E-participation and e-governance at Web 2.

0
in Local Governments of Colombia
Juan Manuel Rojas, Carolina Farfn Romero, Carlos J. Ruiz
AGEIA DENSI Colombia
+57 316754 3786,

ageiadensicolombia@gmail.com
ABSTRACT
The present paper builds on questions like: What use is
providing local governments to social media in Colombia? It
presents general information about the interaction that
Colombians keep with 6 territorial public entities through two of
the major social media available on the internet (Facebook and
Twitter).
What it was looked for with this study was to determine the use
and appropriation that of social media keep some public entities
located in various parts of the country (in intermediate cities in
this case) reviewing the guidelines that in this regard establishes
the strategy of "Government online" driven from the central level
by the Ministry of Information and Communications
Technologies. At the end certain recommendations are made to
encourage citizens participation through these tools.

Categories and Subject Descriptors

K.6.1 [Management of computing and information systems]:
Project and People Management - Strategic information systems
planning,
Systems development. J.4.[Social and behavioral
Sciences]: Sociology. K.4.1 [Computers and Society]: Public
Policy Issues

General Terms
Management, Measurement, Documentation, Performance,
Experimentation, Human Factors, Standardization, Legal Aspects,
Verification..

Keywords
Social Media, Local Governments, e-Participation, e-Governance.

1. INTRODUCTION
Social networks are being adopted more and more forcefully by
Governments around the world in order to get closer and offer
more comprehensive services to citizens, obtaining at the same
time due feedback from them to adjust Policies, Plans, Programs
and/or Projects due to particular requirements of the community.
However, lot of times these new spaces are offered without any
structure or institutional communication plan so its purpose of
benefit on the final State client (the citizen) ends blurring because
it is not clear that the "citizenship through electronic media" is
much more than enable infrastructure tools within a website and
whose reason for existence is precisely do transcend from virtual
to reality, the needs and views of all those that behind a nickname
or an avatar, try to be heard by those who have been elected to
represent them.

For the study we have taken a sample random base of six

departments in the Republic of Colombia (spread over three to the
Centre, two to the North and one South of the country), being
chosen their capitals by demographic similarity presented between
them and whose official figures of the population - according to
the National Department of Statistics (DANE)1 - estimate the
number in an average of between 300,000 and 400,000
inhabitants. Accordingly we talked in particular about the cities of
Villavicencio, Montera, Valledupar, Pasto, Manizales and Neiva.

2. BACKGROUND
According to statistics of the "Internet World Stats", the
penetration of internet in Colombia during the year 2009 reached
48.7% of the population meaning this that the country occupies a
significant third place (after Brazil and Argentina) in number of
users connected to the network of networks.
According to StatCounter Facebook, has the greatest number of
users of social media in Colombia, followed by YouTube and
third Twitter.
Colombia has (at December 2010) more than 300 thousand
registered users in Twitter, ranks as the fifth country in Latin
America with the largest number of hours online per user per
month with 20.6%. It also has the higher rate of population
growth on the Internet with 33%. According to ComScore Social
Media Metrix women spend more time online than men. 71% of
Twitter users are under the age of 34.
Users of Facebook in Colombia have tripled in the last 2 years, in
2008 it had 3,227,260 users, for 2009 the number increased to
6,488,200 and in 2010 already had 10,725,740, the number of
users of Facebook in Colombia is currently around 12,675,160 2, it
ranks as the third country in Latin America by the number of users
in this social media.
Additional figures indicate that 64% of users are under the age of
34 years, of which 37% are 18-24 users. The greater use of
Facebook remains in women 51% though we could say that it is
used equally by both sexes (compared to 49% of men).
At the same time, there is no a clear policy of use for social media
in Colombia, being the existent policy limited through a
"Handbook of Implementation"[11] to indicate that State entities
must maintain some kind of interaction with the community
1
2

Accesed in all cases from: http://www.dane.gov.co

Dates
from:
statistics/colombia

http://www.socialbakers.com/facebook-

through forums, chat rooms, blogs or mailing lists. Currently, this

document is undergoing revision toward a 3.0 version of the same
and one of the criteria of the initial level of the strategy of EGovernment which seeks to support, reads that the institutional
websites should "enable" the use of social media without a clear
reference to real or everyday life management of them.
To achieve effective electronic governance it would be logical that
the different audiences intended to address be segmented and this
will not be solved with a mandate from the central level. Entities
must have database of citizens who come to use the services to
know and motivate the participation of the same.

3. METHODOLOGY
The methodology used in this paper consisted of the systematic
observation of the growth of social media Facebook and Twitter
in the six selected experiences. In the analysis it was observed
number of followers, number of posts, date of updating of content
and type of posts. Later became an analysis for every city and a
comparison between them and by type of media used.
At the start of the research it was reviewed the text published by
CTG on policies for social media [3] and verified the existence or
not, of a framework defined for them. Once done this, an analysis
was elaborated, by separate, of each one of the institutional
websites in selected cities without including, for the purpose of
the study, the YouTube network because it was confirmed there
that only in one of them exist an associated account which of
course, it does not occur with Facebook and in most of the cases
with Twitter.
It was also found that sometimes accounts are created to make
visible the Mayor in turn, there is no interest (perhaps influenced
by political issues) about the importance of institutionalizing them
suggesting a "personalization" of public management in head of
the local authority who consequently rejects the continuing efforts
the central level seek to achieve a more entrepreneurial or
management consciousness and less administrative, media or
"Parish" to the public sector in Colombia. This is especially
evident in networks such as Twitter.

4. LOCAL EXPERIENCES
4.1 Villavicencio Experience
The city of Villavicencio has 384,131 inhabitants according to the
latest census. It is located in the Department of Meta at the East of
the country; it is the largest commercial center in the West Plains,
90 km south of the capital of Colombia, Bogot.
Villavicencio has in its local Development Plan [8] a goal that
says: "Communications Stimulation: strengthening the work of
dissemination of the programs and activities of the central

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administration and the decentralized institutions (...)"(...)". It can

be seen with concern that the text does not specify anything about
social media.
Villavicencio created its Twitter account on April 16, 2010 and at
the date of starting this study counted with 118 followers. The
creation of the Facebook account is not available but the first
message is dated May 4, 2010; at the beginning of this study had
133 friends on Facebook.
The accounts are officially handled as entity. In Ttwitter is
@AlcadiaVillavo and in Facebook City Hall of Villavicencio. The
publication of messages is linked to the information produced
according to the activities of the Municipal Administration.
In Villavicencio the priority has been given to Twitter account
more tan to the Facebook one, which is reflected in the number of
users of each media.

4.2 Pasto Experience

The city of San Juan de Pasto, according to the latest census, has
382,618 inhabitants. It is located at the southwest of the country
in the Department of Nario, in the middle of the Cordillera de los
Andes, at the foot of the Galeras volcano and very close to the line
of the Ecuador. The city has been administrative, cultural and
religious center of the region since the colonial era; it is the
second largest city in the Pacific region after Cali (Capital of the
Department of Valle del Cauca).
In its Development Plan [5], there is a goal which reads:
"Implementation, application and update in new technologies of
information, communication and use of media." According to
this, the use of social media is absent unless the legislator has
sought to include them tacitly in interpretive breadth which
suggests the aforementioned text.
Pasto created its Twitter account on March 2, 2010 and at the date
of this study had 97 followers. The first message sent from the
Facebook account was on November 29, 2009, it counted with
3811 friends.
Accounts, which also reflect institutional framework, lead by
name @alcaldiapasto on Twitter and on Facebook City Hall of
Pasto.
The posts are noticeable associated with government
activities carried out by the Mayor's Office observing that it is
given more relevance to the account of Facebook than that to
Twitter what is evident not only with the rapid increase in the
number of users on Facebook (261) contrasted with the Twitter
(76) within a very short period 5 months - measurement taken
between November 2010 and March 2011, but with the
permanent updating of content in the first. The Twitter account
was its last post on January 26, 2011, and the only institutional
website includes a link to the account on Facebook showing
marked preferences for this network to interact with citizens.

4.3 Montera Experience

The city of Montera is the capital of the Department of Cordoba.
It is located at the Northwest of the country, on the banks of the
Sin River; it is considered the cattle capital of Colombia and is
also an important commercial and university Center. Its
population according to the DANE is 378,970 inhabitants.
"MONTERA, A DIGITAL CITY has as solid purpose the linkage
of the city within the global system of information y and

communications technology - ICTs-, in order to provide diverse

and permanent opportunities for access to the virtual
communication from and after adapting, expanding and
strengthening the coverage of information technology, internet
and communication, as well as, the physical infrastructure of its
points of location at the local level[6]. Understanding what was
written, enough emphasis is made to the issue of infrastructure but
nothing of attention is paid to the issue of what it allows, that is,
the interaction between those who use it.
Montera has not created a Facebook account and Twitter was
created on May 20, 2010. At the beginning of this study there
were 990 followers in the network. It is necessary to clarify that
Montera does not present an official account of the entity as the
two cities previously mentioned. The account used to inform the
community is the one created by (or for) the Mayor of the city
@MarcosDanielPG.

However, the number of followers of this social media continues

to grow. There is no reference whatsoever to this Twitter account
on the official website of the municipality.

4.5 Neiva Experience

Neiva is the capital of the Department of Huila. It has a
population of 352,859 inhabitants. It is located between the
Cordillera Central and Eastern, in a plain on the Eastern bank of
the Magdalena River, the most important of the country. It is one
of the main cities of the south of Colombia because is the
connection port for the capital cities of Florencia, Mocoa,
Popayn and Pasto.

The quality of the published messages is very diverse because as it

has seen in the analysis that account is used by the Mayor as his
personal account and also to inform the activities carried out
within his management.

The closest reference in its Development Plan [9] is the project

called "appropriate technologies of information and
communication use in the educational institutions (ICT)"in which
there is a goal that says: "form 100% of teachers in introductory
levels and deepening in the use of the TIC." Unfortunately, there
is no reference more than the quote above on the "correct" use of
technologies for approaching citizenship, what generates
emptiness as to whether the social media were contemplated.

It is important to note that there is no reference whatsoever to the

Mayor Twitters account on the official website of the municipal
administration. The only available participation is the inscription
on the forums that are in the same.

Neiva has two accounts in operation. At the start of this study, the
Twitter account @alcaldianeiva had 92 fans; it was created on
July 12, 2010. The account of Facebook, City Hall of Neiva, had
795 friends.

4.4 Valledupar Experience

Valledupar is the capital of the Department of Cesar, is located
northeast of the Colombian Caribbean Coast, on the banks of the
Guatapuri River, in the Valley of the Cesar River formed by the
Sierra Nevada de Santa Marta and the serrania (small hill) of the
Perij. It has a population of 354,449 inhabitants. It is one of the
main cultural and folkloric musical epicenters of Colombia for
being the cradle of vallenato music.
In the Municipal Development Plan [7] it is captured that one of
the objectives under the subprogram of Science and Technology
is: "Guarantee the development of initiatives on science and
technology, involving mass communication and information tools.
Also, to integrate the role of the company, with universities and
institutions, tending to improve and transform the local and
regional productive apparatus. Also the conditions so that
Valledupar can be a digital territory should be created". This
speech seems quite legalistic but totally impractical at the time of
promoting citizen participation through electronic media.
Valledupar has running its two accounts. The Facebook account is
used as official, the Twitter @luisfabianf is used by the Mayor of
the town, created on June 6, 2010, which at the beginning of this
research counted with 348 followers. The first is fed by the Press
Department of the City Hall and at the end of this study had 594
friends.
On the wall of Facebook it is published relevant information for
citizens and usually information that is released through press
releases. The account of the Mayor is virtually forgotten, proof of
this lies in that the last post published by this means was sent on
January 10, 2011.

The City Hall of Neiva accounts are linked, so that most of the
messages sent to users of Facebook also reach Twitters.
Typically, the information more published is the one contained in
the bulletins of the Mayor's Office press.

4.6 Manizales Experience

Manizales is the capital of the Department of Caldas; it is located
in the Center West of Colombia, near the Nevado del Ruiz. It is
part of the so-called Colombian coffee zone. It is called the "City
of the open doors". It has a population of 386,931 inhabitants. Its
importance stands out by its cultural activity which highlights its
annual fair, the International Festival of theatre and numerous
shows and conventions.
In its Development Plan [10] it is found the project:
"implementation of the strategy of community online" which
aims: to facilitate contact of the administration with citizens,
encourage their participation and generate confidence; this
Administration intends to ensure total transparency." "The
mechanism of Government online, associated with online
community will contribute to facilitate inter-institutional work in
network, to achieve the benefits of a Government characterized by
the dominance of the technologies of information and
communication." Accordingly, Manizales is one of the few places
in Colombia, where already begins to speak of networks and
participation with the help of technology.
Even so and despite expressing a degree of consciousness
something more advanced than in other cities on the usefulness of
the electronic media for certain activities such as the increase of
citizen participation, Manizales has not created its Twitter
account, and in its Facebook account City Hall of Manizales had
467 friends when this investigation was initiated. Also, there is no
reference to the above account in the official website which is
updated weekly with news about the missionary management

conducted by the Mayor's Office and the calendar of coming

events.

5. RESULTS
5.1 Twitter Usage
The first thing that stands out in this analysis is that most part of
the sample -5 of 6 cities- created it Twitter account last year. This
may be because at the beginning of 2010 was reformulated the
Handbook for the Implementation of the Strategy of eGovernment in the republic of Colombia " (fixed parameters that
must comply the State institutions regarding to the fulfillment of
the Decree Law 1151 of 2008 that governs the development of eGovernment in the country) setting in one of its multiple criteria called "mechanisms of participation" - for State web sites, that
institutions: may implement additional spaces related to social
media as participatory mechanisms." Said standard however and
according to the document, included tacit retroactivity to be
totally fulfilled by the end of the year 2009, reason why many
institutions were forced to rush the steps to avoid the legal
problem that leads to neglecting the stipulated regulations but
without real interest go beyond.
On the other hand, it was noted that the oldest account is the one
of the City Hall of San Juan de Pasto and the more recent, the one
of Neiva but if the purpose was that networks such as these will
serve the objective of improving communication with citizens or
motivate their participation in public affairs, sadly the number of
messages does not exceed in any case the 1,000 (case of Twitter
which allows for a faster response) meaning in addition that the
interaction of people with accounts they follow is practically null.
Just 3.73% of the users have commented or interacted with any of
the entities. For entities studied the tweets average per day is 2.55
and monthly, 28. (Table 1)
Table 1. Statistics about Replies and Tweets day/month
City

Replies
%

Tweets per day

Tweets per
month
(average)

Villavicencio

2,86%

4.5

59

Pasto

0,00%

1.3

Monteria

8,50%

2,6

49

Valledupar

0,00%

4,1

25

Neiva

11,04%

3,5

32

N.A.

N.A

N.A

3,73%

2,55

28

Manizales
Total

In the same way in the Figure 1 surprises that "personalized"

accounts (meaning those containing the names of the mayors)
have more followers on average than institutional which stronger
topics to post on any of the cases are derived from management
activities to be shown to the community. Apparently there still
exist one way direction in the information (the entity to the
outside) because unless are certain events, the citizens do not

Figure 1. Number of Twitter followers by city .

interact. Only 2% of the messages are Re-Tweet (RT) and shared
.
by other users with their own followers.
According to Akdogan [1] the use of social media could improve
the local e-governance and e-participation. The question that
arises then is: 1.Is the information published by entities relevant
enough to substantiate the reply of citizens?; 2. It is really valued
the opinion and participation through electronic means in contexts
where govern closed political interests that do not want to open
spaces to empower the average citizen representing himself?; 3.
What is the truly effective technology - as a means of expression
and exchange of views - in front of "deafness" which for years
have practiced public entities with respect to citizens feel?; and 4.
How can be improved and/or expand the government-citizen
interaction through the "Social Media"?

5.2 Facebook Usage

Seen that Facebook does not allow to check the date of creation of
a user account, we take the messages of the first "friends" as a
reference to focus the eyes on the year 2009 as a moment in which
most cities began to join this network (5 of 6), something that was
also impelled by the requirement of the new "Handbook for the
implementation of the strategy of Government online in the
Republic of Colombia" in regard to encourage citizen
participation through electronic media which led to many state
entities in Colombia - different from the study - to have now links
direct to social networks on their web sites.
Interaction in Facebook is customary performed through the wall
and very likely by its awareness and familiarity among Internet
users, is that they are encouraged to click the button "I like" or
eventually to participate through a comment on any publication
that very rarely is answered from the entity with the consequent
perpetuation of bad image that citizens have with respect to the
service provided by official institutions in the country Expressions
like: "Oh, they responded!", are still the common denominator
among millions of skeptics Colombians accustomed to the bad
treatment by the State, they see with astonishment any gesture of
efficiency from their part (the government).
Also and being Facebook a very important space for the
construction of links, the network is highly misused by local
governments in the absence of "rules" on "how and what to do
once is determined using a social network that for the civil officer
average only means "another one of the requirements that must fill
to avoid sanctions if not fulfilled what ordered the law" because
on many occasions does not understand or not care to learn what
thinks the recipient of his work, the citizen to which must
render accounts, in spite of all.

The information published on Facebook by local authorities is not

different from the one published on Twitter. There is only one
case, in Manizales, where they take advantage of Facebook space
to generate a participatory process of creating questions for
accountability made by the Mayor of each city once a year.
However the interaction of the entities is poor or practically null.
Then the famous web 2.0, ends being used nothing more than as a
means of "unidirectional" content (and besides inconsistent)

social network but an open information network"; claim which

has been defended since always by its creator, Jack Dorsey[12].
On the other hand, for Mark Zuckerberg creator of Facebook the mission of his invention is: "to give people the power to share
and make the world more open and connected"[23].
Consequently we infer the perspective that promotes each of these
networks. If Twitter is a network of open information it means
that its primary focus is not a network connection as pursues
Facebook. Therefore, the first thing local governments should
understand is that the same result will not be achieved as
citizenship participation is concerned if the right tool is not used
for what it would be advisable a pedagogical process encouraged
by the central level in this regard.
Finally and although in Colombia local governments continue to
make efforts to modernize within a public policy structured within
the strategy of "Government online", it just begins to understand
and follow the path toward an "open government" to define
renewed communicational practices between the state and its
partners in order to ensure the effective participation of those in
the processes of efficiency, decision and control the transparency
of the first.

Figure 2. Number of Facebook friends by city .

7. RECOMMENDATIONS
generation for the community and for what could be developed
. this regard, as for example: 1.
further supplementary concerns in
What preparation have local governments to take the
responsibility to use a social network on electronic media beyond
publish one or another news as it does today?; 2. What is the fear
of local governments if they allow citizens to freely express their
feelings?; or, 3. Why is generated so little advertising to
promote this type of networks from the local governments?

6. DISCUSSION
How much contribute social media to e-governance? We know
that they allow administrations to open spaces for the
participation of stakeholders in the creation of policies, but at
least in Colombia those spaces in the local governments have
barely been contemplated and possibly has this to do with
traditional culture in which the decisions of general interest
continuing be taken behind closed doors without consultation
with the interested parties.
In addition to this, it should be noted that social networks are used
mostly by young people under the age of 34 years who despite
having structured views in front of multiple issues of the public
events, they have lost the interest in participating due to worn
customs and/or political traditions of their preceding generations
that still today in 21st century annihilated all effort of citizen
participation when constitutionally it has full guarantees to be
exercised.
Then, serving to motivate participation and interest of the target
audience, special care in the language used for the web has to be
taken, that obviously should not be the same used in other
communication media having to be further clarified differences
and the treatment required by each network not being the same to
use indiscriminately Facebook or Twitter for the same purposes.
In the words of Laura Gomez (Manager of internationalization of
the Twitter network) in a recent interview [4] "Twitter is not a

Following we offer some simple recommendations to improve eparticipation on Social Media. Local governments should:
Advance from web 2.0 to Internet 2.0. Understand the concept of
web 2.0 to transform it into a practical model of internet 2.0 to
provide the "conversation" between state institutions and the
citizens.
Understand the purpose of social media. Differentiate punctual
and objectively uses, features, applications and scopes of each
network separately to seize them, segmenting audiences and
implementing stringent controls both the language and the type of
information posted.
Establish policies exclusive to the use of social networks. Design
and implement from central levels of Government, standardized
but at the same time "flexible" directives for the responsible
handling of information via these tools of communication,
allowing its adoption in local with some degree of
accommodation (respecting multiculturalism in the country) to
continue favoring the "unified view of the State" among citizens.
Accelerate the adoption and implementation of standards to
ensure the security of the information. Evaluate the quality,
amount and conditions of use for open data and implementing
policies or standards - example the series ISO/IEC 27000 to
reduce the associated risks to the integrity or confidentiality of the
information.
Practice humility from the State. Training public officials on how
to be "followers of their followers" within the social media not
only for feedback the information published by the entity, but
above all to "hear" what the citizen has to say avoiding so the bad
image of the State with regard to the services provide, grow or
spread uncontrollably through the web.
Do not be afraid to change. Leave the customary "unilateralism"
they handle with respect to the information supposedly is the one

the citizen wants to know. Enable and facilitate the two-way

communication as a gesture of contribution towards e-governance
Practice the three axes of an open government. Specify with the
help of social media the collaboration, the transparency and the
citizen participation that requires achieving certain results,
measurable and achievable within the complex process of
modernization that urges public management.

8. REFERENCES
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International Conference on Theory and Practice of
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232-237, 2010.
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