The Federal Communications Commission (FCC) recently adopted rules that would allow unused airwaves abutting broadcast television spectrum to be available for wireless broadband (Federal Communications Commission News Release, FCC Adopts Rules for Unlicensed Use of Television White Spaces. November 4, 2008.) Opening these airwaves, which are commonly called television “white spaces,” is expected to lead to improved wireless connectivity and considerable innovation in Internet-based products and services. Advocates say that the new rules could significantly upgrade the range and quality of broadband services across rural America. RUPRI has prepared a policy brief to give policymakers and practitioners some background on the issues and opportunities associated with rural broadband, as a basis for wiser public choice on investment in rural places.
Six principles are recommended to underlay future rural broadband policy.
1. Broadband connectivity should be central to universal telecommunications service.
The intent of the 1996 Telecommunications Act was to ensure that all Americans had access to advanced telecommunications. FCC data appear to indicate that this goal has already been achieved but it is clear from recent studies that these data are misleading, and that even in states such as California, there are areas where over 40 percent of the population do not have the option to purchase any broadband service. The Broadband Data Improvement Act of 2008 should provide the necessary impetus to collect more detailed information on the availability and adoption of broadband across the country and help focus attention on areas where the goal of universal service is not being met.
2. Broadband is a critical part of rural development infrastructure.
Investments made through the Universal Service Fund, by the US Department of Agriculture, and by certain states to stimulate broadband infrastructure in rural America have undoubtedly had substantial and positive impact. But this investment has to continue as demand increases and new technologies evolve. For rural America, this investment is not an optional luxury after other infrastructure investments such as roads, electricity, or water. The ability to promote distance learning, to transfer medical records and provide remote medical treatment, and to participate in civic affairs online all enable small communities to remain viable and sustainable for the long-term.
3. Speed really does matter.
Differences in data transfer speeds have the potential to mask another disparity in broadband service across the country. While the market in metropolitan areas continues to ramp up speeds and quality, less densely populated areas are struggling to obtain basic services, and the divide between urban and rural services continues to widen on this second front. Rural investment programs need to focus not on current minimum requirements, but on building for the next generation of technologies and capacities.
4. Outcomes, not specific technologies, should drive broadband deployment.
Outcomes based on measures of availability, speed, and quality should be the drivers of broadband infrastructure investment. Recognizing that rural America comprises a diverse array of geographic, demographic, and economic structures, no single technology or business model will serve all rural needs. In addition, the relative merits of different technologies change over time with innovation. Public policy should not inadvertently give an advantage to one approach over the others, but remain “technology neutral.”
5. Enhanced supply must be accompanied by strategies to increase demand.
Studies have shown that there is little difference in the range and depth of online activities of rural Internet users and their urban counterparts once they take the step to be subscribers. The challenge is to overcome the barriers of inadequate supply, cost, and unfamiliarity with the technologies to encourage more rural residents to take that step. Training and support programs offered by community colleges and community-based organizations provide many examples of how local communities are aggregating demand for broadband and its benefits among their citizens. Getting more computers into homes and businesses is a necessary prerequisite to increasing comfort levels for potential users.
6. States, regions, and communities should integrate broadband connectivity and use into their strategic planning.
Programs to encourage investments and demands will vary from community to community. Many states have already been very active in promoting broadband deployment strategies, but others have not made this a priority. Some local communities, tired of waiting for telecommunications companies or states to make broadband available, have gone ahead with projects to aggregate demand and to forge partnerships with companies, utilities, colleges, hospitals, and other institutions. Federal policies should encourage both statewide and local innovation and remove regulatory and other barriers to such projects.
