Costa Rica - National AI Strategy

Overview

The National Artificial Intelligence Strategy (ENIA) 2024-2027 of Costa Rica represents a landmark public policy initiative, making Costa Rica the first country in Central America to establish a comprehensive framework for the ethical and responsible development, adoption, and use of Artificial Intelligence (AI). Launched by the Ministry of Science, Innovation, Technology and Telecommunications (MICITT) on October 24, 2024, the ENIA serves as a strategic roadmap designed to integrate AI into the country's development in an ethical, inclusive, and sustainable manner. The strategy is built around human-centered principles, aiming to maximize the benefits of AI for citizens while proactively addressing potential risks and challenges associated with its implementation. It reflects Costa Rica's commitment to spearheading digital transformation and positioning itself as a regional leader in responsible AI use and governance. The ENIA emphasizes social inclusion, sustainable development, and the strengthening of national capabilities, aligning AI with the country's long-standing commitments to human rights and social equity. The development of the ENIA involved extensive collaboration with the public sector, civil society, the private sector, and academia, reflecting a multi-stakeholder approach to national AI governance.

Definitions

While the National Artificial Intelligence Strategy (ENIA) document outlines a broad framework for AI governance, it does not explicitly feature a dedicated 'Definitions' section for specific terms like 'deepfake' or 'synthetic media' within the provided search results. However, the strategy implicitly defines its scope by referring to 'Artificial Intelligence (AI)' as a powerful tool with the potential to transform vital sectors such as health, education, security, and public administration. It also mentions 'AI systems' in the context of needing a regulatory framework to oversee their deployment and ensure safe and responsible use. The strategy's accompanying 'Plan de Acción ENIA' and other related documents from MICITT, as referenced in search snippets, may contain more granular definitions. For instance, the broader discourse around AI in Costa Rica, as indicated by mentions of 'Generative AI' (IAG) and 'Large Language Models' (LLM) in related documents (though not directly cited here), suggests an understanding of AI encompassing advanced machine learning techniques and their applications. The core understanding within the ENIA is that AI refers to technologies and algorithms that can perform tasks typically requiring human intelligence, and the strategy focuses on guiding their ethical, secure, and responsible integration into society and the economy.

Governance and Institutional Framework

The primary institution responsible for leading and overseeing the National Artificial Intelligence Strategy (ENIA) is the Ministry of Science, Innovation, Technology and Telecommunications (MICITT) of Costa Rica. MICITT has been the driving force behind the formulation and launch of the ENIA, guided by a strategic vision to maximize AI's benefits while proactively addressing its ethical, social, and technical challenges. The development of the ENIA was a collaborative effort, validated in conjunction with a wide array of stakeholders, including other public sector entities, civil society organizations, the private sector, and academia. This multi-stakeholder engagement is a cornerstone of the strategy's design and implementation, ensuring a holistic and inclusive approach to AI governance. Key actors involved in the broader ecosystem include the Inhabitants' Data Protection Agency (PRODHAB), the Central Bank of Costa Rica (BCCR), various chambers representing industry and technology (e.g., Infocommunication and Technology Chamber (Infocom), Costa Rican Chamber of Information and Communication Technologies (CAMTIC), Chamber of Industries of Costa Rica (ICRC)), professional colleges (e.g., College of Professionals in Informatics and Computing (CPIC)), and academic institutions (e.g., National Council of Rectors (CONARE)). International organizations such as UNESCO, the Inter-American Development Bank (IDB), and the Development Bank of Latin America and the Caribbean (CAF) also provided support and guidance during the ENIA's development, further emphasizing its alignment with global best practices. MICITT's Cybersecurity Directorate is also strengthened within the strategy to mitigate AI-related risks and protect critical infrastructure. The strategy envisages continuous coordination among these diverse actors for its successful implementation and ongoing evolution.

Key Focus Areas

• AI Ética, Segura y Responsable (Ethical, Secure, and Responsible AI): This foundational pillar seeks to ensure that artificial intelligence is developed and utilized in a manner that respects human rights, guarantees safety, promotes transparency, and fosters equity. It emphasizes the critical need for a clear normative framework and an ethical approach that consistently places people at the center of all AI processes. A central objective here is to propose and implement an ethical and normative framework for the responsible use, adoption, and development of AI in Costa Rica, which includes the design and implementation of an AI regulatory sandbox by 2025 to test innovative solutions under controlled environments. This also extends to developing specific ethical and normative frameworks for areas like clinical diagnostic in health using AI software.
• Articulación Territorial y Desarrollo Económico (Territorial Articulation and Economic Development): The ENIA aims to promote the widespread development and adoption of AI across all regions of Costa Rica, deliberately ensuring that the benefits of AI are not exclusively concentrated within the Greater Metropolitan Area (GAM). The objective is for AI to invigorate local economies, strengthen diverse productive sectors, and drive more equitable development throughout the national territory, thereby reducing existing digital and economic disparities.
• Promoción de I+D+i en IA (Promotion of R&D&i in AI): This strategic axis is dedicated to strengthening research, development, and innovation (R&D&i) in artificial intelligence across the country. It involves fostering robust collaborations among the academic sector, the private sector, and the government to generate new knowledge, develop cutting-edge technological solutions, and respond effectively to the specific needs and challenges of Costa Rica. This includes creating an enabling environment for research and development.
• Gobierno Inteligente (Intelligent Government): The ENIA seeks to fundamentally transform the way the government delivers its services to citizens through the integration of AI solutions. The goal is to significantly enhance the efficiency, quality, and transparency of public services, enabling a more responsive and data-driven government. An intelligent government will leverage AI to streamline administrative processes, optimize decision-making based on robust data analysis, and improve citizen engagement.
• Capacitación y Formación de Talento (Training and Talent Development): Recognizing the transformative impact of AI on the workforce, this pillar focuses on the crucial task of training and upskilling the labor force to ensure the successful implementation and sustained growth of AI in Costa Rica. It promotes comprehensive programs for reskilling and upskilling, the development of specialized AI curricula in educational institutions, and targeted training for teachers and public officials. Initiatives like Community Innovation Labs (LINC/CINL) are central to extending AI-related training to rural and underserved areas, promoting inclusion.
• Infraestructura y Habilitadores (Infrastructure and Enablers): This axis is vital for building the foundational digital environment necessary for AI development and adoption. Key initiatives include the expansion and deployment of 5G networks, strengthening digital governance frameworks, and the establishment of a National Center of Excellence in AI. This center is envisioned to lead national efforts in AI research, innovation, and technological development, serving as a hub for advanced AI capabilities.
• Liderazgo e Incidencia Internacional (International Leadership and Influence): Costa Rica aims to position itself as a significant regional and international reference in the responsible development and governance of AI. This involves active participation in global forums and initiatives, such as the OECD AI Governance Committee (AIGO), the Global Partnership on Artificial Intelligence (GPAI), and the Hiroshima AI Process. The strategy emphasizes regional collaboration on data management, equitable access to technology, and the development of ethical and sustainable AI frameworks on a global scale.

Implementation Framework

The implementation of Costa Rica's National Artificial Intelligence Strategy (ENIA) 2024-2027 is a multi-faceted process coordinated primarily by the Ministry of Science, Innovation, Technology and Telecommunications (MICITT). The strategy is structured around seven strategic axes, which serve as guiding principles for its execution and ensure a comprehensive approach to AI development across the nation. A key component of the implementation framework is the 'Plan de Acción ENIA' (ENIA Action Plan), which provides specific lines of action, expected results, strategic interventions, and associated objectives and indicators for the period 2024-2027. This action plan details the roles of responsible entities and strategic allies, outlining concrete steps to achieve the ENIA's goals. The strategy emphasizes fostering an enabling environment for research, development, and innovation (R&D&i) in AI, encouraging strategic alliances among the public, private, and academic sectors. Initial key activities highlighted for implementation include the deployment and expansion of 5G network infrastructure to support advanced AI applications, the establishment of a National AI Center of Excellence dedicated to research, development, and training, and the development of a specific regulatory framework to ensure the ethical and safe use of AI, encompassing data protection and cybersecurity. The collaborative validation process involving diverse sectors during the strategy's design is expected to continue into its implementation, ensuring broad stakeholder participation and ownership. The focus is on integrating AI ethically, inclusively, and sustainably, ensuring its benefits reach all Costa Rican citizens.

Monitoring and Evaluation

The National Artificial Intelligence Strategy (ENIA) incorporates mechanisms for ongoing monitoring and evaluation to ensure its effectiveness and adaptability to the evolving landscape of AI. The Ministry of Science, Innovation, Technology and Telecommunications (MICITT), as the lead agency, is tasked with the continuous oversight of the strategy's progress. The success of the ENIA will be periodically assessed through annual reports developed by MICITT. These reports will measure the strategy's impact on the country, evaluate the fulfillment of its stated objectives, and assess the efficient use of allocated resources. Furthermore, officials plan to continuously monitor and evaluate AI systems as the technology evolves, ensuring that the established safeguards and frameworks remain effective and relevant. This commitment to periodic review and reporting underscores the iterative nature of AI governance, allowing for adjustments and refinements to the strategy based on real-world outcomes and technological advancements. The strategy's objectives, which include promoting the adoption and development of ethical and regulatory frameworks and stimulating R&D&I, are linked to specific indicators and targets within the accompanying Action Plan, facilitating measurable progress tracking.

Penalties, Liability, and Appeals

As a national strategy document, the Costa Rica National Artificial Intelligence Strategy (ENIA) 2024-2027 primarily establishes a guiding framework and policy directions for the ethical, secure, and responsible development and use of AI. It does not, in itself, prescribe specific criminal penalties, civil penalties, fines, or an appeals process for non-compliance. Instead, a central goal of the ENIA is the creation of a comprehensive 'normative framework' or 'regulatory framework' that will subsequently establish the technical and ethical guidelines for AI development and deployment in the country. This future regulatory framework is expected to set standards for safe and responsible AI use, aiming to prevent misuse and harmful outcomes. Therefore, any specific provisions regarding penalties, liability, and appeals would be detailed in the subsequent legal instruments or regulations that emerge from the implementation of this strategy's objectives, particularly under its first strategic axis, 'AI Ética, Segura y Responsable'. The strategy emphasizes the principle of 'Accountability,' which implies clear legal responsibility for AI outcomes, suggesting that future regulations will address these aspects. Until such a regulatory framework is fully developed and enacted, existing national laws and regulations related to data protection, consumer rights, and general liability would likely apply to AI-related incidents.

Relationship to Other Instruments

The National Artificial Intelligence Strategy (ENIA) 2024-2027 is positioned as a foundational public policy document that aims to align and integrate with various existing national and international instruments. At a national level, the ENIA is designed to be consistent with Costa Rica's broader national priorities and development plans. It complements existing legislation and policies related to digital transformation, data protection, and cybersecurity, implicitly reinforcing the principles of security and data protection outlined within the strategy itself. The strategy is recognized as an initiative related to the National Science, Technology and Innovation Plan, indicating its integration into the country's overarching scientific and technological agenda. A significant aspect of its relationship to other instruments is its explicit goal to develop a new, specific 'regulatory framework' for AI. This forthcoming framework will establish the technical and ethical guidelines for AI in Costa Rica, building upon the principles and objectives set forth in the ENIA. This demonstrates a strategic intent to evolve from a guidance document to a more binding set of rules as AI adoption matures. Furthermore, the ENIA's emphasis on human rights, social equity, and sustainable development ensures its alignment with the Costa Rican Constitution and other fundamental national legal tenets, promoting AI use that respects fundamental rights and reduces inequalities.

International Alignment

A core tenet of Costa Rica's National Artificial Intelligence Strategy (ENIA) is its strong commitment to international alignment and collaboration, positioning the country as a leader in global AI governance. The strategy explicitly aims to align with leading global frameworks and recommendations, including the OECD AI Principles, UNESCO's Recommendation on the Ethics of Artificial Intelligence, the European Union's AI Act, and the Hiroshima AI Process. This commitment underscores Costa Rica's dedication to developing AI responsibly and ethically on a global scale. The ENIA's principles, such as peace and human dignity, human oversight, transparency and explainability, equity and non-discrimination, accountability, sustainability and well-being, and security and data protection, directly reflect and reinforce the principles advocated by these international bodies. Costa Rica actively participates in international forums, such as the OECD AI Governance Committee (AIGO) and the Global Partnership on Artificial Intelligence (GPAI), further demonstrating its engagement in shaping global AI policy and best practices. The strategy also highlights the importance of collaborating with other countries and international organizations to develop regional strategic frameworks that integrate ethical principles, sustainability, and cross-border data management, thereby seeking to close technological gaps and ensure equitable access to AI technologies globally. This proactive international stance ensures that Costa Rica's AI development is not insular but contributes to and benefits from global advancements and ethical considerations.

Implementation Timeline

Sources and References