Approach to the formulation of a National Information Policy for South Africa

This paper reports on guidelines produced by a postgraduate study on an approach towards the formulation and implementation of a National Information Policy in South Africa. Topics examined include the reasoning why SA needs a NIP. the proposed philosophical approach that should be applied. proposals for the principles that should underpin a NIP in South Africa and the issues that a South African National Information Policy should consider.


Introduction
Considering South Africa within an African context one conjures up the imagery of poverty.drought, and underdevelopment with little or no information technology and unreliable and inadequate telecommunications infrastructure.Yet South Africa finds itself in a unique position in the world, geographically, politically and strategically.
The spirit of dialogue and consensus building has brought together stakeholders from all sectors of society to consider a wide range of issues.South Africa's information technology sector is also better developed than most countries facing similar developing problems.Various sources (Van Audenhove, 1999 andEconomic Commission for Africa, 1996) maintain that information and communication technologies (ICT) can find application within a development context.In order for this to take place an agenda for action focussing on necessary preconditions, skills, support needed and legislative and regulatory changes must be produced.Essentially this is the aim of a National Information Policy.

Methodology
A study completed by this author (Henrici,200 I), posed the question whether existing National Information Policy (NIP) formulation guidelines are sufficient and relevant to enable a developing country such as South Africa (SA) to formulate and legislate a meaningful NIP.An exploratory study was done through a literature survey.The initial strategy collected as much data as possible using traditional bibliographical database searches but these were later augmented and replaced by several successful Internet searches.A theoretical background study of Information Policies was undertaken.This theoretical study was augmented by the use of a case study as a point of reference.The case study was based on Malaysia's efforts at formulating its integrated National Library and Information Policy as reported by Chaudhry (1993) and Rehman (1996).
An overview and critical analysis of past proposals for formulating a NIP by Non-Government Organisations was also undertaken.These include efforts by: I.The Canadian International Development Research Centre (IDRC) as discussed by Akhtar and Melesse (1994) and Lundu (1995).
3.The efforts ofthe National Information Technology Forum (NITF) as offered in its draft document "Towards an Information Society policy for South Africa" (1997, draft 5).
It was subsequently found that the above guidelines are outdated and not appropriate for the unique conditions found within South Africa presently.The further purpose of the research was to develop a framework of NIP guidelines suitable for South Africa.Thus applying what was gained from the theoretical investigations and case study, guidelines for an own approach towards the formulation and implementation of a NIP were produced.A synopsis of these suggested guidelines is presented in this article.This includes the proposed philosophical approach, the principles that should underpin a NIP in SA and the relevant issuesthat a South African NIP should address.This discussion is introduced by reasons why SA needs a NIP.
Why South Africa needs a NIP In general policies are needed to provide guidelines within a framework to assistthose in authority to allocate resources for the planned and better co-ordinated development of infrastructures, in this case specifically information infrastructures.A NIP is therefore required to ensure the harmonious implementation and operation of information resources, services and systems.According to the Economic Commission for Africa (1999) ICT's are remaining at the centre of global social and economic transformations.Having a NIP therefore implies more effective participation in regional and international information systems and networks.
Probably the most universally important reason for a NIP is becauseof the rapidly changingways in which information is produced, packaged, marketed and distributed.These changeshave an enormous impact on various aspects of South Africa's economy and society.A NIP is therefore needed to cope with the following major challenges: • The external pressures put onto South Africa by international governments.
• The internal challengeof societal and economic renewal.
• Pressuresfor change emanating from the new information technologies themselves, and • The external challengeof the open global economy.Furthermore, according to the Economic Commission for Africa (1999), although early African NIP's were broader in conceptualisation, evidence shows that they lacked comprehensiveness in terms of contents and coverage.The SA applicable reasons can be divided into six main categories namely: economic, governmental, cultural, educational, developmental, and technological reasons.I. Economic reasons.A NIP provides the framework within which priorities can be established to govern the allocation of resources among different groups of users and sectors.A NIP is also necessaryto transform the government into the desired vision of an efficient and responsive instrument of delivery and empowerment.
2. Governmental reasons.The NIP should stipulate guidelines for overcoming problems, which may arise because of the country's geographical and political situation.Information is the life-blood of participative democracy and transparent administration.South Africa's new constitution entrenches the right to privacy in terms of communication infringement, and each citizen hasthe freedom of expression.Everyone hasthe right of accessto any information held by the state and any information that is held by another person that is required for the exercise or protection of any rights.
3. Cultural reasons.The South African society is very complex in that there are First and Third World components, both are dependent on information.A NIP is thus required so that all sectors of the information community in South Africa can develop in a co-ordinated, planned and optimal manner.4. Educational reasons.Investing in people as the productive and creative core of the economy is one of the six pillars of the government's growth and development strategy.The potential of advanced information technology must be harnessed in the service of South Africa's people to support education, the provision of household services, and social development.For this to happen, information literacy is a skill that needs to be acquired.5. Developmental reasons.A wealth of information is said to speed up the tempo of development if critical activities such as decision-making, planning and management are based on sound information (van Audenhove, 1999 andEconomic Commission for Africa, 1996).
6. Technological reasons.With the emergence of the so-called Information Society, a new dimension was brought to the subject in that information itself is seen as a strategic resource.The elaboration of IT policy is a major determining factor in setting up the underlying supporting infrastructure and enhancing the optimal use of technology to advance the development of Third World countries.
As reported by Cillie & Roos (1996), Nassimbeni (1994), Walker (1993) and Zaaiman & Roux (1989) numerous discussions, workshops and conferences have been held in South Africa to draw up NIP frameworks and principles.Nevertheless to date no formal policy document or broad strategic policy plan to arrive at the vision of an Information Society has been drawn up.Roos (1998) remarks that some constraints in South Africa relate to the current inadequate national information infrastructure, funding and the need for an implementation strategy.On the other hand the delay can be attributed to the phenomenon that many initiatives are weighed down by excessive discussion.This prevents meaningful action and wastes valuable resources.An example of such an opportunity lost is the Information Society and Development Conference in /996, which failed to act as a catalyst to initiate a policy development process.

Proposed guidelines for a NIP in South Africa
The fact that decision making and planning necessitates information of all kinds makes it imperative that a policy statement be adopted.In addition, inadequacies in SA's current legislative and regulatory frameworks necessitate the creation of a policy that will not only be adaptable to change, but which should be an active agent to facilitate change itself.Change is inevitable and should therefore be welcomed.& Info Sci 2004,70(1) 1 Philosophical approach The formulation of a NIP is based on a certain philosophy about how policy development is approached.Previous policy developments in South Africa can be said to have been highly government-regulated with a plan-directed approach aimed primarily at economic and industrial development of a minority.This means that industries that were related to government for promotion as a means to achieve government-determined ends were targeted.Conversely, the freemarket approach is where the government's role is limited to regulating the private sector to achieve social goals such as pollution control or equal opportunity, and to providing public goods such as education and infrastructure (Dedrick and Kraemer, 1995:32).When choosing a fresh philosophical approach for South Africa, the free-market approach should not be chosen simply because of the past failings of the government-regulated approach.A balance needs to be found between the two extremes, this is where Angelides and Agius's (2000) eight scenarios distinguishing the amount of government interference or not, can be applied.These eight scenarios are: I. "Dominance" (high consultation, high regulation and high use) 2. "Nanny" (high consultation, high regulation and low use) 3. "Laissez-faire" (high consultation, low regulation and high use) 4. "Host" (high consultation, low regulation and low use) 5. "Coercion" (low consultation, high regulation and high use) 6. "Laissez-passer" (low consultation, high regulation and low use) 7. "Minimalism" (low consultation, low regulation and high use) 8. "Lacklustre" (low consultation, low regulation and low use).According to Angelides and Agius (2000:63), as a result of the recent liberalisation of many telecommunications markets in the world, scenarios one, two, five and six are unlikely to prevail for much longer.Therefore they should not be regarded as long-term solutions.Within contemporary South Africa democracy is based on transparency, therefore the process of consultation is of fundamental importance.It ensures that the creation of government policy takes place by means of participation by citizens, stakeholders and interested parties.This also ensures that the policy enjoys the widest possible support and acceptance by the people and stakeholders.It is thus proposed that South Africa should consider either option three or four, which involve high consultation.More specifically option three with high use is preferred.To ensure credibility and confidence in the policy, the government itself must make high use of its own policies.

SAJnl Libs
2 National Information Policy principles for South Africa Having identified and studied the broad information policy principles as found in the literature (Montviloff, 1990;Wild 1996 andRoos 1998) it can be put forward that most types of principles are based on the general principles of information itself.The national information policy principles and their implications for South Africa follow: I. Information is an economic resource.It is therefore not free and must be managed just like any other resource.This implies clear committed management responsibility and user accountability for the efficient and effective utilisation of information in order to improve productivity.
• A policy should be realistic and affordable in terms of the South African economy and should form part of a government financing mechanism ensuring all initiatives are prioritised, approved and funded in a co-ordinated manner.• Co-ordination of services and integration of products must be promoted.Efficiency, productivity and effectiveness in the workplace will improve, as well as decision-making through timeous access toaccurate information.• ICT's can have a dramatic impact on economic and social development via the use of the information technology revolutionto meet development goals.• Information technology is increasingly central to economic growth which is a prerequisite to addressing the health, environment, governmentand other challenges facing developing countries according to Bonjawo (2002).• Benefits if ICT usage include improved flow of information, job creation, economic integration, improved market efficiency and education.2. Globalisation of Information Communications Technologies.Technology plays a catalysing role necessary for competitiveness in the global economy.This implies allocation of national resources for the development and maintenance of a flexible communications infrastructure that supports the free flow of information to all citizens.
• The policy must be supported by a cost-effective infrastructure in terms of the South African economy.
• Common concepts, standards, procedures and formats must be negotiated.
• Design of open and modular systems should be supported.
• Information technology should be made available to allow for access to as well as the sharing and communication of information.3. Rights of ownership.Personal authors own their own works whereas government information is seen as custodial ownership.
• The policy must encourage the use of local and indigenous knowledge, expertise and technology.4. Privacy and confidentiality.People have a right to privacy of personal and private information as well as corporate confidentiality and security of strategic information.This must be weighed up against the protection of information from malicious and unauthorised use and change.
• The central government should be run as a government enterprise by means of open practices to provide the best service~o government itself and to all its citizens.
5. Information (access) is a basic foundation of democracy.Information resources should be deployed to support democracy.Certain information is instrumental to the exercising of basic human rights therefore people should have the right of access to this information.
• The information resources of the country should be deployed to support democracy.
• The government should establish a forum for focussing government service and management concerns in respect of delivery of quality services to the citizens.• The government should foster a work environment that promotes co-ordination of services, integration of products and recognises the value of and supports ongoing consultation with and education and training for employees, managers and citizens.• It should address the needs of disadvantaged communities and encourage use of local knowledge, expertise and technology.
6. Standards for information access and dissemination are encouraged to ensure access through compatibility, quality and accuracy.These standards should be established and accepted by all relevant stakeholders (government, business and education).
• The government must support the constitutional requirements for access to government-related information.
• The government should establish a central repository where current, consistent and co-ordinated core data and metadata would be available for access and dissemination.

National Information Policy issues
A NIP essentially covers the issuesof the information life cycle from generation to destruction.Information-related issues identified in the literature have been analysed and structured according to Moore's (1996) three levels of analysis.
To review, Moore's (1996) three levels of analysis include, • The industrial policy level, relating to the development of an information sector on a national scale.This concerns the development of the information industry as an industrial sector in its own right, which has, at the same time, an important facilitating role as a supplier of information to other industrial sectors.
• The organisational level is concerned with the ways in which organisations use information as a resource to increase productivity, efficiency and competitiveness.
• The social level is concerned with information needs and information provision related to individuals and social groups.

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In order to provide information at the point .E .E of use and make use of conventional The effect of changes in social habits and Some social information can be provided market mechanisms, the way the consumption patterns have affected and through conventional markets using the information market works must be been affected by the information market.price system to achieve balance between understood.supply and demand.
Develop simpler products with easier training for new users.
Policies to expand markets in order to reduce costs of information products.
The market for information is global, with markets in the East growing rapidly.
Efficient use of information in business and commercial sectors can lead to increased productivity.
Information can extend market penetration, lead to new products and add higher value to products and services.
Also leads to the development of systems and procedures, e.g. to make it easy to buy information from networks.subversive or offensive against public Policy formulation must be directed at management.In the desire to digitise order.establishing ground rules for who, why, information and offer it electronically, when and how of public and private sector there is a lapse in policies and procedures Each country should take stock of existing involvement with information.
on their preservation and conservation.policies and assessthe current situation vis Concerns are due to the creation of a vis achievable, to ensure that there are Legislation must be under constant revision historical information in electronic format policies to define the framework, agenda to accommodate changing requirements.
and that those historical documents will be and strategy that the cou ntry wants and lost.can adopt.It should not be acceptable for A trade policy is needed for Transborder legislators to pass laws that are data flow to encourage equitable trading Co-ordination and organisation issuesare unintelligible.partnerships.
the most effective means of maximising meagre resources at all levels of operation.People cannot exercise their rights and Governments are to work together to claim entitlements without information.develop a set of integrated policies to Information searches must be conducted to Nor can they participate fully in the ensure the creation of information and avoid duplication of effort.democratic processes, therefore legal communication sectors in the nation for rights to information (access) must be external co-operation as well as regional A multi-faceted approach to information established.It is the public service and international exchange.
gathering and dissemination must be providers' duty to provide information.utilised.

Ownership rights of information by
Information issues become most closely government regarding, science and On-going summative evaluation of associated with political and cultural technological information, and the issue of information deliverables must be traditions, e.g. a culture of freedom to un-copyrightable information.
conducted.information versus a culture of official secrecy.In the electronic age, the legal framework Strategies to enhance the concept of covering the protection of intellectual information sharing must be encouraged A more consistent approach must be property rights must apply to all types of developed about what information belongs intellectual works.
in the public domain and by what means it should be delivered.liability for information provision.Who owns government information, Safeguardsagainst controls on access to government, taxpayers or the contractors information should be built and maintained, who collect the information?this includes the issues of sensitive but unclassified information and of restrictions Universal access depends on the effective to access.penetration of high quality telecommunication services, broadband Government should convene groups to and mobile telephony.Users must be able create an information "bill of rights".to afford it and it must be in useable formats.Equality of access is the basic principle in a democratic society.
Technology provides attractive solutions to information problems, but unless there is availability and affordability to basic data and information services nation-wide, erosion of equitable access is inevitable.In summary, the general scope of a NIP covers the acquisition, organisation, management and dissemination of information, which may be in any format, e.g.printed, graphic, audio, electronic or other media.There are many issues that need to be addressed by a NIP.Which issues South Africa chooses to address will depend not only on the global issues but also on the choices it makes in response to its very particular development situation.

Conclusions
One of the major challenges facing the present South African government is the achievement of a balance between maintaining stable economic growth and redressing the inequalities of the past.The broad philosophical outlook guiding South African public life also plays an important role.A view that despite the various and distinct cultures and other differences that make up our society, the South African nation is united in its diversity, and a shared vision that information communication technologies can help to overcome some of the legacies of the past, will bring SA a long way towards the successful development of the nation.Practitioners however have to satisfy the information requirements of a very heterogeneous society, composed of many cultural, language and ethnic groups.Infrastructures and operational characteristics decide whether policies, however well formulated, are likely to succeed.The successful implementation of a NIP therefore requires the existence of an effective national information infrastructure, adequate skilled manpower, supportive facilities, and appropriate financial resources.The establishment of a relevant policy will thus ensure that South Africa becomes and remains an information/ knowledge rich country.
latest and appropriate technology to management structures and regulatory facilitate the processing, manipulation, frameworks.storing and retrieval of information.Develop a system for information Information Technology as the panacea of processing collaboration and inter-linking information and knowledge gaps and between NIP information resources and problems.Most people are under the institutions.misconstrued notion that IT is an all-in-one solution, forgetting that it is merely an enabling tool.SAJnl Libs & Info Sci 2004,70(1) Which government publications should continue to be issued in hardcopy, and which in soft copy in the context of their timeliness, time-sensitive nature and their archival value, influence the information market.The issue of authentic and legal versions of government documents in electronic formats.Establish a basic level of information resources to which the individual has a "guaranteed" right.SAJnl Libs & Info Sci 2004, 70( I) & Info Sci 2004, 70( I)

Table I
Policy issues that need to be addressed by a National Information Policy

Table I
Policy issues that need to be addressed by a National Information Policy

Table I
Policy issues that need to be addressed by a National Information Policy to identify shortages of skills in Consider the role and skill requirements of skills.

Table I
Policy issues that need to be addressed by a National Information Policy