FCC draft rules for the $14.2 billion affordable connectivity program were widely welcomed as more consumer protection provisions were included and several ACP changes were made to reflect challenges seen during the emergency broadband benefit program, industry and advocacy groups told us. Some sought minor changes to rules governing participating providers and connected devices. Rules must be finalized by Friday as required by the Infrastructure Investment and Jobs Act.
Affordable Connectivity Program (ACP)
What is the Affordable Connectivity Program (ACP)?
The Affordable Connectivity Program was a recently expired subsidy for low-income households to lower the cost of purchasing broadband internet and connected devices. The program was signed into law as part of the 2021 Infrastructure Investment and Jobs Act and administered by the FCC up until June 1, 2024, due to expiration of the ACP’s funding.
Will the ACP Return?
Congress continues to debate restoring ACP funding, with immediate next steps likely to come from the Senate Commerce Committee or Congressional discussions on revising the Universal Service Fund.
FCC Commissioner Geoffrey Starks will vote “later this week” on draft affordable connectivity program rules, funded by the Infrastructure Investment and Jobs Act, he said during an Information Technology Industry Council webinar Tuesday. “I expect a lot from this program going forward” (see 2201070060). ACP rules must be finalized within 60 days of the law's enactment, which is Friday.
The FCC should approve rules that allow emergency broadband benefit enrollees to easily migrate to the new affordable connectivity program (ACP), CTIA representatives told an aide to Commissioner Nathan Simington. “An affirmative customer opt-in process for ACP,” as proposed in a public notice, “is likely to lead to large-scale de-enrollment of eligible households, which would disserve the program’s goals,” said a filing posted Monday in docket 21-450. Ensure “that a broad cross-section of broadband providers continues to participate in the program, ensuring competition and multiple options,” CTIA urged.
The FCC released draft rules for the affordable connectivity program Friday, with few changes for providers and guidance for emergency broadband benefit households transitioning to the new program. Chairwoman Jessica Rosenworcel released the draft for feedback "given the importance of this program to consumers," she said: “Congress gave the FCC a very short window to stand up" the ACP "and working with a hyper-accelerated schedule during the holidays, we’ve proven that we are up to the task with this draft." The FCC wouldn't adopt a uniform opt-in requirement for EBB households transitioning to ACP but instead offer a "hybrid approach." Households that wouldn't experience a bill change wouldn't be required to opt in. Those with a "willingness and an ability to pay for broadband" would need to provide consent if they may end up with a bill due to the benefits drop. Households that haven't said they would or could pay must opt in. The draft would keep the same definition of "household" used in Lifeline and EBB. Household eligibility was updated to meet certain statutory changes. Recognizing some eligible households "may experience difficulty accessing or navigating the National Verifier on their own, and may require assistance to complete and submit an application," the draft would require the Wireline Bureau and Universal Service Administrative Co. to do a "one-year test pilot for granting trusted access to the National Verifier for purposes of assisting customers with applying" for ACP. Few changes would be made to the requirements for providers. Providers would need to establish that they offer broadband services to end users before seeking to participate, rather than before December 2020. The FCC was "persuaded by comments not to collect broadband internet service plan information during the election process," the draft said. Similar to the Lifeline program, providers would be prohibited from offering or giving enrollment representatives or direct supervisors compensation based on the number of households that apply or enroll in ACP. The draft cites a recent Office of Inspector General advisory raising concerns about potential misconduct by sales agents. Non-usage de-enrollment rules would mirror the Lifeline program's rules. The FCC received a mixed response on whether "any internet service offering" should include legacy and grandfathered plans. The final rules would include those plans and any that a provider "currently offers to new customers." It further clarified that the requirement "does not require that providers offer such legacy or grandfathered plans to other customers, including ACP-eligible customers, that are not already on such plans." Providers would have 60 days after the final rules are published in the Federal Register to complete any necessary changes to ensure ACP can be applied to "all generally available and currently sold plans." Providers would also be allowed to include taxes and other government fees in the "actual amount charged to a household." The draft would not impose minimum service standards. Smartphones and cellphones would still be excluded. Providers are allowed to perform credit checks only if it's unrelated to the program. Providers would be prohibited from upselling or downselling services. A Further NPRM would also seek comment on implementing an up to $75 enhanced monthly benefit for households in high-cost areas and how to establish its outreach grant program. Comments would be due 30 days after FR publication, 45 days for replies, in docket 21-450. Also released Friday was a public notice allowing ex parte presentations until Jan. 11. Presentations must be filed by Jan. 12.
With enrollment now open for the FCC’s affordable connectivity program and the transition from the emergency broadband benefit program underway, some consumer advocacy groups told us they're concerned that EBB-enrolled households could face a bill shock or lose their benefit entirely if required to affirmatively opt in to receive the new benefit. Several questions remain because the FCC hasn't issued rules for the new program and the higher subsidy amount is set to end March 1.
Allow bulk Wi-Fi purchasers to certify to a service provider that its affordable connectivity program discount "has been passed through fully to multiple households" without having to send the households a bill, said Rhode Island nonprofit One Neighborhood Builders in comments posted Tuesday in docket 21-450. The group offers free Wi-Fi to low-income households through the Ocean State Higher Education Economic Development and Administrative Network, which leases fiber cables owned by Cox. Allowing OSHEAN to pay for the internet cost without sending users a bill would "make the ACP funds more accessible for unconnected households without burdening small nonprofits and households with additional paperwork," it said. The group said the change could lead to "several hundred households" signing up for ACP. The FCC didn't allow reimbursement during the emergency broadband benefit program in cases where a household "does not pay a fee for the service, either to the provider or a bulk purchaser/aggregator, but the fee is paid by another entity."
The FCC "has authority to prescribe minimum service standards" in the affordable connectivity program, said an Adtran letter last week in docket 21-450 (see 2112090061). The company disagreed with CTIA that "[no] commenter favoring selective restrictions on eligible households’ right to apply their benefit to the broadband service of their choice explains how such restrictions could be justified under the statute, and indeed no such justification exists." Adtran's reply backed MSS for fixed broadband.
Provider participation in the FCC’s affordable connectivity program is likely to be at a higher level than for the emergency broadband benefit program, we’re told (see 2112090061). Some industry groups said more providers may elect to participate since the new program is designed to be longer term than EBB.
CTA and other commenters told the FCC the $14.2 billion affordable connectivity program (ACP) should make room for the expansion of wireless networks, which will be critical to new generations of connected devices. Commenters also continue to raise implementation concerns as the agency shifts from the $3.1 billion emergency broadband benefit program to the new ACP (see 2112090061). Replies were posted Wednesday and Tuesday in docket 21-450.
Don't require "universal, proactive opt-in" to participate in the affordable connectivity program, a coalition of advocacy groups asked FCC Chairwoman Jessica Rosenworcel in a letter posted Thursday in docket 21-450 (see 2112090061). Among the signers were Asian Americans Advancing Justice, the Benton Institute for Broadband & Society, the National Consumer Law Center and Public Knowledge. Households transitioning from the emergency broadband benefit program should receive "clear and repeated notice that the program is transitioning" so they can decide whether and how they want to participate in ACP, the groups said, saying the FCC should "immediately" establish an outreach grant program that Congress allowed.