AARP Hearing Center
Background
Today, high-speed internet access in the home, commonly referred to as broadband, is essential. It enables older adults to benefit fully from technologies that improve their quality of life and allow them to age in place. Telehealth, for instance, has become an increasingly important way for older adults to receive health care. It has been especially important for those with mobility challenges and people living in rural areas where medical facilities may be many miles away. Moreover, a high-speed internet connection can enhance older adults’ social interactions with family and friends. The technology also permits them to shop, work, stream entertainment options, and engage in lifelong learning activities from the comfort and convenience of their own home.
In 2023, the Federal Communications Commission (FCC) updated its broadband speed benchmark to better reflect the needs of American households. The new standard requires download speeds of at least 100 megabits per second (Mbps) and upload speeds of 20 Mbps. As of the end of 2023, about half of U.S. households subscribe to high-speed internet services meeting this benchmark. And in some parts of the country, the digital divide is even wider. For instance, only 28 percent of people living in rural areas and 23 percent of people living on tribal lands subscribe to service that meets the FCC benchmark.
Three issues must be addressed to ensure that everyone is able to take advantage of the many applications and services that high-speed internet facilitates.
- Availability: Communities need high-speed internet access infrastructure. Yet this availability is lacking in many parts of the country, particularly in many lower-income and rural areas. Further, the service must have the capacity to support current and future needs.
- Affordability: Availability is insufficient if the service and appropriate equipment are not affordable for all people. Even when some price competition is present, households with low and moderate incomes often need a subsidy to be able to afford service.
- Digital literacy: People with high-speed internet service in their homes need digital literacy skills to benefit from it. They may benefit from education about the value of connectivity and technology use.
The digital divide refers to the gap between individuals and communities that have access to modern information and communication technology. One critical factor in bridging this divide is ensuring widespread access to affordable high-speed internet services. Barriers to this include a lack of availability, affordability, digital literacy skills, or a combination of these. Adoption rates vary significantly based on demographics and geography. Adults age 65 and older lag behind other age groups in broadband adoption. People of color, people with low and moderate incomes, people with disabilities, rural residents, and residents of tribal areas are likewise less likely to have a high-speed internet connection.
Addressing the digital divide requires a commitment to digital equity. Everyone—regardless of factors such as age, race, ethnicity, ability level, and geography—should have access to affordable, reliable high-speed internet service. They should also have the digital literacy skills to be able to take advantage of internet-based applications, products, and services.
Accurate high-speed internet availability and adoption data, as well as information about actual speeds and rates, are critical to inform federal and state policymaking. But data are constantly changing and sometimes lack accuracy. The FCC, states, and stakeholders are in the process of creating more accurate and granular maps. The FCC’s Broadband Data Collection program uses more precise location-by-location fixed data and mobile data based on standardized parameters. It verifies and audits provider-reported data and allows the public to challenge inaccuracies in the map.
Availability
Barriers prevent widespread deployment of infrastructure that supports high-speed internet. For example, rural communities can be costly to serve and yield low revenues (because there are few customers). They are sparsely populated, so the cost per household served is high. And they often contain challenging terrain, such as rocky land and streams, for laying down wires. Availability challenges extend beyond rural areas. Some neighborhoods with low incomes, as well as communities of color, are unserved or underserved. Communications companies may not upgrade existing infrastructure to support modern applications and speeds.
Federal and state governments play essential roles in supporting high-speed internet infrastructure deployment in areas where the private sector has not invested or has under-invested. Some federal and state programs exist to serve this purpose. The National Telecommunications and Information Administration is awarding states $42.5 billion in grants over five years to support planning, mapping, deployment, equity, and adoption. It also will award $1 billion for “middle mile” infrastructure deployment. In addition, the FCC administers programs that subsidize providers’ high-speed internet access deployment in “unserved” areas (through the Rural Digital Opportunity Fund). Other federal agencies also provide grants for certain purposes. Recognizing that federal funding sources are not adequate, many states have sought to add funding. Nevertheless, funding is not enough to meet the need.
Affordability
Even where high-speed internet infrastructure has been deployed, high prices can serve as barriers to adoption, especially for households with low and moderate incomes. Federal and state governments generally do not regulate the pricing of high-speed internet services. This, combined with a lack of competition, means that high-speed internet prices in the U.S. greatly exceed those in other countries. For some, even if high-speed internet service is available and affordable, slow speeds, data caps, and inferior technology deter adoption. This is particularly true of satellite and wireless services, which offer slower speeds and less reliability compared with wired service.
Federal, state, and local policymakers are addressing adoption challenges. The Federal Communication Commission (FCC) operates the Lifeline program, which subsidizes high-speed internet access for some households with low incomes. It offers a discount for households earning no more than 135 percent of the federal poverty line or who receive certain public benefit programs.
A growing number of municipalities and electric cooperatives have launched community broadband networks. In addition, some investor-owned utilities are making their networks available for the provision of broadband. These fiber-to-the-home networks can offer fast, reliable, and affordable high-speed internet service. However, 16 states have adopted restrictions that prevent or discourage community broadband.
Digital literacy
Digital literacy programs can help older adults and others gain the knowledge, skills, and confidence to use technology. The federal government does not run digital literacy training programs for older adults. However, the 2021 Infrastructure Investment and Jobs Act provides $2.75 billion in funding for digital equity activities, including digital literacy projects. Older adults are among the populations specifically mentioned in the digital equity language of the act. Some states and cities have established programs specifically designed to improve digital literacy. Many such programs are located in libraries, senior centers, and affordable housing developments. They strengthen local support systems for older adults.
Internet during emergencies
During emergencies, affordable internet service is vital. High-speed internet helps older adults use online apps to receive telehealth services, shop for groceries and other items, work from home, connect with friends and family, and engage in lifelong learning opportunities. Policymakers can support increased adoption during other such emergencies.
HIGH-SPEED INTERNET SERVICES: Policy
HIGH-SPEED INTERNET SERVICES: Policy
Universal and affordable high-speed internet
Everyone should have affordable and reliable high-speed internet access in the home, regardless of such factors as geography, race, ethnicity, income, age, and disability. This includes people living in underserved communities where high-speed internet is not deployed, as well as those who cannot afford service where it is available. Policymakers should consider using grants, loans, tax credits, and other incentives to ensure that as many people as possible receive the benefits of high-speed internet. These policies should incorporate consumer protections and should not shift costs or place an unfair burden on taxpayers or ratepayers.
Universal availability
Policymakers and the private sector should ensure universal deployment of reliable high-speed internet infrastructure. This includes underserved areas, such as rural areas and communities with low incomes. Speeds and data capacity should be sufficient to accommodate everyday applications such as video conferencing, telehealth, and streaming. To the extent feasible, policymakers should prioritize deploying infrastructure that provides the fastest and most reliable service, in particular fiber.
Federal policymakers should implement a robust national high-speed internet deployment strategy. It should include specific targets in terms of reach, coverage, and usage. States and localities should pursue a complementary strategy, particularly in areas where national strategies leave gaps. Because the financial means of communities vary significantly, to the extent feasible, priority should be given to those communities with the fewest resources.
Policymakers should ensure all communities have access to advanced high-speed internet technology by monitoring deployment and enhancing digital inclusion.
Affordability
Policymakers and the private sector should actively work to narrow the significant gaps in the adoption of high-speed internet. They should address the digital divide among older adults, people of color, people with disabilities, people with low and moderate incomes, and residents of tribal areas.
Policymakers should increase subsidies for households with low and moderate incomes to ensure affordability for all.
Internet providers should be encouraged to provide access to free or discounted devices and internet service for underserved populations, including older adults.
Policymakers should promote increased competition to lower prices and improve quality and reliability. Whenever possible, consumers should have the choice of competing providers, including municipal broadband and electric cooperatives. At a minimum, all consumers should have access to at least one provider.
Consumers should be able to buy stand-alone high-speed internet service at affordable prices.
Consumers should be able to switch internet service providers easily.
Community broadband
All communities should have the right to own, operate, or deploy their own broadband network and services. Existing community broadband networks should be allowed to expand to new areas. Communities lacking affordable high-speed internet access should be offered the technical assistance necessary to enable them to establish their own community broadband networks.
Federal policymakers should prohibit state laws and regulations that restrict community broadband networks.
State policymakers should support the establishment of community broadband networks in underserved areas. States should refrain from prohibiting municipal broadband deployment. States that have put in place such restrictions should overturn them.
Data collection and reporting
State and federal policymakers should collect and report full and accurate deployment and adoption data. This includes timely, standardized mapping data.
The Federal Communication Commission and state agencies should collect and report pricing information, including monthly fees, connection charges, equipment rental fees, and major contract terms.
Digital literacy
Policymakers and the private sector should fully fund robust digital literacy training programs and programs that are tailored to meet the specific needs of underserved populations, including older adults.
Consumer protections
Policymakers and the private sector should ensure that high-speed internet access incorporates consumer protections (see also Consumer Protections, Service Quality, and Reliability and AARP Consumer Rights and Protection Principles). This includes reasonable and transparent pricing and billing, along with privacy protections (see also Data Privacy).
Policymakers should ensure net neutrality for internet service providers (see also Net Neutrality).
Consumers should not be charged for equipment that they provide themselves.
Regulation and oversight
Policymakers should engage in robust oversight of high-speed internet to ensure consumer protections, reliability, and accountability. Federal and state regulators should conduct regulation and oversight. This includes oversight of rates, terms, and conditions of high-speed internet access.
When making programmatic and funding decisions, policymakers should:
- consider the societal benefits that stem from public investment in high-speed internet;
- prioritize grants and subsidies to providers that offer the best combination of affordable consumer prices, fast speed, resiliency, commitment to digital literacy, and network openness that allows competitors to use the provider’s infrastructure; and
- actively seek meaningful input from community members and stakeholder groups, including those representing older adults and other underserved populations.
When conducting oversight and enforcement, policymakers should:
- ensure accountability, particularly among providers that receive public funding;
- regularly compile, review, and make public consumer complaints about high-speed internet service;
- analyze prices actually charged, as well as actual and advertised speeds, for high-speed internet service in various locations;
- track service-quality metrics; and
- compile and publicly report a full and accurate measure of U.S. high-speed internet deployment and adoption by geography and demographic factors such as age, race, and ethnicity. This measure should be based on accurate, timely, and standardized information.
High-speed internet during emergencies
Policymakers should promote the deployment of robust, reliable high-speed internet networks that function when grid power is not available. Policymakers should set and enforce backup power standards.
During declared states of emergency, policymakers and the private sector should:
- expand access to high-speed internet access, particularly for older adults with low incomes and other underserved populations. This includes providing free or low-cost devices and service and expanding subsidies.
- remove or increase data caps, which limit the overall amount of data a household can use over its internet connection each month.
- prohibit disconnection of high-speed internet for nonpayment for the duration of the emergency.
- ensure that consumers can reasonably repay any unpaid bills for high-speed internet service after the emergency is over. This includes providing funding to assist consumers with low incomes and ensuring access to reasonable repayment plans.