John Horrigan

The digital divide was first recognized in the mid-1990s. Three decades later, due in part to long-standing economic inequity and the economics of broadband, it remains an impediment to inclusive economic growth, particularly in Black American communities. There are five steps that state and local leaders and broadband stakeholders could take to expand broadband access and promote digital equity and inclusion in Black communities:

The pandemic spurred policymakers and community leaders around the country to create programs to connect those without home broadband service or computers. These programs have had an impact. New government data show sharp increases in broadband and computer adoption in the 2019-to-2021 time frame. Initiatives such as the Affordable Connectivity Program (ACP) have helped address “subscription vulnerability” for low-income households. With progress evident, it is time to extend and build on the ACP and local affordability programs.

If the federal government’s investments in broadband connectivity are to be effective, different programmatic pieces must work together. Broadband infrastructure funds are necessary to ensuring universal access, but not sufficient to achieve full digital equity. Equitable broadband adoption depends on people having the financial means to maintain service, which the Affordable Connectivity Plan (ACP) facilitates, as well as access to wrap-around digital inclusion services (such as tech support and skills training).

Low-income Americans are discerning broadband consumers who are well-attuned to the nuances of service plans, in the midst of dealing with internet service bills that are often a burden on their household budgets. The indispensability of internet access—a need the pandemic has underscored—places service quality next to affordability in the minds of low-income consumers.

As policymakers begin to plan how to use Infrastructure Investment and Jobs Act (IIJA) funds to increase broadband connectivity, there are three important data points from two recent surveys to keep in mind:

1. Some 32% of households are subscription vulnerable, that is, they struggle to maintain service and have a very difficult time affording service.

2. Only 18% of cellphone-only respondents were “very satisfied” with their online access for activities such as school or work, activities that moved online during the COVID-19 pandemic.

In July 2021, the Federal Communications Commission's Wireline Competition Bureau released its report on the state of the Lifeline marketplace. The aim of the report was to identify areas for FCC consideration regarding the continued transition of Lifeline from a program that primarily supports voice services to one with a greater focus on supporting broadband Internet access service. Unfortunately, there are three critical questions I noticed the FCC’s Lifeline report did not address:

The goal of universal service is to ensure that essential communications services are available and affordable for all. Equity remains a bedrock principle: the notion that society should take steps to ensure that all (or nearly all) citizens can use communications networks. However, whereas it was once fairly easy to identify the goal—widespread adoption of telephone service—today the situation is not as clear. Should, for instance, “universal service” include internet access? If so, at what level of service?

Low-income households are spending too much on connectivity. Prior to the pandemic, the Federal Communications Commission’s Lifeline program supported mainly wireless communication services for low-income households; its $9.25/month subsidy resulting in service plans that restricted voice and data usage. To address Americans’ online connectivity needs during the pandemic, Congress directed the FCC to launch the Emergency Broadband Benefit (EBB) program—a historic expansion of financial support for universal service.