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Recibido: 03-05-2019 /Aceptado: 03-06-2019/ Publicado: 03-07-2019

Modelo de gobierno electrónico peruano: servicios = para el ciudadano en los portales de los gobiernos regionales<= /b>

                  =                                                                                                       

Evaluation of services for the citizen in the portals of the regional governments, according to the model of peruvian electronic g= overnment

Pablo Fel= ipe Alvarado Aguirre.[1= ], Paolo Israel Cevallos Vásquez.[2], = Edwin Daniel Moran Villamarin.[3] & Lenin Feliz Preciado Ortiz.[4]

DOI:  https://doi.or= g/10.33262/visionariodigital.v3i3.656

Abstract.                               

This research starts wi= th a minimal introduction that we want to achieve in this work. In the second chapter, we incorporate the main laws related to the citizen’s services in = The Public Administration, those laws will allow us to understand the basic leg= al of State Modernization’s Process, E-Government, Institutional Web Sites and= The Government Regionals of Perú. We briefly describe about the antecedents, the definitions, and the progress of government in Perú and The World. The four= th chapter is divided into two parts, the first part describes about the speci= al measures denominated Ť criterion ť,  we also described and selected the Methodology, these elements will allow The Global Evaluation of Web Sites of (25) Government Regionals, for this evaluation we don’t considerate the back office; the next part shows the fi= nal results that are subdivided into three parts: 1) description of e-government development’s actual state in the 25 Government Regionals, 2) detail the features related to  interaction, i= nformation and digital services and 3)  descri= ption of the current states of some services for the citizens, such as online acc= ess information,  online procedures and online participation.<= /p>

Keywords: E-Government, Citizen’s Services, Web Sites.

            Resumen.=

La investigación inicia con una parte introductoria de lo que se pretende realizar en el presente trabajo. En el segundo capítulo se incorpo= ra la normativa relativa al servicio del ciudadano en la Administración Públic= a, los cuales permiten entender la legislación básica del proceso de Moderniza= ción de la Gestión del Estado, el Gobierno Electrónico, los Portales Web y los Gobiernos Regionales en el Perú. Se hace una breve contextualización de los antecedentes y avances de Gobierno Electrónico en el mundo y en el Perú. El cuarto capítulo se divide en dos partes, en el primero se realiza la selecc= ión de criterios y la metodología que permitirán evaluar de manera global el fr= ont office de los portales web de cada Gobierno Regional y en la segunda parte = se exponen los resultados obtenidos, que a su vez: 1) muestra el estado actual= de desarrollo de Gobierno Electrónico en los 25 gobiernos regionales del Perú, 2)  detalla las características relacionadas a la interacción, información y medio digital y 3) describe el estado actual de algunos servicios para el ciudadano como el acceso a la información, los trámites en línea y la participación.   

Palabras claves: Gobierno Electrónico, Servicios al Ciudadano, Portal Web, Gobiernos Regionales del Perú y Administración Pública

 

 

Introducción

El Gobierno Electrónico es un concepto ligado al uso de las tecnologías de información y comunicaciones para mejorar las actividades y la calidad del servicio al ciu= dadano en las administraciones públic= as. Uno de los retos que asume la mayoría de las administraciones públicas en el mundo es proporcionar un mayor dinamismo entr= e el Estado y los ciudadanos, con e= l fin de lograr el buen Gobierno, una forma de gobierno que se busca desde la antigua Grecia.

El Gobierno Electrónico es un aspecto clave en el proceso de modernización del Est= ado peruano, promueve el acercamiento de la administración pública a la población a través del uso de las tecnologías de información y comunicaciones para asegurar: el acceso a = la información, los trámites por medios electrónicos, la transparencia de los= asuntos públicos y la participación din= ámica de la ciudadanía. El Gobierno Electrónico alcanza a tod= as las entidades públicas que conforman el Estado peruano, el cual es impulsado e implementado bajo la supervisió= n de la Presidencia de Consejo de Ministros del Perú desde el ańo 2003. De acuerdo con los datos que brinda las Naciones Unidas en su sitio web, en el 2016, el Reino Unido de Gran Bretańa e Irlanda del Norte ocupa el prim= er lugar en el índice de desarrollo de e-Government, mi= entras que Perú ocupa el puesto 81 aunque en el 2014 se ubicaba en el puesto 72, datos= que hacen suponer que el Gobierno Electró= nico en el = Perú no es efectivo en su desarrollo. La eficiencia en las administraciones públicas modernas automáticamente gener= a ideas relacionadas con la calidad de servicio que recibe un ciudadano en un medio electrónico, a raíz de ello, en el plano nacional e internacional hay estudios que se enfocan en la evaluación de portales web de administrac= iones, municipios o universidades= en base a su marco de Gobierno Electrónico, de tal modo que llegan= a responder preguntas como: żqué servicios online se ofrece al ciudadano en los portales web?, żcuá= les son las características principales de los servicios en los portales web? o żcuál es el estado actual de desarrollo de Gobierno Electrónico? lamentablemente en el Perú no hay estudios de investigación visibles o info= rmes globales que tome en consideración a los Gobiernos Regionales y que además respondan a dichas cuestiones.

En los portales web institucionales del Registro Nacional de Identificación y Estado Civil, la  Superintendencia  Nacional  de  Aduanas y de Administración  Tributaria  y el  Organismo Supervisor  de Contrataciones  del  Estado se observa que se  han habilitado diferentes  medios de interacción para el ciudadano e intentan cumplir con los lineamientos propuestos por el Gobierno Electrónico peruano; en  cambio, es  difícil afirmar esta  posici= ón cuando  se  trata  de un Gobierno Regional, pese a que este nivel de Gobierno tiene la potestad de elaborar y ejecutar programas de desarrollo integral. En  el  Perú,  algunos  estudios  demuestran  que se  han realizado evaluaciones de Gobierno Electrónico de manera local e institucional, un ejemplo de ello, es el caso= de la Autoridad Nacional del Servicio Civil, que en el ańo 2016 elaboró su diagnóstico de Gobierno Electrónico tomando en cuenta el  modelo  de  nivel  de  madurez  de  desarrollo  de Gobierno Electrónico propuesto  por  las Naciones  Unidas,  para  ello generó sus propio= s  criterios  de  evaluación y concluyó de que  se encontraba entre la etapa d= e “ampliada” e “interactiva”. A enero del 2018, fecha de inicio del presente trabajo, no= se encontró investigaciones referentes a evaluaciones que muestren de manera global o conjunta el desarrollo de gobierno electrónico en los gobiernos regionales, o estudios que describan las características y/o servicios que = se ofrecen en el portal web de cada Gobierno Regional, servicios que en teoría cumplen las necesidades del ciudadano y están alineados a la Política de Gobierno Electrónico Peruano del 2013-2017 ya que en el 2017el Gobierno Cen= tral declaró que era el “Ańo del Buen Servicio al Ciudadano” (Presidencia de Con= sejo de Ministros, 2017, p. 1). De ahí que, tomando en cuenta el front office de= los portales web institucionales y desde la percepción de una ciudadana, el presente trabajo pretende solventar la falta de información y dar a  conocer primero el  estado  actual de  desarrollo  de  Gobierno Electrónico en los  gobiernos regionales, en segundo lugar evidenciarlas características principales de los  servicios en los portales web de los gobiernos regionales y por último describir algunos aspectos relativos a los servicios que se ofrecen al ciudadano en dichos po= rtales de los gobiernos regionales, servicios que están  orientados a promover la  transparencia, la participación  y la agilización  de  trámites administrativos los que a su vez están alineados a la Polít= ica Nacional de Modernización de la Gestión Pública en el Perú.

Por lo tanto, El objetivo general de esta investigación es evaluar l= os servicios para el ciudadano en los portales de los veinticinco (25) gobiern= os regionales, según el modelo de Gobierno Electrónico peruano.

Marco Teórico

El internet nace en los 60 en Estados Unidos con el Advanced Research Project Agency Network como parte d= e la respuesta gubernamental a Sputnik de la Unión Soviética durante la guerra f= ría, “cuya finalidad era, no depender de un ordenador central” (Álvarez Barrios, 2012, p. 19) , en los 90 aparece el primer navegador que solía ser utilizado por pequeńas elites conocido por algunos como “digeratis” (Castell, n.d.), término que se utiliza de manera humorística al referirse a las personas que conocen y utilizan bastante las computadoras e internet.<= /p>

En 1993, el presidente Clinto= n y el vicepresidente Gore de los Est= ados Unidos, proponen reinventar el Gobie= rno Federal bajo la misión de crear un Gobierno que trab= aje mejor, a un coste menor y con resulta= dos favorables para los estadounidenses, el reinvento duro casi una década, la visión era cambiar la experiencia del Ciudadano-Gobierno a través de las Tecnologías de Información y Comunicaciones en adelante Tics, cuya visión además se orientaba a que, tanto la información personal como los servicios sean controladas seg= ún las necesidades del ciudadano y no por lo= s gobiernos (Kamensky, 1999), todas estas iniciativas trajeron el concepto de gobierno electrónico en el mundo.<= o:p>

El modelo tradicional de la administración pública se ha caracterizado por ser estática, por estar orientada a misma, de comunicación jerárquica y regulada por normas rígidas; sin embargo, hace m= ás de dos décadas los gobiernos vien= en promoviendo una administración mucho más orientada al ciudadano, una que sea inversamente proporcional al = modelo clásico de Max Weber, esta nueva orientación busca brindar mayor interactividad y disposición de parte de las administraciones hacia los ciuda= danos con el uso de las tecnologías, donde no solo ciudadanos sino los gobiernos se beneficien con las ventajas que esta trae consigo. Estados Unidos, China, Japó= n, Alemania y Reino Unido (UK) son países económicamente desarrollados en el mundo, sin embargo, no todos ellos ocupan un buen lugar en el ranking de desarrollo de Gobierno Electrónico, en la Figura 1 podemos observar a los 10 países que lideran en el desarrollo de e-government, los cuales se enfocan = en reforzar la participación ciudadana, crear nuevos servicios online, capital humano e infraestructura de telecomunicaciones para interactuar mejor con el ciudadano.

Figura 1. Índice de desarrollo de Gobierno Electrónico. Fuentes: (Naciones Unidas, 2016).

 Elaborado por: Los autores

Definición, categoría y focalización de Gobierno Electrónico

Mesa Torre, autor de <= span style=3D'letter-spacing:-.2pt'>la tesis “Interoperabilidad como parte = del Desarrollo del Gobierno Electrónico en el Perú” menciona que para: la Organización de las Naciones Unidas = (ONU) el Gobierno Electrónico es la utilización de Internet y el World Wide Web para entregar información y servicios= del Gobierno a los ciudadanos; la Unión Internacional de Telecomunicaciones (UIT) el Gobierno Electrónico es el uso de = las tecnologías de la información y comunicación para prestar servicios públicos, mejorar la eficacia gerencial y promover valores democráticos, así como un marco regulatorio que fac= ilite información para iniciativas intensivas y promueva la Sociedad de la Información; y la Organización para la Cooperación y el Desarrollo Económico en adelante OCDE, el Gobierno Electrónico es la oportunidad de desarrollar una nue= va relación entre el Gobierno, ciudadanos, usuarios de servicios y empresas, a través de las TIC, permitiendo la difusión y recopilación de informaci= ón y servicios tanto dentro como fuera del Gobierno para la prestación de servicios, la toma de decisiones y la = rendición de cuentas (2014).

De Gobierno Electrónico a Gobierno Abierto

Desde el 2005 los países han incorporado en sus estrategias de Gobierno Electrónico la= información en línea; la georreferenciación= ; la simplificación administrativa; la desmaterialización de procedimientos; la firma electrónica y digital; los registros, docu= mentos y archivos electrónicos; la preservación de la información; la interoperabilidad; la protección de datos; los medios de pago electrónico; la seguridad, usabilidad, accesibilid= ad; la contratación electrónica; las ventanillas únicas entre otras, y en l= a última década algunos países muestran= mayor disposición de entregar información y datos de interés público a la sociedad (Naser & Hofmann, 201= 6, p. 23).

El Gobierno Electrónico Peruano

El Gobierno Electrónico Perua= no busca: mejorar la gobernabilidad a través de la generación de valor público para los ciudadanos, apoyar a las instituciones del ámbito local, regional o nacional en el cumplimiento de sus metas institucionales, sean estas intrai= nstitucionales o interinstitucionales y se encuentra alineado a las tendencias mundiales. = El modelo de nivel de madurez por etapas de desarrollo en materia de Gobierno Electrónico, el cual nos permitirá realizar una aproximación global del niv= el de government-to-citizen desarrollado en las administraciones de los Gobiernos Regionales, se debe re= marcar para la selección de los criterios de evaluación, se toma= en cuenta el front office de los = portales web y los tres lineamientos del modelo de Gobierno Electrónico p= eruano.

Indicadores para evaluar el grado de desarrollo de Gobierno Electrón= ico.

Las etapas de desarrollo del modelo propuesto por la Organización<= span style=3D'letter-spacing:-.35pt'> de las Naciones Unidas del Instituto Latinoamericano del Planificación, Económica y Social – Comisión Económica para América Latica y el Caribe que se muestra = en el estudio de Gobierno Electrónico en = la Gestión Pública realizada por (Naser & Concha, 2011) es la que mejor se adapta al presente trabajo; también es necesario mencionar que este modelo se utilizó en el diagnóstico realizado en el 2016 por la Autoridad Nacional del Servicio Civil, en adelante SERVIR, con el que se evaluaron aspectos que recaen sobre gobierno electrónico; para di= cha evaluación, SERVIR generó sus p= ropios atributos que servirán de referencia en la elaboración de los indicadores que corresponden al presente trabajo.

Tabla 1. Descripción y atributos de nivel de madurez de iniciativas de Gobierno Electrónico

Nivel de madurez

=  

Descripción

=  

Atributos

=  

%

Emergente

El país o la entidad asume el compromiso de desarrollar Gobierno Electrónico, pero sólo información básica se brinda a través de

Internet.

Logo,      =   mapa        de sitio, contactos

0-20

Ampliada

La presencia en línea del país se expande. Crece la cantidad de sitios Web, y se provee interacción a través de medi= os más sofisticados (búsqueda en sitios Web e interacción a través de

correo electrónico

Mapas, buscador

21-40

Interactiva

Existe una presencia masiva de servicios con interacción más sofisticada, por ejemplo,

llenado y envío de formularios electrónicos=

Formularios electrónicos

41-60

Transaccional

El Estado o la entidad ofrece transacciones completas y seguras tales como: obtención de

visas y pasaportes, certificados = de nacimiento y defunción, p= ago de multas e impuestos, etc.

Trámites en línea, certificado digital, pagos en línea.=

60-80

Integración

Acceso instantáneo a servicios de manera integra= da. El usuario no percibe las fronteras entre los distintos servicios

Participación ciudadana, ventanilla                             única,=

gobierno abierto

81-100

Fuente: Elaboración propia en base al modelo de las Naciones Unidas y Servir

Metodología.=

La metodología= del INCAE clasifica a tres las categorías de calidad, las cuales se subdividen = en 6 niveles y estas en 24 criterios generales y a cada uno de estos criterios s= e le asigna pesos, los cuales detallaremos en las siguientes tablas.<= /span>

El significado= de los pesos según Robayo Valencia (2017, p. 36) se detalla de la siguiente manera:

Peso 1. Acciones básicas sin necesidad de interacc= ión.

Peso 2. Requiere de interacción lo que puede involucrar cambios en los procesos de la institución.

Peso 3. Implica el desarrollo de una infraestructu= ra compleja, que permita la interoperabilidad entre instituciones.<= /span>

Para la calificación de cada uno de los indicadore= s, los cuales hacen un total de 52, también se le asigna un valor categórico a cada indicador, es decir, si cumple con el indicador se le asigna un “1” y = si no cumple con el indicador se le asigna un “0”.

El método matemático por el que se obtiene la nota final de la evaluación es mediante= la siguiente formula:

Donde i es = la cantidad de criterios presentes en la metodología, 𝑥𝑖 es la calificación obtenida en un criterio determinado, 𝑛𝑖 el peso asignado a un criterio determinado y 𝑊𝑖 es el valor ponderado de los <= /span>24 criterios, tomando, además, en consideración los pesos propuestos en la metodología del INCAE, los que a su = vez detallamos a continuación en las tablas 5, 6 y 7.

 =

Tabla 2. Criterios para evaluar la calidad de la informac= ión

Criterio

Peso

Presentación

2

Transacción simple

3

Transacción compleja

3

Integración

3

Organización - perfil

2

Integración - perfil

2

Personalización

2

Personalización inteligente

2

Total, Pesos

19

Fuente:= Elaboración propia

 

Resultados.

De la calidad de sus principales características

Los resultados obtenidos resp= ecto a las tres (3) categorías se muestran en la figura siguiente.


Figura 2.  Nota final de las tres categorías de calidad

Fuente: Elaboración propia.

Categoría de calidad de interacción: bajo esta categoría los gobiernos regionales de Ancash, Apurímac, Huancavelica, Lamba= yeque, La libertad y Junín han obtenido las notas más altas que oscilan entre 12,2= 0 a 14,24 de los cuales el primer lugar ocupa el portal web del Gobierno Region= al Junín, en tanto hay otras regiones que han obtenido 7,46 ; al margen del puntaje obtenido por cada uno de los 25 gobiernos regionales, es importante resaltar las características encontradas en cada uno de los criterios que pertenecen a esta categoría: Presentación, Transacción simple, Transacción compleja, Organización.

Categoría de calidad de la información: Los gobier= nos regionales de La Libertad, Apurímac, Cajamarca, Junín, Piura y Ucayali han obtenido las notas más altas que oscilan entre 23,73 a 25,42 mientras que l= a nota más baja está sobre los 17,80; algunas características encontradas en cada = uno de los criterios que pertenecen a esta categoría son: Comprensividad y Exactitud, Claridad, Correcto y Conciso, Aplicabilidad, Consistente, Actual= .

Categoría de medio digital: bajo esta categoría los gobiernos regionales de Cajamarca, Loreto, Lambayeque, Apurímac, La Liberta= d, Junín han obtenido las notas más altas que oscilan entre 24,15 a 27,68. Alg= unas de las características encontradas en esta categoría son: Navegabilidad, Flexibilidad, Verificabilidad, Usabilidad, Accesibilidad, Seguridad y Visibilidad para motores de búsqueda, Velocidad.

De todo lo descrito podemos inferir, de que las principales características de los portales web por medio del cual se ofrec= en servicios al ciudadano en los gobiernos regionales tiene falencias notorias= en la categoría de la calidad de interacción, esta categoría puede hacer que la experiencia del ciudadano  resulte<= span style=3D'mso-spacerun:yes'>  poco agradable  cuando intenta interactuar con los port= ales web de los gobiernos regionales, mientras que debemos rescatar que las otras dos categorías de calidad es decir, la de información y de medio digital es= tán a un nivel promedio de aceptación, sin embargo las mejoras deben ser contin= uas.

 

 

Conclusiones

Los servicios habilitados para el ciudadano, observados desde el front office aún son incipientes en la gran mayoría de = los gobiernos regionales con algunas pocas excepciones, ya que no se promueve de manera íntegra la simplificación de los procedimientos administrativos u ot= ros servicios digitales que puedan cubrir las necesidades de los ciudadanos, pe= se a que tanto la política de Gobierno Electrónico y la Política de Modernización del Estado han planteado como uno de sus objetivos pilares el servicio al ciudadano.

La evaluación de los portales web institucionales,= permitió describir algunas características de la calidad de interacción, calidad de información y calidad de medio digital, que deben ser mejoradas por la gran mayoría de los gobiernos regionales, ya que se ha evidenciado que en la actualidad no se entregan servicios de calidad al ciudadano. De lo resultad= os se resalta que el portal de transparencia suma puntos a la categoría de cal= idad de información, sin embargo, no todos los gobiernos regionales cumplen con publicar y actualizar la información que se produce en cada administración,= ya que, si se cumpliese con ello, esto permitiría que los gobiernos regionales fortalezcan su legitimidad, transparencia, participación ciudadana y estarí= an a un paso de convertirse en gobiernos abiertos.

No debemos olvidar que el Gobierno Electrónico es = el pilar del proceso de Modernización del Estado, y este proceso está ligado c= on la nueva forma de gestionar el Estado (buen gobierno)  a través de las tecnologías de informac= ión y comunicaciones para que  la relació= n de ciudadano y  gobierno  sea  satisfactoria, se  ha  visto  que  muchos gobiernos han  adoptado  diferentes mecanismos de mejora, pero, la diferencia principal y real entre el Perú y otros países líderes en Gobierno Electrónico radica en que todos ellos se enfocan en mejorar continuamente la funcionalidad, el conten= ido y la estructura de sus portales web de acuerdo a las necesidades de sus ciudadanos y consecuentemente han obtenido resultados positivos en materia = de Gobierno Electrónico.

Sabiendo que la estructura, el contenido y la funcionalidad de los portales web en los gobiernos regionales es  un  factor  condicionante  en  el largo  camino  del desarrollo  del  Gobierno Electrónico, además de ser un medio digital importante en e= l que: por un lado se  ofrece servicios, t= rámites  información  y  por  otro  lado se  promueve  la    transparencia y la participación a las distintas generaciones de “ba= by boomers”, “x” y “ millenians” de nuestro querido Perú, es importante que los Gobiernos Regionales repliquen algunas de las iniciativas propuestas en el presente trabajo ya que con ello se podría generar economías de escala, edu= car a los ciudadanos y consiguientemente se podría reducir la brecha geográfica= y digital que en la actualidad existe

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Alvarado Aguirre, P., Cevallos Vásquez, P., Moran Villamarin, E., &am= p; Preciado Ortiz, L. (2019). Modelo de gobierno electrónico peruano: servicios para el ciudadano en los portales de los gobiernos regionales. Visionario Digital3(3), 100-116. https://doi.or= g/10.33262/visionariodigital.v3i3.656

 

 


 

 

 

El artículo que se publica es de exclusiva responsabilidad de los autores y no necesariamente reflejan el pensamiento de la Revista Visionario Digital.

 

El artículo queda en propiedad de la revista y, por tanto, su publicación parcial y/o total en otro medio tiene que ser autoriz= ado por el director de la Revista Visi= onario Digital.

 

 

 

 



[1] Universidad Técnic= a Luis Vargas Torres, Sede Santo Domingo, La Concordia, Ecuador. Facultad de Cienc= ias Administrativas. Universidad de las Fuerzas Armadas – ESPE. pfalvarado@hotm= ail.com

[2] Universidad Técnica= Luis Vargas Torres, Sede Santo Domingo, La Concordia, Ecuador. Facultad de Cienc= ias Administrativas. cevallos_paolo@yahoo.es

[3]  Universidad Técnica= Luis Vargas Torres, Sede Santo Domingo, Santo Domingo – Ecuador. Facultad de Ciencias Administrativas. dani19812009@live.com 

[4] Universidad Técnica Luis Vargas Torres, Sede Santo Domingo, Santo Domingo – Ecuador. Facultad de Ciencias Administrativas. preci= adolenin@gmail.com

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www.visionariodigital.org

                                                 =                                                                                               ISSN: 2602-8506

                                  Vol. 3, = N°3., p. 100-116, julio - septiembre, 2019

 

 

Desarrollo Empresarial                                                                                             Página = = 84

 

 

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