Document(s) 4 of 16

The advent of the Information Society is creating unprecedented conditions for bridging the digital divide through supporting government operations to strengthen the establishment of efficient, effective and transparent governance systems. Electronic tools can significantly improve the services and information flows from administrations to their constituencies. Communication among administrations and citizens and businesses can be enhanced and, at the same time, Information and Communication Technologies (ICTs) offer unique opportunities for the re-use and exploitation of public sector information within the emerging digital economy. Bringing out this potential will create vast economic opportunities for developing countries¹. However, there are different aspects and configurations of the Digital Divide: Infrastructural, Information, Knowledge, Intellectual, Human Resource Capacity, Cultural, Content². Therefore, the Digital Opportunity also presents a "divide" among developed and developing countries. This needs different actions in different contexts and a holistic approach to solve, in an integrated manner, the various gaps existing in developing countries and, in particular, Africa.

The centrality and importance of strengthening the political and administrative frameworks in African countries is commonly recognised. In the context of development, improved governance has several implications. In particular, however, it facilitates the design and pursuit of a comprehensive national strategy of development. It ensures capacity, reliability and integrity of the core institutions of the modern state. It implies improving the ability of government to carry out governmental policies and functions, including the management of implementation mechanisms. It means accountability for actions and transparency in decision-making and also signifies the opportunity for people to participate openly in the democratic process. Improved governance requires an effective, efficient and responsive public administration system³.

In the light of the above, and within the framework of enhancing governance in Africa, there's a clear recognition of challenges and opportunities particularly relating to the development of a widespread «Knowledge-based Society» to be created using e-governance as a tool. As underlined by the United Nations Development Programme - Human Development Report 2001 "Making New Technologies Work for Human Development", "technology networks are transforming the traditional map of development, expanding people's horizons and creating the potential to realise in a decade progress that required generations in the past"⁴. There is no doubt that the need for all-round improvement of performance is a very urgent one for African governments and that ICTs are valuable in decision making, planning and management support in all sectors of the economy⁵. The Information Society is in fact already being overcome by the "Network Age", that is changing how technologies are created and diffused. But gaps among rich and poor countries and risks of mismanagement of the enormous opportunities and power given by ICTs have to be carefully taken into consideration.

The international debate and several United Nations documents, such as the Millennium Declaration and the Monterrey Consensus, have highlighted the centrality and importance of good governance for sustainable development. Sound economic policies, solid democratic institutions responsive to the needs of the people and improved infrastructure are understood as being the basis for sustained economic growth, poverty reduction and employment creation.

ICTs provide a powerful tool in support of development strategies and the establishment of efficient and effective governance systems. Electronic tools can significantly improve service delivery, transparency and accountability and two-way communications between administrations and their constituencies.

Contexts and institutional frameworks within African countries are changing rapidly and policymakers and private and public telecommunications service providers have introduced reforms. Reforming countries are reaping the benefits through improved infrastructure, increased applications and better accessibility and affordability of ICTs equipment and services. However, one of the major challenges confronting Africa is to develop the capacity, strategies, and mechanisms necessary to take full advantage of the opportunities offered by ICTs especially at the local level.

The Fifth African Governance Forum (2002) and the Declaration of the World Summit of Cities and Local Authorities on the Information Society (Lyon, 5 December 2003), both identified development at the local level as the key to good governance including through the use of ICTs. Notably, the Digital Solidarity Fund, the new financial mechanism officially established and funded as a follow-up to the first phase of the World Summit on Information Society (WSIS), has the specific aim of supporting projects and activities in the area of ICTs for local governance in developing countries. However, despite the recognition of its importance little empirical evidence exists, especially in Africa, on the effects of ICTs on local governance.

Decentralisation and locally controlled administration are increasingly identified as basic components of democratic governance and provide an enabling environment in which decision making and service delivery can be brought closer to the people, especially the poor and the marginalised. Community participation in decision making, planning, implementation and monitoring and backed by appropriate institutions and resources; along with effective decentralisation can, through ensuring greater accountability, responsiveness and participation, result in local services that are more efficient, equitable, sustainable and cost-effective.⁶

The integration of ICTs in these processes can greatly enhance the delivery of public services to all citizens and thus, the overall objective of improving the performance of governance systems at all levels, as well as increase the democratic governance framework of the society at large.

But the potential for e-governance in developing countries remains largely unexploited,⁷ perhaps because of the difficulty in achieving the revised organisational structures and skills; the degree of decentralisation of decision making;⁸ new forms of leadership; transformation toward public-private partnerships; and the effective involvement of stakeholders that is required.⁹ Moreover, local governance is in general given little attention within national e-governance policies and strategies.

However, the broad assumptions that decentralisation policies can influence good local governance and that the use of ICTs can greatly increase this influence have yet to be proven. To date there is little empirical evidence of the "multi-dimensional" effects of ICTs on local governance, which can in turn inform national e-governance policies. While, there are some examples of linkages between ICTs and local governments, the causal connection between ICTs and innovation in local governance for socio-economic development is little understood. Also, recognition of the potential of ICTs for local governance comes from a few successful pilot applications around the world. Attempts are currently underway to critically evaluate some of these projects so that the real extent of their impact can be understood and the factors inhibiting that impact can be identified. However, there is no common assessment framework from which lessons can be drawn in examining the link between ICTs and good local governance which is defined as "the exercise of economic, political, and administrative authority to better manage the affairs of a locale".¹⁰

With this research I intended to initiate the move away from anecdotal analysis of strengthening local governance with ICTs, towards a more rigorous, evidential and outcomes-based analysis of developing trends and implementation of ICTs in local governance and so develop the basis for a Research Agenda on ICTs for Local Governance in Africa.

In fact, drawing on an "institutionalist" framework, on the one hand I have started to investigate how ICTs affect policy outcomes within a given institutional setting and, on the other hand, what are the key drivers or factors of success in implementing strategies and programmes that include integrating ICTs at local governance level.

The theoretical framework underpinning the practical work assumes not only a direct intervening effect of ICTs on policy outcomes, but furthermore a possible indirect effect of ICTs on the institutional settings themselves.

The analysis focusses on four selected projects being implemented in Africa, as case studies, to start creating an environment of lessons to be learned from each other and to inform about the factors of success in relation to enhancing governance and reinforcing democracy using ICTs.

The preparation of the case studies is based upon "field-missions" undertaken within the framework of the Acacia & Connectivity Africa Dissemination Activities of the International Development Research Centre (IDRC), and on behalf of the United Nations Economic Commission for Africa (UNECA), in preparation of the Second Phase of the World Summit on Information Society – WSIS-II (Tunis 2005), as well as to support the development of a broader Research Network Activity to be initiated and funded by IDRC and executed through the African Training and Research Centre in Administration for Development (CAFRAD) as a follow-up to the WSIS-II (Tunis, November 2005).

The case studies, identified following the decisions of the "Partnership for ICTs in Africa" (PICTA) meeting (Tunis, 2003), where an assessment of tools for local government, compiling stories on different PICTA member partners' experiences in this area, has been indicated as a priority action, are the following:

1. The role of ICTs in Decentralisation Policy in Senegal;
   
   
2. ICTs and Traditional Governance in Ghana;
   
   
3. The District Administrative Network Programme in Uganda;
   
   
4. The Cape Town's "Smart City" Strategy in South Africa.

By investigating the relationships between ICTs and local governance, my research was intended to provide empirical evidence of the dynamics, outcomes and implications for policy and practice of the integration of ICTs in local governance systems in Africa. Also, key drivers for effective integration of ICTs into local governance systems have been identified and discussed, based on concrete examples and discussing them within the local context of effective implementation.

Conclusions, more than a definitive set of recommendations for implementation of ICTs at the local level should be seen as some lessons learned from experience, and the starting point of further research in the emerging area of e-Local governance, and e-governance in general.

Notes

¹ Misuraca Gianluca, "e-Africa initiative for good governance: building e-governance capacity in Africa", Paper presented to the International Conference on e-government, SITEXPO, Casablanca, Morocco, 18-21 February 2004.

² Okpaku Joseph, Ownership of Problems, Intellectual Property and the Digital Divide: The Enabling Challenge of Solutions - An address to the WIPO Second International Conference on Electronic Commerce and Intellectual Property, Geneva, September, 2001.

³ UNDESA, Economic Governance: Guidelines for Effective Financial Management, New York, 2000.

⁴ UNDP, Human Development Report, 2001, www.undp.org

⁵. e-Africa 2002: Building e-governance capacity in African countries, Tangier, 2002, Project Proposal, prepared by Gianluca Misuraca on behalf of the African Training and Research Centre in Administration for Development, CAFRAD.

⁶ Report of the Workshop on Poverty Alleviation and Decentralization for Ten West African countries, organized jointly by UNDESA and the Government of Senegal, Dakar, July, 2003.

⁷ D.V. Ndou, "e-government for Developing Countries: Opportunities and Challenges", The Electronic Journal on Information Systems in Developing Countries, 18,1,1-24, 2004.

⁸ Dr. A. Aliyu, "Nigerian Experience of Decentralization as a Means to Improve Governance and How It Contributes to Combating Poverty", 2003.

⁹ Fifth African Governance Forum (AGFV), "Local Governance for Poverty Reduction in Africa", Maputo, Mozambique, 23-25 May 2002.

¹⁰ LOG-IN Africa Project Proposal, Gianluca Misuraca on behalf of CAFRAD for IDRC, November 2005.

Document(s) 4 of 16