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Nearly every aspect of American life now requires internet access. Yet millions of Americans still lack reliable broadband service, creating a persistent gap between those who can fully participate in the digital world and those who cannot.
At the start of 2025, while 93.1% of the U.S. population used the internet, a staggering 23.9 million people remained offline. The consequences affect education, employment, healthcare, and civic participation.
What Is the Digital Divide?
The digital divide is the gap between individuals and communities who have affordable access, skills, and support to effectively engage online and those who do not. Historically, the term described the disparity between the technological “haves” and “have-nots”—those with access to a computer and the internet versus those without.
Today, this definition has expanded. The digital divide is now understood as a multifaceted problem encompassing physical access, the quality and affordability of that access, the suitability of devices, and the digital skills needed to navigate the online world effectively.
The very nature of being “connected” is a moving target. In the past, having any internet connection might have been sufficient. Today, meaningful participation in the economy, education, and healthcare requires high-speed broadband.
The Federal Communications Commission currently sets the benchmark for advanced telecommunications capability at a download speed of 25 megabits per second and an upload speed of 3 Mbps. Yet as services like high-definition video conferencing for telehealth and AI-driven educational tools become standard, the demand for even faster and more reliable connections will only grow.
This constant evolution means that policies and programs designed to close the divide must be forward-looking and adaptable, aiming to meet today’s standards and anticipate tomorrow’s needs.
The Three Pillars of Digital Inclusion
To truly bridge the digital divide, a comprehensive approach is needed that addresses what experts call “digital inclusion.” This framework rests on three essential pillars that together ensure everyone can participate fully and effectively in the digital age.
Access to Robust, Affordable Broadband
This is the foundational pillar. It means more than just having a connection; it requires having service at speeds, quality, and capacity necessary to accomplish common and increasingly essential tasks. This includes everything from a student attending a virtual class to a patient having a telehealth appointment or an employee working from home.
Affordability is a critical component, as the cost of a monthly subscription is a primary barrier for many households.
Access to Appropriate Devices
Meaningful online participation often requires more than a smartphone. While smartphones are ubiquitous, many crucial tasks—such as writing a resume, completing complex school assignments, or filling out detailed government forms—are difficult or impossible on a small screen with limited software functionality.
Many households on the wrong side of the divide rely on outdated devices with poor battery life or shared phones, which severely limits their ability to engage online. Therefore, access to a personal, secure device like a laptop or desktop computer is a key element of digital inclusion.
Access to Digital Skills and Support
This pillar, often referred to as digital literacy, is a critical and frequently overlooked component of the solution. It encompasses the skills needed to use a computer and navigate online systems, critically evaluate information, protect personal data from scams and phishing attempts, and use digital tools to achieve personal and professional goals.
This also includes access to quality technical support when things go wrong. Recognizing that the term “literacy” can carry a negative stigma, many advocates now use more empowering language like “digital skills” or “digital readiness.”
This shift in language is reflected in the rise of programs featuring “Digital Navigators“—trusted community guides who provide ongoing, individualized support to help people get online and use technology confidently. This partnership-based model builds trust and is more effective than top-down mandates.
From Digital Inclusion to Digital Equity
The ultimate objective of these efforts is to achieve digital equity. As defined by the National Telecommunications and Information Administration, digital equity is the condition in which all individuals and communities have the information technology capacity needed for full participation in our society, democracy, and economy.
Achieving digital equity goes beyond simply providing resources. It requires intentional strategies and investments to dismantle the historical, institutional, and structural barriers that have prevented equal access for generations.
This includes tackling practices like digital redlining, a modern form of discrimination where internet service providers neglect to deploy, maintain, or upgrade infrastructure in certain areas, most often affecting communities of color and low-income households.
Why the Digital Divide Matters
The digital divide has profound and tangible consequences that affect millions of Americans in the most essential areas of their lives. From a child’s education and a parent’s job prospects to a senior’s healthcare and a citizen’s ability to engage with their government, the lack of digital access creates and exacerbates inequality.
The Education Impact
Perhaps the most widely discussed consequence of the digital divide is the “homework gap”—the gulf between students who have the necessary home internet access and devices to complete schoolwork and those who do not.
With an estimated 70% of teachers assigning homework that requires broadband access, this gap has become a critical barrier to educational equity. Nationwide, an estimated 16.9 million children are effectively locked out of the virtual classroom because their families lack the high-speed home internet necessary for online learning.
The consequences are severe. A study from Michigan State University found that students without reliable home internet access, or who rely solely on a mobile phone, spend more time on their homework, achieve lower grade point averages, and develop weaker digital skills.
The gap in digital skills between a student with home access and one without can be as large as the skills gap between an 8th-grade and an 11th-grade student.
The COVID-19 pandemic threw this crisis into sharp relief, forcing a sudden shift to remote learning that left millions of students struggling to keep up. Many students were forced to complete assignments on smartphones, a significant handicap due to small screens and limited software functionality, while others had to seek out public Wi-Fi in libraries, community centers, or even the parking lots of fast-food restaurants to get their schoolwork done.
This gap disproportionately harms students from historically marginalized communities. One in three Black, Latino, and American Indian/Alaska Native households lack a high-speed home internet connection. Similarly, four in ten families with an annual income below $25,000 lack high-speed internet, and three in ten do not own a computer.
This educational disparity can have lifelong effects, limiting future career prospects and economic mobility.
Economic Consequences
In today’s economy, digital access is not a luxury; it is a prerequisite for opportunity. According to research from the National Skills Coalition and the Federal Reserve Bank of Atlanta, an astonishing 92% of jobs now require digital skills. Individuals who lack these skills or a reliable way to get online are at a severe competitive disadvantage.
Job Seeking and Remote Work: The job search has moved almost entirely online. Those without reliable internet are effectively excluded from the growing number of remote and hybrid job opportunities and cannot easily access online job boards, submit applications, or participate in virtual interviews.
Entrepreneurship and Small Business: For entrepreneurs and small business owners, digital tools are vital for success. Without affordable and reliable internet, they cannot leverage e-commerce platforms, use digital marketing to reach customers, or access global markets, which stifles innovation and economic growth.
The Gig Economy: The rapidly expanding gig economy offers flexible income opportunities, but participation almost always requires consistent access to apps and digital platforms, creating another barrier for the unconnected.
Closing the digital divide is therefore a critical economic development strategy. When more people are equipped with digital access and skills, it creates a broader, more competitive workforce, boosts individual earning potential, and fosters a more innovative and resilient national economy.
Healthcare Implications
The COVID-19 pandemic catalyzed an explosion in the use of telehealth, forever changing the delivery of healthcare. While virtual care offers immense promise, a stark “telehealth divide” threatens to leave the most vulnerable populations behind, potentially worsening existing health inequities.
The barriers to accessing telehealth are numerous and mirror the broader digital divide:
Infrastructure and Devices: Millions of Americans, particularly in rural areas, lack access to high-speed broadband services. Many low-income households do not own a device with video capabilities (like a laptop or tablet) or rely solely on a smartphone with a limited data plan.
Digital Skills and Comfort: Many individuals, especially older adults, lack the technological skills or comfort level needed to navigate telehealth platforms.
Language and Privacy: Non-English speakers often cannot find telehealth services in their preferred language, and some patients lack a private, confidential space at home for a virtual visit.
A cruel paradox of telehealth is that it holds the greatest potential for the very populations who face the most significant barriers to its use. Older patients with mobility constraints, low-income individuals who cannot easily take time off work or find transportation, and people with disabilities could benefit enormously from virtual care, yet they are the most likely to be digitally excluded.
This connection between digital access and health outcomes is so strong that the digital divide is increasingly recognized as a social determinant of health—a factor in the environment that affects health and quality of life. Research from the FCC’s Connect2Health Task Force shows a powerful correlation between broadband adoption and positive health outcomes, even after controlling for other factors like income and education.
Civic Participation Challenges
As federal, state, and local governments increasingly move their services and information online—a practice known as e-government—the digital divide creates a new form of civic disenfranchisement. Those without reliable access or skills are left unable to perform essential tasks like applying for benefits, paying taxes, renewing licenses, or accessing vital public health information.
This creates a two-tiered system of citizenship. It limits civic engagement by excluding people from online town halls, public comment portals, and other digital platforms for participating in governance.
When the voices of marginalized groups are not heard, policymaking can become less effective and less representative of the needs of the entire population. In this way, the digital divide does more than just reflect existing societal inequalities; it actively deepens them, creating new barriers to full participation in American democracy.
Who Is Most Affected?
While the digital divide affects people in every corner of the country, its impact is not felt equally. The data reveals clear and persistent fault lines based on geography, socioeconomic status, and demographics.
These divisions are often intersectional, meaning that individuals who fall into multiple at-risk categories—such as a low-income senior living in a rural area or a person with a disability from a racial minority group—face compounded barriers to digital access.
The Geographic Divide
Where a person lives in the United States remains a powerful predictor of their access to high-quality internet.
Rural America: Although the connectivity gap has narrowed in recent years, a divide persists. In 2021, 72% of adults in rural areas had a home broadband connection, compared to 79% in suburban areas. This gap is largely driven by market economics; the high cost of building and maintaining broadband infrastructure in sparsely populated regions makes it less profitable for private companies to invest there.
Rural adults are also less likely than their urban counterparts to own a smartphone, tablet, or computer.
Urban Gaps and Digital Redlining: The digital divide is not exclusively a rural problem. Significant gaps exist within cities, where low-income neighborhoods and communities of color often have access to slower, less reliable, and lower-quality internet service than more affluent areas.
This practice, known as “digital redlining,” is a modern form of discrimination where ISPs choose not to invest in or upgrade infrastructure in certain communities. For example, a report from the New York City mayor’s office found that nearly half of the city’s low-income households lack internet access.
The Tribal Divide: The gap in connectivity on Tribal lands is the most severe and significant measured disparity in the nation.
According to 2021 U.S. Census Bureau data, only 71% of American Indian and Alaska Native households on Tribal land had a broadband subscription, far below the national average of 90%.
A study by the Federal Reserve Bank of Minneapolis found the gap in internet access between Tribal areas and neighboring non-Tribal areas to be a stark 21 percentage points.
The service that is available is often inferior and more expensive. The Minneapolis Fed study found that internet speeds in Tribal areas are approximately 75% slower, while the price for basic service is 11% higher than in adjacent non-Tribal areas.
Beyond the challenges of cost and difficult terrain, deploying infrastructure on Tribal lands is complicated by unique institutional barriers, such as complex land tenure issues known as “checkerboarding.”
The Socioeconomic Divide
Socioeconomic status is one of the most powerful predictors of digital connectivity.
Income: Household income is arguably the single greatest determinant of broadband adoption. In 2021, over 92% of households with an annual income of $75,000 or more had a home broadband connection. For households earning less than $30,000, that figure plummeted to just 56%.
A Government Accountability Office analysis found that nearly a third of Americans without broadband cite cost as the primary reason.
Poverty: Data from the Department of Health and Human Services, based on 2018 figures, showed that 18% of people living below the federal poverty line had no internet access at all. They were 29 percentage points less likely to have broadband in their homes than people in households at or above 400% of the poverty line (55% vs. 84%).
Education: A person’s level of educational attainment is also strongly correlated with their digital access. In 2021, 94% of adults with a college degree had home broadband. In stark contrast, only 59% of those with a high school education or less had the same level of access.
The Demographic Divide
Beyond location and income, deep digital divides persist across key demographic lines.
Age: Older Americans consistently report the lowest levels of digital adoption. In 2019, only 59% of Americans aged 65 and older had broadband at home, compared to about 80% for younger age groups.
Smartphone ownership is also significantly lower; for the Silent Generation (born 1945 or earlier), it was just 40% in 2019. This population is also the most likely to report needing help setting up and using new technology and to lack confidence in their digital skills.
Race and Ethnicity: Despite progress, significant racial and ethnic disparities remain. According to 2021 data, 79% of White adults reported having home broadband, compared to only 71% of Black adults and 66% of Hispanic adults.
Black and Hispanic adults are also less likely than White adults to own a traditional desktop or laptop computer, a crucial tool for many online tasks. This can lead to a greater reliance on smartphones for internet access, which, while valuable, can be a significant disadvantage.
This “smartphone-only” dependency is a hidden form of the digital divide, creating a tiered internet where some have full functionality while others have a limited, mobile-only experience.
Disability: Americans with disabilities face significant barriers to digital access. They are far less likely than those without disabilities to own key devices. There is a 19-percentage-point gap in desktop or laptop ownership (62% vs. 81%) and a 16-point gap in smartphone ownership (72% vs. 88%).
Furthermore, adults with disabilities are three times more likely to report that they never go online (15% vs. 5%).
| Demographic Category | Sub-Group | Home Broadband Access (%) | Computer (Desktop/Laptop) Ownership (%) |
|---|---|---|---|
| Geography | Urban | 77% | 81% (Urban/Suburban Combined) |
| Rural | 72% | 74% | |
| Tribal Lands | 71% | Data not available | |
| Income (Annual) | Less than $30,000 | 57% (2023) | 46% (2016) |
| $75,000 or more | 92% (2021) | 90%+ (2016) | |
| Race/Ethnicity | White, non-Hispanic | 80% (2021) | 80% (2021) |
| Black, non-Hispanic | 71% (2021) | 69% (2021) | |
| Hispanic | 65% (2021) | 67% (2021) | |
| Age | 18-29 | 77% (2019) | 77% (2019) |
| 30-49 | 77% (2019) | 82% (2019) | |
| 50-64 | 79% (2019) | 74% (2019) | |
| 65 and older | 59% (2019) | 59% (2019) | |
| Disability Status | With a disability | 72% (2021) | 62% (2021) |
| Without a disability | 78% (2021) | 81% (2021) |
Note: Data is compiled from multiple sources and years to provide the most recent available statistics for each category. Direct comparisons between all categories may be limited by differing survey years and methodologies.
The National Effort to Bridge the Gap
Addressing a challenge as complex and deep-seated as the digital divide requires a concerted, multi-faceted effort involving all levels of government, the private sector, and community institutions. In recent years, the United States has embarked on a historic national project to close these gaps through unprecedented investment in infrastructure, affordability, and skills training.
This effort recognizes that simply building physical networks is not enough; true success depends on ensuring that every American can afford to get online, has a suitable device, and possesses the skills to use the internet safely and effectively.
The Federal Response
The centerpiece of the federal government’s strategy is the “Internet for All” initiative, funded through the landmark Bipartisan Infrastructure Law, officially known as the Infrastructure Investment and Jobs Act of 2021.
This law allocated a historic $65 billion to improve high-speed internet access and promote digital equity across the country. This investment is administered through several key programs, primarily managed by the National Telecommunications and Information Administration within the Department of Commerce.
The federal strategy is built on a crucial understanding: infrastructure investment is necessary, but it is not sufficient. Laying fiber optic cable to an unserved home is only the first step. That household must also be able to afford the monthly service, own a device capable of using it, and have the skills to participate online.
For this reason, the Bipartisan Infrastructure Law created a two-pronged approach. The largest program, BEAD, focuses on building the “digital highways.” It is complemented by the Digital Equity Act programs, which are designed to teach people how to “drive” on those highways and help them afford a “car.”
The success of the multi-billion-dollar infrastructure investment is therefore fundamentally dependent on the success of these smaller, but equally vital, programs focused on adoption and use.
The BEAD Program
The Broadband Equity, Access, and Deployment program is the cornerstone of the federal infrastructure effort, providing $42.45 billion in grants to states and territories. Its primary goal is to fund the deployment and upgrading of broadband networks to bring high-speed internet to every American.
The program prioritizes funding for:
- Unserved locations: Areas that completely lack access to a broadband connection with speeds of at least 25 Mbps download and 3 Mbps upload
- Underserved locations: Areas that have service, but it does not meet the modern standard of 100 Mbps download and 20 Mbps upload
Under BEAD, each state develops a comprehensive plan and then runs a competitive grant process to award funds to internet service providers for projects that will connect these priority areas.
A key requirement of the program is that any provider receiving BEAD funds must offer a low-cost service option to eligible subscribers, directly addressing the affordability barrier.
Digital Equity Act Programs
To complement the infrastructure buildout, the Bipartisan Infrastructure Law also established the $2.75 billion Digital Equity Act. These programs, also administered by NTIA, are designed to ensure that all people have the skills, technology, and capacity needed to reap the full benefits of the digital economy.
The Act focuses on providing resources to “covered populations” who have been historically excluded, including low-income households, seniors, veterans, racial and ethnic minorities, people with disabilities, and rural residents.
The Digital Equity Act consists of three grant programs:
- State Digital Equity Planning Grants: A $60 million program to help states create detailed Digital Equity Plans
- State Digital Equity Capacity Grants: A $1.44 billion formula grant program to provide states with the funding to implement their plans
- Digital Equity Competitive Grants: A $1.25 billion program that awards grants directly to entities like non-profits, libraries, and local governments to carry out digital inclusion activities
The Affordable Connectivity Program Crisis
For several years, the most significant federal program addressing affordability was the Affordable Connectivity Program, managed by the FCC. The ACP provided a monthly discount of up to $30 (or $75 on Tribal lands) on internet service for eligible low-income households.
The program was immensely popular, with over 23 million households enrolled, demonstrating the profound need for affordability support.
However, a critical challenge has emerged that threatens to undermine the entire national strategy. Despite its success, Congress did not approve additional funding for the ACP. As a result, the program officially ended on June 1, 2024.
This has created a major policy collision: the federal government is spending tens of billions of dollars through BEAD to build new networks, but the primary tool that made those networks affordable for millions of low-income families has been eliminated.
This “affordability cliff” means that many of the same households in the unserved and underserved areas targeted by BEAD may be unable to subscribe to the very service being built to connect them. Without a sustainable, long-term solution for affordability to replace the ACP, the return on the historic investment in broadband infrastructure will be severely diminished, and the goal of achieving true digital equity will remain out of reach.
| Program Name | Administering Agency | Primary Goal | Total Funding | Key Activity/Target |
|---|---|---|---|---|
| Broadband Equity, Access, and Deployment (BEAD) Program | NTIA (Dept. of Commerce) | Infrastructure Deployment | $42.45 Billion (BIL) | Funding states to build and upgrade broadband networks in unserved and underserved areas |
| Digital Equity Act Programs | NTIA (Dept. of Commerce) | Adoption, Skills, & Devices | $2.75 Billion (BIL) | Funding states and non-profits for digital literacy, device programs, and adoption support for covered populations |
| Tribal Broadband Connectivity Program (TBCP) | NTIA (Dept. of Commerce) | Tribal Infrastructure & Equity | ~$3 Billion (Consolidated Appropriations Act, 2021 & BIL) | Direct grants to Tribal governments for broadband deployment, affordability, telehealth, and digital inclusion |
| Affordable Connectivity Program (ACP) | FCC | Affordability | ~$14.2 Billion (BIL) | Provided a monthly internet service discount to eligible low-income households. NOTE: Program ended June 1, 2024 |
| ReConnect Program | USDA | Rural Infrastructure | ~$1.5 Billion+ (Annual Appropriations & BIL) | Grants and loans to internet service providers to expand broadband service in eligible rural areas |
Note: Funding amounts are based on initial allocations from the Bipartisan Infrastructure Law (BIL) and other sources. Program details and funding levels are subject to ongoing implementation and legislative changes.
Community-Level Solutions
While federal funding provides the necessary resources, the work of bridging the digital divide happens on the ground, in local communities. Public libraries and non-profit organizations are on the front lines of this effort, serving as trusted partners that provide the direct support people need to get online and thrive.
Public Libraries as Digital Hubs
Public libraries have long been champions of information access, and in the 21st century, they have become essential hubs for digital inclusion. They are trusted, welcoming institutions in nearly every community, providing a vital lifeline for those on the wrong side of the digital divide.
Access to Technology: Libraries offer free public access to high-speed internet and computer workstations, which is critical for people who lack a connection or device at home. Many libraries, like the Los Angeles Public Library, have also launched programs to lend devices like Chromebooks and mobile Wi-Fi hotspots, extending connectivity beyond the library’s walls.
Digital Skills Training: Libraries are leading providers of digital literacy training. They offer everything from one-on-one tech help for seniors to formal classes on topics like online job searching, cybersecurity, and even understanding artificial intelligence.
Partners in Federal Programs: Libraries are key partners in the national strategy. They are eligible for the FCC’s E-Rate program, which provides discounts on telecommunications services, and can be designated as “eligible community anchor institutions” to receive upgraded connections through the BEAD program.
The Institute of Museum and Library Services provides critical grant funding to support these and many other digital inclusion activities at libraries across the country.
Non-Profits as Digital Navigators
Non-profit organizations play an indispensable and agile role in closing the digital divide, often reaching specific communities and addressing needs that are not met by government or the private sector. Their work is diverse and targeted:
Device Refurbishment and Distribution: Organizations like human-I-T and PCs for People have developed robust systems to collect used technology from businesses and individuals, refurbish it, and distribute low-cost or free computers to families, students, and non-profits in need.
Affordability and Enrollment Assistance: Groups like EveryoneOn specialize in helping low-income families find and enroll in affordable internet plans offered by local providers, navigating the often-complex application processes.
Targeted Skills Training: Many non-profits provide digital skills training tailored to the specific needs of the communities they serve, such as programs for the formerly incarcerated, English language learners, or the homeless population.
Advocacy and Coordination: National organizations like the National Digital Inclusion Alliance serve a vital coordinating role, bringing together hundreds of local practitioners, sharing best practices, and advocating at the federal level for policies and funding to support digital equity work nationwide.
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