Initiatives for the digital inclusion of all citizens

Introduction

In line with current global trends, Luxembourg is continuing its digital transformation, marked by a rapid increase in digital usage, the rise of artificial intelligence and the widespread adoption of online public services. The government intends to capitalise on these developments while ensuring that no citizen is left behind. One of the major challenges is to guarantee the inclusion of everyone in this transition.

One of the strategic axes of the Ministry for Digitalisation remains digital inclusion, understood as all actions aimed at making digital technology accessible, understandable and usable by every individual, according to their skills and socio-economic situation. This priority now underpins a large proportion of the initiatives undertaken at national level.

The Luxembourg context

Analyses conducted jointly by STATEC and LISER for the Ministry for Digitalisation confirm that Luxembourg ranks among the best-positioned European countries in terms of connectivity, Internet access and digital skills. In 2024, 98.9% of residents used the internet, reflecting near-universal access to digital technology.

However, this very favourable situation still conceals a persistent digital divide, evident in usage patterns, confidence and digital autonomy. The study identifies three types of internet users:

• Low users (24 %)
• Intermediate users (40 %)
• Heavy users (36 %) (with a significant increase in heavy users between 2022 and 2024)

Low users are predominantly older individuals, with lower levels of education, jobseekers or non-EU nationals – characteristics associated with an increased risk of digital exclusion.

At the same time, the proportion of citizens reporting stress due to digital technology is rising: 27% in 2024 say they experience high levels of stress when using the Internet, particularly when dealing with administrative procedures, online banking or using social media. In addition, 60% feel the pace of technological change to be too fast, which exacerbates difficulties for part of the population.

The figures also show that 44% of Internet users have already abandoned an online administrative procedure due to its complexity or the need to use the Internet. These situations mainly concern administrative procedures (23%), online shopping (23%) or booking medical appointments (21%).

These findings highlight the need for enhanced human support, the simplification of digital services, and the maintenance of non-digital alternatives.

Luxembourg’s commitment is also part of the broader European strategy for the ‘Digital Decade’, which sets out common objectives to be achieved by 2030. Several of these objectives relate directly to digital inclusion, four of which are particularly relevant to the National Action Plan for Digital Inclusion: ensuring that 80% of adults possess basic digital skills, making key public services accessible online and user-friendly, reducing social and geographical divides through high-quality digital infrastructure, and supporting the digital transformation of SMEs so that 90% of them reach a basic level of digital intensity. These European objectives serve as a strategic framework, enabling Luxembourg to align its efforts with a collective vision while taking local specificities into consideration. 

A cross-cutting issue

In order to prevent a widening of the digital divide, the government has continued the cross-cutting approach initiated in 2019. The interministerial working group dedicated to digital inclusion, coordinated by the Ministry for Digitalisation, now brings together 15 ministries and continues to meet regularly to define national priorities, share feedback and jointly develop coherent measures at national level.

With a view to filling a possible digital gap, the Government has committed itself to establishing a plan of action designed to ensure that everyone is included in the digital transformation of society.

The National Action Plan

The first National Action Plan for Digital Inclusion, developed by the Ministry for Digitalisation in close consultation with the interministerial working group on digital inclusion, as well as with associations and stakeholders, was completed at the end of 2024. It was structured around three key pillars (motivation and confidence, access and skills) and included forty concrete initiatives. These actions made it possible to identify the most vulnerable groups, develop accessible training programmes, strengthen cooperation between stakeholders and raise public awareness of the opportunities and risks associated with digital technology. This first plan also highlighted the need to continuously adapt services to technological developments, build confidence and maintain alternatives for those who cannot or do not wish to use digital technology.

However, although recent data from the community survey on the use of information and communication technologies, conducted in 2024 by STATEC and analysed by LISER, confirm the progress made, they also reveal persistent challenges.

The evaluation of the first National Action Plan for Digital Inclusion laid the foundations for the project. An in-depth analysis of the results of the first plan was carried out in order to identify progress, gaps and persistent challenges. This phase also included an analysis of the recommendations suggested as part of the research project with LISER and of European objectives, as well as a review of existing initiatives, to ensure the continuity and coherence of actions.

To ensure a coherent, inclusive approach tailored to the real needs of the population, the Ministry for Digitalisation coordinated the development of the second National Action Plan for Digital Inclusion, based on a structured and collaborative approach involving the relevant ministries and administrations, as well as civil society stakeholders.

These discussions led to the development of the second National Action Plan for Digital Inclusion, based on a participatory approach: 33 interviews, two interactive workshops and more than 30 bilateral meetings were conducted to identify the country’s needs and future priorities.

The consultations enabled the incorporation of contributions from:

• civil society,
• organisations working with vulnerable groups,
• public institutions,
• academic experts.

In this context, this second National Action Plan for Digital Inclusion, in line with the 2023-2028 coalition agreement, aims to consolidate the achievements of the first plan and to ensure adequate resources to promote a more digital society, while responding to national realities and contributing to European ambitions.

The second National Action Plan for Digital Inclusion broadens and strengthens the national strategy, based on six strategic pillars:

• Coordinating the national action plan,
• Strengthening digital skills,
• Increasing motivation and building digital confidence,
• Facilitating digital access,
• Enhancing autonomy through digital technology,
• Maintaining a non-digital alternative.

The second National Action Plan includes 249 actions, designed to enable every citizen to access, understand and use digital services according to their needs, while ensuring the existence of non-digital solutions for those who do not wish to or are unable to use digital tools. It also aligns with ambitions of the European Digital Decade, particularly in improving digital skills, ensuring accessibility of public services and reducing social divides.

The initiatives of the Ministry 

The initiatives presented below are largely included in the second National Action Plan for Digital Inclusion. They are currently underway or are due to be implemented by the Ministry for Digitalisation.

• Dedicated digital inclusion portal

The portal www.zesummendigital.lu remains the central information platform: stakeholders, educational resources, best practices, publications, events and results of calls for projects are all brought together there. It will be regularly enriched and updated, with an ongoing communication strategy.

• Annual call for projects

Since 2022, the Ministry for Digitalisation has launched an annual call for projects to fund pilot projects promoting digital inclusion in Luxembourg. These calls are open at associations, private organisations, public institutions, municipalities, intermunicipal associations, professional chambers, training centres and public research institutes committed to digital inclusion.

The 22 projects selected through the four calls for projects launched since 2022, as well as the ‘Digital Inclusion Prize’ ceremonies, can be viewed on the dedicated portal www.zesummendigital.lu.

• National Digital Inclusion Week

From autumn 2026 onwards, the National Digital Inclusion Week will replace the current National Digital Inclusion Day. This development, set out in the new National Action Plan for Digital Inclusion, will expand the event. The Interdisciplinary Forum and the Digital Inclusion Fair will continue to enrich the usual programme of conferences, workshops and panel discussions.

• Digital skills training

Since 2021, the Ministry for Digitalisation has been collaborating with the non-profit organisation ‘ErwuesseBildung’ to develop tailored digital skills training courses, primarily aimed at organisations active in the social sector. These training courses, made available free of charge to reach a wide audience across the country, can be accessed and downloaded via a dedicated platform. In addition, the Ministry organises monthly ‘IT Trainer Meetups’, providing a space for exchange and professional development for trainers involved in digital education.

• Introductory AI workshops for older people

With the aim of strengthening digital skills among all citizens, the Ministry for Digitalisation will organise, in collaboration with the non-profit organisation ‘Luxembourg TechSchool’, introductory workshops on artificial intelligence specifically for older people. These sessions will help participants understand the key principles of AI, discover its practical uses in everyday life and build the confidence needed to interact comfortably with these technologies.

• Studies on the impact of digital developments

The Ministry for Digitalisation, in collaboration with the ‘Luxembourg Institute of Socio-Economic Research’ (LISER), has conducted three studies on the impact of recent digital developments on groups furthest removed from digital technology. Two further studies are planned by 2027 to monitor developments over time. The results of the studies conducted in 2022, 2023 and 2024 are available on the Ministry for Digitalisation’s website.

• Interdisciplinary Forum for Digital Inclusion

The Ministry for Digitalisation organises a biannual interdisciplinary Forum on Digital Inclusion. This forum brings together representatives from ministerial departments, stakeholders active in the field of digital inclusion, and those responsible for supporting digitally excluded groups in Luxembourg. Since 2022, the Ministry has organised seven editions of the Forum. Videos from these editions can be viewed on the thematic portal zesummendigital.lu.

• Feasibility study for a national digital mediation and assistance service

As part of the National Action Plan, the Ministry for Digitalisation will launch, in collaboration with the relevant ministries, a feasibility study aimed at defining a national digital mediation and assistance service. This initiative will assess the needs, organisational arrangements and resources required to provide structured and accessible support to people experiencing difficulties in using digital technology.

• Training course ‘Digital inclusion in social work’

The Ministry for Digitalisation will offer an annual training course dedicated to digital inclusion for professionals working with groups distant from digital technologies. This initiative aims to strengthen their skills, improve their ability to provide support and integrate digital inclusion into everyday practice in a sustainable manner.

The initiatives carried out by the CTIE

The initiatives presented below are included in the National Action Plan and constitute regular activities of the Government IT Centre (CTIE), the technological arm of the Ministry for Digitalisation.

The initiatives carried out by the CTIE form part of the Digital Government Strategy 2026–2030. This strategy aims to strengthen eGovernment and is designed to support the transition to a digital government. Among other things, it seeks to promote cross-cutting digital accessibility, develop user-centred services, offer attractive online public services and build citizens’ trust in online government services.

• Mobile physical reception desk

To improve accessibility to public services and facilitate administrative procedures for all citizens, the CTIE and the Ministry for Digitalisation are currently working on setting up a mobile physical reception desk in the form of a bus. This bus will travel each month for one week to different regions of the country, with the exception of the centre, as it already has a physical service point.

• Digital mandate

The CTIE and the Ministry for Digitalisation are continuing the work already underway to introduce a digital mandate on MyGuichet.lu. Following a legal and technical feasibility study carried out as part of the GovTech Lab, the project is now in its implementation phase. This mandate will allow a duly authorised third party to carry out online administrative procedures on behalf of another person in a secure framework. In addition, a specific solution is currently being developed to make this functionality accessible to people under guardianship or curatorship.

• MyGuichet.lu introductory workshops

The CTIE will organise four practical workshops per year to support older people in using the MyGuichet.lu platform. These workshops, held at the GovTech Lab, aim to make it easier for older people to access digital public services.

• Equipment donations

The CTIE facilitates improved access to digital equipment by donating decommissioned IT equipment to the non-profit ‘Digital Inclusion’. The association distributes this equipment to low-income households, thereby strengthening digital inclusion for vulnerable groups in Luxembourg.

• Educational resources for online public services

The CTIE offers a range of guides and tutorials available in the ‘Help’ section on Guichet.lu to help users access online public services. These educational resources are designed to support users in their digital procedures by providing clear and accessible explanations.

• Accessibility of public services

The CTIE continues to improve digital accessibility and the user experience across the websites and applications it develops, ensuring they comply with the Renow framework.

The CTIE also conducts new user testing with target audiences to enhance the accessibility of government websites and adapt them to users’ needs. These tests focus in particular on Guichet.lu, MyGuichet.lu and other platforms designed by the CTIE. They aim to optimise the user experience and promote a systematic co-creation approach with users.

• Conversational agents

The CTIE aims to harness the potential of artificial intelligence to improve interaction between citizens and public services. It will provide AI-based solutions to facilitate information searches and is developing chatbots designed to be integrated into Guichet.lu, helping citizens quickly, reliably and intuitively identify the information available on government platforms.

• Helpdesk

The CTIE continues to offer the Guichet.lu helpdesk service by providing accessible, multichannel individual support. This service includes personalised assistance at the reception desk, by telephone, via video conference or by email, ensuring support tailored to the needs of all users.