TECHNOLOGY AND GOVERNMENT

The road to e-democracy

Feb 14th 2008
From The Economist print edition

E-government is only the beginning

Illustration by Allan Sanders

GOVERNMENTS have more or less caught up with what in geek-speak is called “web 1.0”, with the online world largely mimicking the offline world. E-mails replace letters; websites make publishing speedier and more effective; data are stored on the user's computer. A collection of programs, paid-for or pirated, are the essential tools for getting going.

But all this has been overtaken by “web 2.0”, shorthand for the interactivity brought by wikis (pages that anyone can edit) and blogs (on which anyone can comment). Data are accessed through the internet; programs are opened in browser windows rather than loaded from the hard disc; instant messages, often attached to social-networking sites such as Facebook, replace e-mail. Web 2.0 also means free video-sharing on sites such as YouTube and free phone calls between computers. These developments allow information to be shared far more effectively, at almost no cost. That gives great hope to the proponents of e-democracy.

Citizens are not only the state's customers; they are also its owners. The term often used in the jargon of government technology is citoyen, reflecting the French idea of the politically engaged citizen. Technology can amplify and aggregate voices that used to be faint and muffled. Voters used to write letters to newspaper editors and hope they would be published. Now they can blog. Contacting an elected representative has become a simple matter of sending an e-mail.

The story so far is that technology intensifies the democratic process, but does not fundamentally change it. For example, the internet is now a vital way of raising money for political campaigns in America, but it has not supplanted the public meeting. Howard Dean's campaign for the Democratic party nomination in 2004 was a huge success in the blogosphere, but failed to translate into votes in real life. The internet has provided citizens with vastly more information about their elected representatives: their voting behaviour, their sources of finance, their outside interests, the content of every public speech they ever made. But the effects tend to cancel each other out. When each side has heavier ammunition, the battle rages on.

Some e-democracy efforts look like little more than gimmicks. Giving out politicians' personal e-mail addresses does not make them any more likely to read the result. Gordon.brown@no10.gsi.x.gov.uk, or president@whitehouse.gov make the recipients seem more accessible, but the message will probably be answered by a computer. Politicians and civil servants who have tried blogging have found it remarkably difficult to be both interesting and sensible. The spontaneous (and sometimes half-baked) tone of the blogosphere sits ill with the need to sound measured and definitive. Most politicians' blogs tend to degenerate into anodyne travelogues. One senior British official, Jeremy Gould, has an excellent blog on e-government. “We think he's been very brave,” says a colleague, carefully.

Where e-democracy may make a difference is in places where the middle class has become largely disengaged from politics. In India, for example, educated people are much less likely to vote than the rest. Opinion polls suggest that they are disgusted with bad government, but this rarely translates into votes against the incumbent parties.

Yet a few glimmers of hope are appearing. India is developing a caustic and increasingly effective blogosphere. Melody Laila, for example, electronically lambasts the inadequate public services in her native Mumbai, as well as the kid-glove treatment of corrupt politicians in Delhi. “Blogs give us the freedom to say things that wouldn't be published in the mainstream media, and the safety of anonymity,” she says. In a country like India, they may also prove more effective than their counterparts in older democracies. It is hard to imagine a blogger who would wish to promote the cause of corruption and bad government.

Technology offers an opening, too, to outfits such as Lok Satta, a clean-government campaign run by a formidable, Economist-wielding doctor called J.P. Narayan. It has recently celebrated its first electoral victory, in municipal elections in Mumbai. Its candidate, an energetic entrepreneur and community activist called Adolf D'Souza, campaigns for decentralisation, transparent online budgeting and public accountability. What made the difference, he explains, was that during house-to-house campaigning he collected voters' mobile phone numbers. That allowed him to send text messages, bypassing the local media which are cosily tied to the established parties.

As you might expect, the place that makes the most advanced use of technology in promoting public participation is America, where officials now invite online comments from outsiders when they draw up legislation on subjects like environmental protection. A Department of Agriculture draft on organic-food standards, for example, prompted more than 250,000 comments. Yet the expertise mostly comes from a narrow range of specialists.

According to Cary Coglianese, an American e-government expert, imagining that online consultation will breathe new life into democracy “is a bit like imagining that giving automobile owners the ability to download technical manuals and order car parts online would turn a great number of them into do-it-yourself mechanics”. Greater involvement by experts may make for more sensible rules, but it will not turn the system of public administration on its head.

Aux armes, citoyens

The sad truth is that most citizens find government and politics rather boring and think they have better things to do with their time. For outsiders, the online world is obscure and complicated. Similarly, the inherent complexity of government risks blocking the gains that technology can bring. Rupert George, who runs a site called eGov Monitor that enthusiasts find fascinating, explains: “All too often, public-sector investment in technology has been wasted by administrations unable to tackle the cultural change necessary to realise its potential.”

In short, badly managed organisations with computers will stay badly managed. That has been the lesson from private business, and it equally applies to the public sector, where e-government has barely begun to scratch the surface of what is possible. That is reason for disappointment, but also for hope.