Arlene Cannata

Abstract: Describes the design and installation of electronics communications networks to link central offices of various United Nations agencies with their regional offices in developing countries. The author, who has been responsible for the planning and on-site installation of such networks in Latin America, Africa, and Asia, discusses the practical problems involved. Technology must be appropriate to the infrastructure of the country involved, and to the nation's ability to pay the assorted costs; Staff need to be receptive to intensive training. Cultural barriers need to be examined. The complexities of telephone protocols may present difficulties. One suggestion the author makes is for the creation of user support groups, with local libraries serving as depositories for technical documentation.

 Introduction

The United Nations (UN) has been steadily increasing its commitment to support the communications infrastructure of developing countries in order to improve information flow. Several UN Agencies have developed international networks that connect remotely located work stations, usually personal computers and modems, to central computers via telecommunications. This design is being replicated by many other international organizations, and also by libraries, for whom communication and the sharing of information are high priorities.

As consultant to various UN Agencies, my task is to design and to execute the installation of such networks to serve Third World locations. The systems are based on central computers, usually located in the United States or Europe. As a first step, I assist an agency that is going to operate an information system by helping to clarify objectives, define components of the system, determine "gateways" to other services and hosts, and establish connections for telex and fax communications. Appropriate menus to enable the user to select desired services (such as electronic mail, bulletin boards, and databases) are made up at this time.

After this planning and design work I travel to remote UN field offices to introduce staff to the system. It is usually desirable to justify to local personnel the value of having an electronic information network. The advantages of a lower-cost, reliable, and fast interstation communication link are readily demonstrated. And access to online commercial databases is clearly a useful adjunct to the electronic mail (e-mail) function. E-mail is usually perceived as superior to telex or fax, and of course to the diplomatic pouch or postal mail options. My technical tasks involve installing hardware and software, attaching telephone connections, writing local connection instructions, and training staff in all facets of network use.

In this article I discuss some of the challenges that are met in the installation procedure. I hope to bring out basic issues that need to be addressed as new technology is made available in the developing countries. Certain problems result from varied levels of education and technical training among local staff, as well as from cultural and attitudinal differences. This does not imply a generalized discrepancy between cultures; however, the technical initiatives taken by one culture often require explanation in order to be utilized by others.

 Appropriateness of the Technology

Once in the field, it becomes apparent very quickly that not all technologies are appropriate for all locations. During the planning phase, it is very important to assess a situation carefully prior to introducing a new technology. It is often not possible, from a headquarters perspective, to make an accurate assessment of a remote field environment. One must go directly to the site to observe conditions. Relying solely on telex communications can be difficult at best; when complicated by language barriers, the task is particularly daunting.

There are several considerations in determining whether a particular technology is suitable for a given area at a certain time. The presence of usable equipment is fundamental, and it must be available at the time that staff are to be trained. Upon arrival in Santo Domingo, Dominican Republic, I learned that the computer we were to use was only "on order" and would not arrive until long after my departure. (Fortunately we were able to rent a small terminal and connect it to the Dominican telephone network, but the training sessions were less than satisfactory because the actual equipment staff would use was not at hand.) Another sort of equipment problem was illustrated when I visited La Paz, Bolivia, two years ago. It was not possible to set up a network, since at that time Bolivia had no packet network and lacked International Direct Dial (IDD) capability. By 1990 IDD was operating in the country, and La Paz is now ready for implementation of the electronic connection. Even where international service is available, it may take hours to get a line; delays of that kind may indicate that an electronic link is not yet feasible in that location.

Staff training, if it is carried out by consultants like me, has to be concentrated into a short field visit. Therefore it is important that staff have a minimal skill level, and that they are willing to accept new instruction. They also must be available when the training takes place; and local management may have to make special arrangements to overcome language barriers.

Occasionally there are pleasant surprises when staff witness the installation of a system which up to that point they have perceived only as an abstraction. For example, when I connected the Baghdad, Iraq, office of UNICEF to the international network, an Iraqi staff woman was thrilled to "finally see an advanced application system such as the one I studied at University".

Political implications of the introduction of a new technology are often overlooked. It is important to consider the government's probable reaction to the accessibility of uncensored press wires, such as the Associated Press, United Press International, or Reuters, because those services could be a seen as dangerous in certain countries. Local staff need to be sensitive to the political environment and act accordingly.

Cultural barriers must also be examined. For example, in some offices, from New York to Mali, working at a computer is perceived as "typing," and therefore as a secretarial function. This view is changing as people on all levels realize that computer operation is an important and complex skill in the workplace, but the case may have to made emphatically in certain situations. There are other types of cultural barriers which are more difficult to overcome. I found an interesting example in Islamabad, Pakistan, when I installed a network link for UNICEF. The telex operator assigned for training was a 45-50 year old Pakistani whose cultural norms made him uncomfortable without another male sitting between us during the instruction.

Workers anywhere may fear losing their jobs as a result of computerization. I try to emphasize that training in the new system will make each employee a more valuable asset to the organization. Workers may be brought to realize (like the UNICEF representative in Kathmandu, Nepal) that they are becoming participants in the global village.

 Typical Concerns at the Site

The implications of introducing a high-tech messaging facility to an organization can have far-reaching consequences. A number of administrative, technical, and financial concerns will factor into the implementation plan.

There is often a long period of negotiations with local postal-telephonetelegraph (PTT) officials, or their equivalent agencies (such as a Latin American Empresa Nacional). Some telephone authorities are unfamiliar with the terminology or procedures, and need time to check everything with their superiors. Scheduling delays may result, and a consultant on a five-day trip may not find the staff and equipment ready so that installation and training can be completed during the visit.

There are a number of financial considerations. Certain expenditures are necessary before an online system can become operational. These include the costs of applying for a Network User ID (the NUI), purchasing equipment, and installing the telephone lines or dedicated lines. Maintaining the system involves payments to the computer host for online time, plus telecommunications and kilocharacter transmission charges. In some countries, there are currency conversion problems as well.

Reading of electronic mail or searching of databases incurs relatively higher costs than reading telexes or consulting printed materials. With electronic mail, one must pay to receive as well as pay to send, resulting in a higher telephone bill than before, although this may be partially offset by savings from telex, fax, or overnight airmail delivery charges that are no longer required.

Selection of hardware and software is very important. Obviously, when dealing with a large organization such as a UN Agency, compatibility of computer components is crucial. UNICEF, for example, has standardized on Wang computers for both Headquarters and field offices. As a result, the computer support services section in New York can assist staff with computer problems regardless of location or applications, because the software is completely compatible. Assistance can often be given over the telephone, with both New York and field office staff at their respective terminals.

The mechanics of the telephone link configurations and protocols need to be considered along with the choice of a modem. It may be necessary to take a telephone jack apart and reconnect the old style wires to a modular plug to the modem work.

A long time may be needed to get equipment that a field office has ordered, especially if customs agents will have an opportunity to delay receipt. Additionally, as with all computer and high tech equipment, a maintenance contract may be appropriate.

Telephonic protocols are a special area of concern. Although the United States conforms to Bell 212A standards, and other countries are said to follow the United Nations International Telecommunications Union protocol, the CCITT, the facts are not so definite. I had an instructive visit to La Paz, Bolivia, in 1988, assessing the feasibility of linking their UN offices to a computer in the US via Telenet or Tymnet. Meetings with the ENTEL officials revealed a major problem: lack of an appropriate "gateway." Nevertheless I received permission to experiment with a long distance link. The Director of Technical Operations escorted me to the telephone switching center for Bolivia, in the ENTEL building. I brought my "world port" modem, set for the CCITT protocols; the modem had proved satisfactory for work in Chile and Peru not long before. But it would not function here. The response "no carrier" came again and again. The technician insisted that he was using CCITT protocols, not Bell protocols: "Si senorita, somos CCITT. Solamente CCITT. No Bell, no Bell." But I asked him to make a last attempt, using Bell. It worked! They were in fact operating with Bell, not with CCITT.

There are some good reasons why the protocols might be Bell in a particular country. When developed countries convert their analog telephone equipment to digital, much of the older, but usable telephone equipment is sent to the Third World, where it services thousands of telephone subscribers. While on mission to Lima, Peru in 1988, for example, I saw some heavy Art Deco style grey desk phones in a UN Office. "Oh", I exclaimed, "You have such beautiful old phones. It's been years since I've seen phones like this." Everybody laughed as one secretary blurted out, "We just had them installed!"

Rural areas are most likely to have telephone systems which are older and worn-out. Very often it is the local line from the telephone itself to the nearest switching station which is the weakest link in the chain, a fact that can only be discovered by actual observation. For example, in Iraq, we had to pull the telephone line off the pole, restring part of it, and reattach it to the building. In Bangladesh, connection involved opening the telephone jack and the telephone set, and attaching a modular plug to old copper wires. These areas may experience spikes in line voltages or loss of power due to adverse weather conditions. To overcome these problems, special equipment like converters, transformers, adapters, and Uninterrupted Power Supplies (UPS) are used.

Staff inexperience with technical manuals and instructions is widespread. Sending all the necessary hardware, software, and directions. does not guarantee that staff in field offices will assemble it properly to make the connection. Of 100 UNICEF field offices to whom I sent connection information, only six made the connection on their own. The others required visits or demonstrations. For example, when I arrived in Santiago, Chile, I was met by a very capable UNICEF staff member who informed me he had already obtained the Network User ID (NUI), had installed the modem and the software, and had tried the connection but without success. In fact he had gone through all the keyboard operations except to press "carriage return" one last time. When I showed him what was needed he asked "Is that all you do, press carriage return? Is this why they sent you from New York?"

It is often useful in remote areas to support the formation of local user support groups. Membership in these local "computer clubs" includes residents and local experts living in the country, staff from UN Agencies, government missions and aid agencies, and persons working for other organizations. In this way, a pool of local expertise is formed with persons of common interests and computer usage ability who can be called upon when assistance or camaraderie is required. A friend who works in Guatemala told me that he was accepting a post in Ghana with the assumption that we would soon link Ghana to the UN network. Otherwise, he said, "I will be lost without my e-mail. How could I work without it?"

The local library can play an important role in the development of such support groups, and it may also be the depository for documentation specific to the local environment. A larger library, like the information center of a UN office, may provide access to online information and technical connections to outside services such as Dialog or Nexis. Where telecommunications are difficult, some libraries could make access to information available in the form of CD-ROM.

 Conclusion

A diversity of challenges is found at all levels when a complex technology is introduced to a developing country. Those concerned need to be alert to typical problems related to bureaucracy, equipment, and staff training. The outcome, when the task is completed, is truly satisfying. The activation of online systems dramatically improves an organization's ability to communicate and share information. This, in turn, spurs other organizations to develop similar mechanisms, requiring an improved infrastructure. Governments are pressured into improving telecommunications and satellite connections. As advances in technology promote business opportunities, and as traffic increases, the demand for skilled workers also increases. The end result is improvement of quality of life for much of the population.

About the Author

Arlene Cannata is a consultant for UNICEF and several other United Nations agencies. Her missiona have taken her throughout the Caribbean and South America, Europe, North Africa, the Middle East, and Asia. Her Master's degree is from Columbia University. She has published in Development International and several UN journals.