Digitally Inclusive – Municipality of Tilburg Current situation and support for vulnerable groups

At the highest level, digital inclusion means that everyone is able to participate in technological developments that shape everyday life. It concerns the safe use of the internet, access to digital services, awareness of the possibilities of the internet, and having the necessary equipment, infrastructure, support, and skills. Participation promotes equal opportunities and a voice in important societal issues. As a local authority serving residents, entrepreneurs, and visitors, the municipality of Tilburg strives to make all residents digitally inclusive. This is a complex challenge—especially because the current situation is not yet fully clear and because it is unknown who is most in need of support. A fine assignment for researchers at the Centre for Digital Inclusion.

To provide the municipality of Tilburg with insight and hands-on experience in addressing digital inclusion, the following steps were taken:

1. Quantitative approach

A questionnaire was distributed among residents of the municipality of Tilburg. This established the status of digital inclusion among Tilburg’s residents. The results show large differences in internet use, access, and skills, with vulnerable groups lagging behind in particular. These include older adults, people with lower levels of education, people with low incomes, people with low literacy skills, people with disabilities, women, and people with a non-Dutch background. These groups more often have a negative attitude towards the internet, less adequate equipment, lower digital skills, and derive fewer benefits from internet use. As a result, the internet contributes less to their societal position, reinforcing existing inequalities.

The study further shows that literacy is a highly decisive factor in digital exclusion. People with low literacy score lowest on almost all dimensions: from access and skills to positive outcomes of internet use. For this reason, it was decided to include people with low literacy skills more extensively in the interviews and the co-creation session.

2. In-depth interviews with people with low literacy skills

A series of in-depth interviews was conducted among people with low literacy skills. The focus was on mapping their needs (which form the basis for potential digital inclusion interventions) and understanding the problems they experience when using the internet. The interviews underscore that the shift to digital communication and services is often experienced as a forced and confronting process. For some, a lack of interest, knowledge, or access leads to frustration, stress, and feelings of insecurity. The sudden necessity to use digital tools causes a loss of control and strengthens feelings of exclusion. Moreover, digital pressure often arises unexpectedly, making its impact even greater.

Everyday incidents confront people with their digital disadvantage, even if they had previously managed via offline routes. Personal barriers—such as fear of making mistakes and the absence of support—play a major role. For people with limited digital skills, the social network is important. At the same time, this dependency can hinder the development of skills and steps towards self-reliance. Low-threshold and safe forms of support, such as neighbourhood or community initiatives that help build trust and confidence, are needed to enable people to gradually find their own way digitally.

The interviews also illustrate that taking the first step towards digital skills is a major challenge for many. Fear of making mistakes, lack of self-confidence, and the idea that digital tools are too difficult prevent people from getting started—even when they have a computer at home. Personal encouragement and a safe learning environment are crucial to breaking through these barriers. The interviews also show that not everyone immediately sees the benefits of digitalisation. In addition, people who lack a computer or digital skills often lack the vocabulary to express what exactly they want to learn. This highlights the importance of digital support that is not only technical, but also language-oriented and personal.

With personal guidance in small groups, people feel more at ease, dare to ask questions sooner, and experience less shame. Free access to computer courses is also important, especially for people with limited incomes. Within the courses themselves, differences in skill level often pose a challenge: beginners usually need more assistance, which can slow others down. Grouping participants by level and offering classroom-based lessons in small groups would better match their needs. Finally, linking digital exercises to practical goals helps make learning more concrete, relevant, and motivating. This increases the likelihood that people will persevere, practise at home, and ultimately participate more independently in the digital world.

3. Co-creation with residents with low literacy skills

Solutions were discussed together with residents with low literacy skills, and preconditions were identified that could be incorporated into digital inclusion interventions aimed at vulnerable groups. The most important recommendations from this session are:

Accessible services at the town hall, by:

• offering personal support at the service desk, including outside office hours;
• structurally deploying hosts/hostesses for guidance and digital assistance;
• ensuring simple telephone access without automated menus or bots;
• enabling appointments via multiple channels (digital, telephone, and in person);
• always offering an analogue alternative;
• providing a human chat function on the website;
• and installing practice kiosks at the town hall and online, with instruction and guidance.

Learning to ask for help, through:

• support focused on strengthening self-confidence and normalising asking for help;
• trusted faces in community centres as first points of contact;
• allowing people to learn at their own pace without tasks being taken over;
• involving people with lived experience and peers;
• and using buddies who speak the same “language” as the target group.

Reaching and connecting, by:

• ensuring low-threshold access, recognisability, and proximity;
• breaking through shame via recognisable communication and stories from peers;
• using simple introductory activities with personal guidance;
• integrating language support into digital training;
• ensuring physical presence in neighbourhoods through recognisable help and information points;
• and using door-to-door newspapers for non-digital communication.

Accessible educational offerings that align with the everyday lives and learning needs of vulnerable residents, by:

• ensuring visibility in neighbourhoods and the media through physical and personal outreach;
• offering local classes at flexible times (morning, evening, weekend);
• enabling learning at one’s own pace without pressure or barriers;
• allowing practice at home with guidance and simple instructions;
• offering group lessons for beginners and target-group-specific courses;
• combining training with access to resources (such as devices and internet);
• creating a safe learning environment where making mistakes is normal;
• and offering courses free of charge so that financial barriers do not apply.

In addition to knowledge and skills, access to suitable equipment is essential. This requires:

• guidance in purchasing appropriate devices;
• technical support (in person or by phone) for common problems;
• affordable or voluntary in-home assistance;
• an emphasis on one well-functioning device;
• financial schemes for low-income households;
• reuse or loan arrangements;
• and clear agreements regarding support and liability.

The full report (in Dutch) can be found below.