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The	Role	of	Collaborative	Governance	in	the	Barriers	to	the	Brazilian	
Digital	Governance	Policy	Adoption	
Edimara	Mezzomo	Luciano	-	Presenting	Author	
Professor	at	Graduate	Program	in	Management		-	Business	School	
	
Guilherme	C.	Wiedenhöft	
Associate	Professor	at	Polytech	School	
	
	
Fábio	P.	dos	Santos	
Master’s	Student	-	Graduate	Program	in	Management		
Business		
School	
Governance	and	Digital	Organizations	Research	Group
Motivation	1/2	
		
•  The	emergence	of	digital	technologies	along	with	the	changes	in	citizens’	profiles	and	the	
opening	of	governments	led	to	digital	governance	(d-governance)	
•  d-Governance	is	the	use	of	ICTs	by	the	public	sector	aiming	to:	
•  Improve	information	and	service	delivery	
•  Attenuate	the	excessive	dependence	on	the	government	intermediation	between	
services	and	citizens	
•  Encourage	citizen	participation	in	the	decision-making	process	
•  Increase	governments’	transparency,	accountability	and	effectiveness	
•  The	underlying	principle	of	the	use	of	ICTs	to	promote	citizen	engagement	is	the	idea	that	it	
is	not	technology	alone	that	will	determine	the	success	of	these	initiatives	but	rather	how	
the	ICT	artifacts	will	be	employed	to	achieve	government	strategic	objectives	
	
Greenberg	and	Newell	(2012);	Panagiotopoulos	et	al.	(2012);	Tassabehji	et	al.	(2016)
Motivation	2/2	
•  The	Brazilian	Federal	Government	launched	its	Digital	Governance	Policy	(DGP)	in	2016		
aiming	to	guide	all	initiatives	related	to	the	use	of	ICT	in	the	relationship	between	the	federal	
government	and	citizens	
•  	This	Policy	seeks	to	be	a	way	to	increase	initiatives	effectiveness	and	the	generation	of	
benefits	for	the	whole	society	by	expanding	access	to	government	information,	improving	
public	services	and	increasing	social	participation		
	
	
	
	
Brazil	(2016)
Brazilian	Federal	Government	Digital	Governance	Policy		
Axis		 Strategic	goals		
Information	access	
To	foster	availability	and	the	use	of	open	data	
To	broaden	ICT	use	to	promote	transparency	and	publicize	the	use	of	public	resources	
To	guarantee	information	security	and	State	communication	as	well	as	the	citizens’	data	confidentiality	
Delivery	of	services	
To	expand	and	innovate	digital	services	delivery	
To	improve	governance	and	management	through	ICT	use	
To	facilitate	and	universalize	the	use	and	access	to	digital	services	
To	share	and	integrate	data,	processes,	systems,	services	and	infrastructure	
Social	participation	
To	foster	the	collaboration	in	the	public	policies	cycle	
To	increase	and	stimulate	the	social	participation	in	public	services	creation	and	improvement	
To	improve	direct	and	indirect	interaction	between	government	and	society
Research	Problem	
•  The	scarcity	of	researches	aiming	to	understand	the	citizen	participation	difficulties	in	the	
government	policies	conception	(Saxena,	2005)	through	the	lens	of	collaborative	governance	
is	a	motivation	for	this	study	
•  The	absence	of	Collaborative	Governance	might	prevent	Digital	Governance	initiatives	and	
hinder	their	effectiveness		
•  The	research	gap	that	drives	this	study	is	the	necessity	to	understand	the	barriers	to	d-
governance	adoption	in	public	organizations,	which	can	hinder	the	DGP	results	and	also	its	
continuity	
What	is	the	role	of	Collaborative	Governance	in	the	barriers	to	the	Digital	Governance	
adoption?	
Meijer	(2015);	Saxena	(2005)
Research	Goal	
	
The	goal	of	this	study	is	to	understand	the	barriers	for	Digital	Governance	adoption	in	
the	Brazilian	Public	Administration,	in	light	of	Collaborative	Governance.
Theoretical	Background:	Digital	Governance	Definitions		
Digital	Governance	Definition	 		
	
Author	 		
	
Use	of	ICT	to	create	public	value	through	the	collaboration	of	society.		 Chen		
Use	of	ICT	to	support	public	services,	government	administration,	
democratic	processes	and	relations	among	citizens,	civil	society,	the	private	
sector	and	the	state.		
Bannister	and	Dawes	
		
	
Use	of	ICTs	to	provide	convenient	information,	government	services	and	
citizen	participation.		
Kalsi	and	Kiran	 		
	
Use	of	ICTs	by	public	managers	to	carry	out	their	activities	of	supervision,	
planning,	organization	and	coordination	on	various	government	levels.		
Nawafleh	 		
	
Use	of	ICTs	by	the	government	to	promote	improvements	in	service	delivery,	
transparency	and	public	accountability	in	order	to	guarantee	the	quality	of	
life	of	citizens.		
Zamora,	Barahona		
and	Palaco	 		
	
Use	of	ICTs	by	the	public	sector	aiming	to	improve	information	and	service	
delivery,	encouraging	citizen	participation	in	the	decision-making	process	
and	making	governments	more	responsible,	transparent	and	effective.		
UNESCO
Theoretical	Background:	barriers	to	e-Governance	(Meijer,	2015)		
	
Barrier	 Government	 		
	
Citizens			
	
Structural	
		
	
Legal	restrictions,	lack	of	funding,	lack	
of	staff	and	technical	skills,	lack	of	
support	from	managers,	and	top	
management	and	technological	
constraints 		
Lack	of	technological	facilities,	limited	
knowledge	and	skills,	lack	of	time,	and	
lack	of	integration	with	innovation	in	
daily	routines		
Cultural			
	
Resistance	to	change,	fear	that	
innovation	will	weaken	the	robustness	
of	government,	and	attachment	to	
bureaucracy 		
Lack	of	interest,	little	confidence	and	
negative	image	of	the	government,	
and	resistance	to	technologies 		
Verify	the	original	text
Theoretical	Background		
Barriers	to	Digital	Governance	(Melitski,	2011)			
	
Individual	 		 Organizational		 Strategic			
Lack	of	training		
Personnel	without	proper	
qualification	
Understaffed	government	
		
	
Lack	of	support	from	
managers	
Lack	of	planning		
Lack	of	internal	
communication	plan	
High	complexity	projects	
		
	
Lack	of	political	support		
Lack	of	infrastructure
•  Strategy:	Exploratory	
•  Focus:	Qualitative		
•  Data	collection	
techniques:	document	
analysis	and	semi-
structured	interviews		
•  Data	collection	
Interviews	script:	based	
on	the	results	of	the	
document	analysis	
•  Analysis:	categorial	
content	analysis	through	
NVIVO®	
Research	Method	
•  Cross-sectional	exploratory	research	
•  Qualitative	focus	due	to	its	data	collection	and	analysis	techniques		
•  Data	collection	techniques:	
•  Document	analysis	to	understand	the	Digital	Governance	Policy		
•  Semi-structured	interviews	with	11	civil	servants	(identified	as	R1	to	R11)	in	charge	
of	IT	Management	in	several	government	offices	or	state-run	companies	in	one	
Brazilian	State	(Rio	Grande	do	Sul)
Results	Highlights	
Barriers	to	Information	Access	
16	barriers	mentioned	73	times	(barriers,	number	of	evidences,	respondents)	
	
•  Institutional	– organizational	structure,	bureaucracy,	misunderstanding	on	the	data		property	(15	-	
R1,	R2,	R3,	R4,	R5,	R6,	R7,	R8,	R9,	R11)	
•  Lack	of	information	quality		and	concerns	on	Information	Security	(10	-	R1,	R4,	R10)	
•  Lack	of	managerial	leadership	and	political	support	within	the	local	government	(9	-	R1,	R5,	R7)	
•  Lack	of	proper	data	classification	and	traceability	(7	-	R1,	R2,	R3,	R4,	R8,	R10)	
•  Resistance	to	the	use	of	ICT	by	civil	servants	(6	-	R3,	R6,	R7,	R2)	
•  Task	Complexity	(5	-	R2,	R3,	R5,	R6)	
•  Lack	of	proper	coordination	and	governance	(5	-	R2,	R6,	R7)	
•  Lack	of	trust	on	social	institutions	(5	-	R1,	R2,	R3,	R4)	
•  Lack	of	financial,	technical,	or	personnel	capacities	(5	-	R4,	R5,	R9,	R11)	
•  Lack	of	proper	investments	(3	-	R6,	R7,	R11)	
•  Lack	of	efficient	use	(2	-	R5,	R9)	
•  Lack	of	proper	legislation	(1	-	R3)
Federal	Treasury	recommends	that	Serenata	de	
Amor	Operation	(from	Open	Knowledge	Brazil)	
pays	€	150,000	to	access	public	data
Results	Highlights	
Barriers	to	the	Delivery	of	Services	
11	barriers	mentioned	61	times	(barriers,	number	of	evidences,	respondents)	
	
•  Lack	of	e-services	planning	and	strategy	(15	-	R1,	R2,	R5,	R7,	R8,	R9,	R11)	
•  Conservatism	and	absence	of	a	culture	of	digital	services	(8	-	R1,	R2,	R3,	R5,	R10)	
•  Lack	of	proper	governance	and	integration	among	government	offices	(7	-	R2,	R3,	R5,	R9)	
•  Unfamiliarity	with	ICT	applications	and	benefits	(7	-	R5,	R6,	R7,	R8,	R9)	
•  Lack	of	focus	on	citizens	or	on	public	value	creation	(4	-	R2,	R7,	R11)	
•  Insufficient	understanding	and	application	of	processes,	services,	and	the	responsibility	
matrix	(4	-	R4,	R6,	R10)	
•  Insufficient	civil	servants	(4	-	R1,	R5,	R11)	
•  IT	company	delays	in	attending	requests	(4	-	R2,	R3,	R7)	
•  Resistance	to	changes	by	civil	servants	(3	-	R7)	
•  High	financial	costs	(3	-	R5,	R9,	R10)	
•  Lack	of	proper	data	classification	and	traceability	(2	-	R5,	R10)	
“We	never	ask	citizens	at	the	other	end	what	he/she	needs	to	make	things	easier	or	faster,	in	short,	what	
he/she	is	looking	for.”	(R6)
Results	Highlights	
Barriers	to	Social	Participation	
8	barriers	mentioned	46	times	(barriers,	number	of	evidences,	respondents)	
	
•  Lack	of	citizens’	involvement	by	government	(12	-	R1,	R3,	R6,	R7,	R10,	R11)	
•  Lack	of	citizens’	involvement	in	government	(10	-	R1,	R2,	R3,	R5,	R9,	R10,	R11);		
•  Lack	of	participation	initiatives	by	government	(6	-	R2,	R3,	R4,	R5,	R9,	R10)	
•  Inadequate	communication	between	government	and	citizens			(4	-	R4,	R7).		
•  Government	focused	on	itself	(4	-	R5,	R9,	R11)	
•  Lack	of	proper	understanding	of	the	state	functions	and	responsibilities	(4	-	R2,	R8,	R9,	R10);		
•  Lack	of	proper	disclosure	of	information	(3	-	R4,	R7,	R11)		
•  Lack	of	adequate	number	of	civil	servants	and	also	their	limitations	to	deal	with	the	digital	era	
(3	-	R4,	R7,	R11)	
	
	
•  “The	state	has	to	be	a	hand	that	goes	to	the	citizen	and	not	the	contrary.	Without	efforts	from	part	to	
part,	digital	governance	is	not	going	to	happen”.	(Respondent	6)	
•  “Citizens	do	not	feel	part	of	the	government”.	(Respondent	3)
Synthesis	of		Results	1/3	–	some	quotes	
“Public	administration	is	far	from	the	citizen,	not	giving	space	for	the	manifestation	of	citizens	needs,	
what	they	effectively	need	and	what	they	effectively	expect	from	the	government”	(R9)	
	
“We	need	to	open	up	space	to	citizens	in	several	ways:	surveys,	ombudsman,	forums,	panels,	and	so	on.	
We	have	to	listen	to	them,	show	our	ideas	and	ask	for	feedback	in	order	to	verify	if	we	are	reaching	the	
goal,	which	is	the	citizens’	needs.”		(R1)	
	
“[…]	I	believe	that	society	would	participate		if	government	asked	for	that,	if	the	government	went	to	the	
streets	to	understand	the	other	end.”	(R6)	
	
“[…]	Government	is	so	focused	internally	[related	to	data]	and	the	biggest	barrier	is	to	change	the	point	
of	view	from	internal	to	external,	which	is	the	citizens,	the	reason	for	the	existence	of	a	
government.”	(R1)
Synthesis	of		Results	2/3	–	some	quotes	
		
“People	have	lost	their	confidence	in	any	level	of	government	in	Brazil.	It	is	not	possible	for	just	one	
organization	to	solve	this	lack	of	trust,	which	hinders	participation.”	(R2)	
		
“Citizens	don’t	feel	they	are	heard	by	the	governments.	Governments	do	not	have	an	easy	and	agile	way	
to	talk	with	citizens,	and	this	turns	things	a	lot	more	difficult…”	(R10)	(to	let	citizens	have	a	voice	≠	to	
hear	the	voice	they	already	had)	
		
“In	a	digital	world,	citizens	feel	they	are	not	part	of	a	digital	government	because	governments	are	not	
properly	present	in	the	digital	world.”	(R4)	
		
“Government	is	a	lot	more	bureaucratic	in	the	eyes	of	those	who	are	present	in	the	digital	world	and	use	
digital	technology	to	do	everything.”	(R3)	
		
“We	need	to	find	effective	ways	of	discussion	that	reach	the	majority	of	the	citizens	so	they	can	show	
what	they	are	interested	in	and	express	their	opinions,	therefore	they	can	feel	part	of	the	society.”	(R3)
Synthesis	of		Results	3/3	
The	codes	identified	through	content	analyses	were	categorized	following	the	kind	of	
barriers	proposed	by	Meijer	(2015),	namely	structural	and	cultural,	and	also	to	the	
dimensions	of	barriers	proposed	by	Melitski	et	al.	(2011),	namely	individual,	organizational	
e	strategic.	
	
	 Dimensions		
of	Barriers		
Kind	of	Barriers	
	Individual	 Organizational		 Strategic		 Total		
Structural		 16		
	
47		
42		 105		
Cultural		 17		 33		 31		 81		
Total		 33	 80	 73	 186
“We	need	to	involve	several	areas	to	do	anything.	It	only	gets	worse	considering	our	
culture	of	management	where	every	department	is	isolated	from	the	others.	These	
two	things	combined	is	a	source	of	a	great	barrier”	(R2).				
“We	have	important	difficulties	when	we	need	to	use	data	from	the	database	of	
‘another	department’.	But	would	the	state	not	own	the	data?”		(R5)	
“When	data	sharing	uses	data	from	more	than	one	institution,	we	can	see	the	nefarious	
effect	of	departmentalization:	each	department	thinks	it	is	the	owner	of	its	data”.	(R2)	
“Digital	Government	Barriers	is	a	matter	of	power,	resources	and,	more	than	
that,	it	is	a	matter	of	everyone's	involvement,	which	is	not	easy”	(R1)	
Working		
relationships	
The	categories	of	barriers	and	their	evidences	were	analysed	in	light	of	the	dimensions	of	
Collaborative	Governance	structural	complexity	proposed	by	Huxham	et	al.	(2000).		
Could	the	barriers	be	a	result	of	the	lack	of	proper	Collaborative	Governance?		
Working relationships	– Organizational	Membership	- Governance and task structures – Pluralism – Ambiguity – Dynamics
“When	it	comes	to	creating	means	of	access	to	users,	each	office	wants	to	create	
their	own	to	be	the	protagonist	and	to	generate	publicity.	But	should	the	civil	
servant	not	serve	the	public?”	(R8)		
“Several	colleagues	do	not	like	sharing	data.	[…]	They	may	think	they	are	
going	to	lose	the	control	over	them”	(R8)	
“If	I	need	some	information	related	to	a	civil	servant	profile,	I	need	to	call	HR	and	
explain	the	reason	in	detail”	(R5)	
“Governance	needs	a	broader	viewpoint.	It	is	not	a	single	manager’s	decision.	
This	is	perhaps	the	main	barrier	for	digital	governance	adoption	because	the	lack	
of	governance	weakens	the	middle	management	civil	servants’	power”.	(R2)	
Organizational		
membership	
	
Working relationships	– Organizational	Membership	- Governance and task structures – Pluralism – Ambiguity – Dynamics
“One	of	the	most	important	barriers	is	that	departments	do	not	work	well	
together	in	projects	and	tasks,	and	activities	planning	does	not	consider	it	
true.	Departments	need	to	work	as	a	whole	state”	(R2)	
“Governance	is	part	of	the	government	concept	and	should	be	part	of	
governments'	decision-making	in	order	to	be	closer	to	society”	(R3)	
	
“The	government	has	to	define	the	problem	and	bring	society	to	work	together	to	
develop	solutions.	Or,	more	than	that,	also	bring	society	to	identify	the	
problem.”	(R8)	
“Departments	do	not	work	together	in	a	good	manner	and	there	is	not	
proper	coordination	of	efforts.”	(R1)	
Governance	and		
task	structures	
	
	
Working relationships	– Organizational	Membership	- Governance and task structures – Pluralism – Ambiguity – Dynamics
“Integration	is	the	key.	Integration	and	cooperation.	Work	together,	as	a	
state.”	(R9)	
“Sometimes	the	focus	of	our	activity	is	not	clear.	The	focus	is	the	citizen,	not	the	
government	itself.”	(R10)	
“In	many	initiatives	people	from	different	groups	do	not	freely	cooperate	
due	to	political	or	conceptual	differences.”	(R3)	
Pluralism	
	
Working relationships	– Organizational	Membership	- Governance and task structures – Pluralism – Ambiguity – Dynamics
“I	took	part	in	projects	when	things	were	happening	very	slowly.	But	
sometimes	there	was	so	much	pressure	to	accomplish	a	project	that	we	did	
not	have	enough	time	to	do	things	properly.”	(R7)	
“The	roles	and	responsibilities	matrix	is	not	clear”	(R10)	
Ambiguity	
	
	
Working relationships	– Organizational	Membership	- Governance and task structures – Pluralism – Ambiguity – Dynamics
“The	day-by-day	problems	are	so	common	and	big	that	affect	the	dynamics	of	
the	departments.	This	hinders	both	innovation	and	focus	on	citizens.”	(R5)	
“Most	of	the	time	we	continue	trying,	but	sometimes	we	give	up	because	it	is	
so	difficult!”	(R11)	
Dynamics	
	
Working relationships	– Organizational	Membership	- Governance and task structures – Pluralism – Ambiguity – Dynamics
Final	Remarks	
	
•  The	 main	 academic	 contribution	 is	 the	 identification	 of	 the	 relations	 between	 Digital	 and	
Collaborative	 Governance,	 as	 well	 as	 the	 structural	 and	 cultural	 barriers	 that	 influence	 the	
relations	between	the	strategies	and	the	adoption	of	digital	governance.	
•  The	 main	 contribution	 to	 practitioners	 is	 to	 better	 understand	 the	 aspects	 involving	 the	
adoption	of	Digital	Governance	throughout	public	agents.	Moreover,	the	results	obtained	can	
serve	as	a	reference	for	the	definition	of	strategies	that	can	mitigate	the	effects	of	structural	
and	 cultural	 barriers	 that	 influence	 the	 effectiveness	 of	 Digital	 Governance	 practices	 in	
governments.	
•  The	interviews	were	conducted	exclusively	with	the	public	administration	agents	of	the	direct	
administration	in	Brazil,	which	can	be	considered	a	limitation.	
•  Further	researches	might	include	other	branches	of	the	Brazilian	public	administration	or	other	
cultural	 contexts	 to	 evaluate	 the	 impact	 of	 the	 national	 culture	 in	 relation	 to	 the	 digital	
governance	strategies	and	barriers.
Obrigada!
The	Role	of	Collaborative	Governance	in	the	Barriers	to	the	Brazilian	
Digital	Governance	Policy	Adoption	
Edimara	Mezzomo	Luciano	-	Presenting	Author	
Professor	at	Graduate	Program	in	Management		-	Business	School	
eluciano@pucrs.br	
	
Guilherme	C.	Wiedenhöft	
Associate	Professor	at	Polytech	School	
	
	
Fábio	P.	dos	Santos	
Master’s	Student	-	Graduate	Program	in	Management		
Business		
School	
Governance	and	Digital	Organizations	Research	Group

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