Policy
How is the rental housing sector working to ensure that reforms reflect how broadband is actually delivered in modern rental communities?
By: Daria Dudzinski, RETTC and Valerie M. Sargent, Broadband Communities
Broadband affordability has become a defining issue for rental housing, touching everything from resident quality of life to housing stability and digital equity.
As policymakers revisit long-standing federal programs designed to support connectivity, the rental housing sector is working to ensure that reforms reflect how broadband is actually delivered in modern rental communities.
One such effort is the reconstitution of the Universal Service Fund Working Group, a development with meaningful implications for renters, housing providers, and technology partners alike.
Understanding the Universal Service Fund
The Universal Service Fund (USF) is a long-standing federal program administered by the Federal Communications Commission (FCC) that supports access to affordable communications services nationwide. Originally focused on telephone service, the USF has evolved to include broadband and internet access through several programs, including Lifeline, which provides monthly assistance to qualifying low-income households and support for connectivity in schools and libraries.
Today, broadband is not a luxury for renters. It is essential infrastructure for employment, education, healthcare, and civic participation. As such, the structure and administration of the USF directly impacts millions of rental housing households.
The return of the USF Working Group
Members of the U.S. Senate and House of Representatives announced the reconstitution of the Universal Service Fund Working Group, which last convened in 2023. The group is charged with examining potential reforms to modernize the USF and ensure its long-term sustainability.
The renewed effort is notable not only for its policy scope, but also for its bipartisan and bicameral composition, bringing together lawmakers from both parties and both chambers of Congress. For housing and broadband stakeholders, this creates an important opportunity to address structural issues that have unintentionally excluded renters from affordability programs.
Why renter eligibility matters
A central concern raised by the rental housing industry relates to renter eligibility for broadband assistance programs such as Lifeline. In many apartment communities, broadband is provided through bulk billing or managed Wi-Fi arrangements, where connectivity is included in rent or charged as a transparent amenity or technology fee disclosed during the leasing process.
These models offer significant benefits. They reduce common consumer barriers that include upfront costs for equipment, credit checks, and security deposits while providing consistent service quality and lower overall costs through scale. As detailed in prior coverage of bulk billing in the rental housing industry, these arrangements are particularly helpful in senior housing, student housing, and workforce communities where affordability and ease of access are critical.
However, under previous programs such as the Affordable Connectivity Program, renters in bulk-billed communities were often deemed ineligible for benefits because they did not receive a separate retail internet bill. As a result, households that arguably needed assistance the most were excluded due to administrative and eligibility structures that did not reflect how broadband is delivered in multifamily housing.
Industry advocacy and the USF comment letter
In response to the reconstitution of the working group, the National Multifamily Housing Council (NMHC), the National Apartment Association (NAA), and the Real Estate Technology & Transformation Center (RETTC) submitted a joint comment letter urging policymakers to address this gap and ensure renter eligibility under any reformed USF framework.
The letter emphasizes that bulk billing and managed Wi-Fi are affordability enablers, not barriers. It highlights how these models reduce friction, lower costs, and expand access to reliable broadband while cautioning that renters in such communities should not be unintentionally excluded from federal assistance programs.
The organizations note that a practical solution could include mechanisms allowing benefits to flow through property owners and be credited to rent or community broadband fees, ensuring equitable access regardless of how service is structured. The letter also underscores the importance of technology-neutral policy that aligns with modern housing and broadband delivery models.
The broader legislative landscape
USF reform does not exist in isolation. Despite the FCC clearing its docket and removing the Notice of Proposed Rulemaking (NPRM) on bulk billing arrangements in 2025, bulk billing arrangements are increasingly coming under scrutiny at the state level, adding complexity to the affordability conversation.
In California, AB 1414 seeks to restrict bulk billing agreements, raising concerns about unintended consequences for affordability and access. Similar legislative activity is emerging elsewhere. Virginia’s HB 1709 would require landlords to offer opt-out provisions, potentially undermining the cost efficiencies of community-wide broadband. In New York, S 7601 has seen renewed movement and would mandate access for municipal broadband providers while limiting landlords’ ability to manage installations and pricing structures.
Taken together, these state-level efforts reflect a broader concern. While intended to promote consumer choice, such measures risk disrupting models that have proven effective at lowering costs and expanding access, particularly when paired with federal affordability programs.
Connecting the dots on affordability
The reconstitution of the USF Working Group presents a timely opportunity to align federal broadband policy with the realities of rental housing. Bulk billing and managed Wi-Fi are widely used, pro-consumer solutions that support affordability, predictability, and digital inclusion. When renters in these communities are excluded from assistance programs, the result is not increased choice, but reduced equity.
As policymakers consider reforms to the USF, it is critical that eligibility rules and administrative structures account for community-wide broadband delivery models. Doing so will help ensure that assistance reaches renters equitably, regardless of whether broadband is billed individually or collectively.
Looking ahead
NMHC, NAA, and RETTC have indicated their readiness to continue working with the Universal Service Fund Working Group by providing data, real-world examples, and industry expertise. Their engagement reflects a broader commitment from the rental
housing sector to support policies that expand broadband access, preserve affordability, and recognize the diversity of housing and connectivity models across the country. RETTC members can access the Bulk Billing Toolkit for local advocacy support.
As federal and state discussions continue, the intersection of USF reform, bulk billing, and renter eligibility will remain a critical policy area to watch with meaningful implications for residents, housing providers, and the future of digital equity in rental housing.
Daria Dudzinski is Advocacy Director for the Real Estate Technology & Transformation Center (RETTC) and can be reached at ddudzinski@rettc.org.
Valerie M. Sargent is a multifamily speaker, trainer and executive consultant, and is the multifamily news correspondent for Broadband Communities. Contact her at http://www.valeriemsargent.com.
