Investing in what already works: Public access institutions as drivers of digital equity

Stephen Wyber argues that digital inclusion cannot be achieved through a purely top-down, supply-side approach. Libraries and post offices serve as essential local intermediaries that localise digital inclusion strategies and ensure they are place-based, reaching every community rather than just those with existing access.

Wyber emphasises that the possibilities the internet brings need to be available to everyone, not just those fortunate enough to attend events like those in Geneva , and stresses the need to use every resource, actor, and infrastructure available to achieve digital inclusion goals . He credits the concept of place-based digital inclusion to Kevin from UPU and highlights that this localising function is as valuable as ever, even as universal connectivity approaches .

Wyber contends that libraries are uniquely suited to support meaningful connectivity because they are non-commercial spaces where no purchase is required to access services, unlike commercial venues such as coffee shops. They are familiar, trusted institutions with centuries of community presence, professionally staffed, and serve multiple purposes for diverse community needs.

Wyber contrasts the library with a commercial setting, noting that unlike going to Starbucks where you need to buy a coffee or muffin to use the internet, the library asks nothing of you and has no one trying to sell you anything . He notes libraries are multi-purpose, with visitors coming for research, health information, quiet space, or story time, and highlights that there are approximately three million libraries worldwide, including half a million public and community libraries, meaning this infrastructure does not need to be built anew .

Wyber presents findings from IFLA's desk-based research showing that a substantial proportion of Universal Service and Access Funds already explicitly reference libraries, indicating that using libraries as vehicles for digital inclusion is not a new idea. This existing body of evidence provides a strong foundation for further research and advocacy.

The research examined 66 USAFs and found that almost half - 29 - explicitly refer to libraries either currently or in past programmes, demonstrating an extensive experience of working through libraries . A further 25 funds reference the types of services that libraries can provide even without explicitly naming libraries, and only 12 focus solely on providing subsidised access or backbone infrastructure .

Wyber interprets the combined findings — that 29 funds explicitly mention libraries and a further 25 reference library-type services — as evidence that a large majority of USAFs are investing in meaningful connectivity rather than just physical infrastructure. He views this as a positive sign that the sector is moving beyond simply ticking a box on coverage.

Wyber notes that when combining the 29 funds that explicitly mention libraries with the 25 that reference library-type services, approximately 80% of the USAFs studied are investing in making connectivity meaningful rather than just providing backbone infrastructure . He contrasts meaningful connectivity - improving literacy, accessing jobs, engaging in e-commerce - with simply having a phone or subscription .

Wyber highlights Chile as a particularly strong example of a country where USF investment in libraries went beyond simple connectivity to establish libraries as hubs within community networks. This model demonstrates how USF investment can be structured to maximise the impact of public access institutions.

Wyber cites Chile as a great example not just of building connections to libraries but also of setting them up to be hubs within community networks , presenting it as a model for how meaningful public access can be structured through USF investment.

Wyber highlights Electronic Information for Libraries (EIFL) as a partner organisation that provides a strong model for how libraries can work collaboratively with USAFs and telecoms regulators to deliver meaningful access. Their work spans multiple African countries and addresses both connectivity and the broader ecosystem of content, programming, and skills.

Wyber notes that EIFL has been very in Uganda, Tanzania, and Kenya, working to co-create programmes that both connect libraries and ensure that content, programming, and skills are in place to deliver meaningful access . He also references specific examples including kitting out public access libraries in Uganda, developing a mobile library digital skills programme in Ghana, connecting all libraries under the Kenyan National Library Service, and launching new programmes in Malawi, Zambia, and Tanzania .

Wyber offers a tentative hypothesis that governments which decentralise more funding to local authorities may be better positioned to coordinate sustainable support for public access institutions, as this enables stronger local coordination. However, he is careful to note this is an instinctive reaction that would need to be tested empirically.

Wyber draws on the example of libraries being sent clients by job centres without receiving any corresponding budget from the ministry of employment, contrasting this with an ideal situation where a share of the ministry's budget flows to libraries and post offices to fulfil this role . He suggests that governments which decentralise more money to local authorities may be better placed to achieve this coordination, but explicitly states this would need to be tested .

Wyber acknowledges a significant limitation of IFLA's research: it is based on publicly available documents and does not reflect actual on-the-ground experience. He argues that what is printed on the internet is not the same as lived experience, and that deeper qualitative research is needed to understand success factors, barriers, and enablers.

Wyber explicitly states that the research is desk-based - drawing on what is printed on the internet - and that this is not the same as experience, meaning there is substantial work to be done to understand success factors, supporters, and detractors . He notes that the research implies there is a critical mass of evidence and experience that could be brought together to inform global conversations about what USAFs can look like .

Wyber argues that measuring digital inclusion requires moving well beyond simple connectivity indicators such as upload and download speeds. A deeper, more nuanced understanding of what meaningful connectivity enables — in terms of real improvements to people's lives — is needed to properly evaluate the impact of public access investments.

Wyber states that meaningful universal service is not just about ticking a box and saying someone has a phone, a subscription, or can send an email, but about whether people are able to improve their literacy, access jobs, and engage in e-commerce . He further notes the need to move beyond metrics like one up, two down to a much deeper and more nuanced understanding of what meaningful connectivity is and what makes it happen .

Wyber points to the WSIS Plus 20 outcome document as providing formal recognition and a mandate for working with post offices and libraries as public access infrastructures. He argues that this recognition must now be translated into a concrete research and action agenda over the next nine and a half years until the next WSIS review.

Wyber references the outcome document from the WSIS Plus 20 process, which reaffirms the importance of connecting post offices and libraries as public access infrastructures . He notes there are approximately nine and a half years until the next WSIS review process, framing this as a fundamental challenge and opportunity to define what public access looks like in the third WSIS decade .

Wyber argues that the relationship between libraries and USAFs should be bidirectional: it is not enough for libraries to advocate for inclusion in USAFs, but the sector must also listen to what USAFs and digital inclusion programmes need from libraries. This learning process would allow libraries to tailor and adapt their services more effectively.

Wyber states that it would be incredibly powerful for the library sector to hear from USAFs about what they need, and from digital inclusion programmes within government about what they need from libraries, so that the sector can learn how to tailor and adapt its services most effectively .

Xianhong Hu explains that UNESCO's work on digital inclusion is structured around four pillars: ensuring freedom of expression, providing universal access to information and knowledge, respecting cultural and linguistic diversity, and ensuring quality education for all. Libraries and public access institutions underpin all four of these pillars, making them central to UNESCO's digital inclusion mandate.

Hu describes UNESCO's four pillars of work - freedom of expression, universal access to information and knowledge, cultural and linguistic diversity, and quality education for all - and states that libraries and public access institutions underpin all four . She also references UNESCO's Global Roadmap for Advancing Multilingualism in the Digital Era, which consists of 45 concrete time-bound actions and highlights an updated role for libraries in the digital age .

Hu highlights the persistent scale of the global digital divide, noting that despite two decades of the WSIS process, more than 2 billion people remain unconnected. She emphasises that the burden of digital exclusion falls disproportionately on already marginalised groups.

Hu states that even today, an estimated more than 2 billion people are not connected, meaning they are being digitally excluded . She identifies the majority of unconnected populations as women, girls, minorities including linguistic minorities, persons with disabilities, and indigenous peoples , and notes that the global digital divide and global inequality continue to persist despite 20 years of the WSIS process .

Hu proposes that UNESCO can add unique value by leveraging its platform of 194 member states to disseminate good practices from countries like Zimbabwe and Kenya, where post offices have been transformed into digital inclusion agencies. She suggests a potential policy brief, similar to the one co-produced with IFLA, to highlight the updated role of post offices in inclusive digital transformation.

Hu notes it was her first time hearing about what has been happening in Zimbabwe and Kenya, and suggests that if these good practices of transforming post offices into digital inclusion agencies can be delivered to more countries, UNESCO's platform of 194 member states would be well placed to do so . She proposes considering a research publication or policy brief on the updated role of post offices, similar to the IFAP issue brief co-produced with IFLA on mobilising the global library network , and emphasises the unique value of post offices in involving women, minorities, and vulnerable communities .

Hu argues that raising awareness among national policymakers and governments about the important role of public access institutions in digital transformation is crucial. She calls for this to be reflected in competency frameworks so that support for public access institutions is highlighted as a priority within national digital transformation agendas.

Hu states that ongoing work to enhance the capacity of the public sector in digital transformation and AI is crucial, and that there is a need to advocate and raise awareness among national policymakers and governments about the important role of public access institutions . She argues that national governments need to prioritise funding and support for the transformation of these public institutions, and that competency frameworks should include this element so that support for public access is highlighted as a national digital transformation priority .

Hu grounds the entire discussion in the fundamental principle that information is a public good. She argues that this principle should guide technology investment, ensuring it is oriented towards meaningful connectivity, empowerment, and development rather than simply increasing connectivity metrics.

Hu states that all the discussion is built on a fundamental belief that information is a public good, and that this is why the promotion of technology should not be for technology per se or for connection per se, but for meaningful connectivity and empowerment . She expresses appreciation for the work of IFLA and UPU in embodying this principle .

Kevin Hernández argues that post offices are especially well placed to promote digital inclusion because of their unparalleled geographic reach, particularly in rural and underserved areas. This reach is underpinned by an international treaty commitment to universal postal service across 192 member states.

Hernández notes there are over 650,000 post offices globally, with the majority located in rural areas precisely where people are less likely to be online, especially in developing regions where USFs are most used . He explains this reach is guaranteed by the universal service convention, a treaty whereby 192 member states have committed to provide at least basic postal services to everyone within their national territory, incentivising post offices to open in places where few other service providers have a presence .

Hernández highlights that post offices already play a major role in financial inclusion, serving as the second largest contributor globally after commercial banks. This existing role in financial services demonstrates the trust communities place in post offices and their capacity to deliver essential services to underserved populations.

Hernández states that posts are already the second largest contributor to financial inclusion in the world behind commercial banks, with more than one billion people relying on posts for financial services, and with women and rural populations making up a majority of postal bank customers . He also notes that data from over 150 economies show that 71% of posts offer e-commerce services, 58% offer digital financial services, 51% offer e-government services, and 70% provide at least one digital connectivity service .

Hernández presents findings from UPU's analysis of 113 USAFs, revealing that anchor institutions other than schools are significantly under-prioritised in USF mandates. Post offices in particular are rarely explicitly named as eligible recipients of USF financing, despite their strong alignment with USF goals.

The UPU study analysed publicly available information from 113 USFs across economies labelled as operational by the ITU . The findings show that schools were mentioned by at least 62% of USFs, libraries by only 28%, and post offices by only 15%, with only 10% mentioning all three .

Hernández argues that while post offices are rarely explicitly named in USF documents, a much larger proportion of funds contain indirect pathways through which post office connectivity could be financed. However, he cautions that the existence of these pathways does not guarantee they will be used without targeted awareness-building and advocacy.

When taking a broader approach to consider activities that post offices are well placed to deliver - such as one-stop shops, multi-channel service delivery, and shared access points - 78% of USFs were found to have at least an indirect pathway to finance post office connectivity, with telecentres and public Wi-Fi being the most popular indirect pathways . Hernández notes that this does not necessarily mean governments or USFs will relate these activities to post offices, so awareness building and advocacy are still needed .

Hernández highlights a notable finding that the proportion of USFs actively financing post office connectivity in practice exceeds the proportion that explicitly name post offices as eligible. This suggests some USFs are recognising the potential of post offices through indirect mechanisms, even without formal policy language.

Evidence of USFs actively financing post office connectivity was found in 23% of the USFs studied, which was larger than the proportion that explicitly named post offices as eligible for funding . Hernández notes this suggests some USFs are recognising the potential role of post offices through indirect mechanisms or pathways, though he cautions that some examples were historical and that these figures do not necessarily indicate the projects were successful .

Hernández identifies a systemic problem with USF financing: funds are predominantly used for capital expenditure such as equipment and construction, while the ongoing operational costs needed to keep facilities running are frequently overlooked. This creates a structural sustainability gap that causes programmes to fail over time.

Hernández states that historically USFs have had an issue where they mostly fund CAPEX while OPEX is often ignored, and that the majority of examples he found were also focused on CAPEX . He notes that while the policy and legal documents of most USFs do state they will fund OPEX, following the money reveals that this rarely happens in practice .

Hernández presents Zimbabwe as a strong example of a country that used its USF to systematically transform existing post office infrastructure into digital service centres. The government recognised that upgrading existing rural post offices was more cost-effective than building new telecentres from scratch.

In Zimbabwe, the USF financed the transformation of over 200 post offices into digital centres, previously known as community information centres, with over 70% located in rural areas . The government determined it was much cheaper to upgrade existing rural post offices than to establish new telecentres from scratch, and rural residents can now visit these digital centres to access the internet, receive digital skills training, access e-government services, and in some locations access telemedicine services and remote diagnostics .

Hernández highlights Mauritius as an example where USF investment transformed post offices into digital service centres, enabling citizens to access a wide range of e-government services with the assistance of postal staff. This model demonstrates how post offices can serve as human-assisted digital access points for government services.

In Mauritius, the USF financed the digital upgrading of 97 post offices, transforming them into digital service centres for e-government services, providing citizens with access to a wide range of services including driving and transport services, business services, services for farmers, and social benefits, all with the assistance of postal staff .

Hernández presents Botswana as an example where post offices were already providing digital services and the USF was used to extend this network by constructing and connecting additional post offices in rural areas. This allowed more rural residents to access digital financial and e-government services face-to-face.

In Botswana, post offices were already providing a range of digital services, and the USF financed the construction of new post offices and the connectivity of additional post offices to extend the reach of these services to rural areas . The services available included digital financial services such as insurance, e-government services like licence renewal and utility payments, and e-commerce services for MSMEs .

Hernández explains that the UPU actively promotes a model that goes beyond simply connecting post offices, pairing connectivity with the introduction of revenue-generating digital services. This approach is designed to create a financially sustainable basis for ongoing operations rather than relying solely on external funding.

Hernández states that the UPU promotes a model where not only is the post office connected, but digital services are offered that can bring in revenue, including e-commerce services, digital financial services, and e-government services . He notes the UPU is already working on projects in Africa and the Caribbean that both connect post offices and expand e-government, digital financial, and e-commerce services to newly connected post offices .

Hernández recommends that governments and development partners formally recognise post offices and other anchor institutions such as libraries as enablers of digital inclusion, given their existing local presence, trusted staff, and community links. He stresses that investment must go beyond connectivity to include staff skills and institutional capacity.

Hernández recommends that governments and development partners recognise post offices and other anchor institutions like libraries as enablers for digital inclusion, noting they already have local presence, trusted staff, and links to communities that are often harder to reach . He states that using existing networks can reduce the cost of implementing digital inclusion activities, but only if these institutions are equipped to play this role through investment in staff skills and institutional capacity, not just connectivity .

Hernández cautions that USFs alone are unlikely to be sufficient to achieve digital inclusion goals, particularly where they are small, underutilised, or prone to mismanagement. He recommends treating USFs as one component of a broader and more diversified financing mix.

Hernández states that USFs can support digital inclusion where their mandates align, especially for connectivity, public access, and digital skills, but that USFs are unlikely to be sufficient on their own, especially where they are small, underutilised, or prone to mismanagement . He recommends that USFs be treated as part of a broader financing mix alongside national digital transformation budgets, e-government programmes, development partner support, public-private partnerships, and multilateral development bank financing .

Hernández welcomes UNESCO's proposal to collaborate on a policy brief focused on the connectivity of anchor institutions, viewing it as a concrete and valuable next step for advancing the shared agenda. He frames this as a natural continuation of the co-developed research and action agenda emerging from the session.

Hernández states that the UPU would really welcome working on a policy brief with UNESCO on the connectivity of anchor institutions, describing it as an amazing idea . He expresses enthusiasm for taking forward the agenda co-developed during the session .

A participant raises the practical challenge of sustainability after initial USF investment ends, noting that local governments are frequently reluctant to assume responsibility for ongoing costs. This creates a structural gap between the initial capital investment and the long-term operational needs of public access facilities.

The participant describes facing this challenge with municipalities being reluctant to take over some Wi-Fi access points and fund them after initial USF investment . They also reference the example of buildings in Georgia in remote areas that needed renovation, raising the question of who bears responsibility and what the best local ownership models for sustainability are .

A participant from Kenya's Universal Services Fund describes a recurring pattern where USF financing covers capital expenditure such as computers, but operational costs like electricity bills are not planned for. This causes programmes to collapse when facilities cannot pay their running costs.

Denis, Director for Universal Services Fund in Kenya, describes financing CAPEX for initiatives with the National Library Services and postal centres, but notes that most facilities are owned by national or county government without any express plans for financing operations . He gives the specific example that when computers are introduced, power consumption increases, but facilities end up without power because electricity bills are not planned for and the programme simply crashes .

The participant from Kenya proposes a self-sustaining model for public access centres that integrates multiple revenue-generating and cost-reducing elements, including e-commerce ecosystems, e-mobility infrastructure, and renewable energy. This model aims to reduce dependency on government or community funding by creating an economically viable hub.

Denis describes looking at a strategy for a self-sustaining model that does not create dependency on either the community or the government, built around an ecosystem for e-commerce that allows centres to become e-commerce hubs . He references the growing pattern in Kenya of heavy dependency on electric bikes for goods delivery, which creates demand for charging infrastructure, and proposes linking this to renewable energy as a mechanism for creating a self-sustaining hub within the post office .

A participant raises the critical question of how to evaluate whether digital inclusion initiatives are achieving meaningful outcomes beyond simply increasing connectivity. She argues that this requires dedicated research partnerships with universities and research organisations, particularly as current work represents only a first phase.

Dr Katerina Hanouf from the Ukrainian-French Institute for Science, Innovation and Development asks how the organisations plan to evaluate whether these initiatives are actually improving meaningful digital inclusion rather than simply increasing connectivity . She notes that the current work is only a first phase and asks what kinds of partners - including universities and research organisations - are being sought for the next phase .