# Recent Reports

Reports News from the GAO

- Broadband Deployment: Agencies Should Take Steps to Better Meet Deadline for Processing Permits What GAO FoundThe Bureau of Land Management (BLM) and Forest Service process the most applications from telecommunications providers to install communications use equipment or facilities—including for broadband internet—on federal property. However, GAO found that from fiscal years 2018 through 2022, BLM and Forest Service did not have sufficiently reliable—i.e., accurate and complete data—to determine the processing time for 42 percent and 7 percent, respectively, of their communications use applications. These agencies lacked the necessary controls to ensure staff entered key information, such as start and end dates, in their electronic systems. Without accurate, complete data to determine processing times, the agencies cannot track the extent to which they are complying with the statutory requirement that they grant or deny applications within 270 days.For those communications use applications with sufficient data, BLM and Forest Service reduced their average processing time by 57 percent from fiscal years 2018 through 2022. However, despite this overall improvement, about half of the applications either exceeded the 270-day deadline or did not have sufficiently accurate and complete information to determine if they met the deadline.Selected Agencies' Performance in Processing Communications Use Permit Applications Within the 270-Day Deadline, Fiscal Years 2018—2022Officials from BLM and Forest Service said that applicant non-responsiveness and staffing issues contributed to the delays in processing communications use applications. Forest Service has taken some steps to improve processing, including hiring additional staff, but neither agency has fully analyzed or addressed reasons why many applications processing time exceeded the deadline. Moreover, neither agency has a method to alert staff to applications that are at risk of exceeding the 270-day deadline. Until BLM and Forest Service address issues that contribute to delays and establish methods to flag at-risk applications, the agencies may continue to miss the deadline at similar rates, which could cause delays and increased costs in deploying needed broadband infrastructure.Why GAO Did This StudyMillions of Americans do not have broadband access, which has become essential for online activities like work, school, and health care. With the federal government investing billions of dollars in expanding access in the coming years, new broadband infrastructure will frequently cross federal lands or connect to federal buildings, which requires a federal permit. Legislation requires that executive agencies process applications for communications use permits—including for broadband infrastructure—within 270 days of receipt.GAO was asked to review issues related to processing federal broadband permits. This report examines the extent to which selected agencies (1) used reliable data to track application processing times for communications use permits; and (2) processed communications use applications by the required deadline.GAO analyzed federal permitting data; reviewed laws and reports on the application review process; and interviewed agency officials.
- Spectrum IT Modernization: Incorporating Leading Practices Could Improve Planning Effort What GAO FoundThe National Telecommunications and Information Administration (NTIA) manages federal use of spectrum, a scarce natural resource. NTIA and selected federal agencies and agency components have planning underway to modernize the outdated IT systems used to manage spectrum. NTIA has issued an initial high-level modernization plan, identified the IT systems to modernize, and placed a contract order for acquisition planning support. Before proceeding to the next phase on design, NTIA has to complete a number of activities including finalizing a concept of operations, assessing alternatives, and developing project management plans. Four other agencies and components are in the planning or pre-planning phases of modernizing their own spectrum-related IT. For example:Department of Defense officials told us they awarded a contract to analyze the department's spectrum IT and identify ways to improve it.	National Science Foundation officials said they have funded a project to streamline the processing of spectrum use requests.	The Federal Aviation Administration and National Aeronautics and Space Administration do not plan to begin modernization planning until more details become available from NTIA.GAO's analysis of NTIA's modernization planning found that its efforts aligned with several leading practices but did not align for practices on developing cost estimates, developing a project schedule, communicating with stakeholders, and establishing performance measures.Extent to Which NTIA Spectrum-Related IT Modernization Project Planning Efforts Aligned with Selected Leading PracticesNTIA officials acknowledged that additional work was needed to implement the practices and complete other required planning steps. Effectively doing so would position the agency to implement a successful modernization.Why GAO Did This StudyUse of the radio-frequency spectrum is vital to a wide variety of commercial and government activities. To manage use for the federal government, NTIA relies on multiple, spectrum-related IT systems, that, according to agency officials, are out-of-date and ineffective. The William M. (Mac) Thornberry National Defense Authorization Act for Fiscal Year 2021 (FY21 NDAA) required NTIA to submit to Congress a plan to modernize its spectrum-related IT. Other agencies with their own required spectrum-related IT modernization plans are expected to coordinate with NTIA to help ensure interoperability among systems.The FY21 NDAA also includes a provision for GAO to biennially review NTIA's and other agencies' efforts to modernize their spectrum-related IT. This report examines (1) the status of NTIA's and selected agencies' efforts to modernize their spectrum-related IT and (2) the extent to which NTIA's IT modernization project planning aligns with selected leading practices. GAO reviewed IT modernization plans and other agency documentation; and assessed NTIA's project planning efforts against selected leading practices.
- Broadband Infrastructure: Middle-Mile Grant Program Lacked Timely Performance Goals and Targeted Measures What GAO FoundAn important part of broadband infrastructure is referred to as “middle-mile.” This is the portion of the internet that connects the last mile (internet connections to homes or businesses) with the backbone (transmission lines linking global internet networks), as shown in the figure. Reports GAO reviewed and stakeholders GAO interviewed identified challenges that affect middle-mile network coverage and access. These challenges include the cost of serving areas with low population, deploying infrastructure across challenging terrain, and obtaining permits. Stakeholders also discussed challenges related to providers' ability to access middle-mile networks, such as a lack of redundant networks and lack of competition. For example, providers told GAO that rural areas often lack redundant middle-mile networks—that is, they are served by middle-mile networks with only a single route into a community. If the sole fiber route into a community is damaged, the entire community could lose internet service.Infrastructure Components of the InternetThe National Telecommunications and Information Administration (NTIA) established its middle-mile grant program in accordance with most recommended practices. In particular, GAO found NTIA followed all recommended grants management practices, and took steps to ensure program funding did not duplicate other federal funding.However, NTIA did not follow leading practices and federal regulations related to performance management. Leading practices call for performance goals to be quantifiable and the associated measures to have numerical targets. Federal regulations also require agencies issuing a notice of funding opportunity to develop program performance goals and measures during planning and design, and include this information in the funding notice. GAO found NTIA had not developed such goals or measures prior to issuing its funding notice. By not doing so, NTIA missed the opportunity to inform applicants on how they could contribute to the goals during its applicant review and selection process. GAO reported earlier this year that for two other programs, NTIA also did not develop performance goals and measures during program planning and design as required. By establishing performance measures with specified targets, NTIA can provide Congress with key information on program outcomes. Moreover, by establishing a process to ensure that goals and measures are developed during a program's planning stages NTIA can better target grant funding that links to desired outcomes.Why GAO Did This StudyBroadband is essential for employment, healthcare, public safety, and other vital services. Middle-mile infrastructure plays a key role in keeping Americans connected. Some areas of the country have no middle-mile networks, and other areas are served by only one middle-mile connection. In 2021, the Infrastructure Investment and Jobs Act authorized NTIA to establish a $1 billion middle-mile grant program.You asked GAO to examine issues related to middle-mile infrastructure, including its availability. This report (1) describes the challenges stakeholders identified that affect middle-mile coverage and access, and (2) examines the extent to which NTIA established the middle-mile grant program in accordance with selected recommended practices.GAO conducted case studies in three states and interviewed middle-mile operators, last mile providers, and state officials. GAO also interviewed federal agency officials, academics, and industry participants. GAO assessed NTIA program documentation against recommended practices related to grants management, duplication, and performance management.
- Tribal Broadband Connectivity Program: Feedback Should Be Provided to Applicants Receiving Equitable Distribution Grants What GAO FoundIn managing the Tribal Broadband Connectivity Program, the National Telecommunications and Information Administration (NTIA) has not provided constructive feedback to applicants that received equitable distribution grants. Applicants that received or expected to receive equitable distribution grants said that constructive feedback could help them understand why they did not receive full funding and improve their applications in the second round of program funding. They also said it could increase their confidence in the impartiality of the program's award process. Leading practices for managing broadband grant programs include providing feedback to applicants. NTIA officials said they planned to provide technical assistance to applicants re-applying in the second round of funding, which they said could provide the kind of feedback that applicants said they need. Without constructive feedback, applicants that receive equitable distribution grants will not have the information needed to address issues in their applications in the second, possibly final, round of funding.Why GAO Did This StudyTribal access to broadband internet lags behind the rest of the country. However, two recent appropriations totaling $3 billion for the new Tribal Broadband Connectivity Program provided the National Telecommunications and Information Administration (NTIA) with an opportunity to help increase tribal access to broadband. As of July 25, 2023, NTIA had announced 191 grants totaling $1.79 billion of the $1.98 billion it planned to award under its original notice. On July 27, 2023, NTIA issued a second notice of funding opportunity under which almost $1 billion will be made available to eligible entities.The Consolidated Appropriations Act, 2021, includes a provision for GAO to review the grants awarded under this program. In January 2023, we began our second review of TBCP in response to a provision in the Consolidated Appropriations Act, 2021. This report provides timely information about an aspect of the program—feedback to applicants—while we continue our review of NTIA's administration of the program.GAO reviewed NTIA program documentation and interviewed program officials. GAO also obtained testimonial evidence from 13 entities eligible for the program that received or expect to receive partial grants through a survey, interviews, and conversations at tribal broadband events.
- Emergency Alerts: NOAA Should Take Additional Actions to Help Ensure Tsunami Alerts Reach Those at Risk What GAO FoundThe National Oceanic and Atmospheric Administration (NOAA) primarily uses three methods to send tsunami alerts to the public (see figure):NOAA Weather Radio  delivers alerts to listeners and to the Emergency Alert System, the nationwide system for broadcasting emergency messages over television, radio, and cable systems;	the Integrated Public Alert and Warning System  (IPAWS) delivers alerts through various pathways, including via Wireless Emergency Alerts—text-like messages on people's mobile devices; and	the internet  contains alerts on NOAA's website and social media posts.The Federal Emergency Management Agency (FEMA) operates IPAWS and the Federal Communications Commission (FCC) sets rules and standards for wireless providers and broadcasters that participate in emergency alerting.National Oceanic and Atmospheric Administration's (NOAA) Primary Methods for Disseminating Tsunami Alerts to the PublicNOAA has taken steps to address some tsunami alerting challenges, but GAO found opportunities for improvement. For example, NOAA has efforts underway to improve its website to allow users to more easily access critical information during tsunamis and to better target tsunami alerts to at-risk populations. GAO found that NOAA could improve its tsunami alerting by taking the following actions:Assessing the extent of NOAA Weather Radio's coverage of populated areas at risk of tsunamis.&nbsp;NOAA Weather Radio is a critical tool to broadcast tsunami alerts, especially in tribal, remote, and rural areas, yet NOAA lacks assurance that tsunami alerts are reaching these areas. Assessing the extent of NOAA Weather Radio coverage would help NOAA and others understand whether at-risk communities have access to a key alerting method.	&nbsp;	Enhancing collaborative efforts with FCC and FEMA to determine how to use IPAWS to deliver tsunami alerts to the Emergency Alert System.&nbsp;Using IPAWS in this way would have many benefits, such as allowing tsunami alerts to be sent in multiple languages and to include additional information such as maps and video.Why GAO Did This StudyTsunamis are powerful, destructive, and capable of striking any U.S. coast, making it critical that the public is alerted to tsunami hazards. NOAA has primary responsibility for sending tsunami alerts to the public.GAO was asked to review NOAA's tsunami alerting system. This report examines (1) NOAA's primary methods for sending tsunami alerts to the public, and (2) the extent to which NOAA has addressed related challenges and opportunities for improvement.GAO reviewed NOAA and other federal documentation and interviewed NOAA, FCC, and FEMA officials. GAO identified challenges NOAA faces and opportunities for improvement by reviewing advisory reports and interviewing a non-generalizable selection of stakeholders including tribal representatives, state and local emergency managers, industry associations, and a consumer group. GAO compared NOAA's efforts to selected key collaboration practices and federal internal control standards.
- Broadband: A National Strategy Needed to Coordinate Fragmented, Overlapping Federal Programs What GAO FoundFederal broadband efforts are fragmented and overlapping, with more than 133 funding programs administered by 15 agencies. Among these programs, 25 have broadband as their main purpose, and 13 of those programs overlap because they can each be used for the purpose of broadband deployment (see fig.). Having numerous broadband programs can be helpful to address a multifaceted issue like broadband access, but this fragmentation and overlap can lead to the risk of duplicative support. However, determining whether program overlap results in duplicative support can be challenging.The Mosaic of 25 Federal Programs with Broadband as a Main Purpose, as of November 2021, by Purpose CategoryStakeholders identified several challenges associated with using fragmented, overlapping broadband programs—such as administrative complexities–that can make participating difficult for the communities most in need. Effective coordination can help, but programmatic differences have limited agencies' ability to better align programs, according to agency officials. Without identifying the key areas where statutory provisions limit beneficial program alignment—and developing legislative proposals as appropriate—Congress may lack insight into potential beneficial legislative changes and agencies may continue to face challenges in collaborating to help people access broadband.The federal government has used mechanisms to coordinate federal broadband programs, but no current national strategy exists with clear roles, goals, objectives, and performance measures. The Executive Office of the President, through the National Economic Council, and numerous agencies have increasingly worked to coordinate fragmented and overlapping federal broadband programs. GAO has reported that strategies to coordinate programs that address cross-cutting issues of broad national need can help prevent the potential negative effects of fragmented and overlapping federal programs. A national broadband strategy, led by the Executive Office of the President, could help coordination across the federal agencies overseeing broadband programs. Without such a strategy, federal broadband efforts continue to risk overlap and duplication of effort.Why GAO Did This StudyBroadband internet has become critical to daily life. It provides a digital lifeline to education, work, and healthcare. The federal government continues to invest billions of dollars to close the digital divide, and the President set a goal for universal broadband access by 2030.This statement discusses: 1) fragmentation and overlap among federal broadband programs, and 2) the lack of a national strategy for broadband, among other objectives.This statement is based primarily on GAO's May 2022 report on federal broadband programs (GAO-22-104611). In addition, this statement provides an update on the actions that the National Telecommunications and Information Administration and the Executive Office of the President have taken in response to GAO's recommendations.
- Broadband Speed: FCC Should Improve Its Communication of Advanced Telecommunications Capability Assessments What GAO FoundThe Federal Communications Commission (FCC) is required by statute to assess the deployment of broadband across the U.S. Although not explicitly required to do so, FCC uses its discretion to set a minimum fixed broadband speed that it uses as a benchmark. Since 2015, FCC has set this benchmark at 25/3 megabits per second (Mbps)—that is, 25 Mbps when downloading, which refers to the bits per second that travel to a user's device, and 3 Mbps when uploading, which refers to the bits per second that travel from a user's device. As part of its annual assessment of broadband deployment, FCC determines whether to change its broadband speed benchmark by soliciting public comment and analyzing information. See figure below for an overview of FCC's current process for reporting on broadband deployment.Overview of FCC's Current Process for Reporting on Broadband DeploymentIn examining FCC's six reports issued between 2015 and 2021, GAO found inconsistencies in the reported scope of FCC's analysis of benchmark speed and its reported rationale for updating or not updating the benchmark. For example:In five of the six reports, FCC reported on whether the current benchmark was sufficient for purposes such as video conferencing, but did not report on this in 2019.	In the 2015 report, FCC considered future speed needs in its analysis; however, the other five reports did not discuss future speed needs, although FCC had received public comments on this topic.	In the 2015 report, when FCC most recently changed the benchmark, it explained its rationale for making this change more thoroughly by citing research and its own data analysis. In contrast, in others years, FCC offered shorter, less thorough explanations.Without consistently communicating the scope of its analysis and its rationale for setting the benchmark, FCC's reporting lacks transparency. Reporting on these issues in a more consistent manner year to year would provide stakeholders' better assurance that FCC's conclusions are not arbitrary.Why GAO Did This StudyAccess to broadband is critical for daily life. The Telecommunications Act of 1996 requires FCC to: (1) assess annually whether advanced telecommunications capability—which includes high-speed broadband—is being deployed in the U.S. in a reasonable and timely fashion, and (2) take action to accelerate deployment if FCC finds deployment is lacking. FCC sets a broadband upload and download speed benchmark as a metric for making this determination.The Infrastructure Investment and Jobs Act includes a provision for GAO to review FCC's establishing, reviewing, and updating of the broadband speed benchmark. Among other things, this report examines the extent to which FCC has communicated how it reviews, and determines whether to update, the benchmark.GAO reviewed relevant laws, regulations, and agency documents, and compared FCC's efforts to assess broadband deployment to FCC's strategic plan and relevant internal controls. GAO also interviewed FCC, selected federal and state officials; industry associations; broadband providers; and research organizations, to obtain their views on FCC's process.
- Affordable Broadband: FCC Could Improve Performance Goals and Measures, Consumer Outreach, and Fraud Risk Management What GAO FoundThe Federal Communications Commission's (FCC) Affordable Connectivity Program offers eligible low-income households discounts on the cost of their broadband service and certain devices. FCC reimburses participating internet service providers for providing these discounts. Since launching, the program has grown to include over 14-million subscribers.FCC Affordable Connectivity Program's Subscribers, May 2021–September 2022FCC established some performance goals and measures for the program. However, the goals and measures do not fully align with key attributes of effective performance management. For example, FCC's goals and measures lack specificity and clearly defined targets, raising questions about how effective these goals and measures will be at helping FCC gauge the program's achievements and identify improvements.FCC has also engaged in various outreach efforts to raise ACP's awareness and translated its outreach materials into non-English languages to reach eligible households with limited-English proficiency. However, GAO reviewed a selection of these materials and the process to translate them and found that they did not fully align with leading practices for consumer content or for developing translated language products. For example, the translations' quality varied due to lack of clarity and incompleteness. Also, FCC's translation process lacked elements that could have improved the materials, such as testing with the target audience. FCC has also not developed a plan to guide its overall outreach efforts. Quality translations are key to informing eligible households with limited-English proficiency, which may include communities FCC has indicated are important to reach. A comprehensive plan to guide its outreach efforts would help ensure funds dedicated to outreach are used most effectively.FCC has taken steps to manage fraud risks in the program, but FCC's efforts do not fully align with selected leading practices in GAO's Fraud Risk Framework. For example, FCC has conducted a fraud risk assessment but has not developed an antifraud strategy to address the identified risks. It also has not developed a process to conduct such risk assessments regularly. Further, FCC has not developed processes to monitor certain antifraud controls. GAO identified weaknesses in these controls, including potential duplicate subscribers, subscribers allegedly receiving fixed broadband at PO Boxes and commercial mailboxes, and subscribers with broadband providers' retail locations as their primary or mailing addresses. Without regular fraud risk assessments, an antifraud strategy, and sufficient monitoring of controls, FCC may not be able to effectively prevent and detect fraud in this over $14 billion program.Why GAO Did This StudyBroadband, or high-speed internet, is critical since everyday activities increasingly occur online, as highlighted by the COVID-19 pandemic. Yet the inability to afford broadband presents barriers to access for some and contributes to the gap between those with and without access, known as the “digital divide.” As required by statute, FCC launched the Affordable Connectivity Program in December 2021 to help low-income households afford broadband, building from FCC's May 2021 launch of the predecessor Emergency Broadband Benefit program.GAO was asked to review FCC's implementation of the program. This report assesses FCC's program efforts in: (1) establishing performance goals and measures, (2) conducting outreach, and (3) managing fraud risks. GAO reviewed program documentation, including outreach materials translated into five non-English languages; analyzed enrollment data from May 2021 to September 2022; interviewed FCC officials; and compared FCC's efforts in each area to applicable leading practices identified in prior GAO work or other federal sources.
- Broadband Funding: Stronger Management of Performance and Fraud Risk Needed for Tribal and Public-Private Partnership Grants What GAO FoundThe National Telecommunications and Information Administration's (NTIA) management of the Tribal Broadband Connectivity Program (TBCP) and Broadband Infrastructure Program (BIP) was generally consistent with recommended practices for awarding grants. However, NTIA took longer than expected to announce awards. For example, NTIA expected to announce TBCP award decisions in November 2021 but, as of September 2022, was continuing to announce awards on a rolling basis. NTIA officials said that the agency received many more applications than expected and needed to return more than three-quarters of TBCP applications for additional information. This step lengthened evaluation and selection. As of September 2022, NTIA had announced $726 million in TBCP awards and had announced all $288 million in BIP awards.NTIA developed some performance goals and measures for TBCP and BIP, but they did not include all primary functions nor were they fully quantifiable. (See table). For example, NTIA set a TBCP goal to extend reliable, affordable broadband to 200,000 households, but did not include a goal related to funding broadband use and adoption projects, a key program function. Moreover, NTIA's goals for both programs included terms such as “reliable” and “affordable” that are not defined and therefore are not fully quantifiable. NTIA officials said that the agency was still developing goals and measures. Without comprehensive goals and measures, NTIA will be unable to track its progress.Program Alignment with Selected Key Attributes of Successful Performance Goals and Measures			Key attributes of successful performance goals and measures									Tribal Broadband Connectivity Program									Broadband Infrastructure Program								Objective: free of significant bias or manipulation									✔ 									✔ 								Primary function: reflect the program's main functions									✖ 									✔ 								Measurable and quantifiable									✖ 									✖ 								Linkage: reflect the agency's strategic goals									✔ 									✔ 					✔ indicates goal and measure fully aligned with key attribute✖ indicates goal and measure did not fully align with key attribute in which some or all aspects were not metSource: GAO analysis of Department of Commerce and U.S. Department of Agriculture documentation. | GAO-23-105426NTIA's fraud risk management activities did not fully align with selected leading practices. Several offices in the Department of Commerce have roles in fraud risk management, but none was designated as lead. Additionally, NTIA did not conduct a fraud risk assessment, as called for by leading practices, by comprehensively identifying fraud risks, assessing the likelihood and impact of fraud, setting fraud risk tolerance, examining current antifraud controls, and documenting the fraud risk profile. Without designating an entity to oversee fraud risk management activities and conducting a five-step fraud risk assessment, NTIA lacks assurance that it is sufficiently positioned to combat fraud.Why GAO Did This StudyBroadband access is critical for economic opportunity, healthcare, and civic engagement. The Consolidated Appropriations Act, 2021, established two new broadband grant programs—TBCP and BIP. NTIA issued a notice of funding opportunity for BIP in May 2021 and for TBCP in June 2021. NTIA allocated $2.98 billion (from two separate appropriations) for TBCP and $288 million for BIP.The Consolidated Appropriations Act, 2021, includes a provision for GAO to review the grants awarded under these programs. This report examines the extent to which NTIA's administration of TBCP and BIP aligned with relevant practices for (1) awarding grants, (2) performance management, and (3) fraud risk management.GAO reviewed NTIA program documentation. GAO also interviewed program officials, industry associations, and a non-generalizable sample of program participants selected to reflect a variety in project types, geography, and other factors.
- Local Journalism: Innovative Business Approaches and Targeted Policies May Help Local News Media Adapt to Digital Transformation What GAO FoundThe digital transformation over the last few decades has changed the economic landscape for local news media—most notably, by reducing the circulation and revenue of many local newspapers. This market disruption is attributable to several factors, according to research and participants of GAO's February 2022 workshop on the viability of local journalism. Consumers increasingly prefer to access news in digital rather than print formats, and the internet has given consumers access to many more sources of news and information, often for free. In addition, web-based marketplaces have replaced classified advertising that traditionally had been a key source of newspaper revenue. Many businesses now use digital advertising, which can be cheaper and better targeted than print advertising. As a result of these factors, local newspapers are no longer necessarily the primary source of news and information for local communities, nor the main channel for advertising by local businesses.Local news media outlets use different strategies and organizational arrangements to adapt to the digital transformation. For example, local news organizations are seeking to diversify their revenue sources, such as by offering membership or receiving donations. Also, some news organizations are converting from private firms to cooperatives or community-based organizations, or to nonprofit organizations, to take advantage of existing tax incentives. According to stakeholders, the nonprofit model, financed by a combination of federal funding and philanthropy, could be a viable strategy for targeting low-income communities that find paid access to news restrictive. Further, media outlets are engaging in strategic partnerships to facilitate growth or to share resources.Some workshop participants believe that public policies should focus on addressing potential market failure in providing public interest journalism and existing inequities in its provision. Digital transformation may have increased the risk of market failure because this type of news is now less frequently bundled with high revenue-generating content in a print newspaper—an approach that allowed for cross-subsidization. According to literature and participants, direct government funding and tax incentives supporting nonprofit news organizations can be useful in addressing market failure with sufficient safeguards to ensure independence. On the other hand, indirect government funding, such as tax credits and government advertising, can provide support but is broader in scope and does not specifically target public interest journalism.Policymakers in the U.S. and other countries have also sought to alleviate the adverse impact of market disruption brought on by the internet through policies that make certain large internet platforms pay news publishers for using their content. However, literature, stakeholders, and experts expressed concerns that the policies may be based on insufficiently supported claims, and if not properly designed, could result in unintended consequences for smaller publishers and consumers. Experts advised that the primary goal of public policies should be to preserve the function of journalism rather than specific local news outlets. Experts conveyed that the main goal of journalism is to have a well-informed society, and policies that aim to support this goal need to be innovation-friendly, forward-looking, and inclusive.Why GAO Did This StudyWith the digital transformation in recent decades, many local newspapers—a significant part of local journalism— have struggled to remain economically viable. More than 2,000 local newspapers have closed since the early 2000s. Many more have substantially cut their operations. While broadcast and digital media have partially filled the gap, the overall decline in local news and public interest journalism, in particular, concerns many policymakers and others. Public interest journalism covers key issues of public significance, such as education and public safety, and can help keep citizens engaged and hold government officials accountable.This report discusses (1) factors affecting the viability of local news media, (2) strategies local news outlets have adopted to adapt to the new environment, and (3) public policies to enhance the viability of local journalism.GAO conducted a literature review and interviewed agency officials, academics, and representatives of media and technology companies, industry groups, and a think tank, as well as other stakeholders. GAO also convened a 2-day workshop in February 2022 with 40 participants who had a variety of backgrounds and expertise. This included academics, legal scholars, independent and affiliated journalists, publishers, and representatives of nongovernmental organizations and technology companies.For more information, contact Lawrance L. Evans, Jr., at (202) 512-2700 or EvansL@gao.gov.
- GPS Disruptions: DOT Could Improve Efforts to Identify Interference Incidents and Strengthen Resilience What GAO FoundTransportation modes use GPS—a satellite-based system—to obtain positioning, navigation, and timing information. This information enhances transportation safety by supporting surveillance, situational awareness, and emergency response. However, GPS is vulnerable to unintentional and intentional interference from a variety of sources such as solar flares and jamming. Such interference has the potential to affect transportation safety.Example of How Interference with GPS Signals May Affect Aviation SafetyThe Department of Transportation's (DOT) process for identifying potential GPS interference incidents does not result in complete and accurate information. In January 2020, DOT began analyzing user reports of potential GPS interference across all transportation modes to identify incidents and support federal investigations. Through this process, DOT identified 196 potential GPS interference incidents from January 2020 through May 2022. However, GAO found that DOT's process does not include all available user reports, and DOT's data contain inaccurate information. For instance, GAO found that during this period users submitted 72 reports of potential GPS interference to a system DOT does not consider in its process. DOT's process faces limitations because DOT has not documented it nor identified controls to ensure complete and accurate information. Instead, one individual knows how it works, and no other staff review or verify the results. Without a process that produces quality GPS interference information, federal efforts to quickly respond to and stop interference could be delayed.DOT has undertaken many efforts intended to improve the transportation sector's resilience to GPS interference, such as working to identify potential GPS backups. However, the extent to which DOT's efforts have improved resilience is unclear because DOT has not taken a strategic approach to guide its efforts. Though DOT has taken steps to plan some of its resilience activities, DOT's current approach does not guide its collective resilience efforts or fully define objectives, prioritize actions, or address challenges, consistent with key program management standards. DOT officials told GAO they are in the process of developing a strategic plan to guide its positioning, navigation, and timing resilience efforts but do not expect the draft to be complete until early 2023. Until DOT has a more strategic approach in place, it is limited in its ability to assess progress toward resilience, leverage limited resources, and navigate long standing challenges to improving resilience.Why GAO Did This StudyGPS provides positioning, navigation, and timing information that enhances transportation safety. Therefore, GPS interference has the potential to significantly harm transportation safety. Federal policy requires DOT to identify and respond to interference incidents in the U.S., improve resilience to GPS interference, and ensure transportation safety.GAO was asked to review DOT's efforts to identify and address GPS interference effects on transportation safety. This report, among other things: (1) describes interference effects on transportation safety; (2) assesses DOT's processes to identify interference incidents; and (3) assesses DOT's approach to improve resilience to GPS interference.GAO reviewed federal laws and policies, DOT policies, and analyzed DOT's and other agencies' data on user-reported interference incidents from 2017 through spring 2022. GAO also interviewed federal officials, industry stakeholders, and researchers selected for representation across modes, among other factors.
- Telecommunications Workforce: Additional Workers Will Be Needed to Deploy Broadband, but Concerns Exist About Availability What GAO FoundBroadband has become critical for daily life as everyday activities like work, school, and health care appointments increasingly occur online. However, at least 25 percent of the population in many areas reported not having broadband service, according to the U.S. Census Bureau's 2020 American Community Survey (see figure).Figure 1: 2020 U.S. Census Bureau Data Showing Locations (in Red) With At Least 25 Percent of the Population Reporting No Internet AccessCongress has found that access to affordable, reliable, high-speed broadband is essential to full participation in modern life in the United States and recent federal legislation included tens of billions of dollars in federal funding for broadband deployment.GAO found that thousands of additional workers would be needed to build the amount of infrastructure associated with such increases in funding from eight selected broadband infrastructure deployment programs. GAO found that the pace at which these programs provide funding will impact the annual number of additional workers needed. For instance, if funding is provided over a 10-year span, GAO estimates that about 23,000 additional workers could be supported by the peak year of funding in 2023, declining to about 9,000 additional workers in 2031 due to the impact of inflation and because funds for some programs must be expended before 2032. The shorter the time-frame over which federal funds are provided, the more workers will be needed per year. Assuming a 5-year funding time period, for example, about 34,000 additional workers would be needed by the peak year of funding in 2023.GAO found mixed results from analysis of three indicators related to occupational labor shortages: (1) unemployment rate; (2) employment levels; and (3) wage growth rate. These indicators are from IPUMS Current Population Survey data regarding occupations GAO selected on the basis they are necessary for deploying broadband infrastructure. GAO found that unemployment rates for most of the selected occupations were lower than the national average, which is suggestive of a possible labor shortage. However, GAO did not find observable increases in employment levels and wages for the selected occupations as also would be expected in the presence of labor shortages.Industry stakeholders GAO spoke with expressed concerns regarding the ability of the broadband infrastructure deployment industry to attract sufficient numbers of workers needed to deploy broadband infrastructure funded by selected federal programs. Their concerns included uncertainties regarding: (1) the sufficiency of workers available particularly in rural areas; (2) the extent of competition from other industries for occupations necessary to deploy broadband infrastructure; and (3) the adequacy of the general supply of new entrants into broadband deployment-related occupations.Why GAO Did This StudyAs highlighted by the COVID-19 pandemic, broadband is vital for daily life, and recent statutes funded various federal programs to ensure all Americans have access to broadband. The Infrastructure Investment and Jobs Act included a provision for GAO to review and estimate the number of skilled telecommunications workers that will be required to build and maintain broadband infrastructure in rural areas based on current and potential need, as well as the wireless infrastructure needed to support 5G wireless technology.Accordingly, this briefing describes: (1) the estimated number of additional skilled telecommunications workers needed to deploy broadband and 5G funded by certain recent federal programs; and (2) what existing data reveal about a potential labor shortage for skilled telecommunications workers, as well as stakeholder views on workforce concerns relevant to these skilled workers.To address these objectives, GAO reviewed applicable statutes and regulations, as well as official documentation for eight federal programs we selected, and used the Bureau of Labor Statistics' 2020 employment requirements table data to estimate the number of additional workers supported by each additional $1 million in program funding.GAO also initially selected 10 Bureau of Labor Statistics-defined occupations and subsequently obtained IPUMS Current Population Survey data files for each on unemployment rates, employment levels, and wage growth rates. GAO compared these data against the unemployment rates, employment levels, and wage growth rates for the overall economy for 2010-2021.Increasing employment levels and wages occurring alongside low unemployment rates may suggest the presence of an occupational labor shortage.In addition to this indicator analysis, to collect a variety of views on workforce concerns regarding deploying broadband infrastructure and 5G to all Americans, GAO interviewed stakeholders from federal agencies, industry associations, companies, and consultants.For more information, contact Andrew von Ah at (202) 512-2834 or vonaha@gao.gov.
- National Security Space: Overview of Contracts for Commercial Satellite Imagery What GAO FoundBased on the information collected by GAO on contracts for the purchase and use of commercial satellite imagery by ten federal civilian departments and agencies, GAO observed:Five of 10 federal civilian departments and agencies—Agriculture, Commerce, Energy, Interior, and the National Aeronautics and Space Administration (NASA)—reported current commercial satellite imagery contracts. The Departments of Homeland Security, Justice, State, Transportation, and Treasury did not report current commercial satellite imagery contracts.	Officials from the five departments and agencies with contracts cited specific needs for procuring commercial satellite imagery, including needed revisit rates, rapid tasking, resolution, or wavelengths outside of the visible spectrum.	NASA reported the largest amount of commercial satellite imagery spending on current contracts for federal civilian departments and agencies with its officials reporting a total of $75,657,508 since 2018.	Eight of 10 departments and agencies reported that they use commercial satellite imagery acquired by the National Reconnaissance Office and the National Geospatial-Intelligence Agency (NGA) through their participation in the National System for Geospatial Intelligence or through their access to commercial imagery in NGA's web-hosted service.In a separate classified enclosure that will be provided to those entities with the proper clearance and need to know, GAO also reports on contracts for the purchase and use of commercial satellite imagery by DOD, the Office of the Director of National Intelligence, and the Central Intelligence Agency.Why GAO Did This StudyCommercial remote sensing satellites and the data they produce have transformed the way the U.S. approaches critical national security issues. Based on recent trends, the commercial space industry is expected to grow significantly in the coming years and therefore may be able to address more of the Intelligence Community's (IC) and Department of Defense's (DOD) imagery needs. As a starting point, the federal government should have good visibility into its current spending and contracts for commercial satellite imagery.The House Appropriations Committee report that accompanied a bill for the Fiscal Year 2022 DOD appropriations act included a provision for us to report on contracts related to commercial satellite imagery across the national security community.In July 2022, GAO issued a classified report on how the DOD and IC acquire commercial satellite imagery and analytic services that use remote sensing data, and, in September 2022, GAO issued an unclassified version of this report. The classified and unclassified versions of the report address most of the reporting provisions for us in House Report 117-88.The purpose of this correspondence is to provide supplemental information to address the provision in House Report 117-88 not covered in our July 2022 (GAO-22-105072C) or September 2022 (GAO-22-106106) reports. Specifically, this product provides an inventory of contracts across the national security community for commercial satellite imagery.GAO collected information on commercial satellite imagery contracts, including the title, type, maximum annual value, period of performance, and mission purpose, that 10 civilian federal departments and agencies, DOD, the Office of the Director of National Intelligence, and the Central Intelligence Agency identified. These entities had initiated these contracts in fiscal year 2022 or previous years and were still within their period of performance at some point in fiscal year 2022.For more information, contact Brian Mazanec at (202) 512-5130 or mazanecb@gao.gov.
- Broadband: USDA Should Set Performance Goals and Improve Fraud Risk Management for Funding Program What GAO FoundThe U.S. Department of Agriculture's (USDA) ReConnect program was established by statute and awards grants and loans to provide broadband service in rural areas. In 2019 and 2020, USDA conducted two rounds of funding in which applicants were able to apply for a grant, a loan, or a combination of the two, as shown in the figure. As of October 2022, USDA was reviewing applications for a third round of awards.Rounds One and Two of ReConnect Awards, by Award Type and Households ServedUSDA uses information from ReConnect and its other broadband programs to inform agency-wide performance goals, but has not set performance goals specific to ReConnect. For example, during the first two funding rounds, USDA used ReConnect data to support two department-wide performance goals—one on the number of new subscribers resulting from projects funded by ReConnect and other USDA telecommunications programs, and one on private investment resulting from certain USDA-funded projects. However, USDA did not establish performance goals that would define the specific results it expected ReConnect to achieve. Setting performance goals would help the department better determine if ReConnect is meeting expectations distinct from its other programs. Based on that information, it could then make informed decisions about the program.USDA's oversight of ReConnect aligns with some but not all of the selected leading practices in GAO's fraud risk framework. The framework calls for: (1) designating an entity to oversee fraud risk management activities for a program, (2) documenting that entity's responsibilities, and (3) conducting and documenting a fraud risk assessment for a program, among other practices. USDA officials told GAO that its Office of the Chief Risk Officer is the designated entity to oversee fraud risk management for ReConnect. However, USDA officials have not documented this office's responsibilities specifically for fraud risk management. In addition, USDA officials have identified and considered specific fraud risks in ReConnect, but they have not conducted a fraud risk assessment for the program. Documenting the Office of the Chief Risk Officer's responsibilities for fraud risk management and conducting a fraud risk assessment would help USDA ensure that it routinely identifies and mitigates all potential fraud risks to the ReConnect program.Why GAO Did This StudyA significant gap in broadband access remains between U.S. urban and rural populations, according to the Federal Communications Commission. The importance of closing the gap was highlighted during the COVID-19 pandemic, which has required many Americans to work, learn, and socialize from home. USDA's ReConnect program, which began in 2018, provides grants and loans to broadband providers serving rural communities to help close the broadband gap.GAO was asked to review the ReConnect program. Among other objectives, this report examines the program's (1) performance goals and (2) alignment with selected leading fraud risk management practices.GAO analyzed ReConnect award and application data from 2018 through 2021, and compared USDA's performance documentation to leading performance assessment practices. GAO also compared USDA's fraud risk management processes to GAO's fraud risk framework and interviewed USDA officials.
- Satellite Licensing: FCC Should Reexamine Its Environmental Review Process for Large Constellations of Satellites What GAO FoundThe National Environmental Policy Act (NEPA) requires federal agencies to consider the environmental effects of major federal actions prior to making decisions and to involve the public. Agencies do so by preparing an environmental assessment or an environmental impact statement, or both, unless a “categorical exclusion” applies. A categorical exclusion may be applicable if the proposed action is in a category the agency has already determined does not normally have significant environmental effects. Even when a proposed action is covered by a categorical exclusion, agencies must evaluate whether the action presents extraordinary circumstances that require preparation of an environmental assessment or environmental impact statement.Process for Implementing the National Environmental Policy Act's (NEPA) RequirementsFederal agencies consider potential environmental and other effects from large constellations of satellites through licensing and other efforts. GAO reported that these effects could include sunlight reflections, orbital debris, and launch emissions. The Federal Communications Commission (FCC) and the Federal Aviation Administration consider these potential effects when licensing satellite transmissions and launch and reentry vehicles, respectively. Other federal agencies fund or lead research on these potential effects.GAO found that FCC has not sufficiently documented its decision to apply its categorical exclusion when licensing large constellations of satellites. In 1986, FCC created a categorical exclusion for all actions except those meeting specific conditions. These conditions are largely focused on environmental effects on the Earth's surface, such as the construction of facilities to be located in an officially designated wildlife preserve. FCC officials told GAO that the agency invokes its categorical exclusion when licensing large constellations of satellites. The Council on Environmental Quality, which oversees agencies' implementation of the National Environmental Policy Act, recommends that agencies periodically review categorical exclusions to ensure they remain current.FCC has made changes to the categorical exclusion. However, FCC has never reviewed and documented whether it should apply to large constellations of satellites. GAO also found that FCC does not have a process or timeline for periodically reviewing its categorical exclusion and publishing the information on its website. Further, FCC has not identified and made public factors it considers in determining whether extraordinary circumstances are present. Taking these actions would better position FCC to ensure that its decisions to apply its categorical exclusion are current and transparent when licensing large constellations of satellites.Why GAO Did This StudyOver the last few years, companies have launched large constellations of satellites to provide services such as phone and Internet access. This trend is expected to accelerate, with tens of thousands of additional satellites expected to be launched by the end of the decade. Stakeholders have raised questions about federal consideration of potential environmental and other effects as the number of satellites orbiting the Earth increases.GAO was asked to review existing policies related to environmental effects of large constellations of satellites. This report examines: (1) how federal agencies consider potential environmental and other effects from large constellations of satellites and (2) how FCC determines whether licensing large constellations of satellites requires an environmental assessment or environmental impact statement. GAO reviewed relevant laws, regulations, and studies, and compared FCC's processes and procedures to the Council on Environmental Quality's regulations and guidance. GAO also interviewed FCC and other agency officials.
- Diversidad en la fuerza laboral: Los trabajadores hispanos están infrarrepresentados en los medios de comunicación y se necesitan más datos para aplicar la normativa federal This is the Spanish&nbsp;language highlights associated with GAO-22-104669. También, la transcripción del episodio de podcast relacionado incluye versiones en inglés y español.Conclusiones de la GAOLos trabajadores hispanos están infrarrepresentados en el sector de los medios de comunicación si se compara su representación con el resto de la fuerza laboral estadounidense. Poco ha cambiado entre 2010 y 2019, según un análisis de la GAO de datos provenientes de la Encuesta sobre la Comunidad Estadounidense de la Oficina del Censo de los Estados Unidos (ver el gráfico). El grado de la infrarrepresentación en los medios de comunicación dependía de la ocupación y del género. Las partes interesadas entrevistadas por la GAO identificaron los desafíos a los que los hispanos se pueden enfrentar cuando trabajan en ese sector, como el acceso a redes profesionales.Porcentaje estimado de trabajadores hispanos en los sectores de medios de comunicación y otros, de 2010 a 2019Nota: Las estimaciones del gráfico tienen errores estándar relativos inferiores al 4%.Entre las medidas que empresas de medios de comunicación seleccionadas escogieron e informaron públicamente haber utilizado para fomentar la diversidad entre la fuerza laboral se encuentran el compromiso de liderazgo, actividades de reclutamiento y capacitación en materia de diversidad.Agencias federales utilizan investigaciones de denuncias y auditorias para aplicar los requisitos de igualdad de oportunidades de empleo (EEO) en el sector de los medios de comunicación, pero las lagunas en el intercambio de datos de estas agencias y en los informes de los sindicatos pueden dificultar su cumplimiento. La Comisión Federal de Comunicaciones (FCC, por sus siglas en inglés) y la Comisión para la Igualdad de Oportunidades en el Empleo (EEOC, por sus siglas en inglés) ya no cuentan con un acuerdo vigente que permita a la EEOC compartir datos sobre el cumplimiento de los requisitos. La FCC confía en cambio en que las empresas auto declaren las denuncias de discriminación presentadas contra ellas. Compartir este tipo de datos de la EEOC podría ayudar a que la FCC determine si una empresa cumple con las normas EEO. Además, según algunas partes interesadas entrevistadas, los sindicatos juegan un importante papel para ayudar a algunos trabajadores de medios de comunicación a conseguir empleo, y la EEOC requiere que ciertos sindicatos presenten informes sobre datos demográficos de sus miembros. Sin embargo, los funcionarios de la EEOC no saben si la lista de sindicatos incluye a todos los sindicatos que deberían presentar informes y tampoco cuando fue la última vez que la lista fue actualizada a fondo. Los funcionarios informaron a la GAO que estaban explorando opciones para actualizar la lista. Al mejorar su enfoque para identificar a los sindicatos que deben presentar informes, la EEOC dispondrá de información más completa a la hora de investigar las denuncias de discriminación.Propósito de este estudioEl sector de los medios de comunicación juega un papel clave en la educación y el entretenimiento del público, pero algunos encargados de la formulación de políticas han cuestionado la diversidad de la fuerza laboral en el sector. La EEOC, la Oficina de Programas de Cumplimiento de Contratos Federales (OFCCP) y la FCC generalmente supervisan el cumplimiento de los requisitos de igualdad de oportunidades de empleo por las empresas de medios de comunicación. Se solicitó a la GAO que analizara la representación de personas hispanas en el sector de los medios de comunicación y la correspondiente supervisión federal.Este informe examina 1) la representación de personas hispanas en el sector de los medios de comunicación durante la última década, 2) medidas que empresas de medios de comunicación seleccionadas informaron haber adoptado para aumentar la diversidad de la fuerza laboral y 3) cómo agencias federales clave han aplicado la normativa federal de igualdad de oportunidades de empleo en el sector.La GAO analizó datos de la Encuesta sobre la Comunidad Estadounidense de la Oficina del Censo de los Estados Unidos para el período 2010-2019, los datos más recientes disponibles cuando GAO realizó el análisis. La GAO entrevistó a funcionarios públicos y a partes interesadas, entre estos, organizaciones que representan a trabajadores y empleadores en los medios de comunicación. La GAO también analizó informes sobre diversidad publicados en los sitios web de 15 grandes empresas de medios de comunicación que se seleccionaron, en parte, por su valor en el mercado. La GAO también examinó documentos de las agencias y datos sobre el cumplimiento de las normas.
- Workforce Diversity: Hispanic Workers Are Underrepresented in the Media, and More Data Are Needed for Federal Enforcement Efforts Para la versión de esta página en español, ver a GAO-22-105886. También, la transcripción del episodio de podcast relacionado incluye versiones en inglés y español.What GAO FoundHispanic workers are underrepresented in the media industry compared to their representation in the rest of the U.S. workforce. Little change occurred from 2010 through 2019, according to GAO's analysis of the Census Bureau's American Community Survey data (see fig.). The extent of underrepresentation in the media varied by occupation and gender. Stakeholders GAO interviewed identified challenges Hispanics may face working in the industry, such as access to professional networks.Estimated Percentage of Workers in the Media and in Non-media Industries Who Are Hispanic, 2010 through 2019Note: Estimates in the figure have relative standard errors of less than 4 percent.Leadership commitment, recruitment efforts, and diversity training were among the steps that selected large media companies publicly reported taking to promote workforce diversity.Federal agencies use complaint investigations and audits to enforce equal employment opportunity (EEO) requirements in the media industry, but gaps in agencies' data sharing and union reporting may hinder enforcement. The Federal Communications Commission (FCC) and the Equal Employment Opportunity Commission (EEOC) no longer have an agreement in place to enable EEOC to share enforcement data. FCC instead relies on companies to self-report discrimination complaints filed against the companies. EEOC's sharing of such data could help FCC determine company compliance with EEO rules. Additionally, according to some stakeholders we interviewed, unions play an important role in helping some media workers obtain employment, and EEOC requires certain unions to file a report on member demographics. However, EEOC officials do not know whether the list of filers is missing unions that should file, nor when the list was last comprehensively updated. Officials told GAO they were exploring options for updating the list. By improving its approach to identifying unions required to file the reports, EEOC will have more complete information to consider when investigating discrimination complaints.Why GAO Did This StudyThe media industry plays a key role in educating and entertaining the public, but some policymakers have raised questions about workforce diversity in the industry. EEOC, the Office of Federal Contract Compliance Programs (OFCCP), and FCC generally oversee media companies' compliance with EEO requirements. GAO was asked to review the representation of Hispanics in the media industry and related federal oversight.This report examines (1) the representation of Hispanics in the media industry over the last decade, (2) steps selected media companies publicly reported taking to increase workforce diversity, and (3) how key federal agencies have enforced federal EEO requirements in the industry.GAO analyzed data from the Census Bureau's American Community Survey data for 2010-2019, the most recent data available when GAO did the analysis. GAO interviewed agency officials and stakeholders, including organizations representing media workers and employers. GAO also reviewed diversity reports published on the websites of 15 large media companies, selected in part based on the companies' market value. GAO also reviewed agency documents and enforcement data.
- Broadband: Needs of Rural Small Businesses and Federal Programs to Support Them What GAO FoundIn a 2021 report, GAO found that some small businesses lack access to broadband, but may benefit from federal programs that fund deployment in rural areas. A nationally representative survey by Amazon and the U.S. Chamber Technology Engagement Center found approximately 20 percent of rural small businesses were not using broadband, with about 5 percent using a dial up connection. Small businesses likely benefit from the Federal Communications Commission's (FCC) and the Department of Agriculture (USDA) Rural Utilities Service's (RUS) funding to expand broadband deployment. For example, at the time of the 2021 report, FCC had awarded $19.7 billion since 2014 through components of its high-cost programs, and estimated it had served 9.1 million business and residence locations. Both FCC and USDA have also helped increase broadband speeds in rural areas. For example, USDA's rural broadband deployment program, ReConnect, is mostly funding projects that propose to build fiber, which is generally associated with the fastest speeds available.Much of the literature GAO reviewed suggests that FCC's current broadband minimum benchmark speeds—25 megabits per second (Mbps) for downloading and 3 Mbps for uploading—are likely too slow to meet many small business speed needs. For example, a 2019 USDA report stated that as technology advances and volumes of data needed to manage agriculture production grow, speeds above of 25/3 Mbps will likely be needed. In July 2022, the FCC Chairwoman announced a proposal to increase the benchmark to 100 Mbps for download and 20 Mbps for upload.Small Business Administration (SBA) officials told GAO that their agency supports broadband access for small businesses, especially for those in rural areas, through partnerships with organizations and federal agencies. For example, SBA partners with national organizations that offer technical assistance and training to small businesses on a variety of topics, including how to use broadband to support their business.Why GAO Did This StudySome rural areas continue to lack access to broadband, which can hamper operations for small businesses in those areas. FCC encourages the deployment of broadband and provides funding, particularly for rural areas, for this purpose. USDA also provides broadband funding in underserved rural communities. SBA supports small business growth and development, including offering technical assistance to small business owners, which can improve adoption and use of broadband.This correspondence responds to a provision in the Explanatory Statement accompanying the Consolidated Appropriations Act, 2022 to brief congressional committees on the broadband challenges facing rural small businesses. This correspondence is based primarily on GAO's prior report on this topic issued in July 2021 (GAO-21-494), and discusses 1) small business access to broadband and how FCC and RUS broadband funding programs may serve small businesses, 2) the extent to which FCC's broadband speed benchmark meets the needs of small businesses, and 3) support provided by SBA related to rural small business access or use of broadband. For that report, GAO reviewed pertinent literature, documentation on federal broadband funding and relevant FCC statutory requirements to promote broadband deployment. GAO also conducted interviews with small businesses, broadband providers, industry associations, researchers, and state and federal officials, and obtained updates from the agencies for this correspondence.
- Spectrum Management: Improved Planning and Interagency Collaboration Could Strengthen Spectrum Reallocation Efforts What GAO FoundSpectrum is a natural resource that enables wireless communications and critical government operations, such as shown in the figure below. A key spectrum management activity of the National Telecommunications and Information Administration (NTIA) is to work with other agencies, such as the Federal Communications Commission (FCC), to execute spectrum reallocations, so that FCC can auction the spectrum for commercial use. However, GAO found that NTIA lacks a comprehensive planning process for doing so. Reallocating spectrum, which involves transferring spectrum used by the federal government to nonfederal users, is a complex, often lengthy undertaking involving many stakeholders and steps. For reallocations, NTIA typically collects input from those agencies whose use of spectrum would be affected by a proposed reallocation. NTIA may also help agencies evaluate the potential effects that a proposed reallocation could have on the agencies' spectrum-dependent operations. While NTIA follows some usual steps in conducting reallocations, NTIA lacks plans with objectives and targets, integrated master schedules, and risk assessments. By following these leading practices in program management, NTIA may be able to more effectively implement reallocations.Examples of Federal and Nonfederal Spectrum UsesTo address potential interference among proposed uses of spectrum, NTIA and FCC employ various coordination mechanisms. For domestic matters, the agencies coordinate through an NTIA-led committee that provides input to FCC's spectrum proceedings. However, GAO found these mechanisms do not fully reflect leading collaboration practices. For example, while the documents that guide coordination between FCC and NTIA emphasize reaching consensus whenever possible, there are no clearly defined and agreed-upon processes for resolving matters when agencies cannot do so. GAO's review found that these issues affected the United States' participation in international conferences regarding the regulation of the global use of spectrum. For example, disputes among the agencies and the inability to reach agreement on U.S. technical contributions challenged the U.S.'s ability to present an agreed-upon basis for decisions or a unified position.Why GAO Did This StudyAlmost all spectrum has been allocated for federal government, commercial sector, or other nonfederal use. However, the demand for spectrum continues to grow. This is especially the case with the commercial sector as it seeks to deploy and improve 5G mobile service. In the U.S., NTIA and FCC regulate and manage federal and nonfederal spectrum use, respectively. With FCC and other federal agencies, NTIA helps to reallocate federal spectrum for commercial use.This statement is based on two GAO spectrum management reports issued in June 2021 (GAO-21-474) and January 2022 (GAO-22-104537). Specifically, it discusses the extent to which (1) NTIA has developed a planning process to guide its spectrum reallocation efforts, and (2) cognizant federal agencies follow leading practices in collaborating on potential spectrum interference issues. Among other things, GAO compared the agencies' spectrum reallocation and coordination efforts with applicable leading practices.
- Tribal Broadband: National Strategy and Coordination Framework Needed to Increase Access What GAO FoundFederal funding from 2015–2020 has increased broadband access for people living on tribal lands, but access continues to lag behind the rest of the country. Nationwide, conservative estimates show more than 18 percent of people living on tribal lands remain unserved by broadband as of 2020, compared to about 4 percent of people in non-tribal areas. For example, in Arizona federal programs have increased broadband access on tribal lands, but that access continues to lag far behind the rest of the state (see figure).Broadband Availability in ArizonaNote: Broadband availability includes speeds of 25 Mbps download and 3 Mbps upload or greater, excluding satellite service. We have previously reported that FCC's data overstates access to broadband, particularly on tribal lands.Persistent barriers limit tribes' and providers' ability and interest in participating in federal broadband programs, including fragmentation of federal programs and difficult application requirements. Tribes and providers continue to face challenges identifying programs to suit their needs from the landscape of numerous, but fragmented, federal broadband programs. Furthermore, complex application processes and the need for upfront funds create additional barriers and discourage participation.The Executive Office of the President took the lead on coordinating federal tribal broadband efforts in 2021, but these efforts are not guided by a national strategy with clear roles, goals, and performance measures. Officials from agencies that implement broadband programs told us that a national strategy led by the Executive Office of the President could improve coordination and the persistent gap in access on tribal lands warrants specific focus. In addition, the primary ongoing broadband coordination body, the American Broadband Initiative (ABI), lacks a framework for addressing tribal barriers that could also support implementing a national strategy. While ABI has formal frameworks that focus on federal funding and permitting in general, ABI members said they do not hold regular discussions about tribal issues. In 2020, the Department of the Interior also identified a need for increased focus within ABI on tribal issues. The Department of Commerce's National Telecommunications and Information Administration (NTIA) is a leader within ABI, and NTIA officials said they intend to use ABI to meet NTIA's statutory requirements related to broadband coordination. Without a national strategy and a framework within ABI to focus tribal efforts, broadband access for people living on tribal lands will continue to lag behind the rest of the country, perpetuating the digital divide.Why GAO Did This StudyBroadband is critical to modern life. Despite federal efforts, broadband access on tribal lands has traditionally lagged behind the rest of the country.GAO was asked to review federal efforts for improving broadband on tribal lands. This report examines: (1) the extent to which federal funding programs have supported the deployment of broadband infrastructure on tribal lands; (2) barriers tribes and providers face in accessing federally funded programs to serve tribal lands; and (3) the extent to which federal agencies focus on tribal issues related to broadband access.GAO analyzed federal government data on broadband funding for tribal lands; interviewed selected tribes, broadband providers, tribal organizations, and other local officials about challenges to obtaining and using federal broadband funding; and interviewed officials from the Federal Communications Commission and other federal agencies about their broadband programs and coordination.
- Broadband: National Strategy Needed to Guide Federal Efforts to Reduce Digital Divide What GAO FoundFederal broadband efforts are fragmented and overlapping, with more than 100 programs administered by 15 agencies. Many programs have broadband as their main purpose, and several overlap because they can be used for the purpose of broadband deployment, as shown in the figure. Programs can also help with planning infrastructure, making service affordable, providing devices, and building digital skills. Despite numerous programs and federal investment $44 billion from 2015 through 2020, millions of Americans still lack broadband, and communities with limited resources may be most affected by fragmentation.The Mosaic of 25 Federal Programs with Broadband as a Main Purpose, as of November 2021, by Purpose CategoryAgency officials said programmatic differences, including some set by statute, limit their ability to align programs. For example, programs may have differing definitions of eligible areas, populations, and broadband speeds. In 2018, the National Telecommunications and Information Administration (NTIA) led an interagency group that reviewed differing program definitions. However, NTIA did not identify which statutory provisions limit alignment nor recommend any changes. NTIA is responsible for coordinating telecommunications matters across the executive branch and at the end of 2020 gained additional responsibilities for improving broadband coordination. Improved alignment is needed to help address fragmentation and overlap. Without legislative proposals for Congress to consider, agencies may continue to face limitations in aligning programs to close the digital divide.The U.S. broadband efforts are not guided by a national strategy with clear roles, goals, objectives, and performance measures. In 2021, the Executive Office of the President, through the National Economic Council and in collaboration with other White House offices, took the lead for coordinating broadband programs. The Executive Office of the President has not decided if a national strategy is needed, but it is well positioned to develop and implement one. A strategy to help better align programs could also include legislative proposals for Congress. Without such a strategy, federal broadband efforts will not be fully coordinated, and thereby continue to risk overlap and duplication of effort.Why GAO Did This StudyBroadband is critical for daily life. It provides a digital lifeline to education, work, and healthcare. The COVID-19 pandemic highlighted the urgent need for broadband access for all Americans. The President set a goal for universal broadband access by 2030.GAO was asked to review federal broadband efforts. This report examines: (1) fragmentation and overlap among federal broadband programs and potential limitations to improved alignment and (2) the extent to which interagency coordination efforts are guided by a strategy, among other objectives.GAO inventoried and analyzed broadband programs and interviewed 50 stakeholders, including broadband providers and local officials. GAO compared interagency coordination efforts to characteristics of a national strategy and reviewed relevant statutes, regulations, and agency documents. GAO also interviewed federal officials from agencies with broadband programs about their programs and coordination efforts.
- Public-Safety Broadband Network: Congressional Action Required to Ensure Network   Continuity What GAO FoundThe First Responder Network Authority (FirstNet) is responsible for establishing a nationwide public-safety broadband network. GAO identified four key statutory requirements and contract responsibilities currently performed by FirstNet that the Congress should address before FirstNet would sunset in 2027. For example, FirstNet oversees the network contract awarded to AT&amp;T in 2017 (see figure). The current statute does not identify another federal entity to assume oversight when FirstNet sunsets. Without any legislative action, network operations and improvements would be at risk and could result in the loss of service for public-safety users. Another example is FirstNet's responsibility to collect fees and to reinvest these funds to enhance the network. FirstNet expects to collect and reinvest $18 billion in fees from AT&amp;T over the 25-year duration of the contract with AT&amp;T. However, the statute does not identify an organization to assume responsibility for fee collection and reinvestment if FirstNet's authority is terminated. Congressional action on key statutory requirements and contract responsibilities is essential for network continuity and enhancement.Timeline for Deploying the Nationwide Public-Safety Broadband Network and FirstNet's Key Ongoing Statutory RequirementsGAO's 2020 report on FirstNet's deployment of the network reinforces the importance of addressing contract oversight. In that report, GAO determined that FirstNet used various mechanisms to oversee AT&amp;T, many of which aligned with key contract-oversight practices. However, the report also pointed out that FirstNet lacked: (1) a reliable master schedule to review, (2) communication with relevant stakeholders regarding contract oversight, and (3) meaningful information on end users' satisfaction to gauge performance quality. GAO made four recommendations to remedy these weaknesses; FirstNet concurred with the recommendations and to date has implemented two of them. Implementing the remaining two on a reliable schedule and communication with stakeholders would further strengthen oversight.Two options to address FirstNet's termination of authority in 2027 include reauthorizing FirstNet or transferring FirstNet's responsibilities to one or more other agencies. If the Congress were to decide to reauthorize, then it would also have options in where to put FirstNet: (1) keep it within the National Telecommunications and Information Administration (NTIA), (2) place it within another federal agency, or (3) establish it as a separate federal organizational entity.Each of the overall options has different operational implications and potential costs. For example, some public-safety stakeholders told GAO that reauthorizing FirstNet would prevent network disruption; FirstNet officials agreed and further added that this option would not introduce new costs. Further, such a reauthorization would enable retention of existing network expertise and experience in engaging with the public-safety community. By contrast, the option to transfer responsibilities to one or more other agencies may lead to additional contract costs and introduce new risks. For example, stakeholders noted that transitioning oversight to another agency or agencies could be problematic for contract oversight, requiring more coordination and potentially leading to inefficiencies.Regarding FirstNet's organizational placement if reauthorized by Congress, advantages and disadvantages of each option would vary:Keeping FirstNet within the Department of Commerce would result in no new costs for the federal government and align with the NTIA's mission of supporting the broadband network and managing federal spectrum's use. However, FirstNet officials believe that the current placement limits their ability to independently oversee and manage the network.	Some stakeholders and FirstNet officials did not identify any advantages in placing FirstNet in another federal agency. Disadvantages of doing so include incurring additional transition costs, and potentially having to rebuild trust with public-safety entities.	According to FirstNet officials, reauthorizing FirstNet as an entity separate from another executive branch agency would enable it to exercise its authorities without undue constraints from a federal agency. However, disadvantages include the need to establish mission-support services (e.g., financial and legal support) and the loss of available oversight mechanisms, such as from the Department of Commerce's Inspector General.Why GAO Did This StudyCommunication systems are essential for first responders in emergencies. In 2012, FirstNet was established by statute as an independent authority within the Department of Commerce's National Telecommunications and Information Administration. FirstNet was charged with establishing a nationwide broadband network for use by public-safety entities. In March 2017, FirstNet awarded a $6.5 billion contract to AT&amp;T to deploy the network, which is currently expected to reach its final operating capability in March 2023.The statute creating FirstNet included provisions for its authority to terminate in 2027 and for GAO to report on what actions the Congress should consider regarding this sunset. This report examines: (1) FirstNet's statutory requirements and contract responsibilities that Congress should consider before FirstNet's authority sunsets in 2027 and (2) options to oversee and manage the network when FirstNet's authority sunsets and the associated operational implications and potential costs.GAO reviewed relevant statutes and documents, including FirstNet's contract with AT&amp;T, and reviewed GAO's prior relevant reports. GAO also interviewed FirstNet and other government officials and a nongeneralizable selection of public-safety stakeholders.
- Spectrum Management: Information Technologies for Managing Federal Use What GAO FoundFederal agencies use a variety of information technologies (IT) to manage their use of radio-frequency spectrum. The William M. (Mac) Thornberry National Defense Authorization Act for Fiscal Year 2021 (FY21 NDAA) required the National Telecommunications and Information Administration (NTIA) and covered agencies to develop plans to modernize their spectrum-related IT (i.e., the software, databases, and other tools that comprise their spectrum infrastructure).Currently, the NTIA provides agencies with some spectrum-related IT systems, such as software, databases, and engineering tools, so that they can participate in NTIA's spectrum management processes. These processes include assigning frequencies for agencies to use and certifying spectrum-dependent equipment. GAO found that all 20 agencies covered by the FY21 NDAA modernization requirement rely at least in part on NTIA-provided IT to manage their spectrum use. Additionally, most of these agencies—DOD and the Federal Aviation Administration, in particular—augment NTIA-provided IT with additional spectrum-related IT that meets their unique mission needs.Many of the officials GAO interviewed broadly agreed that modernizing spectrum-related IT could provide opportunities to improve spectrum management, mostly related to the following: (1) improving current spectrum management processes by addressing some limitations in existing spectrum-related IT and (2) facilitating the potential for greater spectrum sharing (i.e., enabling more than one spectrum user to use the same frequency band without interfering with each another). As NTIA and the covered agencies advance their modernization efforts in 2022, it is not yet clear if their plans will target these opportunities.Why GAO Did This StudyRadio-frequency spectrum is a scarce natural resource vital to many commercial and government activities, including weather observation, air traffic control, and national defense. NTIA and government agencies have a responsibility to manage their spectrum use wisely. To do so, agencies rely on different spectrum-related IT, but NTIA has recently highlighted that existing IT is out-of-date and hinders spectrum management.The FY21 NDAA contains a provision for GAO to review the current spectrum-related IT of covered agencies. This report describes (1) the existing spectrum-related IT that covered agencies employ to manage their spectrum use, and (2) the opportunities covered agencies and NTIA identified for improving spectrum management through IT modernization. The FY21 NDAA also contains a provision for GAO to conduct oversight of the implementation of agencies' spectrum-related IT modernization plans. This topic will be the subject of future GAO work.For more information, contact Andrew Von Ah at (213) 830-1011 or vonaha@gao.gov.
- Spectrum Management: NTIA Should Improve Spectrum Reallocation Planning and Assess Its Workforce What GAO FoundSpectrum is a finite natural resource that enables wireless communications and critical government operations, such as those shown in the figure below. Within the Department of Commerce, the National Telecommunications and Information Administration (NTIA) works with other agencies to execute spectrum reallocations, which involve making spectrum used by the federal government available to nonfederal users. However, GAO found NTIA lacks a formalized planning process for these reallocations, even though they can be complex, often lengthy undertakings involving many stakeholders and steps. For reallocations, NTIA typically collects input from those agencies whose use of spectrum would be affected by a proposed reallocation. NTIA may also help agencies conduct technical evaluations of a reallocation's potential effects on the agencies' spectrum-dependent operations. While NTIA follows some usual steps in conducting reallocations, GAO found that NTIA lacks plans with objectives and targets, integrated master schedules, and risk assessments. By following leading practices in program management, NTIA may be able to more effectively implement reallocations by considering necessary steps, risks, and the likely timeframes involved.Examples of Federal and Nonfederal Spectrum UsesNTIA has identified the competencies needed to manage federal spectrum's use, but it has not fully assessed its workforce for competency gaps. NTIA relies on a highly skilled and specialized workforce to undertake its spectrum management responsibilities and especially relies on electronic engineers and telecommunications specialists. NTIA officials told GAO that NTIA annually assesses whether there are competency gaps for individual positions. However, NTIA does not aggregate individual-level competency assessments to determine whether gaps exist on an organization level, as called for by leading practices. By assessing organization-level gaps in critical competencies on a recurring basis and then addressing them through hiring, training, or other strategies, NTIA could better ensure its spectrum management workforce is capable of successfully achieving NTIA's mission.Why GAO Did This StudyAlmost all spectrum has been allocated for the federal government, commercial sector, or other nonfederal use. However, the demand for spectrum continues to grow, especially from the commercial sector as it seeks to deploy and improve 5G mobile service. NTIA is responsible for managing the federal government's spectrum use and plays a key role alongside the Federal Communications Commission (FCC) and other federal agencies in helping to reallocate federal spectrum for commercial use.GAO was asked to review NTIA's spectrum management activities. This report examines, among other objectives, the extent to which NTIA (1) has developed a planning process for spectrum reallocations and (2) identified and assessed the competencies needed to manage federal spectrum's use. GAO reviewed relevant NTIA documentation and compared it with applicable leading practices. GAO interviewed officials from NTIA and other agencies, representing a variety of non-generalizable viewpoints.
- Telecomunicaciones: La FCC Asistió en la Restauración de Redes después del Huracán María, pero es Necesario Clarificar Su Función en las Labores de Respuesta a los Desastres y Mejorar la Comunicación This is the Spanish language highlights associated with GAO-21-297.Conclusiones de la GAOLa Comisión Federal de Comunicaciones (FCC, por sus siglas en inglés) tomó múltiples medidas para apoyar la restauración de las telecomunicaciones en el periodo posterior al huracán María. Por ejemplo, la FCC recopiló información sobre fallas del sistema, proporcionó asistencia de personal a Puerto Rico, estableció el Grupo de trabajo para la recuperación tras los huracanes para apoyar la restauración de las telecomunicaciones en Puerto Rico y las Islas Vírgenes de los EE. UU., y puso fondos a disposición para la restauración de las redes. Sin embargo, la GAO descubrió que la función de respuesta a los desastres de la FCC no quedaba claramente definida en las directrices publicadas por el Departamento de Seguridad Nacional (DHS, por sus siglas en inglés), aunque las directrices establecen que todos los niveles del gobierno deberían comprender sus respectivas funciones. En particular, el DHS no definió acciones específicas para la FCC en las directrices de funciones de apoyo a emergencias relacionadas con la restauración de la infraestructura de comunicaciones. Esta falta de claridad pudo haber contribuido a la confusión y los retrasos en el periodo posterior al huracán. Por medio de la actualización de las directrices de apoyo a emergencias y una clara definición de la función de la FCC en ellas, el DHS podría ayudar a reducir la confusión y aprovechar el conocimiento de la FCC sobre tecnologías nuevas o en evolución que podrían ayudar a restaurar las redes con mayor rapidez después de los desastres.Vista aérea de una torre caída en Puerto Rico después del huracán María, septiembre de 2017En el periodo posterior a la temporada de huracanes en el Atlántico de 2017, la FCC determinó cuáles fueron las lecciones aprendidas que le permitirán mejorar su respuesta a los desastres y labores de recuperación, y emitió un informe en agosto de 2018 que contenía observaciones sobre cuatro huracanes, incluido el huracán María. Por ejemplo, la FCC mencionó que pudo mejorar sus funciones en materia de capacitación y mejorar su colaboración con socios federales. Sin embargo, y específicamente relacionado con el huracán María, la GAO descubrió que la FCC obtuvo aportes limitados del público y que las labores del Grupo de trabajo para la recuperación tras los huracanes no fueron lo suficientemente transparentes porque la FCC no comunicó públicamente sus acciones ni sus hallazgos. Debido a la falta de comunicación sobre las acciones&nbsp;del grupo de trabajo y sus hallazgos, el público no tiene una explicación completa y precisa de las labores de respuesta de la FCC al huracán María. Una explicación de esta índole podría asistir con la preparación de desastres futuros. Al presentar al público informes sobre las labores del grupo de trabajo, la FCC podría ayudar a asegurar que los funcionarios del gobierno territorial y demás partes entiendan lo que la FCC ha logrado y qué medidas adicionales son necesarias para construir redes de telecomunicaciones que sean más resilientes.Propósito de Este EstudioEl huracán María azotó a Puerto Rico y las Islas Vírgenes de los EE. UU. en 2017 y ocasionó grandes daños físicos a los residentes, así como graves daños a la infraestructura crítica de las islas, incluida la infraestructura de redes de telecomunicaciones (véase la foto). Las agencias federales han enfrentado desafíos sin precedentes en el periodo posterior al huracán que complicaron las labores para resolver las fallas de servicio de las redes de telecomunicaciones. Si bien el DHS es la agencia que lidera la respuesta a los desastres, la FCC desempeña una función de apoyo en asuntos de telecomunicaciones.Se le solicitó a la GAO que analizara la respuesta de la FCC a las fallas en las redes de telecomunicaciones posteriores al huracán María. Este informe analiza 1) las acciones de la FCC para apoyar la restauración de las redes de telecomunicaciones después del huracán María y hasta qué grado está claramente definida la función de respuesta a los desastres de la FCC, y 2) las labores de la FCC para identificar las lecciones aprendidas gracias a los aportes del público y determinar hasta qué punto la FCC comunicó esas labores al público. La GAO analizó informes de agencias y evaluó sus labores contra los criterios pertinentes, y entrevistó a funcionarios gubernamentales y a representantes del sector de las telecomunicaciones y grupos de activistas para obtener una amplia gama de puntos de vista no generalizables.
- U.S. Agency for Global Media: Additional Actions Needed to Improve Oversight of Broadcasting Networks What GAO FoundThe U.S. Agency for Global Media (USAGM) and the six networks it oversees seek to inform, engage, and connect people around the world in support of freedom and democracy. Amendments to legislation have affected USAGM's governing authorities and organizational structure by shifting authority from a bipartisan board to a Chief Executive Officer (CEO), with advice from an Advisory Board. For example, the legislation granted the CEO the authority to name and replace members of USAGM's grantee boards, which manage the grantee networks. However, some network officials have concerns about certain provisions in the legislation, particularly about the process for selecting grantee board members. Determining how to appoint or remove members of USAGM's grantee boards in a way that includes Advisory Board involvement may help ensure the professional independence and integrity of USAGM's grantees.Network and USAGM officials said that previous members of USAGM leadership took several actions that did not align with USAGM's firewall principles. According to USAGM, the firewall protecting the networks' independence is central to the credibility and effectiveness of USAGM's networks (see fig.). However, the parameters of the firewall are not specifically laid out in legislation. Delineation of what is and is not permissible under the firewall may help ensure the professional independence and integrity of the agency and its networks.The U.S. Agency for Global Media's (USAGM) View of Its Legislative FirewallaUnited States International Broadcasting Act of 1994, Pub. L. 103–236, title III (Apr. 30, 1994). According to USAGM, the statutory firewall is found in 22 U.S.C. § 6204(b)) and 22 U.S.C. § 6202(a)(5) and (b)(1).Various USAGM and network officials told us that some past management actions have hindered USAGM's oversight of networks' operations, but current leaders are taking corrective actions. For example, a halt on funding caused 49 of 60 active internet freedom projects to stop, but leaders have now released the funding. Nevertheless, other actions to ensure accountability of grantees, such as establishing  Standard Operating Procedures for Monitoring Grants  , have not corrected a longstanding significant deficiency in grants monitoring reported by independent audits of USAGM's financial statements for the past 5 years. USAGM's leaders now have a plan aimed at correcting audit deficiencies by hiring a contractor to implement several grant oversight improvements.Why GAO Did This StudyUSAGM, formerly known as the Broadcasting Board of Governors, is an independent federal agency whose mission is to provide unbiased news in some countries where freedom of information is restricted. With a budget of around $810 million in fiscal year 2020, USAGM oversees two federal networks—Voice of America and the Office of Cuba Broadcasting—and four grantees—Radio Free Europe/Radio Liberty, Radio Free Asia, Middle East Broadcasting Networks, and Open Technology Fund. Each grantee has a separate board.A Senate committee report included a provision for GAO to consult with the Committee on Appropriations on an evaluation of USAGM's governance structure and oversight processes for its broadcasting entities. This report examines (1) how recent statutory amendments affected USAGM's governing authority and organizational structure, (2) the extent to which USAGM's management actions aligned with its policies on protecting editorial independence, and (3) the extent to which USAGM has taken actions to ensure oversight of network operations and accountability of its grantees. GAO reviewed relevant laws and agency documents and interviewed USAGM and network officials, including board members.
- COVID-19: Selected Agencies Overcame Technology Challenges to Support Telework but Need to Fully Assess Security Controls What GAO FoundEach of the 12 agencies GAO selected for review had information technology (IT) in place to support remote access for telework during the COVID-19 pandemic. Although the agencies initially experienced IT challenges in supporting remote access for maximum telework, they generally overcame them. For example, seven agencies were challenged in providing sufficient bandwidth to provide remote access for teleworkers, but they increased bandwidth as needed to ensure networks could handle additional remote connections. In addition, while the increased number of remote connections brings additional cybersecurity risks, all of the selected agencies reported that they continued activities intended to help ensure the security of their information and systems.While the selected agencies had documented elements of a telework security policy, such as permitted telework devices and forms of remote access, not all agencies had fully addressed other relevant federal guidance for securing their systems that support remote access for telework (see figure). Specifically, two agencies had not fully documented relevant IT security controls to protect those systems. In addition, assessments for systems that five agencies relied upon for remote access did not address all relevant controls to ensure the controls were operating effectively. Further, four selected agencies had not fully documented remedial actions to mitigate weaknesses they had previously identified.Extent to Which 12 Selected Agencies Followed Federal Information Security Guidance in Implementing Their IT Systems That Support Remote Access for TeleworkAlthough one of the selected agencies subsequently resolved its shortcomings, others had not. For the agencies that did not fully follow federal information security guidance, agency IT security officials stated that these conditions existed for various reasons, such as out-of-date documentation, among others. If agencies do not sufficiently document relevant security controls, assess the controls, and fully document remedial actions for weaknesses identified in security controls, they are at increased risk that vulnerabilities in their systems that provide remote access could be exploited.Why GAO Did This StudyIn response to the onset of the COVID-19 pandemic, in March 2020 the Office of Management and Budget directed federal agencies to maximize their use of telework to enable the workforce to remain safe while ensuring that government operations continue. Telework is essential to continuity of operations but also brings added cybersecurity risks.The  CARES Act  contains a provision for GAO to monitor the federal response to the pandemic. GAO was also asked to examine federal agencies' preparedness to support expanded telework. GAO's objectives were to determine (1) selected agencies' initial experiences in providing the IT needed to support remote access for maximum telework and (2) the extent to which selected agencies followed federal information security guidance for their IT systems that provide remote access.GAO selected 12 agencies for review that varied in their percentages of reported employee telework use and sent a questionnaire to solicit these agencies' perspectives on the use of IT in transitioning to maximum telework. GAO also reviewed the selected agencies' information security documentation and interviewed relevant officials.
- Broadband: FCC is Taking Steps to Accurately Map Locations That Lack Access What GAO FoundThe Federal Communications Commission (FCC) was tasked in the 2020 Broadband Deployment Accuracy and Technological Availability Act (Broadband DATA Act) to create a location fabric, which is a dataset of all locations or structures in the U.S. that could be served by broadband, over which broadband deployment data can be overlaid. The purpose of this data collection effort is to improve the granularity and precision of FCC's broadband deployment mapping, which will allow FCC to more precisely assess where Americans still lack access to broadband. As a start, FCC has hired a data architect and met with data companies and states to identify options. FCC has issued a request for proposals for a product to meet FCC's location fabric needs. Additionally, FCC officials said that the data company that generates the location fabric will be responsible for developing a process for state, local, and tribal entities, and others to question and correct fabric location data to improve their accuracy, as required by the law.Stakeholders GAO interviewed identified challenges FCC faces with developing a location fabric, including incomplete or conflicting data sources, but said that such challenges can be overcome by using multiple sources of data. For example, according to stakeholders, there is no one source of location data that will be sufficient for FCC and its contract data company to develop a precise location fabric; therefore, it is necessary to integrate four main types of data to have a complete location fabric, as shown in the figure. These data can be sourced from federal, state, local, and commercial sources. State-level pilots have shown that overlaying these data increases the accuracy of the location fabric and addresses the limitation that some sources have incomplete data. FCC will need to manage other challenges as well, such as use restrictions.Figure: Mapping Broadband Serviceable Locations Using the Four Key Data TypesWhy GAO Did This StudyBroadband is critical for commercial, educational, and social functions. While most Americans have access to broadband, many still do not—a gap known as the digital divide. To help close this divide, federal programs provide funding to support broadband deployment in unserved areas. According to FCC, these programs rely on data FCC collects from broadband providers to identify which areas are and are not served to target their limited funds. However, GAO has raised concerns about FCC's data for lacking accuracy and overstating service. FCC has been measuring broadband deployment by counting an entire census block as served if a provider reports that it offers service to at least one location in the census block. This method can overstate the extent of broadband deployment if the data show that a census block has broadband but not all locations in the census block are actually served. FCC began an effort in 2017 to improve its broadband data, and, in 2020, the Broadband DATA Act required FCC to develop a location fabric.The Broadband DATA Act included a provision for GAO to assess key data sources that may be used to develop a location fabric. This report (1) describes FCC's progress in developing a location fabric; and (2) describes challenges stakeholders identified that FCC faces in developing a location fabric. GAO reviewed relevant documents; surveyed officials in 54 states and territories; and interviewed officials from data companies, broadband providers, federal agencies, and states.For more information, contact Andrew Von Ah at (202) 512-2834 or VonahA@gao.gov.
- Exposure Notification: Benefits and Challenges of Smartphone Applications to Augment Contact Tracing Why GAO Did This StudyWith the emergence and rapid global spread of COVID-19, smartphone apps have been developed to supplement manual contact tracing, which is a public health measure used to slow the spread of infectious disease.GAO was asked to conduct a technology assessment of exposure notification apps. This report discusses (1) the benefits of exposure notification apps; (2) the current level of deployment in the U.S.; (3) challenges affecting their use; and (4) policy options that may help address these challenges for future use.To address these objectives, GAO reviewed agency documentation, met with officials from several federal agencies, and conducted a review of technical and policy literature. GAO also interviewed representatives from companies involved in the development of exposure notification apps, public health organizations, federally funded research and development centers, and academic researchers. In addition, GAO analyzed information from a selection of states. GAO is identifying policy options in this report.GAO received technical comments on a draft of this report from five federal agencies and five organizations included in the review, which it incorporated as appropriate.What GAO FoundExposure notification applications (apps)—which determine the proximity of users and notify people who have been in close contact with another user who was likely infectious—are expected to enhance the speed and reach of contact tracing and help slow the spread of infectious diseases such as COVID-19. As of June 2021, almost half (26/56) of U.S. states, territories, and the District of Columbia had deployed an app for COVID-19, all using a system developed jointly by Google and Apple (see figure). In the absence of a national app, states independently launched apps, resulting in a staggered rollout over 10 months beginning in August 2020.Map of deployment of exposure notification apps by U.S. states and territories, as of June 2021Reported app development costs for selected states varied, ranging from no cost (provided by a nonprofit organization) to $700,000. Marketing costs for selected states ranged from $380,000 to $3.2 million. Reported app download levels in the selected states ranged from 200,000 to more than 2 million, as of June 2021.GAO identified several challenges limiting app use and the ability of states and others to determine whether the apps were effective:Accuracy of measurements			Technical limitations to measuring distance and exposure can result in inaccurate exposure notifications.		Privacy and security concerns			The public may lack confidence that its privacy is being protected, in part, due to a lack of independent privacy and security assessments and a lack of federal legal protections.		Adoption			States have faced challenges attracting public interest in downloading and using an exposure notification app.		Verification code delays			States faced challenges in promptly providing people who tested positive for COVID-19 with a verification code necessary to notify other close contacts of potential exposure using the app.		Evidence of effectiveness			Limited data are available to evaluate the effectiveness of the apps.		Source: GAO. | GAO-21-104622GAO developed the following four policy options that could help address challenges related to exposure notification apps. The policy options identify possible actions by policymakers, which may include Congress, other elected officials, federal agencies, state and local governments, and industry. See below for details of the policy options and relevant opportunities and considerations.Policy Options to Help Address Challenges of Exposure Notification Apps for Future Use&nbsp;			Opportunities			Considerations		Research and Development (report page 41)			Policymakers could promote research and development to address technological limitations.						Research on technological limitations could help increase accuracy, encouraging users to download and use the apps.				Research on technologies and architectures other than those used by U.S. states could lead to improvements.				Partnerships with technology companies could spur innovation and help with integrating improvements.									The research needed may be costly.				Improvements may not be cost-effective, since existing apps may already be sufficiently accurate.				Research may result in apps that are not functional for the next pandemic, since the current apps were developed for COVID-19.					Privacy and Security Standards and Practices (report page 42)			Policymakers could promote uniform privacy and security standards and practices for exposure notification apps.						Uniform standards and best practices could help address real and perceived risks to the public’s data, potentially increasing adoption.				Standards developed by a broad coalition of stakeholders could increase the likelihood of stakeholder agreement and buy-in.									Policymakers would need to balance the need for privacy and security with the costs of implementing standards and practices.				Implementation of privacy requirements may need to be flexible, since jurisdictions could use different approaches.				Standards and practices could be challenging to oversee and enforce.					Best Practices (report page 43)			Policymakers could promote best practices for approaches to increasing adoption and to measure the effectiveness of exposure notification apps.						Best practices could help authorities better promote app adoption.				Best practices could help state public health authorities by providing information on procedures and potential approaches for distributing verification codes in a timely manner.				Best practices could help public health authorities establish a more rigorous way to measure the extent of app use and any resulting improvements in notifying exposed people.									Best practices could require consensus from many public- and private-sector stakeholders, which can be time- and resource-intensive.				Current best practices may have limited relevance to a future pandemic.				In some cases, stakeholders may lack sufficient information or the experience to develop best practices.					National Strategy (report page 44)			Policymakers could collaborate to enhance the pandemic national strategy and promote a coordinated approach to the development and deployment of exposure notification apps.						Enhanced national coordination that builds on the underlying infrastructure and lessons learned from COVID-19 could prompt faster deployment of apps in the future.				A future national marketing campaign with cohesive and coherent messaging could result in wider adoption.				Policymakers could recommend a national app that public health authorities could decide to use based on their individual needs. A national app could add more functions by integrating exposure notification capabilities with test scheduling and vaccine delivery coordination.									A coordinated national approach would likely have associated costs and require sustained funding during the pandemic.				Coordination of groups with divergent perspectives and interests may pose challenges to defining outcomes, measuring performance, and establishing a leadership approach.				It is unclear whether potential users would be more or less likely to trust a national exposure notification app than one developed by a state government.					Source: GAO. | GAO-21-104622For more information, contact Karen L. Howard at (202) 512-6888 or howardk@gao.gov&nbsp;or Vijay A. D’Souza, at (202) 512-6240, dsouzav@gao.gov.
- Satellite Communications: DOD Should Explore Options to Meet User Needs for Narrowband Capabilities What GAO FoundThe Department of Defense (DOD) is not using the full capabilities of its latest ultra high frequency (narrowband) military satellite communications system, the Mobile User Objective System (MUOS). MUOS provides secure communications less vulnerable to weather conditions or other potential impediments. The full constellation of MUOS satellites has been on orbit for over 4 years, but DOD has not been able to use the system's advanced capabilities—such as its 10-fold increase in communications capacity. A key reason is the military services' delayed delivery of compatible radio terminals to users (see figure). DOD is funding and developing plans to accelerate procurement and delivery of these terminals.Army Soldiers Using a Mobile User Objective System-Compatible Portable TerminalDOD faces other challenges to its narrowband communications capabilities.In the near term, users continue to rely on the communications system that preceded MUOS, which is oversubscribed and will remain so while DOD works to field terminals and transition to MUOS. DOD has not explored and adopted narrowband communication options, which, if implemented, could help to meet unmet near-term communication needs.	In the longer term, the five MUOS satellites that are on orbit have limited design lives. DOD plans to buy and launch additional satellites to sustain the constellation's availability, but without the legacy capability of the older system.DOD has not determined its future narrowband satellite communication needs after MUOS. DOD has not updated its narrowband requirements since 2010 and has no plans to do so, although the uses, technology, and threats to communications have changed. Reexamining its narrowband communications needs will enhance DOD's ability to field a timely replacement for MUOS and ensure warfighters have needed communications tools in the future.Why GAO Did This StudyDOD has invested $7.4 billion to develop, build, and begin delivering MUOS. However, longstanding gaps between the fielding of the satellite system and compatible user terminals have limited DOD's ability to fully use the system.The Senate Armed Services Committee report to the bill for the National Defense Authorization Act for Fiscal Year 2020 contained a provision for GAO to review DOD's use of MUOS capabilities and any plans for a MUOS follow-on capability. In this report, GAO (1) provides information on the extent to which DOD is using MUOS advanced communications capabilities; (2) assesses DOD's challenges and steps taken in transitioning to these capabilities, and (3) assesses efforts DOD has underway to meet future narrowband satellite communications needs. This is a public version of a sensitive report that GAO issued in June 2021. Information that DOD deemed to be sensitive has been omitted.GAO reviewed DOD planning documents, system assessments, and test reports. GAO also analyzed the services' terminal fielding and network transition plans. GAO interviewed oversight and acquisition officials across DOD.