« OECD e-Government Studies Mexico In four years, Mexico prepared, launched, and implemented an e-government strategy that positioned the country among the top performers of online services in the world. The Mexican government is consciously looking at how to integrate e-government in a broader reform agenda that defines e-government as a tool to OECD e-Government Studies improve the quality, transparency, and efficiency of government and public services. Like other OECD countries caught in the initial enthusiasm of e-government, Mexico began by focusing on the Mexico widespread application of ICT, the dissemination of information and the production of as many online services as possible. This contributed to an international recognition of Mexico’s performance and e-government development. But it also led the Government to raise new questions as unexpected and more complex challenges emerged, and other OECD countries also began to change their approach to e-government. Mexico O E completed the initial phase of setting up and delivering e-government services successfully, but the continuing C public demands to improve government have made the country realise the importance of refocusing the D strategy to find a way of making e-government improve the overall quality of government. This report analyses e and assesses these challenges and provides a set of proposals for action to deal with the most actual and -G pressing questions of e-government in Mexico. o v e This review is the first study that undertakes an in-depth analysis of e-government in Mexico from a whole- rn of-government perspective. It is part of a series of national e-government reviews conducted by the OECD m E-Government Project. Other reviews in this cycle cover Finland, Norway and Denmark, with additional reviews e n under way. The report is based on the OECD synthesis reports The e-Government Imperative (2003) and t E-Government for Better Government (2005). The common framework provided by the OECD assists countries S t in evaluating their e-government policies, ensures international compatibility of findings and systematically u d builds up a body of empirical evidence regarding good e-government practices. ie s The full text of this book is available on line via these links: http://www.sourceoecd.org/governance/9264010718 http://www.sourceoecd.org/scienceIT/9264010718 Those with access to all OECD books on line should use this link: http://www.sourceoecd.org/9264010718 SourceOECD is the OECD's online library of books, periodicals and statistical databases. For more information about this award-winning service and free trials ask your librarian, or write to us M at [email protected]. e x ic o www.oecd.org -:HSTCQE=UVU\VU: ISBN 92-64-01071-8 42 2005 16 1 P OECDPUBLISHING OECDPUBLISHING OECD E-Government Studies Mexico ORGANISATION FOR ECONOMIC CO-OPERATION AND DEVELOPMENT ORGANISATION FOR ECONOMIC CO-OPERATION AND DEVELOPMENT The OECD is a unique forum where the governments of 30 democracies work together to address the economic, social and environmental challenges of globalisation. The OECD is also at the forefront of efforts to understand and to help governments respond to new developments and concerns, such as corporate governance, the information economy and the challenges of an ageing population. The Organisation provides a setting where governments can compare policy experiences, seek answers to common problems, identify good practice and work to co-ordinate domestic and international policies. The OECD member countries are: Australia, Austria, Belgium, Canada, the Czech Republic, Denmark, Finland, France, Germany, Greece, Hungary, Iceland, Ireland, Italy, Japan, Korea, Luxembourg, Mexico, the Netherlands, New Zealand, Norway, Poland, Portugal, the Slovak Republic, Spain, Sweden, Switzerland, Turkey, the United Kingdom and the United States. The Commission of the European Communities takes part in the work of the OECD. OECD Publishing disseminates widely the results of the Organisation’s statistics gathering and research on economic, social and environmental issues, as well as the conventions, guidelines and standards agreed by its members. This work is published on the responsibility of the Secretary-General of the OECD. The opinions expressed and arguments employed herein do not necessarily reflect the official views of the Organisation or of the governments of its member countries. Publié en français sous le titre: Études de l’OCDE sur l’administration électronique Mexique © OECD 2005 No reproduction, copy, transmission or translation of this publication may be made without written permission. Applications should be sent to OECD Publishing: [email protected] or by fax (33 1) 45 24 13 91. Permission to photocopy a portion of this work should be addressed to the Centre français d'exploitation du droit de copie, 20, rue des Grands-Augustins, 75006 Paris, France ([email protected]). FOREWORD Foreword E -government is more about government than about “e”, but how can ICTs be better integrated in order to help governments do their job better? This report is one in a series of country reviews undertaken by the OECD to analyse the successes and challenges of e-government in a national context, and to make proposals for action to countries in order to improve their e-government efforts. By placing e-government in the context of national public management reform and good governance initiatives, these country reviews help countries better identify how e-government can better support overall government objectives. With backing from the Mexican Government (Ministry of Public Administration), the OECD E-Government Project has conducted this country study of e-government to assess how Mexico’s e-government strategies and solutions contribute, and could contribute in the future, to good governance objectives in the information age. The report was completed in January 2005. It draws on a survey of Mexican ministries and agencies administered in February 2004 and on a set of interviews with Mexican officials during two exploratory missions on November 2003 and March2004. The report was drafted with the participation of peer reviewers from Canada, Finland and Korea. These e-government practitioners provided invaluable help by participating in interviews and commenting on the drafts of the report. This report is based on the OECD synthesis reports, The E-Government Imperative (2003) and E-Government for Better Government (2005). These reports provide the OECD with an analytical framework for in-depth analysis and comparisons with other countries. The report was carried out under the auspices of the OECD Network of Senior E-Government Officials as part of the work programme of the Public Governance and Territorial Development Directorate (GOV). The report was written by Elizabeth Muller and Mariano Gutiérrez under the direction of Edwin Lau and Christian Vergez. OECD E-GOVERNMENT STUDIES – MEXICO – ISBN 92-64-01071-8 – © OECD 2005 3 TABLE OF CONTENTS Table of Contents Assessment and Proposals for Action. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11 Chapter 1. E-Government Structure and Context. . . . . . . . . . . . . . . . . . . . . 21 1.1. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22 1.2. E-Government context . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22 1.3. E-government structure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28 Chapter 2. The Case for E-Government . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35 2.1. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36 2.2. E-government drivers in Mexico . . . . . . . . . . . . . . . . . . . . . . . . . . . 36 2.3. The Good Government Agenda – a top down approach. . . . . . . . 37 2.4. Individual drive from within organisations. . . . . . . . . . . . . . . . . . 39 Chapter 3. External Barriers to E-Government. . . . . . . . . . . . . . . . . . . . . . . 47 3.1. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48 3.2. The biggest challenge to e-government implementation inMexico. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48 3.3. Budgetary barriers. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50 3.4. The digital divide. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 68 Chapter 4. Planning and Leadership . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 77 4.1. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 78 4.2. Political leadership. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 78 4.3. Institutional leadership. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 82 4.4. E-government planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 88 Chapter 5. Organisational Change . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 91 5.1. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 92 5.2. The development of e-government in Mexican government organisations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 92 5.3. Impact of e-government on organisational structures and processes. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 95 5.4. Impact of e-government on government employees . . . . . . . . . . 100 5.5. Implementing organisational change. . . . . . . . . . . . . . . . . . . . . . . 109 OECD E-GOVERNMENT STUDIES – MEXICO – ISBN 92-64-01071-8 – © OECD 2005 5 TABLE OF CONTENTS Chapter 6. E-Government Collaboration . . . . . . . . . . . . . . . . . . . . . . . . . . . . 113 6.1. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 114 6.2. Collaboration and e-government. . . . . . . . . . . . . . . . . . . . . . . . . . . 114 6.3. Improving inter-agency collaboration through co-ordination. . . 115 6.4. The challenge of collaboration in Mexico: going beyond co-ordination . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 121 6.5. Collaboration with other actors. . . . . . . . . . . . . . . . . . . . . . . . . . . . 130 6.6. Obstacles to collaboration and possible solutions . . . . . . . . . . . . 134 Chapter 7. User-focussed E-Government. . . . . . . . . . . . . . . . . . . . . . . . . . . . 141 7.1. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 142 7.2. The goal of customer-focussed government . . . . . . . . . . . . . . . . . 142 7.3. Impact of e-government on openness, quality, and seamless service delivery. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 144 7.4. Demand for e-government. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 150 7.5. The role of the leader . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 154 Chapter 8. Monitoring and Evaluation. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 157 8.1. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 158 8.2. The frequency of e-government monitoring and evaluation . . . 158 8.3. What is measured? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 159 8.4. How is it measured? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 160 8.5. Difficulty of evaluations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 164 8.6. Who sees the results? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 165 Next Steps. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 168 Annexes A. Case Studies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 171 B. Statistical Annex . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 205 C. Methodology. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 218 D. Glossary. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 224 Bibliography . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 227 Additional information on the OECD E-government Web site . . . . . . . . . 240 List of boxes 1.1. The Good Government Agenda . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25 1.2. E-Mexico and Information Society Policy. . . . . . . . . . . . . . . . . . . . . . . 32 2.1. The case for e-government in Mexico according to the Good Government Agenda . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38 2.2. International drivers for e-government in Mexico . . . . . . . . . . . . . . . 45 3.1. Multi-year budgeting in OECD countries . . . . . . . . . . . . . . . . . . . . . . . 54 3.2. E-government: Expenditure or investment? . . . . . . . . . . . . . . . . . . . . 56 6 OECD E-GOVERNMENT STUDIES – MEXICO – ISBN 92-64-01071-8 – © OECD 2005 TABLE OF CONTENTS 3.3. E-government regulation in Mexico: key players . . . . . . . . . . . . . . . . 59 3.4. Complex and inflexible regulation as a barrier to e-government. . . 61 3.5. Public procurement regulations: unintended consequences of increasing transparency. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 61 3.6. Digital signatures and citizen identity uniqueness . . . . . . . . . . . . . . 64 3.7. Sources of central guidance on privacy, consumer protection and security in Mexico . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 67 4.1. Negotiation of targets with the President’s Office. . . . . . . . . . . . . . . . 79 4.2. The Innova Awards . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 80 4.3. The 5th Global Forum on Reinventing Government. . . . . . . . . . . . . . 80 4.4. Governance and Regulatory Framework Strategy for the Federal Public Administration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 84 5.1. Organisational change in the Ministry of Energy . . . . . . . . . . . . . . . . 94 5.2. Technical challenges to e-government implementation. . . . . . . . . . 95 5.3. Using ICT to reduce staff costs. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 99 5.4. The Professional Civil Service Federal Law . . . . . . . . . . . . . . . . . . . . . 102 5.5. @ Campus: Online training for civil servants. . . . . . . . . . . . . . . . . . . . 104 5.6. Examples of unions impacting e-government implementation. . . . 111 6.1. The Mexican Citizen Portal and the Stockholm Challenge . . . . . . . . 119 6.2. Cross-agency funding for e-government initiatives: providing social security services to low income and isolated populations and generating savings to be reinvested . . . . . . . . . . . . . . . . . . . . . . . 122 7.1. E-government and High-Impact Services (HIS). . . . . . . . . . . . . . . . . . 146 7.2. Customer focus: services to businesses. . . . . . . . . . . . . . . . . . . . . . . . 151 8.1. Traffic light system . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 162 List of tables 5.1. Summary of skills needed for e-government . . . . . . . . . . . . . . . . . . . 101 Annexes A.1. E-government in the Social Security Institute and the Ministry of Health . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 173 C.1. Responses to OECD survey. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 221 List of figures 1.1. OECD: Total government expenditure as a percentage of GDP (2002) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22 1.2. E-Government in Mexico: timeline . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27 1.3. E-Government in Mexico: Key players . . . . . . . . . . . . . . . . . . . . . . . . . 29 2.1. The greatest drivers for e-government in Mexican organisations . . 36 2.2. Government organisations’ internal objectives for implementing e-government. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40 OECD E-GOVERNMENT STUDIES – MEXICO – ISBN 92-64-01071-8 – © OECD 2005 7 TABLE OF CONTENTS 3.1. External barriers as the biggest challenge for implementing e-government in Mexico. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48 3.2. External barriers to e-government . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49 3.3. Budgetary barriers to e-government. . . . . . . . . . . . . . . . . . . . . . . . . . . 51 3.4. Regulatory barriers to e-government . . . . . . . . . . . . . . . . . . . . . . . . . . 58 3.5. Guidance on privacy, consumer protection and security in Mexico. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 68 3.6. Online protection level compared to offline processes . . . . . . . . . . . 68 3.7. OECD: Internet and PCs per 1000persons (2001) . . . . . . . . . . . . . . . . 70 3.8. Latin America: Internet and PCs per 1000persons (2001). . . . . . . . . 71 3.9. Mexico: access to Internet by business size. . . . . . . . . . . . . . . . . . . . . 72 3.10. UN Web measure index: Top 25countries . . . . . . . . . . . . . . . . . . . . . . 73 3.11. Number of digital community centres in Mexico . . . . . . . . . . . . . . . 75 4.1. Incentives for innovation in the Mexican Government . . . . . . . . . . . 82 4.2. Unclear definition of institutional responsibilities on e-government and duplication of actors at e-government policy-setting level. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 83 4.3. The main role of the e-government leader within an organisation. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 88 4.4. Who designs e-government plans in Mexican organisations? . . . . . 89 4.5. Percentage of organisations whose e-government plan . . . . . . . . . . 90 4.6. Percentage of organisations communicating their e-government strategies. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 90 5.1. Year of introduction of electronic network-enabled technology in Mexican organisations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 92 5.2. E-government and computerisation, organisational change, and transformation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 93 5.3. The distribution of benefits for users and government for e-government projects at different levels of sophistication . . . . 94 5.4. Technological barriers to the implementation of e-government in Mexico. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 96 5.5. Positive impact of e-government on organisational structures . . . . 96 5.6. The challenge of e-government skills in Mexico. . . . . . . . . . . . . . . . . 101 5.7. Percentage of IT skills currently outsourced in Mexican organisations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 107 5.8. Obstacles preventing deeper collaboration within Mexican organisations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 109 5.9. Obstacles preventing deeper collaboration with other organisations in Mexico . . . . . . . . . . . . . . . . . . . . . . . . . . . . 109 6.1. Per cent of government organisations sharing information on:. . . . 116 6.2. Per cent of organisations with links to the following Web sites. . . . 118 6.3. Per cent of organisations linked from the following government Web sites. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 118 6.4. Sharing vs. planning seamless service delivery . . . . . . . . . . . . . . . . . 120 8 OECD E-GOVERNMENT STUDIES – MEXICO – ISBN 92-64-01071-8 – © OECD 2005 TABLE OF CONTENTS 6.5. Collaboration as a challenge for implementing e-government. . . . . 121 6.6. The goal of increasing external co-ordination of processes . . . . . . . 123 6.7. Per cent of government organisations currently sharing a strategy for seamless service delivery on:. . . . . . . . . . . . . . . . . . . . . 128 6.8. Per cent of government organisations planning to share astrategy for seamless service delivery on:. . . . . . . . . . . . . . . . . . . . . 129 6.9. Obstacles preventing collaboration with other organisations and within organisations. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 134 7.1. E-government objectives in Mexico: Responsiveness and engagement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 143 7.2. Elements included in strategies for citizen-focused e-government . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 143 7.3. Impact of e-government on transparency and accountability in the administration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 144 7.4. Working with other government agencies. . . . . . . . . . . . . . . . . . . . . . 149 7.5. E-government demand in Mexico: where is it coming from? . . . . . . 150 7.6. Sources for understanding e-government demand . . . . . . . . . . . . . . 152 7.7. Communicating the e-government implementation plan to different actors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 153 7.8. Customer demand constraints in Mexico . . . . . . . . . . . . . . . . . . . . . . 153 8.1. E-government evaluation criteria in the Mexican government . . . . 159 8.2. Cost/Benefit analyses as e-government evaluation criteria in Mexico. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 163 8.3. E-government evaluation results are shared with the following organisations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 166 8.4. Sharing of results and best practice with other countries and international organisations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 166 Annexes A.1. Successful e-government requires both ICT use and reform . . . . . . 176 A.2. The greatest drive for e-government . . . . . . . . . . . . . . . . . . . . . . . . . . 187 A.3. External barriers. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 188 A.4. Lack of political leadership. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 188 A.5. Incentives for innovation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 189 A.6. The main role of e-government leaders. . . . . . . . . . . . . . . . . . . . . . . . 190 A.7. E-government plans in Mexican government organisations. . . . . . . 190 A.8. Organisational change: the E-Government Network vs. agencies outside the network. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 191 A.9. Obstacles preventing collaboration with other agencies. . . . . . . . . . 192 A.10. Collaboration: organisations working together on e-government projects . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 193 A.11. Collaboration for seamless service delivery. . . . . . . . . . . . . . . . . . . . . 194 A.12. Customer Focus in agencies’ e-government strategies . . . . . . . . . . . 195 A.13. E-Government Demand. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 195 OECD E-GOVERNMENT STUDIES – MEXICO – ISBN 92-64-01071-8 – © OECD 2005 9