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    <journal-meta />
    <article-meta>
      <title-group>
        <article-title>The Limits of Global Inclusion in AI Development</article-title>
      </title-group>
      <contrib-group>
        <contrib contrib-type="author">
          <string-name>Alan Chan</string-name>
          <email>alan.chan@mila.quebec</email>
          <xref ref-type="aff" rid="aff1">1</xref>
        </contrib>
        <contrib contrib-type="author">
          <string-name>Chinasa T. Okolo</string-name>
          <email>chinasa@cs.cornell.edu</email>
          <xref ref-type="aff" rid="aff0">0</xref>
        </contrib>
        <contrib contrib-type="author">
          <string-name>Zachary Terner</string-name>
          <email>zterner@niss.org</email>
          <xref ref-type="aff" rid="aff2">2</xref>
        </contrib>
        <contrib contrib-type="author">
          <string-name>Angelina Wang</string-name>
          <email>angelina.wang@princeton.edu</email>
          <xref ref-type="aff" rid="aff3">3</xref>
        </contrib>
        <aff id="aff0">
          <label>0</label>
          <institution>Cornell University</institution>
        </aff>
        <aff id="aff1">
          <label>1</label>
          <institution>Mila, Universite ́ de Montre ́al</institution>
        </aff>
        <aff id="aff2">
          <label>2</label>
          <institution>National Institute of Statistical Sciences</institution>
        </aff>
        <aff id="aff3">
          <label>3</label>
          <institution>Princeton University</institution>
        </aff>
      </contrib-group>
      <pub-date>
        <year>2020</year>
      </pub-date>
      <abstract>
        <p>Those best-positioned to profit from the proliferation of artificial intelligence (AI) systems are those with the most economic power. Extant global inequality has motivated Western institutions to involve more diverse groups in the development and application of AI systems, including hiring foreign labour and establishing extra-national data centres and laboratories. However, given both the propensity of wealth to abet its own accumulation and the lack of contextual knowledge in top-down AI solutions, we argue that more focus should be placed on the redistribution of power, rather than just on including underrepresented groups. Unless more is done to ensure that opportunities to lead AI development are distributed justly, the future may hold only AI systems which are unsuited to their conditions of application, and exacerbate inequality.</p>
      </abstract>
    </article-meta>
  </front>
  <body>
    <sec id="sec-1">
      <title>Introduction</title>
      <p>
        The arm of global inequality is long, rendering itself
visible especially in the development of artificial intelligence
(AI). In an analysis of publications at two major machine
learning conference venues, NeurIPS 2020 and ICML 2020,
        <xref ref-type="bibr" rid="ref18">Chuvpilo (2020)</xref>
        found that of the top 10 countries in terms
of publication index, none were located in Latin
America, Africa, or Southeast Asia. Vietnam, the highest placing
country of these groups, comes in 27th place. Of the top
10 institutions by publication index, eight out of 10 were
based in the United States, including American tech giants
like Google, Microsoft, and Facebook. Indeed, the full lists
of the top 100 universities and top 100 companies by
publication index include no companies or universities based in
Africa or Latin America. Although conference publications
are just one metric, they remain the predominant medium in
which progress in AI is disseminated, and as such serve to
be a signal of who is generating research.
      </p>
      <p>These statistics are unsurprising. The predominance of the
United States in these rankings is consistent with its
economic and cultural dominance, just as the appearance of
China with the second highest index is a marker of its
growing might. Also comprehensible is the relative absence of
*Author order is alphabetical by last name. All authors
contributed equally to this work.</p>
      <p>
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countries in the Global South, given the exploitation and
underdevelopment of these regions by European colonial
powers
        <xref ref-type="bibr" rid="ref14 ref30 ref43 ref5 ref65">(Frank 1967; Rodney 1972; Jarosz 2003; Bruhn and
Gallego 2012)</xref>
        .
      </p>
      <p>
        Current global inequality in AI development involves both
a concentration of profits and a danger of ignoring the
contexts to which AI is applied. As AI systems become
increasingly integrated into society, those responsible for
developing and implementing such systems stand to profit to a large
extent. If these players are predominantly located outside of
the Global South, a disproportionate share of economic
benefit will fall also outside of this region, exacerbating extant
inequality. Furthermore, the ethical application of AI
systems requires knowledge of the contexts in which they are to
be applied. As recent work
        <xref ref-type="bibr" rid="ref13 ref19 ref24 ref37 ref69 ref73">(Grush 2015; De La Garza 2020;
Coalition for Critical Technology 2020; Beede et al. 2020;
Sambasivan et al. 2020)</xref>
        has highlighted, work that lacks this
contextual knowledge can fail to help the targeted
individuals, and can even harm them (e.g., misdiagnoses in medical
applications).
      </p>
      <p>
        Whether explicitly in response to these problems or not,
calls have been made for broader inclusion in the
development of AI
        <xref ref-type="bibr" rid="ref51 ref7">(Asemota 2018; Lee et al. 2019)</xref>
        . At the
same time, some have acknowledged the limitations of
inclusion. Sloane et al. (2020) describes and argues against
participation-washing, whereby the mere fact that somebody
has participated in a project lends it moral legitimacy. In this
work, we focus upon the implications of participation for
global inequality, focusing particularly on the limitations in
which inclusion in AI development is practised in the Global
South. We look specifically at how this plays out in the
domains of datasets and research labs, and conclude with a
discussion of opportunities for ameliorating the power
imbalance in AI development.
      </p>
    </sec>
    <sec id="sec-2">
      <title>Datasets</title>
      <p>Given the centrality of large amounts of data in today’s
machine learning systems, there would appear to be substantial
opportunity for inclusion in data collection and labeling
processes. While there are benefits to more diverse participation
in data-gathering pipelines (that is, processes involved in the
collection, labeling, and other processing of data for use in
machine-learning systems), we will highlight how this
approach does not go far enough in addressing global
inequality in AI development.</p>
      <p>
        Data collection itself is a practice fraught with
problems of inclusion and representation. Two large, publicly
available image datasets, ImageNet
        <xref ref-type="bibr" rid="ref25 ref68">(Deng et al. 2009;
Russakovsky et al. 2015)</xref>
        and OpenImages
        <xref ref-type="bibr" rid="ref49">(Krasin et al. 2017)</xref>
        ,
are US- and Eurocentric
        <xref ref-type="bibr" rid="ref71">(Shankar et al. 2017)</xref>
        .
        <xref ref-type="bibr" rid="ref71">Shankar et al.
(2017)</xref>
        further argues that models trained on these datasets
perform worse on images from the Global South. For
example, images of grooms are classified with lower accuracy
when they come from Ethiopia and Pakistan, compared to
images of grooms from the United States. Along this vein,
DeVries et al. (2019) shows that images of the same word,
like “wedding” or “spices”, look very different when queried
in different languages, as they are presented distinctly in
different cultures. Thus, publicly available object recognition
systems fail to correctly classify many of these objects when
they come from the Global South. A representative dataset is
crucial to allowing models to learn how certain objects and
concepts are represented in different cultures.
      </p>
      <p>
        Since many deep learning techniques require large
amounts of data to train their models, the importance of data
labeling has grown. The data collection and labeling
market is expected to grow to $6.5 billion USD by 2027
        <xref ref-type="bibr" rid="ref18 ref35 ref64">(Grand
View Research 2020)</xref>
        , while
        <xref ref-type="bibr" rid="ref21">Cognilytica (2019)</xref>
        estimates
that over 80% of the machine learning development process
consists of data preparation tasks (collection, cleaning, and
labeling). Large tech companies such as Uber and
Alphabet rely heavily these services, with some paying millions of
dollars monthly
        <xref ref-type="bibr" rid="ref75">(Synced 2019)</xref>
        .
      </p>
      <p>
        At the same time, data labeling is a time-consuming,
repetitive process. Its importance in machine-learning
research and development has led to the crowdsourcing of
this work, whereby anonymous individuals are remunerated
for completing this work. A major venue for crowdsourcing
work is Amazon Mechanical Turk; according to
        <xref ref-type="bibr" rid="ref28">Difallah,
Filatova, and Ipeirotis (2018</xref>
        ), less than 2% of Mechanical
Turk workers come from the Global South (a vast majority
come from the USA and India). Other notable companies
in this domain, Samasource, Scale AI, and Mighty AI also
operate in the United States, but they crowdsource
workers from around the world, primarily relying on low-wage
workers from sub-Saharan Africa and Southeast Asia
(Murgia 2019). This leads to a significant disparity between the
millions in profits earned by data labeling companies and
worker earnings; for example, workers at Samasource earn
around $8 USD a day
        <xref ref-type="bibr" rid="ref50">(Lee 2018)</xref>
        while the company made
$19 million in 2019 (sam 2021). While
        <xref ref-type="bibr" rid="ref50">Lee (2018)</xref>
        notes
that $8 USD may well be a living wage in certain areas,
the massive profit disparity remains despite the importance
of these workers to the core businesses of these companies.
Additionally, many of these workers are contributing to AI
systems that are likely to be biased against underrepresented
populations in the locales they are deployed in
        <xref ref-type="bibr" rid="ref15 ref31">(Buolamwini
and Gebru 2018; Obermeyer et al. 2019)</xref>
        and may not be
directly benefiting their local communities. While data
labeling is not as physically intensive as traditional factory
labor, workers report the pace and volume of their tasks as
”mentally exhausting” and ”monotonous” due to the strict
requirements needed for labeling images, videos, and audio
to client specifications
        <xref ref-type="bibr" rid="ref21 ref22 ref32 ref36 ref55">(Gent 2019; Croce and Musa 2019)</xref>
        .
In the Global South recently, local companies have begun
to proliferate, like Fastagger in Kenya, Sebenz.ai in South
Africa, and Supahands in Malaysia. As AI development
continues to scale, the expansion of these companies opens the
door for low-skilled laborers to enter the workforce but also
presents a chance for exploitation to continue to occur.
Barriers to Participation There are barriers that exist to
participating in data labeling. The most obvious is that a
computing device and stable internet access are required
for access to these data labeling platforms. These goods are
highly correlated with socioeconomic status and geographic
locations, thus serving as a barrier to participation for many
        <xref ref-type="bibr" rid="ref41">Harris, Straker, and Pollock (2017</xref>
        ). A reliable internet
connection is necessary for finding tasks to complete,
completing those tasks, and accessing the remuneration for those
tasks. Further, those in the Global South pay higher prices
for Internet access compared to their counterparts in the
Global North (i.e. Western countries) (Nzekwe 2019).
Another barrier is in the method of payment for data labeling
services on some of these platforms. For example, Amazon
Mechanical Turk, a widely used platform for finding data
labelers, only allows payment to a U.S. Bank Account or in
the form of an Amazon.com gift card
        <xref ref-type="bibr" rid="ref4">(Amazon 2020)</xref>
        . These
methods of payment restrict may not be what is desired by
a worker, and can serve as a deterrent to work for this
platform.
      </p>
      <p>
        Problems with Participation Although global inclusion
in the data pipeline can be beneficial, it is no panacea for
global inequality in AI development, and in fact, can even
be detrimental if not approached with care. The
development of AI is highly concentrated in countries in the Global
North for a variety of reasons, such as an abundance of
capital, well-funded research institutions, and technical
infrastructure. The existence of these advantageous conditions is
inextricable from the history of colonial exploitation of the
Global South, whereby European states plundered labour
and capital for the benefit of the metropoles, to the detriment
of the colonized
        <xref ref-type="bibr" rid="ref30 ref65">(Frank 1967; Rodney 1972)</xref>
        . A key
justification for this exploitation was white supremacy: the
colonized, as “uncivilized”, were most fit to perform physically
excruciating labour, at wages lower than those paid to
Europeans. As such, colonized peoples were for the most part
prevented from engaging in the more lucrative businesses
of insurance, banking, industry, and trading
        <xref ref-type="bibr" rid="ref65">(Rodney 1972)</xref>
        .
Although the labour and natural capital of colonized nations
were indispensable to European economic projects,
European institutions and individuals captured the vast majority
this wealth.
      </p>
      <p>
        It is instructive to view inclusion in the data pipeline as a
continuation of this exploitative history. With respect to data
collection, current practices can neglect consent and poorly
represent areas of the Global South. Image datasets are often
collected without consent from the people involved, even in
pornographic contexts
        <xref ref-type="bibr" rid="ref42 ref45 ref58 ref61">(Prabhu and Birhane 2020; Paullada
et al. 2020)</xref>
        , while others (e.g., companies, end-users) benefit
from their use.
        <xref ref-type="bibr" rid="ref45">Jo and Gebru (2020)</xref>
        suggests drawing from
the long tradition or archives when collecting data because
this is a discipline that has already been thinking about
challenges like consent and privacy. Indeed, beyond a possible
honorarium for participation in the data collection process,
no large-scale, successful schema currently exists for
compensating users for the initial and continued use of their data
in machine-learning systems, although some efforts are
currently underway
        <xref ref-type="bibr" rid="ref48">(Kelly 2020)</xref>
        . However, the issue of
compensation elides the question of whether such large-scale
data collection should occur in the first place. Indeed, the
process of data collection can contribute to an “othering” of
the subject and cement inaccurate or harmful beliefs. Even if
data come from somewhere in the Global South, they are
often from the perspective of an outsider
        <xref ref-type="bibr" rid="ref42 ref45 ref61 ref77">(Wang, Narayanan,
and Russakovsky 2020)</xref>
        . That the outsider may not
understand the context or may have an agenda counter to the
interest of the subject is reflected in the data captured, as has
been extensively studied in the case of photography
        <xref ref-type="bibr" rid="ref10 ref62 ref76">(Ranger
2001; Batziou 2011; Thompson 2016)</xref>
        . Ignorance of context
can cause harm, as
        <xref ref-type="bibr" rid="ref69">Sambasivan et al. (2020)</xref>
        discusses in
the case of fair ML in India, where distortions in the data
(e.g., a given sample corresponds to multiple individuals
because of shared device usage) distort the meaning of
fairness definitions that were formulated in Western contexts.
Furthermore, the history of phrenology reveals the role that
the measurement and classification of colonial subjects had
in justifying domination
        <xref ref-type="bibr" rid="ref60 ref9">(Bank 1996; Poskett 2013)</xref>
        .
        <xref ref-type="bibr" rid="ref26">Denton
et al. (2020)</xref>
        points out the need to interrogate more deeply
the norms and values behind the creation of datasets, as they
are often extractive processes that benefit only the dataset
collector and users.
      </p>
      <p>As another significant part of the data collection pipeline,
data labeling is an extremely low-paying job involving rote,
repetitive tasks that offer no room for upward mobility.
Individuals may not require many technical skills to label data,
but they do not develop any meaningful technical skills
either. The anonymity of platforms like Amazon’s
Mechanical Turk inhibit the formation of social relationships
between the labeler and the client that could otherwise have
led to further educational opportunities or better
remuneration. Although data is central to the AI systems of today, data
labelers receive only a disproportionately tiny portion of the
profits of building these systems. In parallel with colonial
projects of resource extraction, data labeling as extraction
of meaning from data is no way out of a cycle of colonial
dependence.</p>
      <p>
        The people doing the work of data labeling have been
termed ”ghost-workers”
        <xref ref-type="bibr" rid="ref21 ref22 ref36 ref55">(Gray and Suri 2019)</xref>
        . The labour
of these unseen workers generates massive profits that
others capture. While our following discussion provides US
statistics because those are the ones most readily available,
it is easy to imagine similar or worse labour situations in
the Global South. ImageNet
        <xref ref-type="bibr" rid="ref25 ref68">(Deng et al. 2009; Russakovsky
et al. 2015)</xref>
        –a benchmark dataset essential to recent progress
in computer vision–would have not been possible without
the work of data labelers
        <xref ref-type="bibr" rid="ref33">(Gershgorn 2017)</xref>
        . However, the
workers themselves made only around a median of $2/hour
USD, with only 4% making more than the US federal
minimum wage of $7.25/hour
        <xref ref-type="bibr" rid="ref40">(Hara et al. 2018)</xref>
        , itself a far
cry from a living wage. The study attributed much of this
low-wage structure to the time spent on activities that were
not compensated, such as finding tasks or working on tasks
that are ultimately rejected. This leads into another major
problem of the power dynamics on a platform like
Amazon Mechanical Turk, where all of the power is given to
the requester of the task. Requesters have the power to set
any price they want (as low as $.01), reject the completed
work of a worker, and misleadingly claim their task will take
a length of time much shorter than what it would actually
take
        <xref ref-type="bibr" rid="ref70">(Semuels 2018)</xref>
        . In the US, workers in this business are
considered independent contractors rather than employees,
so protections guaranteed by the Fair Labor Standards Act
do not apply. A same lack of protections can be seen for
data labelers in the Global South
        <xref ref-type="bibr" rid="ref47">(Kaye 2019)</xref>
        . This power
imbalance emphasizes the need for labor protection.
      </p>
    </sec>
    <sec id="sec-3">
      <title>Research Labs</title>
      <p>
        Establishing research labs has been essential for major tech
companies to advance the development of their respective
technologies while providing valuable contributions to the
field of computer science (Nature 1915). In the United
States, General Electric (GE) Research Laboratory is widely
accepted as the first industrial research lab, providing early
technological achievements to GE and establishing them as
a leader in industrial innovation
        <xref ref-type="bibr" rid="ref16">(Center 2011)</xref>
        . As the
ascendance of artificial intelligence becomes more important
to the bottom lines of many large tech companies,
industrial research labs have spun out that solely focus on
artificial intelligence and its respective applications. Companies
from Google to Amazon to Snapchat have doubled down
in this field and opened up labs leveraging artificial
intelligence for web search, language processing, video
recognition, voice applications, and much more. As AI becomes
increasingly integrated into the livelihoods of consumers
around the world, tech companies have recognized the
importance of democratizing AI development and moving it
outside the bounds of the Global North. Of five notable
tech companies developing AI solutions (Google, Microsoft,
IBM, Facebook, and Amazon), Google, Microsoft, and IBM
have research labs in the Global South and all have either
development centers, customer support centers, or data centers
within these regions. Despite their presence throughout the
Global South, AI research centers tend to be concentrated
in certain countries. Within Southeast Asia, the
representation of lab locations is limited to India; in South America,
representation is limited to Brazil. In sub-Saharan Africa we
find a bit more spread in location with AI labs established
in Accra, Ghana; Nairobi, Kenya; and Johannesburg, South
Africa.
      </p>
      <p>
        Barriers to Participation For a company to choose to
establish an AI research center, the company must believe this
initiative to be in its financial interest. Unfortunately, several
barriers exist. The necessity of generating reliable returns for
shareholders precludes ventures that appear too risky,
especially for smaller companies. The perception of risk can take
a variety of forms and possibly be influenced by stereotypes
to differing extents. Two such factors are political/economic
instability or a relatively lower proportion of tertiary
formal education in the local population, which can be traced
to the history of colonial exploitation and
underdevelopment
        <xref ref-type="bibr" rid="ref14 ref43 ref5 ref65">(Rodney 1972; Jarosz 2003; Bruhn and Gallego 2012)</xref>
        ,
whereby European colonial powers extracted labour, natural
resources, and economic surplus from colonies, while at the
same time subordinating their economic development to that
of the metropoles. It is hard to imagine the establishment of
a top-tier research university — with the attendant technical
training afforded to the local populace — in regions
repeatedly denuded of wealth.
      </p>
      <p>
        Problems with Participation While the opening of data
centers and AI research labs in the Global South appears
beneficial for the local workforce, these positions may
require technical expertise which the local population might
not have. This would instead introduce opportunities for
displacement by those from the Global North who have had
more access to specialized training needed to develop,
maintain, and deploy AI systems. Given the unequal distribution
of AI development globally, it is common for AI researchers
and practitioners to work and study in places outside of
their home countries (i.e., outside of the Global South). For
example, the current director of Google AI Accra,
originally from Senegal, was recruited to Google from Facebook
AI Research in Menlo Park, CA
        <xref ref-type="bibr" rid="ref2 ref7">(Adekanmbi 2018;
Asemota 2018)</xref>
        . The director for Microsoft’s new lab in Nairobi,
Kenya was recruited from Microsoft Research India; before
that, she was a research scientist at Xerox in France
        <xref ref-type="bibr" rid="ref18 ref35 ref57 ref64 ref64">(O’Neill
2020; Research 2020)</xref>
        . While the directors of many research
labs established in the Global South have experience
working in related contexts, we find that local representation is
sorely lacking at both the leadership and general workforce
level. Grassroots AI education and training initiatives by
communities such as Deep Learning Indaba, Data Science
Africa, and Khipu AI in Latin America aim to increase
local AI talent, but since these initiatives are less than five
years old, it is hard to measure their current impact on
improving the pipeline of AI researchers and machine
learning engineers. However, with the progress made by these
organizations publishing novel research at premier AI
conferences, hosting conferences of their own, and much more,
the path to inclusive representation in the global AI
workforce is strengthening.
      </p>
      <p>
        Although several tech companies have established
research facilities across the world and in the Global South,
these efforts remain insufficient at addressing long-term
problems in the AI ecosystem. A recent report from
Georgetown University’s Center for Security and Emerging
Technologies (CSET) describes the establishment of AI labs by
US companies, namely Facebook, Google, IBM, and
Microsoft, abroad
        <xref ref-type="bibr" rid="ref42 ref45 ref61">(Heston and Zwetsloot 2020)</xref>
        . The report
notes that while 68% of the 62 AI labs are located outside
of the United States, 68% of the staff are located within
the United States. Therefore, the international offices
remain half as populated on average relative to the domestic
locations. Additionally, none of these offices are located in
South America and only four are in Africa. To advance
equity within AI and improve inclusion efforts, it is imperative
that companies not only establish locations in
underrepresented regions, but hire employees and include voices from
those regions in a proportionate manner.
      </p>
      <p>
        The CSET report also notes that AI labs form abroad
generally in one of three ways: through the acquisition of
startups; by establishing partnerships with local
universities or institutions; and by relocating internal staff or hiring
new staff in these locations
        <xref ref-type="bibr" rid="ref42 ref45 ref61">(Heston and Zwetsloot 2020)</xref>
        .
The first two of these methods may favor locations with an
already-established technological or AI presence, as many
AI startups are founded in locations where a financial and
technological support system exists for them. Similarly, the
universities with whom tech companies choose to partner
are often already leaders in the space, as evidenced by
Facebook’s partnership with Carnegie Mellon professors and
MIT’s partnerships with both IBM and Microsoft. The
general strategy of partnering with existing institutions and of
acquiring startups has the potential to reinforce existing
inequities by investing in locations with already thriving tech
ecosystems. One notable exception to this is Google’s
investment into infrastructure, skills training, and startups in
Ghana
        <xref ref-type="bibr" rid="ref7">(Asemota 2018)</xref>
        . Long-term investment and planning
in the Global South can form the stepping stones for
broadening AI to include underrepresented and marginalized
communities.
      </p>
      <p>
        Even with long-term investment into regions in the Global
South, the question remains of whether local residents are
provided opportunities to join management and contribute
to important strategic decisions. Several organizations have
emphasized the need for AI development within a country
to happen at the grassroots level, so that those
implementing AI as a solution understand the context of the problem
being solved
        <xref ref-type="bibr" rid="ref39 ref54">(Mbayo 2020; Gul 2019)</xref>
        . The necessity of
indigenous decision-making is just as important in
negotiating the values that AI technologies are to instantiate, such
as through AI ethics declarations that are at the moment
heavily Western-based
        <xref ref-type="bibr" rid="ref21 ref22 ref36 ref46 ref55">(Jobin, Ienca, and Vayena 2019)</xref>
        .
Although this is critical not only to the success of individual
AI solutions but also to equitable participation within the
field at large, more can and should be done. True inclusion
necessitates that underrepresented voices can be found in all
ranks of a company’s hierarchy, including in positions of
upper management. Tech companies which are establishing a
footprint in these regions are uniquely positioned to offer
this opportunity to natives of the region. Taking advantage
of this ability will be critical to ensuring that the benefits
of AI apply not only to technical problems that arise in the
Global South, but to socioeconomic inequalities which
persist around the world.
      </p>
    </sec>
    <sec id="sec-4">
      <title>Opportunities</title>
      <p>In the face of global inequality in AI development, there are
a few promising opportunities.</p>
      <p>
        Affinity Groups While AI and technology in general has
long excluded marginalized populations, the emergence of
grassroots efforts by organizations to ensure that
indigenous communities are actively involved as stakeholders of
AI has recently been strong. Black in AI, a nonprofit
organization with worldwide membership, was founded to increase
the global representation of Black-identifying students,
researchers, and practitioners in the field of AI, and has made
significant improvements in increasing the number of Black
scholars attending and publishing in NeurIPS and other
premier AI conferences
        <xref ref-type="bibr" rid="ref29 ref72">(Earl 2020; Silva 2021)</xref>
        . Inclusion in AI
is extremely sparse in higher education and recent efforts by
Black in AI have focused on instituting programming to
support members in graduate programs and in their
postgraduate careers. Other efforts such as Khipu AI, based in Latin
America, have been established to provide a venue to train
aspiring AI researchers in advanced machine learning
topics, foster collaborations, and actively participate in how AI
is being used to benefit Latin America. Other communities
based on the African continent such as Data Science Africa
and Deep Learning Indaba have expanded their efforts,
establishing conferences, workshops, and dissertation awards,
and developing curricula for the broader African AI
community. These communities are clear about their respective
missions and the focus of collaboration. Notably, Masakhane, a
grassroots organization focusing on improving the
representation of African languages in the field of natural language
processing shares the sentiment expressed in this paper on
how AI research should be approached:
      </p>
      <sec id="sec-4-1">
        <title>Masakhane are not just annotators or translators. We</title>
        <p>
          are researchers. We can likely connect you with
annotators or translators but we do not support shallow
engagement of Africans as only data generators or
consumers
          <xref ref-type="bibr" rid="ref53">(Masakhane 2021)</xref>
          .
        </p>
        <p>As these initiatives grow across the Global South, we
hope large organizations and technology companies partner
with and adopt the values of these respective initiatives to
ensure AI developments are truly representative of the global
populace.</p>
        <p>
          Research Participation One key component of AI
inclusion efforts should be to elevate the involvement and
participation of those historically excluded from technological
development. Many startups and several governments across
the Global South are creating opportunities for local
communities to participate in the development and
implementation of AI programs
          <xref ref-type="bibr" rid="ref15 ref31 ref39 ref54">(Mbayo 2020; Gul 2019; Galperin
and Alarcon 2018)</xref>
          . In situations where the central
involvement has been data labeling, strides should be taken to add
model development roles to the opportunity catalog there.
Currently, data labelers are often wholly detached from the
rest of the ML pipeline, with workers oftentimes not
knowing how their labor will be used nor for what purpose
          <xref ref-type="bibr" rid="ref34">(Graham 2018)</xref>
          . Little sense of fulfillment comes from menial
tasks, and by exploiting these workers solely for their
produced knowledge without bringing them into the fold of the
product that they are helping to create, a deep chasm
exists between workers and the downstream product
          <xref ref-type="bibr" rid="ref67">(Rogstadius et al. 2011)</xref>
          . Thus, in addition to policy that improves
work conditions and wages for data labelers, workers should
be provided with education opportunities that allow them to
contribute to the models they are building in ways beyond
labeling
          <xref ref-type="bibr" rid="ref21 ref22 ref36 ref55">(Gray and Suri 2019)</xref>
          . Similarly, where participation
in the form of model development is the norm, employers
should seek to involve local residents in the ranks of
management and in the process of strategic decision-making.
The advancement of an equitable AI workforce and
ecosystem requires that those in positions of data collection and
training be afforded opportunities to lead their organizations.
Including these voices in positions of power has the added
benefit of ensuring the future hiring and promotion of local
community members.
        </p>
        <p>AI as Development The massive inequalities in the
development of AI can appear daunting. Will it ever be possible to
close the gap? Similar concerns arise in the broader study of
economic development, from which one can draw lessons.</p>
        <p>
          Despite the large developmental gap between the Global
North and the Global South, the latter part of the 20th
century saw some countries bridge it. For example, while the
GDP per capita of South Korea was far lower than that of
the USA in the 1960s, by 2000 the gap had considerably
narrowed, especially in comparison to world GDP per capita
over the same time period. 1 Much work
          <xref ref-type="bibr" rid="ref14 ref17 ref5 ref52">(Chang 2009; Lin
2011; Aryeetey and Moyo 2012; Mendes, Bertella, and
Teixeira 2014)</xref>
          has linked the relative economic success of South
Korea to the policy of import substitution industrialization
(ISI), whereby a country attempts to replace foreign
imports with domestic production in an attempt to build
highproductivity industries (e.g., electronics), rather than rely
on exports of low-productivity industries (e.g., agriculture).
The idea is that once the so-called “infant industries” have
developed enough, they will be able to compete in
international markets without government support. The execution
of ISI involves protectionist trade policies, subsidies for
targeted industries, and sufficient investment in education and
infrastructure. While ISI can be incredibly successful, as in
the cases of Samsung and POSCO from South Korea
          <xref ref-type="bibr" rid="ref17">(Chang
2009)</xref>
          , its execution relies on sufficient agricultural input and
human capital, careful management of foreign reserves, and
state capacity for coordination with private partners
          <xref ref-type="bibr" rid="ref14 ref5">(Aryeetey and Moyo 2012; Mendes, Bertella, and Teixeira 2014)</xref>
          .
In the absence of these factors, ISI can fail and the country
can even go through de-industrialization.
        </p>
        <p>We suggest viewing AI development as a path forward
for economic development, in light of the lessons learned
from ISI policies. Rather than rely upon foreign
construction of AI systems for domestic application, where any
returns from these systems are not reinvested domestically,
we encourage the formation of domestic AI development
activity. This development activity should not be focused
on low-productivity activities, such as data-labeling, but
instead on high-productivity activities like model
development/deployment and research. An AI-focused ISI policy
could include state-led investments into AI-related
education and infrastructure, funding for private bodies to engage
in domestic AI development, and limitations on the extent to
which foreign companies may be involved in or profit from
domestic AI activities. While it remains essential, as it was
in historical ISI policies, to work with and assimilate
technology and expertise from foreign companies, it is
impera</p>
      </sec>
      <sec id="sec-4-2">
        <title>1https://ourworldindata.org/grapher/average-real-gdp-per</title>
        <p>capita-across-countries-and-regions?time=1869..2016&amp;country=
KOR∼USA∼OWID WRL
tive that domestic expertise be developed in tandem to shape
the future of AI development and reap its large profits.</p>
        <p>This is by no means an easy task, and an AI-focused ISI
policy encounters many of the same difficulties as
historical ISI policies, such as the necessity of bringing in
expertise and technology, and in ensuring that sufficient education
and infrastructure (e.g., internet access) exist. It will likely
encounter many new difficulties that are unique to AI
development as well. Even in the absence of centralized state
coordination, however, recent initiatives like Deep Learning
Indaba and Khipu have promoted the importance of
indigenous AI development and have advanced education in AI.</p>
      </sec>
    </sec>
    <sec id="sec-5">
      <title>Conclusion</title>
      <p>As the development of artificial intelligence continues to
progress across the world, the exclusion of those from
communities most likely to bear the brunt of algorithmic inequity
only stands to worsen. We address this question by
exploring the challenges and benefits of increasing broader
inclusion in the field of AI. We examine the limits of current AI
inclusion methods, problems of participation regarding AI
labs situated in the Global South from major tech
companies, and discuss opportunities for AI to accelerate
development within disadvantaged regions.</p>
      <p>We hope the actions we propose can help to begin the
movement of communities in the Global South from being
just beneficiaries or subjects of AI systems to being active,
engaged participants. Having true agency over the AI
systems integrated into the livelihoods of communities in the
Global South will maximize the impact of these systems and
lead the way for global inclusion of AI.</p>
      <p>As a limitation of our work, it is important to
acknowledge we are currently all located at, and have been educated
at, North American institutions. Our positions in these
institutions thus limit our perspective, and we respect the
considerations we may have missed and the voices we have not
heard in the course of writing this work.
Mendes, A. P. F.; Bertella, M. A.; and Teixeira, R. F.
A. P. 2014. Industrialization in Sub-Saharan Africa
and import substitution policy. Revista de
Economia Pol´ıtica 34(1): 120–138. ISSN 0101-3157.
doi:10.1590/S0101-31572014000100008. URL http:
//www.scielo.br/scielo.php?script=sci
arttext&amp;pid=S010131572014000100008&amp;lng=en&amp;tlng=en.</p>
      <p>Murgia, M. 2019. AI’s new workforce: the data-labelling
industry spreads globally. Financial Times .</p>
      <p>Nature. 1915. Industrial Research Laboratories. URL https:
//doi.org/10.1038/096419a0.</p>
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