rcdf - ucc: uganda communications commission

RCDFOperational Guidelines

2017/18–2021/22 (RCDF III)

Prepared by:

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RCDF Operational Guidelines 2017/18–2021/22 (RCDF III)

Contents

Abbreviations iii

1 Background 11.1 Introduction 11.2 Policy Context 11.2.1 The National Vision 2040 21.2.2 The National Development Plan II 21.2.3 The National ICT Policy 21.2.4 The National Broadband Strategy and the ICT Sector Investment Plan 31.2.5 RCDF Policies I and II 41.3 DefinitionofUniversalAccess/Service(UAS) 41.3.1 Unserved and Underserved Areas 51.4 ThePurposeofRCDF 61.5 ExternalDrivingForces 6

2 Strategic Direction 72.1 VisionandMission 72.2 KeyDefinitions 72.3 KeyOperationalPolicies 72.4 Governance 8

3 Strategic Programmes 103.1 ProgrammeAreas 103.1.1 Broadband Connectivity and Access Programme 103.1.2 Content Mediation Programme 103.1.3 Research and Advocacy Programme 113.2 ProgrammeTargets 113.2.1 The Current Situation 113.2.2 QuantifiedTargetsforRCDFIII 123.3 CostProjections 13

4 Environmental Risks and Mitigation 164.1 DifferentInterpretationsoftheLaw 164.2 ResponsibilityforRegulations 164.3 InconsistentNationalPolicies 164.4 InefficientMarkets 164.5 PoliticalPressurestowardsTacticalratherthanStrategicInterventions 174.6 ObjectiveandPurpose 184.7 TheCausalPaths 184.7.1 Broadband Connectivity and Access 194.7.2 Content Mediation 194.7.3 Sector Research and Advocacy 194.8 LogicalFramework 20

Appendix A Area and Population Coverage for 3G by District 27

RCDF MISSION

To facilitate universal Access to high level capacity broadband

for all Ugandans through targeted

interventions addressing location,

physical inability, gender and cost

barrier.

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Term

2G3G4GARPUBTSGBGbpsGDPGISGNIGPSGSMHSPAICTISPITESITUIXPKRALTEM&EMBMbpsMDAsMNONDPIINITA-UPPPRCDFSDGsSTEITOCUAFUASUBOSUCCUSAFWi-Fi

Description

Second Generation Telephone Wireless TechnologyThird Generation Telephone Wireless TechnologyFourth Generation Telephone Wireless TechnologyAverage Revenue Per UserBase Transceiver StationGigabyteGigabit per secondGross Domestic ProductGeographic Information SystemGross National IncomeGlobal Positioning SystemGlobal System for Mobile Communications, originally Groupe Spécial MobileHigh Speed Packet AccessInformation and Communications TechnologyInternet Service ProviderICT Enabled ServicesInternational Telecommunications UnionInternet Exchange PointKey Result AreaLong-Term EvolutionMonitoring and EvaluationMegabyteMegabits Per SecondMinistries, Departments and AgenciesMobile Network OperatorSecond National Development PlanNational Information Technology Authority – UgandaPublic–Private PartnershipRural Communications Development FundSustainable Development GoalsScience, Technology, Engineering and InnovationTheory of ChangeUniversal Access FundUniversal Access ServiceUganda Bureau of StatisticsUganda Communications CommissionUniversal Service and Access FundLocal area wireless computer networking technology, allows electronic devices to network


1BACKGROUND

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1.1 IntroductionUganda Communications Commission (UCC) set up the Rural Communications Development Fund (RCDF) during2001asprovidedforintheUgandaCommunicationsAct,1997.TheActhasundergonerevisionsincethen,buttheFundremainsakeyfeatureofthelaw.UnderSection3(ObjectivesoftheAct)oftheUgandaCommunicationsAct,2013,oneofthesub-objectivesis:

(g) Establishingandadministeringafundforthedevelopmentofruralcommunicationsand informationandcommunicationtechnologyinthecountry.

TheroleofUCCwithrespecttoFundisspeltoutunderSection5,FunctionsoftheCommission:

(s) Toestablishandadministerafundforthedevelopmentofruralcommunicationsand informationandcommunicationtechnologyinthecountry;

Outsidetheseprovisions,itislefttoUCCtodevelopandimplementtheframeworkthroughwhichtheFundisoperatedandtoprovideoperationalpoliciesandguidelinesaswellthebroadobjectivesfortheFund.

Section1of thisdocumentprovides thecontext, addressing thepolicyand legalenvironmentsaswellastheperformanceofRCDFunderthefirsttwo(RCDF)policies.ItalsoprovidesadefinitionofUniversalService/Access(UAS)aswellasthetargetsderivedfromthehigherleveldocumentsthatsettheaspirationsofRCDF.Section2gives thenewdirections, including theVision, theMission,and thekeyOperationalPolicies.Italsoprovidesthegovernanceframeworkthatisall-importanttotheachievementoftheobjectives.EnvironmentalrisksandtheirmitigationarediscussedinSection3.Section4presentsthethreestrategicprogrammesderived from the analysis ofwhat needs tobedone and areguidedbyboth the currentstateofpenetrationofICTaswellasthenationalpenetrationtargets.TheTheoryofChangeaswellasthemonitoringandevaluationframeworkarediscussedinSection5.

1.2 Policy ContextTheRCDFPolicy2017/18–2021/22(RCDFIII)hasitsfoundationinvariouskeynationalpolicyandlegaldocuments thatprovideboth context anddirection. In addition to these, it is informedby thefirst twoRCDFpoliciesintermsofexperientiallearning,andbyUCCstudiesintermsofidentifyingsupplysideanddemandsidegaps.ThefollowingdocumentswerethesourceofboththegeneralguidanceandspecificobjectivestobepursuedbyRCDFIII:

i. Uganda Vision 2040 ii. The Second National Development Plan (2015/16 – 2019/20) iii. The National ICT Policy (2014) iv. The ICT Sector Strategy and Investment Plan (2015 – 2020) v. TheNationalBroadbandStrategyforUganda(2016–2020) vi. The Uganda Communications Act (2013) vii. RCDF Policies I (2001) and II (2010/11 – 2014/15) viii. Various RCDF Annual Reports and Publications ix. UCC,AStudyintoCommunicationServicesandInfrastructureacrosstheCountry x. UCC,AnalysisoftheAccessandUsageofCommunicationsServicesinUganda,2015

1.2.1 The National Vision 2040The National Vision 2040 very clearly identifies ICT access and utilisation not just as a crosscuttingdevelopment enabler but also as amajor business opportunity. This provides the highest policy levelunderpinningtotheimperativeforuniversalityofICTinUganda:thecountrycannotachievetheplanneddevelopment targets ifanysectionsof thepopulationcannotexploit theopportunitiesprovidedby ICTaccess and usage.

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1.2.2 The National Development Plan IITheSecondNationalDevelopmentPlanunderVision2040hastwoactionareasthatRCDFincollaborationwithotheragenciesneedstorespondto:

i. Implementinglastmileconnectivitycountrywideincollaborationwiththeprivatesector;and ii. Promotingproductionanduseoflow-costlocallyassembleddevicesincollaborationwiththe private sector.

Thesewillhaveadirectimpactoneliminatingaccessandaffordabilitygaps

1.2.3 The National ICT PolicyTheNationalICTPolicy2014providesthemostcomprehensiveguidancetoRCDFthroughthefollowingpriorityactionsthataregivenundertheUniversalAccesssub-theme(notintheoriginalorder).

i. Rolloutthelast-milebroadbandaccesscountrywideintheshortestpossibletime; ii. Subsidizeinfrastructuredeployment,includingbroadband,thatwouldfosteruniversalaccess/ service; iii. Utilizeexistinginfrastructure(PostOffices,Schools,Hospitals)toextenduniversalaccess/service; iv. Providecomputersinpublicplaces(e.g.postoffices,schools,publiclibraries,etc.)insmalland largecommunitiestohelplow-incomesegmentsofsocietygainaccesstotheInternetandfor business,educationalandotherpurposes.

ThePolicyalsoprovidesthefollowingrelevantdirectionintermsofstrategyand/orpriorityactionsunderthevarioussub-themes(againnotintheoriginalorder):

i. PromotionofreliableandaffordableICTinfrastructureinrural,remoteandotherunderserved areas; ii. Developruralinvestmentincentivestofacilitatetheexpansionofthenationalpostalinfrastructure; iii. Advocateforinvesting(bytheprivatesector)inICTprojectsforruralandunderservedurban areas,aswellastraditionallydisadvantagedareas; iv. FacilitateandencouragetheuseofICTbyspecialinterestgroupstomakethemmoreproductive inthesocietyandutilizethislargelyuntappedhumanresource.(Specialinterestgroupsinclude: women,youthandPWDs); v. Promotethedevelopmentoftelecommunicationsproductsandservicesinlocallanguages, takingintoconsiderationthespecialneedsofruralorpoorcommunities,women,andpeople withdisabilities; vi. Createopportunitiesandprovideassistanceforthedisadvantaged,peoplewithspecialneeds, womenandtheyouthtoacquireICTskills; vii. Awarenesscreationandmind-setchange; viii. IncreasingpenetrationofICTequipment,servicesandapplications

1.2.4 The National Broadband Strategy and the ICT Sector Investment PlanBoththeICTSectorInvestmentPlan(ICTSIP)andNationalBroadbandStrategy(NBS)areveryspecificthatRCDFshouldnowtargetuniversalaccesstobroadbandasthekeyobjective.TheNBSinadditiongivesprogressivebroadbandaccesstargetsthatwillguideRCDF.Withinthispolicy,thedefinitionofbroadbandbelow,asusedintheNBS,hasbeenadoptedbecauseitismoreconsistentwiththeITUstandardthanthedefinitionintheNationalICTpolicy:

• “Forthedurationofthisstrategy(2016-2020),broadbandforUgandameansarobustconnectivity thatisaffordable,alwaysonanddeliversaminimumof3Mbpstotheuserforapplications, content and services.”

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UniversalAccess,againasdefinedintheNBS,isalsoadoptedinthisdocumenttomean:

• “AccesstoICTswithinaradiusofapproximately5kmperhousehold.”

TheNBSsetsoutanumberofkeybroadbandtargetsthatneedtobeachievedby2020.TheseincludethefollowingthatrelatedirectlytoRCDF:

i. Minimumbroadbandspeedsof3Mbps ii. Broadbandaccesspenetrationof50%and100%forruralandurbanareasrespectively iii. 100%ofdistrictandsub-countyheadquarters,healthcentreIVsandsecondaryschoolswith broadband connectivity iv. 50%ofprimaryschoolswithbroadbandconnectivity v. CostperMbpsofbroadbandinrelationtoaverageincomereducedto10% vi. 40%ofthepopulationdigitallyliterate

Table1belowsummarisesthesteppedtargetsforbroadbandaccesspenetrationinbothurbanandruralareas:

Table1:BroadbandconnectivitytargetsforNationalBroadbandStrategy

2016

15%

1%

Urban

Rural

2017

25%

5%

2018

40%

15%

2019

60%

30%

2020

100%

50%

Source: Reproduced from National Broadband Strategy

1.2.5 RCDF Policies I and IIReviewsofthefirsttwoRCDFpoliciesshowthatwhilethefundhasachievedprogressivepenetrationofICTinfrastructureintopreviouslyunservedandunderservedareas,therewasnooutcome/impactbasedmonitoringandevaluationframeworkaspartoftheplanning,makingassessmentofperformance,howeverwell-conducted, superficialbecause itmustnecessarily focusondeliverables rather thanoutcomesandimpact. Secondly, while the National ICT Policy addresses ICTs in health, agriculture, and education,thereviewsshowthat the interventionsespeciallyunderRCDFIIwerenotsustainable:This leadstotheconclusionthatanysuchinitiativemustbeledandownedbythelineministriesoragenciesthathavetherequisiteskillstoensurethatholisticandsustainableapproachesareused,withRCDFonlyprovidingpartialsupport.Thatsaid,itisimportantthatawell-articulatedexitstrategyhastobeputinplace,ifdisengagementfromsomeoftheRCDFIIinterventionsisfoundnecessary.

1.3 DefinitionofUniversalAccess/Service(UAS)ThedefinitionofUniversalAccess/Service(UAS)emergesfromthekeypolicydocumentsalongwithsomerationalisation.NBSstatesthat:

“For the duration of this strategy (2016-2020), broadband for Uganda means a robust connectivity that is affordable, always on and delivers a minimum of 3Mbps to the user for applications, content and services.”

NBS however does not factor in cost to the user, an essential parameter when considering the RCDFtargetpopulation.ICTSIPbringsincost,butthisismoreaboutloweringcurrentcoststhanachievingcostsaffordablebyeveryone,withfocusontheRCDFtargetpopulation.ForpurposesofsettinganRCDFtarget,theITUBroadbandCommissionaffordabilitybenchmarkisused:500MBworthofdownloadspermonthshouldnotcostmorethan5%ofthenationalaveragemonthlyincome.

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Uganda’sGNIpercapitapublishedattheendof2016(basedon2015data)was$700orabout$60permonth.Thismeansthat500MBofdownloadspermonthshouldnotexceedacostof$3permonthoraboutUGX10,000attheJanuary2017exchangerate:currentcostsaretwicethisamount.

Forpurposesofthispolicy,thefollowingthreeparameterswilldefinethetargetsforUAS:

i. Broadbandcapacity:alwaysonbandwidthofatleast3Mbpsdownloadand1Mbpsupload speed(TakenfromNBSanduploadspeedassumed); ii. Broadbandaccesspoint(wired,fixedwireless,ormobilewireless)withinamaximumradiusof 5km(inferredfromICTSIP);and iii. Costof500MBofdownloadslessthanUGX10,000permonth(TakenfromtheITUBroadband CommissionAffordabilityBenchmark).

Wheresharedpublicaccessistheapproachused,sufficientaccesspointsshouldbeprovidedtoenableeachpotentialusertobeonlineforanominalonehourperday.

1.3.1 Unserved and Underserved AreasTheterms“unservedandunderservedareas”wereusedseveraltimesintheearlierRCDFpolicydocumentsaswellasassociatedreportswithoutanydefinition.Thefollowingdefinitionsareassumedinthispolicy:

“Unserved area,” means any location in Uganda that is inhabited by people, or in which people carry out any kind of income generating activity, or through which people routinely transit, but where access to a defined service is non-existent by virtue of the absence of the requisite wired or wireless connectivity.

“Underserved area” means any location in Uganda that is inhabited by people, or in which people carry out any kind of income generating activity, or through which people routinely transit, but where access to a defined service is confined to less than 25% of potential users due to cost and other barriers to utilisation.

25% hasbeenusedas thenominal ICTnationalpenetration threshold abovewhich investment in ICTwouldstarthavingasignificantpositiveimpactonGDP.ThesedefinitionshavebeenadoptedsothatRCDFcanbeguidedinidentifyingthelocationswhereinterventionsarerequired,andinarrivingatcostestimatesforachievinguniversalbroadband.

Forpurposesofclarity,itshouldbenotedthatthedefinitionforRuralinthispolicyisasusedbytheUgandaNationalBureauofStatisticsforthe2014NationalCensus:Urbanareasaregazettedcities,municipalities,towncouncilsandtownboards.InMarch2016,therewere259urbancentresincludingKampalaCapitalCity,33Municipalities,163TownCouncilsand62TownBoards.Therestareconsideredruralareas.

1.4 The Purpose of RCDFAllthedirectionandspecificactivitiesstatedinthenationalpolicydocumentsreducetothefollowingmajorareasofconcernthatRCDFwillneedtoaddressfortheirtargetgroups:

i. Connectivity:thepresenceofapoint,wiredorwireless,whereanaccessdevice(dedicatedor shared)canbeconnectedforaccesstoonlineapplicationsandservices ii. Access:thepresenceofadevice(dedicatedorshared)thatprovidesthefinaltechnologystepfor userstointeractwithonlineapplicationsandservices iii. Affordability:theabilitytomeetthecostofaccessdevices(orusagefeesforusingsuchshared devices)aswellasthecostofusingonlineservicesandapplication,allwithinanacceptable portionofone’sincome. iv. Equity:ThatnooneshouldbekeptoutofthespaceforexploitingICTopportunitiesdueto location,physicalinability,age,gender,andforatransitionalperiod,levelofliteracy,technology literacy,orlanguage.

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1.5 External Driving ForcesWhilepolicyandstrategycanbedefinedtotakeintoaccountthestateoftechnologyanditsadoption(inUganda)aswellasprojectedfuturescenarios,therealityisthatmanyfactorsandtrendsaregoingtoimpactonoperationalpolicyandstrategyonacontinuingbasis,pointingto theneedforconstantobservationof thepolitical,socio-economic,andtechnologicalscenarios toenable timelyadjustment torespondtoexternaldrivingforces.Theseinclude:

i. Trendsintheuseofsocialmedia,especiallyasthepenetrationofaffordablebroadbandincrease. Whilethesehavethebenefitofincreasinglocallygeneratedcontent,theyarealsolikelytoput pressuresthataredifficulttopredictwithconfidenceonthebandwidthrequirements,and mightindeedrequireare-quantificationofwhatisconsideredacceptablebroadbandbandwidth. Thetransferofanincreasingpercentageofgovernmenttocitizentransactionsandcontenttoan onlineenvironmentwillhavethesamecompoundingeffect.

ii. TherapidevolutionofICTandthedemandsthatthiswillcreateoverthenextfiveyearsisalso difficulttopredictwithconfidence.Thisrangesfromuserdevicestobandwidthtechniquesto innovativespectrummanagementtechniques.

iii. TheInternetofThingshasacquiredalifeofitsown,withdevicestakingupanincreasingamount ofbandwidthininter-communicationoutsidethecontroloftheoverwhelmingmajorityofusers. Thiswillalsocreatesecurityandprivacyconcerns,especiallyasmanufacturersofdevicescontinue to increase the level ofremotecontrolthroughsoftwareupdates,includingthe collectionofdataaboutuserswithouttheir(users)knowledge. iv. ThelevelofpoliticalpressureonRCDFtoachievetargetsisadoubleedgedsword:itisgoodin thatitmayleadtoeasieraccesstofundsfromtheconsolidatedfundandlubricationofthe advocacymandateoftheRCDF,butitisalsoriskyinthatitcanleadtotargetingshort-term populistinterventionsifexpectationsfromthepoliticalactorsarenotalignedtothestrategic directionoftheRCDF.


2STRATEGICDIRECTION

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Vision:

AUGANDAWHEREALLPEOPLECANHARNESSICT-ENABLEDOPPORTUNITIESFORPROSPERITY.Mission:TofacilitateuniversalAccesstohighlevelcapacitybroadbandforallUgandansthroughtargetedinterventionsaddressinglocation,physicalinability,genderandcostbarrier.

2.1 KeyDefinitionsWithinthisoperationalguidelines,thedefinitionofbroadbandbelow,asusedintheNBS,hasbeenadoptedbecauseitismoreconsistentwiththeITUstandardthanthedefinitionintheNationalICTpolicy:

• “For the duration of this strategy (2016-2020), broadband for Uganda means a robust connectivity that is affordable, always on and delivers a minimum of 3Mbps to the user for applications, content and services.”

UniversalAccess,againasdefinedintheNBS,isalsoadoptedinthisdocumenttomean:

• “Access to ICTs within a radius of approximately 5 km per household.”

2.2 Key Operational PoliciesInpursuitofitsMission,RCDFshall:

i. Beplacedunderagovernancearrangementwithindependenceofdecisionmakingunderthe overallpolicyandoversightguidanceoftheUgandaCommunicationsCommission;

ii. Ensureaccountabilitytoallstakeholdersthroughbothstatutoryreportingaswellasregularpublic informationonoperations,andpublicdialoguesforfeedback;

iii. Seektoalignwiththenationalbroadbandpolicyandcoordinatewithstakeholdersthat implementthenationalbroadbandstrategy;

iv. Establish human resource capability that parallels the private sector that is involved in similar activities;

v. Initiateandparticipateinsectorresearchaswellaslobbyingandadvocacytoensurethatpolicy andregulatoryinconsistencies(withinandoutsidetheICTsector)thatmilitate vi. againsttheachievementofitsMissionorleadtomarketfailuresareidentifiedandaddressed;

vii. Ensureevidencebaseddecisionsbymaintaining(inconjunctionwiththeUganda CommunicationsCommissionandothers)uptodatedatarelevanttopenetration,utilisation,and impactofICTopportunitiesamongthemarginalisedsectorsofthepopulation;

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viii. Haveaprimaryfocusonsustainableinterventions(bothcapitalandoperational)thatlead todirectbenefitforthetargetedsectorsofthepopulationwithinthemediumtolongterm. Operatingexpendituresupportwillbelimitedtojustifiedinterventionswithdemonstrable sustainabilityandwithclearexittimelines; ix. Providesupporttoinitiativesthatfallunderdifferentgovernmentlineministries,departments, andagencies(MDAs)onlywhensuchinitiativesareownedandledbytheMDAsasevidenced byinternalfundingandclearsustainabilityplans.TheRCDFmaytakeleadininitiationof interventionsthatassistintheoverallachievementofitscoremandate;

x. WiththeallocationfromtheLevyasastartingpoint,putemphasisonraisingsufficientfunding fromothersourcesinordertoachievetheuniversalitytargetsimplicitorexplicitinthekey nationalpolicydocumentswithintheshortestpossibletime;and

xi. Utilisetheprivatesector,especiallythecontributorstotheLevy,asaprimaryarmofimplementing themajorconnectivityprojects.RCDFwillhandleplanning,procurementanddisbursement,as wellassupervision,monitoringandevaluation.

xii. EnsurecontinuationofRCDFIIinterventionsthatarealignedtothecorefocusofthese operational guidelines (RCDF III). The support to educational institutions and Community ICT trainings/digital literacy should be used as the entry points to the unserved and underserved areasontopofconnectivityinterventions(UPGRADEFROM2GTO3G/4G)andanyothersuch interventionsgearedtowardsenhancementofconnectivityimplementedwiththetelecos.

2.3 GovernanceRCDF shall be established by UCC as an operationally autonomous entity overseen by a dedicated CommitteeoftheBoardunderthefollowingguidelines:

i. TheRCDFCommitteewillbeappointedbyUCCforatermofatmostfouryears,renewableonce foreachmemberatthediscretionofUCC.

ii. Tobeinconsonancewiththecurrentlaw,theRCDFCommitteewillbeundertheoversightof theUgandaCommunicationsCommissionthatwillberesponsibleforpolicydirectionandgiving a“NoObjection”totheannualbudget,andonallothermattersthatrequireBoardapproval,the RCDFCommitteeshallhandleandmandatedtohavefinalapproval. iii. TheRCDFCommitteemembershipwillbedeterminedbytheUCCBoardbutwillasmuchas practicallypossibleensureinclusionoftheprivatesector.TheExecutiveDirectoroftheUCC shallbeamemberoftheRCDFCommittee,andtheDirectorRCDF,whoistheFundManager,will be Secretary to the RCDF Committee.

iv. ThefundsofRCDFwillbederivedfromthe2%GARLevyimposedaspertheUCCAct,2013. RCDFwillhoweveralsoworkwithandthroughUCCtosourceadditionalfundingforits programmesfromtheconsolidatedfundaswellaslocalandexternaldevelopmentpartners, includingmultilateralandbilateralagencies,Non-Governmentalorganisationsoranyother partner(s)approvedbytheCommissionandinlinewiththelawsgoverningpublicfinances.

v. RCDFwillhaveseparatebooksofaccountsfromUCC.However,revenuecollection,expenditure andoverallfinancialmanagementoftheFundshallbehandledasperthefinancialregulations ofUCC,treatingRCDFasaUCCdepartment.TheAnnualfinancialreportsoftheFundwill beintegrated(butclearlydisaggregatedtoshowseparatefinancialperformanceofRCDF)with theUCCreportsforpurposesofstatutoryreporting.

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vi. TotheextentpermissiblebyUCC,andprovideditiscost-effectiveandefficientasdetermined bytheRCDFCommittee,RCDFwillrelyonUCCsystemsandstaffexpertiseforsomeoftheir activities.ThetimeallocatedtoRCDFbyUCCstaffwillberecognisedthroughnegotiatedand documentedcostallocationsthatreflecttheRCDFexpenditureonhumanresource.Abudgetline fortheecostsshallbew=establishedintheRCDFbudget.AsimilararrangementwillapplyifUCC uses RCDF resources.


3STRATEGICPROGRAMMES

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3.1 Programme AreasRCDFwillallocatefundingandimplementprojectswithinthreemajorbroadstrategicprogrammes:

i. Broadband Connectivity and Access Programme ii. Content Mediation Programme iii. Research,Advocacy,andLobbyingProgramme

3.1.1 Broadband Connectivity and Access ProgrammeThiswillbethecoreRCDFProgramme.Thisprogrammeismotivatedby:

i. The need to address the very many gaps in access to broadband in order to provide broadband benefitstoallcommunitiesinUganda.(Itshouldbenotedthatwithinthecontextofthe predominantmobileenvironmentinUganda,thedefinitionofbroadbandmeansthatonlythose locationsthathavegotaccessto3G,LTE,orbetterservicescandelivertherequiredperformance. Manysuchlocationscangetaccessthroughappropriateregulatorymeasures,butthiswillstill leaveabiggapforRCDFtoaddress).

ii. Theneedtoaddresscostbarriersto“lastinch”access.Thisrelatestoamultiplicityofchallenges thatincludecostofhandsets;digitalliteracy;language;physicaldisability;illiteracy;age;and packagingofcontentorprovisionofaccesspoints,thatarenotsensitivetogenderdifferences. iii. Theneedforselectedstrategicinterventionsupstreamthathaveadirectcausallinkageto bringingdownthecostofbroadbandatthecommunitylevel.Extendingfibretoalocal governmentlocation,forexample,mightnotfalldirectlyundertheambitofRCDF,but thepresenceofsuchfibremakesiteasiertoconnectruralareas.Otherexamples relatetomeasuresthatbringdowntheoverallcostofInternetaccessthatwouldthenhave adirectimpactondownstreamaffordability.Thesupporttoeducationalinstitutionsthatwas initiated in RCDF (II) policy period should be enhanced and realigned to ensure promotion ofbroadbandaccessandusageoftheeducationalinstitutionsasentrypointstothecommunities in the unserved and unserved areas. It is proposed that the RCDF II interventions should be aligned to the broadband connectivity and access programme as much as practically possible. AllactivitiesinthisprogrammewillbelargelydefinedbyRCDFandwillbebasedonthe assessedgapsfrombothdemandsideandsupplysidestudies.Therewillhoweverbe provisionforconsiderationofownedproposalsfromMDAs,localgovernments, municipalities,institutions,NGOs,theprivatesector,andindividualsdirectlyinvolvedandwilling toinvestinruralICTinfrastructureeitherfordevelopmentorforcommercialpurposes.

3.1.2 Content Mediation ProgrammeThisprogrammeismotivatedby:

i. TheneedtoprovidetechnicalguidancetoMDAs(whowillbetheoriginatorsandownersofthe initiative)toputtheircontentonline.Thismaygoalongwithacontributiontowardsthefinancial costs entailed based on sustainability assessment.

ii. Providingtechnicalsupportand/orcontributionstoinitiativesthatseektoaddresstechnology literacyandthepresentationofcontentinawaythataddressesaccessandutilitybarriersdueto gender,language,illiteracy,orphysicalinability. MostoftheactivitiesinthisprogrammewillbeinitiatedfromoutsideRCDFbyMDAs,NGOs, Institutions,andthePrivateSectorfollowingguidelinesprovidedbyRCDF.

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3.1.3 Research and Advocacy ProgrammeThisprogrammeismotivatedby: i. Theneedtoestablishanauthoritativebaselineandcontinuouslymonitorsectorperformance withrespecttothetargetgroupssothatconsistentandreliabledataisalwaysavailabletoenable evidence-basedstrategyandimplementationdecisions;and

ii. Theneedforresearchtoinformandinfluencechangesingovernmentpolicy,laws,andregulation tocreateanenvironmentthatenablesbothmarketefficiencyandRCDFinterventions.

Activities in thisprogrammewill be initiatedbyRCDFworking in collaborationwith theUCCResearchTeam,butrelevantresearchorstudyproposals,pilotschemesandinnovationsthatspurusageofICTsfromcompetent individuals or organizations may also be accepted.

3.2 Programme Targets

3.2.1 The Current SituationDemandandsupplysidestudiesconductedbyUCCrevealthefollowingstarkrealities:

i. About19%ofthepopulationdonothaveaccesstobasictelephonyserviceseitherbecausethere isnoconnectivity(wiredorwireless)wheretheylive,ortheycannotaffordit.

ii. About73%ofthepopulationdonothaveaccesstobroadband.Thismaybeduetothefactthat eitherthereisnoconnectivitywheretheylive,ortheycannotaffordit.

iii. ThecurrentstatisticforUganda’steledensityis61.1(Q32016).Thispolicyrecognisesthatthe termteledensityascurrentlydefinedhaslostmeaninginUganda’spredominantlymobile environmentfortwomajorreasons:First,becausepeopletreatmobilephonesasaverypersonal deviceandthehighlevelofsharingthatusedtotypifywiredlinephoneshasdisappeared;and second,becausealargepartoftheusershavemultipleSIMcards,eachofwhichiscounted asalineincomputingteledensity(Itisnotunusualeveninthelow-incomebracketstofindusers withatleasttwoSIMcardsinordertoexploitcostbenefitsofcallingwithinthesamenetwork, whilemiddleandhigh-incomeuserswilloftenhavemorethanfiveSIMcardseach).Thereality isthatSIMcardswithoutthedeviceareuseless,andwhatreallymattersisthenumberof connectedmobiledevicesastheserepresentthepossiblemaximumnumberofsimultaneous usersonallthenetworks.ThisisrecommendedastheapproachtobeusedbyRCDFasitputsthe taskathandinbetterandmoremeaningfulperspective.

3.2.2 QuantifiedTargetsforRCDFIIIItshouldbenotedrightfromthestart thatRCDFwillhavetoestablishthecurrentbaselines,orassumeprojectionsfromdemandandsupplysidestudies(op.cit.)carriedouttwoyearsago.Specificquantifiedtargetswillbespecifiedafterastudy thatwillprimarily lookat theprojected resourceenvelopand themetricofinterventionstobehandledinthenextfiveyears.

Currently,there70districtsthatfallwithinthecategoriesofunservedorunderservedbasedonthe25%thresholdforpopulationcoverageashighlightedAppendixA.ThisAppendixwillberevisedonanannualbasisaccordingtoprogressinachievingminimumcoverageconsistentwiththeannualtargets.

3.3 Cost ProjectionsTable3presentsestimatedcostsofpotentialinterventionswithinthedefinedprogrammeareas.Thisincludesthepotentialintervention,pertinentstakeholdersandanestimatedcost.Eachitemnumbermatchesanotebelowthetablesummarisingtheassumptions.Thecostestimatesarebasedonpubliclyavailabledataandconsultantexperiencesanddiscussions.

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Itshouldbenotedthattheseprojectionsdonotincludetheextensionofelectricitymainstothoselocationsthat lackthem,orprovisionofalternativesourcesofpower. RCDFmustnecessarilyworkwiththeRuralElectrificationAgency(REA)tosetjointprioritiessothatprovisionofconnectivityandaccessmoveshandinhandwithprovisionofeithermainspowerorothersourcesofpowerbasedonsustainabilityassessment.Ithasalsobeenassumedthatschoolsandhealthcentreswillrelyonthe4Gnetworkforconnectivity.

Table3:PlanningCostProjectionsfortheMajorProgrammes

No.

1

a

b

c

d

e

2

a

Potential Intervention

Extending fibre networks to district headquarters in 56 districts that currently lack fibre on their territory (Recognises that there are only 25 with POPs but more where fibre runs through the districts, providing opportunity for POPs).

Equipping all Secondary Schools (both government and private) with school ICT labs.

Equipping all Rural Primary Schools (both government and private) with school ICT labs.

Upgrading major operator existing 2G-only sites to 3G and or 4G

Upgrading major operator existing 3G sites to 4G

Technical or Financial Support to MDAs that want to put their content and services available online

Stakeholders

Ministry of ICT and National Guidance; Ministry of Local Government (Owner); UCC; NITA-U;Licensed operators;Local District Administrations;UNRA

Ministry of Education and Sports (Owner); RCDF (UCC)ICT hardware vendors;ShoolNet

Ministry of Education and Sports (Owner); RCDF (UCC)ICT hardware vendors

RCDF (Owner); UCC;Licensed operators

RCDF (Owner); UCC;Licensed operators

Ministry of ICT and National Guidance (owner); RCDF;NITA-U; MDAs

Estimated Costs (USD)

68 Million

48 Million

82 Million

200 Million

17 Million

415 Million

6 Million

BROADBAND CONNECTIVITY AND ACCESS PROGRAMME

CONTENT MEDIATION PROGRAMME

Subtotal 1

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Table3:PlanningCostProjectionsfortheMajorProgrammes(CONTINUED)

No.

2

b

3

a

b

Potential Intervention

Technical support and/or contributions to initiatives that seek to address technology literacy and the presentation of content in a way that addresses access and utility barriers due to gender, language, illiteracy, or physical inability

Subtotal 2

Establish an authoritative baseline and continuously monitor sector performance with respect to the target groups so that consistent and reliable data is always available to enable evidence-based strategy and implementation decisions

Research to inform and influence changes in government policy, laws, and regulation to create an environment that enables both market efficiency and RCDF interventions

Subtotal 3

OVERALL TOTAL

Stakeholders

(No institutional owner, but guided by RCDF)NGOs;Education and Research Institutions (public and private);Private Sector;

RCDF (Owner);UCC;UBOS;NGOs;NPA;Private sector

RCDF (Owner);UCC;Research institutions;Individual researchers or groups of researchers;NGOs;Private sector

Estimated Costs (USD)

5 Million

11 Million

1 Million

1.5 Million

2.5 Million

428.5 Million

CONTENT MEDIATION PROGRAMME

RESEARCH AND ADVOCACY PROGRAMME

Notes:

1. Broadband Connectivity and Access Programme

a. Therearecurrently56districtsthatcurrentlylackfibreanywhereintheirterritory.Theaverage distancefromthedistrictcentretothenearestfibre(irrespectiveofownsfibre)is60km. Totaldistanceacrossalldistrictsisestimatedat3,400km,whilecosttofibreisestimated at$20,000perkm. b. Thereare4,511SecondarySchoolsacrossthecountry.Ofthese,903aregovernmentsupported while3,608areprivateorcommunity-owned.Assumingthat50%ofthesealreadyownICTlabs eitherfrompreviousRCDFinterventionsorthroughprivateinvestmentleavesuswith2,256 schoolstoequip.WeestimatethatRCDFwouldrequireUS$20,000toequipeachschoolICT. c. Thereare16,345RuralPrimarySchoolsacrossthecountry.Ofthese,10,286aregovernment supportedwhile6,059areprivateorcommunity-owned.WehaveassumedthatRCDFwillequip 50%oftheseRuralPrimarySchoolswithICTlabsatacostofUS$10,000each

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d. Thereareanestimated1,036operatorsitesthatare2G-only.Ourassumptionsinclude:noneed fordieselgenerator/accessroadcostsbecausethesitealreadyexists,Microwaveconnections alreadyexistonsitebutmayneedtobeupgradedandallowedforadditionalRadioNetwork ControllersandMediaGateways e. Thereareanestimated1,620operatorsitesthatarealready3Genabled.Ourassumptions include:Microwaveorotherbackhaulconnectedalreadyinstalledfor3Gasarethenecessary RadioNetworkControllersandMediaGateways

2. Content Mediation Programme

a. Itisassumedthatabout40MDAs(about20%ofallMDAs)willseeksucheachyearoveraperiod offiveyears,andthatsupportwillbelimitedtoaceilingof$30,000(includeselementslike digitisationwhereneeded,processredesign,andcontributiontocentralcosts(Hosting;Security; Disaster Recovery). b. Itisassumedthat10suchinitiativewillbesupportedeachyear,witheachlimitedtoaceilingof $100,000addressing

3. Research and Advocacy Programme

a. ItisassumedthatRCDFwillrelymostlyoncontinuousdatacollection,andwillneedonemajor surveyduringthefirstyear;oneduringthemiddleoftheplanningperiod;andoneatthe endoftheplanningperiod.Thiswillbeincollaborationwithotherstakeholdersas identifiedinTable10.Theceilingforeachsuchmajorsurveywillbeabout$300,000asthiswould getdowntoregionalandsometimesdistrictlevelrepresentativeness. b. MostoftherequiredresearchwillbeidentifiedbyRCDF,butafewmaybeidentifiedfrom outside.Amaximumof3researchareaseachyearrelevanttopolicies,strategies,orregulations thatimpactonRCDFhavebeenassumed.Eachwillbewithinaceilingof$100,000.


4ENVIRONMENTALRISKS ANDMITIGATION

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TheRCDFUnitneeds tobecognisantof the followingchallenges thatareenvironmental risks thatwillimpedetheachievementoftheMission.Theyneedtobemonitoredandaddressedonacontinuingbasis.

4.1 Different Interpretations of the LawTheUgandaCommunicationAct,2013,hasthesub-activityofUCCas“toestablishandadministerafundforthedevelopmentofruralcommunicationsandinformationandcommunicationtechnologyinthecountry”.Thiscanbeinterpretedintwoways.Thefirstoneisthat“rural”mustbethedefiningadjective.Theintentisthentoaddresstheaccessgapinruralcommunitieswherethechallengesofdistance, lowdensityofusers,andlowaveragerevenueperuser(ARPU)combinetodisableorseverelylimitcommercialprovisionofservices.Thesecondinterpretationlooksat“informationandcommunicationtechnologyinthecountry”asanadditionalindependentfacetthathasnolimitationsintermsoftargetbeneficiariesbutisentitledtoaportionofRCDFfundstodevelopICTanywhereandforanytargetbeneficiariesinthecountry.ItshouldbenotedthattheUgandaCommunicationsAct,2013,stipulatesthat50%ofthelevymustbeallocatedtoruralcommunications.However,thewordinginthelawabouttheoveralluseofthelevyremainsambiguousandhasledtoimplementationchallengesthatpointtoanurgentneedtorevisetheActtoensureclarityofmeaningaswellasinstitutionalarrangements.

4.2 Responsibility for RegulationsThelawisnotspecificaboutthegovernanceofRCDF.ThismeansitmustbehandledthroughregulationsthattheMinisterresponsibleforICTisrequiredtolaybeforeParliament.Whilethislooksacceptableonthefaceof it, itactuallyopensthegovernanceanddirectionofRCDFtoshort-termpolitical interestsasopposedtolong-termnationaldevelopment.

4.3 Inconsistent National PoliciesItwasnotedthatwhileUCCtriestocreateanenvironmentaimedatbringingdownthecostofservices,otherMDAssometimesintroducemeasuresthatcounteractthebenefitsofanysuchmeasures.Thewell-knowncaseistheimpositionofanincreasingleveloftaxationonairtimeandmobilemoneyservices,increasingthe affordability gap. A continuing challenge in counteracting this is the absence of authoritative andindependentpolicyresearchintotheimpactofdifferentgovernmentpoliciesonaccessandaffordability.ItiswithinthestrategicinterestsofRCDFtoaddressthisgap.

4.4 InefficientMarketsThestudythatisthebasisofthispolicyhasdemonstratedthatthereisadefactoduopolyinruralareasthatsubjectsthepoorersectorsofthepopulationtocoststhataremuchhigherthaninthemoreaffluenturbanareas. TheUCCsupplysidestudyalsopointedtomanyexistinggapsthatpushupthecostofservicesacross theboard. Expendingresources toachieveuniversality in inefficientmarkets isaveryexpensiveundertaking. Apre-requisite tocost-efficient interventions is thatUCCaddressesanymarket failuresorgapssothatthestartingpointisthegreatestpenetrationandlowestpossiblecosts:thispermitsRCDFtofocusontherealaccessgap.

UCCshouldaddressthefollowingregulatorygapsandbottlenecksandalsopromotespecificinterventionsinordertoacceleratethepenetrationofbroadband:

i. Speeduptheconvergedregulatoryframeworkbymovingtowardsasimpleauthorisationregime thatfacilitatescompetitionandcurbsthedominanceofafewoperators; ii. Reviewthespectrummanagementframeworktostimulatethebroadbandwirelessmarket includingallowingspectrumtradingwhereunderusedfrequencyallocationsarefreedforuseby otheroperators; iii. Reducespectrumlicensingfees,especiallyforruralareas; iv. Reducethetechnicalconstraintsinthecommonsapproach,suchasallowingthepowerradiation limitstoriseinruralareaswhereinterferencemaynotbeamajorproblem; v. AbidebytransparentplanstoimprovetheamountofspectrumavailableforbroadbandInternet access; vi. ReviewtheinterconnectionregimetoincludecapacitybasedIPinterconnection;

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vii. Facilitaterightsofway,towerzoningandinfrastructuresharingthroughclearandefficientnational policiesandprocedures; viii. Strengthen institutional coordination across the concerned public sector entities in order to meet thedemandandsupplyrequirementsofthebroadbandecosystem; ix. Promoteandrequireinfrastructuresharingamongoperators; x. Exploreavenuestoremoveorreducetaxationinordertoencourageinvestment,mobile broadbandusageandnetworkrollout; xi. Stimulatefurthercompetitionbycarryingoutdiagnosisofthemobilemarketandcurbing dominanceofafewoperators,especiallythecurrentdefactoduopolyinruralareas; xii. Encouragetherolloutof4G,LTEandotheradvancedwirelessnetworks;and xiii. Encourageexpansionofnationalbackboneinfrastructureandinternationalbandwidthinorderto meetthegrowingdemandforbroadbandservices.

4.5 Pressures towards Tactical rather than Strategic InterventionsThereiscurrentlyanestablishedtraditionofpoliticallobbyingtargetedatachieving,albeitingoodfaith,short-term and unsustainable interventions (donation of computers to schools, local governments, andhealthcentres;internetconnectivity;etc.)thatareundertakenwithoutanyownership,sustainability,orlong-termimpactconsiderations.Therewillbealotofpressuretosustainthis.Simplycuttingitoffisimpracticalandwouldbecounter-productive.RCDFwillcarryoutasensitisationprogrammetargetingpoliticalleaderssoastoagreeonthebalancingbetweenpoliticalpressureandsustainabilityissuesregardinginterventions.

4.6 Objective and PurposeThekeyobjectiveofUganda’semphasisonubiquitousaccesstoonlineresourcesandservicesiseconomicdevelopment,bothattheindividualandnationallevel.ThekeymotivationforsectorreformwastoattractprivatesectorinvestmentintorollingoutICTinfrastructureandservicesasacommercialopportunity.Therewashoweverrecognitionfromthestartthattherewouldremainsectorsofthepopulation,definedbytherealaccessgap,thatwouldbeexcludedifreliancewasputexclusivelyonthecommercialsectortoachieveUAS. RCDFwas set upwith theobjectiveof ensuring that through targeted interventions, all those inUgandawhowouldotherwisebeexcludedcanalsoexploit ICT infrastructureandservices forpersonaleconomicdevelopment,andthroughthatcontributetonationaleconomicdevelopment.

ThepurposeofRCDFasspeltintheMissionis ‘To facilitate universal Access to high level capacity broadband for all Ugandans through targeted interventions addressing location, physical inability, gender and cost barrier’.

Thiswillbeachievedthroughthethreestrategicprogrammesidentified.ThesearebrokendownintothefollowingsixhighlevelKeyResultsAreas(KRAs)ofRCDF.TheKRAs,measuredinrelationtotheresourceenvelopoftheRCDF,willprovidethebasisforcontinuingevaluationofRCDFperformance:

i. ExtendingbroadbandconnectivitytoalllocationsinUgandathatwouldotherwisenotbereached throughcommercialinterventions; ii. Ensuringthatthecostofaccessdevicesandthecostofservicesarenotbarrierstoaccess; iii. Ensuringthatlimitedtechnologyliteracy;language;physicaldisability;illiteracy;age;and packagingofcontentorprovisionofaccesspointsthatarenotsensitivetogenderdifferencesare notbarrierstoaccess; iv. Providingsupporttodemanddriveninitiativesthatseektogenerateonlinecontentbeneficialto theRCDFtargetgroupsbyMDAs,institutions,NGOs,andtheprivatesector; v. Establishinganauthoritativebaselineandcontinuouslymonitoringsectorperformancewith respecttothetargetgroupssothatconsistentandreliabledataisalwaysavailabletoenable evidence-basedstrategyandimplementationdecisions;and vi. Conductingorsupportingresearchtoinformandinfluencechangesingovernmentpolicy,laws, andregulationtocreateanenvironmentthatenablesbothmarketefficiencyandRCDFinterventions.

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4.7 The Causal Paths

4.7.1 Broadband Connectivity and AccessThedrivingpolicyobjectiveforensuringthateveryoneinthecountryhaseasyaccesstoaffordableandavailable broadband is economic development, which is premised on the assumption that access tobroadbandboostseconomicgrowthatalllevels.

Therehasbeenextensiveandcontinuingresearchtoestablishwhetherornotthereisanylinkagebetweenpenetrationofbroadbandandeconomicdevelopment,aswellasthemechanismsandfactorssurroundingthis.Thekeyreferencescitedhereexamineindepththeresearchundertakenaroundthisthematictopicaroundtheworldutilisingdifferenteconometricmodelsand/orcasestudies;andapproachingthequestioneitherfromthemacro-economicormicro-economicperspective.Inmanycases,especiallywhenaddressingthequestionindevelopingcountries,paucityofreliableandconsistentdatacreatesmajorchallengesandfairlylargemarginsofuncertaintyinfindings.Theconsistentfindingthoughisthatfirst,thereisalinkagewherebroadbandactsasanenabler;andsecond,thateach10%increaseinbroadbandpenetrationleadstoaGDPgrowthrangingfromabout0.3%toabout1.3%,tendingtobehigherfordevelopingthanfordevelopedcountrieslargelyduetosaturationeffects(1.19fordevelopedcountriesand1.35fordevelopingcountriesforeach10%increaseinbroadbandpenetrationhavebeencitedseveraltimes).OfparticularinteresttoRCDFisthecaseofthePhilippinescitedbyMichaelMinges(op.cit.)thatpointedtoanincreaseinmobilebroadbandasprovidinggreaterGDPgainsthanfixedbroadband,sinceUgandaisalsohighlydependentonmobilecommunications (this isnotalwaysthecase inallcountriesasotherstudieshavedemonstrated).

Moststudiesseemtoagreethatpositivegainstakeeffectafterbroadbandpenetrationtraversesacertainthreshold,buttheexact levelremainsunclear. Otherthanthedirectgainsresultingfromjobs inrollingoutorproviding inputs forbroadband, theothermajor and long termgains are triggeredby changesespeciallyinorganisationalbusinessprocessesthatleadtoincreasedefficiencyandproductivity;andbyinnovationsthatexploit theexistenceofbroadband.Byaddressingthosesectorsof thepopulationthatareexcludedfrombroadbandbyvariousfactors,RCDFwillthereforebemakingamajorcontributiontonational development. Since there are multiple development initiatives going on at any time addressing the samesectorsofthepopulation,attributioninnotpossible,butcontributionbyRCDFtoanydevelopmentoutcomescanbearguedbasedonauthoritativeliterature.ThebestindicatorstotrackwouldbetheUnitedNationsDevelopmentProgramme(UNDP)HumanDevelopmentIndicators,workingthroughtheUgandaNational Bureau of Statistics (UBOS). Since RCDF resourceswill be focused at areas or sectors of thepopulationthataremuchsmallerthanthenationallevel,thiswouldcallformoreintensive(andmuchmoreexpensive) sampling to collectdata that is representativeat say thedistrict level, and for all commonlymarginalised population groupings. 4.7.2 Content MediationContent mediation refers to initiatives that ensure that all citizens are able exploit ICT services andapplicationsregardlessoftheirlevelofeducation(alsoassociatedwithliteracy),language,physicalinability,genderorage-relatedcauses.Thepresenceofbroadbandalonewouldnotbeabenefittogroupsinthiscategorywithoutanycontentmediation;translatingittoaformtheycanunderstandandusetoconstructnewknowledge.Contentmediationstartsatthepointwheresomeoneisconnectedandisnotionallyabletoaccessthecontent.Itaddresses:

i. Physicalinability,oftendevelopingwithage:Istheaccessdevicesuitableforthecurrentphysical abilitiesoftheuser? ii. Technologyliteracy:doestheuserknowhowtousetheaccessdevicebothforbasicandmore advancedapplications? iii. Illiteracy:canonereadandunderstandwhattheyseeonthescreen? iv. Language:istheinformationpresentedinalanguageorformonecanunderstandandinterpret? v. Informationliteracy:istheuserabletosievethroughthecurrentmassofonlineinformationto notonlyidentifywhattheyneedbuttoalsotoevaluateitinordertodistinguishreliable fromunreliableinformationandthenputthistobeneficialuse?

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Thechallengesaroundthebarrierslistedherearemultipleandwide-ranging,anditwouldbewrongandunproductive forUCC toaddress them through thenarrow lensof ICTbecause thatwouldbe far fromsufficient.Indeed,theyallfallunderthemandatesofdifferentMDAs,andtheRCDFroleisthereforetosetasideafundthatwillbeusedtocontributetoinitiativesdevelopedandownedbysuchMDAsaswellasNGOsandtheprivatesector.TheavailabilityofsuchafundisexpectedtoattractanincreasingnumberofinitiativesamongthedisadvantagedgroupsaroundUgandawithanincreasingnumberofplayers.ItisalsoexpectedtobringmorefundsonthetablefrommultiplesourcescreatingamultipliereffectonthefundssetasidebyRCDF.RCDFwillbeabletolookatindicatorsforwhichthereisdirectattribution:thenumberofentitiesthatareinvolvedincontentmediationinitiativesthathavepartialsupportfromRCDF;thegeographicalcoverageofsuchinitiatives;andthenumberofpeoplebroughtintothesustainableaccessandusagebracketsbytheinitiatives.ItwillalsobepossibletoarguecontributiontooveralldevelopmentoutcomesinthelocalitiesandcommunitieswherethereisRCDFsupportedintervention.

4.7.3 Sector Research and AdvocacyConsistentnationalpoliciesacrossallMDAsarecritical foranydevelopment sector. Unfortunately, thecurrentchallengeinUgandaisthatgainsinonesectorareoftencounteractedbypoliciesinanothersector,despitethefactthatallworkunderthesameNationalDevelopmentPlan.Thespecificchallengesoftaxesonairtimeandmobilemoneytransactionsforexample,countersregulatoryinitiativestobringdownthecostsoftheseservices.Thisgapisattributedtotheabsenceofevidencebasedonneutralresearchthatwouldthenbethebasisoflobbyingandadvocacytobringthepolicyconflictsinanobjectivewaytothekeydecisionmakerssoastocausechange.Thiscallsfor,first,policyresearchtoprovidetheevidenceabouttheexistenceofinconsistencies,and,second,thepackagingoffindingsandpersuasionofthekeydecisionmakerstoalignpolicy.LobbyingandadvocacybasedonsectorresearchhavebeenknowntoleadtomajorpolicychangeseveninUganda.Specifically,forthetelecommunicationssector,thesectorresearchreportwasusedasakeyreferencetopushforthefullopeningupofthesector. Thesameresearchprovidedcritical information that supported thedecision to invest inNational Fibre in order to increase Internetpenetration. (Thisdecisionalsotriggeredtheprivatesectortoembarkonmassivefibrerollout,oneofthegreatestbenefitsofthedecisiontorolloutanationalfibrenetwork).Theindicatorsforthesuccessofresearch,advocacy,andlobbyingcannotbedeterminedapriori,butforthetwoconcernsaroundtaxationonairtimeandmobilemoney transactions,adirect causal changeand thereforeattribution in termsofcorrespondingjumpsinthenumberofusersofvolumeofusagewouldpointtosuccess.

Similartopolicy,regulationhastobeexaminedbasedonneutralresearch:UCCistheregulatorandrequiresanexternaleyetoevaluateregulatoryeffectivenessonacontinuingbasis.AUCCstudyhaspointedtothegapsinsupplysideregulationthathaveresultedinhighCAPEXandOPEXfortheserviceproviders.Thisiscompounded,asindicatedinthesamestudy,bytheabsenceofanationalpolicyandlawstoidentifyandprotectcriticalnationalinfrastructure,regardlessofwhetheritispublicorprivate:associatedwiththisgaparefibrecutsandvandalismthatpushesupOPEXforcommunicationnetworks inUganda. Addressingregulatorygapswouldleadtoincreasedmarketefficiencythatwouldbeevidenceby,forexample,overalllowertariffs;andconsistencyoftariffsacrossallnetworks(asopposedtothecurrentscenariowherethetwodominantoperatorshavetariffsthataremuchhigherthantherest,abusinesscontradictionbecausethemuchlargernumberofusersshouldtriggerlowertariffs).

4.8 Logical Framework This logical framework is intendedtoguidehigh levelmonitoringandevaluation. AblanksectionwithheadingsishoweverincludedtoenabletheRCDFunittothinkthroughalltheactivitiesthatneedtobecarriedoutinordertoachievetheobjectivesofeachKeyResultArea(KRA).Mostofthesewillbeactivitiesthatarecarriedouteveryyearandwill therefore feed,withnew incremental targetseachyear, into theannualworkplans.Afewmightterminatebeforetheendofthe5-yearperiod.

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Overall Objective

Specific Objective

Intervention Logic

To contribute to the economic development of Uganda by ensuring that those sectors of the population that would be left out by purely commercial approaches can benefit from the opportunities created by ICT infrastructure and services, and in so doing lead to a higher level of human development

To ensure, through targeted Interventions, that location, physical inability, gender, and cost are not barriers to access to high capacity broadband for any sector of Uganda’s population

Objectively Verifiable

Indicators of AchievementContribution to economic development can be argued, but is outside the scope of RCDF to carry out the required outcome and impact analyses as that would bring in all interventions that support economic and human development, but opportunities exist for engaging this through the UNDP human development indicators if there are resources to collect data that is representative at the regional or district level.

a) Annual increase in national coverage of broadband connectivity (both geographical area and population coverage)b) Annual increase in percentages of people in the different RCDF target categories that have access to broadband. c) Minimum always on bandwidth capacity available to those who have broadband connectivity d) Cost of broadband as a percentage of GNI per capita

Sources and Means of Verification

Uganda National Bureau of Statistics (UBOS) data, including involvement in shaping the surveys

Annual collection of supply side data from service providers’ reports

Annual targeted demand side surveys

Assumptions

a) ICT penetration levels in Uganda will, in a comparatively short time, achieve the critical penetration levels to enable significant positive impact on development;b) Jobs in rolling out or providing inputs for broadband, organisational business processes that lead to increased efficiency and productivity, and innovations that exploit the existence of broadband will kick in to boost GDP.

a) The environmental risks associated with policy, regulatory gaps, and market failures are addressed by UCC or MICTa) RCDF develops and implements (or supports) effective interventions aimed at addressing the real access gapb) RCDF sustains a strategic rather than a tactical outlook during the planning periodc) A stable economic environment

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Expected Results

Intervention Logic

i. Broadband connectivity extended to all locations in Uganda that would otherwise have not been reached through commercial interventions;

ii. Cost of access devices and the cost of service are not barriers to access;

iii. Limited technology literacy; language; physical disability; illiteracy; age; and packaging of content or provision of access points that are not sensitive to gender differences are not barriers to access

iv. There is a growing quantity of online content beneficial to the RCDF target groups by MDAs, institutions, NGOs, and the private sector;

v. There is an authoritative baseline and continuous monitoring of sector performance with respect to the target groups so that consistent and reliable data is always available to enable evidence-based strategy and implementation decisions;

vi. There is on-going research that has informed and influenced changes in government policy, laws, and regulation to create an environment that enables both market efficiency and RCDF interventions.


i. Annual list of new districts/sub-counties or other locations added to those that have broadband connectivityii. Annual increases in broadband infrastructure rollout (3G/+ mobile BTS, fibre, etc.)

iii. Cost of common access devices (smart phones, laptops, etc.) as a percentage of GNI per capitaiv. Number of common access devices connected to different provider networksv. Cost of access to broadband as percentage of GNI per capitavi. Total international bandwidth available in the country

vii. Increase in average time on line within each group that can be attributed to interventions;viii. Increase in average monthly expenditure on data/data packages within each group

ix. Size (number of web pages) and number of rich files per MDA web domain/subdomains including rich files (e.g. PDF & WORD file types) x. Number of external networks (subnets) originating backlinks to MDA webpagesxi. Number of visitors/hits to MDA website and average duration of visits (disaggregated by target group where possible)xii. Number of registered domains under dot UG (.UG)

xiii. Comprehensiveness and regularity of published dataxiv. Time lag between publication of data online and the period to which the data refers

xv. Documentation of policies, regulations, or strategies across government that have been changed as a direct result of RCDF supported researchxvi. Improved sector performance based on objective research

Sources and Means of VerificationService providers’ reports and RCDF annual reports combined with periodic demand side surveysMarket surveys; UBOS data;

Service providers’ reports and RCDF annual reports combined with periodic demand side surveysMarket surveys; UBOS data

Service providers’ reports and RCDF annual reports combined with periodic demand side surveysMarket surveys; UBOS data

Web analytics data (see Webometrics example) and demand side surveys

Domain data from local domain registrars and NITA-U

RCDF online database

RCDF Annual Reports and Sector Performance studies

Assumptions

a) The level as provided for in the law will be released to RCDF, so that, combined with other sources of funding, there are sufficient resources for the planned roll outb) PPDA will permit a suitable procurement procedure, e.g. negotiated procedure with competition or competitive dialogue, for rollout procurement for the targeted areas

Efforts to align contradictory national policies will be successful, with specific reference to taxation related to ICT devices and services

MDAs will lead the initiatives to place their content and services online

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Results Area

Extending broadband connectivity to all locations in Uganda that would otherwise not be reached through commercial interventions;

Ensuring that the cost of access devices and the cost of service are not barriers to access;

Ensuring that limited technology literacy; language; physical disability; illiteracy; age; and packaging of content or provision of access points that are not sensitive to gender differences are not barriers to access

Providing support to initiatives that seek to generate online content beneficial to the RCDF target groups by MDAs, institutions, NGOs, and the private sector;

Establishing an authoritative baseline and continuously monitoring sector performance with respect to the target groups so that consistent and reliable data is always available to enable evidence-based strategy and implementation decisions;

Intervention Logic

Sub-Activities that will be carried to achieve the desired result

(List all sub-activities as conceived by RCDF)


Means of implementation of each sub-activity

(Who or which entity will implement the sub-activity?)

Sources and Means of VerificationSources of Information on Progress

Assumptions

Preconditions (within RCDF and external)

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AppendixAAreaandPopulationCoveragefor3GbyDistrictTableissortedinascendingorderbasedon3GPopulationCoverage(right-mostcolumn)andindicatesthat79Districtswerebelowthe25%thresholdofpopulationcoverage.AnalysisisfromonUCCStudyintoCommunicationServicesandInfrastructureacrosstheCountry,basedondatacollectedinthesecondhalfof2015.http://bit.ly/2eCrbNB

Region

CENTRALCENTRALEASTERNEASTERNEASTERNEASTERNEASTERNEASTERNEASTERNNORTHERNNORTHERNNORTHERNNORTHERNWESTERNWESTERNEASTERNEASTERNNORTHERNNORTHERNCENTRALNORTHERNEASTERNNORTHERNEASTERNNORTHERNWESTERNNORTHERNNORTHERNNORTHERNEASTERNCENTRALWESTERN

District

BUVUMAGOMBABUKWOBUYENDEKALIROKIBUKUKWEENLUUKANAMAYINGOALEBTONGKOLENAPAKOTUKEMITOOMANTOROKOBULAMBULIKABERAMAIDOKAABONGOYAMKYANKWANZIPADERNAMUTUMBAAMUDATMAYUGELAMWOKYENJOJOAPACNAKAPIRIPIRITABIMKAMULIMUBENDEKANUNGU

3G Area Coverage (%)

0%0%0%0%0%0%0%0%0%0%0%0%0%0%0%0%0%4%3%0%1%2%2%1%1%2%1%5%2%3%1%12%

3G Population Coverage (%)

0%0%0%0%0%0%0%0%0%0%0%0%0%0%0%0%0%2%2%2%3%3%3%4%4%5%5%5%6%6%6%7%

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Region

CENTRALNORTHERNEASTERNCENTRALNORTHERNWESTERNCENTRALWESTERNEASTERNWESTERNCENTRALNORTHERNEASTERNWESTERNWESTERNWESTERNNORTHERNCENTRALNORTHERNWESTERNCENTRALCENTRALNORTHERNEASTERNWESTERNEASTERNNORTHERNEASTERNEASTERNWESTERNWESTERNEASTERNWESTERNNORTHERNEASTERNCENTRALWESTERNNORTHERNNORTHERNNORTHERNNORTHERNEASTERNWESTERN

District

NAKASEKEAMOLATARSERERESSEMBABULEMARACHARUKUNGIRIKALANGALAKIRUHURABUTALEJAKAMWENGEKAYUNGAKOTIDOPALLISAISINGIROSHEEMAKIBAALEMOYOBUTAMBALADOKOLONTUNGAMORAKAIKIBOGAAGAGOAMURIABUHWEJUBUDAKANWOYAKUMINGORAIBANDAKYEGEGWASIRONKOBULIISAAMURUMANAFWANAKASONGOLAKIRYANDONGOADJUMANIMOROTOYUMBEZOMBOKATAKWIKISORO


2%2%2%4%9%3%1%8%9%9%2%1%4%12%11%6%2%9%3%10%6%2%7%8%14%10%9%8%5%13%11%11%7%9%21%6%8%5%6%8%4%8%8%


7%7%7%8%8%9%9%9%9%10%10%10%10%10%10%11%11%11%11%12%12%12%13%13%13%14%14%14%15%16%16%16%16%16%16%16%18%18%18%18%19%19%20%

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Region

CENTRALCENTRALEASTERNEASTERNNORTHERNEASTERNWESTERNEASTERNEASTERNWESTERNWESTERNEASTERNNORTHERNWESTERNNORTHERNCENTRALWESTERNNORTHERNWESTERNCENTRALCENTRALEASTERNCENTRALCENTRALWESTERNNORTHERNWESTERNNORTHERNWESTERNEASTERNCENTRALCENTRALEASTERNCENTRALEASTERNCENTRALCENTRAL

District

MITYANALYANTONDEKAPCHORWABUKEDEAKITGUMSOROTIMBARARAIGANGABUGIRIBUSHENYIHOIMATOROROARUAMASINDINEBBIMASAKAKASESELIRAKABALELWENGOMPIGIBUSIAKALUNGUBUKOMANSIMBIBUNDIBUGYOKOBOKOKABAROLEGULURUBIRIZIBUDUDALUWEROBUIKWEJINJAMUKONOMBALEWAKISOKAMPALA


10%7%12%15%1%5%10%7%19%15%18%18%8%12%19%5%7%6%25%34%19%19%28%34%23%13%25%3%13%27%25%24%36%23%69%50%100%


20%20%22%23%26%26%27%27%27%28%28%29%29%29%30%31%31%32%34%35%36%37%37%39%39%41%42%44%45%48%48%51%62%64%75%88%100%

ThePurposeofRCDF

CONNECTIVITYACCESS

AFFORDABILITYEQUITY

RCDFOperational Guidelines2017/18–2021/22 (RCDF III)

UCCHouse,Plot42-44SpringRoad,BugolobiP.O.Box7376,Kampala,Uganda

Tel:+256414339000,+256312339000Email:[email protected]

TollFreeline:0800133911

rcdf - ucc: uganda communications commission

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