*
Paper presented at the First Meeting of the Working
Party on Application of New Technology to Population
Data in Bangkok, Thailand on September 24-26,
1997. **
Administrator of the National Statistics Office
(Philippines).
Introduction
Providing information has become serious
business as we move into the next century. This
is especially so for national statistical agencies
like the Philippine National Statistics Office
(NSO). Tightening of fiscal budgets may put
considerable constraints on the conduct of its
usual activities like data collection, data
processing and information dissemination. Accordingly,
affected agencies will have to employ "belt-tightening
measures" even as they try to meet the growing
demand for more timely information. It would
do well for these agencies to "re-think" their
current procedures and look for more innovative
measures to bring down the cost of their operations.
This paper will look into the recent developments
in the field of information technology as well
as strategies which are to be adopted by the
NSO in order to maintain its strategic role
as an information provider. Some issues relevant
to the use of IT at the NSO are also presented.
IT
Developments in data collection
The NSO has been practicing the traditional
method of using paper questionnaires for recording
responses in enumeration. Recently, however,
the office has initiated moves to explore the
use of Personal Digital Assistants (PDA) or
Handheld-PC (HPC) in the field operations for
surveys--for enumerators to record responses
of the respondents. These are targeted for pilot
use in an Annual Poverty Indicator Survey starting
next year. If the results of the pilot testing
prove to hasten the data collection efficiency,
then similar devices may be considered for the
enumeration phase of the Census 2000 undertaking.
At present, request for proposals will soon
be sent out to prospective vendors for the supply
of the devices.
Online and web-based data collection is also
being explored. For a start, plans for the collection
of establishment information for the Survey
of Key Enterprises in Manufacturing are being
laid out. The scheme calls for the supply of
the data by sample establishments having Internet
access through web-based forms hosted at the
NSO Internet server. Such data collection method
is seen as a faster and more cost efficient
alternative to the traditional personal interview
methods of acquiring data.
The same scheme of using web-based forms may
be employed for the Census 2000. As experienced
in the past censuses, there is difficulty in
enumerating households that belong to high-income
and exclusive subdivisions. Although the use
of SAQ (Self-Administered Questionnaires) has
helped very much for this particular sector
of Philippine society, the NSO is also thinking
of using Internet technology to gather information.
Data may be collected either via email or web-based
forms from households who may prefer this method
of supplying information. This alternative method
of data collection is intended to supplement
the usual practice of personal interviews.
Enumeration maps produced from digital files
may finally be used for the Census 2000. The
NSO has been building up its digital map holdings
since 1995 and continues to update such maps
in terms of geographic coverage. The NSO hopes
to provide its enumerators with maps that will
contain useful landmarks and characteristics
come the census period.
Since detailed planning for the next census
will still have to commence next year, there
are no specific plans yet, as of this writing,
for the adoption of Optical Character Reader
(OCR) and Optical Mark Reader (OMR) technologies
in the census data collection phase.
Data
processing strategies
The decentralized approach to processing
census and survey data has proven to be an effective
strategy in reducing the time lag of the release
of results. This approach, mainly facilitated
by the use of microcomputers, will continue
to be adopted in the next census undertaking.
The first Philippine census that was processed
entirely with microcomputers was the 1990 Census
of Population and Housing. The microcomputer
setup then consisted of stand-alone PC-XTs for
data entry. The keyed data were initially stored
in 3.5-inch diskettes. The consolidation and
subsequent processes were done using PC-ATs
(286 and 386 machines) with hard disks. Tape
cartridges of 60 MB capacity were used to maintain
backup copies as well as to store data for transmission
to the central office.
Learning from the 1990 census experience, the
processing of the 1995 census processing round
had a few improvements over the 1990 round.
Instead of a stand-alone setup, the microcomputer
units were hooked into a LAN, thus eliminating
the need for diskettes. An automated system
of control for documents and keyer assignments
was also made possible by the LAN environment.
The NSOnet, a nationwide data communication
set-up using dial-up connections, was set up
to support the transmission of advanced population
counts to the central office twice a week. Bernoulli
(230 MB) cartridges were already used, in lieu
of 60-Mb tape cartridges, as the medium for
bulk storage for both back-up and transmission
purposes.
For the Census 2000 processing, there are a
few proposed changes in strategy. One is in
the network infrastructure setup. Given the
recent growth of the telecommunications sector
in the Philippines, it is unlikely that the
NSO will repeat the 1995 census strategy of
maintaining its own nationwide network infrastructure
(NSOnet). Instead, the NSO will take advantage
of the available infrastructure put up by local
Internet Service Providers (ISP). There are
at least 80 ISPs now in the country and the
number continues to grow. Given the popularity
of the Internet, it is highly probable that
the country will have at least one ISP in every
province before the conduct of Census 2000.
Thus, the data communications support needed
for the census will ride on existing Internet
infrastructure.
The NSO no longer doubts the merits of decentralized
processing. As such, there are two options being
considered for the Census 2000. One is to push
down further the level of decentralization so
that much of the processing will be done at
the provincial offices. It may be noted that
in 1990, only the regional offices were involved
in the machine processing under the decentralized
set up. In 1995, two big provincial offices
were added to function as processing centers
with exactly the same responsibilities as the
regional processing centers. In addition, all
the provincial offices took some role in the
automation process by keying and validating
summary counts as well as generating the advanced
population figures. Allowing the two big provinces
to act as full pledged processing centers and
giving machine processing roles to all the provincial
offices was a calculated move to test these
offices' capability to implement census-scale
processing activities. Given the generally positive
results of the test, it is now possible to shift
much of the processing responsibilities to the
provincial offices.
The second decentralization option being considered
for the Census 2000 is more conservative. Instead
of allowing all provincial offices to function
as processing centers, this option calls for
the expansion of the number of processing centers
by allowing a few more strategically-located
provincial offices to become processing centers.
This option is seen as the cheaper alternative
because resources will be less dispersed. The
decision as to which option will be adopted
will be greatly influenced by the amount of
budget to be provided by government.
IT
in statistical data dissemination
IT plays a crucial role for an effective
and efficient data dissemination program. Statistical
information are now being disseminated in various
forms. In the Philippines, the traditional electronic
media has been the diskette. A set of Public-Use-Files
(PUF) containing edited raw data from the 1990
CPH was released in diskettes. Using this PUF,
several studies were undertaken as part of NSO's
project on the "Utilization and Dissemination
of Demographic Data" funded by the United Nations
Population Fund (UNFPA). (Please see Annex A.)
All of the developed countries have been distributing
statistical data products in the form of CD-ROM
since years back. It was only recently that
the NSO started to seriously explore the use
of CD-ROM not only as a distribution medium
for data releases but also for data archival
purposes. If current progress can be sustained,
the first CD-ROM based data product can be released
within a year's time.
Another development in data dissemination is
the use of Internet technologies. The phenomenal
growth of the World Wide Web has not spared
the Philippines. Only this year, the NSO rolled
out its own Internet server and website (URL
is http://www.census.gov.ph).
Although far from complete, the website features
press releases, statistical data, information
on civil registration, publications, and other
relevant dissemination materials. The press
releases are posted at the website at almost
the same time as these are given out to the
media and wire services. Work is also ongoing
for email announcements concerning availability
of new press release issuances to a subscribed
mailing list. Likewise, the delivery of data
and press releases to paying subscribers via
email is also currently being studied. Although
there is no definite plan yet, another similar
move would be a pay-per-access cheme on the
retrieval of data through the web.
Currently, the design and posting of the website
contents is being handled by the Information
Resources Division of the NSO. This division
is also responsible for the maintenance of the
hardware and software setup of the Internet
infrastructure. The information for posting
are sourced from the various subject matter
divisions who specialize in the specific sectoral
concern. However, inherent in the structure
of the NSO as an organization, there are noted
problems in the provision of information. To
respond to this problem, a revised scheme calling
for the subject matter departments to develop
webpages for their data outputs is being seriously
considered. The scheme will then effect the
"decentralization" of webpage preparations to
the subject matter divisions within the central
office. Plans are also underway to train the
regional offices for them to develop their own
webpages. Enticing the regional offices into
preparing their webpages is meant to increase
their awareness in the data that they collect
as well as to develop their interest in current
technologies.
The decentralization of webpage development
augurs well for the overall dissemination and
computerization plans of the office. Although
there has been increasing emphasis on external
dissemination--those directed to external clients--it
was also noted that the internal dissemination
aspect should also be given attention. It is
in this light that efforts are being exerted
towards the setting up of an Intranet infrastructure
within the NSO. Using the same Internet technologies,
the Intranet is targeted not only for internal
dissemination purposes but also to carry out
routine office transactions with employees.
Internal office processes like inventory control
can also be implemented on the Intranet. Intranet-related
activities will start late this year.
Use of Geographic Information System in census
data dissemination will be more extensive in
the Census 2000 round. Since 1995, much of the
activities related to GIS are directed towards
the creation and updating of digital map files.
Although not very accurate for area measurement
purposes, the NSO has already built-up digital
maps down to the barangay level and updating
work has been continuing.
The building up of an integrated statistical
database remains a major task that needs to
be done at the NSO. Although the statistical
database provides a good foundation for the
web-based dissemination as well as for GIS applications,
this activity has been put off from time to
time because of the continuing pressures of
data processing required by new census and survey
undertakings. Also, the small budget available
to the office has aggravated the development
of the integrated database.
Some
IT-related issues
There has been much optimism in the benefits
that can be derived from decentralization of
processing. Despite NSO's relatively long history
in decentralized processing, one key concern
that remains to be addressed more appropriately
is the maintenance of field office computers.
A number of alternatives were tried to address
computer breakdowns in the field offices. One
was to train local staff in basic troubleshooting
and maintenance. Another was to allow outside
non-NSO service shops to do local repairs. The
third alternative was for central office personnel
to travel to the field and do the maintenance.
All the above options yielded partly satisfactory
results but unsuccessful repair attempts remain
high among monitors and printer units.
The millennium bug concern has been one of
the latest subject of discussions in various
IT forums. Just like any other organization
using computers, the NSO will also be affected
by the adjustments needed by the coming millennium.
The issue actually involves both hardware and
software. For the hardware, about 75 percent
of about 750 existing microcomputers were procured
prior to 1995. These are the units which would
be most affected by the millennium bug problem.
However, most of the units are also PC-XTs and
are already more than 7 years old. The most
practical solution that was decided is to replace
the units with newer models. This not only avoids
the millennium problem but also perennial maintenance
problems while at the same time expanding the
computing capability. New units being acquired
are now being required by the NSO to be Y2K
(Year 2000)-compliant.
The other side of the millennium bug issue
is on the software. The NSO custom-coded programs
have been developed and implemented mostly with
the use of software packages (.e.g. IMPS). However,
except for the administrative-based systems,
most of the statistical data processing programs
are considered one-shot softwares, good only
for the particular round of the survey or census.
Nevertheless, it is still estimated that the
number of custom-coded programs that may persist
through year 2000 and which may need to be revised
specifically for the millennium bug will reach
about 100 programs. Future systems which include
file designs and programs will then have to
consider the requirements of the next century.
Another concern is the legalization of unlicensed
commercial softwares. Use of "complimentary"
copies of softwares is likely to occur in developing
countries like the Philippines. There is always
the threat that the Business Software Alliance
(BSA) would take legal action against an organization.
The common reason often given is the prohibitive
costs of the softwares. Lately however, the
Philippine government has been active in trying
to legalize softwares being used in the entire
bureaucracy. First, it has classified software
purchases as supply expenditures rather than
as capital outlay. This allows agencies more
flexibility in the allocation of funds for software.
Another move was the consultation process carried
out with the major software suppliers on the
possibility of providing discounts to government
purchases. There has been an indication that
discounts can be provided but it is in the discounting
scheme where a final agreement has yet to be
reached. To prevent deterioration of the present
level of unlicensed operating systems at the
NSO, it has been made a policy that all new
hardware acquisition shall include Original
Equipment Manufacturer (OEM) licenses of the
operating software as part of the purchase.
This is intended to lessen the future burden
of sourcing funds specifically for software
licenses. As to the few remaining PC-XT units
with unlicensed operating systems, there will
be no attempt to get new licenses for them.
These will just be demobilized and phased out.
Advances in IT have moved so quickly. But government,
particularly its rules and procedures, has not
been fast enough to cope with the changes in
technology. Electronic data access and dissemination
have been widely in use around the world but
payments for these electronic services still
rely on the traditional methods of sending cheques
or postal money orders. Credit card and electronic
cash payments to government entities particularly
in the Philippines may have to wait for a while.
A need to review and update government processes
to be consistent with technological changes
is therefore emphasized.
Conclusion
The importance of IT to many organizations
is now irrefutable. Many have come to rely more
and more on IT to carry out their mandated functions.
For a national statistical office burdened with
a tight budget and a decimated work force, the
use of IT to produce accurate and timely statistical
data becomes even more indispensable. In addition,
new IT products like CD-ROM databases are potential
sources of additional receipts to an agency.
With gigabyte-sized mass-storage and multi-media
devices becoming common fixtures to PCs in many
offices and homes, the market for these new
products has grown several times over. However,
adoption of IT solutions in statistical activities
is not without a downside. For one, there is
the prohibitive cost of software which has led
to the proliferation of unauthorized copies
especially in developing countries. And then
there are the outdated fiscal policies which
will have to be modified to make them more responsive
to the requirements of the new century.
The pressure from external influence notwithstanding,
the final decision on whether or not to adopt
IT-based solutions to improve the delivery of
statistical services still rests with the implementing
agency. The agency should weigh the gains from
the implementation of the new schemes, measured
in terms of client satisfaction, vis-à-vis
the changes that will be effected within the
agency, especially to its personnel.
Annex
A
RESEARCH STUDIES FUNDED
BY THE UNFPA-NSO PROJECT II/93/POI:
UTILIZATION AND DISSEMINATION OF DEMOGRAPHIC DATA
Cebu: A Demographic
and Socio-Economic Characteristics Based on
the 1990 Census
Structural Inequalities
in the Living Standards of Filipinos, A Multi-Level
Analysis, Volume I - Macro Level
Conditions of Households
with Heads in Dissolved Unions
Waste Management Differentials
in Filipino Households
Structural Inequalities
in the Living Standards of Filipinos, A Multi-Level
Analysis, Volume I - Micro Level
Mortality Differentials
in the Philippines
Gender Differentials
in the Philippines: An Analysis of the 1990
Census
Redefinition and Classification
of Urban and Rural Areas in the Philippines
Characteristics of
Makeshift Dwellers in the Metro Manila
Attaching Income and
Expenditure Dimension in the 1990 CPH
Differentials in Philippine
Fertility from the 1990 Census
Profile and Manpower
Contribution to Production of the Special
Sectors of the Philippine Population: Volume
1 - The Children
Profile and Manpower
Contribution to Production of the Special
Sectors of the Philippine Population: Volume
2 - The Disabled
Profile and Manpower
Contribution to Production of the Special
Sectors of the Philippine Population: Volume
3- The Muslims
Profile and Manpower
Contribution to Production of the Special
Sectors of the Philippine Population: Volume
4 - Senior Citizen
