E-Governance at The Local Government Level in The Philippines: An Assessment of City Government Websites

Philippine Journal of Development
SIAR 135
Number 60, Second Semester 2005, Volume XXXII, No. 2
E-governance at the Local Government

Level in the Philippines: An Assessment of
City Government Websites*
SHEILA V. SIAR**
ABSTRACT
The application of information and communication technology for
improving governance by enhancing government's role in service
delivery, public administration, and promotion of participatory de-
mocracy has been gaining momentum in many parts of the world. In
Philippine local government, this has been witnessed lately in the
significant rise in web presence of many cities, a development that
was facilitated by the passage of the Electronic Commerce Act in
2000 and the implementation of subsequent programs to support the
law's adoption by government. An assessment of the content of city
government websites indicated, however, the minimal adoption of e-
governance as well as the underutilization of websites as e-gover-
nance tools. Results also showed a clear absence of substantial
information and resources that could enhance the quality and speed of
service delivery, make government more transparent, facilitate
public participation in decisionmaking and, ultimately, bring govern-
ment, citizens, business, community organizations, and other groups
in society together in the governance process.
* A condensed version of the author's graduate thesis at the International Christian University in
Tokyo, Japan.
** Head, Publications and Circulation Division, Philippine Institute for Development Studies. She would
like to thank Ms. Ma. Teresa Camba, Field Operations Director-eLGU Project, for providing background
information on the project and for sharing her insights, and Ms. Cuchie Echeveria for her assistance
during the preliminary stage of her thesis. She is also grateful to Dr. Temario Rivera, Dr. Takashi Nishio,
Dr. Insung Jung, and an anonymous referee of the Journal for their helpful comments. The author may be
contacted at ssheila@mail.pids.gov.ph.
136 P HILIPPINE J OURNAL OF D EVELOPMENT 2005
INTRODUCTION
The move to reinvent government has spread incessantly over the last two
decades in many parts of the world. Governments in developed and
developing countries alike have faced increasing pressures to improve
their role in service delivery and public administration. The reforms sought
have not only called for better public service through improved efficiency
and effectiveness, promotion of transparency, and increased
responsiveness. They have also highlighted the necessity to transform
governance—to move away from traditional, top-down approaches toward
more decentralized and participatory systems.
The roots of this government reinvention can be traced back to a number
of historical causes (Heeks 1999). One of them is the challenge confronting
governments to keep or win back citizens’ trust and confidence in public
institutions, which has waned through the years with increasing reports of
corruption. Another
is the influence of the neoliberal thinking that emphasizes the efficiency of
markets and the notion that the inefficiency of the public sector may be
corrected by making it as similar as possible to the private sector. Corollary to
this is the inten- sified pace of competition brought about by globalization,
which could also explain why so many governments pursued many reform
strategies so aggressively at much the same time (Kettl 2002).
Common in the new public sector reforms is the use of information and
communication technology (ICT)1 in improving government procedures and
processes and the linkage between government, citizens, and other groups in
governance to promote a more active and participatory political deliberation
and decisionmaking—a strategy known as e-governance. Using the definition
of
Backus (2001), e-governance may be defined as the application of ICTs in
refining and strengthening the interaction between government and citizens
(G2C) and government, business and other groups (G2B), as well as improving
internal government processes (G2G) to streamline and improve public
administration. Al- though e-governance and e-government sound almost
congruent, Backus noted that e-government is the utilization of ICTs by
government to improve its inter- nally focused operations (backoffice
operations) and externally focused services (frontline operations) in order to
facilitate a speedy, transparent, accountable, efficient, and effective process of
performing its activities with the public, business, and other sectors.
1
ICT refers to both computer and communication technology. The OECD defines it as "any equip-
ment or interconnected system (subsystem) of equipment that includes all forms of technology used
to create, store, manipulate, manage, move, display, switch, interchange, transmit, or receive
information in its various forms" (OECD Glossary of E-government Terms).
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Objectives of the Study
To what extent have local governments in the Philippines implemented e-gover-
nance using websites as their medium? This study attempted to answer this
question by looking into the resources and services that city governments
provide to citizens and other groups in society through their websites. The
focus of this research is the content of the websites, with cities as the
representative local government units (LGUs), as they could be considered
more progressive than municipalities and are thus better equipped to implement
e-governance, which undoubtedly entails cost.
The advent of the use of ICTs in Philippine government could be traced to
the creation of the National Computer Center (NCC) in 1971 and its subsequent
designation in 1978 as the key agency in government tasked to direct IT use for
national development and rationalize computerization in the country. This was
followed by the creation of other ICT agencies to further promote ICT use in
government as well as develop the country’s ICT industry. In June 2000, the
most important piece of legislation concerning ICT and e-governance was
signed into law—Republic Act 8792, otherwise known as the E-commerce Act—
which directs all agencies of government, including LGUs, to use electronic
means in government transactions. At the LGU level, the Act aims to get
“ICTs into the blood- stream of LGUs and enable better and faster delivery of
government services to citizens at lesser costs, and, at the same time, generate
higher revenues for them- selves.” A three-year project called Jumpstarting
Electronic Governance in Lo- cal Government Units or eLGU, a joint
undertaking of the NCC, the Department of Science and Technology, and the
Information Technology E-commerce Council, was also started in September
2002 to assist local governments in the smooth transition to e-governance.
In one of the few studies on e-governance conducted at the local govern-
ment level in the Philippines, Ilago (2001) found that only 14 percent of
provinces
(11 out of 79), 25 percent of cities (28 out of 113), and 1 percent of municipalities
(14 out of 1,496) had an online presence. In terms of automation, however,
some local governments were found to have achieved progress in real property
tax adminis-
tration, personnel management, administrative services, and even geographic
information services.
By 2004, however, only three years after the implementation of the E-
commerce Act, almost all local governments had an online presence.2
Specifically, 97.5 percent of provinces (77 out of 79), 99 percent of cities (114
2
Report as of 30 June 2004 by the e-LGU project (sent to the author by Ms Cuchie Echeveria, eLGU
Project staff, in an email on 23 July 2004).
percent of municipalities (1,496 out of 1,500) had websites.3 A major part of

this development could be attributed to the enactment of the E-commerce Act
and the implementation of subsequent programs to support the law’s adoption
by government agencies and LGUs.
Significance of the study

The present research is akin to some extent to a previous study conducted by
Lallana et al. (2002) that categorized Philippine government websites based on
the “five stages of e-government” developed by the United Nations-American
Soci- ety for Public Administration (UN-ASPA): emerging, enhanced,
interactive, trans-
actional, and fully integrated. The same indicators are, in fact, being used by the
eLGU Project in monitoring the progress of the websites every quarter. In
general, the stages present a straightforward benchmark that objectively
assesses a
website’s degree of sophistication (UN-ASPA 2001). Each stage is marked by
certain features in which ascending to a higher stage means that the website has
not only become richer in content but has also advanced in terms of the degree
of interactivity between the government and its target audiences. But while
the ASPA uses indicators that look into the content of a website, its approach is
very general in that the indicators are not so concerned with the “actual”
content or the exact information found on the website such as community news
or financial data like the city budget.
Additionally, while Ilago’s 2001 study reviewed local government
websites’ applications and content, it utilized Klaus Lenk’s broad classification
of a website’s resources, namely, information and referral, communication and
feedback, docu-
ment download, and online transaction. This study, however, seeks to fill the
gaps in, and update, these past studies as well as those of the ongoing eLGU
Project by conducting a deeper and more comprehensive investigation of the
content and information contained in each city government website and
ascertaining their scope, usefulness, degree of transparency, and effectiveness
in improving the governance process. In terms of coverage, this study is also by
far wider in scope than Ilago’s, which analyzed only 35 websites.
METHODOLOGY
A total of 102 websites were found to be accessible at the time of the study in
2004. Ten websites were inaccessible and two were under construction. Thus,
3
As can be observed, the total figures according to province, city, and municipality of the NCC study
this study
differ from those of Ilago's study. The discrepancy lies in the total number of cities and municipalities. The
numbers change whenever a new LGU is created or converted from one type to another.
SIAR 139
Table 1. Distribution of city government websites by region
Region City websites Accessible Inaccessible Under

construction
(Total) (No.) (No.) (No.)
Region 1 (Ilocos Region) 8 7 1

Region 2 (Cagayan Valley) 3 3 0
Region 3 (Central Luzon) 11 10 0 1
Region 4 (Southern Tagalog) 12 9 2 1
Region 5 (Bicol Region) 7 7 0
Region 6 (Western Visayas) 16 13 3
Region 7 (Central Visayas) 12 12 0
Region 8 (Eastern Visayas) 4 3 1
Region 9 (Zamboanga Peninsula) 5 4 1
Region 10 (Northern Mindanao) 8 8 0
Region 11 (Davao Region) 5 5 0
Region 12 (SOCCSKSARGEN) 5 5 0
Region 13 (CARAGA) 3 3 0
Autonomous Region of Muslim Mindanao 1 1 0
(ARMM)
Cordillera Administrative Region (CAR) 1 0 1
National Capital Region or NCR (Metro Manila) 13 12 1
Total 114a 102 (89.47%) 10 (8.77%) 2 (1.75%)
The total number of Philippine city governments is 115 but one city (Palayan City) still had no
a
website at the time of the study.
Each website was visited and the information contained therein was re-
corded and categorized based on a scheme. The evaluation ran for nearly a
month, from September 1 to 25, 2004. Links in each website that could not be
found were
not considered part of the content (e.g., a downloadable but inaccessible form
was not recorded). Relevant observations were also documented.
In developing a framework to measure the extent of e-governance
implementation, the first step done was to operationalize the e-governance
concept in
terms of its functions as a strategy for reinventing government and improving
the governance process. This was deemed important as the extent of e-gover-
nance implementation would be measured against the fulfillment of these
functions. Then, since the unit of analysis was the content of the websites,
the identification of relevant content supporting these e-governance functions
came next. Because e-governance has a specific purpose, it also requires a
particular content to meet that purpose. Thus it was assumed that specific
types of information and resources were essential for the advancement of
agenda, and that what the city governments had achieved in implementing e-
governance could be measured against the presence of these types of informa-
tion and resources on their web pages. Table 2 presents the output of this
exercise—a scheme that matches the functions of e-governance with the types
of information and resources that are related to each function. These functions
were coined by the author based on existing literature and studies on e-gover-
nance. Box 1 summarizes the rationale for the types of information and
resources that correspond to each e-governance function.
Table 2. Functional categorization of information in the assessment of web content
Function Relevant information/resource
1- Promote citizens’ awareness and understand- ✦ Historical, cultural, physical, social, and eco-
ing of their community’s characteristics nomic information
✦ Political organization
✦ Community/city news
2 - Promote efficiency and effectiveness in the ✦ Government services and procedures

delivery of frontline services ✦ Downloadable forms
3 - Promote transparency and accountability of ✦ Government services and procedures

government in operations and services ✦ Programs and projects
✦ Procurement information and bid invitations·
✦ Ordinances
✦ Financial information
4 - Promote citizens’ awareness of the ✦ Information on local policymaking process

policymaking process and their participation in ✦ Ordinances
decisionmaking ✦ Online polls and surveys
5 - Promote linkage and interaction between gov- ✦ E-mail address, phone number of city officials;
ernment and citizens and other groups in society: feedback form; online polls/surveys (vertical
both vertical communication (between govern- communication)
ment and citizens and other groups in society) ✦ Discussion forum, chat, and other similar online
and horizontal communication (among the differ- facilities (horizontal communication)
ent groups in society)
6 - Promote linkage between government and busi- ✦ Procurement information and bid invitations
ness ✦ Economic and business profile
✦ Investment opportunities
✦ Tourism information
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Box 1. E-governance functions and the types of information and re-

sources that correspond to these functions
Function 1: Promote citizens’ awareness and understanding of their community’s characteris-

tics. This could be considered as the most basic among the different types of information
that the government should provide to their citizens and the usual starting point in building
a local government website. Hale et al. (1999) identified citizen apathy as one of the factors
that inhibits citizen participation in the political system. If the goal for a more active citizenry
is to
be pursued, then citizens should be aware first and foremost of the most basic facts about
their community such as those pertaining to its physical, social, economic, and cultural
characteristics. This type of information could help promote among the citizens a sense of
belonging and pride in their locations’ historical, cultural, and physical attributes. It would
also help to draw
the interest of external groups, which is beneficial to the community from a business and
tourism point of view . Bringing citizens the most basic information about who makes up
their government and how it works is also essential in raising their political awareness—
considered an important precondition for their active participation in the political process.
Function 2: Promote effectiveness and efficiency in service delivery. The pursuit of improved
effectiveness and efficiency has been one of the core objectives of the new public sector
reforms (see Hood 1991; Pollitt and Bouckaert 2000; Kettl 2002). With e-governance, this
could be achieved by providing information about frontline services such as those for
securing civil registry documents, licenses and permits, or better yet, by giving the public a
way by which they can apply for these services with just a click of their mouse. At the very
least, local governments could post the procedures detailing the fees and requirements, the
city hall department assigned, and the turnaround time. Posting forms that clients could
download would eliminate the tediousness of physically going to the city hall to secure them.
For the city hall staff, these could help accelerate their response to client request.
Function 3: Promote transparency and accountability of government in operations and ser-
vices. By publishing information about their services and operations, programs/projects,
local ordinances passed, and most importantly, finances, local governments could be made
more accountable to their constituents. Furthermore, eliminating corruption in public
procurement can be achieved by promoting openness and transparency in the bidding
process. Schware (2000) noted that making government procedures more transparent
reduces the ability of brokers, middlemen, or public officials to extract payments in return
for information or expe- dited service. Additionally, the publication of employment notices
does not only serve the purpose of expanding the options available to citizens and assisting
them to improve their lives. Transparency in such kind of information can also help curb
unjust practices of withhold-
ing or monopolizing information by government staff and officials for the benefit of their
preferred candidates.
Function 4: Promote citizens’ awareness of the policymaking process and their participation
in decisionmaking. The increased availability of political information using e-governance is
envisioned to improve participatory democracy. The publication of information on the
local
policymaking process such as those that could be found in the minutes of meetings of the
City Council, the city’s legislative body, promotes accountability of elected officials to their
electorate, thus enhancing their representative role. For the citizens, information on both
the process
and the outcome (resulting ordinances) may raise their appreciation of the policymaking
process, including the role of their elected officials, which may, in turn, increase their
participation in the selection of local leaders. Consulting citizens through online polls and
surveys
and interaction, which reinforce the thrust for an informed and participative public and
bridge information/data gaps and lapses that often lead to inappropriate planning and
decisionmaking.
The study distinguished between two types of communication: vertical and horizontal.a Con-
tent that may enable vertical communication includes the contact information of city officials
(e-mail, phone number), feedback forms, and online polls/surveys. Horizontal or lateral
communication involves the different actors/groups in the governance process regardless
of organizational hierarchy. Content that may promote horizontal communication includes
discussion forum, chat, and other similar online facilities.
Function 6: Promote linkage between government, business, nongovernment organizations,
and other groups in society. E-governance as a reform strategy for improving the governance
process could also improve the relationship between government and other groups in
society, particularly the business sector. The business focus is in recognition of two things:
(1) its importance as a service provider to government’s own needs and, at the same time,
as a partner of government in responding to the needs of the public through outsourcing,
given government’s limited capacity; and (2) the sector’s apparent role in economic
development. Tourism information also promotes linkage with business by providing a
snapshot of the city’s
investment potentials, which private businesses need in their own decisionmaking
processes. Such information could also help boost the local economy by attracting local and
foreign tourists.
a In an organizational setting, vertical communication involves communication between the
top executives and the lowest levels in the organization; horizontal or lateral communication
involves communication among persons who do not stand in hierarchical relation to one
another such as among departments, managers, or employees on the same organizational
level (Reece and Brandt 1970). In a local government, vertical communication could be
viewed as that which occurs between the city government and the citizens as well other
individuals and groups in the governance process (also regarded as the government’s other
clients) such as the business sector, community organizations, and civil society. This type of
communication involves both downward and upward communication flows.
The above scheme, however, overlooked other important measures that

could have otherwise made the assessment comprehensive. Admittedly, the
scheme was geared toward the availability and quantity of information. Quality
indicators, which are also very important, were excluded. Thus, to expand the
assessment, two important factors that contribute to the quality of the websites
were added.
The first is usability. Even if a website contains the relevant content, it is
useless unless it is fully usable. Five indicators of usability from a 2003 study
by Rutgers University and the Global e-Policy e-Government Institute were
adapted in the present study: (1) consistent color and formatting, (2) consistent
navigational bars and links, (3) adequate page length, (4) availability of a site
map, and (5) availability of a search tool.
The second is responsiveness. New communication technologies not only
promote greater interaction between the government and citizens; they also pro-
vide more opportunities for government to be more responsive to them. In this
study, responsiveness was equated with attentiveness and alertness in respond-
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ing to requests sent by e-mail. E-mail was chosen over phone or snail mail
because e-governance is associated with the more advanced and newer methods
of communication. West (2002) argued that while it is important to have e-mail
addresses
available on government websites, they serve no purpose unless someone actu-
ally reads and responds to the messages he receives. Likewise, Caves (2004)
asserted that “having the ability to ask a simple question and to receive it or
locate an answer represents a basic and fundamental right in an open society.”
The e-mail address in a website is an important resource for promoting linkage
and interaction
(Function 5 in the scheme). It will be useless in the pursuit of this governance
function unless the city government has read the e-mail and responded to it.
Using the methodology of West for measuring responsiveness, each city
government that provided a contact e-mail address in its website was sent a
message with a simple question, that is: “I am trying to find out when your
city hall is open. May I know your agency’s official hours?” If the website
contained several e-mail addresses, the message was sent to the mayor, being
the city government’s chief executive. If his or her e-mail address was not listed,
the email was sent to any
of the other email addresses given on the website, including that of the second
highest-ranking official or some generic e-mail address (e.g.,
info@cityofbalanga.gov.ph). Bouncing inquiries were re-sent and forwarded to
another address indicated on the website to make sure that they were received.
Appendix 2 presents the schematic diagram of the overall framework used
in assessing the websites.
RESULTS AND
DISCUSSION Content
Tables 3 to 8 present the specific information and resources contained in the
102 city government websites found to be accessible during the evaluation
period. Data collected were categorized based on their e-governance-related
functions, using the scheme discussed in the preceding section. (Detailed tables
providing frequency counts by region are available in the full report.)
Content that promotes citizens’ awareness and understanding of the
city’s characteristics could be divided into two: that which pertains to the city
and that which relates to the city government (Table 3). Regarding the first,
most websites contained information on the city’s history (84%), physical or
natural resources, tourist sites and similar attractions (66% each), and human
resources (52%). Less than a third contained information about infrastructure,
local economy, and public
utilities. Community or city news and announcements—important to keep local
residents updated—were provided by only 22 percent of the websites.
Table 3. Content that promotes citizens’ awareness and understanding of their city’s physical,
social, and political characteristics
Content No. of city websitesa
Information related to the city

History 86 (84.31)
Physical resources (location, topography, climate, land area, geography, 67 (65.69)
geology)
Cultural events and showcases:
✦ sites and attraction 67 (65.69)
✦ festivals 31 (30.39)
Human resources (population/demographic information, electorate) 53 (51.96)
Infrastructure profile (roads, bridges, communication) 29 (28.43)
Local economy (trade and commerce, agricultural and fisheries sector, financial 26 (25.49)
institutions, exports, business establishments/industries)
Public utilities (power supply, water supply, communications, mass media) 26 (25.49)
Land use and/or zoning plan 25 (24.51)
✦ land use map 3 (2.94)
Community or city news/announcements 22 (21.57)
Cityhood (how it became a city) 21 (20.59)
Selected socioeconomic indicators (poverty incidence, unemployment rate, 17 (16.67)
crime statistics, etc.)
Socioeconomic profile 6 (5.88)
Information related to the city government
Elected officials
✦ Names of all elected officials 63 (61.76)
✦ Profile of all elected officials 8 (7.84)
✦ Names of past and present mayors 6 (5.88)
✦ Names of barangay (village) heads 20 (19.61)
Vision and mission 51 (50.0)
Departments and offices (names of heads) 36 (35.29)
Profile of city government projects 21 (20.59)
Organizational structure 12 (11.76)
Awards and recognitions received by city government or any of its members 10 (9.80)
Accomplishment report 8 (7.84)
Development plan, policies and/or strategies 7 (6.86)
Committees/commissions and their composition 6 (5.88)
a
Figures in parentheses are percentages. These were rounded off to whole numbers in the discussion.
Note: Content having a frequency of 5 and below or those found in just 5 percent of the total number of
websites were taken out from the table to make the presentation more concise. The complete tables can
be found in the full report.
substantive information such as the officials’ profiles. More than 30 percent

gave the names of the department or unit heads within the city hall. Fifty
percent contained their vision and mission statements. Only 20 percent had
information about
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the programs and projects of their city governments while only 8 percent pub-
lished their accomplishment reports.
Content that promotes efficiency and effectiveness in the delivery of
frontline services appears to be quite few. A paltry number of websites
contained information about their frontline services (Table 4). In fact, almost all
city websites in Regions 2, 10, 11, 12, and 13 did not have this type of content
while the region with the most number of city websites having this content
was Region 5, with four out of seven cities. Only less than a third of the city
websites in the NCR had such content.
Among those having information about their frontline services, the most
commonly provided information was the application procedure for securing busi-
ness and other related permits (16%), followed by information on securing local
civil documents (9%). Few had downloadable forms, the most common of which
was the application form for business permits (13%). Only one website (City of
Manila) had online forms, consisting mainly of application forms for securing
birth, marriage, and death certificates as well as business permits. By filling up
the corresponding form and clicking the “Send” button, users can send their
application.
Table 4. Content that promotes efficiency and effectiveness in the delivery of frontline
services
Content No. of city

websites a
Application procedures for securing different permits, licenses, and clearances

✦ Business permits/licenses and application procedure (business 16 (15.69)
application or renewal; business name registration; franchise permit;
closure of business)
✦ Local civil documents (birth, marriage, and death certificates; marriage 9 (8.82)
license; change of name; adoption; correction of clerical error on the birth,
marriage, or death certificate; marriage annulment
✦ Application for engineering-related permits and documents (building or excavation 6 (5.88)
permit; health/sanitation; fire safety; electrical; mechanical; occupancy)
Downloadable forms
✦ Application for business permit 13 (12.74)
✦ Application for building permit 10 (9.80)
✦ Application for electrical permit 8 (7.84)
a
websites were taken out from the table for a more concise presentation. The complete tables can be found
in the full report.
Table 5. Content that promotes transparency and accountability in operations and services
Content No. of city

websites a
City government services

✦ Social services (education, health, social welfare, public order and safety) 22 (21.57)
✦ Public educational and health facilities 20 (19.61)
✦ Business-related services (e.g., securing permits) 16 (15.69)
✦ Civil registry 9 (8.82)
✦ Fire protection 9 (8.82)
✦ Sanitation (waste management) 8 (7.84)
✦ Engineering-related services 6 (5.88)
Profile of programs and projects
✦ without cost 15 (14.70)
✦ with cost 4 (3.92)
Update or status of different projects 14 (13.72)
Bids and procurement (invitation to bid and details of required supplies, services, 12 (11.76)
or equipment)
Employment opportunities 8 (7.84)
Ordinances and resolutions b 7 (6.86)
Budget and finances
✦ Financial statement (either balance sheet, income statement, statement of 6 (5.88)
expenditures, or statement of revenues and sources)
a
b
Except for one website wherein copies of ordinances or resolutions can be downloaded, information
given by the rest contains only the titles of specific resolutions or ordinances.
Note: Content having a frequency of 5 and below or those found in less than 5 percent of the total number
of websites were taken out from the table to make the presentation more concise. The complete tables can
be found in the full report.
Moreover, results showed the lack of transparency in providing

information about services and operations (Table 5). Websites of cities in
Regions 2, 11, and 13 had the least amount of information belonging to this type
of content, while city websites in Regions 5, 6, 7, and the NCR had the most
information on this type
of content.
Less than one-third of the total number of websites gave information
about their services, which largely revolved around social services (22%), public
educa-
tional and health facilities (20%), and business-related services (16%), such as
those relating to applications for business permits (and other related documents)
and tax incentives, among others. A little more than 10 percent each of the total
number of websites gave the profile and the status of their projects, with only 4
percent publishing the project cost. Several websites provided bids and procure-
ment information (12%). Only 7 percent published their ordinances and resolu-
SIAR 147
tions. Transparency in finances was very low, as only 6 percent posted financial
statements and 2 percent, the city budget.
Additionally, content that promotes citizens’awareness of the
policymaking process and that enhances their participation in local
decisionmaking was very limited. For instance, only seven websites contained
ordinances (Table 6), of which the only information given was the title of the
ordinances, except in Naga City where downloadable full texts of all the
resolutions/ordinances were given.
Only three websites (Naga, Samal, and Davao) contained an online
survey or poll, where their respective citizens could directly voice their views on
specific
issues (Table 6). Samal City’s and Davao City’s polls focused on local issues,
namely, bridge construction and the most appropriate investment for the city,
respectively. Naga City’s poll tackled a national issue, the proposed two-child
policy pending in the House of Representatives. Only one website contained the
minutes of the City Council meetings.
For content that facilitates vertical communication, which is part of
promoting linkage and interaction (Table 7), the most commonly provided
information
was the mayor’s
Table 6.
telephone number (45%), followed by his or her e-mail address
Content that promotes citizens' awareness of policymaking process and their
participation in decisionmaking
Content No. of city

websites a
Ordinances and resolution 7 (6.86) b

Online surveys and polls 3 (2.94)
✦ Naga City: Are you in favor of the two-child policy suggested by Congress?
Yes, No, Undecided
✦ Samal City: Do you favor the construction of a bridge to connect the Island Garden
City of Samal and Davao City? Yes, No, Undecided, I don't care, I don't know.
✦ Davao City: What do you think would be the most appropriate business
investment in Davao City? Tourism and recreational facilities; Agribusiness and
food processing; Light manufacturing and assembly; Property development;
Transshipment facilities; Establishment of foreign bank branches; Medical,
educational, training, and sports facilities; Environmental enhancement and
protection projects; Telecommunications and information technology
Minutes of meeting of City Council 1 (0.98)
Local election results 1 (0.98)
a
b
Except for one website wherein copies of ordinances or resolutions can be downloaded, information
given by the rest consists only of the titles of the city resolutions or ordinances.
Table 7. Content that promotes linkage and interaction
Content No. of city

websites a
Vertical communication (between city government and citizens and other groups/
actors in the governance process)
Telephone or fax
✦ Mayor 46 (45.10)
✦ Offices and departments 29 (28.43)
✦ General telephone/fax no. 25 (24.51)
✦ Vice Mayor 22 (21.57)
✦ Councilors 16 (15.69)
✦ Selected government offices within the city 7 (6.86)
E-mail
✦ Mayor 33 (32.35)
✦ General e-mail 19 (18.63)
✦ Vice Mayor 16 (15.69)
✦ Website administrator 16 (15.69)
✦ City planning and development officer 11 (10.78)
✦ City information office 9 (8.82)
Guestbook 14 (13.72)
Feedback form 10 (9.80)
Webmail (for city government personnel only) 8 (7.84)
Horizontal communication (among the different groups/actors in the governance
process; does not consider hierarchy)
Discussion forum 14 (13.72)
Chat 9 (8.82)
Telephone number and/or address of private businesses/institutions within the city
✦ Hotels and inns 8 (7.84)
Links to other websitesb
✦ National government portal (www.gov.ph) 58 (56.86)
✦ Provincial website 7 (6.86)
a
b
Promotes either vertical or horizontal communication.
websites were taken out from the table for a more concise presentation. The complete tables can be found
in the full report.
consisting of the telephone numbers of the relevant offices and departments

(28%), the vice mayor (22%), and the councilors (16%) as well as the e-mail
addresses of the vice mayor and the website administrator (16% each) and the
planning and development officer (11%). In general, the websites contained
generic contact information—e-mail address (19%) or telephone number (25%)
which, based on the study, are two of the most commonly provided information
to promote citizen
interaction with the city government.
SIAR 149
Regions 2, 10, 11, and 12 had the least number of websites with contact
details—either phone number or e-mail. Examples in the Mindanao area
(Regions 10, 11, and 12) are the cities of Malaybalay, Oroqueta, Ozamis,
Tangub, Samal, Tagum, Digos, General Santos, and Kidapawan.
If only a few local government websites had email addresses as contact
information, this is in many ways connected to the fact that the short messaging
system (SMS), popularly known as texting via cellular phones, is more popular
than sending messages via e-mail. As of 2003, there were at least 15 million
cellular phone users (ITU 2003) as against 5.5. million Internet users in the
country (Toral et al. 2004). The preference for SMS over sending messages via
the fixed phone and even the Internet is primarily because of its cheaper cost.
Sending an SMS is eight times less expensive than a one-minute peak period
voice call (ITU 2002). But
although cellular phones are widely used in the Philippines, they are mainly
used for SMS and voice calls. By and large, Filipinos do not use them to
connect to the Internet because apart from the high connection fee, more
advanced (and thus costlier) handsets are required. This could explain the slow
progress of e-governance in the country using the Internet. Indeed, relying on
websites and other web-enabled applications alone as e-governance tools
appears unwise in a developing country like the Philippines.
Only 14 percent of the local government websites had guest books. In 10
percent of the websites, feedback forms were available. Only 3 percent each had
an
online poll and information on how to send SMS to the city mayor.
The inclusion of features or tools for horizontal communication was rare.
Only 14 percent had an active (i.e., contained messages) discussion forum. Al-
though a bigger percentage of the websites surveyed had this kind of online
facility, the majority of them were still empty, which means they have never
been used. Only 9 percent had an active chat facility.
For websites with interactive features such as discussion forum or chat—
active or empty—it was observed that almost all did not provide any
background information on how to use them. For example, there was no
information posted on most of the websites to inform visitors that they would
need to sign up or register first before they could join the chat or forum. It was
assumed that web visitors already knew what to do. This lack of helpful
information may turn away begin- ners. This could also be one reason why
most discussion forums remained
unutilized, containing not a single post. It is worth noting, however, that some
websites with discussion forums, particularly those in Region 10, were being
used.
Another reason for the apparent underutilization of websites is the
limited, or inexistent, access to the Internet in many areas, which undoubtedly
Internet-based technologies and only a small percentage of the population has

access to them. This reflects a wide digital divide, which is also one of the
reasons
for the low appreciation for websites and other web-enabled technologies in
certain parts of the country, the limited use of electronic facilities such as e-
mail and discussion forums to enhance community participation and
interaction, and the irregular updating and lack of enhancement of most local
government websites.
Only a few websites contained the contact details of private institutions
within the city. The telephone numbers and addresses of hotels/inns, however,
were common (8%).
As to links to other websites intended to promote either vertical or
horizontal communication, the most frequently used link was to the national
government portal, www.gov.ph, which was included in more than 50 percent
of the websites. Apart from this, only a few had other links, which include,
among others, the provincial website (7%). Websites with links to community
organizations and other groups in civil society were almost negligible.
Table 8 shows the presence of information that promotes increased
connection between government and business. There is a noticeable bias for
tourism-
Content No. of city
websites a
Tourism-related information
✦ Sites and attraction 67 (65.69)
✦ Festivals 31 (30.39)
✦ Getting to the city (location; how to get by land, air, or sea) 15 (14.70)
✦ City map 8 (7.84)
✦ Names, addresses, and/or phone numbers of hotels in the city 8 (7.84)
Economy and business-related information
✦ Agriculture and/or fisheries sector 26 (25.49)
✦ Business establishments or industries 22 (21.57)
✦ Business and/or industrial profile 10 (9.80)
Business condition/climate (competitive advantages) 18 (17.65)
Investment-related information
✦ Investment code: tax incentives and how to avail 13 (12.74)
✦ Priority or preferred investment or industries 11 (10.78)
Bids and procurement (invitation to bid and details of required supplies, services, 12 (11.76)
or equipment)
a
websites were taken out from the table for a more concise presentation. The complete tables can be
found in the full report.
SIAR 151
related information. More than 60 percent contained information about tourism
sites or destinations in their respective cities. The number of websites with
information about festivals (30%) was even greater than those containing
economic and business data, such as those on agriculture and/or fisheries (25%)
and business establishments or industries (22%).
Across the regions, the importance accorded to tourism information was
evident. This shows a conscious effort on the part of the national government to
promote the country as a tourism destination in Asia. An online eLGU project
update (i.e., “Establishment of LGU Web Presence,” dated 19 February 2004)
sup- ports this observation. In this document, tourism development—touted as a
pri- mary engine of economic growth—is cited as one of the government’s
objectives for helping local governments develop a web presence. It may be
recalled that former tourism secretary Richard Gordon had been known to be
actively pushing for the creation of a website in each local government as a way
of helping the country improve the local tourism industry and therefore
generate more jobs in the countryside.
It seemed, however, that information on the local economy and the cities’
business climate, which is particularly important for attracting local
investments, was sacrificed in favor of tourism-related information. Only the
city websites in Regions 5, 6, and 7 gave equal importance to these kinds of
information. The websites of Regions 2, 8, 13, and ARMM had the least
information on the local economy, investment opportunities, or tourism.
About 18 percent of the websites contained information on the
competitive advantages of their cities, while 15 percent, obviously targeting
tourists and visitors, had information on how to get to their cities (Table 8).
Some websites included information on how to invest in their cities by putting
their investment code (13%) and their priority or preferred investments or
industries (11%). Only 12 percent posted bid notices.
Table 9 lists the top 20 content across different content types and their
corresponding e-governance functions. The prevalence of typical information—
those pertaining to the social, cultural, and political characteristics of the cities
— was apparent. Historical information topped the list, followed by physical
resources, sites and attraction, the names of elected officials, human resources,
and vision/ mission. Beyond this, less than 50 percent contained contact
information (either their e-mail address or telephone number) to facilitate easy
and direct access to the city government. Critical information needed to
promote an informed citizenry, such as community news and information about
programs and projects, was provided by only 22 and 15 percent of the
websites, respectively. Information on city government services and procedures
was also seldom given. Efficiency-enhancing content such as procedures for
obtaining documents, permits, and licenses
was included in only a few websites, with business permit application

procedure as the most commonly provided information (16%). Fostering
linkage with the
Table 9. Top 20 content, overall

Content E-governance No. of city
function b websitesa
1. History Function 1 86 (84.31)

2. Physical resources Function 1 67 (65.69)
Sites and attraction Function 1 67 (65.69)
3. Names of elected officials Function 1 63 (61.76)
4. Human resources Function 1 53 (51.96)
5. Vision/mission Function 1 51 (50.00)
6. City mayor’s telephone number Function 5 46 (45.10)
7. Names of department/office heads Function 1 36 (35.29)
8. City mayor’s e-mail address Function 5 33 (32.35)
9. Festivals Function 1,6 31 (30.39)
10. Infrastructure Function 1 29 (28.43)
11. Local economy Function 1 26 (25.49)
Public utilities Function 1 26 (25.49)
Agriculture/fisheries profile Function 1,6 26 (25.49)
12. Land use plan Function 1 25 (24.51)
General or nonspecific telephone number of city government Function 5 25 (24.51)
13. Community news Function 1 22 (21.57)
Social services Function 3 22 (21.57)
Business establishments and industries Function 6 22 (21.57)
14. Cityhood Function 1 21 (20.59)
15. Public educational and health facilities Function 3 20 (19.61)
Names of barangay (village) heads Function 1 20 (19.61)
16. General or nonspecific e-mail address of city government Function 5 19 (18.63)
17. Competitive advantage Function 6 18 (17.65)
18. Selected socioeconomic indicators Function 1 17 (16.67)
(poverty incidence, unemployment rate, crime statistics)
19. Application procedure for business permit and other Function 2 16 (15.69)
business-related licenses
20. Profile of projects (without cost) Function 3 15 (14.70)
Getting to the city (tourist information) Function 6 15 (14.70)
a
b
Function 1: Content that promotes citizens’ awareness and understanding of their city’s physical,
cultural, and political characteristics; 2: Content that promotes effectiveness and efficiency in service
delivery; 3: Content that promotes transparency and accountability of government operations and ser-
vices; 4: Content that promotes citizens’ awareness of the policymaking process and their participation
in decisionmaking; 5: Content that promotes linkage and interaction between government and citizens and
other groups in society; 6: Content that promotes increased connection between government and
business.
SIAR 153
business sector to support economic development was only slightly pursued;
much of the information under this category revolved around the profiles of
the fisheries/agriculture industries (25%), business establishments and
industries (22%), and the cities’ competitive advantage (18%). Transparency-
promoting content such as the city budget and bid announcements did not
even make it to the top 20.
By e-governance function, information supportive of Function 1
dominated the websites while there was little information promoting the other
functions, suggesting an unbalanced content.
Quality
In terms of usability, about 92 percent of the total number of websites had ad-
equate page lengths, 91 percent with consistent navigational bars and links, and
89 percent with consistent color and format (Table 10). Although the format
and structure varied by website, it was noticeable that websites whose web
addresses contained the letters “ncc” (which refers to the National Computer
Center) used a specific template, resulting in almost the same appearance
across these sites. The template was supplied by the eLGU Project to local
governments with no website as part of its mandate to get all Philippine local
governments online, with initially at least a static web presence (Stage 1 in the
UN-ASPA Stages of E-government).4 The goal is for them to develop their
websites and progress to the next two higher stages of e-government: Stage 2
(characterized by the presence of downloadable forms, search function/site
map, message board/feedback form, and newsletters or publications/purchase
information) and Stage 3 (characterized by the presence of downloadable
forms, specialized databases, online forms, chat/forum/discussion board, and
user log-in and password). By 2005, the project’s third year, it was envisioned
that all websites shall have reached Stage 3 (see eLGU website for details).
As for the presence of a site map, only 47 percent recognized its
importance as a tool for navigation for users and as a pathway for search engine
robots. About 63 percent had a search tool capable of keyword-search only.
One website
4
The template, however, is flexible, as emphasized by eLGU Project Director for Field Operations
Ma. Teresa Camba. Local governments could add or modify sections of the template. Also, the
template was provided to target users along with the necessary training. Several one-day LGU
Website Development Training sessions (initially at the provincial level and later on at the city or
municipal level) were conducted to orient users on the website template, which also involved
hands-on sessions on the creation of the website using the NCC-developed template. Prior to the
training, the participants were also instructed to bring relevant materials (text and images) that they
could already upload online. Each local government was assigned a Universal Resource Locator
(URL) and password for use in accessing the website template's content management system for
them to work on the completion and enhancement of their respective sites after the training.
Table 10. Usability indicators
Indicator No. of city websites a
Adequate page length 94 (92.16)

Consistent navigational bars and links 93 (91.18)
Consistent color and formatting 91 (89.21)
Availability of a site map 48 (47.06)
Availability of a search tool 63 (61.76)
a
(Zamboanga City’s) used the Google search engine, thus enabling it to generate
search results present in other websites.
Additionally, several websites were found to be mostly empty.
Technically, they have a web presence, but considering their negligible content,
these websites
are almost useless. These include the websites of Cauayan (Region 2); Malolos,
Cabanatuan, San Jose, and Angeles (Region 3); Kabankalan (Region 6);
Pagadian
(Region 9); and Panabo (Region 11). The poor quality of downloadable forms
available in some websites also negates the usefulness of these forms. An
example is the website of Valenzuela in the NCR (and Candon in Region 2)
that had
downloadable permits (e.g., sanitation permit, electrical permit), that turned out
to be mere scanned images (JPEG). When printed, these forms were too small,
occu- pying only a third of a standard paper size and thus could not be used.
The next indicator of quality that was measured was responsiveness. Al-
though 72 city governments (71%) gave their e-mail addresses, sending
messages
to these was useful only to the extent that the messages elicited replies
(Function 5). Following the methodology of West (2000), each city government
that provided an e-mail address or addresses in its website was sent a message
with a simple question: “I am trying to find out when your city hall is open.
May I know your agency’s official hours?” Response to the message was timed
by the number of days it took the sender to get a reply.
Based on the results, the responsiveness of the city governments was very
poor (Table 11). Only 28 percent responded to the inquiry, with the most number
of
responses coming from cities in Regions 5 and 7. Only three cities in Metro
Manila sent a response, which reflects the low level of responsiveness of
Philippine local
governments, including those in the central region.
About 14 percent of the e-mailed inquiries bounced. Reasons given by the
SIAR 155
Table 11. Responsiveness
Response to e-mail inquiry No. of city websitesa
Within the same day 3 (4.17)

After 1 day 5 (6.94)
After 2 days 2 (2.78)
After 7 days or longer 2 (2.78)
Total that responded 20 (27.78)
No response 52 (72.22)
E-mails that bounced back 10 (13.89)
a
Of those that responded, the majority responded after a day, the others
three days. The longest duration for a response was at least one week. The
responses also varied in length. Some gave short answers, responding only to
the main question of the city hall’s official hours. Others were more detailed;
some offered advice on the best day to visit the city hall as well as other means
by which to access it. Examples are the following:
✦ From Cebu City (mayor@cebucity.gov.ph):
“The Cebu City Hall is open from Monday to Friday, 8:00 in the morn-
ing to 5:00 in the afternoon. For any inquiry, you can visit our website
at http://www.cebucity.gov.ph or you may call our Customer Service at
(032) 254-8762 or (032) 253-8124, look for Sandra or Malou. Hope
we could be of service to you.”
✦ From Parañaque City (palanyag@yahoo.com)
“Parañaque City Hall is open from Monday to Friday, 8 am to 5 pm
Insider’s tip: if you want an almost complete attendance of department
heads, be there on Monday mornings; if you prefer days when there are
less people, be there Tuesdays and Thursdays.”
✦ From Tarlac City (mayoraro@mozcom.com)
“For your information and guidance, Tarlac City Hall is open during
weekdays from 8:00 am to 5:00 pm. But there is one unit under the
Mayor’s Office that is open any time, 24 hours a day, to attend to emer-
gency situations. This is the EMERGENCY RESPONSE UNIT (ERU)
located in front of the Tarlac Cathedral.
Thank you for your inquiry. For complaints, comments or suggestions,
e-text Mayor ARO, just type
MAYORARO<space>MESSAGE<space>name
& address<space> and send to 2960.”

One city government was even apologetic for its delayed response (after
nine days).
✦ From Toledo City (toledoinfo@yahoo.com)
“The Toledo City Hall is open Mondays through Fridays, 8:00 a.m. to
5:00 p.m., except when there is a declared non-working holiday.
We apologize for the delay of this response, since we forgot the e-mail
account password and have to use every resource at our disposal to
recall it.”
The foregoing discussion shows the extent to which city governments in

the Philippines have implemented the e-governance concept as a strategy for
improving local governance. Notwithstanding a significant rise in web presence
among local governments, this is diminished by the status of the websites, par-
ticularly the content provided to the public. The results indicated the absence of
appropriate and substantial content that could enhance local governance, the
still-static nature of the websites, the limited use of electronic mechanisms for
promoting public participation, and the presence of sites that barely contained
information—all of which reduce the usefulness of the websites and the effective-
ness of e-governance at the local government level.
The paltry information available on the websites somehow reflects the reluc-
tance of local governments to share information with the public. The promotion
of transparency and accountability has been one of the main goals of the
public sector reforms. The practice of democracy demands public access to
government information and services (Caves 2004). Much depends on the
government, therefore, as the holder and supplier of information.
Unfortunately, even with new technologies that could assist the government in
facilitating public access to information, and despite the existence of laws
upholding the people’s right to information, a culture of secrecy in government
is still palpable. Although the Philippines has yet to enact a law on freedom of
access to information, it remains the only country in Southeast Asia to have
enshrined in its Constitution the right of the people to public information (Chua
2001).5 Chua asserted that the reluc-
5
Said right, however, is not absolute. There are various restrictions imposed on various occasions.
The most comprehensive list of exceptions to the right is found in the implementing rules of Republic
Act 6713, or the Code of Conduct and Ethical Standards for Public Officials and Employees, issued
by the Civil Service Commission. Examples of exceptions include information that must be kept
secret in the interest of national defense or security or the conduct of foreign affairs, information that
will endanger the life and safety of an individual, information of a personal nature such as physician-
patient privilege, information whose premature disclosure may endanger the stability of a financial
institution, and information that may interfere with enforcement proceedings and may deprive a
person of a fair trial or an impartial adjudication (Chua 2001).
SIAR 157
tance of civil servants to provide information stems from their belief that
providing access is not integral to their work. Another is the fear that the
information they release might be used against them in lawsuits and other
cases. Prof. Ben Lim, a political scientist interviewed by Chua, also cited as
reasons the incompe-
tence, lack of professionalism, and the plain simple-mindedness of
government officials and employees. Many government workers, he said,
lack skills in recordkeeping, filing, and organizing documents in usable and
retrievable form.
Indeed, in many state agencies and departments, and especially in many
LGUs, the records section and library have yet to be computerized. Hence,
information available in electronic format that can be shared through e-mails
and websites is
negligible.
The poor content and quality of most websites is also related to the weak
ICT organization in the LGUs. The 2002 LGU e-Governance Survey conducted
under the eLGU Project to assess the ICT resources and status of e-governance
in the LGUs revealed the poor state of IT development. One indicator of the
deplor- able state of IT development is the absence of an office in more than
half of the survey respondents (399 out of 707)6 that can handle their
computerization requirements. A second indicator is the limited number of ICT
personnel within their organization.7 Only 2,403 ICT personnel were reported, a
measly 2 percent of the
total reported LGU personnel population of 114,541. Then, almost half of the
ICT personnel are on casual employment. Also, not all ICT personnel possess
the qualifications to handle the technical demands of e-governance. Over 35
percent have neither taken an ICT-related degree in college nor have undergone
any ICT- related training. These problems are compounded by personnel
turnover that not only affects program continuity but also results in the need to
train new staff.
6
The survey, which started in August 2002, targeted a total population of 1,690 local governments
classified as follows: 79 provinces, 115 cities, and 1,496 municipalities. However, at the end of the
survey period (April 2003), only a total of 707 local governments (74 cities, 56 provinces, and 577
municipalities) submitted accomplished questionnaires, resulting in a response rate of 41.83 per-
cent. The analysis, therefore, was limited to this sampling. The full text of the survey report may be
downloaded from the eLGU project website at http://eLGU.ncc.gov.ph/.
7
eLGU Project Director Ma. Teresa Camba noted in an interview on 16 December 2004 that this
could be attributed somehow to the inability of many local governments to create new permanent
positions, specifically for IT, having already reached the prescribed ceiling for permanent staff and
thus the lack of funds to hire any additional staff even on a contractual basis. Some innovative local
governments, however, managed to sidestep this seeming constraint by setting up economic
enterprises (since they have the power and authority to create their own sources of revenue under
Section 18 of the Local Government Code) and then creating IT positions whose salaries could be
charged to these projects.
larly update them is the local governments’ responsibility. In the opinion of

the eLGU Project field director, many local governments still do not see the
value of websites as a tool for disseminating information and delivering
services and as a means of fostering closer linkage with citizens. Part of the
reason is attributable
to the technological barriers that impede e-governance. Many local govern-
ments believe that that it would be useless to have a website when only a
small percentage of the population could view it. Another reason often
mentioned is the inadequacy of budget to implement e-governance. While
these two reasons are indeed major obstacles, a number of LGUs in the
country have managed to find ways to hurdle them. And central to the success
of these LGUs is the presence of a strong and committed political leadership
that appreciates the potentials of ICTs for development.
Additionally, as with any program, the change in leadership is a critical
issue because, by and large, it leads to changes in priorities. Almost 50 percent
of the LGUs (provinces, cities, municipalities) changed their leaders in the 2004
national/ local elections. According to Director Camba, this meant starting all
over again the building of appreciation among the newly elected officials of the
usefulness of ICTs and the benefits of e-governance.
CONCLUSIONSAND RECOMMENDATIONS
Results of the assessment indicated the minimal adoption of e-governance by
the majority of the city governments and the underutilization of their websites
as e- governance tools. Most of the information provided was only geared
toward
promoting citizens’ awareness and understanding of their community’s
characteristics. Yet, whatever information provided on this aspect also has to
be enhanced since it was limited to standard information only such as
demography, history and culture, and a few political information focused
mostly on the composition of the city government.
Efficiency-enhancing content such as procedures for transacting with the
city government and downloadable forms was present in only a few websites.
Content promoting citizens’ awareness of the local policymaking process and
their
participation in decisionmaking was negligible. In terms of content that
promotes linkage and interaction with the citizens, only a small number of
websites had contact information (e.g., phone number and email address) and
online facilities for interaction such as discussion forums. Content fostering
linkage with the
business sector to support economic development was very limited. Transpar-
ency-promoting content, such as financial information and bids and
procurement information, was given by only a few websites.
SIAR 159
public participation in decisionmaking, and, ultimately, bring government,
citizens, business, community organizations, and other groups in society
together in the governance process. If the government will continue to exclude
citizens’ voice and
participation in local governance and remain indifferent to their information
needs, this could only exacerbate the gap between them, which as Caves (2004)
put it, may only increase citizens’ frustration over the government’s lack of
adequate response and ultimately make them even more distrustful of it.
As for the usability of the websites, the majority lacked useful tools for
navigation such as site maps and search capability. Several websites also barely
contained information while others had poor-quality images and downloadable
forms. Also, the responsiveness of city governments was found to be poor. Only
a small percentage of city websites with email addresses responded to the
simple message inquiring about their official hours.
Time and again, technological access has been pinpointed as the most
serious constraint to the slow adoption and application of ICTs for
governance. In- deed, it would take time to eradicate the digital divide, as it is
not simply an issue of connectivity, lack of access, or low computer and
Internet literacy. It is a gap that, as Sy (2002) noted, is conditioned by
traditional social divisions of class, income, education, gender, age, ethnicity,
and social geography.
However, aside from the problem of digital divide, the study identified
other equally critical issues that require serious attention, because they impinge
on the availability of information itself and the organizational capacity and
motivation of the government to embrace the e-governance concept. These
issues include: (1) the apathy of the government to provide information despite
the existence of a “right to information” of the people that is enshrined in the
Constitution and a Code of Conduct and Ethical Standards for Public Officials
and Employees that requires them to make public records accessible to the
public; (2) the lack of appreciation by local governments of the value of e-
governance tools such as websites, which is partly attributable to access and
connectivity issues, especially in the rural areas, resulting in low motivation
among many cities to utilize ICTs (in most cases, however, it is not just
technological barriers that impede the adoption but the absence of political
leadership that can provide the needed impetus for e- governance efforts); (3)
the leadership turnovers that often lead to changes in priorities; (4) the weak
ICT organization in many local governments; and (5) the greater popularity of
text messaging over Internet and web-enabled applications.
The present apathy of government to voluntarily provide information is a
significant constraint to e-governance. The 2000 E-commerce Law that
mandated
the adoption of e-governance by government should be complemented by a
technologies that could assist it in making information delivery more effective

and efficient and despite the existence of relevant legislation, the government is
slow to respond to the challenge of e-governance. There is a strong opinion
that the current charter on the right to information enshrined in the Constitution is
prohibi- tive and subjective, given its many exceptions, hence the need for
revisions or for the enactment of a separate Freedom of Information Law, similar
to what
did Thailand
in 1997. A similar bill passed third reading in the 11 Congress; six bills ad-
dressing the right to information remained pending in the Senate (Chua 2001).
This suggests the need for a more vigorous lobbying by concerned groups such
as the media, grassroots organizations, and civil society to “repeal restrictive
legislation or to enact a liberal information law” (Coronel 2001).
In addressing the problem of digital divide, the choice of appropriate
strategies is critical. Otherwise, these strategies could only exacerbate the gap
and lead to greater socioeconomic inequalities. The government seems to be on
the right track for choosing the community e-center as one of its strategies for
widening access to ICTs. For one thing, providing universal access to ICTs to
every person in the country—the concept of “a computer for every desk” or a
“telephone in every home”—requires huge capital and therefore is not a logical
strategy for a cash-strapped government like the Philippines. The concept of
publicly owned, publicly accessible facilities with community e-centers
facilitates resource pooling
and resource sharing, and effectively addresses resource insufficiency. Commu-
nity ownership and management of ICT infrastructure also promote broad-
based stakeholdership in development.
However, making the concept work is a huge challenge. A community e-
center is just like any enterprise whose success depends on the clients’ or the
residents’ patronage. Planning an e-center should be no different from
designing a private enterprise; important factors such as affordability, proximity
and conve- nience, and the residents’ perceived usefulness of the products and
services it offers should be considered. Making it sustainable requires the
residents to ap- preciate the value of the e-center in their daily lives. Thus,
groundwork activities in the community such as local meetings and
consultation prior to its setting up are crucial to ensure residents’ support.
Determining their priority information and service requirements is needed for
designing application systems and solutions that cater to their needs. The
presence of these need-specific services would
highlight the uniqueness of community e-centers over privately owned ones
such as commercial Internet cafes.
Another recommendable strategy for addressing digital divide—which is
also the strategy being pursued by best-practice cases in e-governance such as
the city of Naga—is the use of the formal education system to increase ICT lit-
eracy. Undoubtedly, education is still the most effective strategy for building
SIAR 161
people’s awareness and imparting the correct knowledge and attitude. By
strengthening the current ICT-related efforts of the Department of Education
through its Cyberschool project, the city government of Naga is helping to
build a core of adopters with an assured multiplier effect that can contribute to
the sustainability of ICT acceptability and adoption. This will guarantee the
presence of a population with an appreciation for ICT.
The right combination of ICT tools for e-governance is likewise
important. Reliance on the Internet and web-enabled applications as e-
governance tools
appears unwise in the Philippines where Internet literacy and access is still in
the enhancement stage. The present reality that points to the effectiveness of
SMS, given its wide popularity, signifies the need for government to be more
exhaustive in promoting its use in service delivery. It also signals the urgency of
developing more SMS-enabled applications.
At present, the use of information technologies to promote democratic
governance has barely taken off at the local government level and even at the
national
level. There is little recognition by government of the democratic and
development potentials of ICTs. In general, the utilization of ICTs has remained
fairly conservative, as they are mainly used for improving internal
government processes and, of late, for information and service delivery. As
formal tools in participatory and deliberative processes of democracy, however,
ICTs in the Philippines have yet to
achieve this status. Schove (cited in Anttiroiko 2004) attributes this reluctance
to the conservative view of technology. He said what is needed is a better
understanding of technology along more democratic lines, a perception of
ICTs as potentially capable of strengthening democracy by creating closer
relationships between public administration and citizens.
Promoting the wider application of ICTs by government in interacting
with the public may help to diffuse the concept. However, LGUs still have a lot
of work to do to enhance the content of their websites, which are deficient of
even basic information or tools (e-mail address, feedback form) necessary for
promoting communication and linkage between government and citizens.
Local governments must also endeavor to improve their responsiveness to
citizens’ requests, which also turned out to be very low at present.
Gradually introducing ICTs as legitimate tools in formal procedures to get
the citizens’ voice, such as electronic referendums, opinion polls and surveys,
feedback systems, and ultimately, in voting/election, is important to speed up
the adoption process. Thomas (2004) said that public administrators should not
be reluctant to experiment with new technologies, but he also cautioned that
they should not proceed too naively and should plan carefully before using
these technologies for public involvement. New technological options, he
However, because access to ICTs is still limited, these electronic tools of

participation should not be used as substitutes for the more conventional meth-
ods of face-to-face communication and paper technology, especially in a setting
like the Philippines where the digital divide is still wide. Instead, these should
be used to augment existing tools and strategies for eliciting participation. The
goal should be to broaden people’s access to decisionmaking by opening up
more avenues by which they can participate, and giving them various options
on how they can do it. That in itself is democracy at work. Low level of
participation has also been linked to the high cost of participation—in terms of
the time and money a person expends to participate. ICTs could lower the cost
of participation and could thus enhance the level of citizen involvement.
SIAR 163
APPENDIX
Appendix 1. Location of the different regions in the Philippine map, the

cities belonging to each region, and their web addresses as of
September 2004
Region/City Web address Region/City Web address
Region I (8) Region III continued

Laoag elgu2.ncc.gov.ph/laoag Muñoz elgu2.ncc.gov.ph/munoz
Candon elgu2.ncc.gov.ph/cityofcandon Palayanstill no website
Vigan www.vigan.go v.ph San Jose elgu2.ncc.gov.ph/nejose
San Fernando www.sanfernandocity.gov.ph Angeles elgu2.ncc.gov.ph/pampanga
Alaminos* www.alaminos.gov.ph San Fernando elgu2.ncc.gov.ph/sanfernando-
Dagupan www.dagupan.gov.ph pampanga
San Carlos www.vmuf.edu.ph/sancarloscity Tarlac www.tarlac.com.ph
Urdaneta elgu2.ncc.gov.ph/urdcty Olongapo** www.olongapocity.gov.ph
Region II (3) Balanga www.cityofbalanga.gov.ph
Tuguegarao elgu2.ncc.gov.ph/tuguegarao Region IV (12)
Cauayan elgu2.ncc.gov.ph/cauayancity- Batangas elgu2.ncc.gov.ph/batangascity
isabela Lipa elgu2.ncc.gov.ph/lipacity
Santiago www.geocities.com/cityofsantiago Tanauan elgu2.ncc.gov.ph/tanauan
Region III (12) Cavite elgu2.ncc.gov.ph/cavitecity
Malolos elgu2.ncc.gov.ph/malolos Tagaytay**www.tagaytaycity.net
San Jose Trece Martires* el gu 2.nc c .go v.p h /tre c em ar ti -
del Monte elgu2.ncc.gov.ph/sjdmcity rescity
Cabanatuan elgu2.ncc.gov.ph/cabanatuan Calamba elgu2.ncc.gov.ph/cityofcalamba
Gapan elgu2.ncc.gov.ph/gapan San Pablo www.msc.net.ph/spc
Region IV continued Region VII continued

Lucena elgu2.ncc.gov.ph/lucenacity Lapu-lapu elgu.nc c.go v.ph/e community/
Antipolo www.antipolocity lapulapu-city
Calapan* www.cityofcalapan.gov.ph Mandaue www.mandauecity.gov.ph
Puerto Talisaywww.talisaycitycebu.gov.ph Toledo
Princesa elgu2.ncc.gov.ph/puertoprincesa elgu.nc c.go v.ph/e community/
Region V (7) toledoy-city
Iriga elgu2.ncc.gov.ph/iriga Bais elgu.ncc.gov.ph/ecommunity/bais
Naga www.naga.gov.ph Bayawanelgu.ncc .go v.ph /ecommuni ty /
Masbate elgu2.ncc.gov.ph/masbatecity himaymalan-city
Sorsogon elgu2.ncc.gov.ph/sorsogoncity Canlaon elgu.nc c.go v.ph/e community/
Legazpi elgu2.ncc.gov.ph/legazpicity canlaon-city
Ligao elgu2.ncc.gov.ph/ligaocity Dumaguete elgu.nc c.go v.ph/e community/
Tabaco elgu2.ncc.gov.ph/tabacocity dumaguete-city
Region VI (16) Tanjay elgu.nc c.go v.ph/e community/
Roxas elgu.nc c.go v.ph/e community/ himaymalan-city
roxascity Region VIII (4)
Iloilo www.iloilocity.cjb.net Ormoc elgu.nc c.go v.ph/e community/
Passi elgu.ncc.gov.ph/ ecommunity/ ormoc
passicity-iloilo Tacloban elgu.nc c.go v.ph/e community/
Bacolod www.bacolodcity.gov.ph tacloban
Bago elgu.nc c.go v.ph/e community/ Calbayog elgu.nc c.go v.ph/e community/
bagocity calbayogcity-wsamar
Cadiz www.cadizcity.gov.ph Maasin* elgu.nc c.go v.ph/e community/
Escalante www.escalantecity.gov.ph maasincity
Himaymalan Region IX (5)
Dapitan www.dapitan.com
elgu.nc c.go v.ph/e community/ Dipolog dipologcity.gov.ph
himaymalan-city Pagadian elgu.nc c.go v.ph/e community/
Kabankalan elgu.nc c.go v.ph/e community/ pagadian
kabankalan Zamboanga www.zamboanga.com
La Carlota* www.lacarlotacity.gov.ph Isabela* elgu.nc c.go v.ph/e community/
Sagay www.sagay-city.com.ph isabelacity
San Carlos www.sancarlos.com.ph Region X (8)
Silay www.silaycity.gov.ph Malaybalay www.philcom.ph/gov/malaybalay
Sipalay elgu.nc c.go v.ph/e community/ Valencia elgu.nc c.go v.ph/e community/
sipalay-city Valencia
Talisay* elgu2.ncc.gov.ph/ecommunity/ Oroquieta elgu.nc c.go v.ph/e community/
talisaycity-negocc oroquieta
Victorias* www.victoriascity.gov.ph Ozamis www.ozamis.com
Region VII (12) Tangub www.tangub.net
Tagbilaran www.tagbilaran.gov.ph Cagayan
Cebu www.cebuycity.gov.ph de Oro elgu.nc c.go v.ph/e community/
Danao elgu.nc c.go v.ph/e community/ cagayandeoro
danao-city
SIAR 165
Region X continued Region XIII continued

Gingoog elgu.nc c.go v.ph/e community/ Surigao caraga13.gov.ph/surigaocity
gingoog Bislig caraga13.gov.ph/bisligcity
Iligan www.iligan-city.net ARMM (1)
Region XI (5) Marawi elgu.nc c.go v.ph/e community/
Panabo elgu.nc c.go v.ph/e community/ marawicity
panabo CAR (1)
Samal www.samalcity.gov.ph Baguio** www.baguio.gov.ph
Tagum tagumcity.20m.com NCR (13)
Davao www.davaocity.gov.ph Manila www.cityofmanila.com.ph
Digos elgu.nc c.go v.ph/e community/ Mandaluyong
digos
Region XII (5) www.mandaluyong.gov.ph Marikina
General Santos www.mindanao.com/gensan www.marikina.gov.ph
Koronadal elgu.nc c.go v.ph/e community/ Pasig www.pasig-city.gov.ph
koronadal Quezon City www.quezoncity.gov.ph
Tacurong elgu.nc c.go v.ph/e community/ Kalookan* www.caloocan.gov.ph
tacurong Malabon www.mlabon.gov.ph
Kidapawan elgu.nc c.go v.ph/e community/ Valenzuela elgu2.ncc.gov.ph/valenzuela
kidapawan Las Piñas
Cotabato www.cotabato.gov.ph
Region XIII (3)
www.geocities.com/laspinascity Makati
Butuan caraga13.gov.ph/butuancity www.makati.gov.ph
Muntinlupa www.muntinlupacity.gov.ph
* Inaccessible; **Under construction/renovation duringParañaque
the evaluation www.geocities.com/palanyag/
period.
Sources: (1) Map: http://hdr.undp.org/docs/publications/background_papers/2003/Philippines/
Philippines_2003_Annex_1.pdf
2) Web addresses: eLGU project document
Note: The web addresses of the city governments were as of September 2004, as gathered from the
eLGU project website. Some city governments may have changed their addresses and made updates
after the evaluation was conducted.
Appendix 2. Framework used for assessing the city government websites
SIAR 167
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What reforms have governments pursued to improve public administration?

What reforms have governments pursued to improve public administration?

Philippine Journal of Development

E-governance at the Local Government

percent of municipalities (1,496 out of 1,500) had websites.3 A major part of

Significance of the study

Region City websites Accessible Inaccessible Under

Region 1 (Ilocos Region) 8 7 1

Total 114a 102 (89.47%) 10 (8.77%) 2 (1.75%)

website at the time of the study.

Table 2. Functional categorization of information in the assessment of web content

Function Relevant information/resource

2 - Promote efficiency and effectiveness in the ✦ Government services and procedures

3 - Promote transparency and accountability of ✦ Government services and procedures

4 - Promote citizens’ awareness of the ✦ Information on local policymaking process

Box 1. E-governance functions and the types of information and re-

Function 1: Promote citizens’ awareness and understanding of their community’s characteris-

The above scheme, however, overlooked other important measures that

Content No. of city websitesa

Information related to the city

substantive information such as the officials’ profiles. More than 30 percent

Content No. of city

Application procedures for securing different permits, licenses, and clearances

Content No. of city

City government services

Moreover, results showed the lack of transparency in providing

Content No. of city

Ordinances and resolution 7 (6.86) b

Content No. of city

consisting of the telephone numbers of the relevant offices and departments

Internet-based technologies and only a small percentage of the population has

was included in only a few websites, with business permit application

Table 9. Top 20 content, overall

1. History Function 1 86 (84.31)

Indicator No. of city websites a

Adequate page length 94 (92.16)

Response to e-mail inquiry No. of city websitesa

Within the same day 3 (4.17)

& address<space> and send to 2960.”

The foregoing discussion shows the extent to which city governments in

larly update them is the local governments’ responsibility. In the opinion of

technologies that could assist it in making information delivery more effective

However, because access to ICTs is still limited, these electronic tools of

Appendix 1. Location of the different regions in the Philippine map, the

Region/City Web address Region/City Web address

Region I (8) Region III continued

Region/City Web address Region/City Web address

Region IV continued Region VII continued

Region/City Web address Region/City Web address

Region X continued Region XIII continued

Anttiroiko, A-V. 2004. Introduction to democratic e-governance, p. 22-49. In

National Computer Center and Department of Science and Technology. 2002.

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