FCC has primary responsibility for regulating broadband. FCC adopted a transparency rule requiring ISPs to provide  consumers with information on their services’ performance  characteristics. However, the information available to consumers is not  standardized, and some stakeholders stated that this lack of  standardization makes it difficult for consumers to compare broadband  services. However, the reports are not targeted toward  consumers, and stakeholders stated that consumers might not be aware  of the information. In addition, ISPs may provide speed test tools  However, the information from speed tests may not provide consumers  with the information they need to understand what factors are affecting  their broadband performance. Studies we reviewed and stakeholders we  spoke with noted that speed tests can be affected by a variety of factors,  which makes it difficult for consumers to identify what specific problem is  affecting their broadband performance. FCC  collaborated with industry and public interest stakeholders when  designing the MBA program. FCC Has Taken Steps to Evaluate Its Efforts to Inform Consumers, but Could Enhance Its Performance Information and Measures

FCC has taken steps to determine whether its efforts to provide  consumers with broadband performance information—such as the  transparency rule and MBA program—are effective and meeting  consumers’ needs. ),  and FCC tried to address this issue through the transparency rule. FCC’s Ability to Evaluate Its Efforts Is Limited by a Lack of Useful Performance Information and Relevant Performance Goals and Measures

			FCC Obtains Inconsistent and Incomplete Performance Information from Stakeholder Comments and Consumer Complaints

We have previously found that leading organizations that have  progressed toward results-oriented management use performance  information as a basis for decision-making and that the usefulness of  performance information can be affected by its completeness, accuracy,  consistency, validity, and credibility, among other things. Although stakeholder comments  and consumer complaints can provide FCC with valuable insights on  topics of interest to the commission, the information FCC obtains from  these sources lacks some of the characteristics of useful performance  information, such as consistency and completeness. Consequently, several Open Internet comments we reviewed filed by  ISPs and industry associations questioned FCC’s reliance on complaints  as a basis for decision-making. FCC Lacks Performance Goals and Measures to Monitor Its Efforts to Inform Consumers

FCC’s current strategic plan includes strategic objectives related to  informing consumers about broadband networks—reflecting its position  that informed consumers help facilitate competition in the broadband  market. More Americans are accessing broadband and relying on their  broadband service for an increasingly diverse range of uses, including  education, medicine, public safety, and entertainment. Recommendations for Executive Action

To help FCC determine whether its efforts to provide consumers with  broadband performance information are effective and meeting  consumers’ needs, and whether additional efforts—such as a  standardized label suggested by FCC’s transparency working group— could benefit consumers, FCC should take the following two actions:  1.  conduct or commission research on the effectiveness of FCC’s efforts  to provide consumers with broadband performance information and  make the results of this research publicly available, and  2.  establish performance goals and measures under the agency’s  relevant strategic objectives that allow it to monitor and report on the  impact and effectiveness of its efforts. Appendix I: Objectives, Scope, and Methodology

The objectives of this report were to examine (1) what information is  currently available to consumers regarding broadband performance and  the limitations of this information, if any, and (2) how does the Federal  Communications Commission (FCC) evaluate its efforts to provide  consumers with broadband performance information? We also conducted a literature  review to identify articles and studies relevant to broadband performance  measurement and disclosure of broadband performance information to  consumers. To determine how FCC evaluates its efforts to provide consumers with  broadband performance information, we interviewed FCC officials  regarding their efforts to provide consumers with broadband performance  information and evaluate and monitor the effectiveness of these efforts  and reviewed relevant FCC documents, including its strategic and  performance plans, consumer surveys, and resources available to  consumers on FCC’s website.
Why GAO Did This Study

Broadband is increasingly seen as an essential communications service, with applications in education, medicine, public safety, and entertainment. However, consumers can experience broadband performance problems. FCC, which has primary responsibility for regulating broadband, has taken steps to measure broadband performance and to require that ISPs give consumers information about the performance of their services.
GAO was asked to review issues related to broadband performance information. This report examines (1) broadband performance information available to consumers and its limitations, if any, and (2) FCC's actions to evaluate its efforts to provide consumers with broadband performance information.
To address these objectives, GAO reviewed FCC proceedings; conducted a literature review; analyzed comments filed with FCC regarding broadband performance information; and interviewed FCC officials and various stakeholders from industry and public interest groups.

What GAO Found

Consumers can access broadband performance information from several sources, including Internet service providers (ISP), online speed tests, and the Federal Communications Commission (FCC); however, the information has some limitations. For example:
ISP information: FCC's transparency rule requires ISPs to disclose broadband performance information, but ISPs' disclosures vary, and some stakeholders said that the lack of standardization of disclosures can make it difficult for consumers to compare broadband services. Some ISPs, however, question the need and benefit of standardized disclosures. FCC recently adopted enhancements to the transparency rule, such as specifying what information ISPs must disclose, and FCC is considering potential disclosure formats.
Speed tests: Consumers can use information from these tests to verify their broadband speeds. However, speed tests can be affected by many factors and may not detect congestion affecting a specific website. Thus, it can be difficult for consumers to identify the cause of their broadband performance problems.
FCC reports: Through the Measuring Broadband America (MBA) program, FCC tests ISPs' networks and compares their actual and advertised speeds in an annual report . However, the report is not targeted toward consumers, and stakeholders stated that consumers may not be aware of the report.
FCC has taken steps to evaluate its efforts to provide consumers with broadband performance information, such as its transparency rule and MBA program; however, FCC's ability to evaluate its efforts is limited by a lack of useful performance information and relevant performance goals and measures. For instance, while FCC obtains information about the effectiveness of its efforts from stakeholders' comments and consumers' complaints, FCC has not sought performance information from more objective sources, such as consumer research—as has been done by other government entities. Further, although consumer complaints can provide FCC with valuable insights on topics of interest to the commission, FCC has acknowledged that complaints may not provide a complete picture of consumer's information needs and some industry stakeholders have questioned FCC's reliance on complaints as a basis for making decisions. In addition, although FCC's strategic plan includes strategic objectives related to informing consumers about broadband networks, FCC lacks performance goals and measures to monitor the impact and effectiveness of its efforts to provide consumers with broadband performance information. GAO has previously reported that critical elements of effective performance management include information that is complete and consistent, with performance measures linked to goals. Without such information and measures, FCC cannot be assured that its efforts to provide consumers with broadband performance information are effective and meeting consumers' needs.

What GAO Recommends

FCC should take additional steps to evaluate its efforts to provide consumers with broadband performance information. This should include: (1) conducting or commissioning research on the effectiveness of its efforts and making the results publicly available, and (2) establishing performance goals and measures that allow FCC to monitor and report on these efforts. FCC concurred with GAO's recommendations.