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Envisioning the Future: E-Government in Taiwan


Tuen-yu Lau
Kevin Y. Wang
University of Washington
Box 353740
Seattle, WA 98195-3740
Phone: 206-685-0124
Fax: 206-545-8881
Email: [log in to unmask]


A paper submitted for review of presentation at the International 
Communication Division of Association for Education in Journalism and 
Mass Communication annual conference, August 2004.

T.Y. Lau is the director of the Digital Media Master's Program in the 
Department of Communications at the University of Washington.

Kevin Wang is a graduate student in the Digital Media Master's 
Program in the Department of Communications at the University of Washington.




Abstract

This paper discusses the status of e-government in Taiwan. With 
conceptual frameworks that measure the development of e-government in 
four phases, this paper surveys websites maintained by three levels 
of administrative systems and argues that Taiwan represents a unique 
model of e-government. The overall development carries a positive 
outlook and coincides with the infrastructural and other 
socio-economic factors. At the same time, there also exist several 
problems that need to be addressed with systematic solutions.




Envisioning the Future: E-Government in Taiwan

International Communication Division


Abstract

This paper discusses the status of e-government in Taiwan. With 
conceptual frameworks that measure the development of e-government in 
four phases, this paper surveys websites maintained by three levels 
of administrative systems and argues that Taiwan represents a unique 
model of e-government. The overall development carries a positive 
outlook and coincides with the infrastructural and other 
socio-economic factors. At the same time, there also exist several 
problems that need to be addressed with systematic solutions.
Envisioning the Future: E-Government in Taiwan


8
Introduction
Despite Taiwan's technological and economic strength, its effort to 
create a comprehensive e-government scheme has not been fully 
explored in the academic and professional arena. This paper discusses 
the status of e-government in Taiwan with a conceptual framework that 
measures the development of e-government in four distinct phases. We 
analyzed the content of 62 government websites maintained by three 
levels of administrative systems and found that Taiwan's approach to 
e-government represents a unique model. The government's progress in 
this area is on par with its long-term development plan to build an 
e-society and coincides with the current infrastructural readiness. 
While the overall picture carries a positive outlook, issues that 
hinder the adoption of e-government like digital divide and content 
management need to be explored with future studies. Considering the 
lack of empirical data on e-government in Taiwan, we hope our 
research is a starting point that seeks to fill this void.
Research Questions
This study begins with a general research question of: What is the 
status of e-government development in Taiwan? When the conceptual 
framework that evaluates capabilities in information dissemination, 
interaction, transaction and seamless service is applied to 
government webs, the following sub-questions can be derived:
1.	What is the level of information publishing and dissemination 
capability on Taiwan's government websites?

2.	What is the level of correspondence service capability and request 
for service capability on Taiwan's government websites?

3.	What is the level of end-to-end online transaction capability on 
Taiwan's government websites?

4.	What is the level of vertical (inter-level) linkage and horizontal 
(intra-level) linkage on Taiwan's government websites?

In answering these research questions, we will be able to identify 
the trends and characteristics of Taiwan's e-government development, 
as well as the extent to which the implementation of e-government 
coincide with the country's infrastructural readiness and long term 
development goal.
Studies of E-Government in Taiwan
Aiming at better management of government and delivery of services, 
the digital interfaces where governments nowadays create on the 
Internet to extend its influence, service the public, communicate 
with the electorate, form an electronic democratic culture and even 
present an image of the government globally can be collectively named 
as e-governments (Gosling, 2000). Taiwan's ambition to build a 
world-class e-government system is led by the Research, Development 
and Evaluation Commission (RDEC) under the Executive Yuan. In 2002, 
Taiwan's government portal http://www.gov.tw was officially launched, 
and by this time, more than 4,400 governmental agencies have 
established a web presence (RDEC, 2003). By 2004, the government 
hopes to convert at least 40% of the current 1,500 application 
services online; enabling all levels of government to establish some 
kind of online service; and implementing official document exchange 
at all levels of the government through the Internet (RDEC, 2003).
The adoption of e-government in Taiwan is aided by a matured 
telecommunications infrastructure and a rising Internet penetration 
rate. According to the Ministry of Transportation and Communications 
(MOTC), there are 12 million local telephone subscribers (a 57.7% 
penetration rate) and 22 million mobile phone subscribers in 2002. 
Internet penetration rate is 41% and still rising, while broadband 
users have reached 60% (MOTC, 2002). The number of Taiwan's Internet 
subscribers reached 7 million and broadband subscribers at 1.4 
million, ranked second in the world behind South Korea (RDEC, 2003). 
Recently, the mayor of Taipei revealed a plan to establish wireless 
networks that covers the entire city by the end of 2005. The 
announcement was echoed by administrators in other metropolitan 
cities to launch similar, if not as comprehensive, urban wireless 
hot-zones. (Yazhou Zhoukan, 2004). These developments in 
telecommunications, along with the government's ambition to integrate 
ICTs into every corners of the society, amplify the significance of 
e-government research in Taiwan.
Previous studies in this area are consistent with contemporary 
scholarship in Europe and the United States, which can be generally 
categorized in two directions: 1) e-government as a service portal; 
and 2) e-government as a political communication medium. Many 
e-government studies with the first approach focus on the service, 
business, and economic potentials of e-government, emphasizing on how 
governments may utilize their digital arms to save cost and increase 
efficiency while users may benefit from direct access to information 
and services. Studies with this orientation usually appear in the 
form of rankings, surveys, or benchmarks, and often started out by 
non-academic background, mostly by NGOs or business consultants 
(Sofres, 2001). For instance, Accenture (2004), World Market Research 
Center (2001), United Nations (2001) and Brown University (West, 
2003) have produced comparable reports and surveys based on what 
researchers deemed as important indicators of e-government 
development. In Taiwan, researches that fall into this category 
include studies on the transparency and interactivity of local 
government websites (Lee and Huang, 2001; Shi, 2002), usage pattern 
and user satisfaction (Lin, 2002; Hsu, 2003; Cheng, 2001), and 
human-interface design (Chen, 2002; Huang and Chao, 2001).
On the other hand, the second group of studies places the progress of 
e-government under a broader context of digital democracy, aiming at 
examining the impact of the Internet and other ICTs on enhancing the 
essential elements of democratic society (Grönlund 2002). Empirical 
studies that resonate with this model focus on how the Internet can 
be translated into political uses and often yield researches works on 
who cybercitizens are, how might ICTs initiate government reforms, 
what political ends can be accomplished, and what models of democracy 
might emerge along with the information age (Hill and Huges, 1998; 
Margolis and Resnick, 2002; Hoff, Horrocks, and Tops, 2000). Scholars 
in Taiwan have also taken similar steps. For example, Tseng (2003) 
analyzed the implication of e-government on administrative 
governance. Weng (2001), Shyu (2000) and Lo (2004) observed the 
public discussion forums and measured the degree of civic 
participation on government websites.
Conceptual Framework
Our study is not specifically aimed at either one of the research 
orientation described above. Rather, the goal is to broaden the scope 
of analysis with a thorough research on the status of e-government 
development in Taiwan. We hope to provide a more comprehensive 
picture as well as empirical data for future studies. To that end, we 
use the concept proposed by Lau and Abonlhoson (2002), which combines 
the communicative model of World Bank (2001), the three-tier model of 
Howard (2001), and the four-steps model of Balutis (2001) into an 
integrated framework to measure the progress of e-government. This 
conceptual framework classifies the adoption of e-government into 
four phases: information dissemination, interaction, transaction and 
seamless service.
Information dissemination is the initial phase of e-government, with 
the government making information available online as a way to 
increase convenience and transparency for the public and to save cost 
for itself. The interaction phase consists of the ability to contact 
government offices in "interactive correspondence" (e.g. email, 
message board) or to "request" for services (e.g. search for 
documents, checking status of application, reserve public 
facilities). An important note is that "request" for services does 
not suggest a complete transaction and may still require either a 
follow up telephone call or a physical presence at local offices. The 
third phase is the ability to process transactions online, which 
includes completion of service requests online and any end-to-end 
digital transactions.
The final phase is termed seamless service, which consists of 
horizontal and vertical linkages. Horizontal linkage is also known as 
intra-level linkage, linking together government websites at the same 
level (e.g. central government office links to another central 
government office). In contrast, vertical linkage, otherwise known as 
inter-level linkage, links between and among different levels of 
government (e.g. central government office links to local government 
office). These two types of linking practices are not mutually 
exclusive. However, if both inter and intra-level linkages are 
present, the structure of e-government becomes a seamless web sphere, 
where users can browse for services and information at ease, without 
knowing the structure and organization of the government.
Table 1 illustrates the characteristics of each phase with some 
examples commonly found on e-government websites that fit into each 
category. This list is not exhaustive.
Table : Four Phases of E-Government (Lau and Abonlhoson 2002)
Phases of E-Government
Examples
Information Dissemination Phase

Information publishing and dissemination capability
-Events & public announcements
-Information about the agency/office
-Information about the officials
-Tourist information
-Weather & traffic information
Interaction Phase

Correspondence service capability
Request for service capability
-Online inquiry forms
-Message board
-Online survey/polls
-Downloadable forms
-Search for database

Transaction Phase

"End-to-End" transaction capability
-Apply for ID cards
-Reserve public facility
-Renew driver's license
-Paying parking tickets
-Paying income tax
Seamless Service Phase

Horizontal (intra-level) linkage
Vertical (inter-level) linkage
-Links from central government website to another central government 
website. (Intra-level linkage)
-Links from local government website to central government website. 
(Inter-level linkage)

To further place our analysis in a Taiwanese perspective, we also 
categorized our subject of examination according to Taiwan's 
administrative and territorial structure into three levels: central 
government, secondary government, and local government. Central 
government includes the President's Office, the five branches of 
government and its direct subordinate commissions and agencies. 
Secondary government includes 25 major city/county offices. Local 
government includes 336 smaller cities, villages and towns, all of 
which are under the jurisdiction of the secondary government.
Table 2 illustrates the three-levels of government with some examples 
that fit into the category. This list is not exhaustive.
Table 2: Three Levels of Government in Taiwan
Level of Government
Examples
Central Government

Office of the President, the five executive branches and their 
subordinate commissions and offices
-Executive Yuan
-Legislative Yuan
-Judicial Yuan
-Control Yuan
-Examination Yuan
-Other commissions and offices
Secondary Government

Taiwan's 16 administrative counties, 5 municipalities, and 2 special 
municipalities

-Taipei County
-Taipei Municipality
-Chia-Yi Municipality
-Taichung Municipality
-Tainan County
-Kaohsiung Municipality
Local Government

The 336 smaller cities, towns and villages under the jurisdiction of 
the Secondary Government
-Shihwu Village
-Puli Town
-Daishi Town
-Touliu City
-Taibao City
-Lanyu Village

The four phases of e-government, along with our three-level 
stratification of the administrative system, informs our data 
gathering and determines the answers to our research question: what 
is the status of e-government development in Taiwan.

Methodology
As an exploratory research, the conceptual framework is applied to 
examine the central, secondary, and local government in Taiwan. We 
located websites of different agencies and offices through the 
official government portal (www.gov.tw), hyperlinks from government 
websites, and through a thorough search of the two major search 
engines in Taiwan: www.tw.yahoo.com and www.yam.com.tw. The website 
is then categorized according to our definition of central, 
secondary, and local government mentioned earlier.
With all the websites listed in alphabetical order, we tracked the 
availability of the website over a 10 month period for continuous web 
operation and identified 410 sites as our total population. By means 
of random sampling, we selected 62 (15%) for content analysis. Since 
Taiwan's Executive Branch consists of more agencies and offices than 
other branches of central government (thus more websites), we used 
further stratification method on central government websites to 
ensure the representativeness of the result. There are two "must 
include" websites in our analysis: the Presidents Office 
(www.president.gov.tw) and the My E-Gov Portal (www.gov.tw) because 
they are the flagship websites that represent the government. A list 
of our samples is documented in Appendix I.
The content of the websites are analyzed and coded by two researchers 
with an inter-coder agreement reached 97 percent. The content 
analysis of these websites is to determine the level of e-government 
that each site has attained. Since the objective is to determine the 
informational, responsive and transactional levels of these web 
pages, we cannot simply examine the index page of the websites, as 
other e-government study does (e.g. Zhang, 2002) in that some 
interactive or service features may be hidden in the second or third 
layer. Coders, therefore, had to click through every layer and look 
at the individual web pages so as to determine if they are 
informational, responsive, transactional or a combination of these 
characteristics. The coding criteria are specified in our conceptual 
framework mentioned earlier.
Findings
Content analysis from our selected sample suggests that the 
development of e-government in Taiwan is moving toward a positive 
direction. First the information dissemination capability is achieved 
at all levels of government, although the range of topics and the 
depth of information vary greatly from offices to offices.
As for the interaction phase, the interaction feature is present at 
the majority of the websites we examined with the exception of a few 
local government sties. Our data suggests that secondary governments 
have the most comprehensive interactive features, including both 
"inquiry" and "request" type of interaction on their websites. 
Citizens have the opportunity to submit online inquiry form, to 
request services, to search for regulatory database, or to 
participate in online polls and surveys. By contrast, interaction 
function on the majority of central and local government websites is 
limited. Most central government sites offer some kind of database 
search while local government sites provide online inquiry forms.
When it comes to transactional capabilities, while 54 percent of the 
websites offer forms for users to download, the majority of the 
websites we surveyed at all three levels of governments do not 
provide transactional services online. However, this does not mean 
that the transactional phase is not achieved in Taiwan's development 
for e-government: nearly all websites (98%) links back to the central 
online transaction portal (www.gov.tw), where users can complete a 
wide range of transactions online.
Lastly, seamless service phase is not quite achieved by websites at 
all three levels of governments. Most of the websites include 
vertical (inter-level) linkages that connect subordinates to 
supervising departments/offices. Almost all websites also link to the 
central e-government portal. By contrast, horizontal (intra-level) 
linkage is not as common. Only 66% of the websites we surveyed have 
links to offices at the same level. The following table shows a 
summary of our findings:


Table 3: E-Government in Taiwan
Phases of E-Government
Taiwan
Information Dissemination Phase Reached….
Central-
YES
Secondary-
YES
Local-
YES
Interaction Phase Reached
Central-
YES
Secondary-
YES
Local-
YES, but mostly correspondence inquiry
Transaction Phase Reached….

Transaction capability is not present on individual website, but all 
re-direct transactional web traffic to the central portal www.gov.tw, 
which has online transaction capability. Individual websites offer 
forms to download.
Central-
NO (Links to central transaction portal)
Secondary-
NO (Links to central transaction portal)
Local-
NO (Links to central transaction portal)
Seamless Service Reached…
Central-
YES
Secondary
YES
Local-
YES (Vertical, inter-level linkage only).

Discussions & Analysis
Two key characteristics about Taiwan's e-government program stand out 
from our observation. First is that the specific information, 
interaction, and transactional functions available on the websites 
often parallel with the function and purpose of the particular 
office/agency. For example, many regulatory agencies in the central 
government tend to offer citizens opportunities to learn more about 
the application of certain laws and regulations, rather than 
providing opportunities for direct interaction. In contrast, 
secondary and local government websites tend to offer essential 
everyday information and the overall content often reflects such 
day-to-day interaction because these authorities bear the 
responsibilities of ensuring the quality of life for their residents. 
This attribute is found consistent across the three levels of 
government and shows that administration officials in Taiwan 
understand the "service potential" of e-government.
	Second, the structure and organization of Taiwan's e-government 
reflects a single-service window approach. As mentioned earlier, the 
transaction and seamless service capability is not present at the 
individual agency/department website. Instead, they are re-directed 
to the central e-government portal (www.gov.tw). The transaction 
section on this central portal offers a vast collection downloadable 
forms and more than 2,000 services to be completed online, all 
divided into different categories. In addition to the My E-Gov 
portal, many local government websites also redirect online 
transaction services to the Village Services Portal 
http://www.village.gov.tw, which provides specific online services 
tailored to meet the needs of residents in smaller rural towns and villages.
Our study also shows that the current progress status of e-government 
is on par with the country's long-term development plan and overall 
infrastructure readiness. As mentioned previously, the Taiwanese 
government set the goal to convert at least 40% of the current 1,500 
application services online by 2004. As we have discovered, the 
central e-government portal offers more than 2,000 transactions, 
ranging from traditional application forms to many miscellaneous 
services such as buying rail tickets. In addition, nearly all (94%) 
government agencies have established web presence and provide some 
kind of services online, which is a major objective for Taiwan to 
jump-start its e-government initiative.
At the same time, the implementation of e-government also parallels 
with the situation of digital divide in Taiwan, with urban areas in 
the north and west leading the stage while rural regions of south and 
east are trailing behind, most of them still remain at the 
information dissemination level. This is no surprise – but if the 
government's plan is to build an e-society, this is a problem that 
cannot be overlooked. In addition, our tracking of website 
availability shows that many websites are not "always-on": some 
websites are not available during weekends or public holidays, and 
22% of government agencies changed their web address during the 10 
months tracking period. This is a contradiction to the purpose of 
providing 24/7 services to citizens through e-government programs.
Recommendation for Future Studies
It is reasonable to conclude from the result of our study that the 
development of e-government in Taiwan has reached an advanced level 
with all four phases of our conceptual framework achieved and a 
centralized e-government service portal, where users can fetch 
information, interact with government officials, or complete their 
transactions – all at one stop. However, as we have pointed out, 
Taiwan's e-government development still faces many difficult 
challenges such as digital divide and content management.
Our research also opens the door for many future studies. For 
instance, is Taiwan's e-government model more cost-effective than 
others? What about the social, political and economic implication of 
Taiwan's e-government? Does the Taiwanese government have a plan to 
cope with the increasing digital divide? These are some of the 
research questions that should be considered for future explorations. 
As for the evaluation of e-government, a continual effort to measure 
both the goal of the government and the needs of the users, including 
the government agencies, businesses and citizens, is essential.
To summarize, Taiwan is only one of many successful e-government 
examples in the world. For e-government practitioners in both public 
and private sectors, it is important to recognize that the road to 
e-governance is often a trial-and-error process. There is no 
universal solution to address the needs of different nations and its 
citizens. Individual governments should explore the experience of 
others and determine what can they provide, and what does the people 
want. To that end, our paper offers the perspective from Taiwan, 
where the government has integrated its vision for digital governance 
with the island's economic development plan and successfully created 
a unique model of e-government.
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Appendix : Sample E-Government Websites

URL
Availability 03/03
Availability 01/04
Central Government
E-Government Gateway
http://www.gov.tw/
YES
YES
Office of the President
http://www.president.gov.tw/
YES
YES
Research Development and Evaluation Commission
http://www.rdec.gov.tw/home/
YES
YES
Atomic Energy Council
http://www.aec.gov.tw/
YES
YES
Council on Physical Fitness and Sports
http://media.justsports.net.tw/spo_demo/index.asp
YES
YES
Taiwan Forestry Bureau
http://www.forest.gov.tw/
YES
YES
Commission on Women's Rights Promotion
http://cwrp.moi.gov.tw/
YES
YES
Civil Aeronautics Administration
http://www.caa.gov.tw/
YES
YES
Construction and Planning Administration
http://www.cpami.gov.tw/Welcome.htm
YES
YES
National Police Administration
http://www.npa.gov.tw/
YES
YES
Ministry of Education
http://www.edu.tw/
YES
YES
Water Resources Agency
http://www.wra.gov.tw/
YES
YES
Department of Industrial Technology
http://doit.moea.gov.tw/
YES
YES
Bureau of Health Promotion
http://www.bhp.doh.gov.tw/
YES
YES
Ministry of Civil Service
http://www.mocs.gov.tw/
YES
YES
Secondary Government
Taipei County
http://www.tpc.gov.tw/
YES
YES
Chiayi City
http://www.chiayi.gov.tw/
YES
YES
Kaohsiung County
http://www.kscg.gov.tw/
YES
YES
Pingtung County
http://www.pthg.gov.tw/
YES
YES
Local Government
Panchiao City
http://www.panchiao.gov.tw
YES
YES
Sanchung City
http://www.sco.gov.tw
YES
YES
Shrding Village
http://www.shrding.tpc.gov.tw
YES
YES
Pingshi Village
http://www.pingshi.tpc.gov.tw
YES
YES
Dashi Town
http://www.dashi.gov.tw
YES
YES
Henshan Village
http://www.hchst.gov.tw
YES
YES
Miaoli City
http://web.mlcg.gov.tw/
YES
YES
Shihwu Village
http://www.shihwu.gov.tw/
YES
YES
Chushang Town
http://www.chushang.gov.tw/
YES
YES
Puli Town
http://village.nthg.gov.tw/puli/
YES
YES
Jenai Village
http://village.nthg.gov.tw/jenai/
YES
YES
Dadu Village
http://www.dadu.gov.tw/
YES
YES
Wujih Village
http://www.wujihtcc.gov.tw/
YES
YES
Fanyuan Village
http://www.chhg.gov.tw/chhgtown/town03/index.asp
YES
YES
Erhliin Town
http://www.erhlin.gov.tw/
YES
YES
Dacheng Village
http://www.chhg.gov.tw/chhgtown/town08/index.asp
YES
YES
Touliu City
http://www.dl.gov.tw/
YES
YES
Taihsi Village
http://www.taihsi.gov.tw/
YES
YES
Yuanchang Village
http://w3.yunlin.gov.tw/partment/town/yuanc/index_yuanc.html
YES
YES
Taibao City
http://taibao.cyhg.gov.tw/
NO
YES
Mingshung Village
http://www.msch.gov.tw/
YES
YES
Yichu Village
http://www.yichu.cyhg.gov.tw/
YES
YES
Dungshan Village
http://dungshan.tainan.gov.tw
YES
YES
Shingying City
http://www.sych.gov.tw/
YES
YES
Shiuejia Town
http://shiuejia.tainan.gov.tw
YES
YES
Madou Town
http://madou.tainan.gov.tw
YES
YES
Anding Village
http://anding.tainan.gov.tw
YES
YES
Daliau Village
http://www.daliau.gov.tw/
NO
YES
Yuanan Village
http://service.kscg.gov.tw/kscg/town/16/public.asp?t=1
NO
YES
Kaoshu Village
http://www.pthg.gov.tw/chinese/town/PTT04/default.asp
YES
YES
Jouru Village
http://www.pthg.gov.tw/chinese/town/PTT02/default.asp
YES
YES
Pingtung City
http://www.ptcg.gov.tw/
YES
YES
Taiwu Village
http://www.pthg.gov.tw/chinese/town/PTT28/default.asp
YES
YES
Tungkan Town
http://www.pthg.gov.tw/chinese/town/PTT17/default.asp
YES
YES
Shitsu Village
http://www.pthg.gov.tw/chinese/town/PTT31/default.asp
YES
YES
Kuanshan Town
http://www.kwanshan.gov.tw/
YES
YES
Lanyu Village
http://lanyu.taitung.gov.tw/
NO
YES
Tungshan Village
http://www.dongshan.gov.tw/
YES
YES
Wanrong Village
http://www.hl.gov.tw/hualien/as07/home.htm
YES
YES
Juoshi Village
http://www.hl.gov.tw/hualien/as13/home.htm
YES
YES
Wangan Village
http://www.wangan.gov.tw/
YES
YES
Kingnin Village
http://www.kinmen.gov.tw/?????/admin_d4.aspx
YES
YES