
By Computerworld Philippines staff
Published in the November 2008 print edition of Computerworld Philippines
Over the years, technology has radically earned a strategic place in the enterprise, with a growing percentage of local organizations’ budgets being allotted to IT investments. With government, however, this may not entirely be the case.
Although its awareness and interest in new technologies and innovation may more or less be at par with private firms, the public sector often finds itself at the mercy of whatever ‘modest’ budget is approved for its IT initiatives. This does not, however, hinder these government offices from constantly looking at ways to incorporate IT into their operations, believing technology is one of the best vehicles for delivering better service to the public.
At Computerworld Philippines’ 10th CIO Roundtable, four IT officials from different government entities shared how IT is helping them improve efficiency in their operations and delivery of public service, the primary challenges they face in relation to both eGovernance and eGovernment, and what eGovernance framework they believe would work best for the country.
Present during the roundtable were: Dr. Hypte “HR” Aujero, assistant program manager, National Telehealth Center; Myra Brucelo, chief of MIS, National Commission for Culture and the Arts (NCCA); Atty. Maverick Sevilla, officer-in-charge of the MIS department, Pasay City government; and Claire Umali, IT division head, Mandaluyong City government.
Also present to share his reactions and insights about the role of IT in government was Carlo Francis Raymundo, program coordinator of the infrastructure governance and regulation program, Asian Institute of Management Policy Center. The CIO roundtable was held at the Dusit Hotel in Makati City.
Excerpts of the discussion follow:
CWP: How is information technology helping your agency serve the public better? What applications have you deployed that has made a big impact on your dealings with the public?
Sevilla: For the City of Pasay, we have instituted the GEMS (Government Electronic Management System) project and, as a result, various systems, such as the BPLS or Business Permit Licensing System, are now in place. The BPLS is used for the registration and securing of business permits. Pasay actually has 32 systems in place, but the one with the biggest impact is the treasury system which has computerized the collection, as well as the payment, of taxes and other government fees. But for the real thrust of computerization which is e-governance, we are still in the process of getting there. Because as far as the Pasay City government is concerned, there is a big difference between e-governance and e-government. We may have already attained an e-government stature with the many systems we now have in place, but as for e-governance, which involves building relationships not only within the government itself but with the people - our constituents - through technology, we are still going through the process.
Umali: The city government of Mandaluyong began its computerization program about 20 years ago in 1989, starting off with the Business License Tax Administration System. Since all of our computers were just standalone units then, it was only after four years that we started to make improvements on the network. After that, the next systems that we implemented were the payroll for our employee Data Management System and our HR System. We even included a Biometrics Attendance Monitoring System to encourage promptness and attendance among our employees and to discourage absences. Also, we were able to manage our service records well. In the past, only those who were “blessed” were exempted from filing their absences while the rest of the employees, particularly those on the grassroots level, suffered the most. As a solution, we put a Biometrics Attendance Monitoring System in place. However, we are still working to improve the system, which has been running for about three years now. But note that with such a system, we are already able to save around P500,000 a month in salary payouts. More importantly, our casual employees now get their salaries on time, unlike 10 years ago when they often had to contend with salary delays of about five days.
Brucelo: The main thrust of the National Commission on Culture and Arts is to provide public information on culture and the arts in the Philippines. From 1997 – when our MIS team was established – until 2003, the commission only had a static Web site. It just contained text and had no visuals. When I joined the commission in 2002, I encouraged my boss to join the Philippine Web Awards (PWA) and, since 2004, we’ve been a regular contestant of PWA. Because of this, our Web site went through the five stages of development prescribed by the National Computer Center to become an e-commerce and e-government site. And since we had to meet the NCC’s requirements at each stage, we did a lot of dynamic versions. Most of our viewers today are students, researchers, artists, local governments, organizations, and even people of different nationalities.
Dr. Aujero: We are all aware of some of the conditions that prevail in our country today, such as the limited budget allocations for health despite the ballooning population, the dispersal of Filipino doctors and nurses – and all other professionals for that matter – so specialists tend to aggregate in urban areas although we already have lots of specialists there. Most cardiologists, for example, are practicing in the big cities, but there are none in most rural areas. All of these contribute to the dismal Filipino health situation, so what the National Telehealth Center is doing now is come up with a solution or, at least, a part of the solution. Telehealth or E-Health, in a nutshell, is information and communications technology for the delivery of appropriate health services for the underserved. It is an alternative means of delivering health services but it is not the total solution.
At the National Telehealth Center, we use ICT to provide and support healthcare when distance separates the doctors from their patients. It is an alternative means of delivering expert care to underserved communities and geographically remote areas where healthcare expertise is largely unavailable. Created in June 1998 by the UP Board of Regents, NThC’s mission is to increase access to health information and services through ICT with our three arms: E-Medicine, E-Learning and E-Records.
E-Medicine, for instance, is a professional network, but it depends on the available ICT infrastructure, meaning whatever is available in that area, be it the Internet, a cell phone network, or just a two-way radio. It is a combination of the BuddyWorks Project, SMS Telemedicine, and the Telemedicine Project of the Department of Science and Technology. The BuddyWorks Project is an eGovernment Fund-supported telemedicine system that seeks to reduce the inequities in the Philippine health care system. It also helps curb the negative effects of the exodus of health professionals and, more importantly, it connects doctors wherever they are in the country through the DOST’s Telemedicine Project. It uses SMS (cell phone texting), the so-called Lifelink (RxBox computer/laptop) and the ECCS (Emergency Care Coordination System) to make possible real-time teleconsultation.
In 2005, we began this project aimed at giving specialist opinions to four different regions. We selected four project sites in Cagayan Valley, Capiz, Leyte, and Iligan City in Lanao del Norte. The project provides specialist opinions for those areas. It was another eGovernment Fund-assisted project of the CICT (Commission on Information and Communications Technology) and it was funded for about P43 million. The areas were selected by virtue of their remoteness.
E-Learning, meanwhile, refers to the program of upgrading the knowledge of health workers at all levels, from the municipal health office leaders and staff to community health volunteers. E-Records, on the other hand, is an open source-, Web-based electronic health records system for government health centers that quickly and automatically generate standard reports for local, provincial, regional and national use.
CWP: But are these ICT programs really benefiting your constituencies?
Umali: Yes. For instance, since our Business License System was put in place, our generation of business permits as well as the processing of those permits improved. Several years ago, we also included our Treasury office in the system. Previous to this, we did things manually and there were a lot of long queues. But with the establishment of our network, payments to the Treasury are now automatically updated in the database. Payment transactions have become faster and the long rows of people lining up in the Treasury have all been eliminated. Shortly after that development, we went ahead to improve our PATMS or the Property Assessment and Tax Management System.
In 1992, we started our Geographic Information System or GIS. We even got a budget from a congressman. But, unfortunately, nobody was interested in it at the time, and so we were the ones who build everything, like the data layers. Nobody from the Engineering and Planning office picked it up and so the project stagnated and moved very slowly until we finally contracted Geo Data to do GIS for us. But it didn’t provide us any instant relief as it was a very tedious process. We got copies of the land titles and then digitally generated the parcels from the technical descriptions in those titles. But now, we are really able to identify those properties that previously were not being declared to us.
Brucelo: We earn lots of praises but more from foreign nationals than Filipinos. Most of the time, we serve as research aides of foreigners in their search for our national artists. We provide information and we also have a library system. We allow people to browse all the contents of our books through our Web site. We also have an online query facility on Philippine culture. When I arrived in 2002, there was only at dial-up infrastructure at NCCA and we were only allowed to go online from 12 noon to 1 p.m., that was just about 20 hours a month! That was the tedious time before. I even told them that when it comes to PCs, the brand is not that important. I introduced them to open source – the white box computers – and we saved a lot. At that time I think our budget was only P1 million but now we have about P4.8 million. Our main office is in Intramuros and we don’t have a satellite yet or other branches, but we are working through our committees, several of them from the culture and the arts communities – teachers, researchers, journalists and many others. In addition to our online query, we also have an online registry. We invite all local artists from Luzon to Mindanao.
CWP: So your Web site is constantly updated?
Brucelo: Yes. Actually other researchers that query us are not all cultural organizations. We have the LGUs and also the broadcasting networks which are really dependent on us for information. We are inter-related with DepEd (Depart of Education) and CHED (Commission on Higher Education). Right now it’s a database driven Web site, so a lot of it involves digitalization of data. We already started the e-books, the timeline of the Philippines and the information of culture and arts. A log of e-books now is available online and we are upgrading the connection from dial-up to DSL but we are moving into a one-on-one connection like E-Meralco. We are trying all these now and we hope to have a wireless connectivity on December but this is still under a bidding process.
CWP: How big is your IT team?
Sevilla: Right now we have four regular programmers, one IT officer, and at the top of the organization background is my position, and under it is the IT officer 2 and below that are our programmers. One of the thrust of our budget proposal is to upgrade the plantilla positions because as soon as our contract with the company who did the project expires, the next thing to do would be to turn over the technical knowledge or technology transfer. Our difference from Pasay and Mandaluyong is that under our contract, it is the obligation and duty of the end-user to build-up the database. At the MITS (Management Information Technology Service) office, there was only assistance and we have to oversee how they do the data build-up. For example, from the assessor’s office, it is their function to build up the data. We constantly follow this up and those are the things we do with respect to other problems we encounter. Right now the COA is presently having a systems audit of the Pasay GEMS project.
Umali: Plantilla wise, we have 30 items occupied. There are people who handle hardware and others for system development and maintenance. And for people in the GIS, what we do in the implementation is, we form our end first then we turn over things to the users. Usually, the offices concerned are not really into it. So what we do is built-up the database then turn over the system and everything to them. During the database built-up, we ask a representative from those concerned so they could give us feedback.
CWP: Are the maintenance and the implementation of these projects done in-house or do you outsource?
Umali: No, we’ve been through several systems already and we started with systems development, which was outsourced. Our problem then was we were so dependent on the developer. We started with standalones, so when we upgraded we have to pay them again to re-develop the whole thing and every time we have changes in the tax rates we have to run back to them. So finally we decided to do an in-house system.
CWP: How does the NThC Web site works?
Aujero: The NThC Web site is like an e-mail that you have to log-in because we have issues in security and confidentiality regarding patients records that’s why there’s only limited access. We had on-site trainings since 2005 and so once in a while we go there. We decided to expand the E-medicine project to help those really in need because we found out that those centers in Capiz and EVRMC are regional centers themselves. They have a few specialists in there too. So we expanded this using text medicine to help doctors to the barrios because most of the time these doctors are the newly graduates. They don’t know anyone in the area and the only doctors they know are probably their professors or even some of their relatives. They don’t know how to connect, so we branched out with them. From four provinces, we are now all over the country. Actually there’s even one up there in Batanes, so from north to south there are doctors to the barrios that we are helping. So this included all equipment, all available infrastructure there is, because initially, we just use the Internet for the BuddyWorks project, even SMS, e-mail, and landline if they want to.
CWP: What major problems or challenges are you experiencing in connection with automating your agency’s processes? How are you resolving these issues?
Umali: Based on our operations, we are only a division under the city administrator’s office and during project implementation we sometimes encounter some problems since I deal with department heads and I’m only a division head. So we are looking forward to the creation of the DICT (Department of Information and Communications Technology) so we can have an official identity and it would be easier to push for IT projects from our end and even get them declared as priority projects.
Sevilla: In local government, there must first be a law creating and institutionalizing a particular office or position before it can exist.
Brucelo: I think every three or five years, the National Computer Center and CICT ask different government agencies to submit an Information System Strategic Plan to evaluate all projects that need a budget for infrastructure and other requirements. Once you submit the proposal, you have to undergo a budget hearing in Congress and the Senate so they can determine how much budget will be given to you or where it will be placed in the list of priorities. Then after you get the approval, there is an annual audit that checks what happened to the project. It is also our only way to upgrade the salary level of our programmers, which is usually 25% less that than what an ordinary programmer in the private sector earns. Since the salary grade is standardized, it is hard for us to compete with the private sector and would often lose our staff to private companies. That’s why there is a high turnover rate in IT in the government.
Sevilla: Let me add to that. One of the downsides in government, especially in local government units, is that the MIS often becomes a training ground for these programmers. Once they secure the necessary certifications and service experience, they leave. That’s why we included in the contract that they must render service to the city government for a certain number of years so that there would be a chance for us to mine and benefit from their knowledge before we lose them. The contract also calls for the proper turnover of their work.
Brucelo: That’s the same with us. It’s usually factoral, so if you get six months of training, you have to stay for one year or if you get a one year scholarship you have to stay for, at least, two years.
Aujero: For me, I was only 11 years old when I promised myself that I will not go out of the country. that’s why I have stayed. At the NThC, we try not be personality-based when it comes to implementing projects, meaning we encourage interaction with different doctors to ensure continuity. Although sometimes we cannot avoid it. For instance, some patients would still send the SMS queries directly to me. I just forward them to the center because we want the projects to be known on an institutional level.
Raymundo: Government is not in the business of doing business. Its business is to serve the people. This is why I believe that the CICT should be elevated from being a commission to a full-fledged department, since this will give more value to ICT and make it more important in the Philippines. Migration is a choice and we can’t force people to stay, but, at the very least, we can provide an environment that would allow these people to give something back to the country. They say that innovation basically is making the most out of your limited resources, so collaborative efforts should be espoused, especially in an area with limited resources.
CWP: We’ve heard that sometimes the hindrance to computerization in government are the very people in government themselves. Is this still true?
Umali: Actually, what we are trying to do is to change the culture one step at a time starting with the training. Most people in government are afraid that, with computerization, they will lose their jobs. So we try to explain to them that computers will not take over their jobs. In fact, they will have more time to do other things aside from what the computers are already supposed to produce. We include both the department heads and their staff in the training program so there would be an understanding from all levels. For example, with our GIS project, we were supposed to turn over everything to the assessor’s office because that’s where the data transactions are done. But since they don’t want to be tied up with the project, we had to designate an IT staff. We even suggested that they absorb the staff in their plantilla so that they would not feel that they were being “invaded” when they create new items. So we really have to make adjustments.
Brucelo: One of the hindrances that we encounter during the computerization of our information system is the resistance to change, especially from the people who have been with the commission for a long time. They would complain that the system is not user-friendly or that there are a lot of bugs. And if you correct them and point out that they’re mistaken, they would take it personally. Since they are not happy with the system, they take it against you. So what we do is show them the value of technology by incorporating it in daily tasks like creating a database for easy reference or distributing memorandums and other documents via e-mail so that there would be less paper work. Simple things that would make their jobs easier and faster.
Raymundo: The end objective of e-governance is good governance, but in order for e-government projects to get off the ground, you need good governance. So it’s a chicken-and-egg problem. And this is where enlightened government leaders and the DICT come in because they have the clout and position to make things happen. I believe that people in government are not hired to be mere data collectors but to become knowledge managers. Why? Because the government is a policy-making body and so people in government not only need to collect data but should also make sure that the information they collect is analyzed and translated into useful policies and programs.
Brucelo: That’s why it’s always good to start with the head of management when pushing for change.
Aujero: For us, it worked the other way around because we started from the grassroots, wherein we offered our services to the local government units first. When these were well received, we spread implementation to other parts of the country.
Raymundo: That’s a good strategic model actually because there’s a saying “Think big, start small.” And right now, the way that I’m seeing it, the local governments and other organizations are in the best position to actually come out with something new and innovative. They serve as the proof of concept. Now the question is, “How can you replicate it as fast as possible?” That’s where the national government comes in.
Sevilla: The bottom line when it comes to subscribing to e-governance is really the political will of the leaders. Political leaders must be able to visualize how technology will affect the lives of their constituents. Local government unit leaders must recognize that ICT is a tool for achieving better governance.
CWP: In your opinion, what would be the suitable e-governance framework for our country?
Raymundo: I think Atty. Sevilla has already described it very nicely when he talked about shifting e-government and e-governance from mainly just using ICT to effectively deliver services to the public, to essentially coming up with better management decisions and, eventually, using the data collected to manage whatever available resources the national or the local government has domain over. The first question that we’d always ask people when we sit down with them to develop a strategy is: “For whom is this?” We caution them to think out of the box because sometimes your stake holders aren’t only external but also internal. Also, at the end of the day, we ask them “Why do you want to make things efficient for you clients or stake holders?” We are not only talking about reaching out to as many people as possible but also about the depth of the impact of giving quality service or even saving lives. It’s also about efficiency, which is where your back office benefits from e-governance. We often tell our stake holders in the Policy Center that every time they start anything that involves the government, there has to be clarity of function. To streamline the procedures these questions must be answered first. “What do you need to do?” “Is this process really necessary?” “Can there be a one-stop shop for this?” “Who will handle it?” But as you go on, I think the question of sustainability should not only be looked upon from the financial or technological side, but also on the political side and that’s where your coordination has to be really in place. Some e-governance activities in the Philippines are very personality-driven. That’s why I think there has to be an institution or mechanism in place that will make the beneficiaries of a project dependent not on any person or group of persons but on the project itself.
Brucelo: For me, the framework should focus on digitizing the data in order to systematize the process and make the information accessible in any form, whether it be through the Web, SMS or any other channel. However the manner of implementing this depends on the thrust of the agency and how it can help the public. For us, for instance, our focus is to provide information access especially in remote areas and even outside the country.
Raymundo: Once we know who you are serving, the challenge now is how to deliver the service. But we always have to remember that when we ask the question “How?”, we have to make sure that it’s accessible, available and, most especially, acceptable not just with the end-users but also within the government so that decision-making will be better. I think we are on the right path in terms of e-governance because there are sparks of hope in various small organizations and agencies. Now, the next challenge is scaling this up and I think that’s where the national government should come in. We found out in our studies, that the really good best-practices cases in local government and organizations happened because of a unique environment where there is a good leader and available funds. I think that in replicating e-governance success, the national and local government unit should step in with the help of all the other organizations within the area. More than half is done at a local government level, so now it’s more of integration on the national level. One more thing, of course, is the fact that when we look at e-governance projects, there must also be effective management and that’s where the challenge comes in.
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