The Getting Illinois Low Income Seniors and People with Disabilities Online Demonstration BTOP SBA project: A Case Study

Don Samuelson and Jim Ciesla
Northern Illinois University

Introduction

Broadband Technology Opportunities Program (BTOP), Sustainable Broadband Adoption (SBA) Projects

The American Recovery and Reinvestment Act (ARRA) of 2009 provided the United States Department of Commerce, National Telecommunications and Information Administration (NTIA) and the U.S. Department of Agriculture’s Rural Utilities Service (RUS) with 7.2 billion dollars to expand access to broadband services throughout the country. Of those funds, the Act provided 4.7 billion dollars to NTIA to “support the deployment of broadband infrastructure, enhance and expand public computer centers, encourage sustainable adoption of broadband service, and develop and maintain a nationwide public map of broadband service capability and availability.” NTIA was required to make all grant awards by September 30, 2010 and has done so accordingly.

Based on this legislation the NTIA developed and now administers the Broadband Technology Opportunities Program (BTOP) which is the federal funding mechanism for three project categories: (1) comprehensive community infrastructure, (2) public computer centers, and (3) sustainable broadband adoption (SBA). The public policy objective of these projects is to increase broadband Internet usage and adoption, especially to vulnerable populations where broadband technology traditionally has been underutilized. Many of these projects include digital literacy training and outreach campaigns to increase the relevance of broadband in people’s everyday lives.

Elders, Socioeconomic Status, Disabilities and Computer Use

It is well known that the digital divide refers to the gap between people with effective access to digital and information technology and those with very limited or no access at all (Servon, 2002). It includes the imbalance both in physical access to technology and the resources and skills needed to effectively participate as a digital citizen (Compaine, 2001). Nowhere is the “digital divide” more starkly apparent in the United States than between the old and young. While 89 percent of adults 18 to 29 years old use computers and 95 percent regularly use the Internet, among those 65 years old and older only 42 percent use computers and 40 percent use the Internet (U.S. Census, 2011). Among adults with home internet access 80 percent of 18 to 29 year olds connect via broad band but only 31 percent of those older than 65 do so by broadband (U.S. Census, 2011). The digital divide is also a prominent barrier based on household income. While 96 percent those living in households with incomes over $75,000 use computers and 95 percent access the Internet regularly, only 58 and 63 percent of those living in households with annual incomes of less than $30,000 use computers and the Internet, respectively (U.S. Census, 2011).

Members of minority groups are also prominent in the digital divide. For example Latino and black Americans are less likely than whites to access the internet and to have a home broadband connection. While about two-thirds of Latino (65%) and black (66%) adults went online in 2010, more than three-fourths (77%) of white adults did so. In terms of broadband use at home, there is a large gap between Latinos (45%) and whites (65%), and the rate among blacks (52%) is somewhat higher than that of Latinos (Pew Commission, 2011).

A very low percentage of poor, lesser educated, or minority seniors go online. While complete statistical profiles on computer use and Internet access in specific underserved populations are either nonexistent or incomplete, it is reasonable to assume that people in these groups are far less likely to have computer skills, own a computer and effectively use the Internet. A recent survey of elders living in low income housing developments in Illinois showed that less than 5 percent currently use broadband. If the results of this survey are valid, for all practical purposes, low income seniors in Illinois are not using the Internet. This vulnerable population is missing out on the many educational, job training, informational and health benefits that Internet usage can bring. That, in turn, costs American society.

The Getting Illinois Low Income Seniors and People with Disabilities Online Project

Given the demographics of the digital divide and given the legislative and programmatic framework described above, the Getting Illinois Low Income Seniors and People with Disabilities Online demonstration BTOP SBA project, the” Internet training program,” was conceived, designed, funded and implemented. Briefly stated, the goal of the Internet training program was to get approximately 3,000 low income seniors and people with disabilities who live in 23 public housing facilities, subsidized housing buildings in the Northern portion of Illinois engaged in regular and sustained computer and Internet use. This goal is to be achieved by installing computer centers in the 23 housing communities, installing permanent Internet connectivity, implementing a unique program of customized computer training developed by the grant applicant, and giving people who successfully complete the training program free computers. Given the Project’s origin in the ARRA economic stimulus legislation the project was designed to create over 100 jobs. A final goal of the Program was to develop a model of best practices that would be thoroughly formalized and documented and thereby made transferrable to other state coalitions attempting similar efforts. In order to achieve this final goal, the program has secured the services of university-based researchers who are conducting a thorough program evaluation and who are disseminating the model of best practices to the academic and lay communities.

The Internet training program has been implemented in a portfolio of 23 HUD and public housing buildings in Rock Island, Moline, Henry County, Rockford, DeKalb, Grundy County, Joliet, Oak Park, Kankakee and Chicago, Illinois. The value proposition of an on-site and staffed computer learning center in each building, with a broadband network, and free computers and connectivity to residents was of interest to the housing owners.

The Outline of the Internet Training Program

The primary emphasis of the Internet training program is to get the seniors excited about the benefits of being online and using the Internet. The end result is to get them to a “Driver’s License” level of skill to use on the Information Superhighway— not to train them for Indy or Nascar racing at one extreme but hopefully not to park the car in the garage at the other extreme. Internet training program encourages seniors to drive on and fully explore the Information Superhighway. The choice of the nature, speed or destination of their driving objectives is up to them. The critical distinction is between being “online” and “offline.” Once the senior is online, the possibilities for driving trips are virtually endless.

Getting and Using the Driver’s License on the Information Superhighway

Phases of the Program

There are five phases in the Internet training program in getting the Driver’s License. The first is to get program participants to understand and appreciate the practical benefits of Internet use. This is done by illustrating real life examples of how other seniors are using the Internet to do practical things: using e-mail with children and grandchildren, having video chats with friends and neighbors, accessing information through Google, keeping up with news, hobbies and other interests, communicating with government and health care resources. The second is to develop a program participant profile with background information and current interests, as well as an assessment of current Internet uses and a description of things to do. What have the participants been doing with their pre-Internet lives? How have they spent their time? What do the find of interest? The third is to engage the participants in a structured but self-paced training program that will move seniors through a curriculum designed to achieve Internet literacy and skills. The training program has to be relevant to the learning objectives of the seniors. There have to be early successes and “Aha” moments. The fourth consists of periodic assessments along the way so that the end of the program real skills are achieved which are relevant to the interests of the program participant. This involves not only the receipt of the Driver’s License but its use in getting to desired destination. The fifth and final phase consists of personal “travel” consultation which will help the program participant learn the additional skills to navigate the Internet in ways of particular interest to them. This is when the training program converts itself to something of a “Travel Agent” function, explaining destinations and the best ways of getting there.

Implementation of the Program

There are three critical elements in the design and implementation of an effective Internet adoption program for seniors living in senior housing communities. The first involves the development of a solid baseline of information on all of the residents in the building which can function as a starting point. This will include: (1) demographic and background information; (2) surveys on their existing familiarity with typing, computers and the Internet; and (3) questions on their initial thoughts on how computers and the Internet might be helpful to them and which Internet skills and applications they would like to develop and use. The second involves training and the intervention strategies, the approaches and programs use to raise the awareness levels of participants with respect to the personal and practical benefits that could result from the development of Internet skills, and the use of broadband and applications. It involves a combination of off-line and on-line training in developing those skills in a combination of large group presentations, small group training, and one-on-one sessions in both classroom setting and the computer lab. Ultimately, most of the training will be on-line and self-paced, directly to the participants in their apartment units. The third involves ongoing and post-program evaluation. What Internet skills were actually developed? How are the skills being used? What testing and assessments were done, how and when? Did off-line seniors become on-line Internet subscribers? What did it take in terms of cost to convert a previously off-line resident to an active user with an Internet account? A certification of a Driver’s License” level of computer and Internet competence for travel on the Information Superhighway? And finally more general questions about the program are important components of the evaluation, such as: What can be done to make awareness-raising efforts, the education and training and the sustained use of the Internet more efficient and fun? How can the overall process be improved? How can it become more cost-effective? Were the increases in the appreciation and use of the Internet results justified by the costs?

Developing the Base Line of Information:

The BTOP Sustainable Broadband Adoption (“SBA”) application lists a number of categories for which information is to be collected: age/birthdate, ethnicity, gender, household income, educational achievement, the nature of disabilities, the employment status of the individual and the primary and secondary language of the seniors. The information creates a simple baseline for the demographic profile of a user community. More information would be useful in actually implementing a program: the name of the individual, the unit number, marital status, number of years living in the building, family and friends, prior residence locations, education, work experience and hobbies – any of which could suggest areas of interest that could be supported by the use of email and the Internet. The background survey information on the senior can be gathered during an informal discussion, over coffee. No computer need be involved. The other goal of this discussion is to make a human connection and to promote bonding and trust between the potential program participant, the training program and the trainer. The importance of the personality and teaching skills of the trainer to the success of the awareness raising and training programs cannot be overestimated.

A second category of information to be collected relates to the prior experience of the senior with typing, adding machines and other office equipment, and with business or office work experienced in informal or volunteer settings. Experience in organizing holiday dinners, picnics, family reunions are examples of organizational skills that may be not be thought of as such. The informal one-on-one conversations will lead into all sort of background information that has relevance to the underlying importance of Internet adoption, if not to the obvious utility of those skills and experiences. These points can be made later in classroom settings, in computer labs or in conversations over coffee or “around the water cooler.” The Internet can make current instances of these types of prior experiences of this type better, faster and easier.

These conversations should also involve questions about computer experiences at school, home or work, the interest of the senior in developing or improving Internet skills or specific questions about a cell phone, obtaining an email address, or the use of the computer or the Internet. The last question will ask the senior to assess their own computer/Internet skills on a likert-type scale. The goal is to determine Internet literacy prior to the introduction of awareness-raising or training.

The third category of information to be generated by the survey relates to the expression of the initial interest of each senior in the development of specific Internet skills: (1) connecting to children and grandchildren; (2) setting up an email account; (3) sending and receiving email messages; (4) attaching documents and photos to messages; (5) learning to use Google and other search engines; (6) accessing information on healthcare, Medicare, Medicaid and drug programs; (7) budgeting, banking and paying bills; (8) accessing online games and entertainment; (9) accessing government financial support program; and (1) connecting to hobbies and interest groups. Solitaire, Scrabble and other online games are used to teach pointing, clicking and dragging mouse and cursor skills. The overall goal of the discussion of these skills and applications are to enable the senior to see the benefits of the Internet as real, practical, personal and fun – the joy of learning.

The Goal of the Intervention Strategy:

The basic goal of the intervention strategy – or training – is to illustrate the practical benefits of the Internet in sufficiently practical terms so that the seniors will see personal through a progression of interim steps to become and active user of the Internet and a subscriber to a broadband Internet service.

The Design of the Training Process:

Crossing the digital divide in a process not an event or single act. The BTOP applications recognizes that there are a number of steps involved in crossing the digital divide and being active online. There are seven specific steps to help a senior from being off-line and digitally uninformed about the benefits of the Internet to being an active Internet user and subscriber.

Step One – Awareness Raising: The first step is to use normal communications like flyers, printed materials, “announcements,” group meetings and “buzz” to explain the benefits of broadband and Internet use that seniors have experienced in using the Internet. This is a general explanation of Internet benefits, so that seniors can identify areas of possible personal benefits to them. These materials can be available on video monitors in places where seniors congregate – lobby, community room, etc.

Step Two – Particularizing the Benefits to the Individual: The second step is to make an assessment of the individual’s off-line interests and experiences as well as the basic level of comfort with computers and the Internet. This helps to determine how the senior’s existing interests might be enhanced through the Internet and to engage in a friendly, non-technical discussion of how the use of a computer and the Internet might help the individual to more fully explore existing interests and develop complementary ones. Steps one and two are awareness raising activities, to illustrate personal and practical Internet benefits.

Step Three – Education and Training: The third step is to develop the basic knowledge and skills to be comfortable using a computer (mouse, cursor, keyboard, etc.) as well as how to access the basic application programs and the web. This involves the implementation of a learning curriculum with large and small group meetings, classes, computer labs and one-on-one tutoring using on-line materials and handouts illustrating the learning program. The process utilizes senior-friendly training programs and other applications oriented to beginners and first time users.

Step Four – The Initial Evaluations of Student Progress: Each of the lessons should include opportunities to demonstrate the understanding of the materials in that lesson. At the end of each lessons there should be a review of the course to assure that the participant understands and is competent with the skills required to receive a “Driver’s License” and a computer to be used in their own apartment. There are several purposes for these evaluations. First, it is important to make sure the training is effective. Second, it is important to make sure that the skills and understandings are being realized. Finally, it is important to “reward” the senor with tangible evidence of their success at learning a new skill, in a type of “graduation ceremony.”

Step Five – Certificate of Achievement and the Receipt of a Computer: The fifth step involves the certificate of achievement, the “Driver’s License on the Information Superhighway.” This entitles the resident to a computer for their apartment and broadband connectivity. It is reasonable to require the recipients of a free computer and free Internet connectivity for two years to demonstrate their commitment by starting and completing a learning program through a combination of on-site training in a CLC and a “virtual program” using distance learning programs specifically designed for seniors and their interests. The objective of this step is to the individual to demonstrate sufficient knowledge and skill, like with a normal driver’s license, to be awarded a “Driver’s License” to be used on the Information Superhighway.

Step Six – Actively Using the Internet: This is the step when the use of the Internet becomes part of the everyday routine, like waking up with coffee, reading the newspaper or using the phone. It’s important to have a computer in one’s home so that everyday use of the Internet can become part of the everyday routine, to be used at times when offices, libraries and on-site CLCs are not open. By this time, the senior has crossed the Digital Divide and has “adopted” the Internet as a working tool in their everyday lives.

Step Seven – Becoming a Subscriber: The final step is for the senior to conclude that the Internet has demonstrated its value so that the senior regards it as a priority expenditure in the budget, whether fully paid for by the senior, or paying the remainder of the cost after the application of subsidies through the Universal Service Fund or the property budget. For seniors who can’t or won’t pay the subscription cost, there is always the option of using the on-site computer learning center and becoming an “active user,” like someone who prefers to use the public library rather than buying their own books. The overall program was directed to enabling seniors to see the value proposition.

Concluding Comments

At the time of this writing, the Internet training program is almost fully implemented and the program evaluation is ongoing. The evaluation will lead to a full-length report that characterizes the program and describes its major successes. Anecdotal evidence suggests that the participants “bond” with the trainer through the use of one-on-one interviews directed to the resident’s experiences and interests. The group discussions on Internet applications and topics of general interest helped to promote understanding of the practical values of the Internet. Initially, the use of the Internet was simply a way to gather information of interest to residents. But getting online quickly and communicating easily and cheaply with children, grandchildren and friends seems to make the whole exercise practical to the participants.

References

American Recovery and Reinvestment Act of 2009, Pub. L. No. 111-5, § 2, 104 Stat. 328 (1991).

Compaine, B. M. (2001). The Digital Divide: Facing a Crisis or Creating a Myth? Cambridge, Massachusetts: MIT Press.

Pew Commission, The (2011). The Social Life of Health Information. Pew Research Center’s Internet & American Life Project. Washington, D.C.

Servon, L. (2002). Bridging the Digital Divide: Technology, Community, and Public Policy. Malden, MA: Blackwell.

United States Bureau of the Census (2011). Adult Computer and internet usesrs: Select characteristics 2000-2010. U.S. Census Bureau, Statistical Abstract of the United States.

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Don S. Samuelson has 40 years of experience in the development, ownership, construction, marketing, management and redevelopment of all forms of government assisted housing for families and seniors – state finance agencies, HUD and public housing authorities. This experience includes the development and management of on-site computer learning centers for residents of these facilities and people in the surrounding communities. He partnered with Connected Living® to develop the BTOP award that created the Getting Illinois Low Income Seniors and People with Disabilities Online demonstration project and he serves as a consultant and evaluator to the project. He is a graduate of Dartmouth University and the University of Chicago Law School and he served as a Peace Corps Volunteer.

Jim Ciesla, a health economist, is a professor in the Public Health and Health Education Programs at Northern Illinois University. His area of scholarly interest is the outcomes of treatment and services for people in disadvantaged populations. He is the author of numerous refereed publications in this area. Dr. Ciesla has taught health economics and health care finance at NIU for seventeen years. He earned his Masters of health administration degree from Tulane University, and his Ph.D. in health economics and health services research from the University of South Carolina.