Bringing Communities into the Digital Age

• Author: Roberto Gallardo
• Date: 01 December 2019
• Published date: 01 December 2019
• DOI: 10.1177/0160323X20926696
• Subject Matter: Articles

Article
State and Local Government Review
2019, Vol. 51(4) 233-241
Bringing Communities into
ª The Author(s) 2020
Article reuse guidelines:
the Digital Age
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DOI: 10.1177/0160323X20926696
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Roberto Gallardo1
Keywords
broadband, digital inclusion, community development, economic development
As our society and economy continue to digi-
working to understand and address the problem
tize, the landscape of communication, access,
of digital exclusion (van Dijk 2006). Over time,
and opportunity—the very glue that connects
their understanding has advanced from a focus
us in society—is undergoing a substantial
on whether or not populations do or do not have
transformation. There is an urgent need to
access to digital technology (the so-called digi-
increase awareness of this transformation
tal divide) to a more complex understanding of
among urban and rural communities and to
differences in digital skills and Internet use as
increase their capacity to navigate it and to
well as differences in social, political, and eco-
thrive and prosper from the benefits it can bring
nomic outcomes deriving from access to, and
(Friedman 2016; Kelly 2016; Rifkin 2014;
use of, digital information and communication
Schwab 2017; Wadhwa 2017).
tools (Wei et al. 2011). Thus, access to digital
Some scholars refer to this transformation as
communication is best understood as a spec-
the second machine age in reference to the first
trum from exclusion to inclusion with three
machine age that unleashed the industrial revo-
main levels: connectivity, devices, and skills
lution (Brynjolfsson and McAfee 2014). Others
(see also National Digital Inclusion Alliance
(e.g., Feld in this special issue) call it the elec-
2019). The digital inclusion imperative is to
trification of the twenty-first century. The point
ensure that all persons across the entire
is that digitization is remaking the means by
urban–rural continuum are equipped with all
which humans communicate. However, many
levels of digital information and communica-
do not have or cannot make use of this tool.
tion capability (Spurgeon 2018).
Thus, the benefits of this second machine age,
We have a long way to go to achieve this
this “digital age,” are not reaching all popula-
goal. On the first and most fundamental
tion groups. Some are being left behind and are
level—Internet connectivity that today means
effectively excluded from participating in the
broadband—there are significant gaps.
digital age with potentially disastrous conse-
According to the Federal Communications
quences for social equity, economic develop-
ment, health, political participation, and
community well-being overall (Moretti 2013;
1 Center for Regional Development, Purdue University,
Muro 2016; Ragnedda 2018; van Deursen and
West Lafayette, IN, USA
Helsper 2018). Digital exclusion poses a grave
threat to the health and stability of our society.
Corresponding Author:
Roberto Gallardo, Center for Regional Development,
This is not a new development. For upward
Purdue University, 1341 Northwestern Avenue, West
of two decades, scholars, community develo-
Lafayette, IN 47907, USA.
pers, and some policy makers have been
Email: robertog@purdue.edu

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234
State and Local Government Review 51(4)
Commission’s 2019 Broadband Deployment
local initiatives can achieve the three elements
Report, approximately 21 million people do
of digital inclusion—connectivity, devices, and
not have access to broadband, defined as 25
skills. Although the statewide policy frame-
megabits per second (Mbps) download and 3
works include both urban and rural settings,
Mbps upload, or 25/3. The majority of these
some of the most ambitious local initiatives to
persons are in rural areas, especially Native
date have taken place in urban areas. Obvi-
American tribal areas. Other studies have placed
ously, every community is different, but these
this figure at 42 million (BroadbandNow 2020)
examples illustrate the kinds of things that
and even as high as 162 million (Microsoft
localities can accomplish and which other com-
2018), while another study found that at least
munities, both urban and rural, might adapt to
half of the counties in the nation report speeds
their circumstances, given appropriate support
below 25 Mbps (National Association of Coun-
from state and federal governments.
ties 2020). The U.S. Census Bureau’s (2018)
American Community Survey of 2014–2018
Minnesota Border to Border Program
reported that 12 percent of all households in the
United States have no Internet access at all. This
One example of an effective state policy frame-
number increases to 31 percent in homes with
work is the Minnesota Border-to-Border broad-
incomes less than US$35,000 per year.
band grant program. It began in 2014 and is one
Nor are digital literacy and skills evenly dis-
piece of a comprehensive statewide approach to
tributed among the population (Horrigan 2016;
digital inclusiveness known as the “Minnesota
Organization for Economic Cooperation and
Model.” This model launched in 2008 with a
Development 2016). This uneven distribution
set of broadband goals proposed by a statewide
results in different socioeconomic groups and
task force appointed by the governor and
communities benefiting differently from digital
adopted by the legislature. Progress is reviewed
applications. This in turn affects levels of civic
annually and consists of four interacting com-
engagement, political participation, and social
ponents: statutory goals, data and mapping, an
inclusion in general (Dubois and Blank 2018;
Office of Broadband Development (OBD), and
Hargittai, Piper, and Morris 2018; Micheli,
a grant program. This dynamic plan responds to
Redmiles, and Hargittai 2019; Min 2010; Whi-
the changing needs of communities and Inter-
tacre and Manlove 2016).
net service providers (ISPs) and to the intelli-
A concerted and sustained effort by federal,
gence garnered through data monitoring and
state, and local governments as well as nonpro-
measurement. The OBD serves as the central
fits, foundations, and the private sector is
broadband planning body for the state. It oper-
required to achieve the goal of digital inclusion.
ationalizes the various elements outlined in the
Although such a concerted effort does not yet
law, such as administering the Border-to-
exist, some states and localities have made
Border broadband grant program as well as a
progress toward achieving digital inclusive-
telecommuter forward program. Another criti-
ness, and some federal policies are helpful. The
cal role of the OBD is to accurately map broad-
next section of this article highlights, through a
band deployment throughout the state to aid in
series of vignettes, some state and local efforts.
the planning and monitoring of broadband
Based on these experiences, the article recom-
infrastructure investments.
mends federal, state, and local policies that
According to Bernadine Joselyn, Director of
would move our society more rapidly and
Public Policy and Engagement for the Blandin
effectively toward achieving this goal.
Foundation (a member of the statewide task
force), these mutually reinforcing broadband
plan elements constitute a critical civic infra-
Digital Inclusion Vignettes
structure that strengthens the capacity and
The vignettes presented here were selected
voice of local communities. This civic infra-
because they illustrate how state policies and
structure provides support to broadband access

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Gallardo
235
and adoption throughout the state from setting
utility operation,...