What GAO Learned About Federal Broadband Programs

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Round-Up for the Week of April 28-May 2, 2025

This week, the Government Accountability Office (GAO) released a comprehensive review of federal broadband funding programs and what actions are needed from key agencies to help close the digital divide. In May 2022, GAO called for the synchronization of federal efforts on broadband, identifying 100 broadband programs and emphasizing the need for a national broadband strategy. In this new report, GAO examines 1) agencies’ use of broadband availability information and the extent to which the Federal Communications Commission (FCC) ensures the quality of data in its National Broadband Map; and 2) the extent to which agencies’ coordination of broadband funding programs aligns with GAO’s leading practices for interagency collaboration. The report also highlights state and federal coordination on broadband, with input from state broadband offices and other stakeholders.

GAO's recommendations are split across the four agencies executing the majority of current federal broadband programs: the FCC, the U.S. Department of Commerce’s National Telecommunications and Information Administration (NTIA), the U.S. Department of Agriculture (USDA), and the Department of the Treasury.

I. The FCC's Broadband Data Collection

The FCC is responsible for maintaining the National Broadband Map, which shows where broadband is available. As required by Congress in the Broadband DATA Act, the FCC launched this map in 2022. The map displays location-level information on the availability of broadband service throughout the U.S., including mobile coverage. Internet service providers (ISPs) submit broadband availability information through the FCC’s Broadband Data Collection twice a year, including the technology type and maximum advertised download and upload speeds they offer at each location.

The FCC is also charged with collecting and publishing information on the Broadband Funding Map, which launched in 2023. The Infrastructure Investment and Jobs Act requires federal agencies to report relevant data to the FCC for inclusion in the funding map, which displays broadband infrastructure deployment projects funded by the federal government that began as early as January 2019. The map can display both completed and projects that are in progress.

The Broadband DATA Act requires the FCC to verify the accuracy and reliability of ISPs’ BDC submissions. The FCC meets this statutory obligation by using:

• Data Validations: All data submitted by providers undergo automated validations at the time the provider submits it. These validations check that the data 1) meet the specifications set forth by the FCC, 2) do not contain any apparent errors, and 3) do not display any anomalous patterns.
• Verifications: The FCC typically initiates verifications as a result of referrals from third parties or staff reviews of provider data, at times requiring the provider to submit additional information about its network infrastructure and service availability to substantiate availability claims.
• Audits: As required by the Broadband DATA Act, the FCC conducts random and targeted audits of provider data, which focus on the accuracy of a provider’s reported availability data.
• Enforcement Referrals: The FCC may refer entities for enforcement actions for 1) failing to make a Broadband Data Collection filing in accordance with FCC rules and instructions or 2) willfully and knowingly, or recklessly, submitting inaccurate or incomplete information regarding the availability or quality of broadband service.

What GAO Found

Although these tools represent meaningful efforts to assess and improve the reliability of providers’ broadband availability data, the sufficiency of these efforts is not entirely clear. First, the FCC can only carry out a limited number of verifications, audits, and enforcement referrals with its existing resources. In addition, except when the FCC may use mobile drive testing conducted by an FCC contractor, verifications and audits rely on information provided to the FCC by the same providers whose data are being questioned in the first place. For example, in response to a verification inquiry, mobile providers have the option to submit their own speed test data.

Further, the FCC has reported that a substantial number of the challenges filed against data that describe the availability of broadband to fixed locations, such as houses or stores have been successful. To GAO, this demonstrates that a nontrivial amount of inaccurate data ends up on the National Broadband Map despite the FCC’s validations, verifications, audits, and enforcement referrals.

Stakeholders GAO interviewed—including industry groups, advocacy organizations, and others—raised significant concerns about the reliability of broadband availability data on the National Broadband Map, while acknowledging that the granularity of the data represents a marked improvement over the FCC’s prior, census-block approach.

According to agency documents, the FCC is continually refining its processes for validating, verifying, and auditing providers’ broadband availability data and making enforcement referrals based on lessons learned. But officials said the FCC has not formally assessed the effectiveness of these efforts. Moreover, although the FCC began collecting provider data in June 2022, the FCC has not yet formally documented the procedures that staff must conduct to carry out the data validations, verifications, audits, and enforcement referrals.

GAO Recommendations

According to GAO, the FCC should:

• For its Broadband Data Collection, formally document internal policies and procedures for conducting validations, verifications, and audits of broadband availability data and making enforcement referrals.

• Assess and document the results of its Broadband Data Collection monitoring to identify any deficiencies in its data validations, verifications, audits, and enforcement referrals processes.

• Take steps to remedy any deficiencies the FCC identifies in its monitoring of Broadband Data Collection validations, verifications, audits, and enforcement referrals.

II. Interagency Coordination on Federal Funding

The FCC, NTIA, USDA, and Treasury use a variety of preexisting and new mechanisms to coordinate their administration of federal broadband funding.

In May 2022, the FCC, NTIA, USDA, and Treasury entered into a Memorandum of Understanding (MOU) that established guidelines for the agencies to share information about broadband deployment funding under their programs. The MOU is the main mechanism these agencies use to share information about their existing and pending broadband deployment projects, according to agency officials. The agencies revised and extended the MOU in May 2024. The revised MOU expires in 2028 and may be extended as agreed upon by the four agencies.

Also in 2022, Treasury joined the biweekly coordinating meetings that were already taking place among FCC, NTIA, and USDA to discuss broadband-related issues, such as new funding or avoiding duplicative funding. As of December 2024, the four agencies continued to meet to share information about federal broadband funding. According to agency officials, these recurring meetings are the primary mechanism by which they build trust among each other.

The FCC, NTIA, and USDA engage in bilateral agency-to-agency coordination prior to awarding broadband funding to help avoid duplication of funding. For example, the FCC and USDA have coordinated on the FCC’s High Cost program and USDA’s programs, such as Community Connect, which were established prior to 2022. Since 2022, the agencies have extended these efforts to include programs such as those established under the Consolidated Appropriations Act, 2021, and the Infrastructure Investment and Jobs Act. Coordinated program implementation may help reduce the possibility of wasteful duplicative funding, which, as GAO noted in 2022, could increase with the number of broadband programs. While GAO noted this possibility, the agency did not state that there was presently an issue with duplicative funding.

Officials from these agencies told GAO that the Broadband Funding Map also provides a mechanism for agencies to share data with each other and that they can consult the map when coordinating funding decisions.

Conflicting Views on Coordination

The FCC, NTIA, USDA, and Treasury have identified a shared goal in their efforts to administer federal broadband funding, but have not defined specific outcomes or performance measures to track progress across programs.

Further, while the FCC, NTIA, USDA, and Treasury have identified a leadership model, they have not collectively defined clear roles and responsibilities. Each agency's officials agreed that they share leadership but had varying perspectives on whether one agency may have the lead agency role in coordination efforts. Specifically, FCC, USDA, and Treasury officials said that NTIA is a leader, or that NTIA has a special role, given that it is the President’s principal telecommunications advisor. However, NTIA officials told GAO that Congress has not statutorily mandated any agency as the main lead. NTIA facilitates coordination among relevant agencies as the principal advisor, but each agency works to lead and manage its own programs, according to NTIA officials. In addition, these officials told GAO that NTIA has strategic and statutory reasons to continue facilitating coordination. For example, the ACCESS BROADBAND Act directs NTIA to coordinate with other agencies to enhance efficiency and prevent duplication of federal funding.

All four agencies have made progress in bridging organizational cultures, but have not fully established compatible policies and procedures. Creating common terminology and definitions, undertaking activities to build trust, and developing compatible policies and procedures will help agencies coordinate effectively across agency boundaries. Establishing ways to operate across agency boundaries, such as through developing a common understanding of key terms and compatible policies, can help address cultural differences and strengthen trust.

What GAO Found

GAO found three key areas where the existing documentation does not clearly state the scope of, or discuss how the agencies will implement collaborative efforts. In addition, the agencies have not clearly defined, agreed upon, or documented these key areas in other written guidance or agreements.

• Defining covered data: The MOU states that the agencies shall share information with each other about certain projects that have received, or will receive, funds for broadband deployment, including, but not limited to, “covered data.” However, because the agencies have not clearly defined or documented what “covered data” include, it is unclear what data agencies have actually agreed to share.
• Submitting Broadband Funding Map data: While each agency is responsible for providing data to the FCC to update the Broadband Funding Map on a periodic basis, there are no specific and agreed-upon timelines for when agencies are to provide data on their funded projects.
• Establishing a de-duplication process: Officials from the FCC, NTIA, and USDA told the GAO that they have not established a formal process to de-duplicate their funding prior to making decisions about projects to fund. Rather, these officials said the agencies generally follow a high-level process, authored by NTIA, for de-conflicting and resolving potentially duplicative funding situations.

GAO Recommendations

GAO recommends that the FCC, NTIA, USDA, and Treasury each should:

• Clearly define and document the scope of what “covered data” includes, in collaboration and agreement with NTIA, USDA, and Treasury (as referenced in the agencies’ information-sharing MOU).
• Clearly define and document timelines for agencies to submit data on funded awards to the Broadband Funding Map, including any changes to awards.

The FCC, NTIA, and USDA should:

• Clearly define and formally document the agencies’ broadband funding de-duplication process.

III. State and Federal Coordination on Broadband

GAO found that the FCC, NTIA, USDA, and Treasury all coordinate with states and territories through a broad range of methods that were similar across the agencies, and on several common topics. According to officials from all four agencies, the purpose of this coordination is to help states navigate federal broadband programs. These officials told GAO that their coordination activities with states and territories—which two characterized as extensive—are either loosely guided by statute or occur on a more ad hoc basis based on the programs’ focus and states’ needs. Officials from all the agencies characterized some of their coordination with states and territories as a joint federal effort.

State broadband offices GAO surveyed provided their perspectives about specific aspects of the federal agencies’ coordination on federal broadband funding.

• Overall coordination: When asked how they would characterize overall agency coordination efforts, most state broadband offices responded they would characterize Treasury officials’ coordination as effective or very effective, and many responded that NTIA officials’ coordination was effective or very effective. In contrast, many state offices responded that they would characterize FCC and USDA officials’ coordination as effective or somewhat effective.
• Expertise: In general, state broadband offices indicated they are satisfied with federal agency officials’ expertise in facilitating coordination with them on federal broadband programs. Specifically, most state broadband offices are satisfied with Treasury coordinating officials’ expertise, many are satisfied with FCC and NTIA officials’ expertise, and the majority of the offices that indicated coordinating with USDA are satisfied with USDA officials’ expertise.
• Timeliness: In general, the majority of state broadband offices reported they are satisfied with the speed with which coordinating officials from three of the four federal agencies responded to their offices’ questions, inquiries, and requests. Specifically, most state offices are satisfied with Treasury officials’ timeliness, many are satisfied with FCC and NTIA officials’ timeliness, and, of those who indicated they have coordinated with USDA, about one-third responded they are satisfied with USDA officials’ timeliness.
• Methods and topics: GAO found that overall, state broadband offices characterized the various methods FCC, NTIA, and Treasury used to coordinate as helpful or very helpful, while they had mixed views on the helpfulness of USDA officials’ methods of coordination. Among the most helpful methods identified by state broadband offices were assigned points-of-contact; opportunities to interact through in-person, recurring, and virtual meetings; and phone and email correspondence. However, offices had mixed views on the effectiveness of agency coordination on specific topics. For example, across responses for FCC, NTIA, and USDA, some or many offices responded that coordination from the agencies on preventing duplicative funding, service areas/project locations, and navigating timelines of competing federal funding was not effective, or somewhat effective. In contrast, many state offices responded that the application guidance that NTIA and Treasury provided was effective, or very effective.

IV. GAO: U.S. Needs a National Broadband Strategy

As early as 2022, the GAO emphasized the need for a national broadband strategy that includes clear goals, performance measures, and agency roles. The Executive Office of the President has not yet taken a position on this recommendation and has not developed a strategy. However, Congress has considered legislation that would require NTIA’s Office of Internet Connectivity and Growth to develop and submit to Congress a national strategy to close the digital divide. That strategy would have four goals:

1. Support better management of Federal broadband programs to deliver on the goal of providing high-speed, affordable broadband internet access service to all individuals in the United States;
2. Synchronize interagency coordination among covered agencies for Federal broadband programs;
3. Synchronize interagency coordination regarding the process for approving the grant of an easement, right of way, or lease to, in, over, or on a building or any other property owned by the Federal Government for the right to install, construct, modify, or maintain infrastructure with respect to broadband internet access service; and
4. Reduce barriers, lower costs, and ease administrative burdens for State, local, and Tribal governments to participate in Federal broadband programs.

GAO promises to continue monitoring efforts to implement this recommendation, as well as the results of key federal programs that fund broadband deployment, as part of its ongoing work to help ensure accountability for the billions of dollars in funding.

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Jun 19––National Juneteenth Digital Opportunity Bible Study (Black Churches 4 Digital Equity Coalition)

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