Lifeline/Low-Income Consumers

The Lifeline National Eligibility Verifier (NV) data from Q4 2021 is now available on the Lifeline Program Data webpage. During the fourth quarter of 2021, the NV received 4,379,229 applications. Of the applications received, 49% were qualified automatically, and 7% were qualified through manual documentation review. Of the applications submitted, 1,927,028 applications were determined to be “Not Qualified” because they did not meet the program criteria and were not resolved by the applicant within 45 days. For more program data, including participation rates and disbursements, visit

In response to the impact of the ongoing COVID-19 pandemic in the United States, the Federal Communications Commission's Wireline Competition Bureau has waived certain Lifeline program rules in ten previous Orders to provide necessary relief for low-income households. The effects of the COVID-19 pandemic continue to be felt by many Americans. The importance of access to affordable communications services for low-income consumers has been underscored by the pandemic and its long-lasting impact.

On March 16, 2022, the vast majority of the new rules for the Affordable Connectivity Program (ACP) – the successor program to the Emergency Broadband Benefit (EBB) Program created by Congress in 2021 to help offset the cost of broadband subscription and broadband-capable devices for qualified low-income consumers – became effective.

The Federal Communications Commission's Office of Inspector General alerted Lifeline, Emergency Broadband Benefit, and Affordable Connectivity Program consumers and providers to improper and abusive enrollment practices that are part of some providers’ online enrollment processes. These providers impermissibly coerce and deceive applicants for Lifeline service into enrolling in unwanted EBB/ACP service or into transferring their EBB/ACP service away from their preferred provider, contrary to the FCC Enforcement Bureau’s earlier Enforcement Advisory and FCC rules.

In July 2021, the Federal Communications Commission's Wireline Competition Bureau released its report on the state of the Lifeline marketplace. The aim of the report was to identify areas for FCC consideration regarding the continued transition of Lifeline from a program that primarily supports voice services to one with a greater focus on supporting broadband Internet access service. Unfortunately, there are three critical questions I noticed the FCC’s Lifeline report did not address:

The purpose of this toolkit is to provide consumer advocates with resources to help educate consumers about the Lifeline program and how to apply. To encourage and assist consumer outreach, USAC has created resources in this toolkit that organizations can use instead of creating outreach from scratch. Consumer advocacy groups, social service agencies, and other organizations that support low-income consumers are welcome to print and distribute any or all of the toolkit’s resources in their communities.

The goal of universal service is to ensure that essential communications services are available and affordable for all. Equity remains a bedrock principle: the notion that society should take steps to ensure that all (or nearly all) citizens can use communications networks. However, whereas it was once fairly easy to identify the goal—widespread adoption of telephone service—today the situation is not as clear. Should, for instance, “universal service” include internet access? If so, at what level of service?

In addition to making unprecedented funding available for broadband, the Infrastructure Investment and Jobs Act also directed the Federal Communications Commission to study the impact of the new government broadband funding on the Universal Service Fund program. As part of this process, the commission asked stakeholders for their comments on this, and many of those comments – particularly those from service provider associations — had a common thread: The USF program will still be needed, but its contribution system needs reform.

Low-income households are spending too much on connectivity. Prior to the pandemic, the Federal Communications Commission’s Lifeline program supported mainly wireless communication services for low-income households; its $9.25/month subsidy resulting in service plans that restricted voice and data usage. To address Americans’ online connectivity needs during the pandemic, Congress directed the FCC to launch the Emergency Broadband Benefit (EBB) program—a historic expansion of financial support for universal service.

While the recent COVID-response programs are welcomed additions to the effort to connect all people, they are only one part of the total ecosystem required to achieve universal service. The Universal Service Fund continues to be an important part of that ecosystem. Specifically, the Lifeline program’s voice and data and voiceonly subsidies for consumers is not replicated elsewhere, and the Emergency Connectivity Fund program does not reach as far or cover as many needs as the E-rate program. One program does not serve all ends.