UK National Delivery Plan 2023
The challenge of digital poverty
What is digital poverty?
We define digital poverty as the inability to interact with the online world fully, when, where, and how an individual needs to.2
An individual in a rural community may experience digital poverty if their internet connection is slow or unreliable, or a student may experience it if they only have access to a mobile device to complete their coursework. Our definition extends beyond the provision of devices, connectivity, and skills to encompass the extent to which individuals can use the internet to realise personal, social, or economic benefits.
Internet access alone might not always be sufficient to ensure that someone is digitally included, as the quality of access matters too. This is why developing solutions and offering support that is customised to individual needs is essential. Yet, even when support and solutions are available, individuals may have personal barriers to overcome, such as their capability and motivation, or structural and circumstantial barriers, such as their socio-economic context, lifestyle factors and health status.3
Digital poverty is closely related to financial poverty and is associated with deprivation and social inequalities.4 However, it is also distinct as someone does not need to be in socio-economic poverty to experience digital poverty. As it can manifest in diverse ways among groups, it cannot be seen as a static state but something that individuals can move in and out of as their circumstances change. Our definition not only highlights the insufficiency of affordable digital access but also encompasses the broader range of factors typically associated with digital exclusion. Digital exclusion, like digital poverty, cannot be seen as a single unified experience, but it reflects a range of states that exist on a continuum between hard and soft forms of exclusion.5
The graphic below illustrates a range of states that fall under hard and soft forms of digital exclusion. These categories are not definitive as there are diverse expressions of digital exclusion that are predicated on individual, environmental and circumstantial determinants, which makes it difficult to capture them all. However, the continuum broadly illustrates the kinds of states that are commonly associated with digital exclusion. It is also important to note that these categories are not discrete but may overlap according to individual circumstances.
Digital Exclusion Continuum
*Information about the Essential Digital Skills framework can be found here: https://www.gov.uk/government/publications/essential-digital-skills-framework
How many people are affected by digital poverty?
Quantifying the number of individuals experiencing digital poverty is challenging due to the absence of a standardised methodology to capture the wide-ranging experiences of this phenomenon. As such, it is difficult to arrive at a precise estimate of the extent of digital poverty among the population.
However, the statistics below provide a snapshot based on access to devices, connectivity, and skills. Again, it should be noted that there is likely to be an overlap between the categories below.
UK Adults Smartphone only internet users.
18% of the UK population affected
Estimate of 9,920,000 households or individuals
Ofcom Adults’ Media Use and Attitudes Report 20236
Households without home internet access.
6% of the UK population affected
Estimate of 1,700,000 households
Digital Exclusion: A review of Ofcom’s research on digital exclusion among adults in the UK 20227
UK adults who do not have access to a laptop, smartphone or tablet.
7% of the UK population affected
Estimate of 3,840,000 households or individuals
Digital Exclusion: A review of Ofcom’s research on digital exclusion among adults in the UK 20227
Households who are unable to get a decent broadband connection.
0.28% of the UK population affected
Estimate of 80,000 households
Ofcom connected nations report 20228
Households who solely rely on mobile data to get online.
5% of the UK population affected
Estimate of 1,410,000 households
Digital Exclusion: A review of Ofcom’s research on digital exclusion among adults in the UK 20227
UK adults who have cut back their spending on digital access.
36% of the UK population affected
Estimate of 19,760,000 households or individuals
YouGov, DPA, and Currys survey 20229
UK adults who do not have foundation-level essential digital skills.
20% of the UK population affected
Estimate of 10,980,000 households or individuals
Lloyds Consumer Digital Index 202210
| Category | % of the UK population affected | Estimate of households or individuals | Source |
|---|---|---|---|
| UK Adults Smartphone only internet users. | 18% | 9,920,000 | Ofcom Adults’ Media Use and Attitudes Report 20236 |
| Households without home internet access. | 6% | 1,700,000 (households) | Digital Exclusion: A review of Ofcom’s research on digital exclusion among adults in the UK 20227 |
| UK adults who do not have access to a laptop, smartphone or tablet. | 7% | 3,840,000 | Digital Exclusion: A review of Ofcom’s research on digital exclusion among adults in the UK 20227 |
| Households who are unable to get a decent broadband connection. | 0.28% | 80,000 (households) | Ofcom connected nations report 20228 |
| Households who solely rely on mobile data to get online. | 5% | 1,410,000 (households) | Digital Exclusion: A review of Ofcom’s research on digital exclusion among adults in the UK 20227 |
| UK adults who have cut back their spending on digital access. | 36% | 19,760,000 | YouGov, DPA, and Currys survey 20229 |
| UK adults who do not have foundation-level essential digital skills. | 20% | 10,980,000 | Lloyds Consumer Digital Index 202210 |
Table one: Descriptive statistics on digital poverty
The general trend over the previous decade has been towards increases in internet access among UK households. Between 2010-2020, internet access among households increased by 23%.11 However, despite this rapid increase in household connectivity, Ofcom estimates that 6% of households (equivalent to approx. 1.7 million households) still do not have access to the internet, with a further 2% who have connectivity but do not use it.8
Even for individuals with access, digital exclusion may still be experienced if they do not have a suitable device, or if they lack the essential digital skills required to navigate the online world with confidence. On both indicators, one in five people can be regarded as facing digital exclusion. Despite increases in internet access, 20% of adults do not have the foundational level of essential digital skills10 and 18% are smartphone-only users.6
In the current context, estimates vary as to the proportion of people experiencing affordability issues with communication services. It is evident, however, that squeezes on incomes are having an impact on digital access. A survey conducted by the DPA, Currys and YouGov in December 2022 found that 36% of adults had cut back their spending on digital access due to cost-of-living pressures.9 Ofcom has reported a steady increase in consumers experiencing affordability issues with communications services. In April 2021, 15% of consumers experienced affordability issues which increased to a high of 32% in October 2022 before falling slightly to 29% in January of 2023.12
While digital poverty can be measured and quantified in different ways, millions of people in the UK are certainly affected by it. Ultimately, ending digital poverty will not be achieved through a single policy response, but a range of responses are needed which are adapted to social, economic, and environmental conditions.
Who experiences digital poverty?
As outlined previously, digital poverty is not a static state but something people can move in and out of throughout their lives. Financial poverty, and consequentially the ability to access and afford connectivity and devices, is identified in the literature as the leading cause of digital poverty worldwide.13
Individuals with no or low incomes, whether in or out of work, are more likely to experience digital poverty as they may face limitations on accessing devices and/or sufficient data. However, although financial poverty is highly correlated with digital poverty, it cannot always be interpreted as causative. There are specific characteristics that can influence whether an individual experiences digital poverty that are unrelated to socio-economic status.
Digital poverty is not intrinsic to any group of people, but surveys have found higher rates of digital exclusion among people over 75 and people with disabilities.10 People in rural communities may also experience digital poverty, as well as individuals with low or limited literacy skills. As the UK Digital Poverty Evidence Review outlined, there is a need to develop a fine-grained understanding of how digital poverty is experienced by these groups and how distinctive characteristics can intersect to deepen the experience of digital poverty.
Developing our understanding of the practical consequences of digital poverty is essential. People who are digitally excluded may face additional barriers to progress in education, access public and private services, face more significant challenges in searching for work and face limitations in connecting with friends and family.
A lack of digital inclusion can lead to various consequences, with some common effects being:
- Loneliness and social isolation: digital poverty can lead to social isolation and loneliness. With the increasing use of social media and digital communication, individuals without access to technology may feel excluded from social networks and relationships.
- Impact on Employment: lack of access to digital technology can have a significant impact on job search and accessing employment-related opportunities.
- Healthcare: many healthcare providers now offer telemedicine and online services, which require digital access. Individuals without access to technology and the internet may have limited access to healthcare services, especially in remote areas.
- Financial Exclusion: access to online banking has become important for people to manage money and complete transactions.
- Accessing essential services: a lack of digital access has implications for individuals to access a range of essential services such as social housing, local government services, universal credit, and more.
- Education: Access to technology and digital resources is essential for education. Individuals without access to these resources may struggle to complete school assignments, access online learning platforms, and participate in distance learning.
Why digital access matters:
Supporting residents to connect.
The two main challenges I can think of are trust and the fact that residents lead such busy lives. So, with trust, if someone knocked on my door and said: ‘Do you want a tablet and internet, and can I teach you everything you want to learn on the computer?’ Would I welcome them in? Even though we might have knocked on their door 100 times for other things, it might sound too good to be true. Can I come and deliver a computer that you can have forever? So, it’s about trust, knocking on their door and being that face they know.
– Scott Tandy, Digital Inclusion Officer, Newydd Housing Association
They can only learn these things through conversations because they don’t know that they can go online and go to Google. They can type in bus times, or they can type in XYZ. They don’t know there’s a banking app. And it’s only when you’re able to engage with them in an informal setting, through that regular contact, that they begin to understand.
– Scott Tandy, Digital Inclusion Officer, Newydd Housing Association
Newydd Housing Association, based in South Wales, has been actively supporting digital inclusion for their tenants through a range of initiatives and projects. As part of their community regeneration team, Scott works as a digital inclusion officer to provide one-to-one digital support to tenants and offering referrals based on their needs. Between April 2022- March 2023, 276 tenants have been helped through 1-1 support and access to devices and data.
Scott and other members of the Community Team also offer virtual support to tenants who are unable to access Zoom links or do not have the devices they need. The support is tailored to each tenant’s needs, with screen sharing and prompt guidance to help them complete tasks. Check-ins are also done after a few days to see how the tenants are progressing and if they need further support.
One of the main challenges faced by the team is building trust with the tenants. Many are hesitant to accept offers of digital support, fearing scams or misuse of their personal information. The team works to address these concerns by explaining the benefits of digital inclusion and teaching the tenants things to look out for and how to keep their personal data safe.
Another challenge faced by the team is the busy lifestyle of tenants. With work, family, and other responsibilities, finding time to learn new digital skills can be a challenge. To overcome this Scott and other members of the Community Team work around the tenants’ schedules, offering support during evenings and weekends, or whenever it is convenient for them.
To ensure that tenants have access to the technology needed for digital inclusion, the team offers device borrowing programmes, where tenants can borrow laptops, tablets, or other devices. This allows them to try out the technology before committing to purchasing it. The team are also able to access sim cards from the National Data Bank, allowing tenants to access the internet for a duration of time.
Through their efforts, Scott and his team have successfully supported many tenants in gaining the digital skills they need to access the internet confidently. Tenants who were initially hesitant or fearful have become more confident and independent in their digital skills, even asking for support to learn new tasks or tools. By working with tenants on a personal level and addressing their unique needs and concerns, Newydd Housing Association has made significant strides in promoting digital inclusion for their tenants.
What the evidence review told us
In June 2022, the DPA launched the UK Digital Poverty Evidence Review, which presented an overview of key research and evidence on digital poverty in the UK. The review highlighted several important insights emerging from the research on digital poverty.
A key insight from the Evidence Review relates to the overarching complexity of digital poverty; solving it will require a robust and coordinated effort across all sectors of society. Digital poverty is not just a technology-based problem but also a social problem that reflects and can exacerbate existing social inequalities.
The review also argued that the assumption that digital poverty will recede over time due to the emergence of new ‘digitally native’ generations must be treated with scepticism. Research demonstrates that factors like employment status, education, disability, income, and self-confidence impact levels of digital exclusion across all generations. And, as technology continues to evolve, it is unrealistic to imagine that everyone will keep pace with the skills, knowledge, and behaviours needed to use the latest innovations. This is why, as the plan will highlight, there is a need to build long-term sustainability into solutions designed to tackle the digital divide and consider how digital inclusion can reduce inequalities across all levels of society.
The evidence review also identified five key determinants of digital poverty. These include:
- The importance of devices and connectivity as a prerequisite to engaging with the online world.
- Equality of access is vital to ensure that people with diverse needs can engage with the internet. It is critically important to ensure that the digital world can be an inclusive and accessible place for all.
- Capability, or a lack thereof, is an important determinant of non or limited digital engagement. It is vital to ensure that everyone has access to education and training to develop their skills and gain confidence.
- A related aspect is motivation and the barriers that prevent people from going online. Here, more can be done to engage with individuals to understand barriers and tailor interventions accordingly.
- Finally, some people need support and participation to enable them to fully engage with the digital world. Here, there is a key role for trusted intermediaries to help build up the skills and confidence of the digitally excluded.
In addition, the Evidence Review set out five policy principles that have guided this plan’s development. These include:
- Digital is a basic right. Digital is now an essential utility – and access to it must be treated as such.
- Accessing key public services online, like social security and healthcare, must be simple, safe, and meet all people’s needs.
- Digital must fit into people’s lives, not be an additional burden — particularly for the most disadvantaged.
- Digital skills must be fundamental to education and training throughout life. Support must be provided to trusted intermediaries who have a key role in providing access to digital.
- There must be cross-sector efforts to provide free and open evidence on digital exclusion.
The digital poverty policy environment
The policy environment in relation to digital poverty is complex and evolving. Digital is not its own separate sphere or domain; it is integral to every aspect of policy development and delivery. The tendency for government to operate within silos means that the digital inclusion agenda is liable to fragmentation across agencies and departments. Activity to address digital poverty occurs across local, regional, and national governments and through private and third-sector activities. This fragmentation creates ambiguity over where accountability for digital inclusion and digital poverty resides. Different departments and agencies will be better placed to lead on aspects of this agenda, but what is needed is greater levels of political ownership for reducing digital poverty and an official mechanism to set strategic priorities.
At a UK-wide level, digital inclusion does not sit neatly within any one minister’s portfolio, nor is it the responsibility of any one department. Across central government, the Cabinet Office plays a vital coordinating role through the Central Digital and Data Office (CDDO) and the Government Digital Service (GDS). The Cabinet Office sets the cross-government digital and data strategy, and plays a key role in coordinating digital inclusion initiatives across government departments. CDDO lead on the digital, data, and technology function of government and works to drive digital transformation across government, while GDS is responsible for supporting government departments to digitise.
The creation of a new Department for Science, Innovation and Technology (DSIT) has important implications for digital inclusion policy. Previously digital policy, including aspects relating to digital inclusion, was the responsibility of the Department for Digital, Culture, Media and Sport (DCMS). From February 2023, the responsibility for digital inclusion has been transferred to DSIT, which could lead to increased emphasis on this important issue within the UK government. However, there is also a risk that the Department’s energies and focus may be directed towards the development of AI, supercomputers, and other advanced technologies, which could result in insufficient attention being given to digital inclusion initiatives.
Additionally, there are several government departments where the provision of citizen-centred services, such as the Department of Health and Social Care, Department of Work and Pensions and HMRC, necessitate urgent action on digital inclusion. The Department for Education also plays an important role with respect to digital skills across the national curriculum and across adult education. Other departments such as Treasury, the No 10 Policy Unit and the Department for Levelling Up, Housing and Communities also have decision-making capacity or coordinating powers in relation to this agenda.
Regulators and executive agencies also play a crucial role in promoting digital inclusion, as do convening bodies like the UK Regulators Network. Ofcom, for example, aims to ensure the affordability of communication services and promotes digital skills and literacy. The Financial Conduct Authority (FCA) oversees financial institutions, including the regulations governing interactions with vulnerable customers and the Consumer Duty, which can shape the digital inclusion practices of financial institutions. In healthcare, NHS England is promoting digital inclusion through the NHS Long-Term Plan and the NHS England Digital Inclusion Framework.
The policy landscape for digital inclusion in the UK is further complicated by the powers held by the home nations. Although Ofcom, the regulator covering the entire UK, and initiatives like the Shared Rural Network and Project Gigabit operate nationwide, national-level digital inclusion policies fall primarily under the responsibility of devolved governments. Critical policy areas with cross-cutting links to digital inclusion, including healthcare, education, and skills development, are controlled by the devolved administrations.
As such, we tend to see a more integrated and holistic digital inclusion policy approach within Scotland and Wales. The Scottish Government has taken steps to address digital poverty, including initiatives such as the Digital Scotland Superfast Broadband programme, the Connecting Scotland programme, and the Digital Learning and Teaching Strategy.
Significantly, the Scottish Government has committed to provide a laptop for every school-aged pupil as well as support to build digital skills and provide connectivity. This has, however, faced implementation challenges because of the inherent complexity of delivery, including a lack of supporting infrastructure and the provision of skills and support. In Wales, there are several high-profile initiatives to tackle digital poverty, such as the Digital Inclusion Alliance, the Centre for Digital Public Services, and Digital Communities Wales. Additionally, the Welsh Government has been actively involved in developing a minimum digital living standard for Wales.
Northern Ireland faces unique challenges when it comes to digital inclusion due to its geography and population density. The region has a large rural population, which often means that access to high-speed internet and digital services can be limited. Additionally, Northern Ireland has a higher proportion of older adults, who may be less familiar with technology and may require additional support to participate fully in the digital world. To address these challenges, the Go ON NI initiative was launched in 2014. The initiative is a partnership between government, businesses, and community organisations and aims to help people in Northern Ireland develop the digital skills they need to participate fully in the digital world. We are keen to work with partners and stakeholders across Northern Ireland to ensure that digital inclusion support is widely accessible.
While the national picture provides some insight into digital inclusion, it only offers a partial overview of the delivery ecosystem. Most digital inclusion support is provided at the local level by education providers, healthcare organisations, charities, employers, and local authorities. Additionally, a key role is played by trusted individuals such as neighbours and family members who can support people to get online or access the internet on their behalf. Local authorities play a critical role in coordinating activity across the UK. Additionally, combined authorities have significant devolved powers over digital inclusion, especially in relation to adult education and skills. The presence of multiple layers between local, regional, national, and UK-wide activity highlights the inherent complexity a of the digital inclusion landscape. Therefore, it’s crucial to recognise that a one-size-fits-all approach won’t work when it comes to digital inclusion.
The digital poverty support ecosystem
This graphic shows organisations that are involved in digital inclusion activities. Although it is not exhaustive, it does provide a broad overview of the range of organisations and institutions that support this agenda.
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