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[RRE]Canadian National Access Strategy
``` [Though this draft is dated July, it is still current and comments are still invited. The the Universal Access website at U. of Toronto that it mentions
http://www.fis.utoronto.ca/research/iprp/ua/
is a useful starting point for ua issues and points to efforts under way in other countries to address the challenge. --p]
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From: Andrew Clement
Key Elements of a National Access Strategy: A Public Interest Proposal
DRAFT VERSION 5 - July 16, 1998
PREAMBLE
This proposal is intended to contribute to the formulation of the 'national access strategy' the Canadian Government committed itself to in Building the Information Society (May, 1996). It aims to do this in two ways:
make recommendations to the drafters of the official Government strategy + * outline an alternative strategy that may differ from the official one
This document draws principally upon the recommendations of Chapter 4 of the IHAC Phase II report Preparing Canada for a Digital World (see http://strategis.ic.gc.ca/SSG/ih01642e.html) and the three Universal Access Workshops conducted at the Faculty of Information Studies (http://www.fis.utoronto.ca/research/iprp/ua/). In particular, it is the result of the latest Workshop held Nov. 6-8, 1997, which was assisted financially by Canadian Heritage, Human Resources Development Canada and Industry Canada.
Rather than attempting to be comprehensive, this proposed strategy highlights key areas for immediate action. It thus offers a 'skeleton' of a strategy to be fleshed out in the on going discussion of how Canadians can best develop and be served by the evolving information and communications infrastructure.
Comments are most welcome and should be addressed to: Andrew Clement Faculty of Information Studies University of Toronto 140 St. George Street Toronto M5S 3G6 416-978-3111 clement@fis.utoronto.ca
An HTML version of this document is (soon to be) available in English and French at: http://www.fis.utoronto.ca/research/iprp/ua/
The Universal Access Canada electronic distribution list
INTRODUCTION
Universal access to essential network services is widely regarded as a principal policy objective in the development of an `information society'. All Canadians should have ready and affordable access to a wide range of communications and information services to enable them to participate fully in all aspects of Canadian economic, social, cultural and democratic life.
The high priority the Government of Canada gives to universal access is reflected in the most recent Speech from the Throne, in which it declares its intention to "make the information and knowledge infrastructure accessible to all Canadians by the year 2000, thereby making Canada the most connected nation in the world." (Sept. 23, 1997). The Government has also supported innovative networking projects such as Schoolnet and Community Access Program (CAP). However, these initiatives face difficulties sustaining themselves and are limited in the scope of access they offer.
In recognizing the need for a comprehensive strategy for achieving universal access, the Canadian Government committed the ministers of Industry and Canadian Heritage to: "By 1997, ... develop a national access strategy ... to ensure affordable access by all Canadians to essential communications services. ... Developing this strategy will involve widespread consultations with all interested parties" (Building the Information Society, Moving Canada into the 21st Century, May 1996, p. 24)
There has been significant progress in Canada in recent years in developing information and communication infrastructure initiatives. On the policy front the Information Highway Advisory Council (IHAC) reports, particularly Chapter Four of Preparing Canada for a Digital World, offer a useful starting point for ensuring universal access to essential network services. On the practical side there are already a great number of valuable access initiatives under way. These include the development of community networks and other community-based technology projects as well as government initiatives such SchoolNet, CAP, Urban CAP, LibraryNet, OLT and VolNet. However, there is so far no comprehensive policy framework that would facilitate coordination among the various efforts and fill in the gaps they inevitably leave. This makes urgent the formulation of a national access strategy.
An access strategy needs to articulate the following:
a broad, positive vision of the role that information/communications infrastructure can play in Canadian society + * general principles that can guide actions across a variety of situations during a period of rapid technological, economic, social and cultural change - clear, achievable objectives consistent with this vision an integrated set of initiatives addressing objectives in both the short and long term+ * an action plan that identifies concrete steps that are achievable within specified time periods
This proposed strategy addresses the first four of these items.
ACCESS VISION
In the same way that the airwaves were declared in statute to belong to all the people of Canada, the electronic commons belongs to the Canadian public. Affirming this will acknowledge Canada's tradition of democratic contributions to oversight of spectrum, telecommunications networks and related systems. The goal of affordable, universal access is to enable all Canadians to participate fully in and benefit from all aspects of Canadian economic, social, cultural and democratic life. We include in the concept of `access': public and domestic access points; equipment; essential services and content; competence; and governance, as outlined in the Access Rainbow.
The electronic commons, along with our land, air and water, is a shared resource vital for supporting the varied activities of daily life. To maximize its benefits to society, it needs to be equitably apportioned and managed in the public interest by carefully balancing the contending legitimate demands for its use. The electronic commons thus encompasses more than carriage, capacity, or physical bandwidth which has been set aside for access by the public within a predominantly private and commercial infrastructure. The electronic commons includes the electronic marketplace and the electronic public space. Beyond that the electronic commons is based on the premise that all citizens, in particular those who traditionally have been marginalized within society, should share in the benefits of advances in information technology in terms of a higher quality of life.
The extraordinarily rapid technological and economic changes we now are all experiencing tear at the social fabric, with many groups facing increased marginalization. The speed and character of many of the changes are contributing to polarization along the lines of established inequalities. People who are already disadvantaged by rural or remote location, gender, poverty, language, age, or lack of education have much to contribute but risk being left behind if their access needs are not addressed specifically. Market forces alone cannot be relied upon to achieve the full degree of social cohesion, cultural expressiveness and prosperity for everyone that advanced nations should aspire to. A deliberate public interest strategy is needed to ensure that the emerging information society is based on the enduring values Canadians share: Diversity, Inclusiveness; Participation; Universality; Equity; and Opportunity.
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GUIDING PRINCIPLES FOR ACHIEVING THE VISION:
1. REDRESS EXISTING INEQUITIES WHICH INHIBIT ACCESS
Such inequities are based on geography (e.g. rural, remote and northern areas) as well as on social/economic factors such as gender, income, language, ethnicity, disability,... A major indicator of success of an access strategy is the extent to which it enables those who are presently relatively disadvantaged to improve their life chances.
2. ENCOURAGE THE DEVELOPMENT OF ELECTRONIC PUBLIC SPACE FOR USE BY CIVIL SOCIETY
Electronic public spaces for citizen communication and self-expression are essential in ensuring that access to the information highway enhances democracy in Canada. Providing a means for both the production and distribution of community content, these spaces should be available to all citizens across all networks.
3. GIVE PRIORITY TO COMMUNITY-BASED INITIATIVES
A vital source of social and economic innovation are communities of people working together to meet common needs. Here 'community' refers to more than simple geographic proximity, but also includes communities based on shared interests, issues or identities.
4. TREAT ACCESS TO ELECTRONIC NETWORK SERVICES AS A COMPLEX SOCIAL/TECHNICAL PHENOMENON
'Access' is often treated in a narrow technical (e.g. physical access to the signal medium or 'bandwidth') or commercial (e.g. access to customers and markets) sense. Instead it should be treated as a multi-faceted phenomenon involving the interplay of social and technical aspects. The seven layer 'access rainbow'1 model provides a useful conceptual starting point.
5. PREVENT DECLINE OR DEGRADATION OF EXISTING INFORMATION/COMMUNICATIONS SERVICES
Since the new technologies offer greater capabilities at lower costs, significant benefits can be achieved without anyone being worse off. Those who promote new services which potentially undermine existing widely used services should bear the onus for ensuring that current users will not be disadvantaged.
6. ENABLE THE PUBLIC TO PARTICIPATE FULLY IN DECISION-MAKING CONCERNING DEVELOPMENT OF THE INFORMATION/COMMUNICATIONS INFRASTRUCTURE
The public needs to be well informed of pending changes and their likely consequences, debate the alternatives and decide individually, collectively and democratically on the course of action.
7. USE COMMERCIAL EXPANSION TO FUND BROADENING OF ACCESS
Rather than simply accelerate technical development and its commercial exploitation, revenues from expanding economic activity should be used to promote more balanced and sustainable growth meeting broader social criteria.
8. PROMOTE SUSTAINABILITY THROUGH BROAD PARTICIPATION
To develop a sustainable electronic commons will require the participation of individual citizens, non-profit and for-profit organizations, NGOs, SMEs, governments of all levels. Sustainability will require engagement by these diverse stakeholders in order to reflect the realities of the new economy, the increasing participation of the third sector, the self-employed, and recognition of new regional economic development opportunities.
ACCESS STRATEGY OBJECTIVES
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ACCESS STRATEGY OBJECTIVES 1. TREAT ACCESS AS AN ELEMENT IN BROAD NATIONAL POLICIES FOR SOCIAL INCLUSION AND ECONOMIC DEVELOPMENT OF MARGINALIZED REGIONS AND POPULATIONS
2. ENHANCE THE OPTIONS FOR CANADIANS TO COMMUNICATE WITH EACH OTHER AND GAIN ACCESS TO INFORMATION RELEVANT TO THEIR LIVES
3. STRENGTHEN THE EXISTING WIDELY AVAILABLE MEDIA USING COMPUTER NETWORKING
4. DEVELOP SOCIALLY INNOVATIVE AND WIDELY USEFUL APPLICATIONS OF COMPUTER NETWORKING
5. ACHIEVE BALANCED DEVELOPMENT IN TERMS OF: PUBLIC AND PRIVATE INTERESTS; COMMERCIAL AND NOT FOR PROFIT ENTERPRISES; CITIZEN, CONSUMER, ENTREPRENEUR, CAREGIVER AND WORKER ROLES
6. CREATE HIGH QUALITY JOBS AND NET EMPLOYMENT GROWTH ACROSS ECONOMIC SECTORS
7. IMPROVE OPPORTUNITIES FOR THE CREATION AND EQUITABLE DISTRIBUTION OF WEALTH
8. ESTABLISH THE ELECTRONIC COMMONS AS PROPERLY BELONGING TO AND UNDER THE DEMOCRATIC CONTROL OF THE CANADIAN PUBLIC
9. ENSURE ACCESS FOR PEOPLE WITH DISABILITIES
10. PRESERVE LANGUAGE DUALITY AND MULTI-CULTURAL EXPRESSION
11. FORMULATE STANDARDS FOR UNIVERSAL ACCESS TO PUBLIC INFORMATION
KEY INITIATIVES:
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KEY INITIATIVES: 1. ESTABLISH A NATIONAL TASK FORCE ON UNIVERSAL ACCESS
The Information Highway Advisory Council (IHAC) in its Final Report urged the government to "meet its commitment" to develop a national access strategy (Rec. #4.1) and further recommended that: "The federal government should create a national access advisory committee, reporting to the ministers of Industry and Canadian Heritage, to advise on emerging access requirements and on what services will be essential in a knowledge society." (Sept. 1997, Rec 4.22, p.56)
Given the quickening pace of developments in this area and the delays in the federal Government fulfilling its commitment to formulate a national access strategy, establishing an effective, participatory advisory body is now a matter of urgency.
Mandate
A fixed term Task Force, with a clear mandate to recommend and begin implementing a national access strategy, appears to be the most appropriate mechanism at this point for pursuing the goal of access for all. The National Task Force on Universal Access would conduct research, consult widely, identify access requirements and develop a process of coordinating and connecting the three major stakeholder groups (i.e. industry, government, and public interest/non-profit organizations).
Goals/Objectives of Task Force
The Task Force would be charged with accomplishing the following tasks:
a. Conduct and/or commission research into current and proposed access models. This should include an examination of the successes and failures of various existing networking initiatives (such as CAP, SchoolNet, LibraryNet, OLT, the Health I-way and community networks) as well as the effects of changing network technologies and economics. It should promote experimental applications and the sharing of experiences between projects. The Task Force should investigate the effectiveness and sustainability of such access projects and practices at meeting the needs of citizens and groups, particularly those who are disadvantaged due to remote location, gender, age, language, disability and economic insecurity . In doing so it should take into account revenue and expense streams, management practices, barriers to access (e.g. geographic, physical, technical, affordability, literacy, know-how) and system design issues.
b. Consult with stakeholders, particularly those whose views have not yet been incorporated into the consultative process. A variety of conventional and electronic consultation formats should be used to encourage the active participation of the full spectrum of citizens and community organizations in all regions with their diverse networking needs, experiences and interests.
c. Identify an initial basket of `essential network services', recommend a process for revising what is `essential' over time, and validate a mechanism for monitoring Canadians' access to and participation in the evolving information and communications infrastructure (e.g. Should all Canadians be guaranteed an email address?). `Access' would be treated as a multi-faceted social-technical phenomenon, for instance as exemplified in the `Access Rainbow' with its 7 layers of: carriage facilities, devices, software tools, content/services, service/access provision, literacy/social facilitation and governance1. Working in conjunction with Statistics Canada and other information gathering bodies, the Task Force should develop appropriate indicators of accessibility and identify any access gaps as they have or are projected to emerge and recommend steps to overcome them.
d. Communicate its findings in a timely manner in order to educate, inform and involve the Canadian public along with all the relevant government, industry and non-profit organizations. By conducting its affairs openly while taking advantage of both conventional and emerging digital media, the Task Force will serve as an important example of a network facilitated research and consultative process.
e. Determine the most effective way for Canadian content creators and providers in the old and new media sectors to produce high quality material and to make this content accessible to Canadians and the world.
f. Recommend a structure and ongoing process for research, consultation, and evaluation of universal access. This would include, but not be limited to, assessing the means needed to achieve the government's objective of "making Canada the most connected nation in the world." If further measures were deemed appropriate, the Task Force would formulate the terms of reference of ongoing institutional mechanisms, such as a National Access Council, aimed at ensuring that the information and communications infrastructure remains accessible to all Canadians well beyond the year 2000.
Composition
As recommended in the latest IHAC report, the Task Force should be composed of a "balanced representation from industry and the non-profit sector". The government should consult with a range of social and commercial organizations concerning which groups should be represented in the membership of the Task Force.
Resources
The Task Force should be appropriately funded in order to carry out its varied mandate and in particular, to maintain active public participation. It should be supported by a full time, professional secretariat with strong connections to government, industry and non-profit stakeholders. Given that representatives of public interest organizations often lack the financial and staff resources to perform their own background preparations, funds should be available to resource-weak organizations to facilitate their full participation.
Duration
The Task Force should exist for as long as is necessary to carry out its research and consultation activities leading to the formulation of a durable and effective national access strategy. This is expected to take at least 2 years.
2. IDENTIFY AN INITIAL SET OF 'ESSENTIAL NETWORK SERVICES'
Essential services are those that are necessary for full participation in society and affordable access to them should be guaranteed for everyone. What is considered `essential' changes over time. What is need now is to define the criteria for identifying such services and selecting an initial set as starting point for future refinement.
Essential services are those necessary to meet all Canadians' economic, social, cultural and citizenship needs and to allow full democratic participation. The services should be universal, affordable and available in both official languages. They should evolve over time through iterative public dialogue and they should not create new barriers such as cost, exclusivity, or perpetuation of an inaccessible technical language of discourse. There should be no degradation of existing services.
There needs to be a process or mechanism for defining and reviewing the basket of "essential information highway services" so that the basket evolves in step with changing technologies and user needs. Since it is the community that is the network, not the technology, a society where social relationship is mediated by electronic connectivity must consider needs at two levels; the individual, and the community. There is a community dimension to essential services that the limited focus on the affordability of individual access ignores.
Universal access to basic communication and information services must be seen as an essential human right for maintaining basic democratic values, and as an economically justifiable public good. However, the most benefit to all will not accrue just because the interconnection of all individual citizens is achieved. Needs must also be considered at the level of community based and controlled network services in order to ensure that the communications and information infrastructure (i.e. the "electronic commons") is maintained as a vital public sphere.
It is this added dimension that will continue a well-established tradition of universality in many areas of Canadian public policy. It is the accessibility of the electronic commons that will ameliorate the distinction between information "have's and have- not's," and extend and enhance basic values and democratic practices. Sustaining the electronic commons allows for the broadest range of citizens to participate in the benefits of the communications and information infrastructure.
Here are some community-level issues of evolving technologies and changing user needs that the concept of a basket of essential services does not yet include:- Measures aimed at making 'essential services' available at the level of the community (e.g. via public access points). For example, encourage all levels of government to give priority to community networking models in the transition to electronic delivery of government services.- The further development of collaborative (groupware) software services that protect open and public systems and create an environment for social engagement that is welcoming, and that include feedback capacity which allows communities to turn learning into practices that can be widely shared.- The need for special measures to strengthen the French-language presence and content on the Information Highway, and to facilitate access by Francophones.- The ability to create and access community-generated content, where "community" is expanded to include geographic, linguistic, women's, aboriginal, visible minority and other issue and interest communities.- Ensuring a diversity of choice of tools and means of accessing services as well as a diversity of content, in particular a diversity of Canadian content.- The setting of standards that ensure essential services are designed and operated to protect safety, security and personal privacy.- The targeting of organizations and community access points which serve the "have-nots" to provide computer/information training/literacy as an essential part of their mandate.- Helping communities better anticipate the emerging information highway and universal access policy priorities of the federal, provincial, territorial and municipal governments and to participate in policy development that relates to community and community networking interests.- Raising awareness about and fostering public discussion about how effective use of telecommunications and the new media can help in community development and assist communities in retaining their autonomy and choosing their own directions.
THE BASKET OF ESSENTIAL SERVICES
For the moment, baskets of essential services in both the telecommunications and cable sectors should be established. These would consist of currently widely available services, supplemented by low cost access to electronic mail and other Internet services.
TELECOM SERVICE BASKET (access to a telephone system): Individual line touch tone service Directory listing Access to operator service Access to long distance A local "free calling area" at a flat rate Access to optional features and optional toll-blockingThese conventional services are currently widely available. Maintaining them as universal should be a prerequisite for newer digital services, specifically: Local dial access without additional connection fee to electronic mail and a (fee-charging) Internet Service Provider (ISP) of the customer's choiceCABLE SERVICE BASKET A locally controlled community channel and CPAC-type station for national discussions of public concern Access for content providers Adherence to an access codeCONVERGED (OR INTERNET) SERVICE BASKET Within five years all Canadians should have the option of an email address and affordable Internet access.(See also Andrew Reddick, Criteria for Defining Essential Communications Services, PIAC, Ottawa, March 1998, 52 pp. and the Canadian Library Association (CLA) (Draft?) Policy on Universal Access, Ottawa, 1998)
3. ESTABLISH A 'UNIVERSAL ACCESS FUND'
A variety of support mechanisms will need to be established to ensure that all barriers to effective access are removed. A central component of the support mechanism could be a 'universal access fund'. It is agreed that some of the money should come from a percentage of the revenue collected by "network providers" (a sectoral tax) and some from the general government revenues.
There is a distinction between for profit and non-profit organizations that should be maintained in relationship to the support from a Universal Access Fund regardless of geographic location. Funding from the fund should only be directed toward non-profit organizations. Ownership of the services and infrastructures built with Fund support should remain with public or non-profit organizations.
Some possible uses for the fund include: ensuring basic connectivity by making rates affordable providing training and education sustaining public points of access subsidizing the development and dissemination of 'essential' information services (e.g. health, education, environmental, employment, political, cultural, etc.) experimenting with public interest applications sponsoring research on network applications and their social/economic/cultural/political implications establishing electronic public spaces investing in sustainable community networking creating and distributing Canadian content4. PROMOTE THE DEVELOPMENT OF A COMMUNITY TECHNOLOGY SECTOR AS A SUSTAINABLE SOLUTION TO SPECIFIC ACCESS ISSUES
Micro-enterprises, community networks, revenue generating non-profits, community economic development projects and small consulting firms are popping up all across Canada to address the telecommunications access needs of various communities. These organizations represent an emerging Community Technology Sector and share a common entrepreneurial approach to creating sustainable organizations which serve specific social market niches. Through this vision, these organizations are finding concrete solutions to a number of access and learning issues while at the same time they are helping to carve out livelihoods for the people who are delivering these solutions. With an initial investment in co-ordination and capacity building, the Community Technology Sector could act as a self-sustaining delivery mechanism for a wide variety of access programs.
5. CREATE VIABLE 'ELECTRONIC PUBLIC SPACES'
See "Electronic Public Space Model For Consultation", developed by the Steering Committee for the Electronic Public Space Project: http://www.fis.utoronto.ca/research/iprp/ua/eps.html
6. SUPPORT ON-GOING PUBLIC INTEREST RESEARCH
Important decisions about the changing information/communications infrastructure that have long term social and economic implications are being made without adequate consideration of the likely consequences or alternatives. Systematic technology assessments would help put public discussion and decision making on a more solid foundation. Even basic statistical indicators relevant to the a knowledge-based economy are lacking and need to be developed.
7. ESTABLISH GOVERNMENT INFORMATION AND COMMUNICATION PROCUREMENT PRIORITIES TO PROMOTE SOCIAL OBJECTIVES
The federal, provincial and territorial governments spend considerable sums acquiring a wide range of information and communications goods and services. They should use this purchasing power to encourage suppliers to address accessibility priorities. (see the BC Electronic Highway Accord)
8. DEVELOP NEW LEGISLATION SPECIFICALLY ADDRESSING NEW ELECTRONIC MEDIA
Suggested possibilities: Charter of Information/Communications Rights Canadian Universal Public Information Access Act (modelled on the Canada Health Act) Digital Information Networks Act (that would
link aspects of the Broadcasting Act and the Telecommunications Act, which themselves would remain intact)See accompanying message for Key Initiative #9 (ESTABLISH A "NATIONAL ACCESS COUNCIL FOR A CONNECTED CANADA" ("NACCC"))
and List of (Prospective) Signatories ```
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