What does gender-sensitive ICT policy look like?

In supporting ICT policy development through the National Information and Communications Infrastructure (NICI) programme, AISI starts from the MDGs to identify the main challenges and opportunities for ICT policy, namely: food security; education and research; gender and development; health; and man-made crises and natural disaster. Results of a Civil Society and ICTs Policy Conference on 6-8 November 2002 in Addis Ababa on the success and the impact of the NICI formulation process suggest that the gender dimensions of consultation processes and implementation should be carefully monitored, to encourage the participation of women’s groups in all phases, especially in relation to these key challenges. Gender concerns are explicitly set out in AISI: women are considered as both users and providers of information.

To understand the gender implications of ICT policies, we look at the three major categories:

infrastructural, vertical and horizontal (Rowlands (1996). Infrastructural policies deal with the development of national infrastructure and are closely linked with telecommunications policy. Horizontal information policies affect broader societal aspects, such as freedom of information, but also tariffs and pricing and privacy and security. Finally, vertical information policies address sectoral strategies, in support of areas such as education, health, tourism and industry and are related to e-government. Potential strategies and approaches are discussed in more detail in Chapter 4.

Chart 3.1

Categories of ICT Policy

Vertical information policies Adress sectoral needs such as education, health,

tourims, and industry

Deal with the development of national infrastructure, are

closely linked with telecommunications

Infrastructural information policies

Impact on the broader aspects of society such as freedom of information, but also tariffs and pricing,

privacy and security Horizontal information policies

Source: Hafkin, 2002.

Some national policies focus almost entirely on one area; most typically, one area will predominate, but the policy will include elements of all three. Virtually every component of each one of these categories can affect the majority of women differently than men, so that social and gender analysis is applied to each component. Some national governments may incorporate ICTs into telecommunications policy, while others will include ICTs with media in communications policy. A more recent tendency, recognizing the importance of people-centred rather than technology-centred policy, is the trend towards information policy which incorporates ICTs in the framework of information society goals. Additionally, sectoral policy in health, education, agriculture, labour and industry, among others, frequently include significant ICT components (Hafkin 2002a).

Infrastructure and telecommunications policy

While gender dimensions of this type of policy may not be immediately apparent, an understanding of how it affects users and the economy (entrepreneurs), along with how it promotes access will reveal gendered trends of benefit and opportunity.

Some of the key issues in this area include affordability and accessibility of infrastructure and technology. This includes availability of a range of technologies which allow for low-cost access; technologies and infrastructure which provide coverage in rural and peri-urban areas as well as capital cities. Steps can be taken by governments through incentives or regulation to encourage providers to offer cost-effective and appropriate solutions; through licensing requirements to set aside opportunities for women entrepreneurs and organizations; and through encouraging technology choice by providing an enabling environment for different internet technologies (such as WiFi and VOIP). Other important infrastructure issues include the ability and awareness of the population to use ICTs effectively, which require advertising, consultation with user populations, and training in technology use.

Gender issues relating to infrastructure and telecommunications policy are listed in Table 3.2.

Table 3.2

Gender–sensitive infrastructure and telecommunications policy

Policy Promoting equal access for women and men Network

modernization Implement infrastructure that is affordable to most

Network architecture Implement requirements or incentives for equipment and service providers to offer cost-effective and appropriate solutions for women and men at all socio-economic levels.

Network deployment Place an emphasis on universal access to ICTs using affordable and forward-looking technology such as wireless alternatives.

Include women and women’s groups in technology training.

Plan location of infrastructure in a way that facilitates access for women as well as men.

Infrastructure Deploy technologies in rural and peri-urban as well as urban areas. Make “high-technology” applications available outside of the capital and major cities.

Technology choice Affordability and accessibility of service is a major gender issue. Encouraging new players and new technologies in the market will increase technology choice and help to bring down costs, e.g. Wi-Fi and VOIP (Voice Over Internet Protocol) telephony.

While limitation on the choice of mobile standards (e.g. GSM, CDMA) can prevent fragmentation of markets in initial stages, continued insistence on standards can block the entry of mobile technologies that are cheap and effective for underserved areas.

Undertake assessment and consultation to determine appropriate technology choices in terms of who will use it and for what purpose.

Source: Hafkin, 2002.

Universal access

While universal access falls under the category of infrastructure and telecommunication, it also incorporates issues of content, training and capacity-building. At WSIS governments committed to implementing universal access to ICT by 2015 and in general, universal access is a positive strategy for women. However, gender concerns in implementing these strategies exist, including the need to ensure that ICT is made available to all at an affordable cost, and that the development of infrastructure does not further disadvantage marginalized groups.

Key components of universal-access strategies which will benefit women include:

Implementing a range of affordable and accessible technologies such as mobile

•

phones, public communication kiosks and mass media (radio, TV, video).

Locating public access stations such as kiosks in places where women frequently and

•

easily congregate can enhance women’s access to information.

Setting up access centres at the local community level.

•

Promote ICT and on-line literacy through training.

•

Ensure that potential users are aware of the services being provided by government

•

on-line.

Ensure that the services available on-line and via mass media are relevant and give

•

citizens a reason to use these services.

Develop locally relevant and educational content for women.

•

In its review of the Uganda Rural Communications Development Fund, WOUGNET made the following recommendations for ensuring that women in Uganda are able to benefit equally with men:

Ensure there is widespread dissemination of information on RCDF funds;

•

Target women and marginalized populations to inform them of RCDF services and

•

opportunities;

Review RCDF policy to include specific gender-sensitive objectives, strategies and

•

targets;

Consult with key stakeholders;

•

Ensure gender distribution of recipient/selected agencies in three sectors: education

•

(including female only); private sector including women-owned enterprises; and civil society, including women’s organizations;

RCDF contracts should spell out gender outcomes as part of all RCDF support, e.g.

•

reaching out to women students and users;

Gender-monitoring and evaluation approaches should be implemented;

•

Selection criteria should encourage women to apply, including incentives for women

•

proprietors, or encouraging women’s organizations to apply;

Share knowledge about how to benefit rural communities and men and women

•

(WOUGNET).

Some examples of approaches and strategies in African national policies include:

Equal access to ICTs should be ensured for man and woman, boy and girl, and able

•

and disabled (Swaziland National Information and Communications Infrastructure Policy and Plans).

Facilitate and encourage the development of electronic networks and systems for

•

associations and organizations engaged in the advancement of youth and women issues in the country (Zambia National ICT Policy).

Provide infrastructure and affordable access to ICT tools and services in rural and

•

urban areas (Zambia National ICT Policy).

ICTs should be situated in gender-neutral environments such as libraries and schools

•

(ICT Policy for the Republic of Namibia, 2002).

The Rwanda NICI 2010 Plan combines universal access approaches with strengthening of the national gender machinery by charging the Ministry of Gender and Women in Development with setting up MCTs in women’s centres throughout the country.

Horizontal information policies

Horizontal information policies such as freedom of information; tariffs and pricing; and privacy and security also carry clear gender consequences. For example, ending monopolies in the telecommunications and ICT sector can bring in additional investment and competition, bringing down prices. Since women tend to have lower levels of discretionary income, this is an important gender issue. Import duties and taxes on computer equipment and mobile telephones as well as high prices for telephone service also affect women and the poor disproportionately.

On the other hand, opening up the sector for competition, although expected to lower prices in the long run, is leading many countries to rebalance international and domestic tariffs in order to eliminate existing subsidies, most frequently on local service. This has led to higher rates for local calls in many places, which hit the poor the hardest. Among the ways to compensate for rebalancing costs include basing tariffs on forward-looking costs and establishing regional (e.g. rural vs. urban) tariffs.

Licensing is an area in which a few targeted activities can bring substantial benefits and opportunities for women operators and users. In return for granting licences, regulators can compel service providers to provide service to underserved areas or to provide community services (such as toll-free help lines). Regulatory frameworks permitting the resale of mobile phone services can promote women’s entrepreneurship at the local level. Additionally, regulatory frameworks can be set up to reduce licensing fees, spectrum prices and interconnection charges that can make ICTs more accessible to women.2

2 Other horizontal issues include privacy and security, and are covered in vertical information policies below.

Table 3.3

Horizontal ICT policy – Gender-sensitive regulation and licensing

Policy Promoting equal access for women and men

Sector liberalization Opening the telecom and ICT sectors to competition can encourage investment and force down end-user prices.

Tariff policy High Customs duties on mobile telephones and computer equipment as well as high prices for telephone services are deterrents to use by women’s businesses which tend to have less capital and less access to credit.

Compensate for rebalancing costs of technology services in a country by basing tariffs on forward-looking costs and establishing regional (e.g. rural vs. urban) tariffs.

Independent

regulators An independent regulator can compel profit-driven private-sector players to deliver on social and gender policy objectives such as universal access.

Regulators can encourage service providers to provide service to underserved areas through licensing incentives and permits.

Regulators can provide funds for research, development and testing of technology that promotes technology choice and reaches under-served groups.

Community service obligations which accompany licenses could contain specific gender-equality components.

Regulatory

frameworks Resale of mobile phone services is often a successful business for women.

Reduction of licensing fees, spectrum prices and interconnection charges can make ICTs more accessible to women and other under-served groups.

Licensing High licensing fees increase the cost of telephony and ICT services, discouraging women-owned communications businesses (including telecentres, phone-fax-Internet shops and mobile telephony).

A certain number of telecommunications licenses could be allocated to women-owned businesses or businesses with women in management positions.

A gender-equality licensing policy could waive license fees for communications businesses run by women entrepreneurs or those that provide services to underserved areas.

Support operators with gender-equality and pro-handicapped employment policies by charging lower licensing fees.

Ensure licensing procedures are transparent and accountable.

Vertical or sectoral information policies

These have the clearest and most easily apparent gender implications. The table below demonstrates how ICT policy and strategies can promote gender equality and women’s empowerment in the BPFA areas. As a result of the AISI focus on food security, education and research, health and gender equality, many NICI policies and plans in Africa focus on these areas, and many mainstream gender into them; however, several also address a range of other key areas identified through the BPFA.

Table 3.4

Millenium Development Goals in relation to AISI

Millenium Devlopment Goals AISI Challenges and Opportunities 1 Eradicate extreme poverty and hunger Food security-related objectives 2 Achieve universal primary education Education and research 3 Promote gender equality and empower women Gender and development

4 Reduce child mortality Health

5 Improve maternal health Health

6 Combat HIV/AIDS, malaria, and other diseases Health

7 Ensure environmental sustainability Man-made crises and natural disasters Source: Economic Commission for Africa

Appendix Two presents 22 countries in Africa which have incorporated gender into some aspect of their ICT/NICI policies and plans, either in their vision statements, objectives, pillars or specifically in one or more of the BPFA areas. In terms of overall vision, objectives, pillars, cross-cutting issues, and key drivers, eighteen countries include one or more references to gender and/or women. The policies of three countries refer to consultation with or participation of women’s organizations (both governmental and non-governmental) during the policy development or ratification process. Eight countries identify women in the context of a national universal-access policy. (Although Uganda is included in this group, references to women or gender are absent from its Rural Communications Development Plan.) In terms of the BPFA areas, those which see the greatest incidence of references to gender are (in order):

Education and training (12); economy (including SMEs and income generation – 9); poverty (including food security) (6); human rights of women (6); media (5); power and decision-making (5) and three countries include references to gender, women or gender machineries in each of the following: health; the girl child; and institutional mechanisms.

Those countries with the highest number of references to gender in any of the categories included, are Swaziland (12); the Gambia (10); Rwanda (9); and Zambia (8). While Ghana makes 7 references in its NICI and ICT for Accelerated Development policies combined, it is the only African country to have developed a separate stand-alone National Strategy on Gender and ICTs. [to be included].