COMNET-IT '95
WORKSHOP REPORT CHAPTER 3
National IT Policies and Strategies in Commonwealth
countries
3.0 Introduction
3.1 The Role of Government
3.2 Employment generation
3.3 Sectoral Strategies
3.4 Sustainable IT Strategies
3.5 The Role of the Private Sector
3.6 National Telecommunications
Policy
3.7 Overcoming Regulatory Constraints
3.8 Regional and International Cooperation
3.9 Connectivity and Infrastructure
Development
3.10 Trade
3.11 Intellectual Property Rights
3.12 The Social Context
3.13 SMEs and Technology Transfer
3.14 Good Practice
Introduction
In analysing the need for national
policies one must recognise national differences in economic, social,
cultural and political realities and expectations; different levels
of foreign exchange reserves and size of government budgets; differences
in educational, electricity and telecommunications infrastructures;
and differences in the spread of general education and information
systems skills. Heeks suggests that this might lead to an analysis
based on different IT "levels" , like the UN "ACAST"-type
classification (initial, basic, operational, advanced) or Woherem’s
classification (low income, middle income, very large population).
For the purposes of this workshop,
it was agreed that policy guidelines should be general and flexible,
taking into consideration all possible levels of information technology
policy initiatives that a country may wish to formulate. Any conclusions
and recommendations should be formulated in a way suitable for decision-makers
to take action.
Three presentations highlighting IT
government IT initiatives in Commonwealth countries were given.
Mr. Phil McLellan gave a presentation on the Government of Canada's
information technology policies and strategies. He described how
these are linked to the government's reform and renewal initiatives.
The mandate of the Government's Chief Informatics Office was outlined.
A key element in Canada's IT strategy is "The Blueprint"
which is described as "An integrated, enterprise-wide approach
to renewing government services through the application of information
technology to make them more affordable, accessible and responsive".
Among the issues, he identified the role of government as one of
managing the "core" functions, but leaving delivery of
services to the private sector. (McLellan, 1995)
Mr. Lash Motlhatlhedi outlined the
Information Technology Strategy Statement of Botswana. A prime objective
of this statement is to ensure that IT is closely aligned to the
strategic objectives and plans of Government. The document supporting
the Statement was developed by the Government Computer Steering
Committee (GCSC) and sets out the principles and directions to be
adopted by the Government in exploiting IT. The key element in the
document is the ‘Vision’ which reflects the demands and
needs of ministries to get support systems in place quickly. The
Vision contains a number of elements including the provision of
systems and training. Key elements include support for the national
infrastructure and a strong private sector role. Policies and standards
are being developed, and sustainability of all initiatives taken
is a major consideration. (Motlhatlhedi, 1995)
The application of IT in the Republic
of Mauritius was described Mr. Robin Unuth. He outlined the uses
of IT in the Civil Service and in other sectors of the economy and
described the areas of major IT investments. The IT Master Plan
aims to modernise services in the telecommunication, financial,
public and tourism sectors. The Government is playing an active
role in the development of IT in Mauritius. This includes influencing
standards, providing a regulatory framework, amending the legal
framework to support IT diffusion. Underlying the development of
IT policy in Mauritius is the realisation that IT implementation
should be a carefully planned exercise requiring the commitment
of top management and the involvement of all potential users (Unuth,
1995).
3.1 The Role of Government
What should the government's goals
be? To foster the development of the economy? To improve their own
services to the citizens? To make their own operation more efficient?
The role of the government is changing
and the answer to these questions will vary from country to country.
However, the workshop agreed that Governments have an essential
role to play in several areas. They must now become strategic partners
to stimulate development in certain sectors without being the key
player. Government must insist that the private sector play a role
while they assume the task of co-ordinating, collaborating and providing
leverage. Examples of responsibilities which might be assumed by
Governments in IT are:
The promulgation of a national information
technology mission along the lines of "Universal access to
information for all through to effective and efficient use of
information and communication technologies";
The prioritisation of economic and
social sectors in relation to IT development. IT policies should
be formulated in terms of the priority sectors;
The putting into place of a legal
framework that would protect the rights of the individual especially
with regard to privacy. The legal framework might include a code
of conduct which should be adhered to by sectors using IT;
As a major policy body, Government
should act as a catalyst in the development of IT policy by emphasising
the role of IT in national development and leading by example
in using IT within the civil service.
Government should set the stage,
define the universal principles to apply, develop appropriate
regulations, monitor progress and impact, and take corrective
action;
Government should be instrumental
in bringing together all the actors involved in the formulation
of IT policies from businesses to NGOs;
Government should ensure that IT
policies are well integrated into the science and technology policies
of the country.
The workshop addressed the particular
situation facing the developing countries. The thinking about IT
in Africa has yet to mature, but the trend is for governments to
move away from central control. This raises a number of unresolved
problems. If the government gets out of the IT development business
many worthwhile things are in danger of being dropped because they
are not commercially viable. An example is the provision of services
to outlying areas. Undoubtedly much can be done through collaboration
between government and industry, but Governments must be vigilant
to ensure that services do not decline for certain segments of the
country.
It was concluded that:
Government should be proactive
in determining the goals and objectives of its IT policy with
a view to integrating IT sectoral policies with other sectoral
development plans of the country as a whole.
3.2 Employment generation
IT is viewed by many as a means of
generating employment. An example was given of services in rural
India where small shops providing access to subscriber-dialled long
distance telephone services have generated a large number of new
jobs. IT can also be used to generate growth in other sectors, such
as agriculture. (see 6.6 below)
3.3 Sectoral Strategies
Should national policy-making be centralised
or be made on a sector-by-sector basis?
Participants felt that there are two
broad areas where national IT policies are required. First, there
is a need for a national policy for the IT sector itself (including
the telecommunications sector). Then there is a need for the formulation
of IT policies within the different sectors (education, agriculture,
transportation etc), but within the national context.
It was concluded that:
The issue of centralised vs. de-centralised
IT policy formulation depends on a number of factors. These include
the type of government administration, the administrative culture
of the nation, size of country among others. There is a need for
a national co-ordinating body to be a central catalyst, but the
actual definition and implementation of policy should be on a
sectoral or at least highly devolved basis.
The co-ordinating body should
define a framework within which the sectoral agencies should operate.
For example, issues in the framework could include the
telecommunications strategy
(universal and value added services)
standards for systems development
common system applications
which will be developed centrally for all departments - criteria
for deciding on the prioritisation of IT investments
post implementation review
procedures
information management standards
procurement procedures
software sharing procedures
and buy versus build issues.
3.4 Sustainable IT strategies
The concept of sustainable IT strategies
and policies could not be easily defined by the participants, and
perhaps this remains an area for research and further experience.
One participant suggest that a sustainable environment is one where
things grow and die but sustain themselves as a species over time.
But what is the species that one is trying to sustain? It became
clear that IT is a tool for enabling the sustainable development
of other sectors, such as health and education. Sustaining the IT
sector itself is only meaningful in this broader context.
3.5 The Role of the Private Sector
The role of the private sector in IT
policy development is changing and growing. The trend is clearly
toward a greater participation on the part of the private sector.
While there is a tendency in the private sector to focus on the
maximisation of profit, profit maximisation is only one of several
variables that are important in society. The private sector role
in the formulation and implementation of policy is different from
that of government which seeks to play a key balancing role to protect
the public interest. The strength that the private sector can bring
to the policy making process is its understanding of the need for
financial sustainability.
1. Policy formulation
Typical areas in which the private
sector can assist in policy formulation are:
- as specialist advisers to government;
- specifying IT skills requirements
(present & future);
- contributing significant ideas,
perhaps through representative bodies;
- advising on relevant and appropriate
information technology, support
- services, and information systems;
- advising on the merit and risks
of alternative policies.
These roles, among others must be played
within a framework that will allow for creative implementation of
development policies. An essential element in that framework is
that the public sector must retain the primary role in policy formulation
because it is the only body with a more general focus that can ensure
equity and accountability.
2. Policy implementation
Once a framework is in place, and policies
have been decided, private sector skills become crucial for implementation.
The private sector can play a key role as the provider of infrastructure
with Government acting as catalyst and "model user" to
create critical mass and leverage. The private sector can be particularly
helpful in the implementation of policies relating to building IT
infrastructure: manufacture, trade, telecom, training. They might
be involved in the implementation of policies where charging for
information is a factor (e.g. national mapping databases as an input
to development of the GIS industry).
One participant suggested the following
scenario: The Government should say to private companies: "You
build me an information system that saves me 25%. You build it at
your own expense. I'll keep 10% and you get 15%. The government
is not out any money. The risk is shared by government and private
sector. The vested interests of all parties are then aligned to
create real savings.
3.6 National Telecommunications Policy
Who may operate telecom services and
under what terms?
This again is an area which is country
specific. In a large country like Botswana, it will be difficult
for a private company to gain the returns needed to support an adequate
infrastructure. With a population of over 1 million living in centres
that are widely dispersed a private company might not have the incentive
to make the investment. The same thing might be the case in a small
island with low population. Determining the mix of private/public
sector participation will depend on the local contextual factors.
On the other hand, rapidly changing
technology favours a more flexible market with options available
to the user. Competition is a healthy proposition, provided common
standards are in place and an effective and fair regulatory mechanism
is established. De-regulation of telecommunications service is one
instrument that Governments can use to reduce the cost to users
and increase the diversity of service products.
As far as telematics is concerned,
telecommunication support for computer networks and data communications
in most member countries have faced serious difficulties. These
have included significant connectivity problems, type approval limitations,
third party fuzziness and high utility costs arising out of telephone
costs and tariffs. This experience has led many workshop participants
to believe that instruments should be put in place to expedite the
change of national telecommunications regulations with a view to
accelerating deregulation, liberalisation, divestiture and competition.
Workshop participants suggested that
a number of other factors needed to be addressed in telecommunications
policies. These included:
The extent to which the dominant
telecom carrier in a country should be given a special role for
infrastructure development;
Whether competitive carriers should
be asked to play an equal role in national infrastructure development
Competition from satellite/wireless
direct-to-user technologies!
Foreign companies and their role
in telecom development
Local Content Provider Strategy
3.7 Overcoming Regulatory Constraints
Constraints on the use of telematics
have been documented in the ITU/UNESCO report entitled "The
Right to Communicate: at what Price?" (UNESCO, 1995). This
document was made available to participants. Participants commented
on many of the issues covered in this report and reiterated the
need for governments to develop fair and reasonable policies which
apply to all sectors. They felt that high tariffs and inferior services
provided by telecoms operators in some developing countries make
it difficult for these countries to use the technology extensively
and excludes opportunities for leapfrogging. They encouraged governments
to introduce policies and legal instruments which will facilitate
data communications and the greater use of IT. Existing legal instruments
should be reviewed to remove impediments to the introduction of
IT-based information systems.
In a competitive environment, the creation
of an independent Telecom Regulatory Authority was felt to be essential.
In a situation where there is limited competition, there should
exist a regulatory mechanism to control tariffs but this should
not be at the expense of reasonable return on investment.
Many constraints are outside the IT
area, but can still be restrictive and merit re-assessment. For
example, reductions in import tariffs, excise and sales taxes could
be considered as part on an overall incentive scheme to encourage
IT development.
3.8 Regional and International Co-operation
Co-operation with regional entities
and international organisations can be a valuable way of making
effective use of scarce resources and building critical mass and
interest. Regional co-operation can start with joint project implementation
in sectoral areas such as tourism, immigration and customs with
IT playing a supportive and facilitating role.
Some areas, such as training, have
been major problems internationally. Perhaps this an area where
International co-operation would ensure more success. International
organisations such as the Commonwealth Secretariat, UNESCO and the
ITU can be of help in this area.
3.9 Infrastructure Development and Connectivity
The private sector will develop IT
Infrastructure if national government policies allow this to happen.
Government can help by identifying demand, aggregating requirements,
stimulating niche markets and acting as a catalyst and model user.
Many global networks are targeted to
a specific segment of society and are essentially private networks
that do not contribute significantly to the national infrastructure.
In fact, with the advance of satellite communications, they might
even bypass the national infrastructure completely. Since, as mentioned
elsewhere in this report, one role of government is to encourage
universal access, such networks are unlikely to be a priority for
national development.
The connecting of the national IT network
infrastructure with other networks is an essential policy goal.
In this connection, national policies should encourage local networks
to gateway to national and global networks. Policies in other sectors
might also encourage wide connectivity to enhance the exchange of
information on subjects of sectoral interest (e.g. health).
3.10 Trade
As world trade continues to expand,
and nations are increasingly dependent on international markets
for their economic well-being, IT can expect to play a crucial role
in trade. IT, and related developments such as Electronic Data Interchange
(EDI) are already key elements in free trade agreements. In this
connection, IT policies must be open to public scrutiny and comment.
The development of policies must follow wide consultation with representative
bodies such as professional societies, trade interests and chambers
of commerce.
In addition, there is a need for greater
awareness as to the policies being developed on the international
trade arena. Agreements, such as those under the World Trade Organization
may place demands on the IT sector. This might include, for example,
rules and regulations governing cross-border information flows.
3.11 Intellectual Property Rights (IPR)
The participants recognised the complexity
and importance of IPR policies but felt that there is an imbalance
between the North and South in the benefits being obtained. The
imbalance is prolonged because institutions in the developing world
are going through a process of change and evolution. For example,
the African Regional Intellectual Property Organisation (ARIPO),based
in Harare, under the auspices of the OAU, has not to date helped
the cause of technology innovations in the region, particularly
with respect to IT. The case for intellectual property awareness
is not much better in the Caribbean or the Pacific, although the
Asia region is relatively better.
There is work on IPR going on in several
places in Europe. This is being done, however, from the point of
view of Europeans as providers of intellectual property and as a
source of revenue. The Commonwealth could provide a useful counterbalance
to these efforts if it were to represent the developing world -
who tend to be consumers rather than providers.
To some extent the problem can be dealt
with under existing policies for technology transfer including import
tariffs and quotas, licensing, joint ventures and anti-dumping regulations.
Within this context there may need to be IT specific policies and
regulations (e.g. over software piracy, intellectual property rights
and copyright) in part because foreign suppliers will be unhappy
to sell without such legislation. (see also 6.6 below)
A key sub-issue is that of countries
protecting their country's' heritage. Stories are told of western
entrepreneurs approaching rural communities, in New Zealand for
example, offering to buy the exclusive rights to digital images
of their cultural artefacts. The money being offered is attractive
and difficult to refuse. The issue here is the exclusivity of the
rights being bought. For example, exclusive rights to the Hermitage
museum in St. Petersburg have been sold. Advice to developing countries
on how to avoid selling exclusive rights would be helpful. Perhaps
this could even be made illegal within IPR legislation.
It was concluded that:
Intellectual Property Rights is
an International issue that requires collective initiative and
effort. The area becomes more complex as the various media converge
and become digital. Intellectual property rights predicate an
area for which developing member countries need special focus,
particularly in the light of new and emerging developments in
IT and globalisation.
3.12 The Social Context - privacy, security, pornography
As far as the implications of IT on
issues such as privacy, security and pornography are concerned,
developing countries of the Commonwealth face a disadvantage when
compared with countries like Canada and Australia. In Europe, for
example, the EU Data Protection legislation already covers many
of the problems in this area. A good place to start for countries
wishing to address these issues is the development of model legislation
which gives the citizen the right to inspect, and if necessary correct,
inaccurate information about themselves (e.g property, medical records,
pension records). A universal declaration that attempts to bring
greater uniformity in the freedom of information for all Commonwealth
would be another. Legislation is needed to ensure the long term
protection and availability of records in electronic format in order
to ensure the protection of citizens rights.
Some of the issues, such as encryption,
could be pursued by the Commonwealth. Options, other than those
adopted in France, which bans it, or the US, which restricts the
use of full length encryption keys, might be explored.
An important cultural issue is the
recognition that electronic information has the potential to be
a cultural artefact. Selected collections of information may require
designation as artefacts of outstanding cultural importance. This
would occur in much in the same way UNESCO and other bodies schedule
artefacts, structures, even whole cities as items of cultural importance
requiring protection.
3.13 SMEs and technology transfer
While large companies and governments
have ready access to new IT technologies and applications, this
may not be the case for small and medium sized enterprises. SMEs
are, in many countries, a major component in the economic development
of the nation and need special attention in any IT policy. (see
also 5.0 below)
3.14 Good Practice and lessons learned
Learning from the experiences of others
is an essential element of the development of IT national policies.
Some countries have already carried out extensive studies and policy
analyses into the various elements which might need to be addressed.
While the solutions may differ according to the needs and requirements
of the specific country, these studies and analyses can be helpful.
In most cases the results of the studies are publicly available,
many are available on the Internet, and even where the information
is restricted, executive summaries are often available.
Sharing of such information can begin
at the national level. Governments are increasingly using public
consultative processes to develop policies, as in the case of South
Africa mentioned earlier. In some countries, government agencies
offer help in training, needs identification and IT selection. They
can assist end users and influence decision makers. National, regional
and international professional associations (user groups, computer
societies) provide information interchange.
On the International level, COMNET-IT
can play a major role in advising policy makers what is going on
in other countries and can analyse the experiences and lessons learned.
(see 9.1)
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