Gestión digital y su impacto en la eficiencia y la
transparencia de los gobiernos autónomos descentralizados en el Ecuador
Karla
Michelle Zapata-Chico[*]
Francisca
Jesús Cedeño-Pincay*
Byron Oviedo-Bayas*
ABSTRACT
Digital
management is central to contemporary administrative modernization,
transforming the way Ecuador's Decentralized Autonomous Governments (GADs)
operate and interact with citizens. This article critically analyzes how the
implementation of digital technologies affects institutional efficiency and
government transparency, based on mixed-method research. A non-experimental,
cross-sectional design was applied, combining documentary analysis with the
evaluation of 45 institutional portals and the statistical processing of
secondary data. The results show that, although 100% of GADs have achieved
basic levels of digital presence, only 20% have implemented complete
transactional platforms, revealing significant gaps linked to budgetary and
territorial factors. In terms of transparency, average compliance with the
Organic Law on Transparency and Access to Public Information (LOTAIP) reached
82%, with an emphasis on financial aspects and low coverage of procedural data,
confirming a bias toward formal rather than substantive accountability.
Likewise, digitization showed positive effects: a 77% reduction in processing
times, 61.6% savings in administrative costs, and a 2.3-point increase in
citize l satisfaction on a scale of ten. It is concluded that digital management
has undeniable transformative potential, although it is limited by the digital
divide, the lack of specialized talent, and institutional resistance. The
adoption of comprehensive strategies that articulate infrastructure, human
capacities, and inclusive digital governance is recommended.
Keywords:
administrative modernization, e-government, public
innovation, digital divide, accountability.
RESUMEN
La gestión
digital constituye un eje central en la modernización administrativa contemporánea,
al transformar la manera en que los Gobiernos Autónomos Descentralizados (GADs)
del Ecuador operan y se relacionan con la ciudadanía. Este artículo analiza de
forma crítica cómo la implementación de tecnologías digitales incide en la
eficiencia institucional y en la transparencia gubernamental, con base en una
investigación de enfoque mixto. Se aplicó un diseño no experimental y
transversal, combinando el análisis documental con la evaluación de 45 portales
institucionales y el procesamiento estadístico de datos secundarios. Los
resultados muestran que, aunque el 100% de los GADs ha alcanzado niveles
básicos de presencia digital, solo un 20% llega a implementar plataformas
transaccionales completas, evidenciando brechas significativas vinculadas a
factores presupuestarios y territoriales. En términos de transparencia, el
cumplimiento promedio de la Ley Orgánica de Transparencia y Acceso a la
Información Pública (LOTAIP) alcanzó el 82%, con un énfasis en aspectos
financieros y una baja cobertura en datos procedimentales, confirmando un sesgo
hacia la rendición de cuentas formal más que sustantiva. Asimismo, la
digitalización mostró efectos positivos: reducción del 77% en tiempos de
trámite, ahorro del 61.6% en costos administrativos y un incremento en la
satisfacción ciudadana de 2.3 puntos en escala de diez. Se concluye que la
gestión digital tiene un potencial transformador innegable, aunque limitado por
la brecha digital, la falta de talento especializado y la resistencia
institucional. Se recomienda la adopción de estrategias integrales que
articulen infraestructura, capacidades humanas y gobernanza digital inclusiva.
Palabras clave: modernización administrativa,
gobierno electrónico, innovación pública, brecha digital, rendición de cuentas.
INTRODUCTION
Public management in
the 21st century is undergoing an unprecedented process of transformation,
driven by rapid global digitalization and growing citizen demand for more
agile, efficient, and transparent services. This phenomenon is manifested in
the consolidation of the concept of digital government or e-government,
understood not as the mere digitization of procedures, but as a new management
paradigm that redefines the interaction between the state and society
(Gil-García, Dawes, & Pardo, 2017). From this perspective, digital
management is not limited to the incorporation of technological platforms, but
involves a profound redesign of administrative processes, organizational
structure, and institutional culture.
In the Latin American
context, the implementation of digital government strategies has become a
priority policy in countries seeking to strengthen democratic governance and
reduce inequality gaps in access to public information (Hevia, 2022). However,
this transition is not without challenges. Socioeconomic inequalities,
technological infrastructure limitations, and resistance to change in public
institutions have conditioned the pace and depth of these transformations. As
Ramírez-Alujas (2012) points out, state modernization requires not only digital
tools, but also cultural changes that favor openness, accountability, and
organizational innovation.
In Ecuador, political
and administrative decentralization, enshrined in the 2008 Constitution,
strengthened the role of Decentralized Autonomous Governments (GADs) by
granting them powers and autonomy in territorial management. The GADs, which
include provincial prefectures, municipalities, and parish councils, constitute
the level of government closest to the citizenry, with the responsibility of
guaranteeing basic services, promoting local development, and ensuring
transparency in the management of public resources (Pérez, 2002). However, this
decentralization process has not always been accompanied by sufficient
technical, financial, and human resources, which has created tensions between
the constitutional mandate and the operational realit f local governments
(Ayala-Becerra, Gavilanes-Erazo, & Alvear-Calderón, 2024).
In this scenario,
digital management emerges as a strategic tool that allows the gaps between
citizen expectations and the structural limitations of the GADs to be closed.
The incorporation of Information and Communication Technologies (ICT) in public
management allows, on the one hand, for the optimization of institutional
efficiency through the automation of processes, the reduction of response
times, and the decrease of administrative costs (OECD, 2019). On the other
hand, it strengthens transparency by enabling the proactive publication of open
data, citizen access to government information, and the creation of digital
participation mechanisms (Huamán & Medina, 2022). In this way, digital
management not only modernizes administration but also promotes democratic
legitimacy by expanding channels for interaction and social control.
Administrative
efficiency, understood as the ability of public institutions to maximize
results using the minimum possible resources, has been strengthened by the
digitization of internal procedures and processes. Examples of this include the
implementation of virtual one-stop shops, electronic payment platforms, and
document management systems that reduce bureaucracy and streamline services.
Recent research indicates that the strategic use of ICT increases institutional
productivity and frees up human resources for tasks with greater added value
(Gil-García et al., 2017). This aspect is particularly relevant for Ecuadorian
GADs, whose resources are often limited and whose ability to respond to social
demands depends on management efficiency.
At the same time,
transparency is another fundamental pillar of digital government. Ecuador's
Organic Law on Transparency and Access to Public Information (LOTAIP)
establishes the obligation of public entities to guarantee access to relevant
information on budgets, contracts, and administrative processes. However,
compliance with this regulation has historically been uneven and, in many
cases, formalistic. Digital platforms represent an opportunity to overcome this
bias by facilitating the real-time publication of accessible data in open
formats that allow for effective social control (Hevia, 2022). Digital
transparency not only reduces opacity, but also contributes to citizen trust,
an intangible but essential resource for democratic governance.
Despite its
advantages, the implementation of digital management faces significant
barriers. The digital divide between urban and rural areas is a structural
challenge, as it limits equitable access to the benefits of digitization. In
rural areas, lack of connectivity, scarce technological infrastructure, and low
digital literacy hinder citizen interaction with the electronic systems of
local governments (Muñoz, 2023). Added to this is cultural resistance within
local bureaucracies, which sometimes perceive digitization as a threat to
established practices or as an overload of responsibilities. Finally, limited
budgetary availability restricts the ability of local governments to invest in
robust and sustainable technological platforms.
Several studies have
pointed out that the financial capacity of GADs is a determining factor in
their level of digital maturity. Miranda, Tingo, Zamora, and Zamora (2025) show
that local governments with larger budgets are able to move toward complete transactional
platforms, while those with less capacity remain in the early stages of
digitization. This finding reflects a structural inequality that, if left
unaddressed, could deepen territorial inequality. Therefore, digital management
must be understood as a process that requires not only technological
infrastructure, but also public policies aimed at digital inclusion and equity.
Likewise, the
literature agrees that government digitization has a direct positive impact on
citizens' perception of service quality. When procedures are more streamlined
and costs are reduced, users experience greater satisfaction and trust in their
local governments (Friedmann, 2004). However, citizen satisfaction also depends
on the ease of use of platforms, the coverage of digitized services, and
institutional support in training processes. In this sense, digital management
should be understood as a multidimensional phenomenon that transcends
technology and involves social, cultural, and organizational aspects.
The analysis of the
Ecuadorian case is particularly relevant because it combines a favorable
regulatory framework with a reality marked by structural gaps. Although the
2008 Constitution and complementary regulations have promoted decentralization
and transparency, the actual capacity of local governments to implement these
principles varies significantly. While some local governments have moved toward
innovative models of digital government, others remain in the early stages,
limited by budgetary constraints or a lack of strategic vision (Ayala-Becerra
et al., 2024). This contrast raises questions about territorial equity in the
implementation of digital government and about the support mechanisms that the
central government should provide to strengthen the most lagging GADs.
In this context, this
research seeks to critically analyze the current state of digital management in
Ecuador's GADs and its impact on two key dimensions: administrative efficiency
and institutional transparency. The study aims to identify not only the progress
made, but also the persistent gaps and the determining factors that condition
the success of these initiatives. Using a mixed methodological approach that
combines documentary analysis, empirical evaluation, and statistical
processing, the study aims to offer a comprehensive view that contributes both
to academic debate and to the design of more effective public policies.
Specifically, this
work seeks to answer the following questions: To what extent has digitization
contributed to improving the efficiency of GAD administrative processes? What
progress has been made in terms of e- , transparency, and citizen access to public
information? What factors explain the differences in the level of digital
development among different local governments? And finally, what strategies
could be adopted to overcome the structural barriers that limit the
consolidation of an inclusive and sustainable e-government model in Ecuador?
In short, digital
management presents a historic opportunity to strengthen decentralization and
promote more efficient, transparent local governments that are closer to
citizens. However, its success will depend on the ability to articulate
technology, financial resources, human talent, and political will in a
comprehensive strategy for state modernization. This article aims to contribute
to that effort by offering a critical and informed analysis that sheds light on
both the achievements and the challenges that remain in building a digital
state at the service of all Ecuadorians.
MATERIALS AND METHODS
This research was
conducted using a mixed approach that integrated qualitative and quantitative
components in order to provide a comprehensive understanding of the impact of
digital management on the efficiency and transparency of Ecuador's
Decentralized Autonomous Governments (GADs). The design adopted was
non-experimental, cross-sectional, and descriptive-correlational, as the
phenomenon was analyzed in its natural context without deliberate manipulation
of the variables. The descriptive nature allowed for the characterization of
levels of digital development and compliance with transparency mandates, while
the correlational component made it possible to identify significant
relationships between factors such as institutional budget and digital maturity
achieved.
The study population
consisted of the country's 221 cantonal governments. From this base, a
non-probabilistic purposive sample of 45 GADs was selected, seeking to ensure
territorial diversity in the three main regions of Ecuador (Coast, Highlands,
and Amazon) and including both large municipalities with significant budgetary
capacity and rural localities with limited resources. This selection criterion
made it possible to represent the heterogeneity of digital development and the
structural conditions of local governments.
The sources of
information used included regulatory documents, institutional databases, and
specialized academic literature. Primary inputs included the 2008 Constitution
of the Republic of Ecuador, the Organic Law on Transparency and Access to
Public Information (LOTAIP), the Organic Code of Territorial Organization,
official GAD portals, accountability reports, and public information system
records. Secondary sources included scientific articles published in indexed
journals, studies by international organizations such as the OECD and ECLAC,
and previous research on digital government and decentralization in the
Ecuadorian context ( ).
The data collection
process was based on a systematic review of documents under PRISMA criteria,
which ensured comprehensiveness and methodological rigor. For the comparative
evaluation, an analysis matrix was constructed to assess dimensions such as the
provision of digital services, compliance with transparency obligations
established in the LOTAIP, citizen interaction in digital environments, and
efficiency in the management of procedures. The information was also
supplemented with secondary data from citizen satisfaction surveys reported by
the GADs themselves on their institutional websites.
Data processing was
carried out using SPSS v.26 and Excel 365 software, which facilitated the
cleaning, coding, and organization of the information. Descriptive statistical
techniques were applied to calculate frequencies, percentages, means, and
standard deviations that characterized the level of digital maturity. Pearson's
correlation was used to explore relationships between quantitative variables,
while one-way analysis of variance (ANOVA) was used to determine significant
differences in compliance with different items of the LOTAIP. In cases where
processing times and citizen satisfaction levels were compared before and after
digitization, the paired samples t-test was used. All analyses were performed
with a significance level of 5%, and 95% confidence intervals were calculated
to strengthen the validity of the inferences.
Complementarily,
qualitative information was subjected to thematic content analysis, which
allowed for the identification of discursive and conceptual patterns related to
good practices, institutional limitations, and citizen perceptions of
digitization. Triangulation between sources, techniques, and methods was
applied systematically to ensure both the internal and external validity of the
findings.
With regard to
ethical considerations, the research was conducted under principles of
integrity, objectivity, and respect for public information. The data analyzed
were obtained exclusively from open access sources, in accordance with national
transparency regulations. Neutrality was preserved in the analysis, avoiding
biases that could compromise scientific validity, and the responsible treatment
of sensitive records was ensured through the anonymization of information not
intended for public scrutiny.
In short, the
methodology used made it possible to characterize the state of digital
management in Ecuadorian GADs and to evaluate, with statistical and documentary
support, its impact on administrative efficiency and levels of institutional
transparency, thus providing a robust framework for the critical interpretation
of the results obtained.
RESULTS
The analysis of the matrix applied to the
sample of 45 Decentralized Autonomous Governments made it possible to
characterize the level of implementation of digital services, the degree of
compliance with the transparency obligations established in the LOTAIP, and the
effects of digitization on administrative efficiency. The data were cleaned,
systematized, and processed using descriptive and inferential statistical
techniques, which ensured the consistency of the findings and facilitated their
critical interpretation.
Table 1. Level of Implementation of Digital Services in the
Sampled GADs (n=45)
|
Type of Digital Service |
Number of GADs |
Percentage |
|
Static Information (Level 1) |
45 |
100 |
|
Unidirectional Interaction (Level 2) |
38 |
84.4 |
|
Two-Way Interaction (Level 3) |
22 |
48.9% |
|
Complete Transaction (Level 4) |
9 |
20.0 |
The descriptive analysis showed that all
GADs have a basic online presence, which corresponds to the level of static
information. However, only 20% of the entities achieved full transactional
development, which allows online procedures to be carried out with electronic
payments. Pearson's correlation showed a strong and statistically significant
positive relationship between institutional budget size and digital maturity
level (r = 0.82, p < 0.01), confirming that financial capacity is a
determining factor in the advancement toward more sophisticated models of
digital government.
These findings are consistent with those
of Miranda, Tingo, Zamora, and Zamora (2025), who note that budgetary
heterogeneity conditions the scope of digitization in local governments. They
also corroborate the OECD's (2019) assertion that financial resources are a key
driver of administrative innovation. However, the marked urban-rural gap
detected reflects that digital modernization is not advancing uniformly, which
coincides with Muñoz's (2023) warning regarding territorial inequalities in
access to technological infrastructure.
Transparency was assessed by verifying
compliance with fifteen mandatory publication items under the LOTAIP,
considering their availability on institutional websites and their presentation
in accessible formats.
Table 2. Average Compliance with Publication of LOTAIP Items on
Transparency Portals
|
Item Evaluated |
Average Percentage of Compliance |
|
Budget and Budget Execution |
95 |
|
Planning (PDOT, Operational Plans) |
88 |
|
Public Procurement Processes |
92 |
|
Financial Statements |
90 |
|
Guidelines and Manuals |
45 |
|
Overall Compliance Average |
82 |
The overall compliance rate reached 82%,
reflecting a significant effort in the publication of financial and planning
information. However, the standard deviation of 18.5 percentage points revealed
variability between items. One-way analysis of variance (ANOVA) showed
statistically significant differences in publication rates (F(4, 220) = 35.67,
p < 0.001), with guidelines and manuals receiving the least attention.
These results reinforce the findings of
Hevia (2022) and Ramírez-Alujas (2012), who argue
that transparency in Latin America tends to focus on formal compliance with
financial aspects, while procedural elements that are crucial for social
control are neglected. Consequently, the digital management of Ecuadorian GADs
reflects partial compliance with transparency, as it privileges the fiscal
dimension over a more substantive openness of management.
Finally, the impact of digitization on the
efficiency of procedures was evaluated by analyzing resolution times,
administrative costs, and levels of citizen satisfaction in 30 GADs in the
sample that had comparative data before and after implementing digital
platforms.
Table 3. Impact of Digitization on the Efficiency of Selected
Procedures
|
Indicator |
Traditional Procedure (Average) |
Digitized Procedure (Average) |
Reduction |
|
Resolution Time (days) |
15.2 |
3.5 |
77 |
|
Citizen Satisfaction (scale 1-10) |
6.1 |
8.4 |
+2.3 points |
|
Administrative Cost per Procedure (USD) |
12.50 |
4.80 |
61.6 |
The paired samples t-test confirmed that
the differences in resolution times and citizen satisfaction were statistically
significant (t(29) = 0. 10.45, p < 0.001, and t(29) = 8.92, p < 0.001,
respectively). These results constitute empirical evidence that digitization
increases efficiency and improves citizen perception of public services.
This finding coincides with the arguments
of Gil-García et al. (2017) and Huamán and Medina (2022), who highlight that
ICTs have a direct impact on institutional productivity and the quality of
services perceived by citizens. However, as Friedmann (2004) points out, public
efficiency is not limited to reducing costs and time, but must translate into
management that strengthens democratic legitimacy. In this sense, digitization
is a valuable tool, although its benefits are still concentrated in the GADs with
greater institutional capacity, highlighting the urgency of inclusive policies
to mitigate the gaps detected.
The results obtained confirm that digital
management has become a fundamental pillar for administrative efficiency and
transparency in Ecuador's Decentralized Autonomous Governments, albeit with
uneven development. The finding that only 20% of GADs achieve full
transactional capacity shows that digitization, far from being homogeneous, is
conditioned by structural factors, mainly the budget. This direct correlation
between financial capacity and digital maturity coincides with the statements
of Miranda, Tingo, Zamora, and Zamora (2025), who
point out that available resources are the driving force behind technological
innovation in local governments. The urban-rural gap identified also confirms
the findings of Muñoz (2023), who emphasizes that the lack of technological
infrastructure limits the possibility of consolidating inclusive digital
government in more remote areas.
With regard to transparency, the average
compliance rate of 82% with the mandatory items of the LOTAIP shows that
Ecuadorian GADs prioritize the publication of financial information, while
neglecting procedural documentation. This bias reinforces the criticism of
Hevia (2022), who warns that transparency in the region is often limited to
what is legally required, leaving aside the substantive openness that empowers
citizens to exercise social control. Similarly, Ramírez-Alujas
(2012) argues that the modernization of public management must go beyond
formalism and move toward proactive transparency practices. In this sense,
although the results reveal significant progress in regulatory compliance, they
also highlight the persistence of gaps in accountability.
With regard to efficiency, empirical data
show that digitization generates tangible improvements in response times,
administrative costs, and levels of citizen satisfaction. The 77% reduction in
processing times and the 2.3-point increase in satisfaction corroborate the
findings of Gil-García, Dawes, and Pardo (2017), who highlight that ICTs
optimize processes and strengthen institutional legitimacy. Likewise, the
increase in institutional productivity is in line with the findings of Huamán
and Medina (2022) in the Peruvian case, where digitalization s presented as an
effective way to respond to citizen demands for quality. However, as Friedmann
(2004) argues, administrative efficiency must be understood beyond cost and
time metrics, integrating its effect on democratic governance and social trust.
The discussion of the findings allows us
to affirm that, although digital management in Ecuador's GADs has generated
visible advances in efficiency and formal compliance with transparency, it
still faces challenges related to territorial equity, institutional
sustainability, and the need to develop technical capacities. These challenges
require comprehensive public policies that overcome current limitations and
transform digitization into a true engine of inclusive and reliable governance.
CONCLUSIONS
The analysis carried out allows us to
conclude that digital management is a strategic axis in the modernization of
Ecuador's Decentralized Autonomous Governments, as it enhances administrative
efficiency and promotes transparency practices, although its implementation
presents marked inequalities. Empirical evidence shows that, although all GADs
have managed to establish at least a basic digital presence, only a minority
have reached transactional levels that allow them to offer comprehensive online
services. This finding confirms that financial capacity is a determining factor
in the degree of digital maturity, creating a structural gap between urban
local governments with greater resources and rural ones with budgetary and
technological limitations.
In terms of efficiency, digitization
showed concrete benefits by significantly reducing processing times and
administrative costs and increasing citizen satisfaction. These results show
that digital platforms not only optimize internal processes but also improve
citizens' perception of the quality of public services, which reinforces
institutional legitimacy. However, these benefits are not universal, as they
depend on the level of digital development achieved by each GAD, which requires
a rethinking of strategies to extend these advantages to the entire country.
In the area of transparency, the GADs have
shown high compliance with the LOTAIP in financial and planning aspects,
although the publication of procedural information remains limited. This
situation suggests that transparency is conceived, in many cases, as an
exercise in formal compliance rather than as a substantive practice of openness
that guarantees effective social control. Consequently, it is necessary to
evolve towards open government models that prioritize the usability,
accessibility, and proactivity of information.
The research allows us to affirm that the
success of digital management does not depend solely on the implementation of
technology, but also on the existence of comprehensive policies that strengthen
technological infrastructure, promote digital literacy, and consolidate
technical capacities in public management and digital teams. Similarly, it is
necessary to overcome institutional resistance to change by generating an
organizational culture oriented toward innovation and accountability.
In short, digital management has the
potential to transform local governments in Ecuador, but its consolidation
requires overcoming the financial, technological, and social gaps that
currently limit its scope. Only through inclusive governance strategies that
combine investment, training, and political will will
it be possible to move toward a digital government model that fully embodies
the principles of efficiency, transparency, and closeness to citizens, as
established by the country's current constitutional framework of
decentralization and participatory democracy.
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[*] Quevedo State Technical University,karla.zapatac2016@uteq.edu.ec , https://orcid.org/0009-0007-0926-7114
* Quevedo State
Technical University,fcedenop2@uteq.edu.ec , https://orcid.org/0009-0009-4068-149X
* Quevedo State Technical University, Graduate School,boviedo@uteq.edu.ec , https://orcid.org/0000-0002-5366-5917