ePARTICIPATION CRISIS SIMULATION EXERCISE: BRIDGING THE DIGITAL GAP

ePARTICIPATION IN NIPSS CRISIS GAME
SIMULATION EXERCISE: BRIDGING THE DIGITAL
DIVIDE
BY
TANKO AHMED fwc
Snr Fellow (Security & Strategic Studies)
Research Directorate, NIPSS, Kuru

A Prologue
• The digital divide remains formidable in scaling ICT-enabled opportunities for effective
leadership and development in countries lagging behind.
• In a country like Nigeria, leadership and development challenges often hinge on the lack
of effective co-ordination beneficial of eParticipation.
• This paper discusses the application and practice of eParticipation in simulation
exercise for leadership training in Nigeria.
• The Crisis Game, a simulation exercise, of Nigeria’s National Institute for Policy and
Strategic Studies (NIPSS) provides a case study with the theme of political zoning set in
2011.
• Three major theories of structuration, institutional and actor-network are used to
ascertain the significance of eParticipation in bridging the digital divide.
• Its findings include low level and inadequate utilization of ICT devices and processes for
eparticipation at the highest level of leadership training in Nigeria.
• The paper recommends stronger institutionalization of ICT support; public
enlightenment; collaborative research on eparticipation; and legislation for enhancing
eparticipation capability in bridging global digital divide.

INTRODUCTION
‘… behind every technology is
somebody who is using it and
this somebody is a society …’
- Ernesto Che Guevara de La Serna
(1963)

Background
• The practice of eParticipation provides an avenue for
adaptation, application and utilization of ICT, as sub-set of
eGovernance, in the realm of eDemocracy.
• This arrangement depicts the need for bridging existing
digital gap within and across countries in global context.
• A revolutionary call for acquisition and application of
technology for societal building and development came
from Ernesto Che Guevara de La Serna (1963):
‘… every technology should be used to the benefit of the greatest
number of people so that we can build the society of the future, no
matter what name it may be called.’ - Guevara (1963)

Literature Flow
• Literature on eParticipation tends to flow in multi-access stream, allowing
for group contribution and utilization, mostly intensified by international
fora.
• A case in view is the Third International Federation for Information
Processing held in The Netherlands at Delft, August/September 2011, with
proceedings well circulated across the globe at all levels.
• Lee and Kim (2013) recognized that growing body of literature make
emphasis on eparticipation as means of facilitating greater citizen
participation.
• The eGovPoliNet, The Policy Community, aims at building a global
multidisciplinary digital government and policy research and practice
(eGovPoliNet, 2014).
• This work contributes to a project by the eGovPoliNet on ICT-based or digital
solution for governance and policy by bringing to light the need to bridge the
gap in local to global digital divide – as well as filling a literature gap.

Problem Statement
 Nigeria is a developing country, diverse and divided, where
challenges in governance and overall democratic practices often
hinge on effective co-ordination.
 Imobighe (1988, p. 4) opined that Nigerian leaders are not
adequately conversant with techniques of effective co-ordination.
 This situation can be improved by application of ‘eParticipation’
principles and practice, particularly in leadership training for policy
makers.
 This paper discusses the application of eParticipation principles and
practice in ‘simulation exercise’ for ‘leadership training’.
 The Crisis game, a simulation exercise, of Nigeria’s National Institute
for Policy and Strategic Studies (NIPSS) is dealt as a case study on
eParticipation, with the theme of ‘political zoning’.

Aims & Objectives
The paper focuses on the use of innovative instruments and
technologies as solution to policy problems through
eparticipation as contribution to bridging the digital divide. Its
points of inquiry include:
 What are the concepts and relationships of digital divide,
eparticipation, simulation exercise, crisis game, leadership
training and political zoning?
 How eparticipation is applicable to simulation exercises?
 To what extent eparticipation in leadership training can
contribute to bridging the digital divide?
 What recommendations can be proffered in promoting
eparticipation for eGovernance in the realm of eDemocracy in
Nigeria?

Significance of the Paper
• The significance of this chapter is on the need to bridge the digital
divide, from personal to local, national and global eparticipation,
as a subset of egovernment in the realm of edemocracy.
• Its findings and recommendations would serve to improve much
needed leadership skills for national development in Nigeria.
• It will also open grounds for scholarly and professional dialogue,
understanding, and further research on the way forward in the
field of eparticipation.
• It is hoped that the digital divide will close ranks from its lowest
to the highest across the world, in a ‘glocal’ (and ‘locabal’)context.

Major Theories of eParticipation
• Major theories associated with application of eParticipation in
activities of capacity building include the structuration,
institutional and actor-network.
• These theories address how ways of doing things affect the way
such things are done.
• Islam (2008) suggests a framework for an effective eParticipation
model applicable to any country targeting some essential common
elements for universal applicability.
• This is based on some theories and lessons learned from e-
participation practices in both developing and developed
countries in the digital divide architecture.
• The triad of structuration, institutional and actor-network are
explained and constructed into a thrust in the following passages.

Structuration Theory
• Structural Theory suggests that human activity and
larger structure relate with each in such a way that
structures are produced or altered by new ways
and means (Gauntlett, 2002).
• The local to global structure of the digital divide is
a construct which can be produced or altered by
applied principles of eParticipation, especially
associated with institutional practices.
• This is expressed in the earlier United Nations’
World Summits on Information Society sited
above.

Institutional Theory
• Institutional theory asserts that institutional
environment influence the development of
formal structures by diffusion of innovative
structures http://faculty.babson.edu.
• Captured in the process of leadership training
module, the tenets of this theory combine to
impart eparticipation to beneficiaries as they
engage in an interactive actor-network activities
or exercise.

Actor-Network Theory
• Actor-network theory treats individual objects
as part of larger structure, mapping relations
between things and meanings, in a network of
relations (Latour, 1987, 1999 & 2005; Law and
Hassard, 2005).
• A situation of simulated exercise exposes
participants to a network of relations
consolidating bottom-up connectivity capable
of bridging gaps in the global digital divide
architecture.

Theoretical Framework
• The above framework yields to the propositions that
complex situations may appear simpler than expected
based on a construct view of the observer (Schidhunder,
1997; Charter, 1999; Chater & Vitany, 2003; and Dessalles,
2010).
• In this wise, the interlock of the structuration, institutional
and actor-network theories would generate principles and
practice as common denominators.
• This construct in turn serves as a theoretical framework as
presented in Figure 1.

Fig 1: A ‘3 Theory’ Construct

‘3 Theory’ Construct (cont’d)
This proposition is used to test and apply
the hypothesis that eparticipation can
bridge the digital divide.
The interplay of these major theories
attempts to validate this assumption in
the case of eparticipation application to
simulation exercise in leadership
training in Nigeria.

A Hypothesis
Seen from the above theoretical prospect,
the interlocking theories tend to generate
principles and practices for application of
eParticipation.
Thus, this paper hypothesizes that:
eparticipation application to simulation
exercise for leadership training enhances
the bridging of digital divide.

METHODOLOGY
Desk & Library
Focused Group
Empirical Data
Systematic application

A Modal Mix
The paper operates in a
mixture of theoretical,
methodological, empirical and
analytic modes.

CONCEPTUAL DISCOURSE
Key Terms:
 Digital Divide
eParticipation
Simulation Exercise
Crisis Game
Leadership Training
Political Zoning

Digital Divide
• Digital divide denotes the inequality of access to ICT or
difference in opportunities available to people who have
access and those who do not.
• The term applies more to inequalities between individuals,
households, businesses and geographical areas at different
socio-economic and other demographic scale categories
(Norris, 2001; Patricia, 2003; and US-NTIA, 2004).
• Global Digital Divide however, applies at the scale of nations
as units of analysis, referring to gap between developing
and developed countries (Chinn & Fairlie, 2004).

eParticipation
• The letter ‘e’ signifies ‘electronic’, relating to computer
application, use, access or practice. Participation refers
to the act of taking part in joint activities for the
purpose of reaching a common goal.
• eParticipation involves the adaptation, application and
utilization of modern ICT equipment, practices or
processes in activities.
• The term is generally defined as ‘ICT-supported
participation in processes involve in government and
governance (Avdic et al, 2007), including
administration, service delivery, decision making and
policy making.

Simulation Exercise
• Simulation exercise is a training exercise in which participants
perform same or all of the actions they would take in the event of
plan activation http://securemediastorage.co.uk/glossary .
• Trends in training and education are replacing formal and
extensive theoretical development with simulation exercises that
develop ideas based on practical real world situation (Biehler,
1985; Gordon and Gordon, 1992; Hogg, 1992; and Moore, 1992).
• In some instances, entire course modules are zeroed into
simulation exercises for more practical benefits (Lipson, 1997).
• This is demonstrated in the NIPSS SEC module in which the Crisis
Game simulation exercise is introduced to inculcate leadership
skills to its participants (Imobighe, 1988 p. 4).

Crisis Game
• Crisis games are aspects of crisis management training in which
participants deal or work through simulated crises to learn how
to solve or cope with problems as they arise.
• The purpose of Crisis Game at NIPSS is to simulate a crisis
situation in order to equip Participants of the Senior Executive
Course with skills to manage and resolve real life crises.
• It is a decision making tool designed for use by policy makers
whose decisions usually have far reaching effects on the polity.
• The convener of the NIPSS Programme, Imobighe (1988)
elucidated that ‘crisis game is to strategic studies what clinical
work is to the study of medicine’ (p. 5).

Crisis Game (cont’d)
• Crisis Games, as simulation exercises, are conducted for
purpose of governance and policy modelling with local-to-
global implications.
• An example is the Unified Quest simulations conducted by
the United State Army War College with participants
ranging from military officers to professors.
• Gardner (2008) reported a fictitious Nigerian scenario set
in 2013 depicting a near collapse of government as rival
factions vie for power.
• This was not irrelevant to the theme of ‘political zoning’
adopted for the NIPSS Crisis Game 2011.

Political Zoning
• The word political concerns balance in power relationship especially
in a group, organization or country; and zoning refers to the principle
of using sub-sections of particular area, like a country, for purposes
of rational or rotational benefits.
• Political Zoning embraces allotment, ration, rotation, or sharing of
offices or positions among contending interests within or among
groupings like political parties and institutions of governance.
• In Nigeria, zoning carries an extensive usage from the inception of the
country to the present six geo-political zones structure on which the
current debate on zoning is staged.
• The issue of zoning is critical in the general schemes and activities of
governance in Nigeria, and a delicate subject, not easy to contain –
thus fit for NIPSS Crisis Game.

Leadership Training
 Leadership training or leadership development
refers to any activity that enhances the quality of
leadership within an individual or organization
http://en.wikipedia.org/wiki/Leadership_training
.
 Leadership development is defined as an
intentional effort to provide leaders and emerging
leaders with opportunities to learn, grow and
change, with skills to function effectively
www.hillconsultinggroup.org

Leadership Training at NIPSS
• Within the NIPSS Senior Executive Course is the Crisis Game
described as ‘crisis game simulation’ and considered as the
‘crowning event’ of the programme (Imobighe, 1988).
• In the same vein, Imobighe (1988) assessed Nigerian crops
of leaders and pronounced that:
‘… it has not been evident that the country’s leaders are
adequately conversant with the techniques of crisis
management. In most case, they have relied on chance;
and hardly were their responses based on any thorough
and systematic appreciation of the mechanics for
handling the relevant events’ (Pp. 3-4)

APPLICATION OF
ePARTICIPATION IN
SIMULATION
EXERCISE

Digital Opportunity Index
• The Digital Opportunity Index (DOI) operates on an e-index based
on internationally accepted ICT indicators.
• The DOI is a standard tool for assessment of ICT performance
within and across countries. These indicators are clustered into
three main headings of opportunity, infrastructure and utilization
applicable to the principles and application of eparticipation.
• For example, simulation exercises are administered on selected
themes in scenarios activated by subjects, attributes, means,
intensity and purpose for which they are staged.
• The exercises are designed to simulate state-of-play environment
with briefs, timeframe, roles, locations, tempo and equipment
similar to those encountered in real life.

Features of eParticipation Application
• Individual or institutional participants, as subjects of
simulation exercise, include persons or agencies charged
with responsibilities for decision and policy making and
implementation.
• They bring forth the attributes of group dynamics in
governance; utilization of the means through available
equipment and skills; face the intensity of interactivity; and
purpose of justified actions.
• The application of eparticipation to simulation exercise
involves the use of modern ICT equipment, principles,
practices and processes as tools.

Tools of eParticipation in Simulation
Exercise
• Simulation exercises are supported with tools ranging from
ordinary electronic gadgets like television sets, radio
equipment, recorders, cameras and other audio visual aids
to higher and more sophisticated computer-based
applications.
• They include networking, Internet and systems like the Web
2.0., which allows users to interact and collaborate with
each other in a social media dialogue in real time
http://scholar.googleusercontent.com.
• DiNucci (1999, Pp. 221-222) described this methodology as
‘the ether (or space) through which interactivity happens’.

Examples of eParticipation
Applications
• These tools of eparticipation provide the architecture for
real-time simulation exercises.
• An example is the European Union’s ‘Seventh Framework
Programme (FP7) or ICT Challenge 7 in support of
governance and policy modelling http://cordis.europa.eu .
• Other examples include simulation exercises like the US
Army War College ‘Unified Quested’ earlier cited, which
employ the use of tools and processes similar to
requirements for the Crisis Simulation Games of leadership
training module at NIPSS.

LEADERSHIP TRAINING AT THE
NATIONAL INSTITUTE FOR
POLICY AND STRATEGIC
STUDIES (NIPSS), KURU -
NIGERIA

The NIPSS
• The NIPSS is the premier leadership training institution in
Nigeria with dual mandate of policy research and training of
senior executives.
• The emergence of NIPSS as a government ‘think tank’ was
associated with the need to coordinate the ever-increasing
complexity in government activities (Eleazu, 1978 p.5-7).
• Participants going to NIPSS include professionals at the
apex of their various careers spread across public and
private sector.
• The participants were subjected to rigours of leadership
training module on strategic studies, policy analysis, public
administration, fieldwork and crowned with a Crisis
Simulation Game.

NIPSS Crisis Game
• The NIPSS Crisis Simulation Game is conducted by an expert
as Convener and assisted by a Planning and Monitoring
Committee supported by a logistics secretariat.
• The game is not a drama, so no script is necessary, but
players are briefed on a theme, rules, roles and units’
allocation and scenario.
• Participants are encouraged to show commitment and
dedication in making the event as real as possible.
• To accomplish all these, both organizers and players are
encouraged to employ equipment, particularly electronic
gadgets for enhancement of performance.

NIPSS Crisis Game (cont’d…)
• At its initial stages, the NIPSS Crisis Game was supported
with primary electronics like microphones, cameras,
television sets, recorders, video players and public address
systems.
• The trend in electronic advancement and easier access to
services and processes brought in new equipment like
mobile or smart phones, computers platforms, social media
and the internet capable of enhancing eparticipation.
• An assessment of the NIPSS Crisis Game 2011 on application
of principles and practice of eparticipation would
determine its level on the global digital divide architecture
and the way to bridge it.

An Assessment
• The global digital divide architecture portrays
developed countries with higher and more advanced
computer literacy than developing countries.
• Equipment and applications used in the NIPSS Crisis
Game are inferior to the more advanced Web 2.0
employed in similar exercises in developed Europe and
America.
• The US Army War College ‘Unified Quest’ game, for
example, employs the best, highest and most efficient
means for achieving desired effect (Gardner, 2008).

Assessment (cont’d…)
A Focused Group interview with the NIPSS ICT Unit the following facts were
revealed:
 Course Participants and staff were excited with the roles, tempo and
process of the game, but lack computer skills;
 The game could have been better if adequate equipment and
practices are provided;
 No deliberate effort was made to provide higher equipment and
special skills for upgrading of the Crisis Game programme;
 Those in charge of budgeting do not take computerization of the
institute very critical; and
 The use of individual initiatives for use of smart phones, data mining
software, and new methods were not logically pursued.

Assessment (cont’d…)
 These predicaments were compounded by low
computer literacy of 50% amongst both
Participants and staff of NIPSS, likened to a
Catch-22 impasse.
 This outcome, emanating from the lower skills
of both the players and organizers, add up to
amplify the gap in digital divide from the
bottom level of the Institute to the highest
world standard level, which is still bridgeable.

Findings
Major findings associated with the above assessment indicate the manifestation
of the structuration, institutional and actor-network theories used in the work,
as follows:
 A gap has been established as proof of global digital divide architecture and
the existence of a threshold, from which efforts on bridging can be
implemented. This proofs that structures are produced or altered by new
ways and means, concordance to the structuration theory;
 The NIPSS staff and Course participants are willing and eager to improve
eparticipation in the Crisis Game process by diffusion of innovative structures
subject to environmental influence in the assumptions of institutional theory;
and
 However, lost opportunities for bridging the digital divide were at the same
time incurred due to lack of initiative and willingness to change, on the side of
the Conveners of the NIPSS Crisis Game, exhibiting weaknesses in network of
relationships associated with the actor-network theory.

Summary
• This paper sets out to discuss the application of
eparticipation principles and practice to simulation
exercise in leadership training in Nigeria.
• It analyzed the NIPSS Crisis Game for leadership training in
Nigeria and outlined some challenges and opportunities.
• The paper employs three major theories of structuration,
institutional and actor-network to ascertain the significance
of eParticipation for leadership capacity building.
• Its findings include low level and inadequate utilization of
ICT equipment and processes for eparticipation at highest
level of leadership training in Nigeria.

Conclusion
• What appeared to be like a local ‘sink hole’ in loss of
opportunity for eparticipation application in the NIPSS
Crisis Simulation Game may be the nucleus of a ‘black hole’
in global context.
• The work concludes that the opportunities in
eparticipation, egovernment and edemocracy can expand e-
applications from local to global spheres.
• In these ways and means, the bridging of the gap in digital
divide, is feasible and will make the entire world a better
place.
• That is, the bridging of digital divide requires deliberate,
but systemic eparticipation at the lowest point for -
‘behind every technology is somebody who is using it and this
somebody is a society’.

Recommendations
 eParticipation should be made accessible by global Centres of
activities in more developed countries, to enhance vertical and
horizontal coverage across the world;
 Local efforts in eGovernance should be intensified by less developed
countries through basic and systematic eparticipation at individual,
local, national, regional and global levels;
 Individual citizens, particularly government officials, should be
encouraged and provided with eparticipation skills for improved
performance and general betterment of society;
 Domestication and enactment of legislations and conventions on
eParticipation, eGovernance and eDemocracy would enhance efforts
at local, national, regional and global levels; and
 The UN, the African Union, the ECOWAS, and other global efforts like
the eGovPoliNet should continue to be involved in the promotion of
eparticipation at the grassroots.

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