Research & Policy Briefs From the World Bank Malaysia Hub No. 41 February 3, 2021 Leveraging Digital Solutions to Fight COVID-19: Lessons from ASEAN Countries Fabien Clavier and Francis Ghesquiere Digital solutions have been the signature of Southeast Asia’s response to COVID-19. Technologies used during the crisis have helped address a wide spectrum of problems, supporting public health efforts, public communication, and economic and social policies. This policy brief explores how ASEAN countries have leveraged digital technologies to fight COVID-19 and investigates the roles of governments, local technology ecosystems, and citizens in deploying such solutions. The findings suggest that the development and use of digital solutions have accelerated collaboration between different spheres of governments, technology companies, research entities, and society at large. The COVID-19 crisis has also highlighted the digital divide across the region and the challenges in ensuring technological changes in the ASEAN region as a whole. Southeast Asia as a Testing Ground for Digital Solutions to the [that] can be utilised to resolve [urban] issues and to enhance quality and Pandemic accessibility of services, thereby improving our citizens’ lives across the urban-rural continuum, creating new opportunities for them and helping The COVID-19 disease was declared a global pandemic by the World ensure that no one is left behind” (ASEAN 2018). Singapore has been Health Organization (WHO) on March 11, 2020 and has continued to recognized as a global technological hub with its Smart Nation initiative disrupt the lives of billions of people worldwide ever since. Southeast Asia launched in 2014, while fast-moving cities such as Bangkok, Ho Chi Minh was one of the first regions, outside of China, hit by COVID-19, with City, Jakarta, Kuala Lumpur, and Manila have accelerated their use of new Thailand and Singapore recording some of the first imported cases during technologies in various city domains. In its 2018 report on “Smart Cities in January 2020. Southeast Asia,” the McKinsey Global Institute (2018) estimated that the opportunities to make the built environment smarter in ASEAN countries Member-countries of the Association of Southeast Asian Nations could be worth up to US$26 billion. In a region that is quickly urbanizing, (ASEAN) are facing common challenges in the current COVID-19 the push for technology and smart city development has never been pandemic: their interconnected national economies contracted at record more important. rates due to the various lockdowns and travel restrictions; cases have soared in overcrowded informal settlements and migrant workers Digitalization has also been central to the region’s economic dormitories; urban daily-wagers’ revenues have drastically diminished integration efforts. A prime example is the ASEAN Smart Cities Network following the economic crisis. (ASCN), launched in 2018, at the initiative of Singapore, then ASEAN Chair. ASCN is "envisioned as a collaborative platform [...] to explore potential Southeast Asia has also been an interesting testing ground for complementarities, share best practices and develop individualized innovative policy responses during the COVID-19 pandemic. Among the action plans for smart city development” (ASEAN 2018). innovations that countries and cities in ASEAN resorted to in order to fight the virus, digital solutions have played an important role and have caught Moreover, the region’s experience with another disease—SARS—in the interest of many experts and commentators worldwide. 2003 highlighted the importance of fast responses and contingency plans. In some ASEAN countries, preparations to monitor, trace, and quarantine Singapore, for example, was the first country in the world to introduce confirmed virus cases helped to save time in organizing the local a nationwide Bluetooth-based mobile application for contact tracing, responses (Kwok 2020). called TraceTogether, on March 20, 2020. Many countries in Southeast Asia have emulated Singapore’s experience and developed similar tools Within this context, many countries in ASEAN have explored a and solutions during the COVID-19 crisis. digital-based response to COVID-19, turning to Singapore for leadership in the advanced use of technology to support public health efforts. In One year into the pandemic, that rush toward novel technologies is keeping with its appetite for and aptitude in digital technology, Southeast not likely to slow down. Digital solutions will play an active role in the Asia has aimed to leverage its smart city assets to fight the current recovery phase of COVID-19 in the ASEAN region and in the gradual pandemic, yet with various levels of success. reopening of economies and borders. Yet, the Regional Digital Divide Persists This policy brief aims to shed some light on the potentials and limitations of the adoption of digital solutions during multifaceted crises, Digitalization efforts are unevenly distributed in Southeast Asia. Each focusing on the example of Southeast Asia during the COVID-19 country in the ASEAN region has different forms of government, pandemic. It is based on a survey of 40 digital solutions implemented in economic systems, levels of technological maturity, and human the ASEAN region during the COVID-19 pandemic and 20 interviews of development indicators, leading to different approaches in terms of their domain experts, public officials, and technology developers. digital response to COVID-19. Going Digital in the Face of COVID-19 Countries with world-class digital infrastructure were the first to embark on innovative approaches to COVID-19, primarily to support their The ASEAN Region Was Already an Important Adopter of Digital public health strategies. Nations with less digital capacities explored Technologies before the COVID-19 Pandemic solutions at a later stage. Even before the COVID-19 crisis started, the ASEAN region had been a Looking at the levels of digital readiness in the region helps to classify dynamic sandbox for technological innovations, particularly with the rise the digital responses to COVID-19. Digital readiness is directly linked to of many smart city initiatives. In the context of Southeast Asia, smart the level of national development and progress. This is apparent in figure cities are defined as an ensemble of “technological and digital solutions 1, which combines the Digital Adoption Index—an index developed by the Affiliations: : Fabien Clavier and Francis Ghesquiere, Urban, Resilience and Land East Asia and Pacific Unit, World Bank. Acknowledgements: The authors thank Aaditya Mattoo, Tobias Pfutze, Uri Raich and Jonathan Timmis for their useful comments and suggestions. The authors also thank the different experts that were interviewed during the study of ASEAN's digital response to COVID-19. Objective and disclaimer: Research & Policy Briefs synthesize existing research and data to shed light on a useful and interesting question for policy debate. Research & Policy Briefs carry the names of the authors and should be cited accordingly. The findings, interpretations, and conclusions are entirely those of the authors. They do not necessarily represent the views of the World Bank Group, its Executive Directors, or the governments they represent. Leveraging Digital Solutions to Fight COVID-19: Lessons from ASEAN Countries emerged but that have not tapped on them fully, either because they had Figure 1. Digital Readiness Levels in ASEAN Countries taken other strong measures that prevented the spread of the virus (Vietnam) or because of a lack of coordination at the government level The higher the level of national development and progress, (Indonesia and Philippines); (4) countries that have relied on traditional the higher the level of digital readiness approaches and where digital penetration and literacy remain low (Cambodia, Lao PDR, and Myanmar). 100000 GDP per capita 2019, US$ (log 10 scale) Singapore Digital readiness is directly reflected in the levels of success in introducing and implementing digital solutions during COVID-19. Brunei Darussalam Countries with high technological maturity have managed to weave digital solutions in their policy responses to COVID-19, while less Malaysia tech-savvy countries have not achieved the same impacts in terms of 10000 Thailand integrating digital solutions. Indonesia Philippines COVID-19 Technology Solutions in the ASEAN Region: A Study Lao PDR Vietnam in Contrasts Cambodia Myanmar The Rise of Tailored Solutions to Fight an Unprecedented Crisis 1000 0.0 0.1 0.2 0.3 0.4 0.5 0.6 0.7 0.8 0.0 1.0 Digital Adoption Index, 2016 This policy brief identified 40 digital solutions being utilized in the region, using the following five criteria: (1) solutions implemented within the ASEAN region (including foreign digital solutions); (2) solutions that are Source: World Bank 2016 primarily addressing COVID-19 virus containment and socioeconomic challenges; (3) solutions active in urban centers; (4) solutions used by World Bank to measure countries’ digital adoption across three citizens or by central and local governments or both; (5) solutions having dimensions of the economy (people, government, and business)—and a digital interface—mobile applications, dashboards, trackers, geographic GDP per capita. Based on that combination, this policy brief groups information systems (GIS) (see figure 2). Southeast Asian countries into four groups: (1) Singapore, an advanced These digital solutions are fulfilling seven main functions. global innovation player, prime mover, and digital pioneer, which has quickly developed a digital response to COVID-19, leveraging its Smart Digital contact tracing. Digital contact tracing has been present in most of Nation assets; (2) digitally advanced countries that have introduced the ASEAN countries, with different levels of success. Since the beginning technological solutions early in the pandemic to support their public of the outbreak, contact tracing has been highlighted by WHO as an health interventions and COVID-19 policies (Brunei Darussalam, Malaysia, important dimension to combat the virus, together with testing and and Thailand); (3) countries where a number of digital solutions have quarantining measures. Figure 2. Country Distribution and Main Functions of Digital Solutions Used in the ASEAN Region during the COVID-19 Pandemic Source: Authors' construction 2 Research & Policy Brief No.41 Self-reporting of symptoms. Early and rapid case identification has been The WHO (2020) also highlighted the benefits of digital solutions early central during the COVID-19 pandemic. The use of online symptom in the pandemic, stating that “digital tools offer opportunities to reporting platforms and mobile applications has emerged as an important strengthen contact tracing for COVID-19” while insisting that “digital tools trend in Southeast Asia. These services can be rapidly deployed and for contact tracing can only be effective when integrated into an existing provide advice to people showing symptoms, as well as referrals for public health system that includes health services personnel, testing further medical investigation. services, and manual contact tracing infrastructure”. Communication. Informational applications providing transparent data Finally, an investigation of the use of four technologies during about the pandemic situation, locally and globally, are another important COVID-19—Internet of Things (IoT), big data, artificial intelligence, category of digital solutions developed in the ASEAN region. Soon after blockchain—by Ting et al. (2020) suggests that they can have a big impact officially announcing the pandemic, WHO introduced the term on public health strategies, especially IoT and big data for the monitoring, “infodemic,” highlighting the risks of information overabundance and surveillance, detection, and prevention of COVID-19. The study notes that rapid spread of fake news. Digital solutions and online communication “there is also a longer-term goal. The immediate use and successful channels have been used to make case reporting data accessible and application of digital technology to tackle a major, global public-health transparent. challenge in 2020 will probably increase the public and governmental acceptance of such technologies for other areas of healthcare, including Support for policy choices and decision making. Digital tools such as GIS chronic disease in the future.” platforms, agent-based modelling, and simulation platforms have been mobilized during the pandemic to support the work of public authorities Yet, Gaps in the Use of COVID-19 Technologies Persist and New in the ASEAN region. A number of these solutions have emerged in the Uncertainties about Risks Have Arisen region, but mostly in countries with established collaboration programs The speed at which governments worldwide have rolled out digital between scientists and policy makers. solutions has sparked debate among scholars and society at-large. Behavior change. Applications and web platforms have been used in Concerns range from the risks of privacy infringements to more ASEAN to inform citizens about the crowd level of certain public areas and fundamental questions about the efficacy of such solutions to stop or help them take decisions about potential visits. This application domain slow the spread of the virus. could be considered to be a niche, but it has seen the emergence of new “In the rush to act quickly,” Kitchin (2020) emphasizes, “there has not multistakeholders initiatives, leveraging the use of big data analytics. been sufficient thought and assessment given to the technical feasibility Aid distribution. Mobile applications aiming to streamline the distribution of proffered solutions, whether they will work in practice, and the extent of aid and financial support to the urban poor are not new in the ASEAN to which they will provide more effective outcomes than traditional region, but they have been accelerated during the COVID-19 pandemic, interventions.” for example to introduce digital identity systems. This application domain The use of digital solutions and the collection of highly granular or might develop further, following the challenges encountered during the personal data have raised concerns about privacy and ethics, especially in roll-out of social programs during the pandemic. the case of contact tracing and digital check-in systems in crowded areas. In June 2020, a privacy assessment of six contact tracing applications Economic recovery. New online marketplaces and peer-to-peer donation developed in ASEAN countries found that only one—TraceTogether in platforms to support local businesses and workers of impacted industries Singapore—had a good privacy statement and sufficient accompanying (such as travel and tourism, food and beverage, and creative industries) documents, clearly explaining which type of personal data was being have been introduced in some Southeast Asian countries. Even if their collected, and how it might be used or disclosed (Shepherdson 2020). potential to cushion the severe socioeconomic impacts of the COVID-19 pandemic is limited, they might become more important in the future, as Mass testing programmes, high compliance with adequate isolation digitalization of small businesses accelerates in the region. measures, and low number of cases , as well as solid legislative foundations for the deployment of technology, are required to ensure The Importance of Digital Solutions during the COVID-19 Pandemic is that digital solutions such as contact tracing become effective while Supported by Evidence safeguarding privacy, Kitchin (2020) notes. Many experts have highlighted the potential of digital solutions to fight In addition, specific actions are needed to reduce the digital divide among virus propagation and mitigate the impacts on the economy. some segments of the population, including the elderly, low-income “The emerging consensus is that they have an important role in a households and the differently-abled. Those who are less digitally-versed comprehensive response to outbreaks and pandemics, complementing have not been well included in the initial digital responses (Das and Zhang 2020). conventional public-health measures, and thereby contribute to reducing the human and economic impact of COVID-19” Budd et al. (2020) note. Singapore has provided a response to this latter challenge by Yet, given that the COVID-19 pandemic is ongoing, "it is too early to fully introducing a “Trace Token” wearable device that can be worn by seniors quantify the added value of digital technologies to the pandemic to ensure that they participate in the national contact tracing efforts. So response. While digital technologies offer tools for supporting a pandemic far, these inclusion strategies have not been replicated in the region. response, they are not a silver bullet.” Finally, in the case of digital contact tracing, many commentators have In a study published in The Lancet, Whitelaw et al. (2020) highlight criticized the fact that a 60 percent coverage target of the population is that “countries that have maintained low COVID-19 per-capita mortality difficult to achieve. Yet, Hinch et al. (2020) have shown that “even with rates appear to share strategies that include early surveillance, testing, lower numbers of app users, we still estimate a reduction in the number contact tracing and strict quarantine.” In the most successful countries, of coronavirus cases and deaths.” Fraser emphasizes that “combined with these strategies have been supported by digital technologies, integrated other interventions such as community testing and continued shielding of with public health policies. Considering the challenges in terms of data vulnerable individuals, digital contact tracing can help prevent collection and management, especially for contact tracing, digital coronavirus from rapidly re-emerging” (as cited in Big Data Institute, solutions have proven to be very useful and easy to deploy and scale up. Oxford University 2020).” 3 Leveraging Digital Solutions to Fight COVID-19: Lessons from ASEAN Countries Table 1. Classification of a Selection of Digital Solutions used by ASEAN Countries and Cities Highly integrated solutions but not Highly integrated solutions well used by citizens (B2C apps) or well used by citizens (B2C apps) governments (B2G solutions) Indonesia Brunei Darussalam Jaki/JakCorona (communication) BruHealth (self-reporting) Sapawarga (aid distribution) Cambodia Thailand Go.Data (support for decision-making) Card2U (communication) Indonesia Mor Chana (contact tracing) Pikobar (communication) Thai Chana (contact tracing) Siap Tanggap (support for decision-making) Vietnam Ur-scape (support for decision-making) NCOVI (self-reporting) Malaysia E-bazaar Melaka (economic recovery) Gerak Malaysia (contact tracing) Kita2Kita (aid distribution) MySejahtera (contact tracing) MyTrace (contact tracing) PGCare (contact tracing) SabahTrace (contact tracing) SeLangkah (contact tracing) Philippines Smart Infocast (communication) Singapore COVID-19 WhatsApp GOV.SG (communication) Safe Distance @ Parks (behavior change) Safe Entry (contact tracing) Space Out (behavior change) TraceTogether (contact tracing) Thailand SydeKick (self-reporting) Vietnam COMOKIT (support for decision-making) BlueZone (contact tracing) Insufficiently integrated solutions not well Insufficiently integrated solutions but well used by citizens (B2C apps) used by citizens (B2C apps) Indonesia Indonesia PeduliLindungi (contact tracing) Bagirata (economic recovery) Myanmar Indonesia Bergerak (communication) Saw Saw Shar (self-reporting) LaporCovid19 (communication) Philippines Malaysia FASSSTER (support for decision-making) Vulnerability Index (support for decision-making) RC143 (self-reporting) Thailand Stay Safe Ph (self-reporting) 5Lab Market (economic recovery) We Trace Cebu (self-reporting) QueQ (behavior change) Source: Authors' construction Note: B2C = business to citizen; B2G = business to government. Analyzing the Fragmented Digital Response to COVID-19 in ASEAN 1. Ensure Government Leadership and Multilevel Coordination in Times of Crisis The ASEAN region has not been exempted from the debates around the use of technology during COVID-19. The ultimate impacts of these In most ASEAN countries, governments, generally at the central level, solutions are directly linked to how they were framed and introduced by took the lead in introducing digital solutions, ensuring strong their promoters. coordination with public health investigations and virus containment measures. Long-term investments in government institutions and This policy brief classifies COVID-19 technologies being used in ASEAN national digitalization programs have helped countries in ASEAN initiate countries into three categories (table 1): digital responses to the numerous challenges posed by COVID-19 (Soon 1. The level of integration of digital solutions within government 2020). operations during the COVID-19 pandemic 2. The level of involvement of technology partners (academia, start-ups, The countries in the region that have been most successful in curbing telecommunication companies), in either B2G (business-to-government) the virus are the ones where leadership has been strong over the or B2C (business-to-citizen) applications different phases of the crisis, and where learning-driven and 3. The level of participation of citizens (general acceptance of the “trial-and-error” approaches have been adopted to adjust policies along solution). the way (Abdullah and Kim 2020). The first two categories were assessed through interviews with Given the complexity and unprecedented scale of the pandemic, the experts and online research. The third was measured by the number of COVID-19 crisis has highlighted the need to work across government estimated installations in the case of B2C mobile applications (based on agencies and ministries in a whole-of-government approach and to Apple Store and Google Play estimations), complemented with insights support the transformation of digital solutions developed during the crisis from interviews with experts. phase to fit the needs and the challenges of the recovery phase. This framework aims to provide an initial basis for evaluating the 2. Leverage Local Digital Technology Ecosystems impacts of digital solutions during the COVID-19 pandemic, especially in the context of Southeast Asia. In times of crisis, no one can claim a monopoly on how to deal with multifaceted and complex challenges. While government action can Policy Implications initiate technological responses, fighting COVID-19 at a digital level means mobilizing a wide range of stakeholders and activating the various Four main policy implications follow from this brief’s research and technology ecosystems and alliances that exist locally. 4 observations. Research & Policy Brief No.41 Existing “smart governance arrangements” have played a central role economic impacts of COVID-19, for example through the setup of online in driving the digital response to COVID-19 in the ASEAN region. Countries marketplaces to support local businesses or the creation of peer-to-peer and cities with established innovation programs and with a high presence digital financial platforms, run by local volunteers, to help precarious of digital companies, research labs, and start-ups have been able to react businesses and workers survive dramatic drops in their revenues and more quickly with innovative solutions during the crisis. They have also income. been able to scale up their digital approaches and solutions more efficiently (Tunas and Clavier 2020). While digital technologies cannot tackle the preexisting inequalities and root causes of the current crisis, it can help ease the burden on the Governance arrangements in the region have traditionally supported urban poor, while making their conditions and struggles more visible to the implementation of smart city initiatives, including ad hoc steering decision makers. For example, GIS platforms have been used to map and committees at the local level, innovative partnerships with research labs, analyse COVID-19 hotspots in vulnerable urban areas (Future Cities exploration of new technological approaches, introduction of civic Laboratory 2020) or highlight the importance of community resilience in technologies, and experimentation with policy and regulation. Such the face of COVID-19 (Leong and Benson 2020). Mobile applications governance arrangements equip cities with the necessary supports and based on digital identity and e-verification systems have also been piloted tools that can be adapted to respond to various future challenges, such as to facilitate aid distribution to the most needy across cities in the ASEAN pandemics. region. 3. Enable the New Normal by Engaging People from the Very Start Conclusion As the crisis unfolded, many governments realized that their actions would need to be supplemented by behavioral change and a greater Digital solutions have been the signature of ASEAN countries’ response to sense of awareness among citizens. COVID-19. The speed at which digital technological solutions have emerged in the region has been exceptional. Digital technologies COVID-19 has pushed the need for a “new normal”, which could be developed during the COVID-19 pandemic in Southeast Asia have helped defined as a range of adjusted behaviors and social norms to let people address a wide spectrum of problems, from contact tracing and coexist with the pandemic. Digital solutions can help enable this “new transparent communication to modelling of the spread of the virus, aid normal,” but only if citizens understand and accept its underlying distribution, and economic recovery. Even if it is too early to assess the principles. ultimate impacts of these solutions, digital technology has efficiently Digital contact tracing provides an interesting illustration because supported contact tracing, communication and transparency efforts in citizen participation appears to be an important success factor. The more some ASEAN countries, easing the burden on public health authorities. people download and use mobile contact tracing applications, the higher Digital technology, in the context of the COVID-19 pandemic, has a lot the chances to be able to control the pandemic locally (Hinch et al. of potential but some countries have not yet taken full advantage of it, 2020)—although low levels of uptake can still yield some benefits. But for due to various factors. The COVID-19 crisis has highlighted the digital mobile contact tracing applications to be downloaded and activated, divide in the region and the limited cooperation mechanisms to address governments need to communicate about their importance and those disparities. demonstrate their potential in handling the pandemic. Transparent information about data collection and storing mechanisms, the As economies reopen across the region, many wonder how ASEAN user-friendliness of the application, and end-to-end security and privacy countries and cities will leverage the gains of digital solutions utilized protections, all help enhance the chances that people will install and use during the COVID-19 crisis. As many solutions have been trialled in the mobile contact tracing applications. region, countries and cities have more concretely experienced the potentials and the pitfalls of digital innovation. Nations that will be able to 4. Address Social Inequalities and Bring Digital Services to the Most make digital gains stick will likely be more successful in the recovery phase Vulnerable and beyond. In parallel, privacy concerns will remain a high priority and COVID-19 has highlighted social inequalities and brought millions of ASEAN citizens will be cautious about trade-offs under the “new normal.” informal and migrant workers on the brink. Finally, the COVID-19 crisis is pushing for a greater networked urban As movement and travel restrictions have spread during the resilience (Bai et al. 2020) in order to ensure that cities learn from one pandemic, local and informal businesses in ASEAN cities have been another and develop coordinated responses to such crises. ASEAN struggling to stay afloat. Many countries and cities in Southeast Asia countries and cities, through their use of digital solutions during the heavily depend on tourism. 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