Join the discussion today at 1 pm (Eastern)—Understanding Internet Access and Use Among Older Adults

The Digital Equity Act (DEA) of 2021 is a landmark federal investment in ensuring that all people can use and benefit from high-speed, affordable broadband. Through the DEA, Congress identifies several “covered populations”—people most impacted by the digital divide—which includes older adults (those 60 years and older). States are charged with not only determining and addressing the connectivity needs of their residents but also measuring the impact of their connectivity efforts. The National Telecommunications and Information Administration (NTIA), the federal agency overseeing the DEA programs, established some minimum standards and model guidance for states with regard to designing indicators and data collection. Within these broad parameters, Congress and NTIA have given states latitude to pursue their own approaches.

Today, we published Older Adults Online: Measuring Internet Access and Use, guidance to help states develop the indicators and methodologies that will help them measure progress and identify ongoing connectivity gaps and hurdles. 

Our guide provides an overview of statutory requirements about indicators and measurable objectives from the DEA. We’ve analyzed states’ digital equity plans and examined how states are approaching the DEA’s five focus areas—1) broadband availability and affordability, 2) online accessibility of public resources, 3) digital literacy, 4) online privacy and cybersecurity, and 5) access to consumer devices—and where there remain opportunities to improve metrics and data collection.

In developing our recommendations, we cover how older adults are impacted by the digital divide and digital ageism and identify technology trends using data from the 2023 American Community Survey. The national picture of broadband subscription and device ownership can serve as a benchmark to understand how states fare and establish ambitious but achievable targets. The trends in device and internet access highlighted in the report also offer direction on how states can approach addressing and measuring digital equity for older adults. Most notably, we demonstrate that 65 is not 75 is not 85. The needs of people in their eighties, who may have retired 20 years ago, will be different than those in their sixties who were in the workforce recently and are more likely to have used digital technology there. Stratifying older adult populations will be critical. 

Our guidance for states has three broad recommendations: 

1. States will benefit from leveraging existing federal datasets, including the American Community Survey (ACS) and NTIA’s Internet Use Survey. These datasets provide a consistent and high-quality foundation to measure digital equity among older adults. Further, the federal government collects a trove of data about the economy, health care, technology, and numerous other fields. These datasets can provide statewide measures applicable to digital equity efforts.

2. States should complement these federal datasets with more fine-grained data sources, such as state-level surveys, to gather data on issues not covered by federal surveys and qualitative research to better understand the nuanced realities of older adults’ digital lives. Qualitative research is critical for covered populations. Methodologically rigorous qualitative research will help states develop nuanced insights that are particularly relevant for designing programs that meet people’s needs.

3. Prioritize data collection throughout implementation. Federal surveys often do not have large enough sample sizes to offer data at the county or parish level. Programmatic data—from subgrant recipients and other government agencies—will offer the level of detail necessary for actionable insights about implementation. Integrating administrative data from state and subgrantee programs will help capture a more comprehensive picture of older adults’ diverse digital realities and enable states to identify gaps, refine their strategies, and ultimately deliver more meaningful, impactful solutions.

As states move from setting objectives to implementing their digital equity plans and demonstrating meaningful impact, the strategies outlined in this guidance provide a roadmap for effectively measuring and advancing digital inclusion for older adults. We recommend collaboration among states and to seek opportunities to harmonize data and research methodologies across geographies. Aligning efforts will help assemble a national picture of progress. 

We also offer a note of caution, ensuring expectations of impact are reasonable. Meaningful change takes time. Some forms of evaluation will be possible only after program implementation and initial monitoring. States need to define interim benchmarks that demonstrate progress but recognize where (and when) they can move the needle on bigger goals.

The DEA has created a mandate—and an opportunity—to ensure that older Americans can access, afford, and use the internet and connected devices to enhance their quality of life. Robust data, sound measurement strategies, and thoughtful, inclusive research practices will better position states to deliver on the promise of the DEA and ensure all older Americans can fully participate in our digital world.

Revati Prasad, PhD is the Benton Institute for Broadband & Society's Vice President of Programs. 

John B. Horrigan, PhD is a Benton Senior Fellow and a national expert on technology adoption, digital inclusion, and evaluating the outcomes and impacts of programs designed to promote communications technology adoption and use.

Grace Tepper is the Senior Writing Associate at the Benton Institute for Broadband & Society.

Support for this project was provided by AARP.

Join the discussion today at 1 pm (Eastern)—Understanding Internet Access and Use Among Older Adults

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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