Unless governments focus on adoption—not just access—they risk funding infrastructure that goes unused, while rural Americans remain cut off from healthcare, education, and the growing remote job market that today represents nearly a quarter of the U.S. workforce.

Most public discussion around rural broadband has centered on availability. Federal and state programs have rightly prioritized reaching remote areas, building towers, and upgrading last-mile delivery. But access doesn’t guarantee uptake. Across rural America, broadband networks are expanding—yet adoption remains stubbornly low in many regions.

As recently as 2021, nearly one in five rural households did not subscribe to a broadband service. Among those, nearly 25% said they simply weren’t interested. This wasn’t about affordability or technical skill—it was a matter of relevance.

By 2023, broadband adoption had surpassed 80% among younger rural adults, but dropped sharply with age. Just 68% of rural adults over 75 had broadband. Among those aged 65–74, adoption hovered around 71%, compared to over 80% for adults under 50.

This divide is as generational as it is geographic. Most younger residents are already online. What remains are older Americans who haven’t found a reason to change long-standing habits.

Even in communities where broadband is already available, uptake lags for reasons that go beyond infrastructure or cost. Without demand, access doesn’t translate into impact.

These usage patterns reflect long-established habits. A study of broadband deployment in rural Missouri found that most early adopters used their new connection primarily for entertainment. Only half engaged with applications like telehealth or remote work. Even after access is delivered, usage often stays stuck in the past.

The cost of disconnection

The economic implications are real. Counties with high broadband adoption see stronger job growth, higher self-employment, and greater income gains. Nationally, about 22% of the workforce—roughly 32 million Americans—now works remotely at least part of the time, compared to just 6% before the pandemic. While the Covid-era boom in remote or hybrid work has cooled, the share of remote-capable jobs remains an enduring opportunity for rural communities positioned to take advantage of it. But while three-quarters of mid-career rural workers say they’re willing to train for those jobs, most say they haven’t taken any courses to do so — often because they lack the broadband access to even start.

We’ve seen this before. In the mid-20th century, rural electrification and telephone service faced similar hurdles. Infrastructure wasn’t enough. Outreach, financing, and cultural adaptation were required — especially to reach older residents. It took years of effort to shift behavior and build trust.

There are modern parallels. The Affordable Connectivity Program helped low-income households get online—but it didn’t close the gap. Those who benefited most were already inclined to value broadband. The people who remained offline tended to be older, more isolated, and less convinced of its relevance.

Rural clinics have seen this firsthand. Many invested in telehealth platforms—only to find older patients still preferred phone calls. Even basic digital engagement, like using patient portals, lags in many areas. In Ohio and West Virginia, providers report low digital adoption among seniors despite widespread broadband availability.

Local employers face similar challenges. Remote roles go unfilled because applicants lack digital confidence. Older caregivers often struggle to support kids’ online homework. In parts of Appalachia, internet access exists, but without digital literacy, it remains underused. These are behavioral problems. They have nothing to do with infrastructure.

The real last mile

Solving the broadband adoption gap must begin at the local level. National subsidies help build networks, but the harder work happens in places where trust already exists and outreach can take hold — in neighborhoods, schools, libraries and clinics. These places and resources serve as anchors in many rural communities and are well positioned to explain how broadband supports everyday needs. 

Some states have created digital navigator programs that train local leaders to help residents use the internet with confidence. And here’s an idea that’s as simple as it gets: why not offer a year of free service to help people figure out how broadband fits into their daily lives? If relevance is the hurdle, trial access may be the bridge. Both strategies focus on showing value through use, not just access.

But without local engagement, the gap is likely to grow. Young people may leave in search of digital opportunity. Older adults may become more isolated. The economic benefits of broadband depend on broad participation. If large portions of a community remain offline, the return on investment will fall short.The federal government has laid the physical foundation. The next phase requires a social strategy—one that supports education, outreach, and trial access. Residents need more than the option to connect. They need a reason to log on, whether it’s talking to a doctor from home, helping their child with homework, or landing a remote job that pays a city salary from the kitchen table.

The opinions expressed in Fortune.com commentary pieces are solely the views of their authors and do not necessarily reflect the opinions and beliefs of Fortune.