Indigenous Communities Face Broadband Internet Challenges

In 2020, during a global pandemic that revealed a significant digital divide among Americans, the federal government recognized the urgent need for action. Their proposed solution involved a series of promising technology subsidies and substantial funding aimed at enhancing internet access initiatives, particularly focusing on high-speed broadband. This funding included commitments to address the long-standing issue of the missing middle miles of fiber optic connections, which have historically kept many Indigenous regions disconnected from essential online resources.

At that time, this wave of funding represented a groundbreaking investment in strengthening internet infrastructure, aiming to fill a persistent institutional gap. Although a considerable amount of this funding has since been allocated and many government-subsidized programs have concluded, the situation remains dire. Years later, American Indian and Alaska Native households residing on tribal lands continue to face one of the lowest broadband subscription rates in the United States, standing at a mere 71 percent compared to the national average of 90 percent, as highlighted by recent census data.

Access to high-speed internet at home is increasingly recognized as a vital social determinant of health. The White House emphasizes that reliable internet connectivity is fundamental for educational opportunities, economic development, and full engagement in “modern American life.” Without it, many Indigenous communities remain at a disadvantage, struggling to access vital services and opportunities that others take for granted.

Assessing Internet Connectivity Challenges for Indigenous Communities in 2024

The American Indian Policy Institute (AIPI) reveals a troubling statistic: 18 percent of residents on tribal reservations lack any form of internet access, while 33 percent depend solely on their smartphones for connectivity. Additionally, approximately 31 percent of respondents reported facing unreliable internet connections. A July 2023 study conducted by researchers from the University of Illinois at Urbana, University of Victoria, and the Center for Indian Country Development indicates that households in tribal areas have 21 percentage points lower internet access rates compared to their non-tribal counterparts. Even when connected, these households experience download speeds that are roughly 75 percent slower than in nearby non-tribal areas. The study further highlighted that the lowest prices for basic internet services in these regions are 11 percent higher than in other areas, attributing this discrepancy to factors like geography and population density but leaving many questions about access and speed unanswered.

In an era where access to the internet is critical for survival and access to life-saving resources, Indigenous communities find themselves at a significant digital disadvantage. A report from the Center for Retirement Research at Boston College highlights that tribal community members often receive fewer Social Security benefits, despite higher rates of poverty, largely due to the shift of essential resources online and the widening broadband gap within households situated on tribal lands.

The complexity of this issue means that the lack of internet access for Indigenous people cannot be resolved overnight, although potential solutions do exist. While some telecommunications companies, including major phone carriers and internet service providers, have committed to enhancing connectivity for rural and Indigenous communities, they face significant market constraints and the challenges posed by ongoing tribal and federal negotiations. Simultaneously, Indigenous communities and their leaders are actively exploring their own solutions. The implications of aligning with private corporate interests raise critical questions regarding the politics of internet ownership, tribal sovereignty, and the protection of digital privacy.

Understanding Broadband Funding Initiatives and Their Impact by 2025

An apparent solution to bridging the digital divide is to eliminate the financial obstacles preventing rural areas from accessing improved internet services. Back in 2009, the New America Foundation’s Open Technology Institute released a pivotal report focusing on technology utilization and access within Indigenous communities, which garnered renewed attention towards the pressing digital divide. Despite this, the federal government allocated a mere $179.2 million to tribal lands and organizations as part of a substantial $7.2 billion package aimed at expanding rural broadband. This insufficient trend continued, and it took an additional year for the FCC to be tasked with prioritizing tribal broadband as part of the government’s Connecting America initiative.

Real funding solutions to effectively connect these communities did not materialize until four years later when the federal government finally opened a tribal priority for e-rate funding, a critical resource for subsidizing educational technology. In 2020, the establishment of a historic Tribal Priority Window allowed Indigenous areas and broadband projects to secure their own spectrum licenses, authorizing them to utilize frequency bands for telecommunications. However, communities still faced the challenge of sourcing the necessary resources to develop their networks.

There’s a lot of tribal members that are champing at the bit to get hooked up. Technology changes, and you got to be prepared for it.

However, the landscape of broadband funding began to shift shortly afterward. In December 2021, the U.S. government inaugurated the Affordability Connectivity Program, which succeeded the Emergency Broadband Benefit (EBB) that had provided internet subsidies to 9 million Americans during the COVID-19 lockdown. Under this new program, $14.2 billion was designated for additional internet subsidies, including enhanced monthly support for qualifying households situated on tribal lands. This initiative was part of a broader strategy under the Internet for All initiative, a resource pool created by the Biden administration stemming from the 2021 Bipartisan Infrastructure Law.

Another significant outcome of the Internet for All initiative is the groundbreaking Tribal Broadband Connectivity Program, which initially allocated $3 billion to projects aimed at deploying broadband infrastructure and promoting widespread adoption. This marked the first instance of funding being specifically designated for tribal connectivity initiatives. The Infrastructure Improvement and Jobs Act subsequently contributed an extra $2 billion to the program, with a second round of funding worth $980 million becoming available for additional projects in 2023.

That same year, the Biden administration unveiled a $42 billion plan to enhance broadband access nationwide through its BEAD program. The allocated funds were to be distributed among various states, with 19 of them receiving over $1 billion each. Concurrently, a dedicated $1 billion investment was announced to address the long-standing issue of missing broadband connections in rural communities. This initiative aims to ensure that underserved areas receive the necessary infrastructure for robust internet access.

“The Middle Mile program will invest more than $900 million in the infrastructure needed to connect communities, military bases, and tribal lands to the Internet, lower the cost of access, and increase bandwidth,” Secretary of Commerce Gina Raimondo stated. “Much like how the interstate highway system connected every community in America to regional and national systems of highways, this program will help us connect communities across the country to regional and national networks that provide quality, affordable high-speed Internet access.”

Challenges Persist Despite Funding: Unpacking the Slow Progress

With billions of dollars allocated to broadband initiatives, one might wonder why so many Indigenous communities continue to remain disconnected.

“Billions of dollars flew out the window to go build broadband. Most fiber projects take about four years to complete. So we’re not even halfway through that, in most cases. We’re approaching the halfway mark at the end of this year,” explained Matthew Rantanen, director of technology at the Southern California Tribal Chairmen’s Association and director of technology for the Tribal Digital Village, a self-sustained internet initiative. Rantanen has dedicated nearly a quarter-century to advancing Indigenous internet connectivity, collaborating with the FCC and co-chairing the National Congress of American Indians (NCAI) first Tech and Telecom Subcommittee, which was established in 2001.

As Rantanen elaborates, these projects must navigate multiple phases of approval before even breaking ground. For instance, acquiring rights of way and easements on a fiber project typically takes a minimum of 18 to 24 months. Consultations with the forestry department and Bureau of Land Management are necessary, and state reserves and trusts may also have to be factored in. After design and engineering plans are developed and contracted, communities need to seek approval from the federal Bureau of Indian Affairs. Projects funded under the first round of the Tribal Connectivity Program are just beginning their deployment, meaning the benefits of this funding will not materialize until years later, possibly under a different administration.

“There’s a misunderstanding among the general public and politicians. They often ask, ‘Hey, where are the results from this? We allocated all this money, but where are the results?’ Well, you know, Rome wasn’t built in a day. You need to invest long-term in a solution that will begin to yield results in the coming years. But don’t cut off funding before it has a chance to make an impact,” Rantanen cautioned.

The same delay applies to major companies trying to deliver their services. “It could take almost a year before we actually get shovels in the ground, perhaps even longer,” noted Julio Figueroa, AT&T’s California Tribal Liaison. Figueroa’s experience with AT&T spans 26 years, beginning as a call center service representative during the Pacific Bell era (now owned by AT&T). In 2021, he became the first tribal liaison for California and Nevada, a position created to enhance connections between the company and tribal communities.

Simultaneously, as construction projects finally commence, many initiatives from the early Biden administration are evolving or being phased out. The Affordable Connectivity Program, which was recently cut off from additional funding in June, has been replaced by a Federal Communication Commission (FCC) initiative known as Lifeline, which provides low-income, displaced, and disconnected individuals with discounted broadband and telephone services through participating providers. Residents living on tribal land can apply for a special discounted benefit of $34.25 per month; however, such programs can only assist those who are already able to get connected.

If I were them, I would do everything in my power to contract those dollars and obligate those dollars prior to Inauguration Day.

Earlier this year, the FCC, under the Biden administration and Chair Jessica Rosenworcel, redefined broadband speed requirements, increasing the minimum from a mere 25 mbps to 100 mbps. This update aims to enhance the agency’s ability to identify areas with inadequate internet access, particularly in low-income and rural communities, ensuring they achieve parity with regions enjoying speeds above 100 mbps.

The current status of federal funding, under what could be termed the Trump administration 2.0, led by its cost-cutting “Department of Government Efficiency” and a new FCC chair, raises concerns for those reliant on such funding streams. Previous FCC leadership and various Republican politicians have opposed updated broadband speed standards and increased federal funding, leading to heightened anxiety regarding the future of Indigenous connectivity. Advocates for Indigenous communities express apprehension that the funding legacy established by the former administration may persist.

“The primary concern I hear from Indian Country is about the funding they have already received. Will it remain? Will the new administration appoint individuals whose actions could be intentionally disruptive and aimed at reclaiming that funding?” Rantanen shared. “There is no support for tribes in the next administration. Historically, we have seen a track record with Trump that suggests we should be prepared for similar outcomes. If I were an Indigenous leader, I would do everything in my power to secure and obligate those funds before Inauguration Day.”

Pioneering Solutions: How Private Companies Are Addressing the Digital Divide

Amid the uncertain funding landscape described by Rantanen, tribal leaders are increasingly divided on the role of internet service and data privacy in the pursuit of tribal sovereignty. Should they manage this endeavor independently, or should they leverage the expertise of telecommunications companies with greater resources? The latter option is gaining traction as market dynamics shift. Historically, many companies were disinterested in entering areas perceived as unprofitable; however, some telecommunications firms are now recognizing the potential for growth in providing services to rural and tribal communities, often aided by federal funding designed to enhance profitability.

Figueroa, as the tribal liaison at AT&T, serves as a crucial bridge between the aspirations of tribal communities for enhanced internet connectivity and the operational capabilities of a telecommunications giant. He functions as the primary contact for tribal leaders seeking collaboration to connect their communities to essential phone services, broadband, and physical technology such as computers.

Figueroa has successfully established relationships with regional tribal chairpersons associations across California and the California Nations Indian Gaming Association (CNIGA), a key component of his broader objective to cultivate trust with Indigenous leadership and their constituents before construction timelines kick off. “Even if it’s a tribal citizen encountering billing issues, they can approach me for assistance,” Figueroa stated.

Some tribes are keen on becoming their own internet providers on tribal lands, aspiring to exercise their sovereignty and ensure self-sufficiency. Under such arrangements, if there is no middle-mile connection available, AT&T can facilitate access to the internet. “We place a fiber circuit to the edge of the reservation, and from that point, the tribe takes charge. They manage and maintain the service for their community members,” Figueroa elaborated.

Conversely, other communities prefer not to self-manage their internet connections, instead opting to enter partnerships with private companies like AT&T, which retain ownership and operational control over the broadband services provided. For instance, AT&T has partnered with the San Pasqual Band of Mission Indians to implement one of its most significant broadband connection projects, aimed at linking 500 residents to an AT&T Fiber network, promising speeds of up to 5GB, with plans to go live in early 2025. The company is also collaborating with three other groups on similar initiatives, including the Rincon Band of Luiseño Indians in California, which is currently awaiting grant approval from the National Telecommunications and Information Administration.

“Once these tribal nations begin deploying fiber optics, word will spread to other tribal nations,” Figueroa noted. “They will learn about the success stories stemming from these connections, and I believe the government will be prompted to consider another round of funding for the tribal nations eager to adopt improved broadband infrastructure.”

In a conversation with Mashable at the end of 2024, San Pasqual Chairman Stephen Cope articulated that the decision to collaborate with AT&T was motivated by the accessibility and resources the company could offer, with a particular emphasis on quickly connecting and supporting younger residents. “This represents a significant opportunity for San Pasqual,” Cope stated. “Many rural areas and reservations face limitations regarding broadband internet access. Initially, we were uncertain about how to approach the situation.” By conversing with fellow tribal leaders, Cope discovered that several had established partnerships with AT&T, prompting him to reach out to Figueroa. The project commenced in early 2023 and has presented a learning curve for both parties, Cope noted, but it also sets a precedent for similar large-scale projects in Southern California.

Tribes should be defining their digital sovereignty playbook.

Cope emphasized, “Many tribal members are eager to get connected. As technology evolves, we must be ready to adapt. My objective is to ensure that we remain at least equal to, if not ahead of, technological trends, providing what we need for our community.” He described the AT&T partnership as a largely equitable collaboration, stating, “Progress is being made, and I encourage as many leaders as possible to seize this opportunity.”

Empowering Indigenous Communities to Control Their Digital Futures

In contrast, Rantanen is championing the movement for fully Indigenous-owned and controlled internet services.

When Mashable first spoke to Rantanen in 2021, the Tribal Digital Village was managing tech centers and its own community-based network, TDVNet, serving hundreds of households under the Southern California Tribal Chairman’s Association. Today, Rantanen leads over a dozen tribal communities across California, Oregon, Washington, Montana, and even New York in developing their own internet networks through the Tribal Broadband Bootcamp, a program initiated at the onset of the 2021 funding surge, held in Rantanen’s home to empower leaders in application and development. This bootcamp has expanded with support from the Internet Society and is inspired by the Indigenous Connectivity Summit.

Additionally, the Tribal Resource Center serves as a comprehensive hub of validated articles, links, videos, and human resources aimed at assisting tribal nations in adopting broadband technologies. The center employs three liaisons who connect tribes with essential resources, operating under the principle of “sovereign nations, sovereign networks.”

Earlier this year, the American Indian Policy Institute and the National Congress of American Indians established the Center for Tribal Digital Sovereignty. “The center aims to assist tribes in clarifying definitions around all facets of digital sovereignty, extending beyond just data sovereignty,” Rantanen explained. The concept of tribal digital sovereignty encompasses not only the network itself but also the transmission of data, the mechanisms of transport, the legal considerations surrounding the storage of tribal information on external cloud servers, protocols for handing over tribal data to law enforcement, and more. The emergence of AI and the potential use of tribal data for training models raises significant ethical and political challenges.

Rantanen urges Indigenous communities, whether supported by federal resources or major corporate partnerships, to maintain control over their networks whenever feasible. “It could involve deferred control,” he suggested. “For instance, tribes might manage the infrastructure for three years to recover their costs before assuming full control, but it’s crucial to structure agreements ensuring that the infrastructure on their sovereign territory remains theirs.”

Beyond simply connecting these areas to broadband, Rantanen emphasizes, “There are numerous definitions that need to be established regarding tribal sovereign data and tribal sovereign space — domains dictated by the federal government, corporations, and individuals outside our communities. Tribes should be crafting their digital sovereignty playbook and advocating for that understanding with federal, state, and local governments, as well as the various organizations they engage with.”