “WTF Is the Metaverse?” DIGIDAY, July 26, 2021, at https://digiday.com/marketing/wtf-is-the-
metaverse/. See also Niel Patel, “Which Technologies Is Used to Make a Metaverse? Metaverse Development
Technologies,” MakeAnAppLike, December 26, 2021, at https://makeanapplike.com/top-metaverse-development-
technologies/.
113 Adi Robertson and Jay Peters, “What Is the Metaverse, and Do I Have to Care?” The Verge, October 4, 2021, at
https://www.theverge.com/22701104/metaverse-explained-fortnite-roblox-facebook-horizon. See also Jake
Frankenfield, “Decentralized Applications (dApps),” Investopedia, November 16, 2021, at
https://www.investopedia.com/terms/d/decentralized-applications-dapps.asp.
114 Andrew Singer, “Does the Metaverse Need Blockchain to Ensure Widespread Adoption?” Cointelegraph, July 4,
2022, at https://cointelegraph.com/news/does-the-metaverse-need-blockchain-to-ensure-widespread-adoption.
115 Ibid.
116 Derek Robertson, “Does the Metaverse Need Crypto?” POLITICO, April 27, 2022, at https://www.politico.com/
newsletters/digital-future-daily/2022/04/27/does-the-metaverse-need-crypto-00028273.
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fluctuate and may create value volatility and market uncertainty.117 Blockchain may also pose
regulatory challenges due to potential anonymized criminal transactions and financial fraud.118
Non-Fungible Tokens (NFTs)
A non-fungible token is a unique digital identifier recorded in a blockchain with its associated
metadata.119 When attached to a particular asset (e.g., a piece of digital artwork or a musical
recording), the NFT can be used to verify the authenticity and provenance of the underlying asset,
certify its ownership, or represent a right to use, copy, or display the asset.120 NFTs and the assets
they represent can be traded online and could potentially support commercial transactions of
virtual goods and identity management (of digital avatars, for example) in the metaverse.121
Select Companies Developing Metaverse
Technologies and Services
A number of large technology companies (known collectively as “big tech”) have invested
heavily in the metaverse, developing and acquiring technologies122 and seeking to obtain a first-
mover advantage.123 This section highlights select companies in the United States, which
currently engage in the development and investment related to the metaverse.
Second Life, released in 2003, is arguably the first example of a large-scale 3D virtual world to be
implemented and commercialized.124 It created an online multiplayer, role-playing, multimedia,
3D platform for users, through their avatars, to explore virtual spaces, play games, make and meet
friends, join social events, create and trade virtual goods and services, take online classes,
participate in meetings, and have “a second life” in the virtual world.125
An event that increased public awareness of the metaverse concept was Facebook Inc.’s corporate
name change in late 2021 to Meta Platforms, Inc. (Meta) and the company’s shift in emphasis to

117 Ibid.
118 Ibid.
119 CRS Report R47189, Non-Fungible Tokens (NFTs), by Kristen E. Busch. Metadata is the data that provides
information about other data. For example, a digital document may include metadata that describes the size, type, and
author of the file and when it was created and modified.
120 Sam Dean, “$69 Million for Digital Art? The NFT Craze Explained,” Los Angeles Times, March 11, 2021, at
https://www.latimes.com/business/technology/story/2021-03-11/nft-explainer-crypto-trading-collectible.
121 Stefan Brambilla Hall and Cathy Li, What Is the Metaverse? And Why Should We Care? World Economic Forum,
Global Agenda Articles: The Metaverse, October 29, 2021, at https://www.weforum.org/agenda/2021/10/what-is-the-
metaverse-why-care/.
122 Matt O’Brien and Kelvin Chan, “Explainer: What Is the Metaverse and How Will It Work?” ABC News, October
28, 2021, at https://abcnews.go.com/Business/wireStory/explainer-metaverse-work-80842516. See also Cecilia
D’Anastasio, “The Metaverse Is Simply Big Tech, but Bigger,” Wired, November 4, 2021, at https://www.wired.com/
story/big-tech-metaverse-internet-consolidation-business/.
123 First-mover advantage is the idea that by being the first to enter a new market, a business gains a competitive
advantage over its actual and potential rivals leading to higher revenues and profits over time. See Fernando F. Suarez
and Gianvito Lanzolla, “The Half-Truth of First-Mover Advantage,” Harvard Business Review, April 2005, at
https://hbr.org/2005/04/the-half-truth-of-first-mover-advantage.
124 Joe Tidy, “Zuckerberg’s Metaverse: Lessons from Second Life,” BBC, November 5, 2021, at https://www.bbc.com/
news/technology-59180273. See also Edd Gent, “What Can the Metaverse Learn from Second Life?” IEEE Spectrum,
November 29, 2021, at https://spectrum.ieee.org/metaverse-second-life.
125 See demonstrations of Second Life at https://secondlife.com/.
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building the metaverse.126 In addition to its family of social media apps, Meta now focuses on
AR/VR-related consumer hardware, software, and content to develop immersive social
technologies and computing platforms.127 The company had invested in the development of
AR/VR technologies before its name change; for example, acquiring Oculus VR, Inc. for $2
billion in 2014.128 Meta is developing VR services, such as Horizon Worlds, a platform on which
users can create their own virtual home and office spaces and interact with other users.129
Microsoft Corporation has described immersive and interactive virtual game spaces as building
blocks for the metaverse and a key component in the development of its metaverse platforms.130
The company asserts the metaverse could also be a place where people work and meet.131 It is
developing Mesh, a collaboration and communication platform, on which users could use 3D
avatars to participate in virtual meetings while wearing MR goggles.132
Alphabet Inc. has invested in AR technologies (e.g., Google Glass) and plans to integrate them
into Google’s internet-based navigation, online collaboration, and video content services.133
Google refers to its vision of the metaverse—which combines its expertise in search engine
algorithms, AI, and AR—as “ambient computing.” Google describes the user experience in
ambient computing as “being within the computer rather than accessing the computer ... being
always online rather than always having access to an online world.”134
Other companies are developing metaverse-related hardware, software, services, and platforms as
well. For example,
 Apple Inc. is reportedly investing in the development of both hardware and software for
AR applications.135
 Roblox Corporation is reportedly expanding its virtual world platform by allowing users
not only to play millions of games created by independent developers but also to shop for

126 See U.S. Securities and Exchange Commission, Meta Platforms, Inc., Form 8-K (filed October 28, 2021), p. 2, at
https://d18rn0p25nwr6d.cloudfront.net/CIK-0001326801/e1b7c43d-175d-4702-a6bb-b42fbbb8cdd0.pdf.
127 Ibid.
128 Meta, “Facebook to Acquire Oculus,” press release, March 25, 2014, at https://about.fb.com/news/2014/03/
facebook-to-acquire-oculus/.
129 Mark Rabkin, “Connect 2021 Recap: Horizon Home, the Future of Work, Presence Platform, and More,” Meta
Oculus Blog, October 28, 2021, at https://www.oculus.com/blog/connect-2021-recap-horizon-home-the-future-of-
work-presence-platform-and-more/. See also Alex Heath, “Meta Opens Up Access to Its VR Social Platform Horizon
Worlds,” The Verge, December 9, 2021, at https://www.theverge.com/2021/12/9/22825139/meta-horizon-worlds-
access-open-metaverse.
130 Microsoft, “Microsoft to Acquire Activision Blizzard to Bring the Joy and Community of Gaming to Everyone,
Across Every Device,” press release, January 18, 2022, at https://news.microsoft.com/2022/01/18/microsoft-to-acquire-
activision-blizzard-to-bring-the-joy-and-community-of-gaming-to-everyone-across-every-device/.
131 Mark Sullivan, “Microsoft’s Metaverse Vision Is Becoming Clear—And Makes Sense,” Fast Company, January 27,
2022, at https://www.fastcompany.com/90716389/microsoft-activision-metaverse.
132 Brett Iversen, Satya Nadella, and Amy Hood, Microsoft FY22 Second Quarter Earnings Conference Call,
Microsoft, January 25, 2022, at https://www.microsoft.com/en-us/investor/events/fy-2022/earnings-fy-2022-q2.aspx.
133 Alphabet, “Alphabet Q4 2021 Earnings Call,” February 1, 2022, at https://abc.xyz/investor/static/pdf/
2021_Q4_Earnings_Transcript.pdf. Google is a subsidiary of Alphabet, which focuses on the company’s internet-based
products and services.
134 Brian X. Chen, “What’s All the Hype About the Metaverse?” New York Times, January 18, 2022, at
https://www.nytimes.com/2022/01/18/technology/personaltech/metaverse-gaming-definition.html.
135 Parkev Tatevosian, “Apple CEO Sees Big Potential in the Metaverse,” The Motley Fool, February 2, 2022, at
https://www.fool.com/investing/2022/02/02/apple-ceo-tim-cook-metaverse-interested/.
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virtual items using its own virtual currency, Robux. The platform also allows users to
perform collaborative work and business communications.136 To some game players,
Roblox may be the nearest and most expansive vision of the metaverse.137
 Epic Games, Inc. (the developer of the online game Fortnite) has received investment
from companies such as Sony to develop metaverse-type services and applications.138
The investment in, and development of, metaverse technologies and applications by technology
firms may raise policy questions around content moderation, privacy, and competition.139
Policy Issues for Congressional Consideration
Some experts have expressed concerns that the immersive, persistent, and real-time environment
and large-scale virtual platforms of the metaverse could reproduce and magnify the issues already
surrounding current online platforms, services, and applications, such as content moderation,
privacy, competition, and the digital divide.140 Members of Congress have shown interest in each
of these issues in the context of current online platforms and may consider addressing them in the
specific context of the metaverse.
Content Moderation141
Some Members of Congress have introduced bills that seek to address issues surrounding content
moderation on social media platforms.142 Some experts assert that content moderation may be
much more complicated in the metaverse than social media.143 Social media companies have
pitched the metaverse as a virtual space for immersive social communications, interactions, and
engagement.144 Some analysts argue that bullying and harassment could be exacerbated by the

136 John Herrman and Kellen Browning, “Are We in the Metaverse Yet?” New York Times, October 29, 2021, at
https://www.nytimes.com/2021/07/10/style/metaverse-virtual-worlds.html.
137 Ibid.
138 Eric Ravenscraft, “What Is the Metaverse, Exactly?” WIRED, November 25, 2021, at https://www.wired.com/story/
what-is-the-metaverse/. See also Epic Games, “Announcing a $1 Billion Funding Round to Support Epic’s Long-Term
Vision for the Metaverse,” press release, April 13, 2021, at https://www.epicgames.com/site/en-US/news/announcing-
a-1-billion-funding-round-to-support-epics-long-term-vision-for-the-metaverse.
139 See Tom Wheeler, The Metachallenges of the Metaverse, The Brookings Institution, September 30, 2021, at
https://www.brookings.edu/blog/techtank/2021/09/30/the-metachallenges-of-the-metaverse/. See also Cecilia
D’Anastasio, “The Metaverse Is Simply Big Tech, but Bigger,” Wired, November 4, 2021, at https://www.wired.com/
story/big-tech-metaverse-internet-consolidation-business/.
140 See, for example, Quinta Jurecic and Alan Z. Rozenshtein, “Mark Zuckerberg’s Metaverse Unlocks a New World of
Content Moderation Chaos,” Lawfare, November 3, 2021, at https://www.lawfareblog.com/mark-zuckerbergs-
metaverse-unlocks-new-world-content-moderation-chaos. See also Bradley Tusk, “Regulating the Metaverse(s),”
January 31, 2022, at https://mirror.xyz/0x81dB200eD62Ce664B911C211b55F836a208Df868/n-
8osyXEl8Dzv_qnrBR1ICdxF55zdIMLP6OI3yU9igY.
141 For general information of content moderation related to social media, see CRS Report R46662, Social Media:
Misinformation and Content Moderation Issues for Congress, by Jason A. Gallo and Clare Y. Cho.
142 The 117th Congress has introduced more than a dozen of bills related to content moderation, which include, for
example, the Digital Platform Commission Act of 2022 (S. 4201) and the 21st Century FREE Speech Act (H.R. 7613).
143 Aaron Mak, “I Was a Bouncer in the Metaverse,” Slate, May 9, 2022, at https://slate.com/technology/2022/05/
metaverse-content-moderation-virtual-reality-bouncers.html. See also Leda Alvim, “How the Metaverse Could Impact
the World and the Future of Technology,” ABC News, January 28, 2022, at https://abcnews.go.com/Technology/
metaverse-impact-world-future-technology/story?id=82519587.
144 Bradley Tusk, “Regulating the Metaverse(s),” January 31, 2022, at https://mirror.xyz/
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immersive nature of VR.145 As metaverse users would have virtual bodies and voices, content
moderation would likely need to address text, speech, and behavior.146
Some analysts also believe that conducting effective moderation on all types of communication
and interaction—chat, voice, gestures, and user-generated content—among a massive number of
users in real time would require significant effort and may not be feasible.147 The chief
technology officer of Meta has reportedly acknowledged that moderating how users speak and
behave in Meta’s virtual worlds “at any meaningful scale is practically impossible.”148 In 2021,
Second Life founder Philip Rosedale stated, “[w]e don’t have identity systems yet that would
enable strong governance.”149 Some experts doubt that social media and content providers would
be able to moderate a metaverse environment that is enormously more complex and dynamic
given the challenges they are facing in moderating their existing services and platforms.150 Some
have expressed concerns that metaverse platforms might end up being uncontrollable or operators
might implement strict screening, monitoring, and surveillance processes that restrict a great deal
of behavior.151
Data Privacy152
Data privacy is an issue of concern for many Members of Congress.153 Some experts assert that
personal information is the “seminal asset” in the digital economy and the opportunity to collect
and monetize personal data acquired from metaverse users would be immense.154 Additionally,
some commentators have expressed concern that the metaverse might give operators and service
providers an expanded set of data sources to track and mine, including body movements, facial
expressions, and biometric data.155 A VR device could generate data that reveals a user’s

0x81dB200eD62Ce664B911C211b55F836a208Df868/n-8osyXEl8Dzv_qnrBR1ICdxF55zdIMLP6OI3yU9igY.
145 Hannah Murphy, “How Will Facebook Keep Its Metaverse Safe for Users?” Financial Times, November 12, 2021,
at https://www.ft.com/content/d72145b7-5e44-446a-819c-51d67c5471cf.
146 Paul Daugherty, Marc Carrel-Billiard, and Michael Blitz, Meet Me in the Metaverse, Accenture, The Technology
Vision 2022 Report, p. 35, 2022, at https://www.accenture.com/_acnmedia/Thought-Leadership-Assets/PDF-5/
Accenture-Meet-Me-in-the-Metaverse-Full-Report.pdf.
147 Utopia Analytics, “What to Do About Moderation in Meta’s Metaverse?” March 16, 2022, at
https://utopiaanalytics.com/what-to-do-about-content-moderation-in-metas-metaverse/. See also Hannah Murphy,
“How Will Facebook Keep Its Metaverse Safe for Users?” Financial Times, November 12, 2021, at
https://www.ft.com/content/d72145b7-5e44-446a-819c-51d67c5471cf.
148 Hannah Murphy, “How Will Facebook Keep Its Metaverse Safe for Users?” Financial Times, November 12, 2021,
at https://www.ft.com/content/d72145b7-5e44-446a-819c-51d67c5471cf.
149 Andrew R. Chow, “6 Lessons on the Future of the Metaverse from the Creator of Second Life,” Time, November
26, 2021, at https://time.com/6123333/metaverse-second-life-lessons/.
150 Hannah Murphy, “How Will Facebook Keep Its Metaverse Safe for Users?” Financial Times, November 12, 2021,
at https://www.ft.com/content/d72145b7-5e44-446a-819c-51d67c5471cf.
151 Leda Alvim, “How the Metaverse Could Impact the World and the Future of Technology,” ABC News, January 28,
2022, at https://abcnews.go.com/Technology/metaverse-impact-world-future-technology/story?id=82519587.
152 For general information of data privacy law, see CRS In Focus IF11207, Data Protection and Privacy Law: An
Introduction, by Stephen P. Mulligan and Chris D. Linebaugh.
153 The 117th Congress has introduced dozens of bills related to data privacy right and protection, which include, for
example, the Consumer Online Privacy Rights Act (S. 3195) and the DATA Privacy Act (H.R. 5807).
154 Tom Wheeler, The Metachallenges of the Metaverse, The Brookings Institution, September 30, 2021, at
https://www.brookings.edu/blog/techtank/2021/09/30/the-metachallenges-of-the-metaverse/.
155 Shirin Ghaffary, “Why You Should Care About Facebook’s Big Push into the Metaverse,” Vox, November 24,
2021, at https://www.vox.com/recode/22799665/facebook-metaverse-meta-zuckerberg-oculus-vr-ar.
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emotions, abilities, and desires.156 According to a report issued by the Institute of Electrical and
Electronics Engineers (IEEE), XR headsets and their peripherals could enable the capture of a
wide range of user data, as shown in Table 1.
Table 1. Examples of User Data Captured by XR Devices
Data Type
Detailed Data
Movements and physical actions
Optical and inertial tracking of head/body/limb movements, electromyography
neuromotor input (e.g., by haptic gloves), sensing of facial expressions,
auditory sensing of speech and non-speech activity, etc.
Neural activity
EEG for brain-computer interfaces
Context
Location tracking, Simultaneous Localization and Mapping (SLAM), and
machine-learning-driven analysis of optical data
Physiology
Eye/gaze tracking, heart rate variability sensing, and other biometrics
Source: Mark McGil , Extended Reality (XR) and the Erosion of Anonymity and Privacy, IEEE, The IEEE Global
Initiative on Ethics of Extended Reality (XR) Report, November 2021, p. 7, at https://standards.ieee.org/wp-
content/uploads/import/governance/iccom/extended-reality-anonymity-privacy.pdf.
The IEEE report maintains that the pervasive capture of sensitive physical and behavioral data is
both unique to XR relative to other consumer technologies and fundamentally necessary to its
core functionality.157 This set of sensed user data could be used with machine learning algorithms
and AI techniques for estimation, inference, and prediction of users’ identity, behavior, activity,
and emotional state.158 Additionally, some experts point out that interoperability, a core aspect of
the metaverse, is fundamentally about data sharing and has inherent privacy risks.159
Some observers speculate that metaverse technology companies may seek to use personal data
acquired in the metaverse to create user profiling and sell targeted advertising, in a similar fashion
to current social media, search, and online marketplace platforms.160 For example, the company
that operates Second Life currently collects, uses, processes, stores, and disclosed its user data in
a manner and scope similar to other online platform operators’ data practices.161 Given the range
of personal information that may be collected by metaverse technologies, some have noted the
pressing need for data privacy protection while metaverse technologies are being developed.162

156 Mike Swift, “Facebook’s Metaverse Aspirations Tied to Privacy, Antitrust Regulation,” MLex, November 1, 2021,
at https://mlexmarketinsight.com/news-hub/editors-picks/area-of-expertise/antitrust/facebooks-metaverse-aspirations-
tied-to-privacy-antitrust-regulation.
157 Mark McGill, Extended Reality (XR) and the Erosion of Anonymity and Privacy, IEEE, The IEEE Global Initiative
on Ethics of Extended Reality (XR) Report, November 2021, p. 7, at https://standards.ieee.org/wp-content/uploads/
import/governance/iccom/extended-reality-anonymity-privacy.pdf.
158 Ibid., pp. 7-8.
159 Kate Kaye, “WTF Is Interoperability,” DIGIDAY, July 6, 2021, at https://digiday.com/marketing/wtf-is-
interoperability/.
160 Mike Swift, “Facebook’s Metaverse Aspirations Tied to Privacy, Antitrust Regulation,” MLex, November 1, 2021,
at https://mlexmarketinsight.com/news-hub/editors-picks/area-of-expertise/antitrust/facebooks-metaverse-aspirations-
tied-to-privacy-antitrust-regulation.
161 See Linden Lab, “Privacy Policy,” March 12, 2020, at https://www.lindenlab.com/privacy.
162 Paul Daugherty, Marc Carrel-Billiard, and Michael Blitz, Meet Me in the Metaverse, Accenture, The Technology
Vision 2022 Report, p. 50, 2022, at https://www.accenture.com/_acnmedia/Thought-Leadership-Assets/PDF-5/
Accenture-Meet-Me-in-the-Metaverse-Full-Report.pdf. See also Bradley Tusk, “Regulating the Metaverse(s),” January
31, 2022, at https://mirror.xyz/0x81dB200eD62Ce664B911C211b55F836a208Df868/n-
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In February 2022, three Members of Congress wrote a letter to Lina Khan, Chair of the Federal
Trade Commission (FTC), regarding “the potential threats to children who use VR products and
platforms.”163 In the letter, they urged the FTC to use its authority under the Children’s Online
Privacy Protection Act of 1998 (COPPA; Title XIII of P.L. 105-277) and the Federal Trade
Commission Act of 1914, as amended, to protect children in the metaverse.164 Among the
concerns identified by the Members are “VR companies’ plans to present commercial
advertisements in the metaverse,” which “could lead to harmful marketing practices that may be
inherently manipulative of children.”165 The Members stated that under the laws the FTC “has a
statutory obligation to ensure that powerful technology platforms treat young people fairly,
comply with the platforms’ own public statements [e.g., privacy policies], and protect children’s
privacy.”166
Market Power and Competition167
Congress is considering bills that would create new antitrust standards specifically applicable to
big tech companies.168 According to some experts, market power in the metaverse may come
primarily from network effects and scale.169 Network effects refers to situations in which the
value of a product, service, or platform depends on the number of buyers, sellers, or users who
leverage it. Typically, the greater the number of buyers, sellers, or users, the greater the network
effect, and the greater the value created by the offering. The willingness to pay for, offer, or use
the product, service, or platform increases as the number of buyers, sellers, or users grows.170 It is
possible that a few companies could take advantage of network effects and seek to consolidate
control over key metaverse platforms. Accordingly, some critics assert that the metaverse will

8osyXEl8Dzv_qnrBR1ICdxF55zdIMLP6OI3yU9igY.
163 Letter from Senator Edward J. Markey and Representatives Kathy Castor and Lori Trahan, to Lina Khan, Chair of
the FTC, February 16, 2022, at https://www.markey.senate.gov/imo/media/doc/letter_to_ftc_-_vr_and_children.pdf.
164 Ibid., p. 2. COPPA prohibits “an operator of a website or online service directed to children, or any operator that has
actual knowledge that it is collecting personal information from a child” from collecting “personal information from a
child,” unless the operator provides an online notice about its information collection practices and obtains “verifiable
parental consent for the collection, use, or disclosure of” the information to be collected. 15 U.S.C. §6502(a)(1),
(b)(1)(A). The FTC Act prohibits “unfair or deceptive acts or practices in or affecting commerce.” 15 U.S.C. §45(a)(1).
165 Letter from Senator Edward J. Markey and Representatives Kathy Castor and Lori Trahan, to Lina Khan, Chair of
the FTC, February 16, 2022, at https://www.markey.senate.gov/imo/media/doc/letter_to_ftc_-_vr_and_children.pdf.
166 Ibid.
167 For general information and analysis of antitrust issues related to big tech companies, see CRS Report R45910,
Antitrust and “Big Tech”, by Jay B. Sykes.
168 For more information on those bills being considered by the 117th Congress, see CRS Report R46875, The Big Tech
Antitrust Bills, by Jay B. Sykes.
169 Matthew Ball, Payments, Payment Rails, and Blockchains, and the Metaverse, MatthewBall.vc, The Metaverse
Primer, June 29, 2021, at https://www.matthewball.vc/all/metaversepayments.
170 See Tim Stobierski, “What Are Network Effects?” Harvard Business School Online, Business Insights Blog,
November 12, 2020, at https://online.hbs.edu/blog/post/what-are-network-effects. Network effects occur because the
number of relationships between network members grow exponentially with the number of users. Metcalfe’s Law states
that a network’s impact is the square of the number of nodes in the network. For example, if a network has 10 nodes, its
inherent value is 100 (10 * 10). The network nodes can be computers or connecting users. See Techopedia, Metcalf’s
Law, May 28, 2019, at https://www.techopedia.com/definition/29066/metcalfes-law.
Markets in which network effects play a major role are often referred to as winner-takes-all markets. Once a company
obtains network effects, it tends to stay ahead of its competitors; the demand for its product and service could keep
growing faster as it gets bigger; and it could achieve a dominant market power. See Tim Stobierski, “What Are
Network Effects?” Harvard Business School Online, Business Insights Blog, November 12, 2020, at
https://online.hbs.edu/blog/post/what-are-network-effects.
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provide new opportunities to those big tech companies to further increase their market power and
extend their dominance beyond their 2D internet platforms.171 Some experts also express concern
that a large portion of users’ digital lives, if the metaverse were to achieve sufficient scale, might
be controlled by a handful of companies,172 leading to further erosion of user privacy and
autonomy.173
If this were to be the case, metaverse platforms might be able to prevent competing technologies,
standards, and applications from being available on their platforms, similar to a controversial
practice that some big tech companies currently implement at their online application stores.174
The FTC is reportedly investigating whether VR headset maker Oculus VR, which is owned by
Meta, is engaged in anticompetitive practices in its treatment of third-party applications and
through the prioritization of its own software.175
Digital Divide176
Some Members of Congress have expressed concern about those who lack access to or cannot
afford high-speed internet, given the importance of the internet to education, work, and social
interaction. The gap between those do and do not have internet access is known as the digital
divide. By the FCC’s current broadband standard of 25/3 Mpbs, as of the end of 2019, 4.4% of
the U.S. population, or 14.4 million people, did not have broadband access.177
Congress has authorized and appropriated federal funds for broadband to help bridge the digital
divide, for example, in the Coronavirus Aid, Relief, and Economic Security Act (CARES Act;
P.L. 116-136); the Consolidated Appropriations Act, 2021 (CAA, 2021; P.L. 116-260); the
American Rescue Plan Act of 2021 (ARPA; P.L. 117-2); and the Infrastructure Investment and
Jobs Act (IIJA; P.L. 117-58). Most of these funds, including the largest federal broadband grant
program—the Broadband Equity, Access, and Deployment (BEAD) program administered by the
National Telecommunications and Information Administration, prioritize support for broadband
deployment in unserved locations that lack access to reliable broadband service with at least 25/3
Mbps.178

171 Cecilia D’Anastasio, “The Metaverse Is Simply Big Tech, but Bigger,” Wired, November 4, 2021, at
https://www.wired.com/story/big-tech-metaverse-internet-consolidation-business/.
172 Quinta Jurecic and Alan Z. Rozenshtein, “Mark Zuckerberg’s Metaverse Unlocks a New World of Content
Moderation Chaos,” Lawfare, November 3, 2021, at https://www.lawfareblog.com/mark-zuckerbergs-metaverse-
unlocks-new-world-content-moderation-chaos.
173 Janna Anderson, Lee Rainie, and Emily A. Vogels, Experts Say the “New Normal” in 2025 Will Be Far More Tech-
Driven, Presenting More Big Challenges, Pew Research Center, February 18, 2021, at https://www.pewresearch.org/
internet/2021/02/18/experts-say-the-new-normal-in-2025-will-be-far-more-tech-driven-presenting-more-big-
challenges/.
174 See CRS Legal Sidebar LSB10219, Antitrust and the iPhone: Supreme Court to Consider Whether App Store
Customers Can Sue Apple for Monopolization, by Jay B. Sykes.
175 See Naomi Nix and Mark Gurman, “Meta’s Oculus Unit Faces FTC-Led Probe of Competition Practices,”
Bloomberg, January 14, 2022, at https://www.bloomberg.com/news/articles/2022-01-14/meta-s-oculus-unit-faces-ftc-
led-probe-of-competition-practices.
176 For more information of digital divide, see CRS In Focus IF12030, The Broadband Digital Divide: What Comes
Next for Congress?, by Colby Leigh Rachfal; CRS Report R46613, The Digital Divide: What Is It, Where Is It, and
Federal Assistance Programs, by Colby Leigh Rachfal.
177 FCC, Fourteenth Broadband Deployment Report, FCC 21-18, January 19, 2021, pp. 19-20, at https://docs.fcc.gov/
public/attachments/FCC-21-18A1.pdf.
178 See Section 60102(a)(1)(A) of the Infrastructure Investment and Jobs Act (IIJA; P.L. 117-58).
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To access the metaverse and many of its potential services, however, users would likely require
broadband download and upload speeds in excess of 1 Gbps.179 By the end of 2020, about 3% of
mobile connections in the United States were on 5G, which could provide the speed and wireless
connectivity needed for the metaverse. By 2025, it is estimated that 5G connections will increase
to 68%, but that would still leave 32% of mobile connections without 5G access, potentially
exacerbating the digital divide.180
Opportunities and Challenges
A survey in January 2022 found that 37% of respondents agreed with the statement that “the
metaverse would be more fun than real life,” and 38% agreed with the statement that “the
metaverse would make their life better.”181 Another survey in 2021 found that 38% of Gen Z
(those born between 1997 and 2012) and 48% of millennials (those born between 1981 and 1996)
agreed with the statement that “the metaverse is the next big thing and will become part of our
lives in the next decade.”182 According to the research firm Gartner, by 2026, one-fourth of people
would replicate their real-world activities by spending “at least one hour a day in the metaverse
for work, shopping, education, social and/or entertainment.”183 In December 2021, Bloomberg
estimated that the metaverse would become a $783 billion-plus digital market by 2024 based on
2020 data and an assumption of a double-digit annual growth rate.184 Citing the convergence of
online games, social media, and user-generated content, the analysts expected that the metaverse
would present an opportunity particularly for online game and social media firms to generate
revenue streams from online live entertainment events, sales of software and services, sales of
AR/MR/VR headsets and other XR hardware, and digital advertising, among other activities.185
However, some experts do not believe that the technological infrastructure required to support the
metaverse currently exists.186 They note that the absence of open technical standards and toolkits
for either developers or users to create metaverse applications and content would inhibit the

179 Doug Dawson, “Network Requirements for the Metaverse,” CircleID, March 12, 2022, at https://circleid.com/posts/
20220312-network-requirements-for-the-metaverse. In July 2022, FCC Chairwoman Jessica Rosenworcel proposed to
set a national goal of 1 Gbps for download and 500 Mbps for upload for the future. See FCC, “Chairwoman
Rosenworcel Proposes to Increase Minimum Broadband Speeds and Set Gigabit Future Goal,” press release, July 15,
2022, at https://docs.fcc.gov/public/attachments/DOC-385322A1.pdf.
180 GSMA Intelligence, The Mobile Economy North America 2021, GSM Association, The Mobile Economy series,
2021, p. 11, at https://www.gsma.com/mobileeconomy/wp-content/uploads/2021/10/
GSMA_ME_NorthAmerica_2021_WebSingles.pdf.
181 The Harris Poll, Americans Are Interested in AR, VR, and the Metaverse, Brief, January 25, 2022, at
https://theharrispoll.com/briefs/future-of-ar-vr-metaverse/.
182 Harry Robertson, “Wall Street Hopes Young People Will Drive a Metaverse Boom—But Only 38% of Gen Zs
Think It’s the Next Big Thing,” Business Insider, December 8, 2021, at https://markets.businessinsider.com/news/
stocks/metaverse-gen-z-millennials-crypto-land-sales-investing-virtual-worlds-2021-12.
183 Gartner, Inc., “Gartner Predicts 25% of People Will Spend at Least One Hour Per Day in the Metaverse by 2026,”
press release, February 7, 2022, at https://www.gartner.com/en/newsroom/press-releases/2022-02-07-gartner-predicts-
25-percent-of-people-will-spend-at-least-one-hour-per-day-in-the-metaverse-by-2026.
184 Matthew Kanterman and Nathan Naidu, Metaverse May Be $800 Billion Market, Next Tech Platform, Bloomberg,
Bloomberg Intelligence Research and Analysis, December 1, 2021, at https://www.bloomberg.com/professional/blog/
metaverse-may-be-800-billion-market-next-tech-platform/.
185 Ibid.
186 Matthew Ball, The Metaverse: What It Is, Where to Find It, and Who Will Build It, MatthewBall.vc, The Metaverse
Primer, January 13, 2020, at https://www.matthewball.vc/all/themetaverse.
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realization of the metaverse and its ability to reach the scale of the internet.187 Such scaling is
likely to require substantial investments in research and development.188
Policymaking around the metaverse may be challenging while its development trajectory is
uncertain.189 It is not clear whether there will eventually be an interoperable global metaverse or
multiple proprietary metaverse platforms. While some suggest a wait-and-see approach, others
argue that policy leaders should explore proactive regulation.190 The Appendix lists legislation
introduced in the 117th Congress, which contains provisions related to metaverse technologies
(i.e., AR/MR/VR). Some of these provisions would provide federal resources for research and
development in metaverse-related technologies, identified as one of key technology focus areas
that may help “enhance the competitive advantage and leadership of the United States in the
global economy.”191 Other provisions focused on regulating practices of online platforms,
including those that offer AR and VR services.192 While no legislation has addressed policy issues
specifically in the context of the metaverse yet, the development and growing adoption of
extended reality, next-generation wireless communication, and blockchain technologies may
present policymakers an opportunity to work with stakeholders—including scientists, engineers,
technology experts, academic scholars, business leaders, and civil society—to help shape the
evolution of the metaverse.
In April 2022, the Biden Administration launched a global partnership and initiative articulated in
the Declaration for the Future of the Internet.193 The declaration reaffirms and recommits its 61
nation-state partners to “an open, free, global, interoperable, reliable, and secure internet.”194 The
declaration stresses the internet as a single, decentralized network of networks, which should be
non-fragmented; facilitate global communications and commerce; foster competition, privacy,
and respect for human rights; and support innovation, trust, and freedom.195 A similar vision and
policy framework might be developed to guide the development of the metaverse.

187 Edd Gent, “What Can the Metaverse Learn from Second Life?” IEEE Spectrum, November 29, 2021, at
https://spectrum.ieee.org/metaverse-second-life.
188 Matthew S. Smith, “Meta Offers Nothing New to the Metaverse,” IEEE Spectrum, December 17, 2021, at
https://spectrum.ieee.org/meta-offers-nothing-new-to-the-metaverse.
189 See Jule Pattison-Gordon, “Should State and Local Governments Care About the Metaverse?” Government
Technology, April 28, 2022, at https://www.govtech.com/products/should-state-and-local-government-care-about-the-
metaverse.
190 Ibid. See also Bradley Tusk, “Regulating the Metaverse(s),” January 31, 2022, at https://mirror.xyz/
0x81dB200eD62Ce664B911C211b55F836a208Df868/n-8osyXEl8Dzv_qnrBR1ICdxF55zdIMLP6OI3yU9igY.
191 See, for example, Sections 2003(3) and 2005(a)(1)(F) of the United States Innovation and Competition Act of 2021
(S. 1260 and H.R. 4521, 117th Congress).
192 See, for example, Sections 5 and 6 of the Digital Services Oversight and Safety Act of 2022 (H.R. 6796, 117th
Congress).
193 White House, “Fact Sheet: United States and 60 Global Partners Launch Declaration for the Future of the Internet,”
press release, April 28, 2022, at https://www.whitehouse.gov/briefing-room/statements-releases/2022/04/28/fact-sheet-
united-states-and-60-global-partners-launch-declaration-for-the-future-of-the-internet/.
194 White House, “A Declaration for the Future of the Internet,” April 28, 2022, p. 1, at https://www.whitehouse.gov/
wp-content/uploads/2022/04/Declaration-for-the-Future-for-the-Internet_Launch-Event-Signing-Version_FINAL.pdf.
195 Ibid., pp. 1-2.
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Appendix. Summary of Legislative Efforts on
Metaverse-related Technologies in the 117th
Congress
Bill
Title
Related Provisions
H.R. 4461
21st Century Jobs Act
The bil would establish an independent agency of the Federal
Institute of Technology to provide federal funds to support
programs and research in certain technology sectors including
blockchain, telecommunications, and VR and AR. (Sections 3(a)
and (g)(4)(C)(i)(IV), (XI), and (XIII))
S. 1260 and United States Innovation and
The bil s list “advanced communications technology and immersive
H.R. 4521
Competition Act of 2021
technology” as one of the “initial key technology focus areas.”
According to the bil , increasing capabilities in those areas is one of
the ways to “enhance the competitive advantage and leadership of
the United States in the global economy.” The bil would make
federal funding available for research and development, education
and training, and transfer and commercialization of the key
technologies. The bil would also require a report on whether
federal investment in those areas results in new domestic
manufacturing capacity and job creation. (Sections 2003(3),
2005(a)(1)(F), 2005(f), 2106(d), 2107(a), 2108(a)(1), and 2109(a))
H.R. 4609
The National Institute of
The bil would task NIST in consultation with the National
Standards and Technology
Telecommunications and Information Administration (NTIA), the
(NIST) for the Future Act of
National Science Foundation (NSF), and other appropriate federal
2021
agencies with conducting “advanced communications research” in
areas including AI systems to enable internet of things networks
and immersive technology, among others. (Section 210)
S. 2918 and Kids Internet Design and
The bil would regulate acts and practices on online platforms
H.R. 5439
Safety Act (KIDS Act)
targeting individuals under the age of 16, which include those that
offer AR and VR experiences. (Section 2(2))
H.R. 6796
Digital Services Oversight and The bil would direct the Federal Trade Commission (FTC) to
Safety Act of 2022
issue regulations regarding content moderation on covered
platforms including those providing AR and VR services. (Sections
5 and 6)
Source: CRS analysis of the legislative information available at http://www.congress.gov.
Notes: CRS used the terms “metaverse,” “immersive technology” “augmented reality,” “mixed reality,” “virtual
reality,” and “extended reality” to search for legislation introduced in the 117th Congress as of June 2022. The
bil s identified in the table are listed in chronological order.

Author Information

Ling Zhu

Analyst in Telecommunications Policy

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Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
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under the direction of Congress. Information in a CRS Report should not be relied upon for purposes other
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