Disability Should Not Mean Disconnected: Recasting Lifeline/Link-Up Programs

The Internet is sometimes described as “the great equalizer,” capable of overcoming most barriers in the delivery of resources and services to an ever-expanding spectrum of people and organizations. The importance of universal Internet access and the ability to use broadband-enabled information and services is made explicit in the core purposes of the American Reinvestment and Recovery Act (ARRA, section 6001). In addition to providing support to ensure access and stimulate demand for broadband in unserved and underserved areas, public safety agencies, job-creating strategic facilities and anchor institutions (such as schools, libraries, and medical facilities) the ARRA funds target organizations and agencies serving vulnerable populations. In ARRA documents and the related Broadband Technology Opportunities Program (BTOP), the term “vulnerable” includes those whose Internet access and use is limited due to “low income, unemployed [and] aged” conditions. While persons with physical disabilities are not expressly referenced in the BTOP Notice of Funds Availability (NOFA), they have been singled out for special attention in draft legislation previously submitted to reform federal broadband programs (Benton Foundation example, Hearing Loss Web example).

The Federal Communications Commission, with funding from the Universal Service Fund, administers the Lifeline/Link-Up programs to address telecommunications needs of qualifying low-income citizens. Historically, the Lifeline/Link-Up programs provide discounts for initial installation and activation of telephone services over publicly-switched telephone networks. More recently, discounts have been extended to include wireless services in select areas. As broadband becomes more important in the delivery of basic services, some are arguing that it is time to reform these programs and their funding sources in order to subsidize broadband and Internet-based services. The need to transform the Lifeline/ Link-Up programs to provide broadband service is especially acute in among disabled citizens, where the percentage of persons with Internet access is reported to be only half that of the general population.

North Carolina has long been an advocate and active partner in extending voice service to those who qualify for Lifeline/Link-Up program assistance. Lifeline subsidies subtract $13.50 monthly from the telephone bills of qualifying customers. Of this amount, $10 is the federal portion paid directly to service providers; the remaining $3.50 is treated as a tax credit that offsets corporate state taxes accrued by service providers. According to Hugh Gerringer with the N.C. Utilities Commission, approximately 126,000 customers in North Carolina received Lifeline subsidies on their phone bill even though nearly 500,000 families qualify. Many of the state’s low-income citizens are also disabled. According to the 2000 U.S. Census, 21.1 percent of individuals in North Carolina who were 5 years of age and older were identified as having a disability; this figure that is slightly higher than the overall 19.3 percent found in the national population. Among adults age 65 and older, this figure is 45.7 percent.

The e-NC Authority is developing a proposal in response to the available ARRA broadband funding to pilot a program that will adapt the Lifeline/Link-Up programs to support broadband service for low-income and disabled populations in North Carolina. This proposed pilot program will include outreach and training initiatives targeting social service agencies serving as the gatekeepers for qualifying individuals. The pilot will also address training opportunities for those receiving services.

Where the CITIZENS come to ask questions…

Almost on a daily basis, the e-NC Authority hears from citizens that do not have broadband access. Their stories are often born from ongoing frustration with lack of service, being held back at work and school by not having service, and the experience they have had with telecommunications service providers.

When we correspond with citizens, we always try to gather information about their specific experience (ex. do they know others nearby without service, what their experience has been when contacting who they think would be the obvious service provider, how lack of service is affecting their life/home, etc.), but we also encourage them to write to their legislators about the issue. Often, we must also explain the nature of the telecommunications industry and its relationship with regulatory government. Once we gather information about the citizen’s home address and landline telephone number, we ensure that the citizen has contact information for their elected leaders in the N.C. General Assembly.

With address and home landline in-hand, we then forward that information to the closest service provider to inquire about if that citizen’s location is included in any known deployment plans. Getting this answer back from a service provider can take anywhere from a few days to several months. We always forewarn citizens that the e-NC Authority does not hold regulatory authority and that getting information back from the service provider about their specific location can often take a long period of time.

The content of the correspondence is something to behold. From time to time, we plan to post that content to this blog. Here are a few. (Specific information from citizens and their service provider has been removed to protect privacy.)

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Hello, I live three miles from the local university and cannot get broadband. I am a professional therapist and my wife is a professor at the college. A neighbor up the road gets broadband, but apparently we are too far from the source. We are supposedly about the same distance away from the other transfer station, so we will likely never get broadband. Help!

I have had (the telecommunications company) come and check the line on two separate occasions. They never let me know their findings until I called and was routed through several different branches of their service. Then I was told our house was too far away, with no explanation about why our neighbor who lives up the mountain received broadband services.

S.M., Jackson County

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I live in Graham County. For the last two years I have been struggling to get broadband service at my residence. I contacted (the telecommunications company) and they stated that DSL service was not available. After talking to the local technicians, they said it might be possible to get DSL. The current outcome is that the local employees want to provide the service and they say they could, but the upper management of their company did not want to provide a solution. I've called and talked to anybody in (the telecommunications company’s) chain of management that would listen to me. The higher up I go, the less they care about the situation and always more focus on profit issues.

My wife is a full time college student who is a distant learner and her university requires high-speed Internet for school work. She must drive either to the public library or her mother's house to have Internet access. I know of many more residents in my area and in Graham County who would like broadband service to better themselves. It seems my efforts alone will not get the ball rolling, so if there is any help or guidance that e-NC can provide would be greatly appreciated. If this helps any I am a Disabled Veteran, a former Marine, who is still serving (in a public service job) and in the U.S. Army reserves. All I am asking for is for something that many take for granted.

K.T., Graham County

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I took an early retirement package from a newspaper in November and established a business at my home. I have been severely hampered by having only slow, dialup Internet at home. Many Web sites I need to use for research will not open here. PDFs are also very slow to open, if they open at all. Often, I write on my laptop and then drive six miles to another town to e-mail my article to my customer. One offer of regular editing work was rescinded in part because of my "connectivity issues."

Everything I do takes much, much longer than it should. This is a real burden in my business. I live in eastern Stokes County. (Telecommunications company) is my phone provider; they will not bring DSL to my house, even though they have it north of here. (Another telecommunications company) is the local cable provider; they told me I am "unserviceable" even though they come near our road. Someone I met who lives in a remote area of Stokes County right on the Virginia line recommended (a satellite company), but they said that they will not serve my area.

I have a (telecommunications company) air card for my laptop, but their service is not strong enough in my house to use the air card. Once, I wrote an article in my laptop and, because it was raining, had to drive to the top of a nearby hill just to send it out by e-mail. This is not a very good way to run a business.

I e-mailed all my state representatives and some others who I had been told were on crucial committees about rural broad-band back in the winter. I received not a single reply. If there is anything I can do to help this process along, please let me know.

L.B., Stokes County

Broadband on Jones St. & National ARRA update

As we head into July, we are likely looking at the last few weeks of the N.C. General Assembly’s legislative session. So, what’s happened? As far as broadband legislation, several bills have made it into law, primarily those supported by the telecommunications service providers.

HB135/SL 2009-80 – Broadband Service Providers
This bill allows companies that already provide broadband to expand their service areas for voice service. This was signed into law on June 11.

SB889/SL 2009-202 – Utilities/Carrier of Last Resort
This bill allows for local exchange companies to, in some cases, be granted waivers of their carrier of last resort obligations for certain subdivisions and other defined areas. This was signed into law on June 26.

HB1180/SL2009-238 – Consumer Choice and Investment Act of 2009
This bill decreases regulation on local exchange companies in their provision of voice service. This was signed into law on June 30.
SB357– Utilities/Regulation of Pole Attachments
This bill requires municipalities and membership corporations to allow the use of their poles, ducts and conduits by communications service providers and authorizes the North Carolina Business Court to resolve disputes around use. This bill was ratified July 2 and is now waiting to be signed into law.

So with the final budget still in limbo – the session is not over, but these are some of the key broadband bills that have made it into law, or are at least headed in that general direction.

So what happens now? The state budget is expected to pass in the next couple of weeks. The e-NC Authority expects to retain much of its recurring operating funds so that we may continue to keep our doors open for the 2009-2010 fiscal year. Unfortunately though, the latest versions of the budget do not contain funding for broadband-related grant programs as requested by the e-NC Authority. We are still pushing for funds that could be used as match for grant applications on broadband projects forthcoming from the American Recovery and Reinvestment Act of 2009 (ARRA).

And in other big news…

The U.S. Department of Agriculture Rural Utilities Service (RUS) and the National Telecommunications and Information Administration (NTIA) of the U.S. Department of Commerce released the Notice of Funding Availability this week for the RUS Broadband Initiatives Program (BIP) and NTIA’s Broadband Technology Opportunities Program (BTOP).

In North Carolina, the Office of Economic Recovery and Investment has been holding meetings of its Broadband Task Force (although the state does not have direct input on funds distributed by RUS and NTIA). At the next meeting of the group in July, Connected Nation’s online maps of North Carolina are to be presented.

In other big happenings, CenturyTel and EMBARQ announced this week that they have completed their merger, impacting 33 states. And last month, Verizon Communications announced the sale of its landline service in 14 states, including in North Carolina. Meanwhile, AT&T continues to focus on build-out of its mobile 3G wireless network.