Alastair J. Allan
University of Sheffield
The migration of government to web-based format away from
traditional paper-based versions has been rapid since 1997. In some
cases, the eight year gap has been long enough for a complete move to
e-only. For a host of reasons, digitized information has become the
format of choice within government. The assumption has always been that
if something has been computerized, then it must have been improved and
it will have become better. The purpose of this paper is to explore
that assumption.
History
The methods of publishing government
information have not remained constant. In the 1940s and 1950s, there
were still a few documents recorded in manuscript. The significant
changes of that era were firstly, the growing involvement of government
in publishing the results of its R&D work. Secondly, this in
particular, was a reason for the extended use of microformats at this
time – a trend that grew from nothing into a large output. Thirdly, an
expansion of government was seen and, in particular, the growth of the
number, nature and function of inter-governmental organizations (IGOs)
with the obvious grouping being that of the United Nations. The 1960s
was the period in which was seen the emergence of consensus government
and with it, the growing belief within government that it needed to
produce more information and more documents. At the same time, a
further expansion of government was witnessed with the accelerating
growth in the number of government agencies (or quangos) all of which
were producing information. The 1970s not only saw a period where
academic research into government intensified but also marked the start
of government beginning to use computers and computer-based formats for
information dissemination. Probably the most significant factor of the
decade, though, was the rapid development of new reprographic and
publishing technologies that enabled less formal and more immediate
dissemination of government information.
The 1980s was an era both of expansion and of contraction. There
was marked boom in informal government publication partly arising from
the developments in reprography and also from the new emergence of
desk-top publishing that was enabled by developing computerization. On
the other hand, this period saw the first steps in several countries
towards the privatization of government publishing. One of several such
moves in the direction of contraction was the development of the
’mosaic theory’; the idea was that a tiny snippet of information could
be used by an enemy to build a whole picture along with thousands of
other shards. This belief was behind moves to restrict the flow of
information to the public. The 1990s, of course, saw the birth and
development of the World Wide Web.
Comparison
The starting point for this
comparison of pre and post-web government publishing is a paper that
delivered by this author in March 1984:
Allan, Alastair J. (1985): ‘Access to official publications: the user’s view’ in Whitehall and Westminster: proceedings of the Seminar on Official Publishing; London; 21 March 1984; ed. V.J.Nurcombe.
London. LA, RSIS; pp 22-32. (0946347050)
Two separate strands were identified at that time as being
symptomatic of the barriers that faced users when trying to exploit
official information. The first set was grouped as ‘Access’ and the
second was headed ‘Availability’.
-
Access
- Diverse publishers;
- Barriers with jargon and conventions.
- Info’ Rich : Info’ Poor
-
Availability
- Bibliographical control.
- Archiving.
- Hostile formats.
Access: Diverse publishers
- Rapidly growing number of publishers;
- No main sales point;
- Expanding desk-top publishing;
- Privatization;
- No High St. bookshop access.
These features identified in 1984 still exist 20 years later. The
growth in numbers has been even greater with web publishing; the lack
of a main sales point is now different in that many government agencies
do not have a main web page through which all documents can be traced.
The last feature may seem too obvious but ‘pdf’ format documents can
not be bought through the booktrade – they can only be acquired through
the web.
Look at this website:
http://www.lib.lsu.edu/gov/fedgov.html
This is a page from the LSU libraries: the Louisiana State
University. This page lists all the US Federal websites. Each one is a
publisher. There are over 1 100.
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Look at this website:
http://www.dfes.gov.uk/azindex/atoz/s.shtml
This is a page from the British Department for Education and Skills
and is part of the department’s alphabetical index of websites. Each
one of these contains government information on education. Some are
part of the main site but many others are part of the nest of sites run
by the DfES. There is no central reference point and navigation for anyone, not just the inexperienced, becomes very difficult.
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Access: Barriers from jargon & conventions
- Organization of legislative documents;
- Lawyers’ citation systems.
These two aspects of complication for users have now grown mainly because of the intrusion of inconsiderate web design.
- Organization of legislative documents;
- Lawyers’ citation systems;
- Meaningless URLs;
- Listings using definite article “The …”;
- Listings omitting the author names.
The first two features are long-lasting difficulties that users have
always had in disentangling the shorthand used by lawyers and
legislators. These have not diminished over the years. New barriers
that have resulted from web design obviously include the long and
complicated URLs but less obviously the seeming inability of many
government websites to deal effectively with either personal or
corporate authors. Far more avoidable is the inability of web designers
either to produce an alphabetical order that is correct or the tendency
to list documents under the definite (‘the’) or indefinite (a’) article.
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Look at this website:
http://www.scotland.gov.uk/Publications/Search
This is the publications page from the Scottish Executive. Select the
topic “Arts, Heritage and Recreation” and then sort by A-Z and then
click “Show”. You will see that the first letter in the alphabet is not
“A” but the inverted comma (“). The second letter is A !! But notice
that the next six documents are all filed under the indefinite article,
which, as all librarians know, you never do.
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Access: Info’ Rich: Info’ Poor
- Commercial private sector interests given a higher priority than citizen access;
- Privatization;
- Access charges;
- Technological illiteracy;
- Information gap.
The debate about the gap between the information rich and the
information poor raged widely in the 1980s and was, in Britain, fuelled
by increasing access charges to government information with the
argument being that the information was already the property of the
citizens of the country and should not be sold to them again. Twenty
years later, the web has blown away the debate about access charges
but, in truth, this is the only aspect that has changed. These are the
current issues:-
- Commercial private sector interests given a higher priority than citizen access;
- Privatization.
- Few access charges;
- Technological illiteracy;
- Digital divide.
Now, the ‘information gap’ is known as the ‘digital divide’ and is
possibly an even more critical issue than it was. Although twenty years
ago technological illiteracy was an acknowledged barrier, the scale of
this problem has grown massively. The need to be able to access and
navigate the web has become critical and the barrier of cost (to afford
the equipment and network charges) has become one that is becoming
extremely serious.
Availability: Bibliographical control
In the 1980s, it was commonly acknowledged that a substantial
proportion of government documents were ‘fugitive’ and had escaped
legal deposit and were missing from the national bibliography and the
national collection:
- No complete national listing;
- Gaps in national library’s archive.
Twenty years later, more problems have accumulated:
- No complete national listing;
- Gaps in national library’s archive;
- Partial paper holdings;
- Deposited ‘pdf’
The problems of an incomplete national bibliography are even more
extreme because the documents that are only published on the web in
‘pdf’ format escape listing and are not deposited with the national
libraries. There is, indeed, another problem in that some publishers
are sending ‘pdf’ documents to the national libraries but they are
unable to exploit these resources. A related issue is the fact that
some series are partly published in paper and partly digitized which
leads to confused and confusing holdings.
Availability: Hostile formats
If, in the 1980s, the profession believed that with illegible
photocopies, microforms and a very few sets of machine readable data
files that it had a full set of hostile formats, then it had no
conception of what was to come …. !
- Microformats;
- MRDF;
- Illegible photocopies
Now there is a larger set:
- General website inaccessibility issues;
- JAVAscript
- ‘pdf’;
- Spreadsheets;
- Search boxes.
The general inaccessibility issues also include issues that are more
properly termed navigation difficulties and usability failures. All of
them together represent the problems that inexperienced users face when
looking for information on a strange and complex government website.
The JAVA issues are part of this set of difficulties as are the block
to fluid navigation posed by ‘pdf’ files. Spreadsheets and search boxes
are web tools that experienced users take in their stride but both can
make access to information troublesome.
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Look at this website:
http://www.swansea.gov.uk/index.cfm?articleid=13
This is the on-line services page from Swansea City Council. There
are 17 topics listed under ‘Apply’ and 15 of them are in ‘pdf’ format.
This is definite barrier to the users and certainly a block to fluid
navigation. Additionally, they are all dead ends because ‘pdf’ files
never have hyperlinks.
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Availability: Archives
The need to maintain full and accessible archives is becoming even more
of a problem than it was twenty years ago. Once the archiving function
was taken care of by the large national and university libraries but
now the individual sites have to ensure that the archives are
maintained and, frankly, many sites lack both the ability and ambition
to do so. The list below represents the issues for 2005 and the only
recent addition is the unpredictability of technological support.
- No reliable archives;
- Irregular deposit;
- Broken holdings;
- Variety of solutions;
- Little motivation to improve;
- Unpredictable technological support.
In many ways this is the most frustrating of all the problems that
government information is throwing up because the masses of the
information make it so difficult for the researcher or citizen to be
tuned to current publishing. The fact that expensively produced and
important information can be simply etherized because no-one cares
sufficiently to retain it is a damning statement on government’s
attitude to citizen empowerment; government accountability and research.
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Look at this website:
http://www.official-documents.co.uk/menu/com2005.htm
This is the “Official Documents” page for the UK parliament that is
run by TSO, the government publisher. This page is a list of all the
House of Commons papers that have been digitized. Wrong !! On this
page, there are only 13 paper linked and over 700 were published.
If you go to:
http://www.publications.parliament.uk/pa/cm/cmselect.htm
you will find dozens, if not hundreds of other papers not listed on the “Official Documents” archive page.
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Summary
In the 1980s, concerns were regularly expressed about the fugitive
nature of government information and the difficulties that were faced
by users when they needed to find and use it.
- Poor access;
- Difficult availability;
- Confusing systems;
- Complex organization;
- Fugitive publications.
All these issues mainly relate to paper publications and occurred
because documents could not be traced, purchased or found in libraries.
In 2005, we have a whole host of new issues that relate to web-based
digitized publication and the implication is that ‘government’ (in
whatever form and in whatever country) doesn’t care sufficiently to put
its house in order:
- Info’ overload;
- Publication dumps;
- Confusing navigation;
- Illogical organization;
- Invisible sites.
Whilst these points are a summary of the arguments above, in some
ways they are arguments in themselves. Information overload represents
the mass of government information that is largely uncontrolled and
archived and for which there is often no adequate pathway. The
publication dumps are those sites with masses of unrelated documents
that are unindexed and for which there are no easy access routes but
which are added to websites in a thoughtless way. The confusing
navigation is the way in which sites are composed for those inside
government and their web designers and the illogical organization is a
feature of sites being built to reflect governmental organization
rather than user need. The invisible sites, rather like the publication
dumps, are those websites that are full but which cannot be traced
through normal search engines because no care has been taken to ensure
that they can be found.
Summary – the user’s predicament.
Technology should make things more simple. The user has four needs and
regularly these are thwarted by over complex sites or those constructed
for government rather than public usage:-
- Where can I find it ?
- How do I know it’s what I want ?
- Is it the latest version?
- Will I be able to find it again?
Re-intermediation.
The answer is re-intermediation. That is the process whereby the
librarian moves in-between their users and the websites and guides them
to the information they need.
But part of the ”same old problem” is that, in the UK, librarians often
do not understand government information and find it too much of a
challenge to navigate through it for their users.
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e-Government Information:
the same old problem —–(newly digitized !)
prepared by
Alastair Allan
University of Sheffield Library / Dept. of Information Studies.
Sheffield. S10 2TN. Great Britain
a.allan@sheffield.ac.uk
June 2005.