good graph - order of packet priority Because broadband exhibits positive network externalities—the benefits from broadband adoption accrue not just to individual consumers, but to other broadband users and society as a whole—the social returns from investing in faster broadband exceed the private return to companies and consumers.108 As a result, market forces alone will not deliver the societally-optimal level of next-generation broadband, and therefore proactive public policies—including a national broadband strategy—are needed to maximize overall society welfare.