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An Islet in an Island: The Use of Geo-Information in the Province and Its Effect on the

Geo-Information System Development in Its Municipalities

(Case Study: Guimaras, Philippines)

Elena Vilchés Quezon March 2002

An Islet in an Island: The Use of Geo-Information in the Province and Its Effect on the Geo-

Information System Development in It’s Municipalities (Case Study: Guimaras, Philippines)

by

Elena Vilchés Quezon

Thesis submitted to the International Institute for Geo-Information Sciences and Earth Observation in partial fulfilment of the requirements for the degree of Master of Science in Geo-Information Management

for Urban Planning and Management Degree Assessment Board Chairperson Professor Ian Masser External Examiner Professor Henk Ottens Supervisor Dr. Ir. Erik de Man Supervisor Ir. Kees Bronsveld .

INTERNATIONAL INSTITUTE FOR GEO-INFORMATION SCIENCES

AND EARTH OBSERVATION ENSCHEDE, THE NETHERLANDS

Disclaimer

This document describes work undertaken as part of a programme of study at the International Institute for Geo-Information Science and Earth Observation. All views and opinions expressed therein remain the sole responsibility of the author, and do not necessarily represent those of the institute.

AN ISLET IN AN ISLAND: THE USE OF GEO-INFORMATION IN THE PROVINCE AND ITS EFFECT ON THE GEO-INFORMATION SYSTEM DEVELOPMENT IN IT’S MUNICIPALITIES

INTERNATIONAL INSTITUTE FOR GEO-INFORMATION SCIENCE AND EARTH OBSERVATION I

ACKNOWLEDGEMENT

With all thanksgiving to the Almighty Father, I would like to give gratitude for the Angels He sent in guiding the Planter accomplish one of HIS tasks for her:

To Prof. Ian Masser whose work related to GIS in Local Government had serve as the rootstock where the Planter took the vine to plant, that it may bear new fruits;

To Dr. Ir. Erik de Man and Ir. Kees Bronsveld for guiding the Planter how to nurture, train and prune to ensure quality harvest;

From the Pearl of the Orient to the Lowland in the North West of Europe, whose soils allow the Planter to toil but at the same time, grow and flourish;

For the Specific Plot, ITC, that had given favourable environment to make the vine bear more fruit;

For the Local Chief Executives, of the Province and the Municipalities and the technical personnel of the pearl called Guimaras, who provided much needed, water, fertilizer and energy to make the seedling grow;

For the co-planter, Ma. Fe, Rosal, Jessica, Mike and Daisy who provided light when there are clouds in the field;

For the planters in adjoining fields: Veekee and Herman Lambers, Leo, Gingging, Jolan and Ana who are always ready to provide water from their fields when there is drought;

For Victor and Pushpa who had been with the Planter during good and bad weather;

For Evan Arias, Bing de la Cruz, Rene Sanapo, Victor Prodigo and Jimmy Baban who provided additional fertilizer and machinery used in the field;

For Leah, Eva, Che, Joy , Hector, Moses and Other Planter who had extended help to the Planter and are joyful for her harvest;

For the Storms, Weeds, Pests and Diseases that makes the Planter accept realities in life; and

For my Saint and Illumination, my 3 Queens, 10 Princes, 3 Princesses and my 3 Lords who served as the anchorage of the Planter and are happy to see the fruit of her labour.


INTERNATIONAL INSTITUTE FOR GEO-INFORMATION SCIENCE AND EARTH OBSERVATION II

ABSTRACT

The report contained in the Philippine Government Information System Plan (2000) had indicated that 42 provinces and 32 cities covered by the survey had reported the use of at least one micro-computer. There are 79 provinces and 113 cities in the country. This plan for the development in Information and Communication Technology triggers the diffusion of knowledge and adoption of the technology both in the private and government offices. In the government, both at the national offices and local government units, implementation plans and strategies were developed for the implementation of government information system plan which may include the geographic information systems.

Diffusion is defined as the process by which an innovation is communicated through certain channels over time among the members of a social system. This concept encompasses the process of sharing the knowledge among the Local Government Units about the Information and Communication Technology for governance. The Local Government Units were given free hand in setting up its respective information system. However, the general knowledge about information technology is very minimal in these organizations. Knowledge is shared either from national government agencies or from among the local government unit themselves. Despite these formal and informal sharing of knowledge about geographic information systems, there is still lack of general knowledge on the full functionality of the system for local governance. It is on this lead, that the process on how the geographic information technology is diffused, adopted and implemented was studied, to document cases that can pave the way and serve as reference for other local governments that want to adopt it for local governance. It is on this note, that a study, which aims to look on sharing of knowledge about GIS as one of these tools for governance, was conceived.

The Study was conducted in an Island Province of Guimaras, Philippines. The organizations covered are the province and its five municipalities. To determine if there was sharing of knowledge between these organizations, interviews were conducted on these organizations. The responses were analysed to establish relationship and make comparisons from one municipality to the other.

The province has fully utilized the knowledge about geographic information system, which was diffused to her through the training match with the needed technology. Then, in the next six years it had influence for the development of other systems and expansion of the geo-information technology. The continuous use and expansion was attributed to the full support of the chief executives, continuous funding for its operation and the extra effort provided by technical personnel who insure that the system will continue to operate.

Similarly, the Municipalities were able to gain knowledge about the System and had decided for adoption. They were not able to implement geographic information systems in their respective municipality because of varied reasons, like lack of political support, absence of a technical person what will lead them to implementation. Despite these challenges, they had not depended on the province for the implementation. Instead, each municipality have their own way of gaining additional knowledge about the technology.

The utilization of technology in the province proved that regardless of the fact that the solution was presented before the problem was well defined, it had used the technology to attain other goals. For the case of the municipalities, despite that they administratively belong to the province, they do not fully rely on the province in their decision whether to adopt the geographic information system for their governance.


INTERNATIONAL INSTITUTE FOR GEO-INFORMATION SCIENCE AND EARTH OBSERVATION III

ACRONYMS

AUSAid – Australian Agency for International Development

CIDA – Canadian International Development Assistance

DILG – Department of Local Government and Community Development

GIS- Geographic Information System

GISP – Government Information System Plan

ICT – Information and Communication Technology

LGCP – Local Government Computerization Program

LCE – Local Chief Executives

LGSP – Local Government Support Program

LGU – Local Government Unit

MIS – Management Information System

MPDO – Municipal Planning and Development Office

MPDC – Municipal Planning Development Coordinator

NGA – National Government Agencies

NGO – Non-Government Organization

NSO – National Statistics Office

ODA – Official Development Assistance

PC-Base – Personal Computer Base

PPDO – Provincial Planning and Development Office

USAID – United States Agency for International Development


INTERNATIONAL INSTITUTE FOR GEO-INFORMATION SCIENCE AND EARTH OBSERVATION IV

ACKNOWLEDGEMENT ...................................................................................................... i ABSTRACT .................................................................................................................................. ii ACRONYMS ............................................................................................................................... iii

1 Introduction ............................................................................................................................... 1 1.1 Use of Information and Communication Technology in Philippine Government ........... 1 1.2 Diffusion of Information and Communication Technology.............................................. 2 1.3 Statement of the Problem .................................................................................................. 3 1.4 Research Objectives: ......................................................................................................... 5

1.4.1 Main Objective .......................................................................................................... 5 1.4.2 Specific Objectives of the Research: ......................................................................... 5

1.5 Scope of the Study............................................................................................................. 5 1.6 Research Question............................................................................................................. 6

1.6.1 Province..................................................................................................................... 6 1.6.2 Municipality .............................................................................................................. 6

1.7 Research Approach............................................................................................................ 6 1.8 Organization of the Study.................................................................................................. 7

2 GIS Diffusion in an Organization ........................................................................................... 10 2.1 Introduction ..................................................................................................................... 10 2.2 Concept of Diffusion ....................................................................................................... 10

2.2.1 Diffusion of Innovation ........................................................................................... 10 2.2.2 Diffusion of Geo-Information Technology ............................................................. 11

2.3 Diffusion and Adoption in the Local Government.......................................................... 13 2.4 Diffusion and Adoption of GIS in the Philippines .......................................................... 14 2.5 Factors Necessary in the Adoption and Implementation of GIS ..................................... 16

2.5.1 In Advance GIS Communities................................................................................. 16 2.5.2 Philippine Scenario.................................................................................................. 18

2.6 Conceptual Framework ................................................................................................... 21 3 Background of the Study Area ................................................................................................ 24

3.1 Introduction ..................................................................................................................... 24 3.2 Geographical Setting ....................................................................................................... 24 3.3 Guimaras’ General Land Use .......................................................................................... 26 3.4 Social and Economic Profile of the Province.................................................................. 27

3.4.1 Population Growth, Size and Density ..................................................................... 27 3.4.2 General Economic Characteristics........................................................................... 28

3.5 Evolution of the Province as a Separate Government Organization .............................. 30 3.6 Organizational Structure of the Province ........................................................................ 31

3.6.1 Restructuring of PPDO............................................................................................ 32 4 GIS Diffusion, Adoption and Implementation in the Province ............................................... 34

4.1 Introduction ..................................................................................................................... 34 4.2 Problems or Opportunities Which Influence the Adoption of GIS ................................. 34 4.3 Situational Analysis of Province’s Information System ................................................. 36

4.3.1 Diffusion of GIS Technology.................................................................................. 37 4.3.2 Adoption of the Technology.................................................................................... 39


INTERNATIONAL INSTITUTE FOR GEO-INFORMATION SCIENCE AND EARTH OBSERVATION V

4.3.3 Re-invention in Terms of Application..................................................................... 39 4.4 Factors That Contributed in the Adoption and Implementation..................................... 40 4.5 Diffusion Within the PPDO and Among Other Departments ......................................... 42

5 GIS Diffusion and Adoption in the Municipalities ................................................................. 44 5.1 Introduction ..................................................................................................................... 44 5.2 Diffusion from the Province to the Municipalities.......................................................... 44

5.2.1 Linkage of the Province to the Municipality........................................................... 46 5.3 Agenda Setting in the Municipalities .............................................................................. 47 5.4 Component for Automation............................................................................................. 48 5.5 Factors Perceived That May Influence Decision to Adopt and Implement GIS ............ 49

5.5.1 Political Support ...................................................................................................... 50 5.5.2 Presence of GIS Champion ..................................................................................... 50 5.5.3 Technical Consultant ............................................................................................... 50

5.6 Awareness Within Different Units in the Municipalities ................................................ 51 5.7 Other Sources of Knowledge About GIS ........................................................................ 52

6 Conclusions and Recommendations........................................................................................ 55 6.1 Conclusions ..................................................................................................................... 55 6.2 Recommendations ........................................................................................................... 57 6.3 Areas For Further Research............................................................................................. 58

Bibliography.................................................................................................................................... 59 Appendices ...................................................................................................................................... 65


INTERNATIONAL INSTITUTE FOR GEO-INFORMATION SCIENCE AND EARTH OBSERVATION VI

List of Figures and Tables

Figure 1-1 Municipal Boundaries From 3 to 5 Municipalities, Province of Guimaras.................... 4 Figure 1-2 Research Flow ............................................................................................................... 9 Figure 2-1 Stages in the Innovation Process (Rogers, 1983) .......................................................... 11 Figure 2-2 Communication Channels of Diffusion (Rogers, 1993) ................................................ 12 Figure 2-3 Conceptual Framework.................................................................................................. 23 Figure 3-1 Locational Map of Guimaras ......................................................................................... 24 Figure 3-2 Provinces in Region VI- Western Visayas .................................................................... 25 Figure 3-3 Percent Share of Land Area of Each Municipalities to the Province ............................ 26 Figure 3-4 Data Flow From and To the Provincial Planning and Development Office................ 33 Figure 4-1 Phasing In of GIS in Guimaras Province....................................................................... 38 Figure 4-2 Systems That Were Developed in the Province ............................................................ 40 Figure 5-1 Status of Innovation Process in Five Municipalities ..................................................... 45 Figure 5-2 Identified Factors Necessary for GIS Implementation in the Municipalities ............... 49 Figure 5-3 Contribution Per Sources of Knowledge About GIS................................................... 53 Table 3.1 Estimated Land Area & Number of Barangays by Municipality: 1996.......................... 26 Table 3.2 Land Use Classification ................................................................................................. 27 Table 3.3 Population Size and Gross Density by Municipality,Guimaras:(1990, 1995 & 2000) ... 28 Table 3.4 Palay Production Area Harvested and Yield per Hectare ............................................... 29 Table 4.1 Table _ Strength, Weaknesses, Opportunities and Threats ............................................. 36 Table 4.2 Budget Allocation for InformationTechnology (In Thousand Pesos) ................................... 41 Table 5.2 Adoption at Different Stages Within Organization......................................................... 47 Table 5.1 Preferred Application per Municipality .......................................................................... 47 Table 5.5 Component of the System Prioritized for Automation.................................................... 48 Table 5.3 Offices That Are Aware of GIS Per Municipality........................................................... 52


INTERNATIONAL INSTITUTE FOR GEO-INFORMATION SCIENCE AND EARTH OBSERVATION 1

1 Introduction

1.1 Use of Information and Communication Technology in Philippine Government

The 1997 Philippines’ National Computer Centre survey showed that all of the 42 provinces and 32 cities that responded have at least one microcomputer of the 79 provinces and 113 cities in the country . There are neither mid-range computers nor mainframes among these local government units (LGUs). The most common applications or information systems at the local level are the payroll system and civil registration systems. Seventeen provinces and 22 cities are connected to the Internet. Computers and information systems at the local level are basically used to automate some clerical tasks and to computerize the data they collect from its clientele. Databases are not yet used to generate critical inputs for policy and planning processes at these levels (Government Information System Plan, 2000). Be as it may, the commitment of Philippine government in adopting information and communication technology leads to more recent developments and triggers the diffusion of knowledge and adoption of the technology both in the private and government offices. In the government, both at the national offices and local government units, plans and strategies were developed for the implementation of government information system plan (GISP).

The adoption of geographic information technology by the national departmental agencies and local government units in the Philippines has become a byword for governance (GISP, 2000). The drive for local government units to be in the bandwagon of institutions that has to develop information system is contained in the Philippine Online document –Annex 1 of the Government Information Systems Plan (GISP). The climate for information and communication technology (ICT) development is backed up conditions wherein most of international cooperation for development projects have technology transfer component coupled with technical assistance in the form of trainings.

The market glut in hardware and software makes the environment favourable for the LGUs to install information systems for local governance at a reasonable cost. Packages that these days go with maintenance and training for immediate users. More so, projects from the national departmental agencies which were provided to the local government units (LGUs), encourage the latter to have an automated system.



1.2 Diffusion of Information and Communication Technology

The process by which an innovation is communicated through certain channels over time among the members of a social system is termed diffusion (Rogers, 1983). In essence, diffusion is a special type of communication, in which the messages are concerned with new idea. This concept encompasses the process of sharing the knowledge among the LGUs about the ICT for governance.

An increasing number of local government units (LGUs) have started using ICT, especially for revenue-generating operations: business permits and licenses, tax administration, real property taxes, and the Civil Registry System. The Local Government Computerization Program (LGCP), the master plan for the use of I.T. in local area development has been completed (NITC, 1997). The Plan was expected to pave the way in spreading the knowledge of the relevance of ICT for their governance. However, each LGUs are free on what type of system to develop, what platform to use, which unit will manage the system and for what purpose

Despite the liberal approach given to the LGUs in setting up their own information systems, the general knowledge about information technology is very minimal in the LGUs if not absent at all. This is evident when only 6% of the total 81,678 government personnel in the surveyed LGUs, use computers, and had even a smaller proportion (2.3%) had training in information technology. Less, than 1 percent comprises the ICT personnel at the local level (GISP, 2000).

To address this issue, the LGCP had incorporated training, symposia, workshops, exchanged programs and other mechanism to spread the knowledge about ICT. One of these trainings conducted in pilot areas is on the use of geographic information system (GIS) for local governance. Knowledge about the technology is shared either from national government agencies (NGA) or from among the local government unit themselves. These are common for LGUs and NGAs that have similar agenda, spatially accessible or politically affiliated with each other. Despite these formal and informal sharing of knowledge about GIS, there is still lack of general knowledge on the full functionality of the system for local governance.

It is on this lead, that the process on how the ICT like GIS is diffused, adopted and implemented be studied, to document cases which can paved the way and serve as reference for other LGUs that want to develop an automated system for local governance. It is on this note, that a study, which aims to look on sharing of knowledge about GIS as one of these tools for governance, is conceived.

Because literature describing the delayed adoption or non-adoption at all of GIS in the Philippines is scarce, the study attempts to know further some factors identified by the municipality that can influence the adoption or non-adoption of GIS.



1.3 Statement of the Problem

The information and communication technology including Geographic Information System (GIS) was found useful by LGUs who were aware of the technology’s potential in helping them deliver services to their constituents. However, when they consider adopting the technology, they are not in total isolation from other government units. Provinces are administratively under the national government and the municipalities are under the provinces. The government set-up calls for collaborative effort between and among these different levels of LGUs.

Prior to the decentralization of administrative power from the national to the local government units, Guimaras Island was a sub-province of Iloilo. The province of Iloilo belongs to the Western Visayas region of the Philippines. The set-up was not only difficult in terms of mobility for the residents but also cumbersome both for financial and administrative transactions with the government. This is due to the fact that these transactions had to be done in the capital city of Iloilo province that is geographically separated by Iloilo Straight.

The administrative devolution in the Philippines was formalized when the Local Government Code was passed in 1991. A year after, Guimaras Island was weaned out as a sub-province and became a full pledge province in 1992 giving her full autonomy as a separate local government entity. Upon its promotion as a province, two new municipalities were created from the original three municipalities. By virtue of Republic Acts No. 7896 and 7897 which were approved on February 20, 1995, two (2) additional municipalities, Sibunag and San Lorenzo

were created in the Province, respectively. The creation was done by re-delineation of municipal boundaries (Figure 1_1)



Figure 1-1 Municipal Boundaries From 3 to 5 Municipalities, Province of Guimaras

Spatially, these two new municipalities were part of two adjoining municipalities. Consequently, new local government units evolved. These new LGUs were confronted with problems on its structural evolution at the same time building up its municipal statistical data. Data consolidation was very challenging because datasets have to come from two parent municipalities and sometimes it even has to be generated from the national government agencies.

The first five years of its existence, the two new municipalities had to carry the load of delivering basic services while building up its organizational structure and municipal statistics. To add to the instability was the fact that an interim government managed them.

These activities required information that shall be self generated, processed and maintained by the municipalities. In building up this information system, the decision makers had recognized the need for use of technology like GIS that had seen being used by the provincial government and other local governments in the country.

The above condition creates dependency on the part of these infant municipalities to the provincial government in terms of resource mobilization and building the provincial database. Land use planning, project planning and implementation of livelihood projects were all initiated at the provincial level. Also, accessing of funds for construction of infrastructure projects like new road network and public buildings such as school and the town hall were programmed at the provincial level.

It is inevitable that with this kind of set-up, information flows were skewed towards the side of the province from these infant municipalities. Data from municipalities were consolidated and analysed at the province for resource mobilization and fund accessing.

Executive Order No. 72 (1993) came as a directive from the Head of the State that all municipalities should submit their respective comprehensive land use plans, which may form as bases of budget releases for national support in terms of funds for the local government. This was the pivotal point for most of the LGUs to consider the use of GIS for local governance. Some of the LGUs received technical assistance in the form of training for eventual adoption of GIS. The province of Guimaras received this assistance in 1995. The province initially used GIS for planning and project development.

Being new or newly re-organized in terms of governance the municipalities seek advice and or assistance from the province in terms of planning and project implementation. There post a question then, if the municipalities will be able to follow the type of planning and project development the province is undertaking using GIS. There is then, a need to know what are the support mechanisms the province gave to the municipalities towards the adoption of GIS. On the side, what affects the decision of the municipalities to adopt or defer the use of GIS may also be identified.



In summary, the problem for this research is focused on evaluating the diffusion of innovation like the use of geographic information system (GIS) as a technology take place in the local government units for its governance. This post now as a challenge to know how the experience of LGUs been diffused to another LGU which belongs to lower administrative hierarchy. Specifically, a case study, between the Province and the Municipalities the former comprises is used for this research.

1.4 Research Objectives:

1.4.1 Main Objective

The general aim of this research is to gain knowledge on how diffusion of technology like GIS in the local government unit affects the diffusion to another LGU. Specifically, it will look into how the use of GIS at the province affects the decision of municipalities’ on GIS adoption and implementation at the municipality level.

1.4.2 Specific Objectives of the Research:

1. To explore the status of GIS implementation in the province and how it affects the decision of the municipality to use GIS;

2. To explore the changes that have occurred as an outcome of GIS implementation in the province;

3. To learn how existing municipalities (3) have used GIS in their governance; and if not; what were the barriers;

4. To identify other factors necessary for the development of GIS in the municipalities as perceived by the decision makers and users.

From the management perspective, the relevance of this research is that the findings can provide a framework for appropriate adoption of GIS technology by the infant municipality and other LGUs who are at moment non-GIS users, given the limited resources, institutional structure and management setting that exist for each LGUs in the Philippines.

1.5 Scope of the Study

First, the evaluation on how GIS was diffused to the province will only encompass the period when the awareness of the potentials of GIS was introduced and was matched with hardwares and softwares that were turned over to the province.

Secondly, the evaluation will cover first the adoption at the Province, then, the adoption or non-adoption of five municipalities. In the determination of factors that affects the adoption or non-adoption of GIS in each municipality, all five municipalities will be covered.



1.6 Research Question

1.6.1 Province

1. To what extent GIS has been adopted and utilized by the provincial government?

2. What were the factors that were laid down or present prior to the implementation of GIS in the province?

3. What were the changes in the data flow brought about by the use of GIS between the province and the municipalities (i.e map preparation, statistical data maintenance)

1.6.2 Municipality

1. Had there been an attempt by the old municipalities (3) to use GIS in their respective municipality?

2. Will the decision of the local leaders in the municipality, to use or not to use GIS for governance be affected by the way GIS was used in the province?

3. What are the factors needed as perceived by the municipality if they will use GIS?

4. Which functionality of GIS the decision makers will find more relevant based on their current organizational capability?

1.7 Research Approach

The aim and objectives of this research were achieved within the context of the questions raised. For the Province, considering that it is already implementing the System, the evaluation will tackle the usage and the effects of having GIS in the province. The following tasks were carried out in the field:

Task 1 Evaluation of the GIS Usage at the Provincial Level

The work covered: • Review of the Institutional Arrangement in the Provincial Planning Development Office

(PPDO) that used the geo-information system; • In-depth review of how geo-information system was designed and implemented as part of

the Planning Office. • Review on how GIS was applied- as an Inventory application, policy analysis application

or management and decision making application (O’Looney, 2000, pg. 90-91). This means, that the different applications will be identified, for what purpose or purposes and which government function it serves.

Task 2 Evaluation on the Effect of GIS in the Provincial Governance



• Identify the processes, procedures and policies that evolved, modified or abolished as caused by the use of GIS;

Task 3 Pre-System Design Analysis at the Municipal Level

• This will explore the current organizational structure of the municipal government relative to where GIS may be based or installed;

• The related structures to be explored include: 1. - information flow from the province to the municipality and vice versa. 2. - The level of awareness of decision maker, and other users relative to the

use of GIS at the province; 3. - An investigation on the perception of the decision maker, other users as to

other factors they find necessary if the LGU will adopt and implement GIS.

1.8 Organization of the Study

The Study is organized in 6 chapters.

Chapter 1 Introduction-

This chapter gives an overview on why this research, what it is all about and how it will proceed.

Chapter 2 GIS Diffusion in Organizations

Reviews the theories and concepts related to adoption of GIS by an organization.. It also reviews GIS adoption being part of the process of diffusion of technology like GIS. Cases of government organizations adopting and implementing GIS are reviewed. Based on these theories, the checklist of parameters was identified for the preparation of interview guide.

Moreover, this narrows down to literature covering the factors necessary in the adoption and implementation of GIS. This looks in to the identified factors relative to adoption and/or non-adoption of GIS. This attempts to move down to the factors mostly identified by GIS adopters in the Philippines.

Chapter 3 Background of the Study Area

Briefly discuss the physical and demographic characteristics of the study area. This also covers the section on the evolution of the province as an autonomous local government unit and the organizational structure where the system is lodged.

Chapter 4 GIS Diffusion, Adoption and Implementation in the Province

Presents the conditions when the knowledge about GIS was communicated, adopted and implemented by the Province. This chapter also shows how the system evolves where it is now today.



Chapter 5 Diffusion and Adoption of GIS by the Municipalities

Similar to the 4th Chapter, this explores the environment on how the 5 municipalities became aware about GIS as a tool for governance. This covers the identified factors the prospective users of the System had identified should GIS be implemented in their respective municipalities.

Chapter 6 Conclusion and Recommendations

This discusses the findings of the research and how can it be useful to other related studies in the field of GIS diffusion within the local government units. Recommendations on what possible work can be done are also presented in this chapter.



Figure 1-2 Research Flow

Review of the Theoretical Framework of Diffusion of Innovation, specifically Diffusion of Information and Communication Technology

Field Investigation and Evaluation of Existing Information Systems in the Province and 5 Municipalities

Evaluation of GIS Diffusion in the Province

Conduct of InterviewsBoth in the Province&in the Municipalities

Organizational Analysis

Conceptual Framework in Evaluating the Diffusion of GIS

Model of Innovation Process in the Province

Conclusions and Recommendations

Comparison of Diffusion in the Municipalities

Perceived Need ofEach Municipality for Adoptionof GIS

Identification of Factors for Adoption/Non Adoption in Municipalities

Review of the Theoretical Framework of Diffusion of Innovation

Review of the GIS Diffusionin Local Government

Review of Materials andIdentification of Factorsthat Facilitate Adoption of

Major ActivityDetailed Activity

Outcome



2 GIS Diffusion in an Organization

2.1 Introduction

The theoretical framework of the research is in this chapter. It covers the concepts and theories of GIS adoption as a stage of diffusion of technology and, GIS adoption in local governments.

The concepts of GIS adoption will be explained by three sub-topics and ends with the list of concepts as used in the Study. First, the discussion is on the concept of diffusion paving the way for adoption or rejection of the innovation, which in this study focused on the GIS. This explains the main elements of diffusion model where the adoption process is embedded. The second part touches on the different experiences of local government units on the use of GIS for governance. Experiences in Europe, America and Asia were captured to find related work on the use of GIS for LGUs. Then, the third part covers the identified factors necessary in the adoption and implementation of GIS.

The concepts are put in clarity through the conceptual diagram that serves as the framework of the research.

2.2 Concept of Diffusion

2.2.1 Diffusion of Innovation

Diffusion is the process by which an innovation is communicated through certain channels over time among the members of a social system (Rogers, 1983). So, diffusion is a special type of communication, in which the messages are concerned with new idea. In this paper, the innovation that is being referred is the use of geo-information system for local governance.

Rogers (1993) had progressed in his work in studying diffusion shifting his focus from individual to studying innovation process in organizational setting. His work illustrates that the innovation process in organizations is usually considered successful if it leads to adoption and implementation, not just to the adoption decision per se. On the otherhand, the individual, being part of the organization, plays an active role in the innovation process by matching the innovation with the perceived organizational problem, and perhaps in re-inventing the innovation. Figure 2.1 shows the model of Innovation Process in the Organization.



STAGES IN THE INNOVATION PROCESS

MAJOR ACTIVITIES

I. Initiation Information gathering, conceptualizing, planning for the adoption, decision to adopt

1. Agenda Setting Organizational problems which need inno-vation were defined; search of innovation with potential value

2. Matching

A problem from the organizations agenda are considered; fitting in of the innovation to the agenda

- - - - - - - -The Decision to Adopt - - - - - - - II. Implementation Putting the Innovation into Use 3. Redefining/Restructuring (1) Innovation modified and re-

invented; (2) Organizational structure altered

for innovation 4. Clarifying Relationship between Innovation and or-

ganization defined as the Innov. is used

5. Routinizing Innovation becomes element in the organi-zation

Figure 2-1 Stages in the Innovation Process (Rogers, 1983)

2.2.2 Diffusion of Geo-Information Technology

The discussion of Campbell (1991) suggested that GIS should be regarded as a form of technology and perhaps more particularly an innovative technology. This notion was generally accepted as GIS combine the key elements of machine, methods and knowledge. It is to be noted that there is a need to understand the nature of technology and therefore GIS in turn has important implications for the process of diffusion and the types of factors that are likely to facilitate or inhibit adoption.

Furthermore, Rogers ( 1983) also discussed that the adoption of innovation has to passed a decision process. For example, in the adoption of GIS, first knowledge or awareness about the technology, second, the stage of persuasion, then, the decision to adopt or reject the technology. Once decision has been made to adopt the innovation, implementation follows then confirmation (Figure 2-2).



Figure 2-2 Communication Channels of Diffusion (Rogers, 1993)

However, in the same paper Rogers argued that in the third world nations, the development programs occasionally outran the diffusion model.

In the rapidly changing information technology, Polydorides (1993) views GIS as one of the very successful both in the speed by which it has been diffused, as well as in a variety of scientific and professional applications. He said that GIS is an exciting tool, enabling people to do a variety of jobs in innovative and more efficient manner. Miellet (1996) adds that the speed of diffusion within different groups using GIS varies depending on the geographic environment and the specific needs of the groups activities. His illustration is that the diffusion of GIS has been rapid within groups that manage networks and within local government. He also believes that the diffusion of GIS is no longer solely driven by technical progress but also by the increasing number of agents involved particularly in local government. In this, Miellet (1996) pointed out that for France, despite the great quantity of software in the market that has increased the potential of GIS, there are still many obstacles to the effective diffusion of geographic information processing. He attributes the slow pace of diffusion to the limited availability of digital data sets and no longer on the capability of the available technology.

According to Hoogenboom and Geldermans (2000), technology implementation should be step by step instead of waterfall or structured development of the system. The authors stated that it is difficult to get specifications of the GIS application on paper, that it is a cumbersome job to get users on the same wavelength, and that the specifications that have been drawn up are often subject to change in the course of installation process. The result of this is that the



GIS application that was provided only partially complies with the requirements and wishes of the users and insufficiently supports the corporate processes.

Wiley (1997) conforms to the step by step development when he suggests that GIS development be approached as an evolutionary process, one that yields GIS/information system tools and capabilities in the interim. Further, he states that, unless an organization is ready and the proper procedures are in place, a GIS cannot, and would not live up to its expectations. GIS/information system planning and development should be approached as an evolution not a revolution-within the organization. The propositions suggest that diffusion should also be viewed as a learning process.

Based on experience on the agency I worked with, I agree with Rogers (1983) in his finding that in developing nations, development programs with information technology component deviate from the diffusion model. This means that the innovation is adopted and implemented not based on its merit for the organization but as a part and parcel of a bigger project. This follows by stating that once the innovation is introduced, adoption and implementation immediately followed skipping the persuasion stage (Figure 2-2) The rate of technology diffusion and adoption is highly influence by the channel where innovation takes place and the period allowed to put the technology into work. In most cases, the decision whether to adopt or reject the technology is downplayed and implementation immediately follows. The situation suggests that the rate of adoption is faster not because the organization felt the immediate need for the technology but the utilization is done because it is already given as part of a bigger development project. Furthermore, there may be a case that the innovation is adopted and implemented but abandoned because the innovation was not found to be complimentary to existing technology used by the organization (e.g. new software).

2.3 Diffusion and Adoption in the Local Government

In Europe, the main users of GIS are central and local government agencies and the utility companies. Together these account for well over half the overall GIS market in most countries (Wegener and Masser, 1996). This is because the business of local government is to make decisions in the public interest and the citizens. Citizens increasingly require these decisions to be backed by information showing that the decisions will result in greater efficiency, equity, community viability or environmental health-the four dimension of value that ordinarily guide public decision making (O’Looney, 2000)

O’Looney (2000) asserts that GIS have become a fact of life in most large and many small local governments in the United States of America. In Wisconsin, the adoption and diffusion of these technologies have been found to depend significantly upon institutional factors like inter-agency communication, and moderately on other financial and personal factors, like funding and professional communication and networks (Kuhlman, 1994 in Tulloch, et.al, 1995)



Similarly, in Western Europe, in a study on GIS and administrative decentralization in Italy, Ciancarella L, et.al. (1993).indicate that there is an increasing awareness of the potential of GIS and growing take-up of this technology in Italian local government. One of the main contributing factors for this greater attention towards GIS appears to be the 1990 reform of local government which increases the decentralization power from central and regional government towards provinces and municipalities.

Geographic Information Systems (GIS) exist throughout municipal government departments and corporate information systems. According to Sussman (1997), the early pioneers of municipal GIS and those cities who followed a broad based, corporate approach to GIS have expended huge resources to achieve their ends (1997). He said that, although it has been possible to identify cost reductions, cost avoidance and even some revenue directly related to GIS implementation, in most cases the expenditures are far more measurable than the benefits. The City of Scarborough, like some other major municipal GIS sites, is looking towards recovery of its investment by actively seeking revenue generation opportunities. Sussman’s paper describes some of the various approaches being considered to exact benefits beyond the business requirements of the municipality itself. These approaches fall generally into three categories: the sale of information, the provision of data collection production facilities, and the sharing of expertise with other organizations. The initiatives have been both formal and informal, and although results today are ambiguous, the potential for success remains high.

Moore (1993) presented that the successful implementation and eventual institutionalisation of a GIS is generally the result of several stages in the diffusion process as modelled by Rogers. The GIS is first acquired by an organization, either at the departmental or corporate level. This first step represents organizational level adoption. The second stage of decision making is at the individual level, after the organization has acquired the technology. In this stage, the eventual end user of the GIS must initially decide whether to adopt GIS usage, and then decide to what extent it will be used.

Taking into consideration the technical aspect, Campbell and Masser (1991) is saying that making forecasts about the diffusion of GIS technology throughout local government is made even more difficult by ongoing changes in the structure of the GIS market and in the rapid development of the products and the product ranges available.

2.4 Diffusion and Adoption of GIS in the Philippines

In the Philippines, there is an increasing trend of the use of GIS as a tool in municipal land use planning, project development and implementation and land registration. The use of GIS as a planning tool, gain considerable attention when the local government units (LGUs) were obliged to prepare a land use plan. In conformity with the Philippines’-Local Government Code (1991), these plans serve as bases of the national government in providing budget allocation and taxation share for these LGUs.



The increasing number of GIS applications in the country is predominantly attributed to the growing awareness of the benefits of GIS among LGUs. For these units, increased revenue collection, as far as taxes are concerned, is possible with the use of GIS (GIS Link, 1998). Also, Timbol (1998) confirmed that GIS could assist in the collection of taxes, easy management of infrastructure projects, traffic rerouting, and other activities in the management of LGU’s area of responsibility. This results in an improved level of service (better roads, improved traffic management, etc.) for constituents and paves the way to better productivity and faster growth for the LGU. This is apparent in the LGUs that are starting to integrate even simple GIS into their administrative operations. Take the case like the local government of Muntinlupa City. According to Santos (1996), this City developed a GIS based system to enhance the processing of locational clearance applications and to automate the updating and production of maps in the LGU. Santos’ work discussed the data organization and how it was built on the Tax Mapping and Zoning Information System for the City. Also included is the system configuration consisting of modules for application, graphical processing and data inquiry. The study discussed the hardware and software where the system operates. However, it failed to mention the organizational set-up as well as the political environment where the system operates.

On the otherhand, the Cebu City GIS is opposite of what Muntinlupa city had experienced. The development of GIS in Cebu City had conformed with the recent restructuring of its department and coherent with the development agenda of the local chief executive. Chogyel (2001) says that the City of Cebu has a fully institutionalised GIS set-up supporting urban planning and management, one of the pioneering GIS Center in the country, which is very rare to find in developing countries. Also, based on the report of Cebu City GIS Center (2001), it mentions that to broaden the functionality of the system, the GIS center was merged with Management of Information and Computer Service Department in May 2000. Several applications had been developed to support the tax mapping and business establishment inventory. In the same report, it mentions that applications that were developed were based on the priorities of the local chief executives.

May be an exceptional case, but for the province of Capiz, Philippines, the adoption of GIS started in 1998 when the local chief executives believed that it is already appropriate for the province to develop its own system. This was intended to improve the way the provincial government gathers, handles and disseminates information relating to its functions of delivering services to the people.(Capiz GIS Center, 2001)

To pursue the system development, the provincial government of Capiz tapped the USAID/Governance On Local Democratization Program (GOLD) for technical assistance in building up its technical capability to use GIS. The technical assistance was operationalized through a series of trainings that were conducted for provincial leaders and target users of the system. In addition, the technical staffs were sent to another LGU that has an existing system to have hands on experience of systems development and implementation.



Summary

The four sections covered the concepts and theories as well as experiences of local government units of countries relative to the diffusion of innovation. The discussion narrowed down to the adoption of GIS first as part of national programs, then, through local initiatives and ended with experiences of GIS adoption and implementation in the Philippines. Although most of what had been written in the Philippine context emphasized the computer applications to which it was developed, lessons learned may provide additional background as to the conditions that help or slowed down the adoption and implementation of GIS in the municipalities. Municipality that is the level of the LGU, that is the subject of this research.

We will now proceed with a review of some literature focusing on the factors that hasten or slowed down the adoption process.

2.5 Factors Necessary in the Adoption and Implementation of GIS

2.5.1 In Advance GIS Communities

More and more literature are emerging on the relevance of organizational factors in general on the development of the information systems/GIS, but the discussion will emphasize the settings in the local governments.

Traub (1997) says that GIS has been around in the Western World for approximately two decades, and in Southeast Asia for less than ten years. Implementing agencies often focus strongly on the technical aspects, i.e. hardware and software, but underestimate the importance of the three other components: namely, information, personnel and the organizational elements comprising work and information flow, the number of hierarchical levels, etc . He adds that the way a government organization conducts its business can be viewed as a public management system, consisting of a ‘public production process’ in an organizational setting. In this system, many factors interact with one another to make it operate. Accordingly, the decision for the adoption and diffusion of GIS in such a system also will be subject to the influence of these factors.

Reeve, D. E and Petch, J. R.,(1999) corroborates with the idea that GIS projects have previously been viewed primarily as technical exercises but it is now evident that the success of GIS projects depends as much upon organizational issues as upon technicalities. GIS projects have socio-organizational contexts that must be taken into account if such projects are to succeed. Similarly, Huxhold (1993), in his research of the use of GIS in local government in the United States in two different era (1970’s and 1980’s) found that certain organizational conditions must be met in order for integrated information systems to be successfully implemented and adapted. Organizational condition as an influential or delimiting factor in adoption of GIS, was stressed by de Man and van den Toorn (forthcoming) when they say that, adoption and use of GIS will vary with social conditions and circumstances and they pointed out that culture is of particular relevance in studying the social group.



Based on the experience of GIS adoption and utilization observed in several Australian State government agencies in 1995 and 1997, Chan and Williamson (1999) identified six factors, namely, GIS aligned dominant vision of decision makers, production infrastructure, production process, product mix, organizational setting, and the external environment of the stakeholders. Their relationships are described in a model that confirms the need for alignment between GIS and these factors in a government organization. In a related work, both authors found that, as the GIS was being seen as an integral part of the core business of the department and match the business vision of the chief executive officer, it gained support from managers at all levels and in all divisions of the department (Chan and Williamson, 2000). They said that the State Government also provided financial support to the system in 1987 because of the system’s value in facilitating mining investment from overseas and interstate.

Wiley (1997) wrote that, when GIS was an emerging technology, the revolutionary approach to GIS development seemed to work. GISs were developed in-house or delivered by consultants to organizations that perceived the potential of GIS technology. However, he argued that, the reality often did not live up to its perception. Technicians geared the earliest GIS technology. Stand alone workstations were common, so few organizations thought about integrating GIS with existing or new information systems. The technicians who made these systems work spent little time communicating with the users about the technology and virtually no time walking in the users’ shoes. During GIS development, GIS champions within these organizations were confident, but had no proof, that a GIS would make their lives easier.

More leaned to the organizational aspect, Polydorides (1993) argued that there are four aspects that are extremely important prerequisites for the successful application of information systems. These are: a rational planning process; a piecemeal development of hardware and software; a continuously relevant system and training and education needs. He stressed that probably the most important prerequisite is the trained personnel to create and support the system.

In general, Wiley (1997), stated that an organization is ready for a GIS if it has a proper network infrastructure (both software and hardware), it has a proper organizational structure, the organization has appropriate staff, other supporting information system are in place (datasets), data dictionaries and data standards and lastly, the organization has appropriate funding to sustain GIS operation.

The study conducted by Johnson and Dyke (1997), on both public and private, large and small organizations, tried to discover how organizational attributes affect GIS implementation. They mentioned that despite the implementation style an organization uses, no approach guarantees a successful GIS installation. However, they listed 13 characteristics necessary for the installation of GIS. These are:

1. A champion to promote GIS development within the organization 2. High Level Management support 3. GIS education and training for affected employees and management 4. Coordination of GIS development and staff continuity



5. Planning 6. Completion of User Needs Assessment 7. Accurate time and cost estimates for associated costs, including products 8. Clear goals and objectives defined for the GIS “department” 9. Defined funding plan 10. Well-defined written contracts with vendors and clients 11. Shared project ownership among users 12. Completion of prototype pilot project 13. Published successes

In several studies that had been reviewed by Johnson and Dyke, factors varied from experience to the other. However, these can be grouped in four major categories. These are: the technology, the organizational set-up, the knowledge and the data sets. The studies in western countries failed to identify the relevance of the political influence that operates in the organization. This is one of the factors that were found necessary based on the experiences of LGUs in Asian countries.

It was pointed out, not only do organizational factors affect the adoption but they also influence the ultimate success or failure of the technologies being implemented ( Tulloch et. at,1995). Goodman (1993) recommended that in introducing a GIS technology, and related applications in a city, one would have to consider all the operating departments, support groups (e.g. , information systems) and the political apparatus. He added that in defining the social system for implementing the technology, all those who can affect the short and long run viability of the system be included.

Therefore, in support to Westrup (2000) it is important that sufficient attention is paid in exploring examples of information technology transfer and implementation and, of equal importance, to theorizing these experiences to suggest wider understandings of the relationship between information technologies, society and organizations.

2.5.2 Philippine Scenario

In the Philippine setting, several studies (GIS Maps, 1999) referred the necessary factors in the adoption of GIS as Cornerstones. This means that, these shall be the laying foundation for the establishment of a GIS in the local government units. The cornerstone will be the factors that should be present for the adoption and operationalization of GIS in the organization like the local government units. These LGUs are the like of province and municipalities in the study area.

To illustrate, a Study was conducted on the state of Geographic Information Systems in selected local government units in the Philippines (GIS MAPS, 1999). There were eight (8) municipalities/cities that were covered by the study. GIS implementation was evaluated based on four cornerstones. These are :

• Policy and Value cornerstone,



• Political cornerstone, • Resource cornerstone and • Knowledge cornerstone

a. In the Policy and Value cornerstone, it generally covers the reason for having GIS in the local government units. This is defined by three important elements. First, there has to be set of policies, directives related to the use of GIS. Second, these policies have been communicated across the organizational structure. Thirdly, there has to be sufficient knowledge and capability on the part of GIS champion to respond; b. The Political cornerstone- describes the political environment where the implementation of GIS has to operate. This covers changes that may occur when there is change in local chief executives; c. The Resource cornerstone- captures the availability of hardware (computers, plotters, GPS), software being used, source and type of data; d. The Knowledge cornerstone- encompasses the multi-disciplinary personnel compliment that will build up and maximize the use of GIS as a tool in governance. One of these referred factor, the knowledge cornerstone encompasses the technical and behavioral readiness of the organization to use GIS.

The success of the GIS (NAGA City Government, 1998) is dependent on the support of the local chief executive who realized the tremendous potentials of GIS technology and provided the funding support that had contributed much on the implementation of the system. This shows the presence of political cornerstone. In addition, the motivation of GIS champion who gave focus and technical proficiency in information technology had contributed in achieving the desired output from the investment in technology. The presence of computer-literate, highly motivated young professionals whose attitude and passion for working with computers have fuelled the application of the GIS technology in the local working place.

While the studies and reports on GIS implementation in the cities of Cebu and Naga seems to be more promising, how it is received and treated in the municipalities within the Rizal Province is seems to be a deviant. Juanico (2001) in his work with the municipality of Rodriguez and Tan-ay, Rizal said that what forseen as hindrances in getting the full support of the local chief executives for GIS implementation for land use planning is the lack of appreciation of LCEs on the capacity of the system, to deliver immediate result like generating suitable areas for housing, business investment, etc. He added that political support for the system is dependent on how the information system can show outright output considering the investment the LGU have to put for GIS. Similarly, Sanapo (2002) mentioned that the biggest reason that GIS projects are not continued is the failure to link the innovation with the local chief executive’s agenda for his given term of office♣. He said that in the mid-90”s, LGUs were able to acquire hardware, software and knowledge as a module of official donor assistance (ODA). When this happens, and GIS is introduced as part of another bigger (usually infrastructure project) the mayor or the governor has no reason to object GIS. However, once the Project ends and the LCE is asked to appropriate funds for continued

♣ There is an election for local chief executives every three years



operation of the system, he or she will only allocate funds if he/she perceived GIS to be useful within the corresponding term of office.

Contrary to what had been mentioned above, de Man and van den Toorn (2001) say that the current knowledge regarding the factors that determine speed and configuration of adoption and dissemination of GIS is still in its infancy.

Moreso, in the LGUs that are adopting the GIS, there are initial studies that is trying to identify the factors that are present for the cities and municipalities which are already implementing GIS but are recipient of official development assistance (ODA) (Sanapo, 2002). Investigations on the factors affecting the municipalities’ decision to adopt and implement GIS are less explored, especially, among municipalities belonging to one province.

Summary

Various works had identified technological, organizational, cultural and individual factors that may affect the diffusion and adoption of GIS. Some works focused on the organizational aspects. While others emphasized the need for knowing what the users want. However, it may be that some factors work well with other organizations but will not apply for bureaucratic organizations like the local government. Be as it may, the level and how fast the diffusion will be depends on the perception of the receiving organization on the advantage the technology can provide to the organization.

For this Study, an attempt will be, to looked into the presence or absence of factors needed for the decision to adopt, adoption and implementation stage of the process of innovation. Factors like:

1. Knowledge about the Innovation- Awareness about the new idea which cut across major players in the organization from Local Chief Executives (Mayors and Councils), the technical staff and the support staffs. These include:

a. The presence of Champion-a technical person spearheading the activities all related to the implementation of the system.

b. The presence of Technical Consultant

2. Relevance to the Organization- this extends on the understanding how the innovation conforms or be utilized relative to the agenda or goal of the organization. (e.g. acceptance by the mayor on the need for GIS)

3. Political Support – is manifested in terms of the continues support by the decision makers through continues provision of budget for its operation; issuance of policy or ordinances for administrative and technical support to the system;

4. Hardware, Software and Data- availability or accessibility of these components



5. Organizational Support- includes the technical support of other technical field related or directly affected by the operation of the system.

6. Continuous Staff Development- this item encompasses additional knowledge about GIS gained by the technical staffs as well as LCEs which come from various sources

These items mentioned will serve as the guide in the analysis with respect to the contributing factor necessary for the adoption and implementation of GIS in the municipalities within Guimaras. The identified factors were based not only from the literature but also those identified to be present when the province adopted the innovation.

2.6 Conceptual Framework

The research is based on the concepts that the process of diffusion of innovation is realized in the organization when it leads to the adoption of this innovation. In this study, the use of Geographic Information Systems (GIS) for local governance is the innovation being referred to. This means that, the Study looked into three major concepts. First, on the diffusion of the innovation which is GIS. Second, is the organization which is the local government where the innovation was introduced. Thirdly, on the mechanisms as well as the elements that had favoured the diffusion and adoption process of GIS in the local government.

The evaluation was mirrored on the stages of innovation in the organization modelled by Rogers (1983). Thus, the Case Study is assumed to have passed two major stages. These are the initiation stage, and the implementation stage. The major activities that described the initiation stage includes information gathering related to GIS, then, planning for the adoption and the decision to adopt. Subsequently, the implementation stage is putting the innovation into use. It is in this stage, where either the innovation is modified and re-invented to match with the need of the organization or the organizational structure is altered to support the innovation. When the innovation is in use, the relationship between the innovation and the organization is defined or clarified. Finally, the innovation becomes the element in the organization. For clarity as used in this research, some of these concepts are defined.

1. Geographic Information System is a computer based technology which are able to store, display, manipulate and analyze spatial data, most particularly map-based information. (Campbell and Masser, 1995)

2. Diffusion is the process by which an innovation is communicated through certain channels over time among the members of a social system (Rogers, 1983)

3. GIS Adoption – a decision to make full use of an innovation as the best course of action available.

4. Implementation occurs when an individual (or other decision making unit put an innovation into use.



Furthermore, Rogers concept of diffusion within the organization had shown several stages and used as model where to compare the findings of this research. A slight modification was introduced wherein the factors for the adoption or non-adoption was incorporated in the model. For the evaluation in the municipalities, the framework used was the same, however, it takes the experience of the province as take-off point of the comparison made in these five LGUs.

Built from literature that various factors affect the diffusion of innovation process, some of these were identified in the previous chapter for the use of this study. It may be that these critical factors are needed from the initiation stage of the process, but for this Study, it shall be assumed as necessary from the Decision to Adopt, to the succeeding stages of the innovation process. Taking into consideration the organizational situations of local government in the Philippines, the factors that will be used in looking at both the province and municipalities are:

1. Knowledge about the Innovation- Awareness about the new idea which cut across major players in the organization from Local Chief Executives (Mayors and Councils), the technical staff and the support staffs. These include:

a. The presence of Champion-a technical person spearheading the activities all related to the implementation of the system.

b. The presence of Technical Consultant

2. Relevance to the Organization- this extends on the understanding how the innovation conforms or be utilized relative to the agenda or goal of the organization. (e.g. acceptance by the mayor on the need for GIS)

3. Political Support – is manifested in terms of the continues support by the decision makers through continues provision of budget for its operation; issuance of policy or ordinances for administrative and technical support to the system;

4. Hardware, Software and Data- availability or accessibility of these components

5. Organizational Support- includes the technical support of other technical field related or directly affected by the operation of the system.

6. Continuous Staff Development- this item encompasses additional knowledge about GIS gained by the technical staffs as well as LCEs which come from various sources

The Conceptual Framework of the research is shown in Figure 3.



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3 Background of the Study Area

3.1 Introduction

This chapter intends to present the background on the physical, socio-economic as well as administrative situation of the province and each municipality. Elaborations on the evolution of the island as an independent province was made, to give a picture that despite the province’s being a new entity, it has some features that might have under current in the diffusion of innovation in the island.

In addition, the institutional structure is discussed to give an idea on the status of the province in relation to other administrative units in the Philippine’s government setting. There is also a discussion on the policy reform (decentralization) that had been the foundation in the creation of 5 municipalities in the province.

3.2 Geographical Setting

An archipelago of 7,100 islands, Philippines is bordered on the east by the Pacific Ocean; on the north and west by China Sea and on the south by Celebes Sea. The country has three distinct groups of islands. These are Luzon group, the Visayas group and the Mindanao group. The Visayas group is administratively sub-divided into three regions-Eastern, Central and Western Visayas. Guimaras Island is among the Western Visayan Region (Region VI).

Figure 3-1 Locational Map of Guimaras



The compact-shape of the island-province of Guimaras lies southeast of Panay Island and northwest of Negros Island. Its geographical extent covers approximately 122°27’30” to 122°45’00” E longitude and 10”19’30” N latitude. The island is separated from Panay by the 2.78 kilometres long Iloilo Strait and act as a natural breakwater for Iloilo province. The 11.11 kilometre Guimaras Strait likewise separates the province from Negros.(Figure 3-2. Provinces in Region VI)

Figure 3-2 Provinces in Region VI- Western Visayas

The province’s total land area is 60,457 hectares (ha), only 3% of the approximately 2,002,320 hectares regional total. Some 59,600 hectares comprise the mainland, Inampologan, Panobolon and Guiwanon islands while the remaining 857 hectares is made up of uninhabited islands.

Guimaras is composed of five municipalities namely: Jordan, Buenavista, Nueva Valencia, Sibunag and San Lorenzo.

The four municipalities are almost the same in land area, with only difference of around one percent from each other while San Lorenzo is the smallest. It has an area of 9,304 hectares representing only 15.40 % of the total land area of the province as shown in Figure 3-3.



Land Distribution by Municipality: Guimaras

Buenavista21.21%

Jordan20.86%

Nueva Valencia22.68%

Sibunag19.85%

San Lorenzo15.40%

Figure 3-3 Percent Share of Land Area of Each Municipalities to the Province

Each municipality is comprised of political and administrative unit called barangay. Table 3.1 shows the number of barangays administratively covered by the corresponding municipality. It is in each barangay where the basic aggrupation of socio-economic data emanates.

MUNICIPALITY AREA (HA)* NO. OF BARANGAYS

Buenavista 12,826 36 Jordan 12,611 14 Nueva Valencia 13,712 20 Sibunag 12,004 14 San Lorenzo 9,304 12

TOTAL 60,457 96 Source: DENR Region VI

Table 3.1 Estimated Land Area & Number of Barangays by Municipality: 1996

3.3 Guimaras’ General Land Use

The area used for agriculture in 1998 was estimated at 56,127 hectares (561.27 sq. km.), representing around 92.84 % of the total land area. Fishpond occupies about 641 hectares or about 1.06%. On the otherhand, the total forestland covers about 3,689 hectares (36.89 sq. km.) representing 6.1% of the total land area. Of this, 3,024 hectares of upland or 5% of the total land area was classified public timberland, 625 hectares of mangrove or 1.03% of total land area and 40 hectares (0.07% of total land area) was unclassified public land (Table. 3.2)



CLASSIFICATION HECTARAGE PERCENTAGE TOTAL

Certified Alienable & Disposable 56,768 93.9%

Agricultural 56,127 92.84% Fishpond 641 1.06%

Total Forest Land 3,689 6.1%

Classified Public Timberland Upland 3,024 5.00%

Mangrove 625 1.03% Unclassified Public Timberland 40 0.07%

TOTAL 60,457 100.00%

Source: Land Evaluation Party, Forest Management Service, DENR Region VI, 1998 (As quoted in Guimaras Socio-Economic Profile, 2001)

Table 3.2 Land Use Classification

Guimaras Province (1998)

3.4 Social and Economic Profile of the Province

3.4.1 Population Growth, Size and Density

As of 1995, the National Statistics Office (NSO) has registered a total population of 126,470 for the Province of Guimaras. This indicates an increase of 6.7 percent over the 1990 census of 117,990, the annual growth rate was 1.31 percent and the population density is 209 persons per square kilometer.

Table 3.3 shows the municipal breakdown of population and density. In 1990, Jordan, the provincial capital has the biggest population of 45,852 representing 38.90% of the population of the province. Buenavista has 41,435 persons accounted for 35.10% while Nueva Valencia has a population of 30,703 persons representing 26% of the total population. However, Buenavista has the greatest density of 269 persons/sq. km. Due to its big land area, Jordan has the lowest population density among the three municipalities with just 151persons/sq. km. However in 1995 the estimated provincial population density was 209, and Buenavista is still the most populous and Sibunag became the least populous.

In 1995 Census on Population and Housing, despite the reduction in the number of barangays due to the addition of the two new municipalities, Buenavista still had the biggest population of 37,681 people.



Municipality Population Land Area

(Ha) Gross Density

(per ha.) Percentage to

Provincial 1990 1995 2000 1990 2000 1995 2000 1995 2000

Buenavista 41,435 37,681 41,717 1,5384 12,826 294 325 29.79 29.49%Jordan 45,852 25,321 28,745 30,289 12,611 201 228 20.02 20.32%

Nueva Valencia 30,703 27,158 30,716 14,784 13,712 198 224 21.47 21.72%San Lorenzo 18,537 20,168 9,304 199 217 14.66 14.26%

Sibunag 17,773 20,104 12,004 148 167 14.04 14.21%GUIMARAS 117990 126,470 141,450 60,457 60,457 209 234 100.00% 100.00%

Source: NSO, 1995 & 2000 Census of Population

Table 3.3 Population Size and Gross Density by Municipality,Guimaras:(1990, 1995 & 2000)

Within the ten-year period from 1980 to 1990, the rate of population growth in Guimaras was estimated to average at 2.48% per year. Table 3.3 shows the population and average annual growth rate for the period 1980-1990 for the municipalities of Guimaras. It is interesting to note that the population of Jordan nearly doubled while that of Nueva Valencia decreased over the 1980-1990 period. The high average annual growth rate for Jordan (6.48) and the negative growth rate for Nueva Valencia (-1.58) may be indicative of the internal migration pattern in the island of Guimaras. However, due to unavailability of updated data on migration for Guimaras, the extent of population movement from Nueva Valencia into Jordan could not be adequately explained.

The provincial population growth rate for the period 1990-1995 is 1.31%, which is lower than that of the 1980-1990 figure. Generally, the average rate of population growth in Guimaras is still considerably higher compared to the average for Region VI (which is 2.48% versus 1.77% in 1980-1990 and 1.31% versus 1.38 in 1990-1995).

3.4.2 General Economic Characteristics

Basically an agriculture based economy, the major crops grown in Guimaras are rice (Oryza sativa L.), coconut (Cocos nucifera) and mango (Mangifera indica L) The other important crops include citrus fruits (kalamansi_Citrus microcarpa), cashew (Anacardium occidentale L.), sweet potato (Ipomoea batatas L.), vegetables and corn (Zea mays L.)

The Province has a total of 13,494 farms with an area of 32,713 hectares, 68.50% or 9,249 farms have an individual size of less than 2 ha and about 53.30% or 7,199 farms are owned by the farmers.



Rice is considered as the principal crop. Succeeding table shows the production data for the last five years (Table 3.4).

Particulars

1996 1997 1998 1999 2000

Production (MT) 35,616 35,830 34,691 41,176 44674

Irrigated 5,672 8,751 9,815 9872 11861

Rainfed (lowland and upland) 29,944 27,079 24,876 31304 32813

Area Harvested (Ha) 18,095 18,651 14,203 22933 19941

Irrigated 2,090 3,530 3,218 3958 4045

Rainfed (lowland and upland) 16,005 15,121 10,985 18975 15896

Yield/Hectare (MT/ha) 2.02 1.9 2.44 1.80 2.24

Irrigated 2.7 2.5 3.05 2.49 2.93

Rainfed (lowland and upland) 1.9 1.8 2.26 1.65 2.06 Source: PPDO, Guimaras, 2001

Table 3.4 Palay Production Area Harvested and Yield per Hectare

(Crop Years 1996 – 2000)

Equally important as agriculture is the marine fishery industry in the island province. She has been endowed with several fishing grounds rich in marine resources including the Guimaras Strait, Iloilo Strait, Panay Gulf and the Visayan Sea. Fishing activities are concentrated in waters surrounding the island, especially along 54 coastal barangays.

The island has 2,841 fishermen, who mostly use non-motorized fishing craft or banca, hook and line and gill nets fishing gears. The estimated annual total fishing production from July 1995 to October 1996 was 9,604 tons in which 92.66% or 8,899 MT were caught by artisanal fishing gears while 7.34% or 705 MT were caught by commercial fishing gears.

In terms of mineral resources, quarrying and lime production is the major earth resources being utilized for economic activity. The major identified mineral deposit in Guimaras is limestone which has an estimated reserve of 288 million metric tons located in Buenavista.



The second natural deposit being extracted is guano. There is also more than 36,000 metric tons of guano deposits in Nueva Valencia and Buenavista. Then, the only identified metallic mineral reserve in Guimaras is iron ore amounting to 1,800 metric tons located in Buenavista. Agricultural and industrial lime is produced in the island which are mainly transported to Panay and Negros provinces.

The Province is also being promoted for tourism. Since 1995, the tourism industry is being strengthened and supported by the national tourism office. Potential investors are encourage to approach the Provincial Planning and Development Office, whose staff were tasked to provide additional information about the potential of the province for investments. The Planning staff, both at the Provincial and Municipal levels will be able to furnish such information as land use plans, socio-economic data and demographic trends, which may be invaluable to the investors (http://www.guimaras.gov.ph)

Because the development approval process is a municipal responsibility, it is these officials who administer such matters as building permits, zoning requirements and business permits. The municipal development approval process requires several steps, but these are generally handled efficiently and expeditiously, and can in many cases be completed within a week.

3.5 Evolution of the Province as a Separate Government Organization

The development of Guimaras and the steady growth of its population necessitated the splitting of the island town into municipalities in 1918 from municipalities of Iloilo. Finally, when the population had increased considerably, the island was given its municipal status with seat of government in Tilad, now Buenavista, and the old town site was in what is now called Old Poblacion (old town). Barrio Nagaba(village) became the Municipality of Jordan while the third municipality, Nueva Valencia, was created in 1941.

These three municipalities remained integral parts of the province of Iloilo until the creation of Guimaras into a Sub-Province in 18 June 1966 by virtue of Republic Act 4667 thereby giving the island more governmental autonomy. On 22 May 1992, the Sub-province was converted into a full fledged and regular Province by Republic Act. No. 7160. By virtue of Republic Acts No. 7896 and 7897 that were approved on February 20, 1995, two (2) additional municipalities, Sibunag and San Lorenzo were created in the Province, respectively.

Based on the decentralisation law, the province must have its own set of ordinances to govern her constituent. Thus, it has to formulate its local ordinances for taxation, asset management, environmental management and protection laws and spatial management guidelines like the land use plans.



3.6 Organizational Structure of the Province

Important for the diffusion and adoption of GIS in the province is the relationship between the province and other local government bodies.

The administrative government in the Philippines has 5 tiers:

1. The Chief Executive – through the Department of Interior and Local government;

2. The Regions – 16 regions

3. The Provinces – there are 79 provinces (July 2001)

4. The Municipalities, (1,496) and

5. The Barangays

Administrative governance in the Philippines is partly centralized and partly decentralized despite the decade of efforts in implementing the decentralization law. These mean that, there are centrally formulated laws, which overrules the local laws. However, municipalities are allowed to organize and manage their own housekeeping.

The adoption of IS including GIS in provinces as well as in municipalities in general view, is functional to their internal management although there is a recent requirement by the national government to have a uniform application Ω for civil registry.

The objective of the review of the local government of Guimaras is threefold. Firstly, to show the organizational structure where the Geo-information system was introduced (Appendix 2 ); secondly, to looked into the inter-relationship between or within departments where the diffusion in the organization may take place and thirdly; identify the changes in the structure that may be attributed to the adoption and implementation of GIS. The current structure (Appendix 3) shows the current organizational setting of the Provincial Planning and Development Office (PPDO).

Prior to the adoption and implementation of GIS and development of administrative support information system, the PPDO has 4 divisions based on the approved organizational structure when the provincial government was created (Appendix 4).

The Planning and Programming Division is tasked to formulate the annual plans and program of the province. It is also the group that initiate the long term plans of the province based on the vision and goals of the constituents.

Ω Provided by the National Census Office



The Research and Statistics Division is in charged of demographic and economic data as well as responsible for conducting research related to policy formulation of the province.

Special Project Office is preparing project proposals that need funding from other sources or cannot be implemented within the programmed plans and budget for the year.

Administrative Division is the support staff of the PPDO department in delivering it’s major functions especially data and information about the province.

3.6.1 Restructuring of PPDO

The focus given to the use of GIS and development of other information systems call for the creation of another division. This new division called Management Information Division was added to respond to the need for an organizational structure that shall be responsible for system implementation and development of more applications as required by the user and by the management. Automated systems that are being foreseen as a catalytic tool to the development agenda of the local executive.

Although it was not reflected in the formal organizational structure, it was revealed that there is no distinction in terms of functions and duties the technical personnel can perform vis-a-vis his/her role in systems development and implementation. The Office Head of PPDO post it as a challenge on how to re-structure the Office with all this application development and becoming a burden to the existing load of the PPDO.

At the time of the Study, the officer-in-charge of the Planning and Project Division function in a concurrent capacity as the head of the GIS/MIS division, being the champion for both the GIS and other systems being developed and/or maintained at PPDO.

As more and more systems are developed, data sharing is inevitable. Thus, it affects and gradually changes the flow of work within the Department. This resulted to the gradual loss of boundaries between divisions in the performance of its functions. This is evident between the Statistics and Research Division and the MIS in terms of data banking.



Figure 3-4 Data Flow From and To the Provincial Planning and Development Office

Summary

What has been covered in this chapter is the general profile of the province. The general land use, socio-demographic profile as well as economic profile were covered to build up the scenario on the different characteristics of the study area. Then, the institutional set-up is described to provide a picture on where the mechanism called governance is operating.

This institutional set-up or organisational structure has many departments or division doing different government functions. In performing these functions, different technological innovations were adopted and used to compliment to the role of the department, section or unit. In the succeeding chapter, one of these technological innovations called GIS is discussed. Specifically, how the knowledge about it was introduced to the Province and how it is used and for what purpose.



4 GIS Diffusion, Adoption and Implementation in the Province

4.1 Introduction

The discussion in this chapter, presents how the knowledge on innovation called information and communication technology specifically the GIS was diffused to the local government of the province. The findings were based on the secondary and primary data gathered during the fieldwork in the Island Province of Guimaras and in other National Government Agencies that are involved in local governance but located in the capital city-Manila.

The interviews were carried out in a semi-structured manner. First, the Local Chief Executives- (Governor and the Provincial Administrator) were asked to comment on their decision to support the installation and or expansion of the information system within the provincial administration in general and specifically expanding the functionalities of GIS. The actual and potential end users like the analyst and programmers were asked on what they perceived are the most important factors that had contributed to the continues use of GIS in their department. Also, questions on for what purpose does GIS they think is more relevant in carrying out their job was posted for the technical staffs.

The review was patterned on the diffusion of innovation in organization as presented in the conceptual framework (Chapter 2; section 6). The period covered limits only from the time the province became aware of the innovation at the same time were given the hardware and software to implement the system. The review how the knowledge about the technology was transmitted to the organization is discussed. Then, this covers how the system was adopted and implemented and communicated within the organization. In this case study, the organization refers to the Provincial government as a whole with the Provincial Planning and Development Office as the locus of the adoption process. Further, the review looked into the conditions or environment in the organization where the system was installed and how is operating now.

4.2 Problems or Opportunities Which Influence the Adoption of GIS

Relatively being a new province, Guimaras was faced with a challenge of working double time to cope with the economic challenges in the region. Being small in land area, it has nothing much to offer in terms of agricultural productivity. Also, it has poor population (75%) which needs attention in terms of social services and economic assistance ( Chapter 3)



The province was then identified as member of Club 21. Club 21 was a name used to identify the provinces that were identified as the poorest provinces of the country and were given priority in terms of development initiatives in the early 90s. The development initiatives are concrete projects like the provision of basic services and establishment of small and medium rural enterprises that were expected to decrease the incidence of poverty.

The characterization of the province to be poor was used by the LCEs in scouting for various range of assistance provided to local governments. Conceived as new government organization, it had availed a wide range of assistance among national departmental government agencies, non-government organizations, international development cooperation agencies (USAID, CIDA, AUSAid) and national civic groups.

The economic problems were confronted by attracting investors and by tapping development oriented groups to support for the creation of favourable climate for micro-economic investment like in eco-tourism and marine ecological research. Thus, support utilities like paved roads, communication technologies and investor friendly governance made the province popular.

Information and communication technology was not left behind in projecting the image of the province to be modern and abreast with the new technology. This is on the perception of the then local chief executives that if the province is adopting the latest in technology, data will be accessible and decisions are easily made with less error. Committing less error (like the old province) in terms of resource management had also been aired as the minor yet equally relevant agenda of the current provincial administration.

To look into the detail of the inherent capacity of the Province in adopting information and communication technology (ICT), and the opportunities viewed from outside of the provincial government, the Strength, Weaknesses, Opportunities and Threats were re-constructed through the help of the staffs from planning and governor’s offices. The SWOT (Figure 4.1) was designed to validate the strategies that are now being implemented in relation to the development of an information system in some services provided to the public.

In summary, looking at the status of the implementation of information system including GIS, one can see that most of the strategies are being implemented. This is the case when the Applications that were developed were fine tuned to the priorities of the LCE. Also, evident is the strategy in acquiring additional knowledge about the technology by tapping the software vendor for staff development. Some of the discussion related to the status of GIS/IS implementation is covered in the succeeding sections.



Internal factors (IFAS) External factors (EFAS)

Strength - With existing parcellary map (paper) - Growth oriented Local Chief Executive - Staffs are eager to learn - With only Draft Land Use Plan(easy to modify-not yet approved) Open flow of communication between Planning and Governor’s off. With existing hardware to support GIS Application

Weakness - Rapid change of policy maker (election every 3 years) - Too focused on revenue generation (dis-placing other functions) - Few technical staff who are computer literate (other departments) - Inadequate financial resources Planning Staff less pro-active - At the onset of system design, some units(users) are not involved (trained)

Opportunities OS strategies OW strategies

Presence of Proposed Investor Projects from national line agencies (good governance) Some trainings related to use of GIS like planning and proj.. development NGO in the Region which can assist in GIS dev. Participative Constituents

Look for NGO that can help initial assist continuous training Encourage non-paying constituents to pay taxes to generate savings Match the Applications with priority of the LCE(ex. Environmental health) EXPLOIT

Enhance digital record keeping, retrieval of information and workflow between departments Scout for employees interested in GIS To let the technical staff continue attending training on GIS GIS Champion map out recommended investment site (prove usability of GIS)

EXPLORE

Threats High prices of software and hardware Decreasing financial support from national govt. Good Paying GIS career in private sector

ST strategies Explore vendors that has least cost and good maintenance package Generate saving thru short-cutting paper works for clients (permits) ATTACK

WT strategies Improve the workflow between the departments so as to satisfy customers. Look for other sources, like LGUs that can help in training, or share experience Provide non-monitory benefits like study tour for technical staff Gradual acquisition of hardware (not in bulk) AVOID

Table 4.1 Table _ Strength, Weaknesses, Opportunities and Threats

(GIS Implementation in Province of Guimaras)

4.3 Situational Analysis of Province’s Information System

In the previous section, it was mentioned that the LCEs are tapping opportunities by accessing technical assistance for capability building of its organization. One of the outcomes of resource mobilization is the training on the use of GIS for land use planning. The training was supported by the hardware and software necessary for the implementation of GIS which was donated to the provincial government by the Canadian International Development Assistance



(CIDA). Among the components that were given emphases is the generation of geo-spatial data per barangay Θ.

The technological, organizational and processes how these data were generated as an information for the project and the province were reviewed using both secondary data and result of the semi-structured interview. The organizational model where GIS was laid in the province was also looked into (before and after the systems). This is expected to show the relationship between the province and the municipalities planning processes and the sharing of data/ information. This is because the trend of municipality’s being weaned from the provincial government is encouraged giving the latter more autonomy in running its governance that may also include information system development and management. These municipalities are expected to have their own land use plans, taxation laws, community projects, etc. All these activities necessitate timely and effective information that may be facilitated by the advent of GIS in these municipalities.

4.3.1 Diffusion of GIS Technology

First, the diffusion of knowledge about the GIS came formally to the organization through a workshop/training on spatial data input. The training is a component of a project called Local Government Support Program (LGSP) funded by the Canadian Government. The Project aims to provide technical assistance to local government units in their preparation of land use plans. The Project had only reached the data processing and was not able to produce the land use plans due to non-availability or inadequacy of input maps (terrain, elevation maps) necessary for analysis.

However, the GIS is used for other application. The stages of innovation process as it proceeded in Guimaras is illustrated in Figure 4-1. It shows the activities in each stage of the model and matched with the occurrence in the case study area. This is in a way going back to the framework of the study (Figure 2.3)

Θ Barangay is the smallest political unit under the municipality.



STAGES IN THE IN-

NOVATION PROCESS MAJOR ACTIVITIES GUIMARAS CASE

I. Initiation Information gathering, conceptual-izing, planning for the adoption, decision to adopt

Awareness Building through Training

1. Agenda Setting Organizational problems which need innovation were defined; search of innovation with potential value

There is a pre-condition that the innovation be used for the identified purpose (land use planning)

2. Matching


- - - -- - - - - - - - - - - - - - - The Decision to Adopt - - - - - - - - - - - - - - - - - - - - -

II. Implementation Putting the Innovation into Use Spatial Database for LUP 3. Redefin-ing/Restructuring

(3) Innovation modified and re-invented;

(4) Organizational structure al-tered for innovation

The System was used instead for Rural accessibility Project and; Minimum Basic Need Project

4. Clarifying Relationship between Innovation and organization defined as the In-nov. is used

Re-direction because of new priorities

5. Routinizing Innovation becomes element in the organization

Phasing in of several applica-tions

Figure 4-1 Phasing In of GIS in Guimaras Province

The Local Government Support Program in Phase I was for data management. For Phase II, the request for assistance is for capability building on the use of GIS for Land Use Planning. This activity is on going during the conduct of the study. Side by side with GIS functionalities for land use planning is the hands-on training on the newly acquired GIS software for parcel based planning to complement the existing software.

There was a period that the use of GIS functionality was not maximized when the provincial management set another priority in terms of information systems’ application development. The applications have to conform to the over-all priority objective of the new administrationη. In effect, the new software and hardware were procured but more for routinary public services

η In 1998, there was a local election and the new local chief executives have changed the priority agenda of his governance



functions of the provincial administration like local finance and administrative functions exemplified by the accounting and payroll systems.

4.3.2 Adoption of the Technology

Following the framework used in looking at the diffusion of technology at the province, there is a stage that leads to system implementation. Initially, the idea of adopting and using GIS was not immediately perceived as the most needed tool or the best solution to the problem. The point is, there is an opportunity to use the technology for a work that needs to be done and which is better and provide fast results.

The adoption of GIS in Guimaras has to face the complexity of the existing organization. As mentioned, the knowledge plus the hardware and the software component of GIS was introduced to the province as a technical assistance with ultimate goal as technical input to the preparation of land use plans. The training enabled the participants to prepare base maps that were used as input for land use planning. In Figure 4.1, (item 3 column 3) it shows that GIS was used for Minimum Basic Need Project and Rural Accessibility Project.. The Provincial Government has another priority concern which need to be supported by the PPDO. The Province needed an analytical tool in identifying the best location for each identified projects under these two Project. Having the technology at their disposal the PPDO utilized the GIS to make site analyses of areas recommended for project implementation.

4.3.3 Re-invention in Terms of Application

This section elaborates the Clarifying and Routinizing Stages (Figure 4-1, item 4 & 5). The Provincial Planning and Development Office modified the use of GIS to serve other purpose. They utilized GIS in the course of implementing other projects, thereby modifying the purpose for which GIS was originally intended. The situation, operationalised the concept of Re-invention. What had took place, was that using GIS for multiple purpose makes the adoption a lot faster.

Having GIS in the PPDO open more possibilities in the expansion of the Information System that evolved after the perceived gain of GIS in the project planning. The output of the interview revealed that GIS was used for various applications. In 1995, it started as a tool for spatial database in preparation for land use planning. Figure 4-2 shows the applications that had evolved within the PPDO. It can be noted that in 1997, three non-GIS systems were developed as a response to the new development priority of the LCE. However, in year 2000, with the procurement of additional GIS software, interfacing happens in the real property tax assessment application and the start of a new project for Physical Framework Planning. There are other stand alone applications being used by the national government agencies that are present in the province (i.e. Department of Health, National Mango Research Centre, Department of Tourism) but are purpose specific and has minimal access of data from the PPDO.



APPLICATIONS 1995 1996 1997 1998 1999 2000 2001

Data Banking

Rural Accessibility

Project

MBN Project

Personnel IS

Accounting System

Real Property Tax

Assessment

Land Use Planning

Physical Framework

Planning

Data banking Admin. Support GIS Interface

Figure 4-2 Systems That Were Developed in the Province

4.4 Factors That Contributed in the Adoption and Implementation

The previous sections mentioned how the diffusion and adoption of GIS take place in the province. It is recognized in the earlier work that critical factors has contributed in the adoption and continuous implementation of GIS (chapter 2 section 6). Based on the review made in the province, several factors were identified that had contributed for the continuing implementation and expansion of GIS. In general, there is a perception that use the of GIS has relative advantage over manual mapping operation for land use planning and other project planning activities that may come along to the province. Also, GIS is perceived to bring prestige to the province for having GIS considering that the Province is new, and with low income compared to old provinces. The status had boast the moral of the GIS champions and the local chief executives.

Some of the factors identified in the province shall be elaborated in the succeeding paragraphs. These are:



a.) Knowledge About the Innovation – as mentioned in the Framework, this factor is manifested by the presence of GIS Champion and/or Technical consultant in addition to the knowledge gained during the initiation stage of diffusion. For the case of Guimaras, she has a GIS Champi-ons. From the introduction of GIS until the duration of the study, there was no change in lead-ership and group of technical people within the Provincial Planning and Development Office (PPDO). This has contributed to the continuous utilization and expansion of the information system/GIS. They are the technical personnel who take extra effort to acquire additional techni-cal knowledge to improve the system.

The two champions at the PPDO were responsible for maintaining the GIS systems and data files during the period that the System was less prioritized in favor of other applications that were developed to support the administrative operations of the provincial office.

Tapping of other sources of knowledge, attending fora and symposia related to the expansion and other applications of GIS were realized through the effort of the Champions.

b.) Political Support – this is manifested by the support of the decision makers or in this case re-ferred as the Local Chief Executives. Support is evident in the form of continuous provision of budget and issuance of memoranda and directives to support the GIS/IS. Data shows that, in the initial stage of GIS adoption in the Province (1995-1996) the hardware and software was pro-vided side by side with the training and hands-on workshops. They received 7 units of personal computers and 1 server from the Local Government Support Project. The Planning Officer men-tioned that they already spent 200,000 pesos in year 2000 for computerization and general revi-sion. Table 4-2 shows budget allocation for expansion and maintenance of information technol-ogy. Furthermore, the PPDO affirmed that the re-vitalization and expansion of the GIS for Physical Framework Planning and ultimately for parcellary mapping for Real Property Tax As-sessment has full support of the governor and the provincial council as indicated by the budget allocated for the procurement of hardware and software. Proposals for purchase of equipment, training on computer use and creation of a new division that will handle the system have simultaneously happened in the same year (1997). The same year posted also a big budget for hardware and software.

Year IS Component

1997 1998 1999 2000 2001

Software 450 50 0 0 990 Hardware 750 50 100 500 500

Table 4.2 Budget Allocation for InformationTechnology (In Thousand Pesos)

c.) Relevance to the Organization - Like any other new projects introduced, the success of adop-

tion and implementation of GIS in Guimaras was attributed to the strong political support the LCE gave to the development and maintenance of the system. Categorically, it was identified by the Champions that there is political support because the governor is aware of what the system can do and identified possible benefits of the system. This is focused on the usability of the sys-tem for Tax Mapping and Physical Framework Planning.

d.) Continuous Staff Development- The additional knowledge about GIS is being accessed by the

technical staffs through trainings, visit to other local LGUs or in gained from professional or-ganizations. For PPDO staffs, they are attending trainings related to information technology and systems development. There are also trainings conducted by the national departmental agencies



(Department of Agriculture, Health, Census) but were not reported. The actual figures were not accessed due to absence of consolidated data on human resource development of the province. What was positive in terms of staff support for system implementation is that the newly acquired GIS software has a 5-year maintenance and staff development package for the staffs that will be involved with the GIS in the entire provincial organization.

In summary, the availability or accessibility of Hardware, Software and Data was also found to be necessary as well as the Organizational Support. However, the technical personnel who were interviewed emphasized that with the Knowledge factor and Political factors present, the last two factors can be covered or built in the first two factors.

4.5 Diffusion Within the PPDO and Among Other Departments

From the initial “one man band”, the information system group had increased to six, plus two staffs from the Statistics division who also assist as data encoder. Although, there is no formal appointment (only by contract) except for one systems analyst and programmer, the manpower build-up is stable and will increase in number once the appointments are approved for the unit to hire additional computer programmers.

The organizational re-engineering is on the drawing board as mentioned by the provincial administrator. However, detailed manpower plan per division has not been finalized due to some inconsistencies in civil service rules vis-à-vis the structures being envisioned by the management after the full system implementation.

Summary

The diffusion, adoption and implementation of GIS in Guimaras has some slight variation from the model described in the Framework. In the Agenda setting stage, the Province had problems to carry its functions but had not seen technology as the immediate solution. However, the condition was that the technology was introduced with the pre-condition purpose which was willingly adopted, implemented and re-invented. The re-invention was made because of the presence of critical factors. These factors are: Knowledge About the System, Political Support, Relevance to the Organization and Continuous Staff Development. These are the factors that propelled the continuous development of GIS and its expansion for other applications in the province of Guimaras.

Secondary reasons worth to be mentioned is the attention continuously given by the national department agencies to Guimaras. This means that, when there are new projects for provinces, Guimaras is more often included. The Governor said that indirectly, this compels them to update data and be abreast with the development in information technology and development strategies for governance.

On the contrary, the information system at the province is confronted by some institutional problems that may jeopardize the expansion and adoption in other departments. This is



because at present, there is still less effort in the part of the PPDO to extend training opportunities related to the system especially GIS spatial analysis functionalities, to other departments like the engineering and the assessors office.

As the situation in the Province was laid down, the next chapter will try to look into what is happening in the municipalities within the Province.



5 GIS Diffusion and Adoption in the Municipalities

5.1 Introduction

The previous chapter discusses how the knowledge about GIS had been diffused to the Province. Specifically, covered are the purpose to which the system was designed for; the institutional setting that favoured for the expansion of the system and the current status of GIS in the Province. Subsequently, as one of the objective of this Study, this chapter looks on how the knowledge of GIS was shared to the municipalities under the administrative jurisdiction of this province. The data are derived from the interview conducted in five municipalities and also from secondary data.

There are three levels of interviewee that were identified for each municipality. They are the local chief executives represented by the mayors; the council member-representing the local legislative group and the technical personnel where the GIS is perceived to be adopted.

The result of the interview was processed through a Relational Database Management System(RDMS) MSAccess (Appendix 5) which was designed to manipulate and analyse the responses from five municipalities. The RDMS was used to ensure that multiple answers by each respondent are counted each as unique response. Also, this facilitated to establish relationship between and among variables identified in the research. To illustrate, a query can be done in the database to know which application the respondents from one municipality prefer. (Appendix 6). On the other hand, statistical tool requires certain number of population to make inference from the processed data. Thus, the RDMS was used considering that there are only 5 municipalities that were covered with limited respondents as purposive sampling was done for staffs who had attended training when GIS was introduced to the Province and Municipalities.

5.2 Diffusion from the Province to the Municipalities

As compared to the situation in the province, the adoption of technology like GIS does not immediately followed after the municipalities had gained knowledge about the technology. The local leaders lack the appreciation for the use of technology in governance in general, and to the planning process in particular. The five municipalities within Guimaras is no exception. These municipalities normally prioritized basic administrative services like property registration, taxation and civil registry but using the old paper record system. Planning and policy formulation came on the least priority of local governance. Thus, the chance for the



automation and adoption of information systems is getting slimmer (business registration, birth registration, etc.).

Figure 5-1 shows the status of innovation process in 5 municipalities. These municipalities recognized that GIS could facilitate planning process and decision-making. A sound planning that is expected to trigger project and financial resource accessing for development projects. The succeeding items explains the organizational environment in the municipalities that trigger, compliment or hamper the adoption of GIS for local governance. Also discussed are the varied ranges of perceptions in five municipalities about GIS.

Figure 5-1 Status of Innovation Process in Five Municipalities

STAGES IN THE INNOVATION PROCESS

MAJOR ACTIVITIES Buenavista Jordan

Nueva Valencia

San Lorenzo

Sibunag

I. Initiation Information gathering, conceptualizing, planning for the adoption, decision to adopt

Knowledge About GIS was simultaneously introduced to the municipalities but there was no follow up on awareness building

1. Agenda Setting Organizational problems which need innovation were defined; search of innovation with potential value

Problems were identified but technology was not the immediate solution

Problems were identified; looking for org. that can help implement GIS

Problems Defined but found technology not an immediate solution

For both municipalities, the need to have land use plans were prioritized to meet the deadline set by the National Government

2. Matching


There is no matching, the LCEs have short term development agenda. Does not match with the plan

System proposal was developed

ON the discussion, if RPT assessment shall be implemented with GIS

For Land Use Planning and Resource Management

For LUP and Project ID

The Decision to Adopt No Adoption Adoption Status Quo Adoption Adoption II. Implementation Putting the Innovation

into Use Fund

Sourcing Tapping

Consultancy Group

3. Redefining/Restructuring

o Innovation modified and re-invented; o Organizational structure altered for innovation

4. Clarifying Relationship between Innovation and organization defined as the Innov. is used

5. Routinizing Innovation becomes element in the organization



5.2.1 Linkage of the Province to the Municipality

The diffusion of knowledge about GIS was simultaneously introduced to the five municipalities in 1995 when the Municipal Planning and Development Coordinators (MPDCs) were trained about GIS and were involved in initial base mapping for the province and for their respective municipalities. The technical personnel and the MPDCs were able to echo the knowledge learned about GIS to their respective LCEs. However, in two municipalities (Nueva Valencia and Buenavista) the appreciation of the technology dissipated either due to the change in leadership or resignation of the MPDCs who are expected to lead on the implementation of the system. On the otherhand, in Sibunag, neither the lost of input data nor the changed in technical personnel of the MPDO, affected the plan of the mayor and the council to utilize GIS, to fast track the land use planning process

The result of the interview revealed that they were not able to pursue adopting GIS in their respective municipalities due to several factors. The major constraints that were identified by technical personnel from the municipalities at that time are the lack of software and hardware for each municipality since the technology component of the assistance was only provided to the province. In addition, since the full utilization of GIS at the province was set aside in favour of administrative support systems to be developed by the same unit at PPDO, the momentum was lost for the municipalities to gain additional knowledge about the GIS.

The technical personnel of the new municipalities had identified that the change in leadership within the Planning Unit of the municipalities had hampered the full appreciation of the usage of the technology. On the otherhand, the two old municipalities are waiting for the full operationalization of the system in the province while the other old municipality (capital) is tapping other possible source of support (funds, training, hardware and software) for the initial implementation of GIS. This shows that not all municipalities are relying on the leadership of the province to adopt the System.

The table below shows the decision in two levels and its effect on the current status of GIS adoption in each municipality.

. MUNICIPALITY MPDC LCE Status

BUENAVISTA √ ≠

No Adoption

JORDAN √ √

Pre-Implementation*

NUEVA VALENCIA

√ ≠ Status Quo

SIBUNAG √ √

Pre-Implementation*

SAN LORENZO √ √

Fund Sourcing

Legend: √ - Adoption ≠ Non-Adoption *Bidding, Hardware acquisition



Table 5.1 Adoption at Different Stages Within Organization

5.3 Agenda Setting in the Municipalities

So far, Figure 5-1 showed that all five municipalities have not yet implemented GIS. In a way, this allowed each municipality to prioritise their own problems and identify the Application where GIS is perceived to be useful. Table 5-2 shows the preference in each municipality, as for what purpose, GIS be implemented.

RespondentId positions Municipality Purpose

9 tech_other_office Buena Vista Tax Mapping 6 chief_mpdo Buena Vista Administrative Purpose 8 municipal_council Buena Vista Real Property Tax Collection 5 mayor Buena Vista Real Property Tax Collection 9 tech_other_office Buena Vista Real Property Tax Collection 7 techstaff_mpdo Buena Vista Real Property Tax Collection 3 techstaff_mpdo Jordan Infrastructure Development 1 mayor Jordan Tax Mapping 2 chief_mpdo Jordan Civil Registry 4 computer_prog Jordan Land Use Planning 3 techstaff_mpdo Jordan Land Use Planning 2 chief_mpdo Jordan Administrative Purpose

11 chief_mpdo Nueva Valen- Administrative Purpose 10 mayor Nueva Valen- Solving Boundary Conflict 14 tech_other_office Nueva Valen- Tax Mapping 12 computer_prog Nueva Valen- Tax Mapping 13 former_mpdo Nueva Valen- Planning and Budgetting 13 former_mpdo Nueva Valen- Tourism 13 former_mpdo Nueva Valen- Environmental Resource Planning 12 computer_prog Nueva Valen- Land Use Planning 21 municipal_council San Lorenzo Project Identification 20 mayor San Lorenzo Land Use Planning 21 municipal_council San Lorenzo Real Property Tax Collection 20 mayor San Lorenzo Cadaster Database 22 chief_mpdo San Lorenzo Data Banking 23 computer_prog San Lorenzo Land Use Planning 24 former_mpdo San Lorenzo Land Use Planning 15 mayor Sibunag Environmental Management 15 mayor Sibunag Cadaster 15 mayor Sibunag Land Use Planning 18 techstaff_mpdo Sibunag Project Location 19 former_council Sibunag Land Use Planning 18 techstaff_mpdo Sibunag Land Use Planning 16 municipal_council Sibunag Project Development 17 chief_mpdo Sibunag Real Property Tax Collection

Table 5.2 Preferred Application per Municipality



Matching with her prevalent problem of low collection rate in terms of real property tax collection, the municipality of Buenavista, favoured that GIS be installed as a tool for real property tax collection. On the otherhand, in Jordan, the technical staff and the computer programmer opined that GIS is first be used for land use planning while their mayor’s preference is for tax mapping. The mayor’s logic was that tax maps can aid in generating more income from real property at the same time data could be an input for land use planning. Understandably, San Lorenzo and Sibunag being new municipalities prefer to use GIS for land use planning, project identification and site selection for government-initiated projects.

5.4 Component for Automation

The technical staffs recognized that not all component of the system could be automated. They have recommended component of the System that need to be prioritised for automation. It can be noted that the two new municipalities wanted the system to work for complex functionalities like database for cadastral mapping and data analysis. On the contrary, the three old municipalities, wants data encoding for immediate automation or make use of the computer. It is worth to emphasize that for the municipality of Nueva Valencia, the current technical staff wanted to use computer for data banking and map production. This means only for the input and output part of the whole process. This implies, that at this stage they prefer to do the analyses manually. The differences per municipality are shown in Table 5.3.

RespondentId MunicipalityID Positions Process Application

18 Sibunag techstaff mpdo Data Analysis19 Sibunag former council Data Analysis19 Sibunag former council Project Planning 24 San Lorenzo former mpdo Data base of land parcels 23 San Lorenzo computer prog Cadastral Mapping of Brgy 13 Nueva Valencia former mpdo Data Encoding14 Nueva Valencia tech other office Data Encoding12 Nueva Valencia computer prog Base Mapping12 Nueva Valencia computer prog Data Analysis13 Nueva Valencia former mpdo Map Production

3 Jordan techstaff mpdo Data Encoding4 Jordan computer prog Data Banking3 Jordan techstaff mpdo Data Analysis4 Jordan computer prog Map Production 7 Buenavista techstaff mpdo Data Encoding9 Buenavista tech other office Data Banking7 Buenavista techstaff mpdo Final Output Presentation

Table 5.3 Component of the System Prioritized for Automation

The Local Chief Executives as well as the technical staffs has recommended as to which division, they found GIS to be lodged. In some instances, the recommendation for the



intended use does not fit as to the unit recommended to handle GIS. Recommended unit for each municipality are found in Appendix 7.

5.5 Factors Perceived That May Influence Decision to Adopt and Implement GIS

The previous section discussed that all the municipalities have acquired knowledge and appreciate the GIS as a tool for governance either for planning or for any other applications. Lack of Hardware and Software then, were given as the main reason for non-adoption of GIS. However, based on the interview, the Technical personnel identified the presence of GIS Champion or Technical Consultant as well as Political Support as three critical factors necessary for the adoption and implementation in the municipalities. What had been identified are more on the organizational need for system development. Out of the 17 technical personnel that were interviewed, only three mentioned that technology like the hardware and software should be prioritised for the implementation of the system. The more common need as perceived by the technical personnel are political support of the LCE, presence of GIS Champion or availability of technical consultant at the development stage of the GIS. This is on the belief that once they got the support of LCEs, it is easier to find ways to implement the system. This is further explained in the succeeding sub-sections and shown in Figure 5-2.

Figure 5-2 Identified Factors Necessary for GIS Implementation in the Municipalities



5.5.1 Political Support

Political support was considered as the most crucial factor identified in the towns of Buenavista and Nueva Valencia. The case is validated by the responses of both LCEs that they have not yet looked into the possibilities of using GIS and are waiting on the outcome of the implementation in the province. On the otherhand, in the municipalities of Jordan, San Lorenzo and Sibunag, technical personnel said that they already got all the political support they need as shown by each mayor’s interest in implementing GIS as urgent.

Also, one of the major reason why the technical staffs want for the immediate adoption and implementation of the GIS, is that the LCEs had just take oath of their office for the next three years. The Champions said that getting political support is back to square one should there be a change in the LCEs after three years.

5.5.2 Presence of GIS Champion

Having a GIS Champion in the municipality to continue putting forward for the adoption and implementation of GIS is a major factor felt in municipalities of San Lorenzo, Nueva Valencia and Buenavista. These three municipalities are the LGUs that experienced the changes in the MPDCs who originally had attended the training about GIS. On the otherhand, Jordan and Sibunag just have to ensure that those Champions may maintain their enthusiasm in adopting the GIS or else, there is a risk that the implementation of the system will not see be pursued.

5.5.3 Technical Consultant

For municipality of Sibunag, the LCE perceived that despite of the knowledge of people within the planning and agriculture divisions about GIS, he still find the presence of a technical consultant necessary in the initial stage of GIS implementation. Also, the municipality of Jordan, find the presence of a technical consultant necessary to stir awareness about the system until it is installed and operational and that considerable staff are trained to maintain the system.

In summary, the three factors mentioned are somehow consistent with the factors mentioned in the conceptual framework of the study. These factors are influential for the continuous implementation of GIS/IS in the province. It can be noted that the technical component of the system like hardware and software are less perceived to be prioritised in the adoption process of GIS.



5.6 Awareness Within Different Units in the Municipalities

Despite that non of the municipalities have implemented GIS, knowledge about the technology have been shared to other units in the municipality.

The mixture of units that is aware of GIS as a tool for planning and project management varies from municipality to municipality. Example for Sibunag, the municipal agriculturist and the municipal planning and development coordinator are those working for the adoption and implementation of GIS. The reason for the adoption is anchored on the belief that it will facilitate the land use planning to meet the set deadline by the national government office (DILG). Secondarily, the LCE foresees that GIS can help in his decision making process.

This shows that the diffusion of knowledge about GIS is not limited to people who initially attended the training at the PPDO. Within each municipality, awareness about GIS were provided by several agent of innovation. Also, there is sharing of knowledge intra and interdivision. Although the research had not go in details of the interaction between offices, by function, it suggest that diffusion about GIS is more likely to occur if the function of two offices are inter-related or using related data and in line with the development agenda of the LCE.

This is evident in the municipality of Jordan, when the technical staff from the engineering department aired that her office has more chances to access funds for infrastructure projects if they have the tool that can help them in site selection and decision-making during prioritisation of project areas at the shortest possible time. She pointed out that with the limited funds for infrastructure projects, timeliness in the submission of proposals and project justifications are important, to be able to access project funds. She mentioned that GIS could be of great help to their job. For the municipality of Nueva Valencia, it is the municipal planning and development office (MPDC), Treasurer and Assessor’s office that are planning to source out GIS hardware and software for real property tax assessment.



Municipality Source of Knowledge

Adopter Other Sources Diffused To

San Lorenzo Province,

Former MPDC

MPDC Consultancy Grp; Other LGUs, National Gov. Agenices

Sibunag Former MPDC,

Agriculture Staff

MPDC/Agriculture Consultancy Grp.

N. Valencia Former MPDC, MPDC NGO, National Gov. Agenices

Treasurer Office, Assessor’s Office

Jordan Province MPDC NGO Engineering, Technical Working Committee

Buenavista Province MPDC NGO Treasurer

Table 5.4 Offices That Are Aware of GIS Per Municipality

5.7 Other Sources of Knowledge About GIS

The sharing of knowledge in different units of each municipality is enhance by additional knowledge from different sources. Almost all respondents from five municipalities said that they knew there is an existing GIS in the provincial government. Although some were not involved in the training and workshops, there was diffusion of knowledge about GIS relative to land use planning within different divisions in the municipalities.



It is also indicated that technical staffs within the MPDOs learned about GIS from former MPDCs. Information showed that, the NGO’s, NGA’s private Consultancy experience with other LGUs are other sources of knowledge about GIS. (Figure 5-3).

Figure 5-3 Contribution Per Sources of Knowledge About GIS

Two of the Mayors responded that, aside from the provincial government, they learned that GIS is a helpful tool for planning and project implementation, from visits to other LGUs while the other 2 learned from offers of assistance and information dissemination of non-governmental organizations that were engaged in participatory development for local government.

Generally, the local chief executives and the technical personnel from the municipal planning and development office (MPDO) of five municipalities were aware that the PPDO had adopted and continuously implementing GIS. However, most of the respondents have no idea on the extent of the use of GIS in the province.

The technical personnel from Buenavista mentioned that, he is aware that a system is being developed for property tax mapping but as to the status, it was not communicated to the municipalities. This was validated from the PPDO that there are yet no plans for a training program or project that show that there is an attempt for the province to share its knowledge/updates about the usage of GIS in the province.

However, the LCEs and the technical personnel from each municipality are acquiring knowledge about GIS through other means. The data had indicated that, the LCEs are learning the relevance of GIS from other mayors or from a trip to other municipalities using the GIS.

Sources of Knowledge

Former MPDC

National Agency

NGO

Other Local Government

Private Consultant

Province

Training



The situation shows that regardless of how GIS is implemented in the province, three of the municipalities still perceived GIS as one of important tools in carrying its services to the constituents. Then, based on the other sources of knowledge about GIS, the technical staffs and the LCEs where able to identify the government functions where they perceived GIS to be used. Summary

The starting part of this chapter, the status of GIS diffusion and adoption in five municipalities was tackled highlighting the current status of each municipality in terms of GIS adoption. The result of the survey revealed that despite the intention of using GIS for LUP, the municipalities has the option to decide for what purpose in local governance GIS may be used. Moreover, each municipality have peculiar conditions for selecting on which purpose they want GIS to be used as one of the tool for governance. Even with the same municipality, the technical personnel have different preference compared to the LCE. The technical personnel also identify components in the System that needs to be immediately automated. The reasons for adoption, non-adoption and efforts toward the implementation of GIS in each municipality are also taken up.

Factors perceived by the technical staffs necessary for the adoption and implementation of GIS were identified. It is also worth to mention that there is a continuous sharing of knowledge within LGUs. However, this is supplemented from other sources of knowledge like the NGO, other LGUs and other sources. The sharing of knowledge about GIS in each municipality is each to her own style or preference. This means that to which unit within the municipal organizational structure had gained awareness of GIS, is totally different compared to the adjoining municipality. .

This gives an idea that continuous training or infusion of information about the capabilities of GIS be continued in the municipalities who wants to gradually implement GIS.



6 Conclusions and Recommendations

This Study is an attempt to look into the case on how the technological innovation called GIS was diffused and adopted by a local government unit in the Philippine setting. A framework was designed and serve as bases of evaluating the diffusion and innovation process in the local government unit. The earlier model of Rogers (1983) was modified to include in the study the factors influencing the adoption and implementation process after the knowledge was diffused to the LGUs.

For the case of the Province, the model was still observable except for the first phase of the process. The province immediately adopted the technology without the benefit of prioritising first its problems but instead immediately adopted the diffused technology.

The condition of GIS implementation in the province became the benchmark in looking how the knowledge about GIS has diffused in each municipality. Conditions or factors that either lead to adoption, plan for adoption or deferment were identified. The review had attempted to find similarities or contrasting features that are unique to each municipality.

6.1 Conclusions

To put together the results and draw conclusions, the research objectives are re-visited. Below are the insights, the researcher found unique to the study area and substantiate the early concepts in the diffusion of GIS in local government. a.) On the Diffusion, Adoption and Status of GIS Implementation in the Province

The province of Guimaras had been a good example on how innovation like GIS was diffused and received or adopted in the local government unit. However, there are conditions or stages in the earlier model of innovation process that did not happen in the province. What is important is that in the province, the changes in the goal for which the system was used does not lead to the abandonment but leads to re-invention to adapt or match to the goal of the organization. Therefore, this supports the argument that not all technology that were pushed to the organization fail to flourish or expand its usage. It may then follow that diffusion of GIS succeeded because the organization was able to adopt it and make it adapt to organizational goals and conditions.



b.) On the Changes that Occurred as an Outcome of GIS Implementation in the Province

Initially the changes that had occurred is the ability of the unit in the organization (PPDO) to rethink that GIS should not be viewed as an immediate response to the idea of fast tracking the preparation of land use plans. Instead, GIS has lead to the development of other information systems. Distant as may be from the original intent of having an information systems in local government, however, it open possibilities for automation of other government services that are expected to improve services to its constituents. Organisationally, changes has occurred the way data is shared and manage within the planning office vis-à-vis with other divisions like the assessors and treasury department. There is still a long way for all divisions to have access to the spatial data generated through GIS, but the ball has start rolling to achieve this end. In terms of changes to the people handling GIS, the feeling of being up to date and adopting a sophisticated technology for governance in general and planning in particular makes the Champion more resourceful for the ultimate implementation and expansion of the system.

c.) On the Diffusion and Adoption of GIS in the Municipalities

Initially, there is an assumption made that the municipality being under the administrative guidance of the province, will in the same way patterns its activities in support to governance to the province. Specifically, it was assumed by the researcher that since both the province and the municipalities have the knowledge about the technology, it would follow its big brother. However, realization was made that municipalities make their decision relative to the adoption of GIS, regardless of the current status of GIS in the Province. Thus, utilization of GIS in the province does not affect the decision or the plan of municipality to use or not to use GIS for their governance. However, the municipalities since they have not immediately implemented the GIS, it gives each LGU to reconsider for which purpose they will use GIS that suits their goal. Municipalities want GIS because of the perceived advantage the technology will bring like having the correct information when the executive needs it and providing information also to its constituents.

d.) On the Identification of Factors Necessary for the Adoption and Implementation of GIS

It is often said that for GIS to adopted, we have to look which ground are we putting the system and what is present in its environment. For this case, each municipality has specifically identified what are her needs to be able to adopt and implement the GIS. The three major factors identified by most of the technical staffs are the political support, presence of GIS champion and technical consultants. There are deviations but for these 5 municipalities these



are main factors that were identified. It may then be said that the adoption will mostly lead to implementation as long as there is political support by the local chief executives, there is the presence of Champion that stirs the organization about GIS and the technical consultants will provide the knowledge to keep the system operational.

In the end, it can be said that for Guimaras, its municipalities may need the assistance of the province in terms of financial support but the local chief executives have their priority for GIS application that they found to be helpful for their governance. From the choices of the applications recommended for automation, one can say that the LGUs in Guimaras still need additional knowledge on the update of the capabilities of GIS and its multiple usage for governance specifically in decision making.

6.2 Recommendations

a.) On the Diffusion of GIS to the Province

The review had looked into the condition how the knowledge about GIS was diffused from one agent, that is the Overseas Development Assistance, to a relatively new province. It had phased in the institutional processes of the planning office and gradually phasing in to the processes in other departments of the province. However, not much has done in the continuous diffusion of knowledge inter-office wise. Thus, it is recommended that there should be continuous training or awareness building about GIS. First, to other major decision makers (Provincial Legislative Council), second, to technical staffs of other offices that will ultimately work with GIS based services, like the assessors, treasury and the accounting department.

However, there is a need to treat the information technology with caution relative to the ultimate changes that had to occur (as starting to happen) in the organizational structure. This is because, not as immediate, but the possibility of re-engineering the organization has already been looked as an option to support the systems operation.

b.) On the Decision to Adopt by the Municipalities

One of the reasons identified by the LCE for not implementing the GIS is the required investment for the hardware and software, since they have a perception for the implementation of a network based system (Jordan and Buenavista). However, taken from the experience of the Province, it is recommended that a PC base GIS seem to work for a small developing organization like the local government in Guimaras.

The Personal Computer based GIS will allow LCE to see result which will give them a sound bases to support for the expansion of the system.



6.3 Areas For Further Research

The Study was undertaken in the Province that has received technical assistance from diffusion to adoption and implementation of GIS. On the otherhand, the municipalities were only provided with the knowledge about the technology. It could be an interesting research, to look into the diffusion, adoption and implementation of GIS wherein the Province was the one initiated for the implementation and are the one convincing her municipalities to use GIS. This may give insight in the inter-intra organizational sharing or knowledge about the innovation between two levels of LGUs

The municipalities have echoed that knowledge about GIS were also gained from other sources, like; other local government units, non-government organizations, software and hardware vendors and national government agencies. It would then, be interesting to note until what level in system development should these other sources of knowledge provide their assistance or expertise to these local government units.

In the Province, it is evident that the local chief executives are looking into the option of re-engineering the bureaucracy as one of the parallel strategies in implementing different systems for governance. A study then on the current business processes vis-à-vis the processes that will be used with the technology is recommended to give a picture on the extent of the usability of technology for the desired changes in local governance.



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Appendices



Appendix 1 Organizations Involved in Land Use Planning in Guimaras



Appendix 2 Organizational Structure of the Province



Appendix 3 Provincial Planning and Development Office



Appendix 4 .Provincial Planning and Development Office without MIS



Appendix 5 Entity Relationship of DataBase Used in Analysing the Interview Results



Appendix 6 Government Functions Preferred for GIS Applications

Appendix 6-a Identified Factors Necessary for GIS Implementation in Each Municipality

RespondentId Municipality positions Purpose 5 Buena Vista mayor Real Property Tax Collection

10 Nueva Valen- mayor Solving Boundary Conflict 15 Sibunag mayor Land Use Planning 20 San Lorenzo mayor Land Use Planning

1 Jordan mayor Tax Mapping 15 Sibunag mayor Cadaster 15 Sibunag mayor Environmental Management 20 San Lorenzo mayor Cadaster Database

RespondentId Municipality FactorNeed 9 Buena Vista Political Support 7 Buena Vista GIS Champion 7 Buena Vista Political Support 3 Jordan Software 4 Jordan Software 4 Jordan Training 4 Jordan Budget 3 Jordan hardware

12 Nueva Valencia Political Support 12 Nueva Valencia System Plan 13 Nueva Valencia Info. Drive for Local Chief Exe. 14 Nueva Valencia Budget 14 Nueva Valencia GIS Champion 24 San Lorenzo Mayor Appreciate / understand GIS 23 San Lorenzo GIS Champion 18 Sibunag Technical consultant 19 Sibunag Technical consultant



Appendix 7 Proposals as to Location of GIS in the Organization

an islet in an island: the use of geo- information ... - itc · pdf file(case study: guimaras,...

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