Digital Citizenship Strategy for A Digital Economy

Introduction

The York and Ryerson ComCult Program brings together perspectives from the social sciences, humanities and fine arts, and communication–and media–related professions, and aims to encourage innovative thinking, research, and practice in the advance study of communication and culture. The Working Group on the Digital Economy Strategy consists of students and instructors affiliated with the ComCult Program and formed in May/June 2010 to discuss and coordinate research–based submissions to the consultation.

The members of the working group are:

Sheilagh Brasset (M.A. Candidate, York University)
Natalie Brown (M.A. Candidate, York University)
Paul DeSilva (Ph.D. Candidate, Ryerson University)
Nino Marshania (M.A. Candidate, York University)
Christopher Mejaski (M.A. Candidate, York University)
Lisa Norton (M.A. Candidate, York University)
Jeremy Shtern (Postdoctoral Fellow, Ryerson University)

Contact: Jeremy Shtern, PhD
Ryerson University
Rogers Communications Centre, room 333
80 Gould Street
Toronto, Ontario, Canada
M5B 2K3
Email: Jeremy Shtern

Summary and Overview of Recommendations:

The submission of the York and Ryerson Graduate Program in Communication and Culture Working Group on the Digital Economy Strategy presents answers to a series of the discussion questions that were specifically posed by the Digital Economy Strategy Consultation Paper. We thank Industry Canada and the other agencies of the Government of Canada with whom they have partnered in facilitating the Digital Economy Strategy Consultation. We hope that this submission will be part of a dynamic and productive deliberation about the policy environment that shapes the interactions of Canadians with digital technologies as well as knowledge–based economies and societies.

We have consciously decided to provide in–depth answers to only a handful of questions rather than to make a comprehensive proposal for the entire digital economy strategy. In our evaluation, our academic, research–grounded perspective is likely to add more value to the discussion where specific issues are treated in–depth. The specific discussion questions addressed in this submission are itemized in the previous section.

Taken together however, our answers to these discussion questions underline the fundamental importance of designing a digital economy strategy that:

• Ensures that all Canadians have the ability to participate– socially, economically, creatively and democratically— in a society that is organized around a digital economy;
• Defines and operationalizes digital citizenship as a concept that is inexorably linked to the emergence of a digital economy;
• Focuses on training and skill development related to digital technologies;
• Recognizes information retrieval as a both skill and fundamental right that is essential to the digital economy.

In our responses to various discussion questions that follow, we propose the following specific recommendations for the digital economy strategy (see below for further discussion/details):

• A CRTC public hearing on regulatory options for improving access to affordable broadband across Canada;
• Expansion of the existing $225 million Broadband Canada: Connecting Rural Canadians program to target all Canadian communities;
• Restoration and expansion of funding for the Canadian Access Program (CAP);

Canada must improve its capabilities to develop engaging and high quality digital media content in order to encourage new and greater investment. In response, stakeholders must:

• Demonstrate a commitment to the delivery of high quality Canadian content through multi–platform strategies, taking advantage of both traditional and digital media;
• Pursue opportunities to experiment and innovate through government and private funding for digital media production;
• Use relevant successes to forge new partnerships and investment opportunities;
• Creating a "space" for the distribution of digital programming i.e. a digital channel/site with funding structures and incentives for the creation of innovative programming that reflects the multi–cultural diversity of Canada with specific requirements for content production by members of these communities;
• Develop a "one stop" funding formula, as opposed to the complex funding formulas currently in place for program production (i.e. Broadcaster license fees, the Canadian Media Fund, Tax credits, second window pre–sales , distribution guarantees etc) which create barriers of entry for new entrants in the production process;
• Build on the existing relationships and expertise that members of ethno cultural communities have developed through contacts with "home country" creative communities;

Overcome currently existing ICT skills gaps in Canada through:

• Early implementation of digital skills curriculum within the early stages of the public education system, Providing equal access for disadvantaged groups;
• Inclusion of ICT training in all post–secondary programs, especially in teacher education programs;
• A critical assessment and enhancement of existing ICT post–secondary programs ensuring increased accessibility of post–secondary education for all Canadians;
• The allocation of additional resources to primary and secondary schools in high priority neighbourhoods and regions to provide both guided digital skills training and access to technology during leisure periods;

The integration of digital skills training into existing social programs within Canada, made possible through the allocation of additional resources.

Submission

Responses to Discussion Questions:

Theme: Digital Infrastructure

Q: How best can we ensure that rural and remote communities are not left behind in terms of access to advanced networks and what are the priority areas for attention in these regions?

The World Bank has found that economic growth in developed countries is boosted by 1.3 per cent for every 10 per cent increase in the availability of broadband. In a time of widespread economic uncertainty and concerns about Canada's ability to promote digital innovation in line with global digital heavyweights such as the United States and China, it is vital that we work to enable all of our citizens to access affordable broadband Internet, regardless of their geographic location.

The York and Ryerson Graduate Program in Communication and Culture Working Group on the Digital Economy Strategy recommends:

• A CRTC public hearing on regulatory options for improving access to affordable broadband across Canada;
• Expansion of the existing $225 million Broadband Canada: Connecting Rural Canadians program to target all Canadian communities;

Restoration and expansion of funding for the Canadian Access Program (CAP).

Canadians suffer from a heavily monopolized telecommunications industry that hampers innovation, as reflected in our weakening position in OECD Broadband and Internet Penetration rankings. A CRTC hearing to examine the regulatory strategies used successfully in Sweden, Australia and many other countries is long overdue. Turning well–reasoned and publicly determined recommendations emerging from the hearing into regulatory reality is a crucial next step.

The economic benefits of expanding broadband access to rural SMEs in crucial sectors such as tourism and sustainable forestry will more than justify the initial cost of expanding the Broadband Canada program. These businesses depend on reliable access to broadband internet in order to operate; selective expansion of broadband access in certain regions does not go far enough towards ensuring that rural business owners and individuals can rely on accessing the digital infrastructure necessary to operate their businesses and live their lives in a networked society. By taking advantage of the timing of the Canada Economic Action Plan to direct stimulus funding towards universal broadband access, doubts about reliability will disappear, spurring a new period of much–needed economic, social and cultural growthfor rural communities. Further, the employment opportunities created by Broadband Canada expansion will give a measurable boost to rural communities in the short run.

The Government of Canada must work to avoid reinforcing inequalities in access to education and other resources perpetuated by digital divides. Canada can and should serve as a model for other countries in which rapid digital economic expansion is leaving many citizens behind. By drawing on lessons learned during the CAP program, established in 1995, Industry Canada is well positioned to ensure that access to broadband infrastructure translates into the development of digital skills in previously underserved communities. This can be accomplished through the existing CAP infrastructure, which can be used to provide rural and marginalized urban libraries and community centres with information and training programs in online education, employment, health and civic engagement.

Theme: Canada's Digital Content

Q: How can stakeholders encourage investment, particularly early stage investment in the development of innovative digital media content?

As the digital revolution has influenced how Canadians create, share and consume creative content, media creators, enablers and aggregators require appropriate funds and resources to distinguish Canada's digital offerings in a crowded global marketplace.

Based on the belief that Canada must prove its capabilities to develop engaging and high quality digital media content in order to encourage new and greater investment, The York and Ryerson Graduate Program in Communication and Culture Working Group on the Digital Economy Strategy suggests that stakeholders:

• Demonstrate a commitment to the delivery of high quality Canadian content through multi–platform strategies, taking advantage of both traditional and digital media;
• Pursue opportunities to experiment and innovate through government and private funding for digital media production;
• Use relevant successes to forge new partnerships and investment opportunities

As much of Canadian professionally–produced content online consists of or complements content created for traditional media, creators and enablers must demonstrate a continued commitment to producing such media for multi–platform distribution. While Canadian television shows now stream on broadcasters' websites, books and music have become available for digital download, and related ancillary content is produced and disseminated accordingly.

This demonstrates that new media is oftentimes old media, offered through new platforms. Stakeholders in Canada's cultural industries must therefore remain dedicated to the production of high quality professionally–produced content for traditional media, which can then be distributed through digital means. Such production will exemplify the Canadian industry's capacity to create exceptional media content, and in turn increase confidence for investment in both traditional and digital Canadian production. The private sector, in addition to Canada's national institutions such as CBC/Radio–Canada and the National Film Board of Canada, therefore hold continued responsibility in producing outstanding Canadian content.

In order to respond to the new capabilities of digital media, however, creators must also actively develop innovative media content specifically for digital consumption. In doing so, they will encourage the interest of new investors by demonstrating the ability to experiment and produce engaging new media content. This may also help encourage the emergence of new producers in Canadian media industries.

Drawing on the Canada Media Fund (CMF), for example, producers must respond to the fund's stated purpose of producing innovative content and software applications for eventual integration into mainstream Canadian media platforms. Similar goals can and should be pursued through government funds such as the Canada Interactive Fund, Canada Book Fund, Canada Music Fund, and Canada Periodical Fund; and private funds such as the Bell Broadcast and New Media Fund and Rogers Wireless Mobile Content Fund. In turn, those who administer this funding must be responsible for structuring the process to support and encourage new talent to emerge and develop.

As the consultation paper points out, venture capital firms need to believe in a concept or technology in order to invest in it. So first, they must be aware of Canada's capabilities in producing digital media content. Success stories of Canadian content developed specifically for digital media — the extensive library of Degrassi webisodes, animated comedy website Têtes à claques, digital video offerings on the NFB and CBC's websites, and popular iPhone apps developed by Canadians, for example — can and should be touted in order to encourage further investment. Emphasizing Canada's digital media successes will help increase confidence in further innovation and the desire to invest in such initiatives.

Q: What elements do you believe are necessary to encourage the creation of digital media and content in both official languages and to reflect our Aboriginal and ethno cultural communities?

The Consultation document states that " …the digital revolution has profoundly affected how all Canadians create, share and consume creative content. Rapidly emerging digital services and applications stretch and challenge the bounds of creativity and imagination, and provide Canadians with unparalleled opportunity to seize digital a digital advantage on the creative global stage."

The challenges include in part "new business models and new market strategies will be needed if the Canadian digital media sector is to succeed in the global digital economy." The 3 main areas of activity are 1) the creation of content 2) enabling content creation and distribution and 3) the aggregation of content.

The realities of the Canadian situation for creation of content for traditional media have some lessons that can apply to the new digital economy. The key factors being the a) size of the Canadian market (one tenth the size of the US, the primary supplier of programming most watched by Canadians) 2) the high cost of production required to compete with US and International standard programming ,available at relatively low cost to Canadian broadcasters.

Fact: The most popular form of television by far and away is dramatic programming and is the key element in popular entertainment and national identity building. It is as well a key concern in public policy relating to programming in Canada and increasingly in countries around the world.

Fact: The Canadian Broadcasting business model is built on private broadcasters acquiring US Dramatic programming at relatively low costs compared to the cost of production, and broadcasting it in prime time. Part of the profits are used to produce some original Canadian content as required by CRTC regulations — it is the price of doing business and having the privilege of a license to broadcast in Canada .A complex set of regulations provide protection for Canadian broadcasters at the moment from foreign competition and ownership.

This results in the majority of "prime time" broadcasting space is reserved for US Dramatic programming. The vice President of CBC English Television and a former head of Telefilm Canada, Richard Stursberg, has described this as creating a "crisis in shelf space" for Canadian programming".

The internet and new modes of digital production create new opportunities to address this challenge but many of the economic and system barriers still apply and will need to be addressed directly if any real progress is to be made in this area.

Increasingly digital distribution relies on "traditional" forms of content for reaching audiences, whether through streaming of dramatic programming, mobisodes of existing programming as well as programming that is created expressly for digital distribution.

For Canada to be competitive in the digital economy and to build the infrastructures needed and to train and develop the talent and expertise in this area, it will need to create highly innovate programs that will build on existing expertise and infrastructure and create the financing structures required. As well it will need to recognize and address the systemic barriers that have developed that hinder the participation of ethno cultural minorities and Aboriginal peoples from participating in these sectors. The York and Ryerson Graduate Program in Communication and Culture Working Group on the Digital Economy Strategy proposes that this be done by:

Creating a "space" for the distribution of digital programming i.e. a digital channel/site with funding structures and incentives for the creation of innovative programming that reflects the multi–cultural diversity of Canada with specific requirements for content production by members of these communities. This would create a need and a market for this kind of programming.

It should have a "one stop" funding formula, as opposed to the complex funding formulas currently in place for program production (i.e. Broadcaster license fees, the Canadian Media Fund, Tax credits, second window pre–sales, distribution guarantees etc) which create barriers of entry for new entrants in the production process.

As the major area of population growth in the future will be from immigration and population increase from immigrant communities, developing skills and talent in these communities should be a priority.

Building on the existing relationships and expertise that members of ethno cultural communities have developed through contacts with "home country" creative communities would also need to be encouraged and developed. This could lead to International co–production opportunities which would enhance funding for programming as well as increasing opportunities for international distribution.

Various models for this exist including Britain's Channel 4 (Channel 4) and ITVS in the US (ITVS) . While these organizations were created as conventional broadcasters/programme developers, they now have developed various forms of digital distribution strategies We can learn from their experiences and create a unique Canadian model that will not only address important public policy mandates for cultural expression but make Canada not more competitive in the world digital economy.

Theme: Building Digital Skills

Q: What can we do to ensure that labour market entrants have digital skills?

The Consultation Paper on a Digital Economy Strategy for Canada states that this nation requires not only a highly skilled sector of ICT workers, but that the workforce as a whole must be technologically–savvy in order for Canada to become a leader in the digital economy. The development of digital skills for all Canadians is paramount not only to this endeavour, but also to ensure that Canadians have the skills which are becoming increasingly essential to both citizenship and democratic participation.

In addition to the strategies set out in the consultation document, this submission recommends that the following initiatives be employed in order to overcome currently existing ICT skills gaps in Canada:

• Early implementation of digital skills curriculum within the public education system;
• Inclusion of ICT training in all post–secondary programs, especially in teacher education programs;
• A critical assessment and enhancement of existing ICT post–secondary programs;
• Ensuring increased accessibility of post–secondary education for all Canadians.

It is at first necessary to discuss what is implied by the use of a term such as "digital skills". At the most basic level, possessing digital skills should include the ability to operate a computer and access information online, especially information regularly published by government agencies that has an effect on how citizens conduct their day–to–day affairs. Essential to this is the ability to be able to identity and distinguish credible sources. Digital skills such as the use of email and other online communication mechanisms are also becoming an increasingly essential element to many positions across a wide variety of job sectors.

In order to ensure that, in the long run, citizens and labour market entrants possess digital skills, education must begin earlier than in secondary school at the primary school level. The development of ICT skills should be embedded within school curriculum, taught by teachers who are themselves well versed in current digital technologies. Teaching these kinds of skills from the earliest ages as part of regular, compulsory education will ensure that the next generations of workers have at least a basic ability to interact with the digital technologies that are so much a part of contemporary day–to–day operations in the business world.

This of course will require that post–secondary programs, including teacher education programs, include ICT training as part of the curriculum as well, as proposed in the consultation document, in addition to ongoing teacher education and certification programs. ICT training should in fact be a requirement for all post–secondary programs, whether in the form of course work, or co–op and internship placements. If Canada desires to generate a home–grown, digitally–skilled workforce for the future, commitments must be made to overhauling the public education system at all levels. While specific, limited–time training opportunities for students can be helpful, a fully integrated digital education program throughout a student's entire education will ensure the greatest level of digital proficiency for new workers.

To ensure ICT skills at the highest levels, specialized post–secondary programs must be made more accessible to Canadians. As the consultation document points to the difficulties that employers have in recruiting skilled ICT workers in Canada, this suggests that either current post–secondary programs in this particular field are not attracting significant enrolment, or that these programs are not configured sufficiently to meet the needs of employers. Again, a critical assessment and overhaul of existing ICT post–secondary programs seems advisable.

In order to make these programs more accessible, the provinces and territories should also consider reviewing the accessibility of their student loan programs in order to ensure that students can continue to access post–secondary education in all fields. This is especially pertinent as the cost of tuition is likely to increase as a result of the significant governmental expenditures required in order to amp up the digital skills of new workers within the currently insufficient system. An initiative such as this will work to ensure cultural diversity within the post–secondary system and prevent the perpetuation of an elite–access–only climate.

Q: What do you see as the most critical challenges in skills development for a digital economy?

The consultation paper states that the rapid development and adoption of digital technologies in sectors ranging from the marketplace to the arts changes the way Canadians work and communicate. In order for Canada to become a leader in the digital economy digital skills have to be addressed and developed adequately.

The York and Ryerson Graduate Program in Communication and Culture Working Group on the Digital Economy Strategy recommends the following initiatives:

• Integration of the Digital Skills Development in the Early Education;
• Providing Equal Access for Disadvantaged Groups through Early Education.

Although the paper acknowledges the shortage of skilled ICT workers as the central challenge to be overcome in order for Canada to occupy leadership position within the knowledge economy, it mainly concentrates on the post–secondary ICT programs. However, the most critical challenge in skills development for a digital economy is building the ICT knowledge base starting from the early education which is crucial in eliminating gender and aboriginal marginalization. With adequate focus on early ICT skills cultivation Canada can close the gap in inequalities present today.

Another critical challenge facing Canada in developing adequate skills in the digital economy is the elimination of the digital divide that has been documented in Canada. In order to provide equal access for disadvantaged groups in urban and rural Canada, The Government has to ensure that everyone, regardless of gender, ethnicity and income is provided with equal literacy and essential skills and opportunities to participate and compete within a knowledge based economy. This effort is required in order to have a competitive domestic ICT skills environment that can and is complemented by the permanent immigration that accounts for 14 percent of workers in ICT occupations.

As the profound changes have placed digital competence at the forefront of our current economy it is important to acknowledge the role early long term ICT integrated education and access to technologies can play in placing Canada in the leadership position. While post–secondary education is undeniably important, an emphasis on early education will play a far more influential role in eliminating the economic, ethnic and gender disparities within ICT skills development for the knowledge based economy.

Basic Digital Skills include technical ability to use a computer, as well as access and retrieve information online. Overall, digital skills enable individuals to participate fully in the society as informed citizens and reach their intellectual and professional potential.

Q: What strategies should be employed to address the digital divide?

A national digital economy strategy should seek to identify and negate correlations between social barriers and digital skills. Factors such as lower income and education levels have been consistently linked to lower internet use. Similarly, new Canadians, senior citizens, and persons with physical disabilities are all likely to face challenges in regard to internet use. It is essential to ensure that disparities which exist in Canada today, in regard to fundamental digital skills, are not perpetuated in multigenerational patterns and do not lead to the aggravation of already existing inequalities or special challenges. Any program to bridge the digital divide in Canada must provide assistance and education, along with access, in order to make access to digital technology an enriching resource for all.

The York and Ryerson Graduate Program in Communication and Culture Working Group on the Digital Economy Strategy recommends:

• The integration of digital skills training into existing social programs within Canada, made possible through the allocation of additional resources;
• The expansion of the Community Access Program (CAP), with additional resources provided to those sites operating in high priority neighbourhoods and regions throughout Canada;
• The allocation of additional resources to primary and secondary schools in high priority neighbourhoods and regions to provide both guided digital skills training and access to technology during leisure periods.

To implement an enhanced digital skills component to existing social programs, consultation and support of those already working within programs is essential. Additional resources and modified goals must be structured in a way that is complementary to those of existing programs, and do not place further strain on them. With this in view, adult literacy programs, adult education centres, language and job training facilities, as well as facilities for persons with disabilities, senior citizens, and new Canadians, could benefit from the allocation of enhanced technological resources and expertise. If additional resources are integrated successfully into such existing programs to foster internet use and specific digital skills, they will benefit those who likely have the most to gain from new technology, as well as support the operation of public services and social programs in Canada.

In addition to integrating fundamental digital training into specific social programs, a digital economy strategy concerned with the digital divide in Canada must also provide enhanced resources to all persons within communities where factors such as low income and education levels are contributing to lower digital skills and internet use. Building upon the existing Community Access Program (CAP), those 'on–ramps' or access sites which are located in community centres of identified regions should be offered additional resources so that they are able to provide workshops to community residents, or on–the–spot basic assistance to individuals who require it. CAP programs operating in these areas should also be mindful of user costs associated with site access which are not normally covered by the program, such as fees for printing documents, or the cost of public transportation to sites. These sites should be encouraged to make use of additional resources in order to mitigate these costs generally or provide assistance to individuals who require it. CAP sites in identified regions should also cooperate with neighbourhood schools in order to raise awareness of facilities among families of students. Workshops offered by CAP sites geared toward students of neighbourhood schools and their parents would further encourage the initial and repeated use of these facilities.

In addition to this external support of primary and secondary students, resources must be allocated to Canadian schools within these high priority regions. In order to foster and sustain an interest in digital technology, fundamental digital skills training must be integrated into the academic and social curriculum of primary schools in identified regions and specialized training should be made available in secondary schools. To ensure a natural progression of digital skills and interests, it is essential that digital technology is made available to students not only through guided activities, but also during leisure periods. With this in view, programs teaching safe, responsible, and practical internet use to students are both necessary and complementary. Training for faculty would also be necessary, to ensure that this leisure time is provided within a secure environment.

Ensuring that all Canadians have the access and skills necessary to participate in the expansion of Canada's digital economy and online civil society is essential to a national digital economy strategy. Many means toward bridging the digital divide can be formed through social infrastructure that is in place today. Existing social programs, the Community Access Program, and the education system must receive the support and resources necessary to contribute to the foundation of a burgeoning and competitive digital economy.