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Using SMS -based e-Government Systems for Effective Participatory Community Monitoring in Local Government Units

Ministry of Local Government and Housing

The RoadRoad----MMMMapap to Implementation of ee----GovernmentGovernment in Zambia

“Using SMS-Based e-Government Systems for Effective Participatory Community Monitoring in Local Government Units -- Electronic Community-Based Monitoring System (e-CBMS)”

The information gathered in this book, The Road-Map to Implementation of e-Government in Zambia “Using SMS- Based e-Government Systems for Effective Participatory Community Monitoring in Local Government Units -- Electronic Community-Based Monitoring System (e-CBMS)” is based on the experiences and knowledge gained during implementation of the Community-Based Monitoring System (CBMS) in Zambia. It describes the use of SMS-based e-government systems in the implementation of CBMS in Zambia. The implementation of CBMS in Zambia is being supported by the Poverty and Economic Policy (PEP) network, through the funding from the International Development Research Centre (IDRC) and the Australian Agency for International Development (AusAID). This book was written with courtesy of Dr. Celia M. Reyes, Co-Director of the PEP Network, Angelo King Institute for Economic Business Studies – De La Salle University – Manila. Email: [email protected]

Charles Peter Kashiwa, Henry Nkoma Assistant Director, Administration. Director, Department of Community Development Lusaka City Council Ministry of Community Development and Social Services P.O Box 30077 P.O box 31958 Lusaka, Zambia Lusaka, Zambia Tel: 260-211-252926, Cell: 0977-853016 Tel: 260-211-227308, Cell: 0977-776311 Email: [email protected]

Christoper A. Katundu Bwalya Mwango Chief Planning Officer Manager, Projects Ministry of Education Zambia Information and Communications Technology P.O Box 50093 Authority Lusaka, Zambia P.O Box 36871 Tel: 260-211-250855, Cell: 0977-883594 Tel: 260-211-241236, Cell: 0955-770132 Email: [email protected]

Dr. Brian Chituwo The Permanent Secretary Minister, Local Government and Housing Ministry of Local Government and Housing Ministry of Local Government and Housing Church Road Church Road Lusaka, Zambia Lusaka, Zambia Tel: +260 211 250528 Tel: +260 211 250528 Email: [email protected]

Chipakata Chulu Muzunda Claricy Manager, Research and Development Database Administrator The Zambia Research and Development Centre The Zambia Research and Development Centre Tel: 0978-123305 Tel: 0978-000190 Email: [email protected] Email: [email protected]

Dr. Mushota Kangwa John Silumbe Richard Executive director, Project Leader, CBMS The Zambia Research and Development Centre Director, Research and Development Findeco House, 16 th Floor, Cairo Road, Lusaka The Zambia Research and Development Centre Tel: 0978-000190 Tel: 0979-303567 Email: [email protected] Email: [email protected]

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 2

CONTENTS

INTRODUCTION…………………………………………………………………4

CHAPTER I – The Ministry of Local Government and Housing 1. The MLGH……………………………………………………………………….6 2. The Local Authorities (Councils)…………………….………………………...8 3. The Lusaka City Council……………….…………….………………………...10

CHAPTER II – The Community-Based Monitoring System in Zambia 4. The Community-Based Monitoring System in Zambia ….…………….…...14 5. The CBMS Process……………………………………………………………...15 6. Benefits of CBMS……………………………….……………………………....16

CHAPTER III – Study on Short Massaging Service (SMS) Application in Zambia 7. The Study on SMS……………………………….……………………………...18 8. Perceptions of SMS.…………….……………….………….…………………...19 9. Recommendations….…………………………….……………………………...24

CHAPTER IV – Electronic Community-Based Monitoring System 10. The e-CBMS ……………………………………………………………….…...25 11. The e-CBMS Methodology .……………………………………………….…...26

CHAPTER V – Miscellaneous 12. Recommendations..……………………………………………………………..29

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 3 INTRODUCTION

This book, The Road-Map to Implementation of e-Government in Zambia “Using SMS- Based e-Government Systems for Effective Participatory Community Monitoring in Local Government Units -- Electronic Community-Based Monitoring System (e-CBMS)” describes the implementation of a Community-Based Monitoring System (CBMS) using SMS-based e-government systems in Zambia as a way of making CBMS more diverse and cost effective. It is aimed at contributing to the ongoing efforts in the implementation of e-Government in Zambia.

The concept of e-Government is defined as including the use of ICT (Information and Communications Technologies), to facilitate daily administration and monitoring of services in communities and improve the satisfaction level of citizens. Using e- government systems at local level, Local authorities are able to engage communities in capturing the various dimensions of poverty in an ongoing, dynamic way, and allowing the poor themselves to validate the information. This makes it easier to diagnose the extent and nature of poverty, to formulate appropriate responses, to allocate resources to identified beneficiaries, and to assess the impact of policies and programs.

Delivering public services through the Short Messaging Service (SMS) channel is a promising dimension of e-government implementation in Zambia. The use of Short Messaging Service (SMS) technology to enhance delivery of local government services to benefit citizens and communities is defined as SMS-based e-government. SMS-based e-government systems enable local authorities to communicate with citizens, and to provide a range of services in local communities through the SMS channel. These systems are also used to deliver information about emergency situations (such as warnings, floods, extreme weather) to affected citizens, and any other community activity which needs a prompt action by the local people such as a reminder of a tax due date.

According to the research study undertaken by the Zambia Research and Development Centre on SMS-based e-government implementation in Zambia, providing public services through the SMS channel can significantly reduce time and cost; introduce a

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 4 cheaper, easier and faster information-accessing channel; improve transparency, accountability, communication, and relationship between government and citizens; make the services and procedures easier for the citizens; improve the local political image; engage more people and increase citizens participation; and promote e-Democracy.

The advantages of SMS are: it is simple, easy to use, extensive in coverage, reliable in delivering the message, low in cost, and can reach citizens anywhere anytime including areas with no Internet access. People prefer a technology channel that is more familiar, simple and easy to use, supports their native language, uses a readily available device and infrastructure. According to the recent survey, 85% of all households in Zambia have at least one member with a mobile phone.

Drawing from the challenges encountered during the implementation of the second phase of CBMS - Monitoring and Assessing the Impact on Poverty of the Global Financial and Economic Crisis in Zambia, the dynamic nature of CBMS data makes CBMS implementation challenging as far as tracking of information and keeping information up- to-date are concerned. This also makes CBMS less cost effective when it comes to making continuous follow-up to households in communities.

Therefore, in this book, we describe how SMS-Based e-Government Systems can be used in the implementation of CBMS to achieve Effective Participatory Community Monitoring in Local Government Units. The use of SMS-Based e-Government System in the implementation of CBMS is known as Electronic Community-Based Monitoring System (e-CBMS). e-CBMS replaces paper-based data collection tools with an SMS- based data collection system that enables continuous, dynamic and up-to-date data collection, and communication with community members.

In Chapter I, we will describe the Ministry of Local Government and Housing (MLGH), and local authorities under its jurisdiction. In chapter II, we will describe the Community- Based Monitoring System (CBMS) in Zambia. In chapter III, we will present the study on Short Massaging Service (SMS) application in Zambia. In chapter IV, we will present

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 5 Electronic Community-Based Monitoring System (e-CBMS) and its methodology of implementation. Finally, recommendations will be presented in chapter V.

CHAPTER I – The Ministry of Local Government and Housing

1. The MLGH……………………………………………………………………….6

The Ministry of Local Government and Housing falls under the Local Government and Decentralization Sector of the national economy. It aims to promote a decentralized and democratic local government system and facilitate the provision of efficient and effective delivery of quality housing, infrastructure and social services by local authorities and other stakeholders for sustainable development. The Ministry is charged with the administration of the local government system and ensuring that the people of Zambia are provided with the necessary municipal services. The Ministry of Local Government and Housing, in short MLGH is multi-functional in nature and oversees the implementation of delegated functions and responsibilities by the local authorities by managing the social, economic and political spheres of governance. According to the Government Gazette no 547 of 2004, the ministry has been assigned the following functions:

 Co-ordination of Local Government Administration;  Regulation and provision of social amenities;  Urban Planning and Regional Planning;  Valuation of property;  Chiefs’ Affairs and House of Chiefs;  Water Supply and Sanitation;  Provision of housing;  Provision of municipal infrastructure services and support services;  Co-ordination of the implementation of the National Decentralization Policy; and Provision of feeder, community and urban roads.

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 6 Decentralization Secretariat The Decentralization Secretariat was established in 2003 to spearhead, plan, coordinate, facilitate, and monitor the implementation of the Decentralization Policy. The Secretariat has a collaborative and consultative relationship with Government Ministries/Departments, Provincial Administration, and District Councils based on its prescribed functions. It is envisaged that the Secretariat will be phased out by the end of 2011 when the requisite capacities are built at all levels of Government. To effectively perform its role, the Decentralization Secretariat has the following specific functions:

1. Servicing the Decentralization Policy Implementation Committee (DPIC) in the implementation of the Policy; 2. Developing a comprehensive implementation plan and strategy in support of the Decentralization Policy; 3. Initiating studies on specific aspects of decentralization, sub-national planning and financial management in support of Decentralization Policy implementation; 4. Developing and coordinating an extensive information, education and communication program which raises awareness about decentralization 5. Supporting sector/ministry decentralization units in the development and implementation of sector specific Decentralization Plans; 6. Facilitating the establishment and installation of sub-national planning systems in all districts; 7. Facilitating the establishment of financial and management institutions and structures at the District level which support local governance and decentralized development 8. Supporting capacity building initiatives in the implementation of the Decentralization Policy with regard to district management, planning and financial systems; 9. Monitoring and evaluating the implementation of the Decentralization Policy; and 10. Performing any other duties as required by the DPIC.

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 7 Overall, the Decentralization Secretariat provides leadership in the monitoring and evaluation of the implementation process and focuses on performance monitoring in terms of whether the agreed upon activities, as spelt out in the annual work plans, are being effectively and correctly implemented. Furthermore, the Secretariat focuses on whether the required resources (inputs) are provided in a timely manner, the outputs are being realized, and objectives are being achieved, whether there is any need for policy review and the potential for replicating successful activities nationwide.

2. The Local Authorities (Councils)………………………………………………...8

Zambia is divided into 9 provinces that include; Eastern, Central, Luapula, Northern, North-Western, Copperbelt, Western, Southern and Lusaka Provinces. Within the se provinces there are 72 local authorities or councils consisting 4 City Councils, 14 Municipal Councils and 54 District Councils. The full list of local authorities is as follows:

District Councils City Councils 1. Council 1. Lusaka City Council 2. Council 2. Ndola City Council 3. Council 3. Kitwe City Council 4. Council 4. Livingstone City Council 5. Council 6. Council Municipal Council 7. Council 1. Choma Municipal 8. Council 2. Kabwe Municipal Council 9. Council 3. Chipata Municipal Council 10. Council 4. Kasama Municipal Council 11. Council 5. Mbala Municipal Council 12. Council 6. Mazabuka Municipal Council 13. Council 7. Mongu Municipal Council 14. Council 8. Solwezi Municipal Council

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 8 15. Council 9. Chingola Municipal Council 16. Itezhi tezhi District Council 10. Mufulira Municipal Council 17. Council 11. Luanshya Municipal Council 18. District Council 12. Chililabombwe Municipal Council 19. Shang'ombo District Council 13. Mansa Municipal Council 20. Council 14. Kalulushi Municipal Council 21. Council 22. Council 23. Council 24. Council 25. District Council 26. Council 27. Council 28. Council 29. Mufumbwe District Council 30. Council 31. Council 32. Council 33. Council 34. Council 35. Council 36. Council 37. Council 38. Council 39. Council 40. Council 41. Council 42. Council 43. Council 44. Council

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 9 45. Council 46. Chilubi District Council 47. Kaputa District Council 48. Council 49. Council 50. Council 51. Mwense District Council 52. Council 53. Council 54. Chienge District Council

3. The Lusaka City Council………………………………………………………...10

The Lusaka City Council is the largest city council in Zambia today with the largest number of operating ward councils within.

Administration The Department of Administration plays a major role in the Council in the area of providing functional civic responsibilities to the community of Lusaka. There are several areas in which the department helps the Council to achieve its intended goals for the benefit of the residents of Lusaka. Some of the key areas in which the department effectively contributes to the achievement of the set objectives of the Council and to the fulfillment of its social and legal responsibilities are as follows:-

 Servicing Committees and Council meetings and relaying Council resolutions to departments for implementation  Enforcement of Council By-Laws (e.g. Anti-Street vending operation)  Registration of Marriages, Births, Deaths, Societies, Clubs and Traditional healers

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 10  Administration of Presidential, Parliamentary and Local Government election  Audit Unit  Tender  Dissemination of information about Lusaka City Council

Operational Units The following units of the department are key to the effective and efficient functioning of the department, and are responsible for ensuring that the social and legal responsibilities indicated above are achieved to the satisfaction of the residents of Lusaka.

 Committee Section  Police Unit  Administration  Audit Unit  Procurement and Supply Unit  Public Relations Unit  Nakatindi Hall and Marriage Office

Legal services The Directorate if Legal Services Department is responsible for providing Legal advice to the Council. The Department also executes various functions like processing Land applications, trading licenses applications, preparation of Certificates of Title and occupancy licenses issued under the statutory Housing and improvement areas Act etc.

The Directorate has six (6) sections and these are:  Litigation  Estates  Licensing  contracts  Deeds Registry

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 11  Administration The sections perform the following functions:

Litigation The litigation section is one of the core sections of the department. The department handles a lot of cases on behalf of the Council both as plaintiffs or defendants.

Estates The main sphere of operation under the section is the processing of land applications within the area of Councils jurisdiction.

The Local Government Act in second Schedule provides that it is a Councils function to prohibit and control the development and use of Land and Buildings and the erections in the interest of public of public Health, Public safety and the proper and order development of the area of the Council.

The land a Council has power to deal with can be divided into two:  State land – This is the land which falls directly under the control of the Commissioner of Lands and the Council acts as an Agent  Housing (Statutory and Improvements) Area. Statutory Housing areas are areas which are declared as such by the Minister of Local Government and Housing under the Housing (Statutory and Improvements Areas) Act.

Section 4 (1) of the Act provides that the Minister may by statutory order declare any land within the jurisdiction of a Council to be a statutory Housing Area.

Procedure in the allocation of land: 1. Land identification 2. Approval of plan by Council 3. Advertisement placed in newspaper for applications

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 12 4. All applications reported to Plans, Works and development Committee, and full Council 5. Offer letters and demand for Service charges served to all successful applicants

The department also prepares offer letters for the sale of Council houses and all necessary documentation leading to the issuance of Title Deeds. Other documents prepared here include; Assignments, Mortgage Deeds, Discharge of Mortgage Deeds, etc.

Licensing  The section processes applications for various trading licenses as provided for under the Trades Licensing Act  Processing Liquor licenses on behalf of the Liquor Licensing Board  Conducting inspections in conjunction with the Council Police Unit to ensure traders comply with the Trades Licensing Act

Contracts The section is responsible for the preparation of Contracts and Agreements concerning and relating to Council. These include:  Building Contracts  Contracts of sale  Lease agreements in respect of Council properties

Deeds Registry The Registry handles all land transactions as provided for under the Housing (Statutory and Improvement Areas) Act. Certificates of Title, Occupancy Licenses and Land Records are prepared here. The Registry also carries out registration of Assignments, Mortgages, Transfers and Caveats

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 13

CHAPTER II – The Community-Based Monitoring System in Zambia

4. The Community-Based Monitoring System in Zambia..……………..…………...14

The Zambia Research and Development Centre (ZRDC) developed, tested, and implemented a community-based monitoring system (CBMS) for poverty reduction and sustainable development. The CBMS Pilot was carried out in Mungule and Makishi areas in Zambia. This was done to ascertain the effectiveness of the data collection instruments and to test the feasibility of implementing the CBMS in Zambia. CBMS has showed that good public policy choices for empowering and uplifting the poor are best made when local authorities and communities work together and are guided by sound data and evidence-based analysis. This is key to ensuring effective public spending and greater public accountability. CBMS gives communities a voice in decision-making.

According to the understanding gathered on CBMS implementation during this pilot-test, and comparing it with other existing poverty initiatives and monitoring systems, CBMS provides a more multi-dimensional approach to poverty monitoring and alleviation strategies, than existing systems such as CSO social and economic censuses which only occur once in five years.

The use of the bottom-up approach in the implementation of CBMS renders it a competitive edge against other poverty-monitoring techniques in place today. Unlike the economic surveys carried out by the Central Statistical Office (CSO) which usually occurs in 5 years interval, CBMS has proved to be an effective tool in providing the actual poverty profiles in the community as it has shorter inter-censual and continuous periods.

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 14 The second phase of CBMS implementation was specifically geared towards the expansion and institutionalization of the CBMS methodology, indicators and instruments that were developed and pilot-tested in the earlier project phase. Apart from that, the second phase of CBMS implementation was meant to monitor and assess the Impact on Poverty of the Global Financial and Economic Crisis in Zambia. In particular, the impact at the household and community level was analyzed using data on the different dimensions of poverty obtained from the community-based monitoring system.

5. The CBMS Process..………………………………………………..…………...15

CBMS is an organized way of collecting ongoing or recurring information at the local level to be used by local governments, national government agencies and civil society for planning, budgeting, and implementing local development programs, as well as for monitoring and evaluating their performance. Fundamentally, it is a tool for improved local governance and democratic decision-making that promotes greater transparency and accountability in resource allocation.

What sets CBMS apart from other monitoring systems is that it is based on a partnership between local communities, and local authorities in an institutionalized system of regular data collection, validation, and analysis for local program development. Furthermore — and significantly — it builds the capacity of local authorities to use poverty statistics in formulating development plans and poverty-reduction programs. It also builds the capacity of the local communities through information.

CBMS is grounded in the principle that poverty can best be understood through the lives and experiences of the poor themselves. It tracks poverty and development at the household level at regular intervals through a set of basic indicators (Table 1.). The data is collected and analyzed by trained community members, in partnership with local government officials, for use by local development planners. The method can be applied quickly, inexpensively, and frequently. It is easy to sustain and is easily conducted by trained local fieldworkers. The principal aim is to reduce poverty, but there are other

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 15 important associated benefits, such as increased capacity of local government officials and community representatives in development planning, increased gender equity, environmental sensitization, and even early warning of crisis impacts.

CBMS has a number of distinctive features:  It is a census of households and not a sample survey.  It is rooted in local government and promotes community participation.  It uses local personnel and community volunteers as monitors.  It has a core set of simple, well-established indicators.  It establishes a databank at all geopolitical levels.

Moreover, the data can be disaggregated by region, gender, socio-economic group, age, ethnicity, and other variables. Because the monitoring exercises are conducted regularly and the results processed rapidly, the data is very useful for ongoing local-level planning. And because the results are accessible to anyone who wishes to see them, there is greater buy-in on the part of all stakeholders.

The CBMS core indicators capture multiple dimensions of poverty. Easy to collect and process, the system is flexible and accommodates community-specific indicators. For instance, the 2009/2010 CBMS implementation in Lusaka, Kabwata constituency, and Luanshya, Mikonfwa areas include indicators related to Monitoring and Mitigating the Impact on Poverty of the Global Financial and Economic Crisis. In Mungule, an indicator covers access to community services such as schools and clinics.

6. Benefits of CBMS……………………………….……………………………...16

CBMS increases transparency and accountability of local governments in resource allocation, thereby improving governance. In this way, it is a support mechanism for implementing decentralization policies being pursued around the world. CBMS data yields real benefits for communities, including new facilities such as schools, roads, and markets. It has also helped mobilize communities to address some of their own problems.

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 16

CBMS has also proved useful in assessing the impacts of specific public investment and donor programs, tracking progress toward achieving the MDGs at local levels, and building up databases on vulnerability for use in early warning systems. The use of CBMS is also now being mainstreamed in gender-responsive budgeting in some regions, helping governments and planners allocate resources more equitably.

Below is a list of CBMS core-indicators for monitoring poverty, and localizing MDGs.

Table 1. The MDGs and CBMS core indicators MDG CBMS core indicators 1. Eradicate extreme poverty Proportion of households with income less and hunger than the poverty threshold Proportion of households with income below the food threshold Proportion of 0–5-year-old children who are moderately and severely underweight Proportion of households who eat less than three full meals a day 2. Achieve universal primary Proportion of 6–12-year-old children who education are not in elementary school Proportion of 13–16-year-old children who are not in secondary school 3. Promote gender equality Ratio of girls to boys in primary and secondary education Ratio of literate women to men 4. Reduce child mortality Proportion of children under 5 years old who died 5. Improve maternal health Proportion of women who died due to pregnancy-related causes 6. Combat HIV/AIDS, malaria, Proportion of households without access and other infectious diseases to safe water Proportion of households without sanitary toilet facilities 7. Ensure environmental Proportion of households who are sustainability squatters Proportion of households with makeshift housing 8. Develop a global partnership Proportion of 15-year-olds and above who for development are not working but are actively seeking work

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 17 CHAPTER III – Study on Short Massaging Service (SMS) Application in Zambia

7. The Study on SMS……………………………….……………………………...18

Delivering public services through the Short Messaging Service (SMS) channel is a promising dimension of e-government implementation in Zambia. The use of Short Messaging Service (SMS) technology to enhance delivery of local government services to benefit citizens and communities is defined as SMS-based e-government. SMS-based e-government systems enable local governments to communicate with citizens and to provide a range of services in local communities through the SMS channel. Based on the service and the system complexity, SMS-based e-government services are classified in a Six Level model: Listen, Notification, Pull-based Information, Communication, Transaction, and Integration levels.

According to the research study undertaken by the Zambia Research and Development Centre on SMS-based e-government implementation in Zambia, providing public services through the SMS channel can significantly reduce time and cost; introduce a cheaper, easier and faster information-accessing channel; improve transparency, accountability, communication, and relationship between government and citizens; make the services and procedures easier for the citizens; improve the local political image; engage more people and increase citizens participation; and promote e-Democracy.

SMS-based e-government will allow more people to access and to use e-government services, as 87 percent of the people prefer to contact their local authorities using the SMS-based channel rather than Internet (11 percent). People prefer a technology channel that is more familiar, simple and easy to use, supports their native language, uses a readily available device and infrastructure. Therefore, in order to engage more people, SMS-based e-government should become a front-line system for delivering e-government services in Zambia.

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 18 The advantages of SMS are: it is simple, easy to use, extensive in coverage, reliable in delivering the message, low in cost, and can reach citizens anywhere anytime including areas with no Internet access. These are among the reasons why the local authorities should provide this alternative channel. Recently the Disaster Management and Mitigation Unit (DMMU) launched an SMS-based alarming system to deliver information about emergency situations (such as warnings, floods, extreme weather) to affected citizens. And currently, SMS-based services are also provided in transactions such as purchasing a bus ticket, paying bills, and school registration.

8. Perceptions on SMS.…………………..………….……………………………...19

To design and to deliver SMS-based e-government services, local authorities should consider the expectations and the perceptions of citizens toward using the services. The ZRDC research study indicates that whether or not citizens adopt SMS-based e- government services is influenced by the fifteen beliefs about using SMS-based e- government services: perceived ease of use; perceived efficiency in time and distance; perceived value for money; perceived convenience; perceived availability of device and infrastructure; perceived usefulness; perceived responsiveness; perceived relevance, quality and reliability of the information; trust in the SMS technology; perceived risk to user privacy; perceived reliability of the mobile network and the SMS-based system; trust in the government and perceived quality of public services; perceived risk to money; perceived compatibility; and self-efficacy in using SMS.

1. Perceived ease of use: Simplicity of the service The findings indicate that the main reason why citizens will use SMS-based e- government services is because they believe that the services are easy to use. The degree to which an individual perceives that an SMS-based e-government service is free of difficulty to use is defined as perceived ease of use. Respondents said that they used the Xapit mobile payment services or SMS-based farmer pricing services because the services are simple, practical, easy to access, easy to use, and the service numbers are easy to remember. The more citizens perceive that an SMS-based service is easy to use

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 19 the more likely they are to use the service. The simplicity of SMS-based e-government services is an advantage, and covers the procedure to register for and to unsubscribe from the services, the information on how to use the services, the steps taken to get the information, and the reply message.

A number of options for unsubscribing from receiving Notification services should also be available for users. Providing an easy to use/unsubscribe method will encourage users to join since they know they can easily discontinue their subscription to the service. The service should also provide information on how to use the service. This information can be provided as a brochure, a web page, or a ‘help’ feature on the SMS system (users may ask assistance on how to use the service by typing and sending ‘help’ word). The way in which to use the service should be simple.

For the Pull-based service, for example, the text format for the request-SMS should be simple, not case sensitive, and easy to remember. The information requested by clients should be sent in one SMS (the system should not send the client other options or instructions). Moreover, the information sent to the citizens should be concise, clear and easy to understand. If it is needed, the system may use capital letters or punctuation marks to emphasize important words.

2. Perceived value for money: citizens are sensitive in SMS cost SMS is perceived to be cheap; this is one of the reasons why people use SMS-based services. People are sensitive in terms of the SMS cost. Even people who really need to use the services will weigh whether or not the benefits justify the SMS cost. The Diffusion of Innovation theory explains this service attribute as the relative advantage factor; it suggests that individuals are more likely to adopt an innovation when they perceive that it is better than the idea or process it supersedes.

3. How much time and effort could be saved by using the service? The third belief influencing citizens to use an SMS-based e-government service is perceived efficiency in time and distance. It is the degree to which an individual

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 20 perceives that the service will reduce the time spent and effort to go to the public service office or to use another channel. people prefer to use SMS-based services because they are quick, take less time and provide faster services than the traditional services and the Internet channel. Accordingly, in order to be accepted local government should ensure that their SMS-based services require less time and effort compared to other channels.

4. Perceived responsiveness: People do not want to talk with machine One of the advantages of SMS-based e-government channel is that people feel that they communicate with the local government person-to-person. However, as a consequence of the person-to-person perception, users of SMS-based services expect a quick reply. The degree to which an individual believes that his or her SMS will be responded by government quickly, appropriately and satisfactorily is defined as the perceived responsiveness. The higher the perceived responsiveness toward an SMS-based service, the more likely the person will use the service.

Accordingly, to encourage people to use Listen services and to build the perceived responsiveness of the services, each citizen’s message should be replied to quickly and each sender should be informed that their messages have been received and read by the right officials. Senders should be informed of the response to and the progress of the message. Additionally, in order to make messages in the Notification service seem personal for each receiver the service could add the client’s name to each message. This could improve the relationship between local government and citizens.

5. Perceived usefulness: Does the service really address citizens’ needs? The fifth belief is perceived usefulness, which is defined as the degree to which a citizen believes that using the SMS-based e-government service will help them to get what they want and make their life easier.

6. Perceived convenience: Is the service easy to access anywhere anytime? Another belief which influences citizens to use SMS-based e-government services is perceived convenience. It is associated with the degree to which a citizen perceives that

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 21 the services can be accessed anytime anywhere. Since SMS is a basic feature of all mobile phones and mobile networks cover a larger area than the Internet citizens perceive that they can receive, send or reply the messages anywhere anytime they want to.

7. Trust in SMS technology It is revealed in the study that SMS-based e-government services are trustworthy since the messages are recorded by mobile phones and the SMS-based system, so people can recall the data and confirm a transaction anytime, they cannot miss a message sent to them and they can check whether their messages have been delivered to the system or not. Citizens perceive that the SMS channel is concise and accurate. On the other hand, the study revealed that other citizens perceive that SMS is an informal channel so local government would not pay serious attention to their messages, the number of characters in an SMS message is too limited to send a message, and they do not trust SMS security.

8. Perceived relevance, quality and reliability of the information Relevance, quality, and reliability of the information provided by the SMS-based services are another issue for citizens. People tend to reject Notification and Pull SMS services when they find that the information is not updated, is not relevant to their needs, unclear, not precise or insufficient in detail, not accurate, and of no value.

9. Perceived risk to user privacy In addition to the perceived trust in the SMS technology, when using SMS-based e- government services citizens also consider the risk to their privacy due to the SMS system or the local government agency. Respondents who used SMS-based services for sending complaints and reports to local authorities said that they used the services because they do not have to meet person-to-person and disclose their names or other personal information. People who did not use the services were worried that the local authority or the SMS service provider will sell their mobile numbers or data to other organizations and businesses or use the information for other purposes.

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 22 10. Perceived reliability of the mobile network and the SMS-based system The study also found that citizens put the performance of their mobile networks and performance of the SMS-based system as consideration factors when deciding to use or to reject SMS-based e-government services.

11. Trust in the local authority and perceived quality of the public services The degree to which citizens trust the local government and perceive that the public services have been delivered well is another belief that influences citizens to use or to reject available SMS-based e-government services.

12. Perceived risk to money This factor refers to individuals’ belief that using the service might cause financial problems. Survey respondents stopped using SMS-based e-government services when they had the experience of receiving an unwanted SMS message for which they were charged. Also, they worried about SMS fraud and risks associated with SMS-based transactions.

13. Availability of device and infrastructure Respondents pointed out that they used the SMS-based e-government services because they have the device (mobile phone) and the mobile network is available for them. The degree to which an individual believes that the device and infrastructure for using SMS- based e-government services is available for them is another determinant of the services’ usage.

14. Perceived compatibility This factor refers to the degree to which a citizen perceives that the service is consistent with the existing public service channels and the popular communication media.

15. Self-efficacy in using SMS Whether or not a citizen uses SMS-based e-government services is also influenced by his or her confidence in using SMS. The study revealed that the degree to which an

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 23 individual perceives his or her ability to use SMS is one of the factors which influence a citizen to use or not use an SMS-based e-government service.

9. Recommendations….…………………………….……………………………...24

Overall, this study revealed 15 beliefs (or perceptions) that influence citizens to use or to reject SMS-based e-government services. In order to increase the acceptance of SMS- based e-government services, local governments should take into account these factors when designing and delivering the services. Among the factors perceived ease of use, perceived efficiency in time and distance, value for money, perceived convenience, and perceived availability of device and infrastructure are the most important in influencing the use of SMS-based e-government services. Therefore, local governments should focus on these advantage factors in promoting SMS-based e-government services.

Common factors which discourage citizens adoption of available SMS-based e- government services include: perceived usefulness, perceived responsiveness, perceived relevance, quality and reliability of the information, trust in the SMS technology, perceived risk to user privacy; perceived reliability of the mobile network and the SMS- based system, trust in the local government and perceived quality of public services, perceived risk to money, perceived compatibility, and self-efficacy on using SMS .

Hence, in order to minimize resistance to the services, local government should address all of these factors. For example, to increase perceived usefulness of an SMS-based e- government service, local government should make sure that the service meets citizens’ needs by conducting a preliminary survey before designing the service; to increase perceived responsiveness of a Listen SMS service, local government could setup an automatic reply system and assign a group of staff to manage incoming SMS messages; to increase trust in the SMS technology, local government could use encryption with each message; and to minimize perceived risk to user privacy and perceived risk to money, the local government could publish a privacy statement, assure the confidence and security of

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 24 the senders, and setup an easy and reliable system for verifying each transaction including a refund procedure.

In order to increase usage of SMS-based e-government services, local governments should make people aware of and provide information about the services. Local governments should run advertising campaigns on using the services in all mass media channels. The advertising should involve family and friends of the target users and be delivered by experts, public figures and teachers. In designing and delivering the services, local government should address the 15 perceptions about SMS-based e- government services. This should give citizens positive attitudes towards using the services which will lead to intention to use and actual use of SMS-based e-government services.

CHAPTER IV – Electronic Community-Based Monitoring System

10. The e-CBMS …………………………………………………..………………...25

Electronic Community-Based Monitoring System (e-CBMS) is the use of SMS-Based e- Government System in the implementation of CBMS, in particular, the use of an SMS- based data collection system to enable continuous, dynamic and up-to-date data collection, and communication with community members. Unlike the traditional way of collecting CBMS Data through paper-based questionnaires and physical onsite interviews, e-CBMS involve the use of Short Massaging System (SMS) in collecting data from households and continuous updating and validation of information. e-CBMS gives an opportunity to delegate the data entry to the local people, through SMS channel.

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 25 10. The e-CBMS Methodology…………………………………..………………...26

Electronic community-based monitoring system is implemented in the following order of steps.

e-CBMS — Methodology Step 1 – Advocacy/organization and system development Step 2 – Capacity building of local authorities and communities

Step 3 – Registration of community members/households Step 4 – SMS-based data collection and field editing Step 5 – Data encoding and map digitization Step 6 – Processing and mapping Step 7 – Data validation and community consultation

Step 8 – Knowledge (database) management Step 9 – Dissemination, implementation, and monitoring

Advocacy/organization and system development Data requirements and existing monitoring systems must be evaluated to identify gaps and develop a work plan that details the commitment of all parties and the involvement of key human resources at all levels, as well as the financial and physical resources for training, data collection, processing, validation, database management, and dissemination. The commitment of the local government to use the data must be ensured. In addition, an SMS-based Management Information System (MIS) must be developed. This system will automatically receive, store and manage SMS massages in the database.

Capacity building of Local authorities and communities Massive capacity building training workshops are carried out to enable local authorities and local communities understand the methodology of CBMS and its benefits to that particular community. This enables local authorities understand their responsibilities in participatory actions towards accountability and effective resource allocation. In addition,

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 26 capacity building training workshop on SMS-based e-Government systems is carried out to enable local authorities understand the technology and how to manage of the system.

Registration of community members/households Using printed registration cards, community members/households are registered and entered into the SMS-based MIS in readiness for an SMS-based data collection exercise. The registration card also known as rider questionnaire requests information such as Name of the Household Head, House number, Section/Ward, District, and Telephone number (mobile number) as shown below.

Collecting and editing data SMS-based questionnaires (SMS questionnaire massages) are developed for household and community surveys, and the community is informed. The data is collected through SMS-based packaged questions that respondent respond to in a series of massages and feedbacks.

Encoding data and map digitalization As a way of collecting geographical data enumerators are trained to collect, encode and computerize data. Computerized encoding facilitates data analysis and mapping.

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 27 Processing data Processing is a critical step since the results form the basis for local planning and program implementation. Wherever possible, computerized processing is initiated, even at the village level. Village-level aggregates are then submitted to higher geopolitical levels for consolidation.

Validation and consultation The results are presented in a community forum where the extent of poverty in its different dimensions is assessed and discussed, the causes of poverty are diagnosed and explained, and priority needs and appropriate interventions are identified. Presenting the processed data to the community is vital to CBMS implementation, both to ensure data accuracy and obtain explanations for the findings.

Establishing a database and Formulating plans Databanks are established at each geopolitical level for planning and monitoring purposes. This ensures access to census results by various stakeholders. The CBMS data and its analysis serve as inputs in preparing annual development plans and socio- economic profiles at all levels of government. They also provide benchmark information for enriching the resource profiles of project sites of NGOs and other donors. Data from the CBMS also helps to identify eligible beneficiaries for poverty-reduction programs.

Disseminating findings CBMS results are made available to planning bodies, program implementers, and other interested groups through data boards, computerized databanks, publications, workshops, and forums, among other means, including on the Internet.

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 28 CHAPTER V – Miscellaneous

16. Recommendations..……………………………………………………………..29

1. Planning and Managing e-CBMS Project

Effective management is vital for the success of e-CBMS. Being able to deliver a project on time and within budget, coordinate effectively among local authorities and community members all depends on capable management.

Consider establishing e-CBMS teams with the local authority. An e-CBMS initiative will typically involve commitments of resources, planning and personnel. It is very difficult to manage without defined teams to supervise the e-CBMS process from start to finish. For example, e-CBMS activities within the local authority should be institutionalized to ensure long-term stability and support of the new paradigm. Such teams must be provided enough budget, human resource and administrative support to carry out their duties.

Ensure the project management team has sufficient authority. Without authority from top government leaders, the officials responsible for e-CBMS implementation cannot ensure plans are carried out. Formal legal authority to oversee e-CBMS implementation is also needed. Consider creating a central e-CBMS team within the local authority.

The management team needs representation from each department for e-CBMS implementation. This will keep open lines of communication and reporting, enable information sharing, knowledge sharing and facilitate the establishment of common technology infrastructure, and common policies, standards, and security systems across departmental boundaries.

Develop a work plan to implement the priority e-CBMS project. A detailed work plan will help steer the officials responsible for implementing e-CBMS. The work plan should focus on at least six key elements:

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 29

• SMS-based Questionnaire Content Development : including development of SMS- based applications, open standards, local language interfaces, user guides and training materials. • Competency Building : human resources and training programs must be implemented at all levels. • Connectivity : Mobile networks and Internet connections in the local authority. • Cyber laws: to provide a legal framework that supports the objectives of e-CBMS policies and projects. • Community-Based Interfaces: a proper mix of delivery channels is needed to ensure that e-CBMS is accessible by the communities. • Capital: the e-CBMS project plan must identify revenue streams like subscriptions or budgets that will help achieve financial equilibrium

2. Effective use of e-CBMS

The use of e-CBMS to improve community monitoring efficiency and transparency dependents on how well we tackle important areas such as:

a. Improvement of Information Management The introduction of e-CBMS and development of an SMS-based MIS is seen as an objective on its own. However, the success of these endeavors depends largely on the capacity of local authority to manage the information under their control. This requires standardization of concepts and procedures, as well as the creation of secure Storage systems, Back-ups and Redundancy. Digital data may prove highly volatile and entrusting archives to hard disks might be the securest way to their loss if preventive measures are not taken.

b. Improvement of Services to local community members e-CBMS is community centered. Obviously, sending SMS massages to community members is not enough to shift the focus of the local authority to the community. To

THE ROAD-MAP TO IMPLEMENTATION OF E-GOVERNMENT IN ZAMBIA “ELECTRONIC COMMUNITY-BASED MONITORING SYSTEM (e-CBMS)” 30 achieve this, one has to change the existing organizational culture. Improvement of attitude requires a cultural change that can only happen if the leadership fully understands and supports the need for attitudinal and behavior change.

c. Improvement of Education Level The technology used in the processing, storage and publication of data and in the transactions with community members is a secondary issue; it is the capacity to interact between community members and the local authority that will guarantee the quality of services.

Working in a period where the world has shrunken to a village and ICT are increasingly permeating the different aspects of life makes it necessary that community members acquire the knowledge and skills to fully benefit from these technologies. For that reason, it is necessary to invest in raising the ICT skills of community members. The use of e-CBMS is heavily dependent on literacy and related skills of reading information.

d. Adequate Technological Solutions Currently, different options exist as to the various aspects related to ICT and it is likely that in the near future new options will emerge. It is up to the local authority to find the different combinations that respond adequately to the geographical, cultural and educational diversity existing in the area. The efficiency of e-CBMS usage depends on increased teledensity and mobile penetration.

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ABOUT THE AUTHORS

Mr. Silumbe Richard: He is the Project Leader, Community-Based Monitoring System, and Senior Researcher at the Zambia Research and Development Centre (ZRDC). He is also working as lecturer at the University of Zambia, Department of Computer Studies. He has participated in collaborative research undertakings with Motorola Research Centre in Moscow, Mobile Multimedia Research Centre and Samsung-ICU research Centre in Seoul.

Mr. Chipakata Chulu: He is the Project Coordinator, Community-Based Monitoring System, and Manager of research activities at the Zambia Research and Development Centre. He is also working as consultant at the Election Commission of Zambia.

Ms. Muzunda Claricy: She is the database administrator for the CBMS project in Zambia, and working as assistant researcher at the Zambia Research and Development Centre.

CC: Dr. Celia M. Reyes, Co-Director, PEP Network. DLSU Angelo King Institute for Economic and Business Studies. 10 th floor, Angelo King International Center, Estrada Corner Arellano Avenue. Malate, Manila, Philippines 1004. Tel: (632)5262067. Email: reyesc@dls -csb.edu.ph

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