In the Infrastructure Investment and Jobs Act, Congress recognizes that just extending the reach of broadband networks isn't enough; there is work to be done on broadband adoption as well. Many view access, adoption, and application (or use) as three legs of the digital equity stool in which individuals and communities have the connectivity and skills needed for full participation in our society and economy.

Congress included the Digital Equity Act in the Infrastructure Law. In the Digital Equity Act, Congress defines "adoption of broadband" as the means by which an individual obtains daily access to the internet—

(A) at a speed, quality, and capacity—
     (i) that is necessary for the individual to accomplish common tasks; and
     (ii) such that the access qualifies as an advanced telecommunications capability;
(B) with the digital skills that are necessary for the individual to participate online; and
(C) on a—
     (i) personal device; and
     (ii) secure and convenient network

The Digital Equity Act provides $2.75 billion to establish three grant programs at the National Telecommunications and Information Administration (NTIA). The programs focus on increasing broadband adoption and ensuring that all people and communities have the skills, technology, and capacity needed to reap the full benefits of our digital economy. The three programs are:

• State Digital Equity Planning Grant Program: A $60 million formula grant program for states, territories and Tribal governments to develop digital equity plans.
• State Digital Equity Capacity Grant Program: A $1.44 billion formula grant program for states, territories, and Tribal governments. It will fund an annual grant program for five years in support of digital equity projects and the implementation of digital equity plans.
• Digital Equity Competitive Grant Program: A $1.25 billion grant program. It will fund annual grant programs for five years to implement digital equity projects.

Over the past year, the NTIA has focused on the planning grant program, encouraging states, territories and Tribal governments to develop digital equity plans in tandem with universal broadband access plans required for the Broadband Equity, Access, and Deployment (BEAD) Program. 

State Digital Equity Planning Grant Program

The State Digital Equity Planning Grant Program is part of the Digital Equity Act’s larger State Digital Equity Program which promotes digital equity, supports digital inclusion activities, and builds capacity for efforts by states relating to the adoption of broadband. By creating their own State Digital Equity Plans, states can, among other things, identify barriers to digital equity and outline specific measures aimed at addressing those barriers. States that develop State Digital Equity Plans will then be able to apply for funds from the State Digital Equity Capacity Grant Program to implement those plans.

All eligible states, U.S. territories (other than Puerto Rico), Indian Tribes, Alaska Native entities, and Native Hawaiian organizations completed applications to the National Telecommunications and Information Administration for the State Digital Equity Planning Grant Program by a July 2022 deadline. To date, Louisiana, Ohio, Idaho, and Nebraska have been awarded support to create their digital equity plans. Louisiana's plan is due by August 31, 2023; Ohio's by October 13, 2023; Idaho's by November 14, 2023; and Nebraska's by November 16, 2023.

As additional states, U.S. territories (other than Puerto Rico), Indian Tribes, Alaska Native entities, and Native Hawaiian organizations are awarded their planning money, they will have one year to complete their digital equity plans. States must solicit and respond to public comments on their draft plans, and then finalize their plans. Each state’s State Digital Equity Plan will be a key component of any application the state may later submit seeking a State Digital Equity Capacity Grant.

Elements of a State Digital Equity Plan

The requirements for the contents of State Digital Equity Plans were created by Congress and the NTIA with input from the public. The plans will include:

1. Identification of barriers to digital equity faced by covered populations in the state;
2. Measurable objectives for documenting and promoting, among each covered population located in that state, the following:
   • The availability of, and affordability of access to, fixed and wireless broadband technology,
   • The online accessibility and inclusivity of public resources and services,
   • Digital literacy,
   • Awareness of, and the use of, measures to secure the online privacy of, and cybersecurity with respect to, an individual, and
   • The availability and affordability of consumer devices and technical support for those devices;
3. An assessment of how these measurable objectives will impact and interact with the state's
   • Economic and workforce development goals, plans, and outcomes,
   • Educational outcomes,
   • Health outcomes,
   • Civic and social engagement, and
   • Delivery of other essential services;
4. A description of how the state plans to collaborate with key stakeholders including
   • Community anchor institutions,
   • County and municipal governments,
   • Local educational agencies,
   • Where applicable, Indian Tribes, Alaska Native entities, or Native Hawaiian organizations,
   • Nonprofit organizations,
   • Organizations that represent the following:
     • Individuals with disabilities, including organizations that represent children with disabilities,
     • Aging Individuals,
     • Individuals with language barriers, including— 1. Individuals who are English learners; and 2. Individuals who have low levels of literacy,
     • Veterans, and
     • Individuals in that state who are incarcerated in facilities other than Federal correctional facilities.
   • Civil rights organizations,
   • Entities that carry out workforce development programs,
   • Agencies of the State that are responsible for administering or supervising adult education and literacy activities in the State,
   • Public housing authorities, and,
   • A partnership between any of the above entities;
5. A list of organizations with which the state collaborated in developing the plan;
6. A stated vision for digital equity (see more below);
7. A digital equity needs assessment, including a comprehensive assessment of the baseline from which the state is working and the state’s identification of the barriers to digital equity faced generally and by each of the covered populations in the state;
8. An asset inventory, including current resources, programs, and strategies that promote digital equity for each of the covered populations, whether publicly or privately funded, as well as existing digital equity plans and programs already in place among municipal, regional, and Tribal governments (see more on this below);
9. A coordination and outreach strategy, including opportunities for public comment by, collaboration with, and ongoing engagement with representatives of each category of covered populations and with the full range of stakeholders;
10. A description of how municipal, regional, and/or Tribal digital equity plans will be incorporated into the State Digital Equity Plan;
11. An implementation strategy that is holistic and addresses the barriers to participation in the digital world, including affordability, devices, digital skills, technical support, and digital navigation. The strategy should (a) establish measurable goals, objectives, and proposed core activities to address the needs of covered populations, (b) set out measures ensuring the plan’s sustainability and effectiveness across communities, and (c) adopt mechanisms to ensure that the plan is regularly evaluated and updated;
12. An explanation of how the implementation strategy addresses gaps in existing state, local, and private efforts to address the barriers to digital equity faced by Covered Populations in the state identified by the state;
13. A description of how the state intends to accomplish the implementation strategy described above by engaging or partnering with:
    • Workforce agencies such as state workforce agencies and state/local workforce boards and workforce organizations,
    • labor organizations and community-based organizations, and
    • Institutions of higher learning, including but not limited to four-year colleges and universities, community colleges, education and training providers, and educational service agencies;
14. A timeline for implementation of the plan; and
15. A description of how the state will coordinate its use of State Digital Equity Capacity Grant funding and its use of any funds it receives in connection with the Broadband Equity, Access, and Deployment Program, and other federal or private digital equity funding.

A Vision for Digital Equity

The Benton Institute for Broadband & Society is particularly interested in states' visions of digital equity—in no small part because, to our knowledge, states have not articulated such visions before. 

NTIA has provides the following guidance to states about this section of their digital equity plans.

2.1 Vision

The purpose of this section is to provide a clear, specific picture of the State’s vision for digital equity. As part of this vision, States should define digital equity in the context of their State.

Each State may use this section to describe what success looks like for their State, inform strategies, serve as a guide for setting goals and objectives, and determine the activities the State will prioritize in the Digital Equity Plan.

States that are also utilizing funding from the Broadband Equity, Access, and Deployment (BEAD) Program should ensure that the programs and plans are coordinated and that the visions for BEAD and digital equity are aligned.

What should applicants describe for their vision?

Applicants should focus on describing what success looks like for their State, and it should inform strategies and serve as a guide for setting goals and objectives:

• What will digital equity look like in the context of your state?
• What are the broad goals that should be accomplished in executing this plan? (e.g., improve rural health outcomes, increase underrepresented youth employment in technology-related fields)

Asset Mapping

A state-level asset inventory of digital equity resources seems to be a huge undertaking given that digital equity activities are so people-focused (as opposed to technology-focused). 

NTIA has provides the following guidance to states about this section of their digital equity plans.

3.1 Asset Inventory

The purpose of this section is to catalogue the applicant’s unique assets that promote digital equity for each of the State’s covered populations, including current resources, programs, and strategies. Both publicly and privately funded assets should be included. The asset inventory should also include existing digital equity plans and programs among municipal, regional, and Tribal governments.

The asset inventory will identify the resources available to implement the Digital Equity Plan and to address the needs and gaps to achieve the State’s goals and objectives for digital equity. An asset mapping resource will be released to aid States in documenting digital equity assets.

The field of community development has a well-documented, adaptable and sustainable approach to identifying, engaging and activating community assets. The approach, often called Asset-Based Community Development (ABCD), combines practices that marginalized and oppressed communities have used for generations across the globe to gather and implement resources for achieving community goals.

In Getting a BEAD on Community Asset Mapping: How Community Development Can Aid Your State’s Broadband Planning, Ron Dwyer-Voss of Pacific Community Solutions, Inc. reminds planners that individual residents and families, especially Covered Populations, are essential to every asset inventory. Their knowledge, skills, and abilities are often overlooked and even displaced by well-meaning agencies implementing programs without the residents’ engagement. In addition to their own assets, residents bring connections and relationships to any table. This is the social capital of a community. Plans and programs that engage and share power with residents and their social capital expand ownership and increase resilience.

Additional Resources

For communities interested in contributing to their state's digital equity plans, Pathways to Digital Equity: How Communities Can Reach Their Broadband Goals–and How Philanthropy Can Help charts three pathways—Access, Adoption, and Use—to comprehensive planning and implementing effective connectivity solutions. The stories, tools, and resources found in this guidebook offer both guidance and inspiration for what’s possible when community members have a seat at the table.

Benton Senior Fellow John Horrigan devotes a lot of thought to evaluating the outcomes and impacts of programs designed to promote communications technology adoption and use. Understanding broadband adoption depends on people having the financial means to maintain service, Horrigan has been looking at government data that show sharp increases in broadband and computer adoption in the 2019-to-2021 time frame. Initiatives such as the Affordable Connectivity Program, which gives low-income people the means to maintain broadband service, are helping address “subscription vulnerability” for low-income households. Horrigan also examined ACP enrollment data and found that it offers clues as to how well a community is positioned to take advantage of funds to promote digital equity. He's developing a tool for planners that will be released in 2023.

More in this Series

The Infrastructure Law is Still about More than Money

A Year One Update on the Infrastructure Investment and Jobs Act: Investing in Broadband Deployment

A Year One Update on the Infrastructure Investment and Jobs Act: Investing in Broadband Adoption

A Year One Update on the Infrastructure Investment and Jobs Act: Connecting Tribal Communities

A Year One Update on the Infrastructure Investment and Jobs Act: Making Broadband More Affordable

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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Benton Institute
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