FCC Collects Data on Broadband Availability but Lacks Accurate and Complete Data on Broadband Access on Tribal Lands

FCC collects and uses data that capture broadband availability to  measure broadband access on tribal lands, leading to overstatements of  broadband access on tribal lands. Specifically, FCC’s method of  collecting mobile and fixed broadband data from providers (the Form 477)  does not accurately or completely capture broadband access on tribal  lands because it (1) captures nationwide broadband availability data— areas where providers may have broadband infrastructure—but does so  in a way that leads to overstatements of availability, and (2) does not  capture information on factors that FCC and tribal stakeholders have  stated can affect broadband access on tribal lands, such as affordability,  service quality, and denials of service. Thus, in its annual reports and maps of fixed broadband service, FCC  considers an entire block to be served if a provider reports that it does, or  could offer, service to at least one household in the census block. However, FCC, tribal stakeholders, and providers have noted that FCC’s  approach leads to overstatements of availability. By using these  data, FCC has overstated the extent to which Americans living on tribal  lands can actually access broadband Internet services and FCC’s  progress toward increasing broadband access. Some tribal officials stated that  inaccurate data have affected their ability to plan their own broadband  networks and obtain federal broadband funding, and most of the tribal  stakeholders we interviewed identified a pressing need for accurate data  on the gaps in broadband access on tribal lands in order to ensure that  tribes can qualify for federal funding and to effectively target the areas  that need it most. By developing and implementing  methods for collecting and reporting accurate and complete data on  broadband access specific to tribal lands, FCC would be able to better  identify tribal areas without access to broadband and to target federal  broadband funding to the tribal areas most in need. FCC Does Not Have a Formal Process to Obtain Tribal Input on Its Broadband Data, and Tribal Stakeholders Reported a Lack of Provider Engagement

		FCC Does Not Have a Formal Process to Obtain Tribal Input on Its Broadband Data

FCC uses data submitted by broadband providers via the Form 477  process to develop maps and datasets depicting broadband services  nationwide, and in specific locations, such as tribal lands, but does not  have a formal process to obtain input from tribes on the accuracy of the  broadband data. About half of the tribal stakeholders we spoke to raised concerns that  FCC’s broadband deployment data rely solely on unverified information  submitted by providers. Additionally, most tribal stakeholders we  interviewed told us that consistent with the recommendations in the  National Broadband Plan, FCC should work directly with tribes to obtain  information from them to improve the accuracy of its broadband  deployment data for tribal lands. By establishing a process to  obtain input from tribal governments on the accuracy of provider- submitted broadband data that includes outreach and technical  assistance, as recommended in the National Broadband Plan, FCC could  help tribes develop and share locally specific information on broadband  access, which would in turn improve the accuracy of FCC’s broadband  data for tribal lands. Appendix II: Objectives, Scope, and Methodology

This report discusses the extent to which: (1) the Federal  Communications Commission’s (FCC) approach to collecting broadband  availability data accurately captures the ability of Americans living on  tribal lands to access broadband Internet services and (2) FCC obtains  tribal input on the accuracy of provider-submitted broadband data for  tribal lands. To address both objectives and obtain tribal government representatives’  feedback on the accuracy of FCC’s broadband data for their lands, we  interviewed representatives from 25 tribal governments or tribally owned  providers, including visits to 9 tribal lands. We also interviewed FCC officials, industry  stakeholders, and tribally owned broadband providers to understand  FCC’s current process for collecting broadband data.
Why GAO Did This Study

Broadband furthers economic development, educational attainment, and public health and safety; however, residents of tribal lands have lower levels of broadband access relative to the U.S. population. Congress has prioritized identifying and targeting funds to unserved areas. FCC uses data from broadband providers to develop maps and reports depicting broadband availability in the United States, with specific information on tribal lands. GAO was asked to review FCC's efforts to collect broadband data for tribal lands.
This report examines the extent to which: (1) FCC's approach to collecting broadband data accurately captures broadband access on tribal lands and (2) FCC obtains tribal input on the data. GAO interviewed stakeholders from 25 tribal governments or tribally owned providers, and visited nine tribal lands. The selected tribes varied geographically and in levels of broadband availability, among other characteristics. GAO also reviewed FCC's rulemakings on broadband data and interviewed other tribal stakeholders, FCC officials, and 13 non-tribal broadband providers selected to include a diversity of technologies. Provider and tribal interviews were based on non-generalizable samples.

What GAO Found

The Federal Communications Commission (FCC) collects data on broadband availability from providers, but these data do not accurately or completely capture broadband access on tribal lands. Specifically, FCC collects data on broadband availability; these data capture where providers may have broadband infrastructure. However, FCC considers broadband to be “available” for an entire census block if the provider could serve at least one location in the census block. This leads to overstatements of service for specific locations like tribal lands (see figure). FCC, tribal stakeholders, and providers have noted that this approach leads to overstatements of broadband availability. Because FCC uses these data to measure broadband access, it also overstates broadband access—the ability to obtain service—on tribal lands.
Additionally, FCC does not collect information on several factors—such as affordability, quality, and denials of service—that FCC and tribal stakeholders stated can affect the extent to which Americans living on tribal lands can access broadband services. FCC provides broadband funding for unserved areas based on its broadband data. Overstatements of access limit FCC's and tribal stakeholders' abilities to target broadband funding to such areas. For example, some tribal officials stated that inaccurate data have affected their ability to plan their own broadband networks and obtain funding to address broadband gaps on their lands. By developing and implementing methods for collecting and reporting accurate and complete data on broadband access specific to tribal lands, FCC would be better able to target federal broadband funding to tribal areas that need it the most and to more accurately assess FCC's progress toward its goal of increasing all Americans' access to affordable broadband.
FCC does not have a formal process to obtain tribal input on the accuracy of provider-submitted broadband data. In the National Broadband Plan , FCC highlighted the need for a targeted approach to improve broadband availability data for tribal lands. As outlined in the plan, such an approach would include working with tribes to ensure that information is accurate and useful. About half of the tribal stakeholders GAO interviewed raised concerns that FCC relies solely on data from providers, and most stated FCC should work with tribes to improve the accuracy of FCC's data. Establishing a formal process to obtain input from tribal governments on the accuracy of provider-submitted broadband data could help improve the accuracy of FCC's broadband data for tribal lands.

What GAO Recommends

GAO is making three recommendations to FCC, including that it collect and report data that accurately measure tribal broadband access as well as develop a process to obtain tribal input on the accuracy of the data. FCC agreed with the recommendations.