[Senate Report 119-121]
[From the U.S. Government Publishing Office]
Calendar No. 407
119th Congress } { Report
SENATE
2d Session } { 119-121
_______________________________________________________________________
MODERNIZATION, ACCOUNTABILITY, AND PLANNING FOR BROADBAND FUNDING ACT
__________
R E P O R T
of the
COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
on
S. 2585
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
May 11, 2026.--Ordered to be printed
______
U.S. GOVERNMENT PUBLISHING OFFICE
69-010 WASHINGTON : 2026
SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
one hundred nineteenth congress
second session
TED CRUZ, Texas, Chairman
JOHN THUNE, South Dakota MARIA CANTWELL, Washington
ROGER F. WICKER, Mississippi AMY KLOBUCHAR, Minnesota
DEB FISCHER, Nebraska BRIAN SCHATZ, Hawaii
JERRY MORAN, Kansas EDWARD J. MARKEY, Massachusetts
DAN SULLIVAN, Alaska GARY C. PETERS, Michigan
MARSHA BLACKBURN, Tennessee TAMMY BALDWIN, Wisconsin
TODD YOUNG, Indiana TAMMY DUCKWORTH, Illinois
TED BUDD, North Carolina JACKY ROSEN, Nevada
ERIC SCHMITT, Missouri BEN RAY LUJAN, New Mexico
JOHN CURTIS, Utah JOHN W. HICKENLOOPER, Colorado
BERNIE MORENO, Ohio JOHN FETTERMAN, Pennsylvania
TIM SHEEHY, Montana ANDY KIM, New Jersey
SHELLEY MOORE CAPITO, West Virginia LISA BLUNT ROCHESTER, Delaware
CYNTHIA M. LUMMIS, Wyoming
Brad Grantz, Majority Staff Director
Lila Harper Helms, Democratic Staff Director
Calendar No. 407
119th Congress } { Report
SENATE
2d Session } { 119-121
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MODERNIZATION, ACCOUNTABILITY, AND PLANNING FOR BROADBAND FUNDING ACT
----------------
May 11, 2026.--Ordered to be printed
----------------
Mr. Cruz, from the Committee on Commerce, Science, and Transportation,
submitted the following
R E P O R T
[To accompany S. 2585]
[Including cost estimate of the Congressional Budget Office]
The Committee on Commerce, Science, and Transportation, to
which was referred the bill (S. 2585) to modernize and improve
the Broadband Funding Map in order to promote the most
efficient use of Federal funds for broadband deployment, and
for other purposes, having considered the same, reports
favorably thereon with an amendment (in the nature of a
substitute) and recommends that the bill (as amended) do pass.
PURPOSE OF THE BILL
The purpose of S. 2585 is to direct the Federal
Communications Commission (FCC) to complete a notice of inquiry
(NOI) on ways to improve the Broadband Funding Map and require
the Government Accountability Office (GAO) to study Federal
agencies' role in ensuring the Funding Map's completeness and
accuracy.
BACKGROUND AND NEEDS
In 2021, as part of the Infrastructure Investment and Jobs
Act (IIJA), Congress directed the FCC to establish a national
Broadband Funding Map,\1\ intending for it to be ``the
centralized, authoritative source of information on funding
made available by the Federal Government for broadband
infrastructure deployment in the United States.''\2\ Congress
required the Funding Map to include all broadband deployment
funded by the IIJA,\3\ as well as deployment funding included
in the Coronavirus Aid, Relief, and Economic Security Act,\4\
the Consolidated Appropriations Act, 2021,\5\ the American
Rescue Plan Act,\6\ and any Federal funding authorized or
appropriated after the IIJA's enactment.\7\ Such infrastructure
funding includes the $42.45 billion Broadband Equity, Access,
and Deployment (BEAD) program; the FCC Universal Service Fund's
High Cost Program, as administered by the Universal Service
Administrative Company, which dispenses over $4.5 billion
annually;\8\ and multi-billion-dollar programs administered by
the Department of the Treasury and the Department of
Agriculture.
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\1\Infrastructure Investment and Jobs Act, Public Law 117 0958, 135
Stat. 1206 0907, division F, title I, section 60105 (2021), codified at
47 U.S.C. 1704.
\2\Ibid. at section 60105(c)(1).
\3\Ibid. at section 60105(d)(1)(A).
\4\Ibid. at section 60105(d)(1)(B).
\5\Ibid. at section 60105(d)(1)(C).
\6\Ibid. at section 60105(d)(1)(D).
\7\Ibid. at section 60105(d)(1)(E).
\8\In 2024, the Universal Service Administrative Company disbursed
nearly $8.6 billion in funds through Universal Service Fund programs,
including over $4.5 billion for the High-Cost program. Universal
Service Administrative Co., 2024 Annual Report, https://www.usac.org/
wp-content/uploads/about/documents/annual-reports/2024/2024 _ USAC _
Annual _ Report.pdf.
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In short, the Funding Map publicly identifies geographic
areas that currently receive Federal funds for high speed
internet infrastructure deployment. It is intended to
complement other FCC mapping efforts, such as the FCC's
National Broadband Map, powered by the Broadband Data
Collection, which identifies locations in the United States
that have broadband service.\9\
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\9\``FCC National Broadband Map,'' Federal Communications
Commission, https://broadbandmap.fcc.gov/home; ``Broadband Data
Collection,'' Federal Communications Commission, https://www.fcc.gov/
BroadbandData.
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As detailed in a 2023 GAO report, ``Federal broadband
efforts are fragmented and overlapping, with more than 133
funding programs administered by 15 agencies. Among these
programs, 25 have broadband as their main purpose, and 13 of
those programs overlap because they can each be used for the
purpose of broadband deployment.''\10\ These efforts include
Federal funding for the operational expenses of broadband
providers, direct subscriber subsidies, and Federal funding of
broadband infrastructure deployment.
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\10\Government Accountability Office, Broadband: National Strategy
Needed to Coordinate Fragmented, Overlapping Federal Programs, GAO 0923
09106818 at pp. 0 091, May 10, 2023, https://www.gao.gov/products/gao-
23-106818.
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In 2025, GAO found that harmonizing procedures on defining
and providing data could strengthen the timeliness and accuracy
of the Funding Map's data, thereby empowering agencies ``to
effectively and efficiently select deployment projects to
fund.''\11\ To that end, the Map for Broadband Funding Act
would direct the FCC to complete an NOI on ways to improve the
Funding Map and require the GAO to study agencies' role in
ensuring its completeness and accuracy.
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\11\Government Accountability Office, Broadband Programs: Agencies
Need to Further Improve Their Data Quality and Coordination Efforts,
GAO 25 09107207 at pp. 24 0926, April 28, 2025, https://www.gao.gov/
products/gao-25-107207.
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SUMMARY OF PROVISIONS
S. 2585 would do the following:
Require the FCC, in coordination with NTIA, to
collect data submitted for the Broadband Funding Map by
relevant Federal agencies on a reasonable and timely
basis to prevent inefficient use or fragmentation of
Federal funding for broadband infrastructure.
Require the FCC, within 270 days of enactment, to
initiate an NOI concerning the optimum functionality
and transparency of the Funding Map, including the
quality and completeness of the data, and complete the
NOI within 120 days of its initiation.
Permit any FCC Commissioner to request a Commission
vote prior to the initiation of the NOI, which would
require a majority of FCC Commissioners to vote to
approve the NOI before it proceeds.
Require the Comptroller General, within 180 days of
the enactment, to conduct a GAO study on the roles,
responsibilities, and progress of Federal agencies in
maintaining and ensuring the completeness and continued
relevance of the Funding Map and submit a report on
this study to the Committee on Commerce, Science, and
Transportation of the Senate and the Committee on
Energy and Commerce of the House of Representatives.
LEGISLATIVE HISTORY
S. 2585 was introduced on July 31, 2025, by Senator Fischer
(for herself and Senator Cortez Masto) and was referred to the
Committee on Commerce, Science, and Transportation of the
Senate. On February 12, 2026, the Committee met in open
Executive Session and, by voice vote, ordered S. 2585 reported
favorably with an amendment (in the nature of a substitute).
ESTIMATED COSTS
In accordance with paragraph 11(a) of rule XXVI of the
Standing Rules of the Senate and section 403 of the
Congressional Budget Act of 1974, the Committee provides the
following cost estimate, prepared by the Congressional Budget
Office:
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
S. 2585 would require the Federal Communications Commission
(FCC), in coordination with the National Telecommunications and
Information Administration, to collect data from other relevant
federal agencies for inclusion in its Broadband Funding Map.
The bill also would require the FCC to solicit public comment
on the functionality and transparency of the map and evaluate
the information it receives. Finally, S. 2585 would require the
Government Accountability Office (GAO) to study the
completeness and relevance of the map.
Section 60105 of the Infrastructure Investment and Jobs Act
required the FCC to establish and maintain a map of broadband
funding to provide an overview of the geographic footprint of
federal funding for broadband deployment. The FCC frequently
updates that map using information from other federal agencies.
On that basis, and using the cost of other solicitations of
public comment, CBO estimates that the cost for the FCC to
implement S. 2585 would be insignificant.
Because the FCC is authorized to collect fees each year
sufficient to offset the appropriated costs of its regulatory
activities, CBO estimates that the net cost to the FCC would be
negligible, assuming appropriation actions consistent with that
authority.
In addition, based on the costs of similar reports, CBO
estimates that the cost to GAO to complete the required study
would be less than $500,000. Any related spending would be
subject to the availability of appropriated funds.
If the FCC increases annual fees to offset the costs of
implementing provisions in the bill, S. 2585 would increase the
cost of an existing private-sector mandate as defined in the
Unfunded Mandates Reform Act (UMRA) on private-sector entities
required to pay those fees. CBO estimates that the incremental
cost of the mandate would be small and would fall well below
the annual threshold established for private-sector mandates
($214 million in 2026, adjusted annually for inflation).
S. 2585 contains no intergovernmental mandates as defined
in UMRA.
The CBO staff contacts for this estimate are David Hughes
(for federal costs) and Rachel Austin (for mandates). The
estimate was reviewed by H. Samuel Papenfuss, Deputy Director
of Budget Analysis.
Phillip L. Swagel,
Director, Congressional Budget Office.
REGULATORY IMPACT STATEMENT
In accordance with paragraph 11(b) of rule XXVI of the
Standing Rules of the Senate, the Committee provides the
following evaluation of the regulatory impact of the
legislation, as reported:
Number of Persons Covered
S. 2585 would direct the FCC and GAO to gather and report
data to improve the accuracy and completeness of the Broadband
Funding Map in order to prevent duplicative, fragmented, and
inefficient Federal broadband spending. The FCC's NOI would
gather data on the optimum functionality and transparency of
the Funding Map, including the quality and completeness of the
data. The GAO study and report would address the roles,
responsibilities, and progress of Federal agencies in
maintaining and ensuring the completeness and continued
relevance of the Funding Map. Neither individuals nor
businesses, including those currently receiving Federal
broadband funding, would be required to either submit filings
to the FCC in response to the NOI required by this legislation
or to correspond with GAO as it constructs its study and
report.
Economic Impact
S. 2585 is not expected to have an adverse impact on the
Nation's economy. The legislation would direct the FCC and GAO
to gather data to improve the accuracy and completeness of the
Broadband Funding Map in order to prevent duplicative,
fragmented, and inefficient Federal broadband spending.
Privacy
S. 2585 would not impact the personal privacy of
individuals.
Paperwork
The Committee does not anticipate a major increase in
paperwork burdens for private individuals or businesses
resulting from the passage of this legislation. S. 2585 would
require the FCC to initiate an NOI and GAO to conduct a study
and submit a report to Congress concerning the accuracy and
completeness of the current FCC Broadband Funding Map.
Individuals and businesses, including those currently receiving
Federal broadband funding, may voluntarily wish to submit
filings to the FCC in response to the NOI required by this
legislation, but such filings would not be required. Likewise,
the GAO study and report required by this legislation does not
require any individual or business to correspond with GAO.
CONGRESSIONALLY DIRECTED SPENDING
In compliance with paragraph 4(b) of rule XLIV of the
Standing Rules of the Senate, the Committee provides that no
provisions contained in the bill, as reported, meet the
definition of congressionally directed spending items under the
rule.
SECTION-BY-SECTION ANALYSIS
Section 1. Short title.
This section would provide that the bill may be cited as
the ``Modernization, Accountability, and Planning for Broadband
Funding Act'' or the ``MAP for Broadband Funding Act''.
Section 2. Definitions.
This section would define the terms ``appropriate
congressional committees'', ``Broadband Funding Map'',
``broadband infrastructure'', ``Commission'', and ``NTIA''.
Section 3. Broadband Funding Map modernization.
This section would direct the FCC, in coordination with
NTIA, to collect data submitted for the Broadband Funding Map
by relevant Federal agencies on a reasonable and timely basis
to prevent inefficient use or fragmentation of Federal funding
for broadband infrastructure. This section would also require
the FCC, within 270 days of enactment, to initiate an NOI
concerning the optimum functionality and transparency of the
Funding Map, including the quality and completeness of the data
populated to the Funding Map. In the NOI, the FCC would be
required to consider the following:
adequacy, timeliness, and scope of data that Federal
agencies submit to the Funding Map;
public usability of existing Funding Map data;
whether certain data categories should be added to
or eliminated from the Funding Map;
whether the scope of programmatic data reported to
the Funding Map should be expanded;
whether third-party mapping data should be
incorporated to improve the functionality and
transparency of the Broadband Funding Map; and
whether the FCC should augment or streamline the
Funding Map to better coexist with existing FCC mapping
tools.
The FCC would be required to complete this NOI within 120 days
of its initiation. Any FCC Commissioner would be able to
request a vote at the Commission level prior to the initiation
of the NOI, which would require a majority of FCC Commissioners
to vote to approve the NOI before it proceeds.
Section 4. GAO study and report.
This section would require the Comptroller General, within
180 days of enactment, to conduct a study on the roles,
responsibilities, and progress of Federal agencies in
maintaining and ensuring the completeness and continued
relevance of the Funding Map and submit a report on this study
to the Committee on Commerce, Science, and Transportation of
the Senate and the Committee on Energy and Commerce of the
House of Representatives.
In conducting this study, GAO would be required to review
the following:
the extent to which Federal agencies are submitting
data to the Funding Map in compliance with statutory
requirements, including identifying successful best
practices and challenges resulting in incomplete data
submissions;
the FCC's proficiency in managing the Funding Map
and related interagency collaboration;
whether the FCC has sufficient authority to collect
the data necessary to populate the Funding Map;
NTIA's data collection efforts;
the effectiveness of Federal interagency
coordination among broadband-funding agencies;
how enhanced use of the Funding Map across Federal
agencies could improve taxpayer savings; and
the feasibility and potential benefits of
incorporating third-party mapping data into the Funding
Map.
CHANGES IN EXISTING LAW
In compliance with paragraph 12 of rule XXVI of the
Standing Rules of the Senate, the Committee states that the
bill as reported would make no change to existing law.
[all]