Getting Started
Contents

What is digital inclusion — and why does it matter? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

What does digital inclusion mean for people in a community? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

A framework for community-wide planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2

Structure of the Framework . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

Getting started on digital inclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

1. Convene stakeholders . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

2. Develop a shared community understanding of digital inclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6

3. Create a community action plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7

4. Implement the plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7

5. Evaluate and revise the plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7

Principles of digital inclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8

Access principles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8

Principle 1: Availability . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8

Principle 2: Affordability . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10

Principle 3: Design for inclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

Principle 4: Public access . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13

Adoption principles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

Principle 5: Relevance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

Principle 6: Digital literacy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17

Principle 7: Consumer safety................................................................ 19

Strategic areas for digital inclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21

Economic and workforce development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21

Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23

Health care . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25

Public safety and emergency services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27

Civic engagement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29

Social connections . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31

Cover photo credits

Left: iStockphoto by Dori O’Connell.

Center: Columbus Metropolitan Library’s Job Help Centers provide one-on-one help for job seekers.

Right: A staff member from the Humboldt County, CA Library teaches a member of the public to 

use an e-book reader. Photo by Josh Jackson, Eureka Times Standard.
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

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What is digital inclusion — and why does 

it matter? 

Digital inclusion is the ability of individuals and groups to access and use information and 

communication technologies. Digital inclusion encompasses not only access to the Internet but 

also the availability of hardware and software; relevant content and services; and training for the 

digital literacy skills required for effective use of information and communication technologies. 

The cost of digital exclusion is great. Without access, full participation in nearly every aspect of 

American society — from economic success and educational achievement, to positive health 

outcomes and civic engagement — is compromised.

This guide is designed to help communities attain the vision of digital inclusion.

What does digital inclusion mean for people in a community? 

All people, businesses, and institutions will have access to digital content and technologies that 

enable them to create and support healthy, prosperous, and cohesive 21st century communities.

Specifically, digital inclusion means that:

• All members understand the benefits of advanced information and communication 

technologies.

• All members have equitable and affordable access to high-speed Internet-connected devices 

and online content. 

• All members can take advantage of the educational, economic, and social opportunities 

available through these technologies.

Not all members of a community benefit equally, and some communities have been left out 

altogether. Recognizing the cost to American competitiveness in a global economy, Congress 

directed the Federal Communications Commission (FCC) to develop a plan to ensure that every 

American has “access to broadband capability.” Issued in March 2010, the National Broadband 

Plan recommended that the Institute of Museum and Library Services (IMLS) take the lead in 

supporting libraries and community-based organizations as they improve digital inclusiveness. 

This guide was developed with input from over one hundred organizations and individuals with 

deep knowledge about public access technology and the diverse information needs of 

communities. It presents a set of overarching principles (and associated goals) and identifies the 

key characteristics of organizations and communities that foster digital inclusion.
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A framework for community-wide planning

Communities across the country are recognizing the pressing need to coordinate, plan for, and 

implement digital inclusion efforts to ensure that every resident is able to benefit in our 

increasingly digital society. These efforts include extending broadband infrastructure to rural and 

other underserved areas, digital literacy, and targeted programs to ensure everyone can 

complete an online job application, take a distance learning class, or manage his or her 

healthcare. 

The Framework is a resource for community-wide planning to help forward-looking communities 

achieve digital inclusion for all of their residents. It sets forth a vision of what a modern 21st 

community looks like when digital inclusion is a priority, presents a set of principles that need to 

be addressed in order to achieve that vision, and provides specific goals that can serve as 

benchmarks for making progress against each of the principle areas. The Framework also 

includes strategies that communities have implemented around the country to serve as examples 

for others, acknowledging that every community is unique and will identify its own direction. 

The digital inclusion framework is akin to a transportation planning tool. In transportation 

planning, communities need to move people and goods in order to prosper and grow. A 

comprehensive transportation plan includes not just the roads, but also the sidewalks, bike lanes, 

public transportation, traffic control, and enforcement. A transportation plan uses communityestablished goals and incentives to prioritize the implementation of improvements, and to 

respond to changing needs. Depending on the specific situation of the community (history, 

geography, financial base, etc.), these priorities are different, but the basic framework behind all 

of the plans is substantively similar. 

So too is it with digital inclusion. Digital inclusion is a requisite for building healthy and 

prosperous communities across all important sectors—economic and workforce development, 

education, health care, public safety and emergency services, civic engagement, and social 

connections. While each community will have different priorities, the fundamental needs are the 

same:

• high-speed infrastructure to carry Internet traffic and connect households to businesses and 

community institutions; 

• help people learn to navigate technology and provide a safe environment for doing so;

• maintain public options for those who are unable, can’t afford, need temporary access, or for 

whom it doesn’t make sense to maintain private access;

• remove barriers to access for people with disabilities or facing other obstacles to access; and

• address the special needs and requirements of key sectors that drive the local economy.
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A community must engage all sectors to achieve digital inclusion—this is not just a function of 

government action, it needs to involve individuals, local and tribal governing bodies, business, 

the nonprofit community, special interest groups, and other stakeholders. Public libraries, 

recognizing the role they have played in bridging the digital divide, are uniquely positioned to 

convene this planning process and begin this essential work, but the initiative can come from 

anywhere. What is important is that communities recognize digital inclusion as a priority and 

take steps to achieve it. Building Digital Communities is a planning tool to help communities in 

this effort.

The Framework provides a resource to help communities chart a course toward improving digital 

inclusiveness — toward expanding the economic and social opportunities provided by digital 

technology to all its members. The Framework consists of four components:

Structure of the Framework

Access Principles

Access principles address the infrastructure a community needs to have in place in order to 

provide opportunities to benefit from digital life.

 Availability: A reliable communications infrastructure is the raw material for innovation, 

growth, and competitive engagement in today’s information-based world.

 Affordability: Access to the Internet needs to be affordable for communities and their 

members to benefit from the expanded opportunities of digital life.

 Design for Inclusion: People with disabilities, physical or cognitive differences, and 

differences in age-related capabilities, language, literacy or culture may face challenges 

using technology and participating in digital life.
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Adoption Principles

Adoption principles look to overcome individual barriers that make use of broadband technology 

less likely, even when access is available.

 Public Access: Public access to technology is necessary for community members who 

have little or no communication technology available in the home, need assistance to 

effectively use technology, or to supplement connectivity at home or in schools.

 Relevance: Beyond having access to technologies, individuals, businesses, and 

institutions need to understand the relevance and benefits of using technology to 

achieve educational, economic, and social goals.

 Digital Literacy: Digital literacy skills, including the ability to find, evaluate, and use 

information to achieve goals, are a necessary pathway to digital inclusion.

 Consumer Safety: Consumers — both individual and institutional — need accurate, 

unbiased information on how to safely navigate the digital world.

Strategic Areas

The thoughtful deployment of broadband technologies in six specific strategic areas can

strengthen communities and can improve the lives of their residents.

 Economic and Workforce Development: Communities need to develop the knowledge 

and skills of future workers and entrepreneurs, as well as help the current workforce 

update its competencies to meet the needs of employers.

 Education: Educational institutions should ensure that students have the digital skills to 

reach their full potential by connecting them to a diverse range of electronic resources.

 Health Care: Efficiencies and cost-savings in health care delivery, improvement to 

patient care, and support for independent living and management of health concerns are 

all enabled by access to broadband and digital technology.

 Public Safety and Emergency Services: Residents and first responders need integrated 

communications systems for emergency and disaster preparation, response, and 

recovery.

 Civic Engagement: Electronic interaction between community institutions, government 

agencies, and individuals creates enhanced opportunities for active participation in 

community affairs.

 Social Connections: Individual members of a community should have access to 

technologies that promote social engagement and the pursuit of independent learning 

and creative interests.
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

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Getting started on digital inclusion

Every community will determine its own path to becoming digitally inclusive, depending on its 

unique set of needs and priorities, the structure of its government and institutions, and its styles 

of leadership and civic engagement. 

Nevertheless, most communities will be able to use a common set of steps to identify both their 

needs and the actions required to address those needs. The steps outlined below are processes 

drawn from a range of efforts to build better communities. 

1. Convene stakeholders

Successful strategies to address important community goals are predicated on broad and 

sustained stakeholder participation, and the list of institutions important to creating a truly 

inclusive community can be long and diverse:

• The local city, county, and tribal governments, as well as those in neighboring areas, will be 

essential players. Elected leaders and senior appointed officials have specific responsibilities 

for strategic and community planning across a wide range of areas.

• Public agencies, especially public libraries, are essential to the process. Whether they are part 

of local or district government or independent institutions, public libraries have become the 

central institutional player in providing public access to digital technologies. Other important 

public agencies include the public schools (K-12), institutions of higher learning (especially 

community colleges and adult education programs), museums, economic development

agencies, agencies with community centers (such as recreation departments), and public 

housing departments. In many local governments a central office of technology plays a 

critical role in digital management issues across the various public agencies and should be 

actively engaged in the discussion.

• Non-profit community-based organizations can be especially effective in reaching hard-toserve populations, and vary widely from one community to another. Community-based 

organizations are often more nimble and experimental than government entities. Likely 

partners for community-based organizations are non-profits that serve targeted populations 

within a community — including people who are low-income or homeless, populations with 

disabilities, or people from specific ethnic cultures. Organizations that provide supportive 

housing, job training, and childcare can reach residents who need access to digital 

technologies and that may have otherwise been overlooked. Community foundations can 

serve as neutral conveners and as sources of initial funding.
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• The business community includes many potential partners. Telecommunication companies 

have an essential role. Major employers in need of trained employees can provide valued 

support, especially if there is a single, dominant employer within the community. Chambers 

of Commerce and other business groups often recognize the economic imperatives for digital 

inclusion. Businesses play an obvious role in the aspects of digital inclusion impacting 

economic development. Many businesses make a point of incorporating all segments of the 

community in their civic and social philanthropic activities. Businesses can also provide 

Internet hotspots for public access.

• Residents, be they individuals or representatives of neighborhood or housing associations, 

can help ground digital inclusion efforts in the needs that are most relevant to the 

community. Civic engagement begins with becoming informed on digital inclusion issues, 

and is followed by engaging with local organizations in order to raise peoples’ awareness 

about the importance of adopting broadband and actively participating in a digital society. 

Residents’ participation on committees and task forces help institutions develop a broader 

perspective of the values of digital inclusion and its effect on the community; institutional 

and organizational leaders can expand resident participation by conducting surveys, forums, 

and workshops in the communities where they live and for the people they serve.

Such a diverse set of stakeholders will not inevitably come together. Participatory action will 

require leadership — a catalyst to initiate the participatory process, engage the broad array of 

stakeholders, and guide the process to success. Given its experience in digital technologies and 

its reputation for being non-partisan and welcoming to all, the public library is uniquely 

positioned to assume this leadership role.

2. Develop a shared community understanding of digital inclusion

In an area as complex as digital inclusion, community stakeholders need to begin with a shared 

understanding of the needs and the goals. 

• What does the term digital literacy mean for the community?

• What digital technologies are currently available, and to whom?

• Where are the gaps? Who is left out and at risk of being left behind?

• What are the most important community goals of digital inclusion: economic development, 

education, job training, health care, emergency management, social connection?

The answers to these questions will necessarily vary by community. A key component of 

developing community answers should be a needs assessment that is based on systematic data 

collection and analysis. A shared vision should emerge from the joint learning process – a vision 

that describes where the community wants to be in a technology-driven world and what it needs 

to do to get there.
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

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3. Create a community action plan

Grounded in the shared vision, communities need to develop an actionable plan that outlines 

specific goals, measures of success, timelines, and assignments of responsibility. Some 

communities will make large comprehensive plans; others will create more narrowly targeted 

plans that utilize their limited resources as effectively as possible. Either approach can work.

4. Implement the plan

Drawing on government appropriations, business contributions, philanthropy, or combination of 

sources, communities will need to develop the mechanisms necessary to generate the resources 

required to execute the plan. It is important to ensure early success that can be celebrated and 

promoted, creating awareness and building momentum. A well-structured monitoring effort will 

allow community stakeholders to provide mutual support, encouragement, and accountability.

5. Evaluate and revise the plan

Change is the only constant. Digital devices and transmission capabilities, workforce 

requirements, economic drivers, and population demographics are all constantly changing. 

Change may be incremental and easily incorporated. Or, change may be shockingly dramatic, as 

when a major employer leaves – or one arrives. As circumstances change, implementation plans 

must change as well.

In today’s information-based economy, digital inclusion is not a simple, one-time checkbox. 

Digital inclusion will require sustained effort, ongoing evaluation, and the willingness to revise 

the community’s plans and strategies.
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Principles of digital inclusion

Seven principles comprise the backbone of the Framework, divided into access principles and

adoption principles. Access principles address the infrastructure a community needs to have in 

place in order to provide opportunities to benefit from digital life. Adoption principles look to 

overcome individual barriers that make use of broadband technology less likely, even when 

access is available. 

Access principles

Principle 1: Availability

A reliable communications infrastructure is the raw material for innovation, growth, and 

competitive engagement in today’s information-based world. Local and tribal governing bodies, 

the private sector, and community-based organizations that are bound to one another by 

geographic proximity and a shared infrastructure need to cooperate to effectively build and 

maintain appropriate and cost-effective broadband service. Recognizing that greater bandwidth 

speeds and coverage will be required in the future, these goals are intended to address the 

immediate needs for high-speed access while preparing for future growth.

Goals 

• Access to high speed Internet is available in every household that meets or exceeds the 

service goals and milestones set by the Federal Communications Commission (FCC). 

• Tribal lands and Native communities have affordable access to communication services and 

broadband technology. 

• Sufficient bandwidth is available for multi-user environments, such as educational 

institutions, public libraries, medical facilities, museums and other organizations, to support 

current needs and future network demand. 

• Comprehensive standards for broadband readiness in new buildings, renovations, and anchor 

institutions are adopted by appropriate governing bodies. 

• The deployment of infrastructure is guided by right-of-way policies that remove barriers to 

market entry and system upgrades while limiting disruptions and ensuring other community 

interests. 
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

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Sample strategies

INDIVIDUAL

• Test actual upload/download speeds against advertised speeds at: 

http://www.broadband.gov/qualitytest/.

LIBRARIES, CBOS, AND OTHER COMMUNITY ANCHOR INSTITUTIONS

• Ensure that community anchor institutions have access to cooperative high-capacity 

networks, such as Internet2.

• Develop partnerships with other organizations to share networks and leverage infrastructure 

investments. 

BUSINESS SECTOR

• Support competitive policies to expand markets and encourage innovative options for 

providing broadband to underserved areas. 

LOCAL AND TRIBAL GOVERNING BODIES

• Coordinate efforts and collaborate with other regions to reduce the costs of developing 

broadband infrastructure.

• Inventory existing network infrastructure, including service quality, costs, and location of 

community anchor institutions and validate the accuracy of information in the National 

Broadband Map (http://broadbandmap.gov/).

• Provide strategic incentives to stimulate market competition and private investment in 

broadband networks in underserved or isolated areas.

• Ensure that local and tribal government agreements with network providers are negotiated 

to obtain the highest possible download and upload speeds.

POLICY MAKERS

• Support policies and programs to evaluate the use of wireless spectrum, open additional 

spectrum, and provide increased bandwidth for use by public institutions. 

• Promote standards for measuring upload/download speeds among local Internet Service 

Providers.
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Principle 2: Affordability

Access to the Internet needs to be affordable for communities and their members to benefit from 

the expanded opportunities of digital life. Public and private entities need to partner together to 

lower the cost of digital access in general and to provide assistance to those who cannot bear the 

full cost of home access. Additionally, community members need to be able to understand their 

options in order to take advantage of competition in the broadband marketplace. These goals 

are aimed at developing pricing structures and support systems to enable businesses, 

institutions, and households to afford access to broadband and digital technologies. 

Goals 

• Internet Service Providers (ISP) provide uniform pricing information to enable consumers to 

easily compare plans available in the community.

• Programs that subsidize monthly Internet subscription costs are available to low-income 

households. 

• Assistance with hardware, software, and peripheral equipment purchase and maintenance 

are available to low-income households.

Sample strategies

INDIVIDUAL

• Donate used technology equipment to nonprofit groups that provide equipment to lowincome households and community organizations. 

LIBRARIES, CBOS, AND OTHER COMMUNITY ANCHOR INSTITUTIONS

• Raise public awareness about available Internet subsidies and assistance for purchasing 

computer equipment. 

BUSINESS SECTOR

• Donate used computer equipment to nonprofit groups that provide hardware to low-income 

households and community organizations. 

LOCAL AND TRIBAL GOVERNING BODIES

• Maintain local comparisons of Internet service provider prices and options. 
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POLICY MAKERS

• Promote standards for comparing prices of service bundles among local Internet Service 

Providers.

Principle 3: Design for inclusion

People with disabilities, physical or cognitive differences, and differences in age-related 

capabilities, language, literacy or culture may face challenges using technology and participating 

in digital life. As a result, they may be denied access to opportunities that could enhance wellbeing and promote independence. Failure to address the needs of people facing barriers 

negatively impacts not just those individuals but also the broader community, which will be 

denied their contributions to its civic, social, and economic health. The following goals reflect a 

commitment to erasing the boundaries between differences and reducing the obstacles to 

utilizing technology through principles of effective design.

Goals 

• Assistance for ensuring access for people with disabilities and complying, at a minimum, with 

the letter, intent, and spirit of accessibility laws and regulations is provided to public and 

private organizations. 

• People with disabilities, local and tribal governing bodies, businesses, and community 

organizations are provided with access to assistive devices and training about the range of 

technology and design solutions available to accommodate physical or cognitive differences. 

• The Seven Principles of Universal Design are embedded into the design of technology-based 

services for local and tribal governing bodies, businesses, and community organizations. 

(http://www.ncsu.edu/project/design-projects/udi/center-for-universal-design/the-principlesof-universal-design/) 

• Scripting, layout, and navigation of technology based-services are designed, localized, and 

optimized for multilingual and multicultural use. 

Sample strategies

INDIVIDUAL

• Clearly express personal accessibility needs and preferred accommodations to technology 

providers, and advocate for these accommodations on behalf of others.

• Participate in volunteer programs that provide one-to-one assistance using technology to 

people with disabilities. 
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LIBRARIES, CBOS, AND OTHER COMMUNITY ANCHOR INSTITUTIONS

• Engage in partnerships with community-based organizations that serve people with 

disabilities to better design services and accommodations. 

• Maintain a central resource library of assistive technologies and best practices for 

accommodating people with disabilities. 

• Hold workshops to educate businesses and community organizations about best practices in 

universal design. 

BUSINESS SECTOR

• Align existing online presence with national standards for accessibility and language; move 

towards universal design for future projects. 

• Invest in the development of assistive technology — with the participation of the disabilities 

community — to reduce cost, improve design, and enable new applications.

LOCAL AND TRIBAL GOVERNING BODIES

• Commit to adopting nationally recognized standards for technology accessibility and 

language; direct future projects toward universal design principles. 

• Assess and manage information technology projects for government and essential services 

online in a manner that includes people with disabilities and other barriers in all phases of 

new technology development and deployment.

• Provide education, training, and incentives to businesses and organizations for creating 

accessible technology and complying with accessibility standards.

• Utilize public information campaigns to make the community more fully aware of the impact 

of technology design on people with disabilities and language or cultural differences. 

POLICY MAKERS

• Support enforcement of existing accessibility laws as they apply to the digital environment.

• Support national efforts to promote the adoption and use of universal design standards for 

accessibility.
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

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Principle 4: Public access

Public access to technology is necessary for community members who have little or no 

communication technology available in the home, need assistance to effectively use technology, 

or to supplement connectivity at home or in schools. Others need public access technology to 

assist during emergencies. Visitors need public access to be able to keep connected to family and 

work while away from home. Implementing the following goals will ensure that uninterrupted 

technology and connectivity are available through free public access. 

Goals 

• The community has sufficient, convenient free access to computers, Internet, wireless 

networks, and other communication technologies to support the needs of residents, workers, 

and visitors. 

• Public access technology is located in safe facilities, with adequate levels of privacy, security, 

and accessibility for people with disabilities. 

• Information about the availability and location of public access technology is widely 

disseminated.

Sample strategies

INDIVIDUAL

• Advocate for sufficient funding for libraries and other community-based organizations to 

support public access in the community. 

• Share stories with policy makers about how public access technology benefits the 

community. 

LIBRARIES, CBOS, AND OTHER COMMUNITY ANCHOR INSTITUTIONS

• Develop partnerships between libraries and community-based organizations to provide 

public access to technology and technology support in high-need locations. 

• Support development of community technology centers for special population groups and 

low-income housing complexes. 

• Provide access to electronic information about community resources and services at 

strategic locations such as community-based organizations offering social service assistance. 
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BUSINESS SECTOR

• Develop partnerships and strategic alliances with libraries and other community-based 

organizations to provide public access equipment, trainers, and other resources.

• Inform users of business-supported wireless networks on best practices for protecting private 

information on public networks.

LOCAL AND TRIBAL GOVERNING BODIES

• Evaluate the public access needs of the community, develop a public access plan, and provide 

adequate funding and support for public access in libraries and other community institutions. 

• Maintain a directory of public access providers and promote its availability.

• Support the development of wireless hotspots (including public-private partnerships) for 

residents and non-residents, especially in public spaces such as town centers, parks, and 

recreation centers.

POLICY MAKERS

• Support efforts to develop guidelines for determining the levels and types of public access 

necessary to support a community’s needs. 

• Support programs that provide resources for local public access, including E-rate and other 

funding programs. 
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

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Adoption principles

Principle 5: Relevance

Beyond having access to technologies, individuals, businesses, and institutions need to 

understand the relevance and benefits of using technology to achieve educational, economic, 

and social goals. Awareness of its potential benefits creates the motivation to master technology 

skills and learn more about effectively using broadband. These goals aim to help communities 

raise awareness of the value of technology and generate interest in adopting its use.

Goals 

• Community institutions engage in outreach activities to help raise awareness about the 

benefits of using broadband and other digital technologies among non-adopters.

• Individuals are provided with help to make informed choices about Internet-based services, 

products, and information.

• Specially designed awareness activities and targeted content are developed to engage older 

adults in using technology.

• Local and tribal governing bodies, businesses, and community organizations support the 

creation of multilingual and multicultural content and promote use of digital technologies to 

diverse users.

Sample strategies

INDIVIDUAL

• Ask about digital technologies in the government, institutions, and businesses with which 

one interacts.

• Attend public sessions sponsored by organizations such as the public library to increase one’s 

knowledge.

• If already knowledgeable about digital technologies, volunteer to provide tutoring or training 

at the public library, youth center, or senior centers.
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

— 16 —

LIBRARIES, CBOS, AND OTHER COMMUNITY ANCHOR INSTITUTIONS

• Provide training and orientation sessions in multiple languages on digital technologies: what 

they are, how to use them, and the benefits and cautions around the most common 

applications.

BUSINESS SECTOR

• Provide information about digital services and products in plain, simple language; create 

informational material to help people understand their value, and offer one-on-one support 

to help people understand the technology and products offered. 

LOCAL AND TRIBAL GOVERNING BODIES

• Create awareness campaigns about eGovernment and the value of residents accessing local 

and tribal governing bodies through digital technologies. 

• Support the library and other institutions in promoting broad awareness of digital 

technologies.

POLICY MAKERS

• Advocate policies that promote plain language explanations of digital technologies to 

consumers and other users.
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

— 17 —

Principle 6: Digital literacy

Digital literacy skills, including the ability to find, evaluate, and use information to achieve goals,

are a necessary pathway to digital inclusion. Digital communities meet the needs of their 

members for learning about technology and maintaining the skills necessary to take advantage 

of the opportunities enabled by it. The following goals help ensure that communities are able to 

provide effective digital literacy training to their members. 

Goals

• Digital literacy training needs and assets in the community are identified and evaluated, and 

a strategy for meeting the digital literacy needs of the community is adopted. 

• Digital literacy training in multiple languages is provided to individuals, businesses, and 

institutions through a variety of formats, including formal classes, real-time virtual help, and 

one-to-one assistance.

• Digital literacy instruction is embedded in all aspects of curriculum for K-12 and higher 

education, as well as in lifelong learning activities.

• Information literacy training and assistance is available within the community to help 

individuals learn to find electronic information and evaluate digital resources. 

• Programs aimed at training consumers on the purchase, maintenance, and repair/recovery of 

technology equipment and services are available through community organizations.

Sample strategies

INDIVIDUAL

• Volunteer at the library to tutor a new user on basic computer skills. 

• Help a neighbor connect to the Internet. 

LIBRARIES, CBOS, AND OTHER COMMUNITY ANCHOR INSTITUTIONS

• Coordinate existing efforts to provide digital skills and literacy training between libraries and 

other community organizations.

• Establish a computer lending program to enable home practice of basic digital literacy skills. 

• Organize a “digital literacy corps” of volunteers to improve digital literacy outreach in the 

community.
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

— 18 —

• Create a central repository for community training resources.

BUSINESS SECTOR

• Form partnerships with libraries and CBOs to provide trainers for computer skills classes.

• Develop online mentoring programs with local schools.

LOCAL AND TRIBAL GOVERNING BODIES

• Provide online content and services that are designed for all levels of digital skills. 

POLICY MAKERS

• Support strategies to train and provide digital literacy mentors to libraries and CBOs 

providing community technology services.

• Support the creation of a national outreach and awareness campaign on why broadband 

matters, focused on key segments of non-adopters.
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

— 19 —

Principle 7: Consumer safety

Consumers — both individual and institutional — need accurate, unbiased information on how to 

safely navigate the digital world. Engaging in digital life requires the knowledge to protect 

against online threats, and the ability to limit unwanted access to and use of personal 

information. Online safety is a personal responsibility, but it also requires collective action to 

educate and assist consumers and enforce standards. The following goals reflect a shared agenda 

for creating the safest possible online environment for the community.

Goals

• A strategy for training and educating community members about safeguarding personal 

information, using parental controls, protecting vulnerable populations from online bullying 

and exploitation , maintaining systems free of viruses, and protecting against other forms of 

online abuse has been adopted by all providers of Internet services and content.

• Privacy policies are adopted by businesses and government that are visible, easily accessible, 

and comprehensible to consumers.

• Local law enforcement agencies are equipped with strategies and the authority to pursue 

cybercriminals while protecting individual civil rights.

• Affordable software and technical assistance are available to support household network 

security for vulnerable populations.

• Information is widely disseminated through public information campaigns about individual 

and organizational rights and obligations with regard to intellectual property. 

Sample strategies

INDIVIDUAL

• Maintain awareness of activities children are engaged in online.

• Secure home networks and accounts with strong passwords.

• Educate children about use of technology and online dangers. 

LIBRARIES, CBOS, AND OTHER COMMUNITY ANCHOR INSTITUTIONS

• Engage in coordinated educational activities and public awareness campaigns to raise the 

visibility of online safety issues.

• Develop procedures for securing sensitive client information.
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

— 20 —

• Develop partnerships and utilize common curriculums to educate consumers on purchasing 

and maintaining technology.

BUSINESS SECTOR

• Implement policies and processes for protecting customer information and for training staff 

in following security procedures.

• Support legislation that enables prosecution of cybercrime. 

LOCAL AND TRIBAL GOVERNING BODIES

• Provide information about online safety with targeted messages to children and families, the 

elderly, and other vulnerable populations.

• Fully comply with policies and leading practices to ensure the security and safety of 

eGovernment activities. 

• Ensure that contractors handling sensitive government information have effective 

safeguards in place to protect data. 

• Coordinate efforts with other government agencies to fight security threats to public and 

government networks. 

• Support the investigation and prosecution of cybercrime.

POLICY MAKERS

• Urge adoption of consumer rights and data protection regulations.

• Support FCC efforts to create a voluntary cybersecurity certification program.
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

— 21 —

Strategic areas for digital inclusion

The thoughtful deployment of broadband technologies in six specific strategic areas can 

strengthen communities and can improve the lives of their residents. Change may be evident in 

terms of economic success and increased new business development, academic excellence and 

innovation in the classroom, sustainability, or a higher quality of life for inhabitants. Once a 

community and its residents are connected and digitally literate, they can take advantage of the 

benefits of broadband in real and tangible ways. Community leaders in each of these areas 

working with the public can best assess local strengths, needs, and opportunities.

The six strategic areas are 1) Economic and workforce development; 2) Education; 3) Health care; 

4) Public safety and emergency services; 5) Civic engagement, and, 6) Social connections.

Economic and workforce development

Communities need to develop the knowledge and skills of future workers and entrepreneurs, as 

well as help the current workforce update its competencies to meet the needs of employers. 

Broadband adoption can generate new business opportunities in economically depressed areas 

and can help ensure sustainable growth. The following goals are aimed at enabling productive 

public-private partnerships to promote jobs and prosperity, to attract and retain business and 

workers, and to prepare the current and future workforce to use technology productively. 

Goals 

• Libraries and community-based organizations engage in partnerships and cross-agency 

collaborations to enhance the community’s workforce training capacity.

• Small businesses and local entrepreneurs are supported by eCommerce and eGovernment 

tools in their efforts to successfully engage with technology and promote their services 

online. 

• Workforce technology trainers are available in sufficient numbers to support the needs of the 

community.

• Online career information and specialized assistance with online job-seeking is available 

through local and tribal governing bodies, libraries, and other community-based 

organizations.
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

— 22 —

Sample strategies

INDIVIDUAL

• Become a mentor or career coach, to help new users of digital technologies understand their 

potential uses in employment.

• Keep up-to-date with technology skills by attending training provided in the community and 

through online tutorials.

LIBRARIES, CBOS, AND OTHER COMMUNITY ANCHOR INSTITUTIONS

• Provide assistance, training, tools, and resources for job seekers. 

• Develop partnerships with local colleges and technical schools to help new business owners 

access and use technology. 

• Develop public-private partnerships and cross-agency collaborations to better utilize and/or 

enhance the workforce training capacity of public libraries and community-based 

organizations.

BUSINESS SECTOR

• Make job application procedures appropriate to the skill level required for the position. 

• Provide public kiosks for submitting job applications. 

• Develop partnerships with libraries and CBOs to offer workforce training in specialty areas.

LOCAL AND TRIBAL GOVERNING BODIES

• Include digital technologies as part of economic development plans and community 

economic needs assessments.

• Include digital access in all workforce development and jobs programs.

• Encourage cross-sector partnerships to promote workforce development.

POLICY MAKERS

• Support the integration of broadband infrastructure into regional planning for economic 

development.

• Support the creation of innovative national online career tools.

• Encourage federal agency partnerships to foster common goals toward workforce 

development.
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

— 23 —

Education

Educational institutions should ensure that students have the digital skills to reach their full 

potential by connecting them to a diverse range of electronic resources. Technology allows 

learners to discover educational opportunities, improve academic performance, and prepare to 

fill the jobs of today and tomorrow. These goals highlight education as a community asset that 

can benefit from readily available technology. 

Goals 

• Technology is embedded in curriculum design and instruction, in both formal K-12 and postsecondary institutions to prepare students for 21st century opportunities and challenges.

• Teachers are trained by qualified instructors on the use of technology in instruction.

• Home access to hardware and Internet connections is available for households with K-12 

students to support academic success and interactions among caregivers, schools, and 

instructors.

• Public access technology centers provide assistance for doing homework, conducting online 

research, completing other academic tasks using digital resources, and supplementing home 

access. 

Sample strategies

INDIVIDUAL

• Tutor students with their online homework, research, or other academic tasks.

• Volunteer in schools to help others gain digital literacy skills.

LIBRARIES, CBOS, AND OTHER COMMUNITY ANCHOR INSTITUTIONS

• Develop computer loan programs or lease programs to provide learners with computer 

hardware in the home. 

• Provide awareness training for parents on educational technologies being used by students.

• Provide training and support for caregivers to enable them to interact with instructors and 

schools using digital technologies.

• Coordinate efforts of schools, libraries, museums and community-based technology centers 

to maximize delivery of in-school and out-of-school student learning tools. 
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

— 24 —

BUSINESS SECTOR

• Develop relationships with K-12 and post-secondary institutions to provide educators with 

current information on the skills employers need for the 21st century workforce.

• Create directed learning opportunities for secondary and post-secondary students as a longterm investment in the community’s workforce of tomorrow.

LOCAL AND TRIBAL GOVERNING BODIES

• Support the local school system in its digital strategies.

• Leverage cable television and other franchises to support free or reduced cost access to the 

Internet for students of low-income households.

• Include student access centers in government facilities supporting children and youth, such 

as recreation centers, libraries, and non-profit youth service providers.

POLICY MAKERS

• Support efforts to adopt standards for maintaining and securing electronic educational 

records.

• Support efforts to reduce barriers for obtaining E-rate funding for schools and libraries. 
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

— 25 —

Health care

Efficiencies and cost-savings in health care delivery, improvement to patient care, and support 

for independent living and management of health concerns are all enabled by access to 

broadband and digital technology. Technology supports more effective health care by 

connecting local practitioners and hospitals with information and specialists around the world; it 

contributes to better safety for patients by enhancing communication between health care 

providers and patients; and it creates opportunities for better health education and 

dissemination of information. The following goals aim to ensure that residents are able to 

actively manage their own health, and technology is used to provide efficient health service 

delivery.

Goals 

• Secure systems enable local medical professionals and community-based health clinics to 

share medical records among health care providers.

• Patients have access to user-centered online health information systems, medical records, 

and private online interaction with health care providers. 

• Health care providers and patients are given training on how to use health information 

systems. 

• Transitioning to online health care resources and services is managed to ensure support for 

new users and non-users of digital technologies, and for those who lack access to 

technology.

Sample strategies

INDIVIDUAL

• Volunteer to help patients navigate online information at local hospitals and health clinics.

• Utilize online health resources to improve health, manage chronic illnesses, and 

communicate with health care providers.

LIBRARIES, CBOS, AND OTHER COMMUNITY ANCHOR INSTITUTIONS

• Provide access to electronic medical records and telehealth services through secure and 

private public access technology. 

• Create consolidated online local health resources accessible through health care agencies 

and providers, libraries, and other community organizations.
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

— 26 —

• Provide targeted training for using health technology.

• Provide training for the public on how to locate and evaluate health information.

LOCAL AND TRIBAL GOVERNING BODIES

• Include the use of digital technologies in the development of health and fitness programs in 

the community.

• Promote partnerships between health care providers and institutions, such as the public 

library, that provide public access to digital technologies. 

• Ensure that public health information is distributed through digital technologies and that 

adequate access is available to all populations.

POLICY MAKERS

• Support efforts to establish common standards for sharing research and clinical data. 

• Support efforts to ensure that health care delivery locations have access to sufficient 

bandwidth for high-demand applications.
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

— 27 —

Public safety and emergency services

Residents and first responders need integrated communications systems for emergency and 

disaster preparation, response, and recovery. Communities can strengthen their emergency 

responsiveness through effective deployment of digital technologies: enabling better ways to call 

for help, coordinate responses, and distribute information during emergencies. Technology can 

also be mobilized to prevent and investigate criminal activity and to empower residents to 

improve neighborhood safety. The following goals reflect a need for coordinated, communitywide involvement in planning, preparing, and responding to emergencies and public safety 

threats in order to create a safe and resilient community. 

Goals 

• Communities have sufficient secure, resilient, and redundant wireless broadband capacity to 

support emergency responders throughout planning, preparing, responding, and recovering 

from emergencies. 

• Interoperable and redundant emergency alert networks are in place across mobile, wireless, 

and wired networks via Common Alerting Protocols.

• Public libraries, schools, and other community institutions provide digital access to residents 

or evacuees during emergencies. 

• Digital tools are used for community-developed online content relating to public safety, 

emergency preparation, and response. 

• Alternative emergency plans account for instances when technology is not available and for 

how to respond to the needs of community members who do not have technology access.

Sample strategies

INDIVIDUAL

• Sign up for text and email services offered by local emergency services. 

• Create a neighborhood emergency communication network using social media technologies.

• Make a personal plan for emergencies, including contingencies for the loss of digital 

technologies.

LIBRARIES, CBOS, AND OTHER COMMUNITY ANCHOR INSTITUTIONS

• Engage actively in emergency and disaster planning to identify the range of activities that 

the institution can support in education, prevention, planning, response, and recovery.
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

— 28 —

• Develop continuity plans for the institution that provide for resiliency and quick recovery in 

order to support the community. Specifically create contingency plans for the loss of digital 

technologies.

• Train staff and test the emergency plans. 

• Serve as an information center on the wide range of ways that people can be safe in normal 

and extreme conditions.

LOCAL AND TRIBAL GOVERNING BODIES

• Address issues of digital access and inclusion in the comprehensive emergency plan. 

Specifically address the resiliency of digital technologies in the community and make 

contingency plans for the loss of the technologies and for rapid recovery.

• Actively include the public library and other institutions involved with digital inclusion in 

planning, training, and testing of emergency plans. 

• Make emergency plans, and other public safety information available digitally, with specific 

emphasis on populations that have special needs.

• Invest in proven current digital technologies such as enhanced 911 systems, computer aided 

dispatch, and electronic mapping technologies.

• Provide online resources for residents to use for developing personal disaster-preparedness 

plans.

POLICY MAKERS

• Support the development of national interoperable public safety wireless broadband 

networks. 

• Support national efforts to ensure that broadband communications are preserved during 

emergencies.
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

— 29 —

Civic engagement

Electronic interaction between community institutions, government agencies, and individuals 

creates enhanced opportunities for active participation in community affairs. Community 

members can make use of technology to develop and promote a wide range of civic activities and 

connections that enrich public life while expanding the network of involved participants. 

Technology can also help enhance government transparency and accountability. The following 

goals aim to create increased opportunities for the public to participate in governance, by 

bridging officials and constituents online and by providing the means for people to voice their 

opinions and influence decisions. 

Goals 

• The public connects directly to governments and their agencies, and with each other, in order 

to learn about and discuss public issues and policies.

• Online access to government information and services meets interoperability standards and 

is appropriate for users of all skill levels and language needs. 

• The community has convenient, secure, and private digital access to government resources 

and services.

• Technology is utilized to organize community events, to encourage volunteerism and youth 

participation, and to facilitate problem-solving for community concerns.

Sample strategies

INDIVIDUAL

• Provide feedback to government agencies about online services.

• Join — or start — community networks to communicate with others about shared concerns. 

LIBRARIES, CBOS, AND OTHER COMMUNITY ANCHOR INSTITUTIONS

• Provide a central civic engagement portal for information to residents about local events and 

resources, as well as online government services. 

• Encourage the use of blogs and notification tools so that libraries and CBOs that help people 

navigate public information can be kept updated with changes to government websites. 

• Become “online town halls” for eDemocracy, for participants to shape public agendas and 

discuss public issues.
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

— 30 —

• Embed civic engagement and civic knowledge in education and digital literacy training.

LOCAL AND TRIBAL GOVERNING BODIES

• Educate community members about their civic role; provide opportunities for them to 

interact with government agencies and officials using tools that fit individual or specific 

community needs.

• Provide residents with the ability to create “My eGovernment” to personalize their 

interaction with government agencies and officials.

• Encourage the private sector to work with open information, and to develop new 

applications and ways of using government data.

• Apply care to initial design, updates, and the frequency of redesign to minimize users’ 

confusion and the need to re-familiarize themselves with government websites. 

POLICY MAKERS

• Dedicate resources to develop open standards for government information. 

• Promote the adoption of social media technologies that government can use to interact with 

residents. 
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

— 31 —

Social connections

Individual members of a community should have access to technologies that promote social 

engagement and the pursuit of independent learning and creative interests. Technology provides 

new opportunities for people to express themselves, enjoy activities with family and friends, and 

get support for personal problems. Lifelong learning and access to new ideas can also spark 

innovation and creativity. The following goals reflect the ability of technology to foster 

relationships that support quality of life and well-being in digital communities. 

Goals 

• Interactive, high-quality multi-cultural content is available through public libraries, museums, 

archives, and other cultural institutions.

• Programs to encourage development of local content and participation in social networks are 

available for vulnerable and diverse community members.

• Intergenerational ties are strengthened through technology interaction between youth and 

older community members.

• The community supports the use of technology for digital preservation and appropriate 

sharing of local history and contemporary culture in order to build an enhanced sense of 

community, belonging, and continuity. 

• Support and tools are available to produce, archive, and distribute local media programs and 

other digital content produced by local voices.

• Digital technologies are used as a means of preserving and sharing diverse cultures, if 

appropriate.

Sample strategies

INDIVIDUALS

• Help an older friend or relative connect to online support communities or communicate with 

distant family members.

• Connect with like-minded people around an interest area or hobby.

• Provide translation services to community organizations serving multilingual populations.

LIBRARIES, CBOS, AND OTHER COMMUNITY ANCHOR INSTITUTIONS

• Maintain directories of locally produced content. 
BUILDING DIGITAL COMMUNITIES: GETTING STARTED

— 32 —

• Design a digital story project for collecting local history. 

• Support community-based design efforts to mobilize rapid development of high-quality local 

content by maintaining technology labs and incubators.

• Ensure that online content is available in languages utilized by the community.

• Develop content and applications geared towards a variety of different abilities and cultures.

LOCAL AND TRIBAL GOVERNING BODIES

• Provide funding for cultural institutions to develop local content.

BUSINESS SECTOR

• Use social networking to promote local recreational activities and events.

• Support crowd-sourcing development of new applications.

POLICY MAKERS

• Advocate for use of social networking to facilitate respectful conversations among people 

with differing viewpoints.
ABOUT THE PARTNERS

The Institute of Museum and Library 

Services is the primary source of federal 

support for the nation’s 123,000 libraries and 

17,500 museums. The Institute’s mission is to 

create strong libraries and museums that 

connect people to information and ideas. The 

Institute works at the national level and in 

coordination with state and local 

organizations to sustain heritage, culture, and 

knowledge; enhance learning and innovation; 

and support professional development. To 

learn more about the Institute, please visit 

www.imls.gov.

University of Washington

The Technology & Social Change Group 

(TASCHA) at the University of Washington 

Information School explores the design, use, 

and effects of information and 

communication technologies in communities 

facing social and economic challenges. With 

experience in 50 countries, TASCHA brings 

together a multidisciplinary network of social 

scientists, engineers, and development 

practitioners to conduct research, advance 

knowledge, create public resources, and 

improve policy and program design. Our 

purpose? To spark innovation and 

opportunities for those who need it most.

ICMA, the International City/County 

Management Association, advances 

professional local government worldwide. Our 

mission is to create excellence in local 

governance by developing and advancing 

professional management to create 

|sustainable communities that improve lives 

worldwide. ICMA provides member support; 

publications; data and information; peer and 

results-oriented assistance; and training and 

professional development to nearly 9,000 city, 

town, and county experts and other 

individuals and organizations throughout the 

world. The management decisions made by 

ICMA’s members affect millions of individuals 

living in thousands of communities, from 

small villages and towns to large metropolitan 

areas.

CONTACT

Institute of Museum and Library Services

1800 M Street NW, 9th Floor

Washington, DC 20036

202-653-IMLS (4657)

www.imls.gov

COPYRIGHT & DISCLAIMER

This report is in the public domain and may 

be used and reprinted without permission; 

citation of the source is, however, appreciated. 

The views, opinions, and findings expressed by 

the authors of this document do not necessarily 

state or reflect those of the Institute of Museum 

and Library Services.

RECOMMENDED CITATION

Institute of Museum and Library Services, 

University of Washington Technology & Social 

Change Group, International City/County 

Management Association. (2012). Building 

Digital Communities. Washington, DC: 

Institute of Museum and Library Services.

DOWNLOAD THE COMPLETE REPORT

Building Digital Communities: A Framework for 

Action. This is the final report to IMLS from 

the University of Washington and the 

International City/County Management 

Association. It explains how the framework 

was developed from the initial stages through 

the community and leadership forums. It 

includes a comprehensive bibliography 

arranged by subject. — available at 

tascha.uw.edu/digital-inclusion-framework