Broadband Deployment: Agencies Should Take Steps to Better Meet Deadline for Processing Permits
Fast Facts
The federal government is investing billions of dollars in expanding broadband access. Some new infrastructure—such as broadband towers—will be situated on federal lands. Federal agencies are required to process applications for such permits within 270 days.
The Bureau of Land Management and the Forest Service process most of these applications. Between 2018-2022, both agencies missed the deadline for some applications and for others couldn't determine if they processed the applications on time. We recommended, among other things, the agencies improve their processes to better track and meet the 270-day deadline.
Construction of a New Communications Tower in the Tonto National Forest, Arizona
Highlights
What GAO Found
The Bureau of Land Management (BLM) and Forest Service process the most applications from telecommunications providers to install communications use equipment or facilities—including for broadband internet—on federal property. However, GAO found that from fiscal years 2018 through 2022, BLM and Forest Service did not have sufficiently reliable—i.e., accurate and complete data—to determine the processing time for 42 percent and 7 percent, respectively, of their communications use applications. These agencies lacked the necessary controls to ensure staff entered key information, such as start and end dates, in their electronic systems. Without accurate, complete data to determine processing times, the agencies cannot track the extent to which they are complying with the statutory requirement that they grant or deny applications within 270 days.
For those communications use applications with sufficient data, BLM and Forest Service reduced their average processing time by 57 percent from fiscal years 2018 through 2022. However, despite this overall improvement, about half of the applications either exceeded the 270-day deadline or did not have sufficiently accurate and complete information to determine if they met the deadline.
Selected Agencies' Performance in Processing Communications Use Permit Applications Within the 270-Day Deadline, Fiscal Years 2018—2022
Officials from BLM and Forest Service said that applicant non-responsiveness and staffing issues contributed to the delays in processing communications use applications. Forest Service has taken some steps to improve processing, including hiring additional staff, but neither agency has fully analyzed or addressed reasons why many applications processing time exceeded the deadline. Moreover, neither agency has a method to alert staff to applications that are at risk of exceeding the 270-day deadline. Until BLM and Forest Service address issues that contribute to delays and establish methods to flag at-risk applications, the agencies may continue to miss the deadline at similar rates, which could cause delays and increased costs in deploying needed broadband infrastructure.
Why GAO Did This Study
Millions of Americans do not have broadband access, which has become essential for online activities like work, school, and health care. With the federal government investing billions of dollars in expanding access in the coming years, new broadband infrastructure will frequently cross federal lands or connect to federal buildings, which requires a federal permit. Legislation requires that executive agencies process applications for communications use permits—including for broadband infrastructure—within 270 days of receipt.
GAO was asked to review issues related to processing federal broadband permits. This report examines the extent to which selected agencies (1) used reliable data to track application processing times for communications use permits; and (2) processed communications use applications by the required deadline.
GAO analyzed federal permitting data; reviewed laws and reports on the application review process; and interviewed agency officials.
Recommendations
GAO is making six recommendations—three to BLM and three to Forest Service—to improve their processing of communications use applications, so that they are better able to meet the 270-day deadline. BLM and the Forest Service agreed with the recommendations.
Recommendations for Executive Action
| Agency Affected | Recommendation | Status |
|---|---|---|
| Bureau of Land Management | The Director of BLM should develop controls to ensure BLM data are sufficiently accurate and complete to track processing times for all communications use applications. (Recommendation 1) |
In the 180-day letter GAO received on July 9, 2024, the Department of Interior agreed with the recommendation and indicated that the Bureau of Land Management would work to develop data standards and devise a report that can accurately track processing times for communications use permit applications by January 31, 2026.
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| Forest Service | The Chief of the Forest Service should develop controls to ensure Forest Service data are sufficiently accurate and complete to track processing times for all communications use applications. (Recommendation 2) |
The Department of Agriculture agreed with the recommendation and indicated that the agency would create a plan to address controls and factors related to the delays in processing communications use permits.
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| Bureau of Land Management | The Director of BLM should continue to analyze the factors that contribute to delays in processing communications use applications as they occur and take actions to address those factors. (Recommendation 3) |
In the 180-day letter GAO received on July 9, 2024, the Department of Interior agreed with this recommendation and indicated that the Bureau of Land Management (BLM) would analyze the factors and processes that contribute to delays in authorizing communications use applications and develop recommendations on how to resolve the issues. Following the identification process, BLM will develop system modifications to address the delays and issue policy. The Department of Interior also indicated that the policy would also include guidance on how to document and handle issues related to proponent delays that affect the processing time. Interior indicated that it planned to complete these steps by January 31, 2026.
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| Forest Service | The Chief of the Forest Service should continue to analyze the factors that contribute to delays in processing communications use applications as they occur, as well as the efficacy of the actions the agency has taken to address those factors, and take additional actions as necessary. (Recommendation 4) |
The Department of Agriculture agreed with the recommendation and indicated that the agency would create a plan to address controls and factors related to the delays in processing communications use permits.
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| Bureau of Land Management | The Director of BLM should establish a method to alert staff to communications use applications at risk of exceeding the 270-day deadline. (Recommendation 5) |
In the 180-day letter GAO received on July 9, 2024, the Department of Interior agreed with the recommendation and indicated that the Bureau of Land Management would develop a standard report within its existing data system and issue appropriate policy to track the processing times for communications use applications. It also indicated that the report would include a method that notifies agency management when applications approach the 270-day deadline. The Department of Interior set a target completion date for these steps of January 31, 2026.
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| Forest Service | The Chief of the Forest Service should establish a method to alert staff to communications use applications at risk of exceeding the 270-day deadline. (Recommendation 6) |
The Department of Agriculture agreed with the recommendation and indicated that the agency would create a plan to address controls and factors related to the delays in processing communications use permits.
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