MUNI THE BOSS

I nformation ...
Global Trends that will Impact Universal Access
to Information Resources

Submitted to UNESCO
July 15th, 2000


By
Christine Maxwell, Editor
On behalf of:
The Internet Society
http://www.isoc.org/Acknowledgements
The following Internet Society members contributed significantly to this paper, and very kindly gave permission for extensive sections of their own works to be used in this paper, along with additional original commentary. Their names appear in alphabetical order below:
(Biographical information on these special contributors is included in the Appendix 8.2 at the back of this paper. A full list of all the contributors can be located on the Internet Societyís web site at: http://www.isoc.org/isoc/unesco-paper/contributors.shtml
Burks, Michael for in-depth contributions to Section 2 on Disabilities
Cerf, Vinton for in-depth contributions to Section 3 on Telcomms. Deployment.
Clavet, Alain for contributions to the discourse on multi-lingualism
Delgado, Rosa for emerging economies and ëDigital Divideí information
Daffara, Carlo for contributions to the Section discussing Open source software.
Kurisaki, Yoshiko specifically for in-depth contributions to the Section talking about Networks and Services and ëCurrent Digital Divideí and for provision of Table I: "Examples of Countries Known to have Barriers to Entry for Internet Access".
Maxwell, Christine for contributions to Sections 1, 2 and 5
Pisanty, Alejandro for in-depth contributions to Information Technology Policy issues and Section 3 on Telcomms Development.
Rao, Madanmohan, for Wireless Radio, emerging economies and "Digital Divide" information.
Venturelli, Shalini, for in-depth contributions on Information Infrastructure needs of developing countries.
Sanroma, Manuel for contributions on Access to networks and services and community networking.
Wadell, Cynthia for in-depth contributions to Section 2 on Disabilities and significant contributions from her papers listed in the Reference Section of this paper.
Thanks are also due to Internet Society Trustee Manel Sanromá , Scott Bradner, VP Standards and David Maher VP Policy for their editorial contributions. Internet Society members Arana Greenberg, Sheryl Hiatt and Jonathan Robin are to be thanked for their special editorial support in the preparation of this paper. The Internet Societal Task Force and other individual Internet Society members provided additional commentary and reference articles and input in the development of this discussion that helped to guide key areas o f focus of this report. (see http://www.isoc.org/isoc/unesco-paper/contributors.shtml)
CHRISTINE MAXWELL, Editor
Vice Chairman Internet Society, July 15, 2000.
1.0 Introduction
The following discussion attempts to list key issues related to extending universal access to ensure that information resources are available to all at affordable prices (with special emphasis on emerging economies). Each of the considerations below is discussed in context of the main challenges and suggested solutions to meet these challenges.
Section 2 of this discussion paper covers the importance to the goal of universal access, of the true relationship between the importance of implementing accessible design solutions and compatibility with low bandwidth. Section 3 examines the critical issues of telecommunications deployment and elucidates the complex and critical issues around peering and the next generation Internet. Section 4 looks at the importance of e-commerce to emerging economies. Section 5 provides further recommendations with a comment on legal barriers. Section 6 provides the Final Conclusions.
It is the Internet Societyís hope that this discussion paper will serve as a precursor to actions undertaken by UNESCO for developing policies and formulating basic principles for a broad, modern concept of universal access for the twenty first century.
2.0 Main Challenges to Universal Internet Access
Today, if we examine the apex of human development, we can bear witness to the birth of new ëtribesí. For the first time, skills, wealth and culture are forming the basis of preferences rather than the age - old kinship of blood ties and physical location.
We are indeed facing massive conflicts between blood ties and knowledge ties, where the new structures of knowing are far outpacing the ability of traditional governments, institutions and all kinds of other entities to process and respond to information.
Geographical boundaries are fast becoming barriers of no consequence. This is bringing about mass dislocation in governmental institutions around the world.
The transformation in the structure of global communications systems has redefined the basis of participation in development and modernity by creating new levels of entry into the global economy. Today, participation in the information economy has become the revised standard and fundamental precondition for economic development. The growth of the information sector in lesser industrialized countries is now the latest barrier in access to capital and development resources.
At the same time, universal Internet access holds great promise for:
Significantly increasing the speed of achieving universal based on the achievement of universal access to Information, Communication Technologies (ICTS) and appropriate content and applications
Decreasing poverty around the world ‚ through the linkage of access to ICTs.
Opening up global markets through Internet commerce to any individual or entity that can gain access to the Internet and to online communications tools.
In the opening up and enabling of transparency in governance.
Increasing the spread of democratization through increasing civic discourse and citizen involvement in government.
The Internet, unlike other media, represents a new collective mental space. It is critical to ensure that all societies gain the opportunity to merge their existing worlds into, and become a part of an expanded world ‚ that includes the new virtual world. Leaving the creation of this newly expanded world of ours to technocrats, engineers and the sway of multi-nationals is a recipe for a world that we would not want to bequeath to future generations.
With the advent of the Internet, nations, regions, cities, villages, and individuals are able to work and to come together within global, networked communities based on shared interests at a speed and inclusiveness never before possible.
UNESCO can play a vital communications role in helping to educate and galvanize governments and the public at large to understand how fundamentally important it is to put into place a free public communications framework. One that is non discriminatory to all voices, commercial and non-commercial; and that ensures that adequate space on the network, regardless of technology, is reserved for undistorted ‚ substantive forms of information, dialogue and debate. Universal access to the Internet will then be able to happen and to flourish through one critical mediating institution: namely, the institutional infrastructure of public space.
Universal Access cannot materialize as a reality unless and until specific key challenges are fully addressed:
2.1 The Right to Access Information
It is important to understand that lowering the barriers to Internet access is helpful to everyone in the context of gaining easier access to information. An argument can be made that every individual should have the right to access information - regardless of disability, economic situation, or geographic location. Without this realization there will be no consistent progress in the effort to provide global access. Global access itself is not enough. Cost of access has to come down to where not just the elite in emerging nations can afford to get on the Internet. The issues of inaccessible design should be addressed. Once the access is available then the content should be usable by all. Access to the Internet without the ability to use the content is a hollow shell. Access to the Internet without the ability to use the features or participate in e-commerce is nothing more than lip service to the idea of universal access.
The benefits of addressing the problems of inaccessible design extend to include all people, including the community of people with disabilities. (About 10% of the worldís population are disabled, with a disproportionate amount falling into the poor population in emerging economies). It is imperative that there be some way to insure that people with disabilities in the developing world are not separated from everyone else. There must not be even more of a Digital Divide opened between people with disabilities and the efforts to provide Internet access to all in emerging economies. Once it is understood that accessible design is always in synch with low technology solutions, then big steps can be made to help everyone gain access to the information society.
2.2 Enforcing Accessible Design Solutions
Universal Design simply stated means that as many people as possible can use Whatever process, object, or electronic or information technology that is being made available. By definition this includes low bandwidth areas or the principles of Universal Design are not being adhered to.
The Web Accessibility Initiative or WAI of the W3c at http://www.w3.org/WAI seeks to make web pages available and usable by the largest audience possible.
This is the goal, not just for people with disabilities but for people everywhere.
Below are some interesting examples:
2.3 Examples of Accessibility being Compatible with Low Bandwidth.
Users want to access any information they choose to look at as fast and with as little deductive effort as possible. One of the basic underpinnings of easily accessible web pages is good page and site design. This involves such things as, clear navigation schemes consistent placement of items on a page, and not using "leading edge" technology just for the sake of using it. Nowhere on sites that recommend good design, (such as Jakob Nielson's site, www.useit.com) or anywhere on the W3C site (http://www.w3c.org/) can one find recommendations that in and of themselves require high bandwidth to implement. In fact on the http://www.useit.com/ (Usable Information Technology web site of Nielson) it clearly states that a web designer has from 10 to 30 seconds to grab and hold the attention of the visitor. Sites that do not load quickly as is suggested clearly do not fit into this category.
One of the easiest things that can be done to make a site accessible is the use of ALT (alternative text) attributes on image tags ‚ (See: http://htmlhelp.com/feature/alt-table.html for a more detailed explanation of these tags and their use.)
When these attribute tags describe an image or tell its function, they can also provide information about the destination of a link. This effort requires no extra bandwidth. In fact in areas where bandwidth is low, the use of ALT attributes on image tags, allows a user who has turned off the images in their browser, or is using at text browser such as Lynx, to know what the image is, or what it does as well as the destination of a linked image.
To be accessible in a low bandwidth area, a site that offers a download of video of a speech should also offer a text alternative to the speech such as a transcript for example. In a low bandwidth area, this would be the media of choice.
The fact is that many people who attend tutorials on accessibility do so in part or in whole because they wish to use accessibility techniques to increase the usability of their sites in low bandwidth areas. According to Accessibility experts, in 99% of all cases, implementing accessibility techniques do not require adding substantial bandwidth to the needs of a web site ‚ on the contrary, application of the kinds of accessibility techniques alluded to here, result in the reduction of bandwidth necessary to load web pages. People with slow modems and low bandwidth can access the electronic content of the Web even if they do not have the state of the art computer equipment. Likewise, people with personal digital assistants and cell phones can access the content of web sites incorporating accessible web design features.
Inaccessible design of information technology is a serious issue when it means that people cannot access many content sites on the Internet. It also means that people are encountering substantial software incompatibility with adaptive devices and other means used to gain access to the Internet. Today, there are now standards that should be enacted so as to ensure maximum Internet access for everyone.
Awareness of issues and solutions is critical to providing access to the Internet for people. A critical component of raising this awareness is a central entity (which could so well be UNESCO) that can provide outreach, education, standards support and a central repository for resources and solutions to access problems for those who need such information. This resource could also serve as a repository for global legal and policy briefs that can serve as models for laws and policies in all regions of the world where they are needed.
2.4 Issues
The main challenges related to extending universal access to information resources at a reasonable price are:
General affordable worldwide Access
Accessible Hardware and Software
Accessible Web and Internet Features
Availability of Accessible Internet Access devices
Availability of Accessible Web Sites
Accessibility of multiple languages
Poor program design of software for users
Currently none of these items exist in enough quantity to provide the needed level of access. This access should be provided for all and the solutions specific to people with disabilities need to fit within the larger solution. Solving these issues is actually critical to providing global affordable access.
One little addressed fact is the level of computer literacy needed for performance of even common rudimentary tasks in day to day living. Users should not (as Alan Cooper states in his seminal work, "The Inmates are running the Asylum" have to acquire computer literacy to use computers for common rudimentary tasks in every day life.
2.5 Solutions
The solutions listed below cannot be separated out from the overall solutions proposed for achieving Universal Access.
Improve Infrastructure on a global basis using an affordable, maintainable structure
Explore building accessible electronic and information technology features for services offered by Internet Service Providers
Recognition of the right to access information regardless of disability, economic situation or geographic location.
Raise Awareness of Accessibility Issues throughout the world with outreach and education.
Encourage organizations working for the validation, management, and distribution of speech, text, and terminology resources and tools, and to promote their use within the global telematics RTD (research and technological development) community.
Today, there are areas that show some hope, for example, the European Union has accepted Web Accessibility Initiative (WAI) standards. The US on both a Federal and Local level is accepting standards to improve web and electronic and information technology accessibility for people with disabilities. Australia and the United Kingdom are instituting web accessibility regulations and Portugal has done so as well. Singapore has made huge efforts to include Internet access to all of its citizens, including those that are disabled.
These areas are models for the rest of the world. UNESCO could look to support these efforts and collect and disseminate the solutions as well as contributing to the solutions by outreach, and raising awareness of the accessibility situation. Having coherent "Best Practices" for this area that can be used by everyone. Further encouraging all players in the Internet arena to produce accessible solutions, be they makers of access devices, software or assistive technology, should be a goal of UNESCO. There should also be a Center devoted to collecting and disseminating accessibility solutions.
To accomplish global access and access to all content, outreach and educational programs should be initiated and sustained to raise the awareness of accessibility issues. The efforts of organizations like the W3C and the Internet Societyís Internet Societal Task Force Accessibility working group are to be encouraged in this regard.
What type of global backbone and access system can support anytime anywhere usage?
Whatever system is developed it should be standards based in so far as it should be easy to use and economically viable to access this system with low cost devices and devices that support Assistive Technology. The system should be based on the principles of Universal Design since it must as much as possible be usable by everyone not just a privileged few. (It should be noted that the advent of web on wireless phones might actually help to push the kinds of important design principles being talked about here.)
2.5.1 Infrastructure
The first area that should be addressed is the Infrastructure issue. This may take many forms, such as wireless as in Tonga, or fiber, or satellite, or some other as yet not developed architecture. Whatever form it takes, it should be usable by a large number of affordable and access devices and devices using assistive technology. Much of this technology is being developed now. As it is developed in the areas with higher economic standards, those areas should be encouraged to use that technology to help develop infrastructure solutions that are economically feasible for other areas of the world. The pay back for this of course is long term. As those areas develop access to the Internet and it services they will become more economically viable markets.
This infrastructure is a pre-requisite for all other aspects of access to the Internet for anyone. A required feature of the infrastructure will be access by a variety of standard economically affordable devices. (An interesting example of such an economic device would be closed captioning of television programs making it possible to index recorded video by captioning.) That way, everyone benefits from the ability to search the associated captions for words of interest and then be in a position to play the associated video.
2.5.2 Access Devices
These devices should be designed using the principles of Universal Design. Access devices should be designed to operate in a variety of modes such as audio, or video. This will benefit all those who operate in an environment that requires one mode or another. Ideally these devices will be multi-modal. These devices should also be usable with various types of assistive technology. Lastly they must also be affordable. Access technology that cannot be used by most of the world because of cost, is not a feasible solution. Public access centers, where people can use public facilities to access the Internet and its features, are one important solution. Properly developed and distributed, multi modal access devices will allow areas, which are mostly permeated by low technology, to access the information, which is stored on a high technology Internet.
2.6 Development of Content Information Networks
The dominant content of information networks in emerging economies should be comprised of educational applications and public information applications, rather than commercial applications that stimulate ever ‚ greater demand for environmentally unsustainable consumer products. Community access for public services in the areas of health education and government services by means of public access points in the information infrastructure will help a great deal in the distribution of access to priority content of this kind.
2.6.1 Presentation of Content
Using the principles of Universal design and standards such as those developed by the W3c Web Accessibility Initiative (http://www.w3.org/?WAI/), will allow the largest number of people to successfully access content on the Web This will allow access to content from almost any location and with almost any device. This is particularly important not just without advanced infrastructure to support high speed access, but it is also critical to accessing information using alternate access devices such as cell phones and PDA's (Personal Digital Assistants). In the United States this is becoming a preferred way to access information for large portions of the population. In many parts of the world it may well be that wireless technology will become the most economical way to access the web. In some cases it may be the only way to access the Internet.
This adherence to the principles of universal design will also have to include non-verbal ways to communicate information as well as ways to present information in languages other than English. This is vital to the idea that the Internet is for everyone. Methods to easily translate or present content in languages other than English should be developed. Translations that are verbal as well as written should be provided. In addition non-verbal methods of conveying information must also be developed for those who cannot read, or who have other learning problems.
For example weather reports can be vital information to farmers who may not necessarily be able to read. However they still have a right to access the information to receive information vital to their existence. Ways need to be found to present this information in low bandwidth areas, places where access maybe via alternate devices, or to an audience that may not be able to read. These types of presentations are crucial to the successful implementation of an Internet that is accessible to all people.
2.6.2 Encouraging Placement of Content on the Internet in Native Languages ‚ other than English.
Many governments are aware that the lack of content on the Internet in their native languages, is a serious impediment to Internet use in their countries. Even in the developed world, the preponderance of English on line poses a serious obstacle to universal access. For example the Government of Canada has pointed out as recently as 1999, that 31.2 % of Quebec Net surfers speak only French, and that this is an obstacle to use of the Internet. (See the full report at http://www.ocol-clo.gc.ca/gov_int.htm). Governments should be encouraged to work on an integrated strategy with regard to the presence and quality of their native language/s content and services on the Internet. The European Unionís MLIS (Multilingual Information Society Program) offers interesting insight into European efforts to promote linguistic diversity and stimulate the provision of multilingual services etc.
(See: report on "Multilingualism on the Web" at http://www.ceveil.qc.ca/multieng2.htm .
The question of placement of a critical mass of content in languages other than English is a fundamental issue to address whenever the issue of universal Internet access is in question.
2.63 The Storage of Content
The ideal way to store content is as a separate entity and then tailor the presentation to the audience. This could be translation to another language, graphical or verbal presentation for those who cannot read, or must have an audio presentation of the content, or almost any other presentation imaginable. This of course is an expensive way to store and present content and will not be economically feasible to most people who wish to present information on the Internet.
The next best thing and far more practical are to examine ways of building this capability into the devices that access the Internet. While this does place the burden of providing this capability on the producer of the device, it also spreads the cost out over a much larger area. It also allows the user some flexibility in choosing the type of device that best suit their particular situation.
If content is produced in a way that adheres to such standards as are being developed by the W3C Web Accessibility Initiative (http://www.w3.org/WAI), then there will be a much better chance that it will be usable by a large and diverse audience regardless of disability.
The use of these standards needs to be encouraged. As a first step, UNESCO could put together a review series online of "Best Practices" and keep it updated. This could be based on current work being done and on the current standards. Just as This would be similar to what Bangladesh has shown with their micro-credit and village cell phones, - both of these efforts show imaginative approaches, which can easily bring the poor into the e-commerce Internet loop.
As a second step UNESCO could sponsor an international center to gather public domain solutions to various accessibility problems involving Electronic and Information Technology. Just as the European Union recently accepted the Web Accessibility Initiative (WAI) for web pages, the UNESCO Accessibility Center could serve as a global central clearinghouse to help promote and disseminate accessible electronic technology of all kinds. This center could also run outreach programs teaching accessibility techniques and workshops on legal and policy issues dealing with accessibility.
2.64 Creation of Repositories of Basic Information
UNESCO should seek to create repositories of basic information that can help improve and assist nations in their development. This information should be stored and presented in ways that are usable by all people including those who cannot read. A good start would be for the UNESCO to also encourage the United Nations to make sure they also set an outstanding example. This would mean, ensuring that all of their web site efforts strictly adhere to guidelines for accessibility such as the W3C/WAI Web Content Authoring Guidelines to be found at http://www.w3.org/WAI. UNESCO could design these repositories so they are usable in low bandwidth areas as well. From the point of view of language in general, it will be important over time for UNESCO to put into place on its own web sites, access to text to speech converters capable of working in multiple languages.
They could contract with a non-profit organization to build and maintain these repositories or they could build them themselves. Private industry, governments, and foundations interested in improving access to information on a global basis could jointly fund these repositories.
The Internet Society and other non-profit organizations could manage and co-ordinate these efforts on a worldwide basis. Among other efforts would be a translation effort to disseminate knowledge from one language base to another. It is not reasonable to assume that everyone will speak the same language and the only way to improve two way communications is to be able to translate information on both and auditory and text basis.
Development of the above type of technology is already in its infancy. With the advent of worldwide access to computers it should be encouraged. To a limited degree this can be accomplished today through the use of database and XML technologies. These efforts could be encouraged and enhanced for this type of project.
With server based repositories set up to serve many different areas in many different ways no one area will be left out, no one person will be left out as long as they have some type of
Internet Access. These repositories should be designed for access by any type of device in any type situation. They should follow Universal Design Principles mentioned earlier in this paper. This will insure that whatever technical situation the user who wishes to access the information finds themselves in, they will be able to use the repositories. (By implication information needs to be stored in many different forms to accommodate variations in access speeds and costs, for example.)
In many rural situations access to basic information such as weather and other time critical information, and to local and national government information, can make a huge difference. This type of repository can hold information to help improve the technical base in many areas, not just in computers, manufacturing, agriculture, and other basic areas where the sharing of information can lead to economic improvement.
Since it is not realistic to expect great improvements in Infrastructure on a global basis in a short time frame, it is more likely that server based repositories can be designed to serve these areas with the infrastructure that exists. To be available as the access situation is improving as well. This is a solution that can adjust to any situation in which the user may find themselves. This will basically allow low technology to access high technology and will grow with the improvement of Internet access in regions around the world.
2.7 The Importance of Supporting Audio Communications
Bringing out the Importance of Audio Communications illustrates the importance of bringing focus to bear on audio communications via the Net, to start with: audio "dumb terminals" (the telephone, radio) are more or less universally available. It is also becoming apparent that many advanced methods of accessing the net will use audio and other modes of access. These methods can be used to improve the techniques of access on a global basis in environments where what is considered traditional access may not be feasible. At the same time, it is critical to not only find a way for all people access such Net content, but also to be able to produce content for placing on the 'Net themselves. The Net cannot be a one way communications device, and all that access the net should be able to share their ideas in one way or another.
To insure this there needs to be simple clear mandates for accessibility regarding all public information put out by Governments for the information of their Citizens. The same information should be contained in important Guidelines to all other Internet users to bear in mind as they construct web sites and databases for online access by fellow Internauts.
2.8 Further Considerations in Evaluating Universal Access as a Goal
2.8.1 The Impact of Open Source Software (OSS) in Emerging Economies
The impact of open source software in less developed countries can result in:
Easy access to software products. Open source software can be easily available for individuals and companies in less developed countries.
Cost-effective transfer of software technology. Developed countries can make cost-effective contributions to less emerging economies by helping them to adopt free software technologies. Since there is no royalty or per-copy fees, the cost of this transfer is really low for the contributor country. Contributions can be focused in training, localization and contextualization with a great multiplier factor.
Direct access to software technology. Emerging economies can be granted access to leading edge software technologies without having to pay expensive royalties.
2.82 Issues of Accessibility and Bandwidth in the Context of Socio-Political Evolution
Evolving political and structural institutions typically produce deregulated markets in many emerging economies. However, incumbent network providers (telephony or otherwise) either retain large power (cases like Telmex in Mexico, Telgua/Guatel in Guatemala), or are acquired by much stronger international companies (witness C&W in Panama). Therefore, governments have to apply efforts in order to promote competition with a goal toward equity for the benefit of the general population.
Bandwidth does not arrive on its own. The market for bandwidth provides a profitable business to Incumbent Local Exchange Carriers (ILECs) and again governments have to press for its provision in open markets.
In countries where favorable forms of deregulation are incipient, it is recommended that governments make every effort to develop more access to health, education and government services by means of public access points in the information infrastructure at low or no cost, with clearly defined rules.
The rapid rise and evolving compatibility of cellular and other mobile communications gives governments and companies extraordinary opportunity to encourage the development of wireless devices with full Internet access in order to provide immediate enhanced access to the Net for mobile users. Tenders and auctions for promoting wireless devices should be considered urgent. So should be the development of content designed for access through these devices and oriented to education and training or their support and continuation in the workplace.
Accessibility rises only in the context of a political and cultural evolution, which promotes respect among people, enlightens and sensitizes people to the critical problems of others and creates new job opportunities for the emerging new economies.
2.9 Telecommunications Deployment
More than a century after the emergence of telecommunications, developing countries still do not share in the benefits of a universally distributed basic telecom service. Extension of existing and new telecom networks too rural and lesser economic zones will be the necessary conditions of any participation the Information Society.
The new information technologies are cheap and becoming cheaper - but not without cost. Communication networks are cost effective when being implemented for large populations; the primary challenge is the initial infrastructure investment. Countries with low or low-density populations cannot afford the initial costs associated with advanced communication infrastructures. Hence they require partnerships with the private sector as well as other investment. It is however often the case that the most modern telecom equipment is often cheaper today than the older equipment; so it may well be the right decision to acquire and put into place new telecom equipment.
3.1 Regulatory Frameworks and Information Infrastructure
The regulatory framework in developed countries enforces protection of investment, intellectual property and individual privacy in the information market. The legal framework addresses private sector involvement, skilled human resources, standards and implementation. In most emerging economies regulatory frameworks concerning information do not exist. Although the rapid growth in information technology is changing methods of doing business at home, at work and in organisations in both developed and emerging economies, regulatory frameworks have had very little effect on emerging economies.
While information technology, including telecommunications, has penetrated every market in the developed world, emerging economies still view information