February 8, 1995 ************************************************************ TELECOMMUNICATIONS TECHNOLOGY AND NATIVE AMERICANS: OPPORTUNITIES AND CHALLENGES ************************************************************ IMPORTANCE OF THE PROPOSAL ********************************* Native Americans--including American Indians and Alaska Natives-- face continuing challenges in achieving social and economic independence. Native communities typically are geographically remote and must cope with high levels of unemployment and social distress. Native Americans have a heritage of self-sufficiency, and are seeking to regain control over their lives and futures. The thrust of U.S.Government policy today is to assist Native Americans in their quest for self-determination, and to help them develop the community infrastructure that will support healthy families and viable local economies. Many Native American communities--including American Indian reservations and Alaska Native villages--are assuming responsibility for services and functions (e.g., education, health, public safety, and economic development) previously carried out by government agencies. In recent years, some Native American leaders have recognized the potential of telecommunications and computing technologies to help revitalize their communities. Farsighted leaders and grassroots activists have sponsored or conducted pilot tests, seminars, and small-scale projects that demonstrate how Native Americans can use these technologies to help improve their social and economic conditions. But at the same time, the pace of technological and policy changes has increased markedly and threatens to outstrip the fragile beginnings of Native American self-sufficiency in information technology. The United States--in both government and private sectors--is accelerating development of a national information infrastructure (NII). Some early elements of the NII, such as computer networking, are already rapidly expanding. Federal, State, and local governments are aggressively developing, testing, and, increasingly, implementing electronic delivery of services. There is great risk, however, that Native Americans--among other disadvantaged or distressed segments of U.S. society--will be bypassed by the NII and fail to capture the benefits of telecommunications and computing for their social and economic livelihood. This proposed study would focus on the factors and policy options that could help assure the effective participation of Native Americans--including American Indians and Alaska Natives--in the ongoing information technology revolution and bring the technology to bear in ways that would improve their communities, families, and economic prospects. ***************************************** CONGRESSIONAL AND RELATED INTEREST ***************************************** This proposed study is of direct interest to the Senate Committee on Indian Affairs, the requester. The Committee is exploring the potential of telecommunications technology to, for example, facilitate economic and social development in Native American communities. The study will likely be of interest to the House Committee on Natural Resources and its Subcommittee on Native American Affairs, that likewise desires to enhance the economic and social conditions of Native Americans. Aspects of the study focusing on access of Native Americans to elecommunications services and networks also will likely be of interest to committees with jurisdiction over telecommunications policies (e.g., SenateCommittee on Commerce, Science, and Transportation, House Committee on Energy and Commerce). Parts of the study examining opportunities for electronic delivery of Federal services to Native Americans also will likely be of interest to committees with jurisdiction over relevant services (e.g., for educational services, the Senate Committee on Labor and Human Resources and House Committee on Education and Labor). The study also will be of interest to those concerned about the economic and social conditions of Native Americans, and the use of information technology in meeting Native American needs, including: a) organizations representing the Nation's Native Americans; b) individual Native American communities, villages, and reservations; and c) government, consumer, self-help, business, economic development, and other groups and organizations involved with Native Americans. ********************************* SISTER AGENCY COORDINATION ********************************* GAO, CBO, and CRS are not conducting or planning studies on this topic. GAO and CRS are conducting studies on related issues such as American Indian housing, health care, and employment conditions. These study results will be used as background information to the extent appropriate. ***************************** TOPICS TO BE ADDRESSED ***************************** The study will focus on opportunities for Native Americans-- including American Indians and Alaska Natives--to use information technology to improve their social and economic conditions, and the policies and initiatives that could help them take advantage of opportunities identified. The study will address: 1. Native American traditions, culture, community, and governance relevant to use of information technology. From the outset, it is important to understand the factors that encourage or inhibit the use of information technology by Native Americans in their communities. Some factors may be generic to many technology users; others may be unique to Native Americans. The study will examine the roles of organizations and activists in using or promoting information technology at the grassroots level, including: schools and colleges; libraries; community centers; social service agencies; entrepreneurs; and telephone, cable, and computer companies. 2. Opportunities for application of telecommunication and computing technologies to meet Native American needs. Not all needs are relevant to, or can be addressed through, the application of technology. The key is to identify areas of need in which the use of information technology can be leveraged (along with other factors such as training and facilitators) to make a significant difference--at least in concept. This activity will include a review of prior research and pilot projects to determine the factors that will contribute to successful use of these technologies by Native Americans. The study will consider the range of technologies and issues outlined in OTA's 1993 report Making Government Work, as they apply to Native American communities. 3. Prospects for information technology-based economic development and job creation in Native American communities. High unemployment is a source and symptom of much distress among Native Americans. Lack of jobs contributes to near-poverty conditions and social problems for many. Inadequate education, health services, and community infrastructure impedes economic development. What is the combination of factors needed-- including appropriate use of information technology--to turn this situation around? What are the optimistic expectations for and realistic limitations on the role of information technology? The study will review current public and private sector technology- based activities directed toward improving the socio economic conditions of Native Americans. 4. Telecommunications and information policy issues and options relevant to Native Americans. Native Americans have a lot in common with people in rural and inner city areas when it comes to telecommunications and information policy. Policy development is historically driven by technology applications and industry initiatives to meet the needs of the more affluent sectors of American society--those with the greatest ability to pay for and use new technologies. The Federal Government, among others, has asserted itself through a variety of policies, regulations, and programs to help reduce the gap between economically or educationally advantaged citizens and those less so. These Federal policies and programs are under pressure from the rapid pace of technology and market advances, tightening fiscal constraints, and the growing movement to "reinvent" government. The study will address the following questions: What policy issues are most critically linked to preserving or improving the equity of access of Native Americans to telecommunication and computer technologies and to strengthening the ability of Native Americans to use these technologies for their own betterment? What current and prospective public policy initiatives on the national information infrastructure, telecommunications deregulation, and electronic service delivery could affect Native Americans and how? In what ways can telecommunications and information policies work most synergistically with programs for Native American community, educational, and economic development? How can information technology be used to improve the delivery of Federal services (e.g., health) to Native Americans, and to perhaps reinvent the roles of the responsible agencies (e.g., Indian Health Service, Bureau of Indian Affairs)? What policy options offer greatest leverage in helping the U.S. Government carry out its treaty and statutory obligations to Native Americans? What individual options, or combinations of options, warrant congressional consideration? To what extent can the policy conclusions from this study be generalized to other segments of American society? ******************* PROJECT PLAN ******************* The project will proceed in the following sequence: 1. Develop Project outreach strategy. At the outset, the project team will develop an outreach strategy, including establishment of means for electronic participation in the study. The project team will identify the people and organizations with a likely interest in the study, and will develop a strategy for involving them in the study process. Interested people and organizations will include, but not be limited to: individual Native American leaders andcitizens, including American Indians and Alaska Natives; groups and organizations directly representing Native Americans; consumer, self-help, business, local government, and advocacy organizations that work with Native Americans; academic and not-for-profit researchers who study Native America; and government agencies that administer programs for or provide services to Native Americans. 2. Conduct research review. The project team will review relevant academic, governmental, commercial, and grass roots literature and research to assure that the project builds on prior work and maximizes the use of scarce resources. This will include consideration of results of prior relevant OTA studies (e.g., Electronic Enterprise, 1994, pending; Making Government Work, 1993; Rural America at the Crossroads, 1991; Health Care in Rural America, 1990; Indian Health Care, 1986). 3. Select project advisory panel. The project will include an advisory panel that represents a cross-section of views, expertise, and experience relevant to the study. Panelists will include diverse perspectives such as: technology novices as well as innovators; end users; community leaders and facilitators (e.g., from local schools); historians and researchers on Native American cultures; business entrepreneurs from within and outside Native American communities; young and old Native Americans; providers of service to Native American communities; and telecommunication and computer companies. The panel is expected to meet twice during the course of the study--at an early stage to discuss the overall project plan and priorities; and towards the end of the study to discuss work in progress and draft study results. The panel will be afforded the opportunity to review and comment on a draft report. 4. Develop targeted research strategy. The project team will develop a detailed strategy for addressing key research topics. The strategy will include a mix of inhouse research, electronic outreach, contract research, case studies, and site visits. 5. Implement research strategy and integrate research results. The project team will integrate and synthesize the results of inhouse and contractor research, interviews, site visits, and any other research activities. 6. Analyze policy implications and options. The project team will analyze all available information and research results to identify and discuss policy implications, issues, and options. 7. Prepare draft report. The project team then will prepare a draft report on the tentative results of the study. 8. Conduct review of the draft report. The project team will circulate draft materials to the advisory panelists and a cross- section of other interested persons and organizations participating in the study. 9. Revise draft report. The project team will revise the draft, based on all comments received, and forward the draft to OTA senior management for review and approval, and thence to TAB