Professional Documents
Culture Documents
By
Asuncion
M.
Sebastian
12th
of
December
2011
Abstract
This
paper
aims
to
look
at
the
applicability
of
the
propositions
made
in
four
articlesfactors
that
contribute
to
the
success
of
e-government
implementation to
the
Philippine
context
by
using
the
case
of
Angono,
Rizal.
The
municipality
was
the
recipient
of
the
Technology
Leadership
Award
for
excellence
in
concept
and
project
management
in
relation
to
technology
deployment
in
2010,
thus
its
story
is
worth
examining.
In
addition,
the
paper
also
looked
into
the
overall
issues
in
the
implementation
of
the
e-LGU
to
provide
a
broader
perspective
of
the
topicthese
issues
included
leadership,
organizational
behavior,
and
infrastructure.
In
the
end,
the
paper
proposes
that
eight
factors
contribute
to
the
success
of
e- government
implementation:
1)
leadership;
2)
change
management
strategies;
3)
high
level
of
skills
of
personnel;
4)
infrastructure;
5)
citizen
involvement
and
education;
6)
institutionalization
of
ICT
initiatives
to
make
it
politics-proof;
7)
employment
of
high-
and
immediate-impact
systems
first;
and
8)
professional
middle
management.
These
factors
are
then
classified
into
their
type
(external
and
internal
to
the
LGUs)
and
their
roles
in
the
various
stages
of
ICT
implementation.
Introduction................................................................................................................................................. 1 Research Questions.............................................................................................................................. 3 Rationale and Contribution of the Study .................................................................................... 4 Methodology ........................................................................................................................................... 4 Limitations............................................................................................................................................... 5 Review of Literature................................................................................................................................. 5 E-LGU in the Philippines.......................................................................................................................10 Policy Environment ...........................................................................................................................10 Program Overview .............................................................................................................................11 Implementation Issues: Why Many LGUs Failed...................................................................12 Leadership ........................................................................................................................................12 Organizational Culture and Behavior....................................................................................13 Infrastructure ..................................................................................................................................14 Other Success Factors in e-LGU Implementation .................................................................15 The Case of Angono, Rizal ....................................................................................................................16 Profile of Angono ................................................................................................................................16 E-Government Features...................................................................................................................16 Applications / Revenue Generation Systems ....................................................................16 Web Development .........................................................................................................................17 Effective ICT Practices of Angono: Why It Succeeded ........................................................18 Conclusion ..................................................................................................................................................19 Direction for Further Research .........................................................................................................23 Works Cited Annex 1 Annex 2
Table of Contents
Introduction
In an archipelagic country such as the Philippines, the new digital technology, and the information and communication technology (ICT) in general, play a significant role in bridging the physically disconnected islands and overcoming the longstanding challenges of infrastructure. ICT has changed not only the way people interact and do business but also the way the government deals with its citizens. The Philippine government recognizes its primary role in ICT development by providing an enabling policy, legal, and regulatory environments that level the playing field and allow the private sector to lead. Specifically, the government intends to use ICT to promote efficiency, responsiveness of service delivery, and transparency in government via e-Governancethis includes the processing of business permits, effective revenue generation, ensuring better law enforcement, and providing social security benefits to people, among others. (Montecastro, 2008) The goal of using ICT in government is consistent with that of the Local Government Code in 1991 that was meant to empower local government units (LGUs) and promote social development through the decentralization of power. According to Lim (2003, in Alampay), e-government implies an appropriate balance between technology as a tool to improve good governance by increasing the opportunities for interactions and dialogue between the government and those it serves, and an alternative channel for citizens to access government services, and participate in the decision-making process which strengthens the fundamental existence of governments to govern in a transparent, open, and accountable manner. ICT is therefore integral in helping the LGUs become more self-reliant, empowered, and participatory through e-government. (Alampay) The e-government in LGUs started with the three-year e-LGU project that was launched in 2002. Among its components was the establishment of web presence by the LGUs. By the end of the project in 2005, almost all LGUs had web presence (see Figure 1). However, 74 percent of the LGUs were in Stage 1, 21 percent in Stage 2, and the rest in Stage 3; no one had reached the more advanced stages at the end of three years.
Figure
1:
LGU
Web
Presence
in
2005
The
description
of
the
various
stages
is
presented
in
Annex
1.
Figure
2
shows
the
state
of
the
web
presence
by
2007
while
Figure
3,
combining
the
data
in
Figures
1
and
2,
indicates
the
percentage
changes
in
each
stage
and
in
each
LGU
type.
Figure
2:
LGU
Web
Presence
in
2007
Figure
3:
Movement
in
Stages
of
LGU
Web
Presence,
2005-2007
At
this
time,
the
number
of
cities
with
web
presence
increased
by
13
percent
while
the
number
of
provinces
and
municipalities
slightly
decreased.
As
for
the
stages
of
their
web
presence,
the
LGUs
tended
to
concentrate
in
Stage
2,
indicating
both
upward
and
downward
movements
to
this
stage.
Thus,
the
proportion
of
LGUs
in
various
stages
had
also
changed
slightly
after
two
years:
70
percent
remained
in
Stage
1,
26
percent
were
in
Stage
2,
and
the
rest
were
in
Stage
3.
In
2009,
however,
the
NCC
decided
to
fully
stop
the
hosting
services
it
provides
LGUs
across
the
country,
in
a
move
aimed
at
enabling
the
LGUs
to
be
self-sufficient
especially
in
sustaining
their
online
presence.
By
2010,
only
390
LGUs
had
web
presence;
of
this
number,
155
were
on
stage
1,
131
on
Stage
2,
and
104
on
Stage
3.
(InterAksyon,
2011)
The
total
number
of
LGUs
with
web
presence
dropped
by
77
percent
from
2005
figure,
albeit
more
LGUs
were
in
Stage
2
(34
percent)
and
Stage
3
(27
percent).
(Figure
4)
Page 2 of 23
115
Research Questions
The
LGUs
overall
web
presence
seemed
to
have
deteriorated
in
the
last
six
years
despite
the
Philippines
ranking
66th
out
of
192
countries
in
the
United
Nations
e- Government
Readiness
Survey
and
45th
in
the
Web
Measure
Index,
both
in
2008.
(Montecastro,
2008)
On
the
citizens
or
users
side,
the
country
has
been
recognized
as
the
top
17
in
the
world
both
in
terms
of
number
of
Internet
users
(29.7
million)
and
of
penetration
rate
(29.2
percent
of
the
population).
(Miniwatts
Marketing
Group,
2011)
As
for
the
growth
of
Internet
users
from
2000
to
2011,
the
Philippines
ranked
10th
of
the
top
20
countries
cited.
(Annex
2)
While
77
percent
of
the
LGUs
lost
their
web
presence
by
2010,
on
the
contrary,
the
mayor
of
the
municipality
of
Angono,
Hon.
Gerardo
V.
Calderon,
received
the
Technology
Leadership
Award
that
year,
which
recognized
the
eGov4MDs1
excellence
in
concept
and
project
management
in
relation
to
technology
1
The
e-Governance
for
Municipal
Development (eGov4MD) Project, started in April 2007, was a collaborative initiative among the League of Municipalities of the Philippines (LMP), the Mayors Development Center (MDC), Canadian Executive Service Organization (CESO), and the National Computer Center of the Commission on Information and Communication Technology (CICT-NCC), supported by the Department of Interior and Local Government and the Department of Trade and Industry. Its goal is to improve local governance, including increasing efficiency of public service delivery and revenue generation, by promoting human resource development in the field of ICT and promoting the use of National Computer Centers e-LGU software package. (source: www.lmp.org.ph) Page 3 of 23
deployment. The award was given by the Chief Information Officers Forum Foundation (CIOFF), a foundation established by chief information officers and information and communications technology executives and managers from the government. (League of Municipalities of the Philippines, 2010) Given this scenario, this paper aims to answer the following questions: Why were 77 percent of the LGUs in 2005 not able to maintain their websites by 2010? Why has the Angono Municipal Government, considering the relatively smaller revenue streams of municipalities compared to cities and provinces, been able to sustain its web presence and even received an award for its e- government initiatives up to this time? What factors contribute to the success of or hinder the implementation of e- government in the Philippines at the municipality level?
Majority of authors of materials on the success and/or failure of implementing e- government are from the West, citing cases in India and Latin America as examples and bases of their propositions. This paper shall use these authors analytical framework to test whether or not their propositions are also applicable in the Philippine context, thereby contributing to the body of local ICT materials, specifically on e-government. Further, there is scarcity of studies on the implementation of e-government in the country; the few available materials made generalizations based on e-LGU in general without necessarily considering the differences in the resources and political and cultural background, among other things, of the 1,709 LGUs. This papers contribution is an analysis of what works or does not work given the particular context of Angono. Finally, this paper aims to document the successful practices in e-government, showcasing the lessons that may be applicable to the LGUs with context similar to that of the case subject.
Methodology
This
study
shall
use
the
case
study
approach,
wherein
two
research
methods
will
be
employed:
1)
interview
with
key
informants
that
include
the
former
Chairpersons
of
the
Commission
on
Information
and
Communication
Technology
and
the
management
and
staff
of
the
Municipality
Government
of
Angono
and
its
neighboring
municipality,
Taytay;
and
2)
secondary
material
search.
As
in
the
works
of
Jones,
Irani,
Sharif,
and
Themistocieous
(2006)
which
also
used
the
same
methodology,
case
study
was
deemed
appropriate
to
use
to
describe
the
Page 4 of 23
core issues associated with e-government (in their study, it was about evaluation in the public sector). Generalization is not sought, rather, undertanding the deeper structure of the phenomenon under study.
Limitations
This study would have been more comprehensive if cases of similar municipalities were included for comparison; however, the neighboring municipalities of Angono such as Taytay, Cainta, and Antipolo (considered here to eliminate possible discrepancies due to difference in topography, natural resource endowment, and infrastructure, among others, of the case subjects) started with their ICT application only in 20102 while Angono began its own in 2005. The six-year head start of Angono would not allow objective and accurate comparison of these other municipalities. Further, it has proven difficult to ask why the not so-successful municipalities such as Taytay are not able to do what Angono has achievedpeople would not admit their failure or they would be defensive about why they failed, and either way, no accurate data could be drawn from them. Perhaps even in future studies, documenting successes might prove more feasible than recording failures, thus proving the validity of the anti-thesis (i.e. proving the case would indeed be a failure in the absence of the success factors) may not be easy, if possible at all. Another limitation of the study is the type of information sourceall of the key informants are either former or current government employees, thus the perspective presented in this study did not include that of the citizens. Under a different circumstance where there is more luxury time, a survey on the citizens usage, attitude, and interest in e-government would have provided deeper insights on e-government issues. After all, the citizens are the primary stakeholders in e- government.
Review of Literature
Four
materials
on
issues
in
e-government
implementation
are
reviewed:
Dada,
D.
(2006).
The
Failure
of
e-Government
in
Developing
Countries:
A
Literarure
Review.
The
Electronic
Journal
of
Information
Systems
in
Developing
Countries.
Jen-Hwa
Hu,
P.,
Chu,
D.,
&
Sherwood,
A.
C.
Examining
Cross-Agency
Collaborations
in
e-Government
Initiatives.
Proceedings
of
the
39th
Hawaii
International
Conference
on
System
Science.
2
Although
that
of
Antipolo
started
during
the
first
three-years
of
the
e-LGU
project
and
has
been
revived
only
recently.
Page 5 of 23
Jones,
S.,
Irani,
Z.,
Sharif,
A.,
&
Themistocieous,
M.
(2006).
e-Government
Evaluation:
Reflections
on
Two
Organizational
Studies.
Proceedings
of
the
39th
Hawaii
International
Conference
on
System
Science.
Sagun,
R.
A.
(n.d.).
A
Case
Note
on
ICT
for
Development
Project.
Dada
discussed
the
implementation
issues
in
e-government
from
a
big
picture
or
macro
perspective
while
Jones
et.al.
did
the
same
but
from
a
micro/firm
or
organization
point
of
view.
Jen-Hwa
Hu
et.
al.,
on
the
other
hand,
looked
at
the
issues
from
the
inter-agency
context.
Lastly,
Sagun
(n.d.)
wrote
on
the
e-Governance
for
Municipal
Development
(eGov4MD)
in
the
Philippines
and
came
up
with
specific
key
success
factors
in
e-governance
(and
not
just
e-government)
implementation.
The
relationships
of
these
four
materials
are
summarized
in
Figure
5.
Figure
5:
Literature
under
Review
Dada
(2006)
asserted
that
e-government
is
not
just
about
computerization
but
the
ability
of
technology
to
achieve
levels
of
improvement
in
various
areas
of
government,
transforming
the
nature
of
politics
and
the
relations
governments
and
citizens
(p.1).
In
his
article,
he
concentrated
on
the
total
failures
(i.e.
e-government
was
not
implemented
or
was
implemented
but
immediately
abandoned)
and
partial
failures
(i.e.
major
goals
were
not
attained
and/or
there
were
undesirable
outcomes),
supporting
the
statement
of
Avgerou
and
Walsham
(2000,
in
Dada)
that
success
stories
can
be
found
but
failures
are
more
frequent.
Thus,
he
came
up
with
failure
factors.
According
to
Dada
(2006),
failure
factors
may
be
grouped
based
on
Heekss
(2003,
in
Dada)
archetypes
of
situations:
1)
hard-soft
gaps;
2)
private-public
gaps;
and
3)
Page 6 of 23
country
context
gaps.
The
hard-soft
gaps,
referring
to
hard
technology
and
soft
(people,
culture,
politics)
technology,
include
weakness
or
inadequacy
in
resources,
skill
levels
and
training,
values,
beliefs,
and
motivations
of
those
involved
in
the
project.
Cecchini
and
Raina
(2004,
in
Dada)
also
proposed
that
the
technology
should
be
developed
in
collaboration
with
the
local
staff.
Further,
the
use
of
ICT
requires
changing
and
reengineering
the
processes
to
adapt
to
the
new
technology
and
culture
of
an
e-government;
however,
this
change
is
often
perceived
as
a
reduction
of
ones
authority,
thus
the
resistance
from
the
organization.
On
a
larger
scale,
Jaeger
and
Thompson
(2003,
in
Dada)
emphasized
the
need
to
educate
the
citizens
on
the
value
of
e-government,
as
e-government
would
fail
if
the
users
fail
to
use
the
technology.
As
for
the
private-public
gaps,
one
element
is
the
high
turnover
rate
of
government
IT
employees
due
to
uncompetitive
compensation,
which
leaves
the
public
sector
with
low-skill
workers.
This
situation
then
often
leads
to
the
clash
of
culture
and
values
of
the
developer
(private)
and
user
(public)
in
the
ICT
projects.
Also,
the
public
sector
is
frequently
technology-centered
rather
than
information-centered,
thus
resulting
in
design
gaps
in
software
development.
This
public
sector
view
can
be
attributed
to
their
general
mindset:
that
citizens
are
recipients
of
government
service,
as
opposed
to
the
private
sectors
treatment
of
customers,
who
bring
in
the
profit
for
the
company.
In
the
private
sector,
the
customers
drive
the
business.
(Dada,
2006)
Dada
also
highlighted
the
differences
across
country
context,
particularly
between
developed
and
developing
countries,
in
terms
of
working
cultures,
skill
sets,
access
to
technology,
and
level
of
infrastructure.
In
developing
countries,
for
example,
the
cost
of
telecommunications
is
still
high,
thus
offsetting
whatever
benefits
online
trasactions
have
to
offer.
In
developing
countries,
too,
there
is
a
bigger
number
of
uneducated
poor
people
who
would
have
problems
with
the
affordability
(and
even
the
use)
of
technology.
(Dada,
2006)
While
Dada
discussed
the
e-government
issues
at
the
national
or
country
level,
Jones
et.
al.
(2006)
emphasized
the
organizational
and
managerial
aspects
in
e- government.
The
authors
enumerated
various
issues
based
on
two
case
studies,
among
them
was
decision
making.
They
observed
that
decisions
related
to
e- government
are
often
relegated
to
the
middle
managers,
perceived
as
obvious
and
common
sense
even
though
they
involve
financial
investments;
thus,
such
decisions
are
not
always
based
on
accounting
and
economics.
They
also
noted
that
managers
often
make
decisions
to
achieve
their
personal
and
professional
goals,
and
not
necessarily
in
the
interest
of
the
institution.
As
for
the
rest
of
the
organization,
the
authors
highlighted
the
resistance
of
(system)
users
to
the
decisions
that
bring
change
to
their
working
practices.
Project
evaluation
and
performance
assessment
are
other
areas
of
concern
the
authors
cited.
Organizations
often
do
not
have
specific
people
or
unit
tasked
to
do
Page 7 of 23
this
function.
Thus,
the
benefits
or
value
of
ICT
is
hardly
analyzed
vis--vis
the
investment,
if
at
all.
In
cases
where
evaluation
is
done,
often
it
is
used
to
support
certain
stakeholders,
making
the
process
subjective
and
political.
Further,
they
noted
that
stakeholder
opinionuser
satisfaction,
for
exampleis
not
significantly
canvassed.
(Jones,
Irani,
Sharif,
&
Themistocieous,
2006)
Finally,
the
authors
pointed
out
that
ownership
or
sponsorship
from
a
senior
executive
is
key
in
the
e-government
implementation
and
that
the
lack
of
it
is
often
the
concern
of
the
practitioners.
(Jones,
Irani,
Sharif,
&
Themistocieous,
2006)
Sagun
(n.d.),
in
contrast
to
Dadas
failure
factors,
presented
his
success
factors
in
e- government
implementation
based
on
the
experience
of
the
eGov4MD
Project:
35
percent
well-trained
municipal
staff
30
percent
changing
organizational
behavior,
such
as
the
Mayors
support
to
ICT-enabled
services,
appreciation
by
municipal
staff
to
move
from
manual- based
operations
to
computer-enabled
operations
20
percent
re-engineering
business
processes,
like
streamlining
the
permit
and
licensing
processes
15
percent
technology,
in
this
case,
computers,
internet,
local
area
networks
and
the
software
The
author
did
not
explain
how
the
percentages
were
computed
and
on
what
bases;
however,
the
figures
may
be
used
to
signify
the
perceived
relative
contribution
of
each
factor
to
the
success
of
e-government
implementation.
Sagun
(n.d.)
cited
that
having
well-trained
municipal
staff
is
the
most
important
success
factor,
followed
by
the
sustained
commitment
and
strong
support
of
the
mayors
of
the
participating
municipalities.
Political
leadership,
including
the
relevant
department
heads,
should
champion
the
process,
from
adopting
municipal
resolutions,
sending
staff
to
trainings
and
allocating
resources
to
procure
needed
IT
equipment
to
having
a
project
management
plan.
(p.3)
In
conclusion,
he
said
that
venturing
into
e-governance
requires
long-term
political
support,
institutional
maturity,
capital
investment
both
in
hardware
and
human
resource,
and
a
well-designed,
visionary
roadmap.
(Sagun)
Success
or
enabler
factors,
but
this
time
in
inter-organization
context,
are
presented
by
Jen-Hwa
Hu,
Chu,
and
Sherwood
(2006).
Among
the
most
critical
ones
are
the
following:
leadership
management
control,
i.e.
the
process
of
testing,
measuring,
and
providing
feedback
with
respect
to
a
defined
goal
trust,
i.e.
the
willingness
of
a
party
to
be
vulnerable
to
the
action
of
the
other
based
on
the
beliefs
in
the
other
partys
ability,
benevolence,
and
integrity
Page 8 of 23
mutual adjustment (of agencies involved), which refers to considerable reciprocal interdependence
The authors added that infrastructural underpinning is needed to support the enabling factors. This comprised defined rules and procedures, formal communication means, and informal communication channels and protocols. Without these mechanisms, trust and mutual adjustments cannot be attained. (Jen- Hwa Hu, Chu, & Sherwood) The factors contributing to the success or failure of the e-government implementation mentioned by the various authors are summrized in Figure 6. Figure 6: Summary of Factors Contributing to the Success / Failure of e-Government Implementation
Page 9 of 23
Policy Environment
The
history
of
e-government
in
the
Philippines
may
be
traced
to
the
establishment
of
the
National
Computer
Center
(NCC)
in
1971,
which
was
intended
to
spearhead
the
development
of
information
technology
in
the
country
for
nation
building.
Aside
from
Japan,
only
the
Philippines
had
an
ICT
center
in
Asia
at
that
time.
(Uy,
2011)
No
literature
however
accounts
for
the
ICT
development
thereafter,
from
the
1970s
until
the
early
1990s.
Executive
Order
190
of
1994
(and
amended
by
EO
469
in
1998)
was
issued
for
adopting
the
National
Information
Technology
Plan
2000
(NITP2000)
and
establishing
the
National
Information
Technology
Council
(NITC)
as
the
central
policy
body
on
ICT
matters
in
the
country.
For
the
first
time,
government
developed
a
comprehensive
plan
and
mapped
out
strategies
for
the
development
of
the
ICT
industry
as
well
as
the
adoption
of
ICT
in
the
public
sector.
(Commission
on
Information
and
Communication
Technology,
2011)
Then
in
1997,
the
government
defined
in
IT21
the
broad
principles
and
strategies
mentioned
in
previous
National
Information
Technology
Plans
into
more
specific
programs
and
activities.
IT21
delineated
the
roles
of
the
government
and
the
private
sector
and
was
subsequently
complimented
by
Administrative
Order
232,
which
instructed
all
government
agencies
and
instrumentalities
including
local
government
units
to
undertake
electronic
interconnection
through
the
Internet.
(Alampay,
2005
in
Alampay)
The
passing
of
Republic
Act
No.
8792
in
2000,
otherwise
known
as
the
e-Commerce
Act,
was
a
milestone
that
marked
the
governments
serious
intent
to
make
ICT
an
integral
part
of
national
strategy
for
growth,
promoting
the
universal
use
of
electronic
transaction
and
mandating
all
government
offices
to
transact
business
online.
Among
its
goals
were
to
make
ICTs
integrated
into
LGU
operations,
in
order
to
deliver
more
efficient
and
effective
services
to
citizens,
while
at
the
same
time
generating
higher
revenues
for
themselves.
(Siar,
2005)
This
law
was
supported
further
by
the
e-Government
Information
Systems
Plan
(Executive
Order
265)
issued
that
same
year,
which
detailed
the
policies,
strategies,
infrastructure,
technology
solutions,
and
financing
options
that
should
be
put
in
place
to
realize
the
countrys
vision
of
a
Philippine
Government
Online.
Likewise,
the
Medium
Term
Philippine
Development
Plan
from
2004
to
2010
highlighted
the
full
potentials
of
ICT
as
a
tool
for
knowledge
creation
and
diffusion
in
the
country.
(Montecastro,
2008)
In
2004,
the
Commission
on
Information
and
Communication
Technologies
(CICT)
was
created
to
take
into
account
the
convergence
of
telecommunications,
broadcasting
and
computer
technologies
(Alampay
2005).
This
was
to
address
what
Page 10 of 23
Rye (2002) described as a fragmented policy and program implementation of ICT activities in the country. Among the institutions that the CICT absorbed were the NCC and the telecommunication planning office of the Department of Transportation and Communications (DOTC). As such, the CICT became the primary institution for developing IT policy, programs and projects for the government, including the e-LGU project. (Alampay) By 2008, a bill was pending in the Philippine Congress, which aimed to create the Department of Information and Communications Technology (DICT). The new department would consist of all the existing offices of the DOTC dealing with communications, the National Telecommunications Commission (NTC), the Philippine Postal Corporation (PPC), and the NCC. The Departments mandate would be to ensure the provision of strategic, dependable, and cost-efficient ICT infrastructures, systems, and resources as instruments for nation-building and global competitiveness. It would be tasked as well to promote a policy environment of fairness, broad private sector participation in ICT development, and balanced investment between high-growth and economically depressed districts. (Montecastro, 2008) However, the bill never got passed into law and in 2011, the CICT office, which used to operate directly under the Office of the President, was abolished and its functions subsumed under the Department of Science and Technology (DOST). The new structure left CICT devoid of administrative power. Former CICT Chairman Ray Roxas-Chua said that by not having a department dedicated to ICT it would difficult for the program proponents to push for the ICT strategy, as their implementation would largely depend in the priorities of the DOST. Incidentally, DOST focuses on ICT innovation while the CICT advocates technology applications. Besides, because of the Local Government Code of 1991 that devolved the power to the LGUs, the central and national government agencies could only do so much in the LGUs adopting ICT. Former CICT Chairman Ivan Uy added that by putting CICT under DOST the countrys ICT situation would have regressed by 10 years.
Program
Overview
In
line
with
R.A.
8792,
the
NCC
undertook
the
e-LGU
Project
in
2002,
to
be
implemented
for
three
years
until
2005.
Its
objective
was
to
enable
LGUs
to
adopt
computerization
by
empowering
them
to
embrace
the
technology
and
to
apply
the
benefits
of
ICT
to
local
governance
towards
an
improved
quality
of
public
service.
(Montecastro,
2008)
The
e-LGU
Project
was
composed
of
five
elements:
1)
establishment
of
web
presence;
2)
applications
systems
development,
which
included
Business
Permit
and
Licensing
System
(eBPLS),
Real
Property
Tax
System
(eRTPS),
Treasury
Operations
Management
System
(eTOMS),
and
Geographical
Information
System
Page 11 of 23
(GIS); 3) LGU capability building; 4) establishment of Community e-Centers (CeCs); and 5) advocacy and promotions. (Montecastro, 2008) Recognizing the LGUs resource constraints as a key factor hindering their acquisition and application of computerized operations, the project employed open source technology to eliminate the high cost of third-party governance solutions something that only the highly-urbanized and comparatively more affluent LGUs were able to avail of as early as the 1990s. (Commission on Information and Communication Technology) Prior to project implementation, the NCC determined the readiness of LGUs for e- governance, beginning with the inventory of computer facilities. At the time, total of 15,446 computer units were reported by 640 LGUs, distributed unevenly from a high of 435 units to a low one unit per LGU. Cities averaged 75 computer units per LGU; provinces, 60 units; and municipalities, 10 units. The income classification of LGUs was not a significant factor in the LGUs investment in computer units. In terms of Internet and e-commerce facilities, 30.7 percent of the LGU respondents reported having Internet capabilities, and the majority (87.6 percent) of them were connected via dial-up access. The LGUs with no Internet connection attributed its absence to the absence of Internet service provider (57 percent), lack of budget (40 percent), and lack of management support (9 percent)and there may still be some grain of truth in these data almost a decade after the launch of the project. Some 22 percent of the LGUs surveyed reported hosting their own web site. (Mariano, 2006) The state of LGUs then was an apparent indication of the digital divide in the country. Of the 1,694 LGUs, only 630 (37 percent) expressed interest in ICT; of this number, 100 were selected for the pilot run. Some 16 provinces, 17 cities, and 67 municipalities representing all regions in the country participated; 74 of these LGUs were from second to sixth income classes.
The
first
and
probably
the
most
critical
reason
is
leadershipwhich
supports
the
propositions
of
Jones
et.al.
(2006),
Jen-Hwa
Hu
et.al.
(2006),
and
Sagun
(n.d.).
Based
on
the
interview
with
the
former
chairpersons
of
CICT,
the
Commission
could
only
do
so
much
in
influencing
the
LGUs
to
adopt
ICT
in
their
operation,
because
their
authority
covered
only
the
national
government
agencies
(NGAs)
and
because
of
the
provision
in
the
Local
Government
Code
devolving
power
to
the
LGUs.
The
CICT
could
only
make
ICT
services
and
products
available
to
the
LGUs
but
they
could
not
force
the
LGUs
to
use
them.
And
why
would
they
do
so
if
the
adoption
of
ICT
would
force
them
to
become
transparentthe
common
reason
why
the
use
of
ICT
is
not
popular
among
the
executives.
As
Uy
(2011)
put
it
candidly,
if
one
does
not
have
the
Page 12 of 23
buy-in
of
the
mayor
(or
the
head
of
the
LGU),
forget
about
ICT,
lest
forcing
the
issue
would
just
lead
to
greater
problems.
Still
in
some
cases,
the
LGUs
were
unwilling
to
invest
in
ICT
once
the
CICT/NCC/national
government
support
was
pulled
out,
thus
the
initial
achievements
under
e-LGU
were
not
sustained.
Still,
this
investment
decision
is
a
function
of
political
leadership
described
by
Sagun
(n.d.).
For
some
resource- challenged
yet
entrepreneurial
LGUs,
for
example,
they
charged
fees
for
their
services,
thus
turning
ICT
into
revenue-generating
activity
for
them.
Although
for
the
lower
income
LGUs
in
the
rural
areas,
it
was
more
of
an
infrastructure
than
leadership
issue.
Connection
in
the
less
developed
areas
could
sometimes
be
both
unaffordable
and
unreliable.
Organizational
Culture
and
Behavior
Resistance
may
come
not
only
from
the
top
executive
but
also
from
the
rest
of
the
organization.
People
tend
to
resist
change,
as
pointed
out
by
Jones
et.al.
(2006),
Jen- Hwa
Hu
et.al.
(2006),
and
Sagun
(n.d.).
This
scenario
is
also
true
in
the
Philippine
contextthe
sources
narrated
how
in
some
LGUs
the
staff
literally
cut
off
the
cable
of
the
system
and
destroyed
the
machines
by
pouring
liquid
on
them
in
their
desire
to
delay,
if
not
to
terminate
the
project.
Some
people
are
simply
not
comfortable
with
technology
while
others
are
too
old
to
adjust
to
it,
thus
the
resistance.
Some
refuse
the
new
technology
because
it
would
inevitably
rid
of
illegal
transactions
(e.g.
use
of
fixers)
from
which
they
earn.
Uy
(2011)
dismissed
the
perception
that
people
resist
ICT
because
it
could
cost
them
their
jobs,
with
machines
replacing
them.
He
said
that
the
new
technology
would
not
require
laying
off
staff,
but
only
re-training
them
to
acquire
the
skills
necessary
to
run
and
manage
the
systems.
Besides,
he
added,
as
they
are
the
LGUs
could
make
do
without
50
percent
of
its
manpower
and
some
clever
leaders
use
ICT
as
an
excuse
to
downscale
the
bureaucracy
so
that
people
have
something
to
blame
their
fate
on.
Based
on
the
evaluation
of
the
e-LGU
in
2005,
the
main
issues
in
implementation
also
included
the
LGUs
lack
of
either
interest
or
creativity
in
keeping
their
web
sites
relevant
to
the
public,
with
some
web
sites
having
been
static
since
their
launch
in
2002;
lack
of
awareness
of
the
citizens
as
well
as
the
local
executives
of
the
existence
of
their
LGUs
web
sites;
the
LGUs
resorting
to
private
providers
thereby
not
maximizing
the
use
of
resources
made
available
to
them
through
e-LGU,
and
infrastructure.
The
maintenance
and
updating
of
the
LGUs
web
sites
content
proved
to
be
an
issue
especially
that
the
public
would
not
pay
attention
to
them
if
the
information
in
these
sites
were
dated
and/or
irrelevant
to
the
users.
A
content
analysis
of
102
city
government
websites
conducted
by
Siar
(2005)
found
minimal
adoption
of
e- governance
by
majority
of
the
city
governments
and
the
underutilization
of
their
Page 13 of 23
websites
as
e-governance
tools.
The
content
was
mainly
geared
towards
informing
people
about
the
communitys
characteristics
and
promoting
citizen
awareness,
with
the
bulk
dealing
only
with
standard
information
(i.e.
topography,
history,
composition
of
the
government,
etc.).
Few
efficiency
enhancing
services,
such
as
interactively
transacting
with
government
and
downloading
forms
were
found
and
that
the
promotion
of
policy-making
and
participation
in
decision-making
was
negligible.
Only
seven
percent
of
cities
put
ordinances
and
resolutions
online,
with
only
one
providing
full
document
download.
(Siar,
2005)
Alampay
(n.d.),
however,
reasoned
that
some
of
these
sites
were
hosted
or
established
by
the
NCC
and
not
by
the
LGUs,
hence,
some
LGUs
did
not
have
direct
control
over
the
content
in
their
own
web
sites.
Perhaps,
Dadas
(2006)
proposition
in
this
case
was
correct,
in
that
the
values,
beliefs,
and
motivations
of
those
involved
in
the
project
influence
the
success
or
failure
of
e-government.
Even
if
the
LGUs
did
not
own
the
web
sites
initially,
the
people
behind
the
LGUs
could
have
taken
where
the
NCC
left
off,
to
benefit
both
the
LGUs
and
their
citizens.
However,
they
could
not
have
taken
initiative
to
develop
and
maintains
their
web
presence
unless
they
appreciated
its
value.
Furthermore,
despite
the
remarkable
web
presence
of
the
LGUs,
there
may
also
be
low-level
of
awareness
among
residents,
and
even
among
municipal
employees
of
the
sites
presence.
More
alarming
was
that
the
local
chief
executives
(mayors
and
governors)
may
themselves
be
unaware
of
their
own
website.
(Alampay)
Alampays
(n.d.)
evaluation
primarily
centered
on
web
sites,
which
is
only
but
part
of
the
entire
e-LGU
Project.
Besides,
web
presence
does
not
assure
web
usage
by
the
citizens;
demand
does
not
necessarily
follow
supply.
Even
then,
it
is
critical
to
know
why
six
years
after
the
first
three
years
of
the
e-LGU
Project,
today,
only
390
LGUs
or
merely
22.8
percent
of
the
total
have
web
presence.
Infrastructure
As
noted
by
Dada
(2006)
and
Sagun
(n.d.),
infrastructure
is
a
common
challenge
in
ICT
implementation.
According
to
Denis
Villorente,
current
officer-
in-charge
of
the
NCC,
foremost
among
this
challenge
were
the
absence
of
good
telecommunications
infrastructure
in
some
areas,
the
skyrocketing
cost
of
IT
solutions
packages
available
in
the
market,
and
the
lack
of
funds
to
finance
ICT
projects".
(InterAksyon,
2011)
In
the
rollout
of
CeCs,
for
example,
the
LGUs
depended
on
the
existing
infrastructure
of
the
Telecommunications
Office
(TELOF)3
and
thus,
the
CeCs
were
subject
also
to
the
limitations
of
the
TELOF
network.
As
well,
limited
facilities
and
distance
and
time
to
travel
to
these
facilities
were
among
the
barriers
to
peoples
use.
(Alampay)
3
A government agency mandated to provide telecommunications facilities, including telephone system for government offices, to provide communications services for purposes of augmenting limited or inadequate existing private communication services, and to assist the private sector engaged in telecommunications services in providing and maintaining backbone communications network. (source: http://www.dotc- telof.gov.ph/index.php?option=com_content&task=view&id=28&Itemid=38)
Page 14 of 23
The former CICT chairperson believed otherwise. Uy (2011) said that infrastructure was the easiest part; what he found most difficult was managing the people and changing their culture and mindset. This was because under the e-LGU Project, software and systems development were made available to the LGUs for free. Since these were open-source software packages, interconnectivity and compatibility with other government systems were established. Training programs were also standardized to ensure quality of staff skills and to address the common issue of personnel turnover. With this design, LGUs within the same area may share soft technology with one another. However, because LGUs were free to source their own providers, which they often do from the private sector, incompatibility of systems often became a problem and the goal of efficiency through shared resources was hardly met. Apparently, even the use of infrastructure becomes a function of leadership and political will. On hindsight, Uy (2011) said that citizens were not properly informed of the e-LGU Project and were not considered in the program design. The systems were administration-centered rather than citizen-centered, which could have been achieved by looking at their needs (e.g. what one needs to start a business) and designing the systems accordingly. Roxas-Chua (2011) also noted that even the web sites were almost always tourist-centered, not citizen-centered.
With
the
limited
influence
of
CICT
on
the
LGUs
and
its
lack
of
bureaucratic
power
as
a
mere
unit
under
DOST,
the
LGUs
are
pretty
much
left
on
their
own
in
adopting
and
advancing
ICT
in
their
areas
of
governance.
Thus,
the
mayors
(or
the
head
of
the
LGU)
support
to
ICT
initiatives
is
crucial,
especially
that
its
implementation
requires
a
considerable
amount
of
resources
in
terms
of
investment
in
facilities,
streamlining
processes,
and
staff
training.
Under
leadership
also
falls
dedication
or
allocation
of
resources
to
ICT.
This
includes
training
of
staff
that
will
use
and
maintain
the
systems.
In
many
unsuccessful
cases,
there
was
no
ICT
person
dedicated
to
the
project
or
functionICT
was
treated
simply
as
ad
hoc
and
not
institutionalized
within
the
LGU.
Finally,
to
sustain
the
ICT
programs
even
if
the
initiating
leader
does
not
get
re- elected
to
the
post,
it
is
important
to
engage
the
local
business.
The
CICT
initiated
the
formation
of
an
ICT
council
in
each
LGUcomposed
of
the
local
executives
and
members
of
the
local
chamber
of
commerceto
help
institutionalize
the
ICT
program.
The
business
sector,
being
a
major
partner
of
the
local
government
in
turning
the
wheel
of
the
local
economy
as
well
as
main
users
and/or
beneficiaries
of
ICT-enabled
systems,
plays
a
major
part
in
sustaining
ICT
in
the
LGU.
Besides,
the
business
sector
is
a
more
stable
proponent
of
ICT
because
members
of
the
chamber
do
not
get
elected
as
often
as
the
local
executives
do.
Page 15 of 23
Profile of Angono
Angono is a first class municipality in the province of Rizal, located at 29.38 km. east of Manila. It is bounded by the municipality of Taytay on the northwest, Antipolo on the north, Teresa on the northeast, Binangonan on the southeast, and Laguna de Bay on the southwest. It has a population of 74,668 (2000 Census) growing at a rate of 5 percent per annum. The main economic activities in the LGU include manufacturing, agriculture, fishery, and forestry. (Angono Municipal Government) In 2010, its Honorable Mayor Gerardo Calderon was given the Technology Leadership Award for EGov4MD. The selection of awardees was based on the municipalitys leadership in ICT implementation, ability to accomplish the goals in a short period of time with least problems, and willingness to train and/or share ICT employees.
E-Government
Features
Applications
/
Revenue
Generation
Systems
The
ICT
initiative
in
Angono
started
in
2005
while
Mayor
Calderon
was
serving
his
third
term.
The
LGU
took
out
a
loan
worth
Php7
million
to
finance
its
investment
in
GIS
and
other
related
applications.
The
Geographic
Information
System
(GIS)
captures,
stores,
analyzes,
manages
and
presents
data
with
reference
to
geographic
location
data(such
as
mapping
for)
tax
collection,
land
use,
climate
change
issues.
(Commission
on
Information
and
Communication
Technology,
2011)
According
to
Ms.
Nancy
Unidad
(2011),
the
Municipal
Planning
and
Development
Coordinator
(MPDC)
who
has
been
working
in
the
municipal
office
since
1990,
the
adoption
of
GIS
was
something
their
unit
had
been
discussing
for
quite
some
time
before
they
made
a
formal
recommendation
to
the
Mayors
office.
Specifically,
the
MPDC
needed
the
ICT
system
to
ensure
the
accuracy
of
planning
in
traffic
management,
disaster
prevention,
infrastructure,
and
road
network;
solve
the
incidence
of
inaccurate
inventory
of
taxable
land,
erroneous
tax
declaration,
and
businesses
without
permits
and
licenses;
and
lessened
the
cases
of
illegal
settlers.
(Local
Government
Unit
Angono
Rizal)
It
took
the
LGU
11
months
to
set
up
the
whole
system,
including
staff
training.
Since
the
personnel
were
involved
as
early
as
the
planning
process,
they
were
willing
to
undergo
training
in
using
GIS
when
it
was
adopted.
Indeed,
the
impact
of
GIS
was
felt
immediately,
they
saidwith
each
resident
and
each
business
entity
was
properly
tracked
and
each
property
tagged,
the
MPDCs
work
became
more
manageable
and
faster,
and
its
output
more
accurate.
In
the
past,
Page 16 of 23
the
unit
gathered
information
from
the
barangay
(village)
captains
to
determine
the
need
of
the
residents.
Often
they
would
get
waiting
shed
and
other
construction- related
projects
as
responses.
There
were
no
hard
data
on
which
to
base
decisions.
Puro
kwentong
kutsero
(all
folklores)
then
you
decide
on
that
basis.
(Unidad,
2011)
With
the
GIS,
they
were
able
to
conduct
surveys
among
the
residents
themselves
and
validate
the
soundness
of
gathered
information
through
the
system.
It
turned
out
that
many
people
wanted
livelihood
programs,
improvement
of
waterways,
and
promotion
of
peace
and
order.
After
GIS
came
the
Real
Property
Tax
System
(eRTPS)
for
the
Assessors
Office
and
the
Treasury
Operations
Management
System
(eTOMS)
for
the
Treasury.
Because
the
acquisition
of
these
systems
was
not
coordinated
with
other
units
and
the
GIS
provider
was
from
the
private
sector,
interconnection
became
a
problem.
It
was
resolved
eventually,
however.
Sources
admitted
that
the
LGU
had
not
had
any
formal
impact
monitoring
for
the
ICT.
They
could
only
attest,
however,
that
their
recording
of
information
had
become
accurate,
and
the
work
process
faster
and
more
convenient
for
them.
Further,
for
the
MPDC
alone,
the
revenue
they
were
able
to
generate
from
updating
the
zoning
values
of
properties
as
a
result
of
the
GIS
use
increased
by
500
percent
on
their
first
year
of
use.
They
also
added
that
there
had
been
no
citizen
involvement
yet
in
the
process.
In
the
future,
they
hope
to
come
up
with
programs
that
would
address
the
needs
of
the
citizens.
Web
Development
When
asked
about
the
ICT
in
the
municipal
government,
the
sources
were
quick
to
refer
to
the
abovementioned
applications
and
systems.
It
took
them
a
while
to
recall
that
web
presence
was
part
of
their
ICT.
They
recalled
the
CICT-initiated
project
with
some
demeaning
tone:
web
site
langdalawang
computers
at
internet
connection
para
sa
web
site
(only
a
web
sitetwo
computers
and
internet
connection
for
the
web
site).
Angono
set
up
its
web
site
(http://www.angono.gov.ph/)
in
the
early
2000s
with
the
help
of
CICT
that
provided
them
with
two
units
of
desktop
computers,
Internet
connection,
and
one-year
staff
training.
Today,
the
site,
powered
and
maintained
by
a
formerly
Angono-based
private
company,
has
been
well
maintained
and
updated
(e.g.
the
message
of
the
Mayor
for
the
2011
Fiesta
held
in
November
23
already
posted
on
the
site).
Its
2010
and
2011
financials
could
be
downloaded
from
the
website,
with
the
recent
documents
Page 17 of 23
uploaded regularly (e.g. three new documents have been uploaded between November 20 and December 9). Based on the five-stage UN-ASPA classification, Angonos web site would be on Stage 2.
One
of
the
key
success
factors
identified
by
the
sources
was
leadership.
They
also
acknowledge
that
plans
and
priorities
change
according
to
the
term
of
the
elected
leaders,
thus
the
non-elected,
permanent-post
middle
managers
draw
plan
for
only
three
years
(minimum
term
for
an
elected
office).
They
said
that
they
could
only
give
recommendations
and
if
ICT
is
not
the
incumbents
priority,
they
could
not
push
for
it.
They
further
opined
that
many
leaders
prefer
spending
on
construction
rather
than
on
IT.
In
Angonos
case,
the
Municipal
Government
was
willing
to
spend
on
technology
and
infrastructure.
In
fact,
7
percent
of
its
assets
in
2010
and
2011
were
invested
in
ICT.4
The
Angono
Municipal
staff
described
Mayor
Calderonre-elected
for
his
fourth
term
in
2010
after
another
mayor
from
opposing
party
was
elected
in
2007
when
he
could
not
have
run
after
serving
the
post
for
three
consecutive
termsas
a
visionary
leader,
with
global
perspective,
and
progressive
thinkingalways
open
to
innovations
even
in
terms
of
waste,
environmental,
and
disaster
management.
(Unidad,
2011)
It
also
helped
to
involve
the
local
staff
in
the
planning
process
to
manage,
if
not
minimize
possible
resistance.
Their
training
was
also
critical
in
sustaining
the
ICT
initiatives.
In
the
case
of
MPDC,
everyone
from
the
unit
knew
how
to
use
the
GIS
so
they
had
not
become
dependent
on
only
one
or
few
persons
to
run
the
system.
Finally,
the
loyalty
of
the
regular
or
non-elected
middle
management
and
staff
to
the
institution
helps
sustain
the
ICT
initiatives
of
the
top
management
even
after
changing
of
guards.
Angono
had
had
non-ICT
supporter
in
the
past;
however,
because
the
use
of
technology
had
become
part
of
their
jobs,
the
non-elected
personnel
continued
doing
what
they
did
and
did
not
allow
the
new
leader
to
affect
their
performance.
We
keep
politics
out,
the
sources
said.
4
Computed
based
on
the
financials
posted
in
the
Angono
Rizal
web
site
(http://www.angono.gov.ph/other_angono_schools_financial.php?p=ot).
Page 18 of 23
Conclusion
Based
on
the
review
of
literature,
the
implementation
of
e-LGU
in
general,
and
the
ICT
adoption
of
the
Municipality
of
Angono,
one
may
draw
conclusion
on
the
common
success
factors
in
e-government
implementation.
What
consistently
comes
out
in
the
materials
is
the
key
role
of
leadership
in
the
e-government
implementation.
In
the
Philippines
where
there
is
no
national
policy
that
compels
the
LGUs
to
adopt
ICT,
the
LGU
leaders
(i.e.
the
Mayors
and
Governors)
are
left
to
their
own
motivation
to
initiate
and
adopt
ICT.
Coming
up
with
such
a
decision
is
not
always
easy
because
adoption
of
ICT
will
require
resources,
changing
processes
and
practices,
and
making
oneself
more
transparent
and
accountable
to
the
public.
Thus,
such
decision
cannot
come
from
middle
management
although
Jones
et.
al.
(2006)
observed
this
relegation
of
responsibility
happening
in
certain
cases.
The
Angono
case
also
illustrated
how
ICT
promoted
accountabilitya
former
management
decision
made
on
the
basis
of
folklore
is
now
made
based
on
hard
data
generated
by
the
employed
ICT
system
(GIS).
Applying
change
management
strategies
can
manage
resistance
from
the
staff
or
users.
One
way
to
doing
it
is
involving
them
in
as
early
as
the
solving
a
problem
(which
ICT
will
help
address)
and
planning
for
the
solution,
way
before
they
are
engaged
in
the
actual
implementation,
as
what
Angono
government
did.
This
way,
too,
the
staff
will
have
developed
a
sense
of
ownership
of
the
solution
and/or
the
ICT
systems.
As
argued
by
Jones
et.
al.
(2006),
ownership
or
sponsorship
is
key
in
the
e-government
implementation.
Having
highly
skilled
personnel
in
the
implementing
institution
is
critical
in
sustaining
the
ICT
initiatives
and
maximizing
the
use
of
the
systems.
Indeed
it
takes
strong
leadership
and
political
will
to
start
an
ICT
project,
but
it
requires
skilled
people
to
make
it
work.
In
the
case
of
Angonos
GIS,
everyone
in
the
MPDC
unit
is
equipped
to
run
the
system.
Besides,
highly
skilled
employees
are
less
likely
to
fear
and/or
get
frustrated
with
technology.
The
importance
of
infrastructure
in
the
implementation
is
certain;
however
the
debate
revolves
around
the
level
of
infrastructure
needed
and
its
presence
in
the
country.
While
some
people
find
the
software
packages
and
systems
costly,
the
CICT
tried
to
make
them
available
to
the
LGUs
for
free
yet
many
still
opt
not
use
them
and
instead
resort
to
in-house
and/or
private
sector
services.
And
if
a
municipality
such
as
Angono
that
earns
only
between
Php55
million
and
Php80
million
annually
(per
the
official
definition
of
a
first
class
municipality)
could
set
aside
7
percent
of
its
assets
to
ICT
facilities,
the
bigger
LGUs
can
do
better
than
this.
Again,
it
will
go
back
to
leadership
and
political
will.
Page 19 of 23
Citizens involvement and education is yet another factor. As Jaeger and Thompson (2003, in Dada) emphasized the need to educate the citizens on the value of e-government, as e-government would fail if the users fail to use the technology. The country boasts of its high internet usage and growth but if the LGU web presence has deteriorated over the years, then one may conclude that the magnitude of internet users is not enough to pressure the LGUs to keep pace with the growing market or Internet-using citizenry. That, or the huge Internet users in the Philippines do not pay attention to socio-political issues as much as they do to social networking and entertainment/gaming sites. Chua (2011) also emphasized the need to strengthen the ICT education of the young people. As of 2009, only 8 percent of the university and college graduates in the country completed ICT-related courses. Worse, the country has been losing its experienced IT professionals to other nations who could afford to pay them much higher compensation.
If
this
study
were
to
make
any
contribution
to
the
local
ICT
or
e-government
literature,
it
would
be
in
these
three
success
factors
not
mentioned
in
other
materials:
Institutionalizing
ICT
will
ensure
the
sustainability
of
the
program.
At
the
rate
things
are
going
at
the
national
level,
it
would
be
difficult
at
this
time
for
CICT,
being
subsumed
under
DOST,
to
enforce
its
strategies
and
policies.
For
the
well
thought
out
plans
to
be
implemented,
they
would
require
administrative
competence
and
prowess
of
an
institution
with
teeth.
Thus,
institutionalization
of
ICT
may
happen
at
the
LGU
level
for
the
meantime.
This
means
making
the
ICT
initiative
politics-proof.
As
proposed
by
Douglass
North
(1990),
institutions
can
either
be
formal
or
informal,
formal
constraints
such
as
rules
that
human
beings
devise,
and
informal
constraints
such
as
conventions
and
codes
of
behavior.
(North,
1990)
In
the
case
of
Angono,
ICT
may
be
considered
institutionalized,
albeit
informally,
in
that
people
are
used
already
to
ICT-enabled
work
environment.
However,
Angonos
neighboring
municipality
of
Taytay,
though
it
has
revived
its
ICT
only
recently,
used
a
formal
means
of
institutionalizing
its
ICT
programs.
The
Taytay
Municipal
Government
issued
an
ordinance
in
2010
creating
the
Management
Information
Service
Section
(MISS),
which
is
tasked,
among
other
things,
to
do
research,
evaluate
and
monitor
e-government
implementation,
and
training
personnel
in
the
use
of
ICT.
MISS
has
its
own
office
and
staffa
statement
that
ICT
is
not
just
ad
hoc.
With
this
new
MISS,
allocation
of
resources
will
also
be
assured
in
the
future.
In
the
case
of
Angono,
resource
allocation
to
e- government
project
is
not
a
problem
under
the
incumbent
mayor,
but
without
any
policy
on
ICT
in
place,
it
may
not
be
so
should
a
new
mayor
get
elected
in
2013.
Page 20 of 23
Involving the business sector in the project, e.g. through its membership in a multi-stakeholder council, can also be a form of formal institutionalization that enhances the sustainability of the e-government initiative. The business sector, being a revenue contributor, can wield power to influence the direction of ICT in the LGU as well as provide a more stable support to the council because they do not hold elections every so often. Thus, involving the business sector in ICT through a formal structure also helps in institutionalizing ICT in the LGU. Success begets success, thus the LGUs can build its ICT efforts on systems or programs that create immediate impact to reinforce the use of ICT. In doing so, the management need not rally the entire organization to use ICT and convince them of its benefits. In Angonos GIS, for example, the MPDC staff were readily convinced of its purpose and benefits because the system has made their lives easier for them. Another impact area is decision makingthe new system enabled them to draft plans of actions that are more effective in addressing the citizens needs. The folklore-based programswhich are similar to Jones et. al.s (2006) obvious and common sense decisions not based on accounting and economicswere put to stop because of the accurate data generated by the GIS. On the other hand, the municipal government has not maximized the potential usage of its web sites probably because from the administrative perspective, its benefits are not direct and immediate. For example, how many tourists came over the Art Capital because they found it in the web? What benefits has the municipality enjoyed by being transparent to the pubic about their financials? Good image and governance would not count much after electionunless the citizens prove otherwise. Finally, while it takes strong leadership and political will to start an ICT project and skilled people to make it work, apolitical and professional middle management will sustain the usage of ICT even with the changing of guards. The experience of Angono shows the critical role of the middle managementthat which remained loyal to the institution and not to the politicianin the continuity of ICT in the LGU.
These
factors
may
be
categorized
into
externalsuch
as
citizen
involvement
and
education,
and
infrastructureand
internal
to
the
LGU.
While
the
internal
factors
are
well
within
the
control
of
the
LGUs,
they,
the
LGUs,
can
only
influence
the
external
factors.
They
can
have
education
campaign
for
its
citizens
in
the
use
of
the
public
ICT
facilities
or
online
services
for
example
but
ultimately,
it
is
the
citizens
who
decide
whether
to
use
them
or
not.
Similarly,
the
LGUs
can
decide
to
invest
in
broadband
connection
but
if
there
are
no
providers
in
their
area
or
if
power
supply
in
the
locality
runs
for
only
12
hours
a
day,
their
ICT-based
services
will
be
limited.
Page 21 of 23
Since the importance of these success factors also varies in different stages of implementation, they may also be organized accordinglyinception (or introduction to the organization), installation (or system start up), and integration (institutionalization of ICT projects). Leadership, for example, is crucial at inception and installation, as it directs the organization and allocates necessary resources. However, once ICT gets institutionalized, it can work regardless who the leader is. Change management, or changing organizational behavior, is likewise crucial at inception, as it will minimize resistance from the people. Inception stage can also be used to train the staff so that by installation phase the organization already has a pool of skilled employees who can sustain the ICT up until it is integrated into their work culture. However, having professional middle management may not be as crucial at the inception and system installation as it is at the integration stage. Figure 7 summarizes these success factors according to their type and role in the implementation stage. Note that the external factors are consistently highlighted in all stages of implementation. The reason is that citizens, because of their growth and mobility, need to be constantly educated; besides, technology is so dynamic that people need to be updated with its latest development regularly. Similarly, infrastructure is drawn all throughout the implementation process because it has to be maintained or at times, it requires new investments have to be made. Figure 7: Summary of Key Success Factors According to Type and Importance in Implementation Stages
Page 22 of 23
For future research, it will be valuable to do a study on the citizens needs that will help the LGUs make their systems more responsive and more relevant to them. The study may aim to determine the reason for the low level of awareness and usage of the LGU web sites among Filipinos despite the high number of Internet users in the country. Finding out why the low level of awareness of the LGU web sites among Filipinosthat despite the countrys ranking 17th in the world both in terms of number of Internet users and penetration rate, and 10th in terms of growth of internet users from 2000 to 2011is already a major step in making e-government citizen-centric. Another area of research interest is the impact of e-government, and e-LGU in particular, in terms of efficiency, responsiveness of service delivery, and transparency in government. As mentioned in the review of literature, the economic viability of the ICT may be supported by empirical evidence (cost of ICT vis--vis its benefits to the LGU staff and the citizens). More importantly such study may evaluate the e-government projects on the basis of development and citizen participation. As Jen-Hwa Hu et. al. (2006) proposed, the e-government project must be tested and measured, and provide feedback with respect to a defined goal. Finally, the propositions presented in this paper may be tested empirically to show evidence and even to determine the extent by which each of the eight factors presentedleadership, change management strategies, skilled personnel, infrastructure, citizen involvement and education, institutionalization, employment of high- and immediate-impact systems first, and professional middle managementcontribute to the success of e-government implementation.
Page 23 of 23
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Annex 1
Annex 2