Broad Recommendations for People-Centered Digital Transformation

While the Lower Mekong countries have experienced socioeconomic growth that is propelling them toward greater digitization, this process is still relatively nascent. There are opportunities for the emerging regional digital ecosystem to pursue digital development best practices. Choices made now to further align with digital authoritarianism or shift toward a more open and rights-respecting digital ecosystem will determine the digital future of this region.

The following section includes cross-sector recommendations that encompass digital best practices rooted in transparency and accountability. Some are specific to this region, but most can be applied to LMICs in general. While many of these recommendations and best practices would ideally be implemented or led by governments, there may be insufficient incentive to change existing processes. The region has a history of low government prioritization of human rights, privacy, and online freedoms, and a growing digital ecosystem alone will not solve that. As such, the recommendations that follow, while most suitable for governments, are generally geared toward other implementers: civil society, academia, regional partners, funders, development actors, public interest technologists, policy professionals, and the private sector. Each recommendation is annotated with suggestions for implementer communities.

Technology can be harnessed to support open and secure access to the internet. However, concerns over human rights, security, and privacy sit at the center of every digital development issue. Particularly in the Lower Mekong Region, these challenges represent the greatest barrier to people-centered digital development and deployment, and thus need to be addressed first.

Recommendations to strengthen human rights:

• Encourage online speech to be free, less restricted, and free from censorship across the internet and on social media, while protecting individuals and the press from direct harassment. (Multi-sector)
• Consult with domestic and international civil society groups to ensure that digital solutions and digital transformation plans take into consideration human rights concerns from the beginning of the process. A lack of public buy-in early has the potential to create more problems later on, so multi-stakeholder engagement is in every party’s best interest. (Multi-sector)
• Identify priority areas of action for multi-sector mobilization efforts and improve coordination in resources, capacity, coalition building, and information sharing across borders to promote rights-respecting digital transformation. (Multi-sector)
• Create opportunities and channels for civil society groups and users to assess how communications platforms function, and encourage the private sector to clearly and openly share how they operate to safeguard users. (Civil society, private sector)

Recommendations to address cybersecurity challenges:

• Conduct routine independent risk assessments with engagement from the local community and civil society organizations before developing and deploying projects. (Multi-sector)
• Create and reinforce safeguards and reliable information for users, particularly children, by anticipating, detecting, and eliminating online harms like harassment, mis- and disinformation, and trafficking. (Multi-sector)
• Create opportunities for international knowledge exchange on best practices in cybersecurity initiatives. If possible, create accessible case studies or tabletop exercises, such as the National Democratic Institute’s CyberSim, to explore safeguards and system readiness. (Multi-sector)
• Design worker registration processes using ethical digital identity systems, especially to integrate informal laborers safely into the formal economy. (Multi-sector)
• Educate and raise awareness of human trafficking and online scam operations that recruit vulnerable individuals with the promise of high-paying jobs. Greater investment in innovative, user-friendly tools that can be understood across various ethnic dialects is needed to help inform and raise awareness of online human trafficking schemes, particularly for more vulnerable communities. (Multi-sector)
• Enact policies to prevent domestic or foreign actors from disrupting critical infrastructure, including telecommunications and banking systems. (Government)
• Improve security measures and standards for government databases and systems that collect necessary population data, such as information needed to distribute government benefits and services, both while data is in transit and being stored. This should include end-to-end encryption and monitoring of the types of equipment in existing networks, especially as they upgrade to 5G. (Government)
• Make intentional decisions regarding source countries and companies when buying foreign-made infrastructure and digital tools to avoid high risk vendors that may pose a threat to network security. (Government)

Recommendations to improve privacy practices:

• Minimize collecting data, particularly biometric data. Employing privacy standards for digital solution development at the outset could help decrease the collection of personally identifiable information. Parties should also be mindful of what data is collected or is accessible when working with high-risk vendors or already marginalized communities. (Multi-sector)
• Improve privacy regulations by implementing established guidelines such as the UN Principles on Personal Data Protection and Privacy and Data Privacy, Ethics and Protection Guidance Note on Big Data to inform governance standards, frameworks, and practices. Where possible, promote the creation of regulatory frameworks for data-driven technologies such as AI, facial recognition, and other biometrics. (Government)
• Collaborate with and support investigations similar to the Pegasus Project, which serve as transparency (and hopefully prevention) measures against surveillance abuse by governments around the world. (Civil society)

Much of the Lower Mekong Region—particularly Cambodia, Laos, and Myanmar—still lacks access to the broadband infrastructure needed to support greater internet coverage and access. Women, low-income individuals, the elderly, and rural residents—often marginalized communities—are the most impacted by weak infrastructure and therefore are the least online. Uneven infrastructure levels between countries diminish the ability to collaborate on regional partnerships. At the same time, governments are also struggling with internal technical capacity issues that limit interagency collaboration and public services. While digital solutions can help ensure further collaboration and greater access to services, it is important to manage expectations of what gaps technology can and will fill, as opposed to considering it a panacea to solve all development challenges. Given the current state of digital development in the region, proven traditional and analog solutions may be more practical, safe, and feasible than digital ones. Until the digital divide is dramatically reduced, online-only resources will inevitably leave some of the most vulnerable behind.

Recommendations for improving infrastructure and access:

• Prioritize mobile broadband infrastructure and affordability. Mobile options are less expensive and people in the region tend to use more mobile broadband than traditional fixed broadband. (Multi-sector)
• Invest in safe 4G/5G infrastructure needed to keep up with international digital innovation and competition. (Multi-sector)
• Develop solutions accessible for all communities—for both high and low connectivity users—placing low-income, rural, women, and older users at the center of considerations with respect to 1) internet connectivity rates, 2) digital literacy, and 3) cost of and access to technology. (Multi-sector)
• Continue to build both online and mobile services as viable options, retaining in-person, paper-based methods for those without digital access. (Multi-sector)

User-centered design is crucial in closing the digital divide. E-Government initiatives, in particular, must be designed in a way that does not create additional marginalization of those seeking services. Other vulnerable groups, such as youth, need thoughtfully designed initiatives as well, as they are often at risk and need safe online environments. Appropriate, people-centered design approaches will help determine and create the services that people actually want and need, proactively countering potential harms.

Recommendations for improving user-centered design:

• Place people at the center of every step in the innovation process by focusing on human progress and opportunity instead of technological solutions, because technology is only a tool. This ethos includes analyzing how language, accessibility, trust, and digital skill levels affect the user experience. A simpler design is often better, more navigable, and easier to replicate in the future. (See the National Democratic Institute’s step-by-step guide Co/Act: Human Centered Design for Activists.) (Multi-sector)
• Use open standards, iterate open source solutions, and make data open where possible to increase interoperability, transparency, and accountability of systems and minimize duplicative efforts. (Multi-sector)
• Introduce policies that address human rights, security, and privacy concerns at the design level, taking inspiration from projects such as Australia’s Safety by Design or Canada’s Privacy by Design principles. (Multi-sector)
• Develop clear guidelines and manuals on how to build gender inclusivity into digital solutions. Inclusivity research can be included as a requirement in the design and development process. (Multi-sector)
• Discern the difference between digital IDs and digital identity verification technologies and determine how verifying a digital identity can be done without further marginalizing the lives of stateless and undocumented people. (Government, private sector)
• Pilot digital solutions and solicit feedback from users to ensure design and function meet users’ diverse needs and skill level. Involve subject matter experts from the outset to ensure solutions account for ethnic diversity as well as security and governance situations. (Multi-sector)
• Start small before scaling to bigger solutions to better ensure systems work for the end-user. Expect to have an iterative improvement process based on feedback from users and data from the system. (Multi-sector)
• Make funding for specific tech and development projects contingent on meeting people-centered outcomes based on clear and realistic monitoring and evaluation frameworks. Ensure that measurements are aligned with the needs of people and communities and the goals of the initiative. (Multi-sector)

Recommendations for encouraging collaboration:

• Create opportunities for trusted and independent knowledge exchange, as well as professional development for civil servants, by working toward cross-border data and information interoperability and pulling inspiration from the ASEAN Single Window initiative. Companies should prioritize information sharing across country and regional offices to streamline operations, ensure interoperability, and share best practices. (Multi-sector)
• Connect civil society representatives with service providers on the ground to identify areas of opportunity, concern, and measures to increase tech accessibility. (Civil society, private sector)
• Civil society should be able to safely serve as an independent watchdog for both the private and nonprofit service providers and government. (Multi-sector)

Digital literacy and education levels are driving factors in the impact of digital solutions. Those affected by inequalities in access, education, and professional development are often already vulnerable communities. Low-income, female, rural, and older populations tend to receive less digital literacy training. Although women tend to have digital literacy rates on par with men, they start falling behind in higher level STEM education and workforce development. Without corresponding growth in digital literacy, the current growth in digital access can be harmful and create populations more susceptible to mis- and disinformation, crime, and exploitation.

Recommendations on increasing human capacity:

• Support more digital educational opportunities for women and children. Grassroots and community efforts are key. Inspiration can be taken from initiatives similar to Khang Panya Lao, a digital learning platform enabled for offline access, that teaches digital skills to Lao communities in rural areas. These communities face challenges because digital connections are scarce, and the population has less access to resources and devices. (Multi-sector)
• Foster human capacity by providing greater curriculum offerings at all levels for STEM-related careers. This includes additional courses in business, entrepreneurship, and ethics in order to build a workforce that is well equipped to design and deploy thoughtful and competitive tech. (Academia/universities, private sector)
• Create more opportunities for public interest technologists to problem-solve with governance and accountability practitioners, networks, and communities of practice. Accelerator labs, innovation hubs, hackathons, tech showcases, and fellowship programs offer opportunities for greater collaboration. (Academia/universities, private sector)
• Develop international worker certificates on specific digital skill topics to help facilitate job growth and potential. Advance the field of public interest technology locally. This would better integrate regional workers into the larger global economy and workforce—and vice versa. (Academia/universities, private sector)
• Share best practices for government tech procurement at the local level. For example, look for opportunities to train civil servants on the significance of hiring local, community-based companies rather than larger international vendors. (Multi-sector)
• Foster opportunities that curtail a brain-drain of technical talent, knowing that skilled technologists leave the region for better job markets or are reluctant to return after higher education pursuits abroad. (Government, private sector)
• Consider immigration and visa policies for international tech talent to conduct research and development at domestic institutions. A good example of this is Thailand’s sector-targeted SMART Visa program. (Government)

Recommendations on addressing digital literacy challenges:

• Collaborate on government- and civil society–sponsored digital literacy initiatives for all ages, especially the basics related to PII—what is collected, where it goes, and best practices for password selection and management. (Civil society, government)
• Reinforce the connection between digital skills and income-generating job opportunities, incentivizing digital literacy training. This can be done through hosting job fairs, recruiting digital businesses to have offices in country, and improving incentives, such as financial benefits and special economic zones, for foreign tech businesses to create opportunities within the country. (Multi-sector)
• Maximize opportunities to integrate digital literacy into popular platforms and games, and partner with strategic influencers. Meet users where they are, and assess what works or is popular to maximize reach in creative ways that reflect the users’ habits. This route may be more effective with youth, but it can be adapted for other communities. (Multi-sector)
• Further research is needed to establish a standard for digital literacy indicators in order to assess population rates and target specific challenges—especially in LMIC countries—to know what interventions are working to bridge divide issues and to build a metric of measuring progress or decline. (Multi-sector)

Recommendations to prioritize online safety education:

• Deploy public education campaigns about online risks such as scams, misinformation, hate speech, cyberbullying, and security breaches. One replicable example of work designed to help youth make smart and responsible choices online was the ASEAN Online Safety Academy developed by Google and the ASEAN Foundation. (Multi-sector)
• Promote greater transparency and education around sexual exploitation and abuse, especially for children, which goes significantly underreported. At least 9 percent of internet-using children in Thailand aged 12 to 17 (approximately 400,000 children) were victims of grave instances of online sexual exploitation and abuse. This includes blackmailing or coercing children to engage in sexual activities or sharing their images without permission. (Multi-sector)

Creating a vibrant digital innovation ecosystem in the Lower Mekong Region will require cooperation and collaboration among the private sector, funders, governments, development actors, and education systems to overcome existing challenges. Political turmoil in countries severely slows down the domestic market and innovation initiatives. Adding on to the already difficult local competition environment, international tech companies tend to dominate the local markets and benefit from favorable taxation systems, making it more difficult for local SMEs. Although some foreign platforms and technologies are considered safer, with stronger data protection policies for users, putting too much power in foreign countries that do not uphold human rights can affect local priorities and policies. Altogether, left unaddressed, lower standards of living, backsliding on human rights, and governance concerns throughout the region will deter talent, business, and investment, particularly in the nascent digital ecosystem.

Recommendations for a whole-of-society approach to enabling innovative digital ecosystems:

• Strengthen online marketplaces, which make it easier for women to participate in the economy. Women who were previously excluded from owning and operating storefronts are now using online systems such as Facebook Marketplace and digital payment systems to achieve economic and financial freedom. (Government, private sector)
• Sponsor and partner with locally based innovation labs, sandboxes, and start-up hubs to identify and train locals who want to create technologies that will enhance the region with sustainable businesses and creative thinking skills. (Multi-sector)
• Adopt a centralized, fully integrated digital authority to enable large-scale digital transformation. Consider Taiwan’s Ministry of Digital Affairs and its work on curbing mis- and disinformation around COVID-19 as inspiration, while accounting for the fact that Taiwan’s development and economic stage is different from those of the Lower Mekong countries. (Government)
• Support whole-of-society digital transformation plans that outline priority areas and funding for cross-sector collaboration and advancement, such as Thailand’s 4.0 initiative. (Multi-sector)
• Create opportunities and funding for longer-term, sustainable tech programs and products, recognizing that governments create financial incentives for start-ups in order to generate quicker returns. (Funders)
• Sustain the digital advancements and momentum that were possible due to the innovations during the onset of the COVID-19 pandemic, in part through government and funder investment in technology and private companies. (Multi-sector)

Recommendations for prioritizing good governance, regulation, and frameworks for technology:

• Develop a clear and comprehensive technology governance framework and guidelines in collaboration with, and drawing from, international standards-setting bodies and civil society to help guide and govern digital innovation. Examples include the Universal Declaration of Human Rights and Freedom House’s recommendations for protecting privacy and security. (Civil society, government)
• Look to existing legislation, such as the EU’s General Data Protection Regulation (GDPR), for guidance on country or regional data privacy and human privacy protections. Thailand has already begun to do this with its Personal Data Protection Act, which was implemented in June 2022. Legislation needs to be grounded in local realities rather than creating overly burdensome requirements that would stifle nascent SMEs or serving as a Trojan horse for increasing surveillance or censorship, such as through data localization requirements. (Government)
• Emphasize user security, privacy, and technology resilience in the development and deployment of emerging and disruptive technologies (EDTs). For example, the Prague Proposals—signed by Australia, South Korea, and Japan—outline security measures for 5G network rollouts to be taken throughout the technology and infrastructure design and construction phase, and the policy and regulation development phase. (Government)
• Embrace open source government platforms. Making code and platforms open source increases transparency, enabling individuals and civil society groups to assess the ethics of the platforms and demand more government accountability. Open source tech also increases data portability, while decreasing costs and vendor lock-in. (Government, multi-sector)
• Use tech as a method to promote positive interactions with the government. This should include not only online government resources, forms, and filing opportunities, but also increased civic engagement opportunities for people to provide feedback and interact with government officials. (Multi-sector)
• Monitor open source and e-government solutions available in the region for ethics, data security, and privacy concerns and create trusted transparency portals. (Civil society, government)
• Facilitate civil society and private sector participation in internet and digital technology–related policymaking through policy activism and cross-sector dialogue. (Multi-sector)

Emerging technology—especially when being used for digital public infrastructure and smart city transformations—can unlock social and economic development and increase equality across the population. At the same time, when abused, it can create new ways for governments to exercise undue influence over local markets and competition or track its residents and infringe on fundamental freedoms. In the Lower Mekong Region, emerging tech has largely been concentrated in the fintech sector, with companies aiming to create “super apps,” or apps that serve as a one-stop portal for several services.¹ While novel digital payments systems can augment digital transformation, collaborations between national banks and local private banks can create monopolies where smaller banks cannot compete. Innovative digital identity systems aimed at deploying state benefits and services can be abused by governments to track, monitor, and punish political dissenters and minorities.

Recommendations to improve access to digital public infrastructure:

• Focus on digital public infrastructure to strengthen and improve areas where government administration aims are agreed upon or less controversial. Examples such as monitoring systems for air quality, water issues, floods, tsunamis, or other disasters already exist but need additional research, financing, and support to scale. (Government)
• Assess the landscape of risks and conflicting priorities before pursuing digital solutions. The current social and political environment in the Lower Mekong Region makes it difficult to envision public acceptance or outside stakeholder partnership in digital ID systems, due to security and privacy concerns. India’s Aadhaar system serves as a warning that this region may want to prioritize human rights advancements first. (Multi-sector)
• Cooperate on the development of digital public infrastructure and improve discoverability of responsible solutions. Organizations such as the UN and the Digital Public Goods Alliance are helping collect and vet promising solutions that can be replicated or iterated, saving time and money. (Multi-sector)
• Leverage existing mechanisms such as the UN Sustainable Development Goals as defined and targeted outcomes that have wide societal buy-in. Find appropriate opportunities for digital transformation to accelerate achievement of these shared objectives. (Multi-sector)
• Embed environmental sustainability measures into technology-related decision-making. Digital solutions can provide better means to monitor environmental issues, share open datasets, and ensure global multi-stakeholder participation. (Multi-sector)
• Implement legal frameworks and financial and tax incentives for innovative and emerging technology development and use by private and public sectors. (Government)
• Developing successful digital public infrastructure requires defining outcome-based metrics for success and a phased implementation approach that strengthens civic engagement. Examples include a commitment to accessible services for all, full collaboration between departments and ministries, a one-stop portal for resident services, the ability to accept digital transactions from the public, preparation to move away from paper-based documentation and operations, and reduction of corruption in public processes. (Multi-sector)
• Improve competition, infrastructure, and governance to enable full interoperability of online payments within and across borders to optimize trade and economic growth potential in the region. Support small and regional banks in their pursuit to develop digital banking services. (Government, private sector)
• Focus on advancing safe and effective fintech solutions that increase the ability of rural and vulnerable communities to leapfrog into new financial services. Place a special focus on solutions that offer digital wallet access for the unbanked, increase e-commerce opportunities, strengthen entrepreneurship for women, and reduce cash dependencies. (Multi-sector)
• Explore innovative uses for emerging technology—particularly digital public infrastructure, smart cities technology, blockchain, and AI—to further social and economic development without creating additional social or economic divides, while seeking the collaboration of civil society organizations and international standards-setting bodies. (Multi-sector)