E- Governance of the Local Government Units in Negros

Oriental: Barriers to Its Implementation

Dr. Guilbert Nicanor A. Atillo
Dr. Ralph A. Cardeño

Abstract

The present study uses the mixed quantitative and qualitative methods of data
analysis in which the integration of Rogers and Shoemaker’s theoretical Model of
Innovation Diffusion (1973), Davis and Bagozzi’s Technology Acceptance Model (1981),
and the R.A. E-Commerce Law serves as its backbone. The study’s direction attempts
to find out the real scenario of the implementation status of Memorandum Circular No.
2009-119 in the local government units (LGUs) of Negros Oriental. To achieve this, the
study looks into the profile of the Local Government Units of Negros Oriental, the level
of compliance of the Local Government Units of Negros Oriental under the UN-ASPA
Stages of e-Governance, and the problems the Local Government Units of Negros
Oriental encounter that hinder them to comply in the implementation of the DILG
Memorandum Circular 2009-119. Results of the study have strongly articulated that
limited human, financial and physical resources play significant barriers to the
successful implementation of Memorandum Circular No. 2009-11.

Keywords: e-governance, local government units, information technology, barriers of e-

governance

Introduction

Technology revolution rises significantly in the 21 st century. Something that is

found not within the sphere of the advent of the Internet today is in itself mortal
belonging to the past. This scenario for Ndou (2004) redefines human activities
dramatically ushering in the explosion of digital connectivity, the significant
improvements in information and communication technology and the enforced global
competition that are revolutionizing the way business is performed and the way
organizations compete.

In the area of social and political innovation brought by this surging technology,
O’Hara and Stevens (n.d.) explain that government is reliant upon accurate and timely
information about its legislative and policy context, thus, the quality of management of
that information is vital. This present day reality then highlights the concept of E-
Governance. Yadav and Singh (2012) assert that E-Governance makes working of the
government more efficient, responsive and transparent in many developed and
developing countries. This is so because E-Governance necessitates for the public
sector’s use of information technology aiming to improve information and service
delivery, encouraging citizen participation in the decision-making process and making
government more accountable, transparent and effective (Singh & Sharma, 2009). On
this, Iyer (2012) claims that the utilization of Information Technology (IT) in E-
Governance has become an effective tool to make citizens better informed as they
demand more access to government information as well as easy interface with their
dealings with the government. These government dealings with the use of IT push for
the standardization of processes, efficiency of information transfer and storage and
effective search, not to mention the decrease in the costs of information management
(O’Hara & Stevens, n.d.).

Viewed from the foregoing, the issuance of Memorandum Circular No. 2009-119
by the Philippine government is in the same direction, an attempt to improve efficiency,
maintain cost effectiveness, and promote transparency and responsiveness in
governance. However, up to this time, compliance to this Memorandum Circular is
sporadic. Within the scope of the present research environment, it can be observed that
a good number of the twenty three (23) cities and municipalities in Negros Oriental do
not have functional Website, a powerful medium for delivering e-Government services.
Mei Hua and Melissa (n.d.) indicate that embracing E-Governance is contingent on
needs and priorities as well as human, financial and physical resources available. In
other words, existing budgets and external funding are of paramount importance. It is
for these reasons that the study argues that limited physical and financial resources are
major factors serving as barriers to the successful implementation of Memorandum
Circular No. 2009-11.

Additionally, various research studies on E-governance reflect stronger impacts

in many high-income developed economies, but in South and Southeast Asia, it is still
regarded as an emerging technology receiving much skepticism about its applicability.
Cultural, political, economic, and administrative contexts can also be said to be sources
of these uncertainties. These facts have prompted the researchers undertake the
present study, an attempt to provide empirical data supplementing the implementation
status of Memorandum Circular No. 2009-119 thought to have encountered doubts in its
execution in the local government units (LGUs) of Negros Oriental.

Research Design and Methodology

This study used the descriptive survey method in assessing the status of the
implementation of DILG Memorandum Circular 2009-119 following the strict compliance
of the E-Commerce Act of 2000 and the UN-ASPA Five Stages of E-Government by
Virtue of NCC Memo Circulars 2002-001 and 2003-001. In addition, the extent to which
the LGUs have implemented the e-government using websites as a tool for information
sharing is also included in the study’s direction.
Fifty (50) Local Government Units – IT Heads or equivalent serving as the
sample respondents representing the local units in the province are given the survey
questionnaire, and are asked to complete the said research instrument to be handed in
to the researchers when they are done responding to it. The LGU personnel
respondents are informed and instructed not to skip possibly questions at any point.

The UN’s five-stage model of e-governance of DILG Memorandum Circular 2009-119.

Emerging presence: A single or a few independent government web sites provide formal but
limited and static information
Enhanced presence: Government web sites provide dynamic, specialized and regularly
updated information
Status of LGUs Compliance on the DILG Memo 2009-119 F = 50 %
Interactive presence: Government web sites act as a portal to connect users and service
providers andFully
theComplied 2
interaction takes place at a more sophisticated level 4

Complied but not Implemented 0 0

Transactional presence: Users have the capability to conduct complete and secure
transactions, On-Going
such as renewing visas, obtaining passports and updating
5 birth10
and death
records through a single government web site and
Not Complied 28 56
Seamless or fully integrated presence: Governments utilize a single15and universal
No Knowledge about the Memorandum Circular 30
web site
to provide a one-stop portal in which users can immediately and conveniently access all
kinds of available services

Results

A. The Level of Compliance on the DILG Memorandum Circular 2009-

119 by the LGUs of Negros Oriental under the UN- ASPA
Stages of
E-governance

Table 1. Level of Compliance on the DILG Memorandum Circular 2009-119

Table 1. Compliance Level of LGUs

UN-ASPA Stages of E-governance Compliance

(Memorandum Circular 2009-119)
LGU Stage 1 Stage 2 Stage 3 Stage 4
1.  AMLAN Complied Complied Not Complied Not Complied
2.  AYUNGON Not Complied Not Complied Not Complied Not Complied
3.  BACONG Not Complied Not Complied Not Complied Not Complied
4.  BAIS CITY Not Complied Not Complied Not Complied Not Complied
5.  BASAY Not Complied Not Complied Not Complied Not Complied
6.  CITY OF BAYAWAN Complied Complied Not Complied Not Complied
7.  BINDOY Not Complied Not Complied Not Complied Not Complied
8.  CANLAON CITY Not Complied Not Complied Not Complied Not Complied
9.  DAUIN Not Complied Not Complied Not Complied Not Complied
10. DUMAGUETE CITY Complied Not Complied Not Complied Not Complied
11.  CITY OF GUIHULNGAN Not Complied Not Complied Not Complied Not Complied
12. JIMALALUD Not Complied Not Complied Not Complied Not Complied
13.  LA LIBERTAD Not Complied Not Complied Not Complied Not Complied
14.  MABINAY Complied Not Complied Not Complied Not Complied
15. MANJUYOD Not Complied Not Complied Not Complied Not Complied
16. PAMPLONA Not Complied Not Complied Not Complied Not Complied
17.  SAN JOSE Not Complied Not Complied Not Complied Not Complied
18.  SANTA CATALINA Not Complied Not Complied Not Complied Not Complied
19.  SIATON Not Complied Not Complied Not Complied Not Complied
20.  SIBULAN Not Complied Not Complied Not Complied Not Complied
21.  CITY OF TANJAY Not Complied Not Complied Not Complied Not Complied
22.  TAYASAN Not Complied Not Complied Not Complied Not Complied
23.  VALENCIA Not Complied Not Complied Not Complied Not Complied
24. VALLEHERMOSO Not Complied Not Complied Not Complied Not Complied
25. ZAMBOANGUITA Not Complied Not Complied Not Complied Not Complied
 Table 1 shows that 56% of the total respondents answer that their local unit
have “not complied” with the DILG Memorandum Circular 2009-119 while 15 or 30%
respond that they have “no knowledge” about the memorandum. On the other hand, 2
or 4% have “fully complied” and only 5 or 10% say that their compliance is “on-going”.
During the actual survey, it has been found out that of the 24 local units, only 2
municipalities have complied with the DILG 2009-119 circular.

B. Barriers to the Compliance on the DILG Memorandum Circular 2009-

119
Table 2. IT Infrastructure Barriers

IT Infrastructure Barriers Weighted Standard Standard Verbal

Mean Error Deviation Equivalent

Shortage of Reliable Networks and Communication 2.72 0.128 0.904 Problematic

Inadequate Network Capacity or Bandwidth 2.92 0.130 0.922 Problematic

Lack of Resources Standards and Common Architecture 3.06 0.114 0.807 Problematic
Policies and Definitions
Incompatible and Complex Existing Systems 2.84 0.112 0.792 Problematic

Restrictions of the Existing Internal Systems regarding 2.98 0.123 0.869 Problematic
their Integrating Capabilities
Lack of Integration Across Government Systems 3.00 0.126 0.892 Problematic

Integration Technologies of Heterogeneous Databases 3.06 0.129 0.913 Problematic

are Confusing
Lack of Knowledge Regarding e-Government 3.18 0.117 0.825 Problematic
Interoperability
High Complexity in Understanding the Processes and 3.00 0.131 0.926 Problematic
Systems in order to Redesign and Integrate
Availability and Compatibility of Software, Systems and 2.90 0.122 0.863 Problematic
Applications
Lack of Enterprise Architecture 3.02 0.109 0.769 Problematic

Lack of Documentation 2.76 0.120 0.847 Problematic

Composite Mean 2.95 Problematic

The Lack of Knowledge regarding e-Government Interoperability is seen by most

local government units as “problematic” to building an IT infrastructure because experts
and trainers on e-government may not be easily available as well as may not be the
priority of the current daily operation of each LGU.
The overall composite mean of 2.95 (“problematic”) significantly opens the idea
that awareness and capability training is a must for local government units to enable e-
government systems to address the need for interoperability requirements. Such idea if
complied would definitely address infrastructure barriers.

Table 3. IT Security and Privacy Barriers

 IT Security and Privacy Barriers Weighted Standard Standard Verbal
Mean Error Deviation Equivalent

Threats from Hackers and Intruders 3.02 0.129 0.915 Problematic

Threats from Viruses, Worms and Trojans 3.14 0.114 0.808 Problematic
Privacy of Personal Data 2.94 0.135 0.956 Problematic
High Cost of Security Applications and Solutions 3.18 0.127 0.896 Problematic
Unauthorized External and Internal Access to 3.14 0.118 0.833 Problematic
Systems and Information
Lack of Knowledge for Security Risks and 3.02 0.123 0.869 Problematic
Consequences
Assurance of Legal and Valid Transaction 2.90 0.129 0.909 Problematic
Lack of Security Rules, Policies and Privacy 3.06 0.119 0.843 Problematic
Laws
Inadequate Security of Government Hardware 3.06 0.104 0.738 Problematic
and Software, Network Infrastructure
Lack of Risk Management and Security Program 3.22 0.108 0.764 Problematic
Unsecured Physical Access to Building or 3.06 0.112 0.793 Problematic
Computers Rooms (Buildiang Infrastructure)

Composite Mean 3.06 Problematic

The data show that the Lack of Risk Management and Security Program and the
High Cost of Security Applications and Solutions are considered the most problematic
barriers to IT Security and Privacy. These prove that the LGUs find this technology very
expensive to acquire. Though they understand that invasion of privacy, threats to
security and misused of government information are some of the most obvious negative
effects of today's information and communication technologies, budgetary problems
limit them to take proper actions as these unique set of IT security challenges need to
be given attention in order to obtain effective and efficient information systems.

Table 4. IT Skills Barriers

IT Skills Barriers Weighted Standard Standard Verbal

Mean Error Deviation Equivalent

Lack of IT Training Programs in LGU 3.68 0.112 0.789 Extremely Problematic

Shortage of well-trained IT Staff 3.22 0.115 0.815 Problematic
Lack of Employees with Integration Skills 3.02 0.109 0.769 Problematic
Developing IT Solutions by Unskilled Staff 3.56 0.119 0.843 Extremely Problematic
Unqualified Project Manager 3.08 0.110 0.778 Problematic
 Shortage of Salaries and Benefits in Public Sector 3.30 0.100 0.707 Problematic
Adequate IT Professionals 3.14 0.121 0.857 Problematic

Composite Mean 3.28 Problematic

The table above discloses the following extreme barriers in the compliance of
Memo Circular 2009-119 in the local government units namely: the Lack of LGU IT
Training Programs, Developing IT Solutions by Unskilled Staff and Shortage of Salaries
and Benefits in Public Sector. The result further shows that employees require IT
training for various purposes. Jain (1989) and Rowley (1995) assert that lack of training
results in a lack of ability to use existing knowledge which causes ineffective services, a
lack of customer satisfaction, and lower productivity. Pugh (1984) maintains that
training will foster an increase in professionalism and better management methods,
whereas lack of training can cause frustration and lack of job satisfaction. Well-trained
individuals would definitely know the scope and expectations of their jobs as they
progress through their careers.

Table 5. Organizational Structure Barriers

Organizational Barriers Weighted Standard Standard Verbal

Mean Error Deviation Equivalent

Lack of Coordination and Cooperation between 2.70 0.144 1.015 Problematic

Departments
Lack of Effective Leadership Support and 2.66 0.155 1.099 Problematic
Commitment amongst Senior Public Officials
Unclear Vision, Mission and Management Strategy 2.66 0.136 0.961 Problematic
Complex of Business Processes 2.56 0.128 0.907 Problematic
Politics and Political Impact 2.64 0.142 1.005 Problematic
Cultural Issues 2.50 0.141 0.995 Moderately
Problematic
Resistance to Change by High-Level Management 2.74 0.153 1.084 Problematic
Time Consuming for Reengineering Business Processing 2.92 0.127 0.900 Problematic
Public Organizations

Composite Mean 2.67 Problematic

As can be seen on the table, the local government units believe that there are
barriers on Time for Re-engineering Business Processing because it takes time to put up
office automation. Resistance to Change by High-Level Management is also found to be
a significant barrier because if this continues to prevail in an organization its whole
system is affected. This is so because changes within an organization start with the
higher ups holding key decisions which it is up to them to pass along the details to
team members and ensure all questions and complaints are handled before changes go
into effect. When the higher ups worry more on managing liability than pushing for
change then resistance to change is the end result. The Lack of Coordination and
Cooperation between Departments ends up hurting each local government unit’s
performance in its daily business operations and services. These barriers are seen as
major organizational structure problems in the compliance of the DILG Memorandum
Circular 2009-119.
 Table 6. Operational Cost Barriers

Operational Costs Barriers Weighted Standard Standard Verbal

Mean Error Deviation Equivalent
National Government Budget ( IRA ) 2.86 0.159 1.125 Problematic
Shortage of Financial Resourses in the LGU 3.06 0.116 0.818 Problematic
High Cost of IT Professionals and Consultancies 3.12 0.127 0.895 Problematic
High Cost of IT Equipments (Hardware, Software, 3.16 0.119 0.842 Problematic
Network)
Cost of installation, operation and maintenance of 3.28 0.114 0.809 Extremely
e-government systems Problematic
Cost of Training and System Development 3.12 0.123 0.872 Problematic

Composite Mean 3.10 Problematic

Table 6 divulges that the local government units consider the Cost of Installation,
Operation and Maintenance of e-government systems and the High Cost of IT
Equipments as extreme barriers. The current move of the Department of Budget and
Management through its Internal Revenue Allotment budgetary cuts for the provincial,
city, town and barangays suggesting each of them to make an effort to become self-
sufficient and financially independent would definitely affect the LGUs’ compliance to
the said Memorandum Circular. Thus, the result clearly indicates then that the
operational cost is an extreme barrier to the compliance of the Memorandum Circular
2009-119 in the local government units.

Discussion

The results indicate that the overall government initiative on information and
communication technology in this part of the country has difficulty complying due to
budgetary concerns as well as the general observation on the respondents’ personal
comfort to what they have been accustomed to in their day-to-day activities at work in
which new technology has yet to be introduced due to budget cuts. Moreso, awareness
and capability training is a must for local government units to enable e-government
systems to address the need for interoperability requirements. Such idea if complied
would definitely address infrastructure barriers.

Training on E-Government interoperability if these experts and trainers are

available is clearly essential as a key strategy for improving government services and
achieving effectiveness in public policies and programs. The knowledge obtained by
each employee in the training will represent a set of multidimensional, complementary,
awareness and dynamic capabilities needed among networks of organizations within the
system in order to reach successful information sharing.

As found on the table, Shortage of Reliable Network and Communication is seen

as the least problematic in building IT infrastructure because there are more reliable
Internet service providers (ISP) and other companies that supply accessible network
and communication support and services.

Furthermore, even if the local government units guarantee that all their
information and transactions are free from security threats, the results of the study
prove otherwise because the item on Assurance of Legal and Valid Transaction in the
study is found “problematic”.

The end result yields a composite mean of 3.06 “problematic”, implying that
there is a need for the local government units to address information security to protect
their information systems from unauthorized access, use, disclosure, disruption,
modification, perusal, inspection, recording or destruction, and more importantly, to
protect the confidentiality, integrity and availability of them because effective
information transactions are deemed vital in running an organization smoothly.

A composite mean of 3.28 “problematic” gives the idea that there is a need for
the local government units to provide training and educational opportunities to their
employees to enable them to acquire the necessary knowledge and skills for the
compliance of the DILG Memo Circular 2009-119.

Conclusion

Viewed from the analysis of the data pertaining to the investigation of the
status of e-governance in the Local Government Units (LGUs) in Negros Oriental, it can
now be concluded that, indeed, limited physical and financial resources are major
barriers to the successful implementation of Memorandum Circular No. 2009-11.

RECOMMENDATIONS

As depicted from the findings and conclusion, the following recommendations are
hereby proposed.

1. Strengthening Public-Private Partnership can be a powerful medium to

generate possible financial resources as obtaining IT infrastructure to speed
up the delivery of social services is no doubt very expensive.
 2. Information Technology (IT) training specifically addressing the criteria set
out in Memorandum Circular No. 2009-119 by the Philippine government may
be actively conducted as a way of empowering the targeted LGU employees
for them to deliver efficiency, cost effectiveness, and eventually transparency
and responsiveness in governance to their respective local citizens.

3. Through an extension program, the Negros Oriental State University (NORSU)

may extend the Information Technology (IT) expertise of its human resources
to the province’s LGUs by helping them design their Websites.

4. In the provision of efficient government to the local citizens, local government

officials of Negros Oriental have to strengthen their political will in compliance
to Memorandum Circular 2009-119 dwelling on transparency, accountability,
and good governance.

5. Each local Government Unit in Negros Oriental may strengthen its own
Income Generating Project (IGP) in an effort to becoming self-sufficient and
financially independent outside of the DBM budget allocation.

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