Totally wired: A look at rural broadband
RURAL communities risk being left behind by next generation broadband, writes Jessica Sellick.
The ‘Digital Britain’ Report (2009), a Green Paper published by The Department for Business Innovation and Skills (BIS) and The Department for Culture, Media and Sport (DCMS), made a number of recommendations with regard to broadband access, internet use and public service broadcasting. It included a proposal that every household in Britain should have access to a 2Mb broadband service by 2012 – possibly to be paid for by a levy on phone companies. The report builds upon two other policy documents: ‘New Industry, New Jobs’ and ‘Going for Growth’.
More recently, Communities and Local Government (CLG) produced a study on Next Generation Access (NGA) Risk (March 2010). The study identifies those areas most at risk of being left behind in the roll-out of NGA by 2012, 2015 and 2017 and characterises the nature of that risk. Interestingly, though an NGA coverage target of 90% by 2017 was stated in the Digital Britain report, the two supply side factors that contribute towards meeting or failing this target – distance and deprivation – are prevalent to rural areas. Specifically, the costs of roll-out in rural areas are higher because of the distances involved to reach properties and premises and deprived rural areas are less attractive to telecoms companies due to lower potential revenue.
The Guidance is accompanied by an ‘NGA data file’ that maps risk – from red (denotes an area considered a high priority for mitigating action) to green (denotes a watching brief is needed). The maps display this risk both spatially (at the level of Lower Super Output Areas) and alongside other datasets such as mobile network coverage or proximity to public services. Though CLG believes this data can assist government and stakeholders in formulating strategies, worryingly the maps show that in 2012 87% of the rural spatial units (representing 17% of UK households) will be classified as red; this figure will still be 65% by 2015.
Collectively, these policy documents illuminate the issue of digital exclusion and rurality. The Commission for Rural Communities (CRC) report ‘Mind the Gap’ found 60% of people living in areas most likely to see next generation broadband investments were almost exclusively in deeply urban areas. Similarly, research carried out by Ofcom found rural users were more likely than their urban counterparts to be dissatisfied with their overall broadband services and the speed of their service (14% compared with 8% respectively) – and these figures are based on existing landline infrastructure not NGA. Therefore, the RSN believes that the roll out of NGA and other digital infrastructure should not bypass rural areas in terms of implementation timetabling, speed, bandwidth or reliability. To illustrate the importance of connectivity to rural communities and the implications of continuing to open up the digital divide, I would like to make three points.
First, architecture. Where the market has deemed some (rural) areas non-viable to install broadband and NGA a number of community groups are developing unique strategies to overcome the digital divide. In terms of broadband, Northlew, a rural community on Dartmoor forgotten by mainstream broadband suppliers, has built its own broadband network with almost 200 subscribers. As a consequence of the project, BT is now providing a neighbouring village (Belstone) with broadband! In terms of NGA, I have visited a social enterprise called ‘Cybermoor’ in Alston Moor. ‘Cybermoor’ developed one of the first large scale broadband networks and though initially funded by a Government initiative called ‘wired up communities’ and the Northwest Regional Development Agency, it is now operating on a commercial basis. Cybermoor has provided many of the residents of Alston Moor with broadband, a PC, ICT training and support, a local television channel and a community website. Cybermoor is currently investigating opportunities around fibre-optic technologies.
Secondly, public services. The lack of access to digital technology and inadequate broadband leads to limited access to public services and the full range of social and economic benefits available (e.g. cheaper bills, access to NHS Direct online). I recently completed a project with West Devon, South Hams and Torridge Councils looking at the feasibility of using IT to deliver public services in smaller settlements across the three council areas. The project, The Village Hub – community access and information points, provided the Councils with costed and time bounded proposals setting out what an access and information point might look like, suggested locations where the facilities could be located and provided guidance on their implementation. The project drew upon thirteen examples from across England where IT had been used to deliver public services. These revealed that while IT can enhance existing service provision, any intervention requires community support (including a willing bank of local volunteers), needs to be located in the right places, involve multiple service providers working in partnership, and requires ongoing and sustainable technical, financial and service provider resources. The project also produced a Toolkit, providing practical guidance for local authorities, citizens and community and voluntary sector organisations interested in the Village Hub and looking to do something similar. Funding streams are now being investigated to move forward with a pilot and make the “village hub” a reality.
Thirdly, the digital divide and broadband/NGA requirements are not confined to the public sector (and the delivery of services) or community groups and citizens, but have real implications for the private sector, affecting the competiveness of rural businesses. In 2007, the East of England Development Agency (EEDA) launched a region-wide campaign aimed at improving and increasing business use of IT. Known as the “takeITon” campaign, the programme provides businesses with free practical support to help them with their IT, attendance at a series of workshops, produces ‘How-To’ videos, and provides them with access to a free consultation with a Business Link Advisor to give their business an ‘IT Health check’. Similarly, Warwickshire County Council’s “e-business programme” provides a series of events to guide businesses through the technology and marketing maze, an advisory service and one-to-one consultations to help businesses make the most of the technology it already has or introduce new systems. And yet these schemes, though welcome, do not address the shortcomings of the IT infrastructure needed to support their interventions. To overcome this, a new national broadband campaign ‘Final Third First’ (launched on 4 March), comprised of broadband organisations and wider community interests including Rural Community Broadband is lobbying the government to provide adequate and effective broadband access for the ‘final third’ of the UK which lacks this infrastructure. The campaign is aiming to address the 2Mb commitment set out in Digital Britain and lobby for NGA.
From the Government’s study of NGA Risk to community broadband schemes in Cumbria and Dartmoor; what is clear is that rural communities deserve equal access to these new technologies. And yet, without targeted programmes and resources, the roll out of these technologies will only serve to entrench existing (urban-rural) inequalities.
Finally, a cautionary note is needed here, because I believe broadband and NGA should not be viewed as ‘magic wands’. The digital future for rural communities is inextricably linked to issues around planning, economic development, agriculture, the environment, social care and so on. It is crucial that decision-makers do not impose online ‘solutions’ to offline ‘issues’ – ICT is a means rather than an end. While ICT can indeed deliver public goods in innovative ways, it should always be used to meet the needs and aspirations of rural communities.
Jessica Sellick is a rural consultant at Rose Regeneration. She can be contacted at jessica.sellick.roseregeneration.co.uk.
