All 50 states, the District of Columbia, and Puerto Rico are currently working on digital equity plans. As they release draft plans seeking public feedback, the Benton Institute for Broadband & Society is sharing summaries focused on how states define their digital divides and their vision for reaching digital equity.

Massachusetts is at a pivotal moment to drive transformative change in digital equity. Through a once-in-a-generation federal funding investment, the Commonwealth has an unprecedented opportunity to achieve its strategic goals and unlock meaningful economic potential for all residents. In November 2023, the Massachusetts Broadband Institute (MBI) shared its Massachusetts State Digital Equity Plan for public comment. Public input is welcome through Friday, December 15, 2023.

MBI developed the plan’s unified vision with input from key partners representing different regions, Covered Populations, and organizations across Massachusetts. MBI convened the Massachusetts Broadband and Digital Equity Working Group and hosted regional listening sessions to gather perspectives and ambitions for a unified vision. The Working Group consists of leaders from across the state who offered expertise in digital equity and other areas, while the listening sessions brought together residents who shared their needs. MBI organized visioning activities with each of these groups, asking what “Internet for All” means to them in Massachusetts.  

MBI uses three pillars—Availability, Adoption, Quality of Service—to guide its work to advance digital equity. MBI expects to achieve the Commonwealth's unified vision of digital equity by using the more than $400 million dollars of federal and Commonwealth funds that have been allocated for digital equity in Massachusetts. 

The Massachusetts Digital Equity Vision

The Massachusetts State Digital Equity Plan is guided by a unified vision for digital equity in the state and is supported by the precedent work in the field, both conducted by MBI as well as by longstanding partners and practitioners working to close the digital divide across the state. The unified vision sets the target for the Digital Equity Plan and its recommendations as well as for future activities that will follow the plan.  

The Digital Divide in Massachusetts

Massachusetts has one of the highest levels of broadband availability in the nation, with 99 percent of households having the availability to connect via cable, fiber, or DSL service that meets broadband speed standards. But rural towns have lower levels of broadband availability than other regions of the state, particularly in the northern reaches of the Berkshires, Connecticut River Valley, and the eastern Cape Cod and Islands regions. 

Over 592,000 residents in urban areas of the state are experiencing high barriers to broadband use compared to 231,000 residents in rural areas. However, adjusting for population density, urban residents were more likely to be well served by broadband, with 53 percent of residents in urban areas having low levels of barriers to broadband compared to 38 percent of rural residents. 

Statewide, 93 percent of survey respondents have a home internet subscription. Adoption was lower for some Covered Populations, with less than 90 percent of individuals with a language barrier, low-income individuals, racial and ethnic minorities, and individuals with disabilities having internet subscriptions.

High internet subscription costs are the largest barrier that prevents Massachusetts residents from having broadband at home. Statewide, one in two survey respondents found it difficult to pay their internet bill. Residents perceive that a lack of competition in parts of Massachusetts contributes to higher service costs and lower service quality.

Device access was the second largest barrier to having internet at home, with 15 percent of survey respondents sharing that they do not have sufficient devices to meet their households’ needs. Statewide, one in four respondents shared that they could afford to pay less than $50 for a laptop or desktop computer. Residents expressed a need for low-cost laptops or desktop computers, especially for low-income residents, individuals with a language barrier, and residents who identify as racial and ethnic minorities. Additionally, residents need devices that are easy to use, technical support to use their existing devices, and devices they can use over a longer period. 

Residents expressed a need for digital literacy training that is catered to their learning preferences. Statewide, survey respondents reported interest in a broad range of digital skills support, with do-it-yourself (DIY) training modules and online classes being the two most popular options. Libraries and community centers, the most popular location for accessing the internet for those without a home internet subscription, play a critical role in filling this gap. Ninety percent of survey respondents statewide reported being able to regularly use the internet for online activities.

Residents are concerned about internet safety, especially with regard to protecting themselves from having their data stolen, being scammed, or being the target of online surveillance. Statewide, 86 percent of survey respondents are concerned about internet safety. Aging individuals across the state are highly concerned with internet safety, specifically citing concerns about online scams or online hacking; low-income residents shared concerns with safely conducting online transactions and online banking.  

Online public resources are not accessible to all, especially those with language barriers and people with disabilities. Eighty-seven percent of survey respondents statewide found online government services to be somewhat or very accessible. Individuals with disabilities, low-income individuals, racial and ethnic minorities, and individuals with a language barrier were more likely to find them inaccessible. 

Aging Individuals 

Nearly one-quarter (23%) of Massachusetts residents are 60 years or older. Aging individuals surveyed were just as likely as the rest of the state to have internet service in their homes and more likely to report that their home internet service met their households’ needs. On the other hand, among respondents who do not have internet service at home, aging individuals were also slightly more likely to report not wanting to use the internet. Aging individuals were less likely to have trouble paying their internet bill, and those who do not have home internet subscriptions were less likely to cite internet cost as a barrier to subscribing. They were more likely to be aware of the Affordable Connectivity Program (ACP) compared to all other respondents and, in focus groups, some reported receiving subsidies through ACP and senior discounts through their service provider. 

Individuals Who Live in Low-Income Households 

Statewide, 39 percent of households in Massachusetts are low-income. In the Connecticut River Valley region, 54 percent of the region’s households are low-income and 42 percent of households in the Northeast region are low-income. Low-income individuals surveyed were less likely to have high-speed broadband internet at home than all other respondents. Among those who do not have internet service at home, low-income individuals were more likely to cite internet cost as a barrier to subscribing. Over 71 percent of low-income individuals surveyed reported they had difficulty paying for their internet bill compared to 52 percent statewide. To keep costs low, low-income focus group participants reported choosing more basic plans and sharing costs. 

Individuals with Disabilities

Statewide, individuals with disabilities account for 11 percent of the population. Individuals with disabilities surveyed were less likely to have internet at home when compared to all other respondents.  Among those without internet service, individuals with disabilities were more likely to cite a lack of devices and internet cost as barriers to subscribing. 

Individuals with Language Barriers

Statewide, limited English households account for 2 percent of the population. In the Greater Boston region, limited English households compose 8 percent of the region and in the Northeast region, limited English households account for 7 percent of the region. Massachusetts is also home to many immigrants and refugees who are clustered in Gateway cities. Immigrants and refugees can struggle to access vital information and services due to barriers around language accessibility, internet access, and device access. Individuals with language barriers surveyed were least likely to have broadband internet at home than all other respondents and less likely to be able to regularly use the internet. Among those who do not have internet service, individuals with language barriers were more likely to say internet service reliability was a barrier to subscribing.

Racial and Ethnic Minorities 

Statewide, racial and ethnic minorities account for 25 percent of the population. In the Greater Boston region, racial and ethnic minorities account for 32 percent of the region and in the Northeast region, racial and ethnic minorities account for 25 percent of the region. Gateway cities have a high proportion of non-white individuals (41%) and immigrant communities. Racial and ethnic minorities surveyed were less likely to have internet at home and less likely to have broadband internet at home. Among those who do not have internet service at home, racial and ethnic minorities were more likely to say internet service is too expensive to subscribe. Focus group participants reported having to use the internet outside the home because they do not have access, but public spaces have limited hours and less privacy for activities like telehealth appointments. 

Incarcerated Individuals 

There are approximately 20,000 incarcerated people and 24 prisons and jails in Massachusetts.  In December 2023, Massachusetts became the fifth state nationwide to make it free for incarcerated people to call, video call, and e-message. However, unique digital equity challenges remain for incarcerated people in the Commonwealth. While in prison or jail, individuals have no choice over network providers, which affects their internet speed, quality, and availability. Many justice-involved individuals expressed concerns about internet affordability in focus groups. Focus group participants noted that it can be difficult to prioritize and pay for the internet. Participants also cited accessing professional development, jobs and job boards, telehealth, and attending remote classes as challenges they face with inconsistent internet access. Justice-involved focus group participants expressed anxiety around digital skills and felt society was leaving them behind.

Residents of Rural Areas 

Residents of rural areas primarily live in Western Massachusetts and on Cape Cod and the Islands. Statewide, rural residents account for 10 percent of the population. In the Cape Cod & Islands region, rural residents are 27 percent of the region’s population and 66 percent of the Berkshire region are rural residents. While rural residents overall did not have major barriers besides internet quality and availability, there are important intersections with rural and other high need population groups. For instance, 49 percent of rural respondents were 60 years and above and 31 percent of rural respondents were low-income. Therefore, the experiences of aging individuals and low-income individuals may also apply to rural residents. Rural residents surveyed were more likely to have internet at home compared to all other respondents. They were the least likely to say it is difficult to pay their monthly internet bill. Among those who do not subscribe to the internet, rural residents were most likely to say they do not subscribe because service is unavailable, compared to all other respondents. Listening session participants also raised the issue of service reliability. Many participants expressed frustration paying for unreliable service, which can be expensive despite the low quality they experience. Participants also noted that they have few choices in internet service providers, which limits their service options. 

Veterans

Statewide, veterans account for 4 percent of the population. In the Cape Cod & Islands region, veterans are 7 percent of the region’s population and 5 percent in the Berkshire region. Additionally, 28 percent of veterans also have a disability and 61 percent are 60 years or above. Therefore, the experiences of individuals with disabilities and aging individuals may also apply to veterans. Veterans surveyed were just as likely as all other respondents to have internet service in their homes. Compared to all other respondents, they were more likely to have a home wireline connection with cable, fiber, or DSL. Compared to all other respondents, veterans were less likely to connect to the internet outside of home, at work, at libraries, or community centers. Veterans surveyed were more likely to have a desktop or laptop, but just as likely as other respondents to have a smartphone. 

Pillars and Objectives

MBI’s implementation strategy is structured to achieve the three pillars of its vision—Availability, Adoption, Quality of Service—in ways that align with and can be tracked by measurable objectives.

Build on Existing Programs

MBI will build on its existing programs by extending their duration and increasing their funding to make them reach a larger scale. This effort builds on MBI and its partners’ track record of addressing digital equity barriers in the state. Existing programs include:

• Digital Equity Partnerships Program: MBI plans to expand 1)  geographical coverage to regions with gaps in support, 2) coverage by target populations regardless of geographic location, and 3) initiatives supported through past grants where these have proven to be successful.
• Municipal Digital Equity Planning Program: Future investments will focus on 1) providing participating municipalities with easily accessible funding to implement priority initiatives based on their plans and 2) setting aside a portion of future funds for municipalities that have completed their plans for them to implement larger, longer-term projects.
• Lead for America: In partnership with Lead for America, MBI will establish an additional fellowship track for mid-career professionals who can provide additional staff support and capacity in program implementation to local and regional digital equity initiatives. And  MBI will continue to seek private partnerships and funding to ensure the longevity of the program in Massachusetts. 

Develop New Programs

MBI will develop and implement new strategies—in collaboration with organizations and communities throughout the state—that focus on Covered Populations, regions, or measurable objectives that have received less support to date or that face the largest barriers to digital equity. MBI will develop new partnerships, programs, and funding streams to address these gaps. MBI proposes nine new programs to address:

• Closing Network Gaps
• BEAD Deployment Process
• Residential Unit Retrofits
• Ongoing Affordable Connectivity Options and Enrollment
• Statewide Device Network
• Statewide Training Network
• Statewide Digital Navigator Corps
• State-Supported Technical Assistance

Create Foundations for Success

MBI will establish initiatives that build the foundations for success in Massachusetts’ digital equity ecosystem. The approach here will have two components 1) ensuring that there is a robust ecosystem of digital equity partners with the capacity to collaborate in MBI activities, and 2) establishing policies, data systems, and other resources to support the plan’s activities in the long term. MBI proposes activities to:

• Foster Regional and Topic-Specific Digital Equity Coalitions
• Provide Resource Support and Education
• Establish Best Practices Catalogue
• Regular ISP Convenings

MBI is designing digital equity activities and grant programs around five measurable objectives among each covered population located in the state: 

1. Improve availability and affordability of broadband
2. Ensure access to affordable devices and tech support for those devices
3. Ensure access to digital skills and support
4. Help residents stay safe online  
5. Improve access to government resources and programs online 

1. Broadband Availability and Affordability

The measurable objectives below support all Massachusetts residents, including all Covered Populations.  

While 99 percent of Massachusetts residents have high-speed internet, gaps remain, especially in rural areas. 

Key Performance Indicators

• Share of residents that have availability of high-speed internet
• Share of homes that are future-proofed to new technologies and higher speeds 

Cost is the most commonly cited reason for not having home internet service. Statewide, one in two survey respondents found it difficult to pay their internet bill.

Key Performance Indicators

• Share of residents who can afford the internet plan they need
• Share of residents in existing affordable housing stock that can afford internet service
• Share of residents enrolled in ACP or similar program 

Only 72 percent of survey respondents statewide expressed that their home internet subscriptions met their needs. Focus group participants across the state shared their experiences of poor or inconsistent internet quality, particularly multi-family households, residents in rural communities, or in the Cape and Islands region.  

Key Performance Indicators

• Share of residents that report their internet meeting quality of service needs
• Share of residents in existing affordable housing stock that have availability of reliable internet service
• Share of cases where residents flag inadequate quality of service that are resolved 

Long-Term Intended Outcomes 

• All residents across the state have access to affordable, futureproof, high-speed internet with consistent quality of service 
• All affordable housing residents across the state have access to free or low-cost, future-proof, high-speed internet with consistent quality of service

2. Accessible Devices & Device Support

Residents express a need for low-cost laptops or desktop computers. Low-income residents, individuals with a language barrier, and residents who identify as racial and ethnic minorities expressed being able to pay less for a device.  

Key Performance Indicators

• Number of devices distributed
• Share of residents who have the devices they need, specifically residents with a language barrier and residents who identify as racial and ethnic minorities 

Residents need accessible devices, technical support using their devices, along with information about how to access these resources. This need was named among focus group participants with disabilities.   

Key Performance Indicators

• Number of devices distributed
• Share of residents with accessible devices, specifically residents with disabilities
• Share of residents engaging with device support services
• Greater capacity for accessible device-supportive service organizations 

Residents express a need for device sustainability over time, specifically Aging individuals who expressed being concerned with upgrading technology and not being able to use the devices they were already familiar with. 

Key Performance Indicators

• Number of devices distributed 
• Share of Aging individuals comfortable with adopting new versions of technology 

Long-Term Intended Outcomes 

• Residents have consistent access to low-cost, high-quality, updated, accessible devices

3. Digital Literacy

Residents express a need for more digital literacy training that is designed for their needs.   

Key Performance Indicators

• Share of residents who say they are confident in using the internet
• Share of residents in existing affordable housing stock that are confident using internet service
• Share of K-12 students with access to digital literacy skills  
• Share of schools with an instructional technology coach
• Share of teachers that receive digital literacy training 

Long-Term Intended Outcomes

• All residents are comfortable navigating digital spaces to meet their needs 

Residents express a need for more access to digital literacy training and job skills, specifically for those interested in joining or participating in the Massachusetts job market, and those seeking healthcare, telehealth, or medical records.

Key Performance Indicators

• Share of healthcare facilities that have access to digital literacy resources for patients
• Share of healthcare facilities that include a digital access question on their social determinants of health intake
• Share of residents participating in telehealth
• Increased workforce participation

Long-Term Intended Outcomes

• Improvement in health outcomes
• Higher rates of employment in Massachusetts 

Residents express a need for consistent and sustainable resources and capacity building for digital literacy programs in public and community spaces, particularly libraries.   

Key Performance Indicators

• Increased support (monetary and capacity building) for public and community spaces, particularly libraries 

Long-Term Intended Outcomes

• Libraries and public and community spaces function as accessible hubs for digital literacy learning  

4. Privacy & Cybersecurity

Residents from all backgrounds and regions report concerns about Internet safety, with 85 percent of survey respondents statewide citing this concern. Aging individuals across the state are highly concerned with Internet safety, specifically citing concerns about online scams or online hacking. Individuals with a Language Barrier were least likely to be aware of resources to protect their safety online. 

Individuals with disabilities highlighted concerns about medical data breaches.  

Residents expressed concerns about youth safety online.

Key Performance Indicators

• Lower share of residents concerned about internet safety
• Increased awareness of internet safety guidance 

Long-Term Intended Outcomes

• All residents feel safer online and understand internet safety guidance 

5. Accessibility of Essential Resources & Services

Individuals with a language barrier and people with disabilities were less likely to find online government services to be accessible. During focus groups, residents with limited English express a need for more translation and language support for online public resources. 

Residents with disabilities express a need for greater accessibility of online public resources.

Key Performance Indicators

Share of residents who report using the internet to conduct job searches, access healthcare, engage civically, etc.

Long-Term Intended Outcomes

• All residents feel comfortable accessing essential resources and services 

Next Steps

MBI recognizes that completing the Statewide Digital Equity Plan is just the first step. MBI will work with statewide partners to ensure that the SDEP is a living document that is updated to reflect evolving needs and solutions in Massachusetts. 

This will be an all-hands-on-deck effort over the coming years. MBI is committed to continuing a meaningful and inclusive stakeholder engagement process throughout its future activities. MBI will prioritize continuing to foster existing relationships with current trusted partners while developing new relationships with organizations supporting underserved Covered Populations. These relationships will inform the development of future programs, ensure that programs have stakeholder support from the start, provide accountability in tracking program outcomes, and help share successful approaches across the state. MBI’s continuing work with digital equity coalitions, regional planning agencies, Tribal leaders and organizations, community-based organizations, residents, and more will underlie its future programs. MBI will compensate organizations and individuals for the time they contribute to digital equity activities. 

MBI will track the outputs and outcomes of its programs in multiple ways. Existing MBI programs already have in place methods to track KPIs and overall progress. Building on these structures and KPIs, MBI will set program evaluation measures with its partners for all programs—based on the Measurable Objectives and key performance indicators described above—that allow it to assess whether programs are producing results and, if not, where they should improve. 

In collaboration with the Workforce Skills Cabinet, MBI will work towards enhancing the broadband workforce and developing a skilled and diverse workforce. 

MBI is collecting input from residents of Massachusetts to make sure it got the plan right. Public input is welcome through Friday, December 15, 2023. Visit https://broadband.masstech.org/mainternetforallplan for additional information.

More in this series:

• Alaska's Plan to Address Broadband Adversity
• Georgia's Plan for Digital Connectivity
• In a New York State of Digital Equity
• A Plan for Digital Equity in Delaware
• Equity for the Digital Age: Maryland's Plan
• North Dakota's Collective Approach to Digital Equity
• A Plan for Connecting New Jersey
• Achieving a Digitally Inclusive Ohio
• A Digital Access Plan for All Idahoans
• Envisioning a Connected, Interconnected Alabama
• Missouri Pursues Sustainable Digital Opportunity Initiatives
• A Digital Equity Plan to Connect All Kansans
• South Dakota's Plan to Leverage Digital Equity to Reach Economic Goals
• Aloha Spirit Inspires Hawai'i Digital Equity Plan
• The Plan for Closing Nevada’s Digital Divide
• Wisconsin's Digital Equity Values
• ¡Su opinión cuenta! Puerto Rico Releases Initial Draft of Digital Equity Plan | ¡Su Opinión Cuenta! Puerto Rico Pública el Borrador Inicial del Plan de Equidad Digital
• Kentucky Pursues Full and Equitable Digital Access for All
• Tennessee Drafts a Digital Opportunity Plan
• Washington State Sets Digital Equity Goals
• West Virginia's Plan to Conquer the Digital Divide
• Rhode Island Works to Bring Broadband to All Residents
• Wyoming Seeks Feedback on Digital Access Plan
• Communities Know Communities Best: Michigan's Digital Equity Plan
• Montana's Digital Opportunity Plan
• Achieving Digital Independence in Utah
• Maine's Vision of Digital Equity
• A Look at Louisiana's Draft Digital Equity Plan

The Benton Institute for Broadband & Society is a non-profit organization dedicated to ensuring that all people in the U.S. have access to competitive, High-Performance Broadband regardless of where they live or who they are. We believe communication policy - rooted in the values of access, equity, and diversity - has the power to deliver new opportunities and strengthen communities.

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