The Hashemite Kingdom of Jordan

Information Age Policies and Strategies

An update of

JORDAN’S NATIONAL INFORMATION POLICIES & STRATEGIES


NATIONAL  INFORMATION  CENTER  STUDY –   August 1998

 

 

June  2001


Executive Summary. 1

I.1.   Vision and Information Policies & Strategies. 1

I.2.   Information Policies & Strategies in Perspective. 1

I.3.   Needs Assessment. 2

I.4.   Best Practices. 3

I.5.   Information Policy Framework. 4

I.6.   Strategies and Strategy Elements. 6

I.6.1 Cross-cutting dimensions. 6

I.6.2 Strategy Review. 6

 

 

 

I.1.             Vision and Information Policies & Strategies

Two years ago, during his speech at the World Economic Forum in Davos, Switzerland, HM King Abdullah II introduced his vision of Jordan as a knowledge-based society. Since that extraordinary speech, much has happened in the political, economical and technical fields at the global, regional and national levels.  Economically and politically the world has changed.  It is remarkable that the King’s vision is still so much alive.  It has been widely accepted and has been translated into a number of initiatives. Already the first results are evident and support for the vision has grown stronger.

However, a vision does not become reality just because it comes from the top. Policies and strategies are needed to guide its planning and implementation activities. The information policies and strategies formulated in this document should be seen in this context.  After the initial euphoria and enthusiasm, it is necessary to translate the vision and evaluate: (a) where Jordan stands, (b) where it wants to go and (c) how it will get there. The collective answers to these questions constitute the policies and strategies formulated in the following chapters.

I.2.             Information Policies & Strategies in Perspective

Formulating national information policies and strategies is a difficult and time-consuming task. It needs knowledge of the issues and matters, experience with cultural change and an appreciation of the history of the nation.  Fortunately, all these elements are available at the NIC through its experience with the National Information System (NIS).

Efforts have been made to establish the NIS since the mid-eighties.  At that time, the idea for such a system in Jordan was a long-range vision.  The NIC was established in 1993 to create, develop and manage the NIS.  A number of studies were conducted during the period 1993-1995 to determine the best approach for the development and implementation of that system. The NIC became aware of the need for information policies and strategies during that period.  On the basis of the studies conducted, and with assistance of the World Bank, the first version of the National Information Policies and Strategies was formulated in 1996. This version was later updated in 1998.

During the few years since 1998, information and information technologies, as well as the thoughts about these issues, have fundamentally changed. Many of the seemingly radical ideas and concepts expressed in the policies and strategies of 1998 are now widely accepted.  In fact, some of them currently appear almost trivial.  Other ideas expressed at that time are as relevant now, or even more relevant, as they were three years ago.  New concepts have also emerged that were not part of the previously formulated policies and strategies.  In particular, the vision of the King was instrumental in the development of these new ideas and concepts. These developments necessitated the update of the policies and strategies formulated in 1998.

I.3.             Needs Assessment

Any policy or strategy has to be based on needs.  Like those of 1998, the updated information policies and strategies are also based on a needs assessment.  But unlike the previous report, which utilized extensive market surveys, the current assessment relies on a number of recently completed initiatives and studies that address the needs of an information and knowledge based society.   The outputs of these studies and initiatives have been analyzed and represent a fair picture of the information economy in the public and private sectors.  

The reviewed studies/initiatives are:

1.  The NIS and its coordinating/administrating body the NIC;

2.  The initiatives of the private sector, REACH I, and II;

3.  The Education initiatives;

4.  Jordan Information Technology Community Centers initiative;

5.  The study on the Status of IT in the Public Sector;

6.  The study on Jordan’s IT Competitiveness.

None of the studies/reports directly mention that Jordan needs more or better information. Implicitly, however, every study and project document demonstrates the need for better information and knowledge. The same applies to the need to make better use of available information. This leads to the general conclusion that the value of information is still not sufficiently appreciated in Jordan.  Related to this conclusion are the following observations:

·           The concepts of "management information”, "marketing information" and "market research information" are hardly used. Yet to address a number of problems related to management and coordination these types of information are needed.

·           With few exceptions, IT departments/sections hardly support the core-businesses of the Government organizations. The notion that core-businesses can be improved by using specific information and information systems remains a novelty to many.

·           A considerable number of people are employed as operators, programmers and system administrators by computer departments of government organizations.  Within the government, there are very few designated system analysts, and no business or information analysts.

Some of the other, more specific, conclusions derived from the needs assessment are listed below:

1.        There needs to be much better co-ordination between the many activities and initiatives within the Information and Information Technology sector.   Such coordination is needed to avoid:

-          Overlapping activities that will result in a waste of effort and resources.

-          Isolated activities that will add little value and have a high risk of unsustainability.

Coordination will also ensure that the Government employ specialists who are sufficiently informed about the purpose and progress of the various initiatives and projects; 

2.        National Information policies and strategies are urgently required to provide the basis for co-ordination and management;

3.        There should be more sharing of information, particularly between government organizations. Many organizations claim information secrecy and the privacy clauses in their mandate to avoid such sharing;

4.        Information systems and resources for information system development need to be better shared  between government organizations;

5.        Administrative reform is hindered by the large number of independent and incompatible financial and human resource information systems in the public sector;

6.        The NIS needs to be completed and the quality of its content needs to be improved;

7.        The E-government initiative
Text Box: Studying the international “best practices” is a good way to learn from the experiences of other countries and to avoid mistakes. The best practices form a rich source of ideas and approaches, which can be considered for future application in Jordan. They provide also the opportunity to compare Jordan with other countries. This comparison may contribute to the strengthening of confidence and trust in the ultimate objective: the information and knowledge based society.

requires all available experiences in order to be successful.

I.4.             Best Practices

The  available resources to implement an information and knowledge-based society are limited.  The use of these resources should be optimized and mistakes should be avoided as much as possible. One way to avoid mistakes is to learn from experiences elsewhere. For this reason the best practices of the United Kingdom, Singapore, India, Egypt and Dubai have been analyzed.  These countries have made substantial advances on the road to the information and knowledge-based society. They were selected from a large pool of potential candidate countries  because they allow analysis of best practices of different types of economies and societies:

·           Developed as well as developing societies;

·           Arab as well as non-Arab countries;

·           Small as well as large countries;

The analysis focuses on: objectives, organization and approach.

Main conclusions:

1.        The road to an information and knowledge-based society is long and contains many obstacles.   There is not a single country that has fully completed this task;

2.        The objectives of information and/or information technology policies of the various countries are similar. They all focus on (a) improvement of government services, (b) enhancement of the competitiveness of the private sector and (c) improving the quality of life of ordinary citizens;

3.        The vigor and organization with which the policies are pursued differ very much. Not surprisingly, they are compatible with the type of administration prevailing in the related country;

4.        The importance of the policies and their implementation is reflected in the anchoring of the policy and implementation management: in all cases this is at a high, if not the highest, level in the government structure.

5.        The "digital divide" experienced in developing countries is seen as a socio-economic challenge.  In developed countries it is more likely viewed as an education issue;

6.        Comprehensive master plans are considered impractical.  It takes too long to prepare them and they risk becoming  obsolete at the time of their completion.  Instead, many countries rely on global policy frameworks and detailed plans made within these frameworks.

I.5.             Information Policy Framework

The purpose of the information policy framework is to focus national efforts on the realization of common goals and aspirations. They need to reflect a broad consensus. A framework should be applicable in the medium to long term (3 to 5 years) and should offer sufficient resilience to withstand short-term fluctuations. At the same time it should offer flexibility to accommodate changes in objectives and priorities. For these reasons the framework is formulated at a high level.  It represents the "what" and "why" rather than the "how" and "when".

Many elements formulated in the previous version of the National Policy Framework are still valid. They are retained in this update although they are sometimes worded differently.  Some irrelevant elements have been removed.  Many of the new elements are based on, or related to, the Internet.  Others relate to the vision of an information and knowledge-based society.

The structure of the policy framework chapter of the previous version has been retained, as it proved adequate to systematically cover all issues of interest.  Maintaining the structure also facilitates comparisons between the old and updated versions.

The result is a large and diverse number of policy elements that cover the entire field of information and information technology from a national viewpoint.  An overview of some of the more important issues covered is provided below:

·           The rights of individuals to the protection of their privacy;

·           The right of access to public information;

·           The availability, costing and pricing of information;

·           The standards, regulation and legislation needed for electronic information;

·           The priority of the government to serve its citizens;

·           The complementary roles of the public and private sectors in the information economy;

·           The elimination of barriers that hinder  public to access information;

·           The strength and growth of companies active in the information economy;

·           The quality of services and products of companies active in the information economy;

·           The telecommunication network as a national resource;

·           Text Box: A digital divide also exists in the public sector. It adversely affects the impact of information and information technology on the efficiency and effectiveness of the government and hinders the progress on the road to information and knowledge-based society. A focused educational and training program is needed to address this challenge.The utilization of the Internet;

·           Application and management of Information Technology in the public and private sectors;

·           Collaboration between the private sector and the public sector;

·           Culture as part of the national identity;

·           The collective responsibility for education and training in information and information technology skill and knowledge;

·           Marketing Jordan’s information and information technology capabilities;

·           The management and coordination on various levels.

I.6.             Strategies and Strategy Elements

Strategies are more practical and aim at a shorter period than policies. While the policy framework, describes the "what" and "why", the strategies focus on the "how". The strategy elements should be realizable within a period of approximately three years.

I.6.1     Cross-cutting dimensions

Strategies need to be seen from the viewpoint of the three cross-cutting thematic dimensions: natural, economic and human resources.  From this point of view, the strategies aim at:

a.        Improving, through better and more focused management, the benefits that the nation obtains from its natural resources;

b.        Increasing the diversity of the economic resources through the growth of information and information technology and the added value of their products;

c.        Enhancing the quality and increasing the quantity of human resources through improvement of the educational system.

I.6.2     Strategy Review

The strategy consists of a large number of strategic elements, each consisting of an objective, background information and one or more recommended actions. Following is an overview of the most relevant issues:

1.        The purpose and need for different types of information varies. Production, distribution, use and management depend on these aspects. In many respects, information can be considered as a commodity to which common rules should apply;

2.        Legislation is required for two core issues in the information age namely: (a) the protection of individual privacy and (b) the use of electronic documents;

3.        The public sector needs to increase the quality of its services to the citizens and the private sector.  It should consider the provision of these services as a high priority.  Information technology can play a key role in the process to improve its quality. Cooperation with the private sector in this field needs to be enhanced;

4.        IT departments in public organizations should shift the focus of their support from auxiliary administrative/financial services to core services. This will impact the complexity, reliability, availability and accessibility of information systems.  The quality of these systems need to be improved;

5.        Active businesses in the information and information technology sector need to contribute more to the national economy. They need to enhance their competitive position.  They also should become stronger and improve their management, quality control and marketing;

6.        Culture and information are complementary to each other. Information is needed to sustain a cultural heritage.  Cultural information is part of the basic needs of citizens;

7.        IT education has to be enhanced to increase the quantity and quality of human resources and to address the digital divide. Priorities should somewhat shift  from technology to content and information.  Certification is needed to further raise the standards of IT professionals and computer users. Professional institutes should support the establishment and maintenance of standards.

This document describes Jordan’s National Information Policies and Strategies. It is meant to cover the period 2001 - 2004. The document is an update of the 1998 report. The purpose of this update is to adapt the policies and strategies to the many political, technological, economical and sociological developments that have taken place since 1998.

The policies comprise a consistent set of principles and objectives applicable to information and information technology in the broadest sense. The strategies are a translation of these policies to more practical issues.

Both policies and strategies are needed to ensure compatibility and coherence of the various initiatives and activities in the field of information and technology. They form the basis for the required coordination.

Besides the introduction, this document consists of four chapters:

·           Chapter 2, The Needs Assessment, which evaluates the need for policies and strategies; This paper has deduced needs by reviewing recently completed studies and reports;

·           Chapter 3, The Best Practices, which analyzes the policies and strategies of a few other countries. The guiding principle for the selection of these countries, as well as the analysis itself, is the lessons that can be drawn from them and the availability of policy and/or strategy information;

·           Chapter 4, The Policy Framework, which contains policy elements formulated for eight different categories;

·           Chapter 5, The Strategies, which includes strategy elements for the above mentioned categories and are sub-divided by main stakeholder: citizen, private sector and public sector.

1.1             Background

Jordan is in a state of transition:  it has chosen to actively move towards an information and knowledge-based society, and already the ways and means of doing business and the quality life of its citizens are changing.   However, change creates uncertainty, which causes both excitement and apprehension. It can lead to successes but also to mistakes and failures.  As the business climate changes, new competitors and alliances emerge. This section provides background information about these developments and addresses them in a broader context.

1.1.1                    Global Developments

For many people in the world the latest information revolution has already resulted in more prosperity, better services and an improved quality of life. Businesses, governments and people embracing this revolution reap its fruits through easy access to an enormous wealth of information.

It is well known that information technology empowered by the Internet has been the driving force behind these developments and has become part of the daily life of millions of people.

The growth of the Internet was especially phenomenal during the late nineties. The so-called "new economy" became synonymous with fast growth. The extra growth attributed to Information and Information Technology in the USA is estimated to be 2 to 3 percent per year.

During the period 1998-2000, optimism about the future of these developments was without limits. The market value of Internet companies, the so-called "dot.com" companies skyrocketed on the stock markets. Then in 2001 the bubble burst and market values of technology companies plummeted.  A general slump in the IT business was the result.

Historically this pattern is not new. Whenever a fundamental new technology takes off, the optimism is at first boundless. This is reflected in unrealistic (in retrospect) expectations and valuations. The return to realism is often preceded by collapse of these expectations and valuations. It is important to note that fundamental changes, caused by the new technology, are not affected by fluctuations in expectations and valuations. After the return to reality, the changes continue as before but in a more sober atmosphere of hard work. The introduction of railways in the USA at the end of the 19th century is just one historical example of such a development.

History will most likely repeat itself again. The introduction of information technology in developed countries has already resulted in more than an increase in efficiency and effectiveness; it has changed forever the way of doing business.  The same can be said about the life of ordinary citizens in these countries.   In marketing, for example, the Internet was initially used as a cheaper and faster means of communication.   Later, as the people began understanding the full power of the Internet, marketing itself changed.  The Internet is now the prime tool to create and open new markets.

These irreversible changes will continue to grow, as will the number of people taking advantage of them.

1.1.2                    Regional Situation

The latest information revolution has not passed the Middle East region unnoticed and without influence. Many successful and important developments are taking place in the region.  In Egypt and Dubai, for example, there is more access to available information than ever before.  Compared to the USA and Europe however, there are two important differences besides the obvious cultural ones:

1.        Because of physical access, abilities and financial means, the percentage of people without access to information and information channels is much higher in the region than in Western countries;

The difference between people with access to information and those without access, the so-called “digital divide”, is growing.   Those with access are a privileged elite.    Unfortunately, this situation will worsen with the introduction of an information and knowledge-based society, especially in the short-term;  

2.        The region is politically and economically divided into a number of relatively small markets.  Smaller information markets imply  that it is more difficult for local information providers to profitably operate in a cost-effective way.  For a local hospital, for instance, it is not sensible to enable (potential) patients to make online inquiries on visit hours and and/or making appointments if only 3 percent of these patients have access to Internet (of which maybe 10 percent will potentially use the facility when wanting to visit their doctors).

Both differences have implications for information policies and strategies.   Blindly copying policies and strategies from the West could have serious economical and social consequences.

1.1.3                   
Text Box: A competitive advantage of Jordan is that its small size and population allows changes be implemented comparatively quickly. Combined with its stable political system and firm leadership, Jordan can move faster and be more flexible than many other countries on the road to the information and knowledge based society.

The Jordanian Context

1.1.3.1           Jordan Compared with the region

The above-described differences also apply  to Jordan. In some aspects, however, Jordan compares favorably with other countries in the region:

a.        The leadership and vision provided by H.M. King Abdullah II, means that priorities can be set and policies implemented without endless discussions;

a.        Through the NIC, Jordan has acquired a tradition of developing and implementing information policies and strategies;

b.        Deprived of the abundance of natural resources, Jordanians have developed a talent to consider new developments as an opportunity rather than a risk.

c.        The Jordanian people have adopted a traditionally liberal stance towards information;

d.        Jordan has a well-trained and educated population as an affordable resource.

1.1.3.1           Jordan in the World Market

With its small domestic market, the Jordan information and IT sector needs to turn to the world and the regional markets to seek clients and investments. In the short term, the slowdown of the international IT markets will most likely adversely affect the IT sector in Jordan.

However, this effect will most likely be temporary as the world markets are expected to recover slowly from the recent slump. Other threats may arise on the longer term, since Jordan's IT sector tends to concentrate on the lower end of the IT markets, which is more vulnerable to price competition. 

1.1.4                    National goals and priorities

The vision of H.M. King Abdullah II has played a crucial role in allocating a high priority to information, information services and information technology. In his vision they are considered as the key to:

·           Economic progress;

·           Social development; and

·           Improvement of government services.

Since 1999, the year that the priority was set by the King, a number of important initiatives were undertaken to promote information, information services and information technology. The most notable initiatives were in the field of E-government, promotion of the local IT industry and modernization of the education system.  The spectacular technical upgrading of the telecommunication infrastructure also belongs to the early achievements.

1.1.5                    Need for co-ordination, policies and strategies

Jordan is eager to reach an information and knowledge society in the shortest possible time. Yet resources available for the execution of information policies and strategies are limited. The risk of wasted efforts and opportunities is high.  Lack of co-ordination between the initiatives and activities and lack of sustainability are serious threats to progress.

Another issue is the nature of IT experts employed in various departments on projects and initiatives.  These experts often concentrate on their own works without regard to the wider scope and broader impact of their activities. Cooperation and teamwork are sometimes not a strong part of their characteristics.  For these reasons, high level coordination is urgently required.

Coordination can also happen implicitly through a set policies and strategies that are widely supported and adhered to.   However, active coordination through a designated organization that supervises the execution of policies and strategies is usually preferable.

This organization should:

a. Keep its eyes on the overall goals and objectives of the policies and strategies; and

Text Box: The concept of "all are marching in the right direction" is sometimes used as an excuse for lack of coordination. However, this implicit cooperation is often not enough. For example: a) To create a world standard, high-performance telecommunication infrastructure requires coordination from all industrial sectors to ensure value for investment; and b) The Government’s financial managers must work with the IT departments to make resources available to fulfill the strategies and initiatives set forth.

b. Have the wisdom and authority to ensure the proper cooperation of all people involved.

Already, with the creation of the NIS and the efforts of the NIC, the mechanism for coordination and a teamwork environment have been established. However this is not enough. The mechanism needs be strengthened and the teamwork bolstered.

Some may also argue that  a Master Plan or a comprehensive Action-plan is needed. Certainly a few years ago that would have been the prevailing opinion in view of the importance and complexity of the situation. However, Master Plans and Action Plans for complex developments with many uncertainties have some practical disadvantages:

·           To get a consensus on a Master Plan is difficult and often even impossible since the interests of many parties are at stake. Many of the perceived threats, and therefore much of the resistance, proves unnecessary when the time of implementation comes;

·           Accurate data and information necessary for a good Master Plan are often not available. To compensate for that, speculative assumptions are usually made. Obviously the figures, and thus the plans, based on such assumptions are as good as the assumptions.  Yet they are used as the basis for projections and targets;

·           It takes a considerable amount of time to prepare a good Master Plan. By the time it is conceived, presented and accepted it may be obsolete. This risk is particularly true for  Information and Information Technology related Master Plans because of fast moving technological developments;

·           A Master Plan’s inherent complexity can make it difficult to understand. As a result, it is often ignored. 

With respect to coordination in  information policies and strategies it should be noted that countries that have made good progress on the road to  information and knowledge society have no Master Plans but strong well-defined strategies and polices that include well defined targets. Initiatives and activities executed within the framework of these strategies and policies are coordinated or managed by strong organizations. These organizations are run by professional managers and encompass technicians and representatives of various stakeholders.   

1.1.6                    History of Information Policies and Strategies

Jordan has a relatively long history in defining and executing information policies and strategies. As early as 1985, efforts were made to establish a National Information System (NIS). That concept was ahead of its time and showed a vision that ten years later became reality through the Internet.

The concept of the NIS was approved in 1987 after being jointly proposed by the Royal Scientific Society (RSS) and the Ministry of Planning.  At that time, one of the main objectives was to create an awareness about the importance of information.  These efforts prepared the ground for subsequent initiatives and activities. 

In 1993, the NIC was formally founded. It was mandated to establish and manage the NIS and coordinate the information activities including the formulation of the Information Policies and Strategies.

In 1996, the first comprehensive efforts were made, with the help of the World Bank, to define broad policies and strategies based on the studies and surveys conducted by the NIC during the period 1993-1995. The policies and strategies were updated in 1998.

In hindsight it is, of course, easy to spot parts of the policies and strategies that could have been better formulated or executed. History on the other hand showed that the NIC has a tradition of planning with an open eye for future requirements. It has shown that the NIC is  capable of adapting and updating plans to accommodate practical realities.

1.2             Global and Specific Objectives

The global objective of Jordan's national information policies and strategies has not changed in comparison with the original Information Policies and Practices of  1996: "to focus efforts to the realization of common objectives and aspirations".  . They have become more concrete as a result of the initiatives undertaken after the Dead Sea Forum in November 1999.

The specific objective of Information Policies and Strategies is to provide a broad framework in which information and information technology activities and developments should take place. They provide an overall direction on how to address the many and diverse challenges.

Rather than a direct handbook with "do's" and "do-not's" they provide the "what's"  "why's" and "why-not's".

1.3             Scope

An information or knowledge based society affects all parts of the Jordanian society. National information policies and strategies address related issues faced by society. They span  broad, nearly philosophical, issues such as the right of information to practical issues such as how to apply scarce resources in the most efficient way.

The time frame for which the policies and strategies are meant is three to five years.

1.4             Terminology and Concepts

To facilitate reading of this document, and because words like “policy”, “strategy” and “information” can have more than one meaning, it is important to establish clear definitions of the main terms used. 

Information: intelligence or knowledge that can be used for one or more purposes irrespective of the form it is encrypted in (text, figures, diagrams, etc.), the medium it is stored in (paper, magnetic, optical, etc.), the mode of dissemination (oral, written or audio-visual etc.), the activity that generated it (research, administration, censuses, remote sensing, etc.), or the organizing and disseminating institutions (libraries, documentation centers, archives, statistical offices, mapping agencies, geological surveys, computer centers, media and broadcasting services, telecommunications services).

Public Information: information generated by the public and private sector which is essential for active citizenship, government transparency, and democratic governance, except where limited by laws or national interests.

Information Services: services that depend very much on information such as appointments, reservations, training, planning and marketing.

National: an adjective encompassing all elements of a nation state, not limited to the government (executive branch) alone, but rather encompassing the executive, legislative, and judicial branches of the state, non-governmental organization, private associations and the individual at large.

Policy: is a statement of a specific goal or goals which are to be achieved, or to be pursued, a statement of the means by which realization of the goals will be brought about, an assignment of the responsibilities for implementation of the means, and a set of rules and guidelines regulating the activity.

Strategy: is a description of the methodologies applied to implement the policy goals using the declared means or instruments of the policy.

Action Plans: programs or projects with measurable outputs, aimed at responding to defined priority areas, and describing in detail the implementation of selected strategies derived from the policies. It includes an estimation of required resources and costs of implementation and operation of these programs and projects.





Figure 1, the National Information Policies and Strategies

 

1.5              Approach

National Information Policies and Strategies must be based on the vision of  Jordan's information and knowledge base society.  Furthermore, it should take advantage of the experience gained through the years with the National Information System (NIS).

Based on this vision and experience, the foundation for the policies was derived by assessing the needs of Jordan’s organizations towards information, information technology and infrastructure.   International best practices were also analyzed to determine what lessons could be learned from abroad.

Information strategies are based on the policies. To facilitate application they are formulated as much as possible towards the market/stakeholders. Thus there are strategies for the public, the public sector and the private sector.  Lastly, the three cross cutting dimensions "Human resources", Natural Resources" and "Economic Resources" are considered.