Digital Transformation of Public Administration

Digital Transformation of Public Administration – 05 July 2019
Digital Transformation of Public Administration
Doctor Francesco Mureddu
Associate Director, The Lisbon Council
5th International Summer School on Government 3.0
Samos, 5 July 2019

A Few Words on the Speaker
• Current position: Associate Director at the Lisbon Council
• Background: PhD in Economics (impact of localization of innovation)
• Relevant projects
• Analysis of the value of new generation of eGovernment services
• Mid-Term and Final Evaluation of eGovernment Action Plan 2011-2015
• CROSSOVER - Bridging communities for Policy Making 2.0
• Co-VAL: Understanding value co-creation in public services for transforming
European public administrations
• Big Policy Canvas: Needs, Trends and ICT Tools for Advanced Data-Driven Public
Sector
• JRC Policy Lab Framework: Future of Gov, Knowledge for Policy Platform
• Support to the Estonian Presidency for the elaboration of the next
EGovernment Ministerial Declaration
• Side activities: startupper, co-founder of Infrascan - Cybersecurity

A Few Words on the Lisbon Council
• The Lisbon Council for Economic Competitiveness and Social Renewal
was founded on the 6th of October 2003 as a non-profit association
• The Lisbon Council was set up to intellectually accompany the Lisbon
Agenda, Europe’s original growth and jobs programme
• Domains and activities
• Policy research programme in open and e-government, future
science, digital transformations of public administrations, ICT,
innovation and start-ups
• Organization of High-Level Summits and Roundtables, community-
building and outreach, public speaking and advisory, smart
crowdsourcing web tools for policy analysis

Specific Focus of the Lecture
“Collaboration and buy-in from different levels of government
and from civil servants in order to deliver a common digital
government strategy”

Topics of the Lecture
• Definition of Digital Transformation in Public Administration
• Policy Framework
• Public Service Co-creation
• Measurement and monitoring digital transformation at local level

Definition of Digital Transformation of Public Administration
“Digital transformation is a holistic effort initiated by the
availability of new technologies to revise core processes and
services of government beyond the traditional digitization
efforts. It evolves along a continuum of transition from analog
to digital to a full stack review of policies, current processes
in order to satisfy user needs to a resulting complete revision
of digital services. The outcome of digital transformation
efforts focuses on the satisfaction of user needs, new forms
of service delivery, and the expansion of the user base.” (Ines
Mergel, University of Konstanz)

Policy Framework
• The Malmoe Ministerial Declaration on eGovernment (2009)
• The eGovernment Action plan 2011-2015 supporting the transition of
eGovernment into a new generation of open, flexible and collaborative
seamless eGovernment services at local, regional, national and
European level
• The eGovernment Action Plan 2016-2020, launched in 2016, to
“accelerate the digital transformation of government”
• The European Interoperability Strategy (ISA2), launched in 2017, which
provides the European Union’s 28 member states with 47 concrete
recommendations on how to “set up interoperable digital public
services.”
• Tallinn Ministerial Declaration on eGovernment, 32 members of the
Council of the European Union and European Free Trade Association
area – represented at ministerial level – signed on to a core set of six
eGovernment principles, which they vowed to deliver by 2022
• Italian Three Year Plan for ICT in Public Administration

Tallinn Ministerial Declaration on eGovernment
It integrates and reinforces the Malmo Declaration (2009) and the eGov
Action Plan 2016-2020
• Both recognise that service-oriented, reliable and innovative
government at all levels are essential to develop a dynamic,
productive and European society and to tackle global challenges
• Both emphasize engaging citizens, businesses & civil society in
collaborative design, production and delivery of public services and
to facilitate interaction between public administrations and
businesses and citizens
Specific principles
• Digital-by-default, inclusiveness and accessibility:
• Ensure that European citizens and businesses may interact digitally
with public administration, if they choose to do so and whenever
feasible and appropriate
• Ensure the consistent quality of user experience: Annex “User-
centricity principles for design and delivery of digital public
services”
• Work to increase the readiness of European citizens and businesses
to interact digitally with the public administrations

Tallinn Ministerial Declaration on eGovernment
Specific principles
• Once only: implement it for key public services, option for citizens and
businesses
• Trustworthiness and security:
• Ensure that information security and privacy needs are taken into
consideration when designing public services and public
administration information and communication technology (ICT)
solutions, following a risk-based approach and using state-of-the-
art solutions
• Work to increase the uptake of national eID schemes, including to
make them more user friendly and especially more suitable for
mobile platforms, while ensuring their appropriate security levels
• Openness and transparency, make it possible for citizens and
businesses to better manage their personal data held by public
administrations
• Interoperability by default: work on national interoperability frameworks
based on the European Interoperability Framework (EIF), while
respecting also the relevant national standards, and adhere to EIF for
cross-border digital public services

Tallinn Ministerial Declaration- User Centricity
• Digital Interaction: citizens should have the option to digitally interact with
their administrations
• Accessibility, security, availability and usability:
• Services are made more accessible and secure and can be used with
appropriate assistance available upon need
• Principles of universal design have been applied to the setting up of the
services and that the websites are simple to read and easy to understand
• Authenticity of digital public services is secured and can be recognised in
a clear and consistent manner
• Reduction of the administrative burden
• Optimizing and/or creating digital processes and services where relevant
and possible, and by offering personalised and pro-active services
• People should not be asked to provide the same information to public
services more than once
• Digital delivery of public services: that public services should be fully handled
online, including the provision of any evidence required to obtain a right or
fulfil obligations, and the status of service delivery can be checked online
where relevant

Tallinn Ministerial Declaration- User Centricity
• Citizen engagement: digital means are used to empower citizens and
businesses to voice the views, allowing policy makers to collect new ideas,
involve citizens more in the creation of public services and provide better
digital public services
• Incentives for digital service use: the barriers to use digital public services
should be efectively removed, including by extending and promoting the
benefits of, for example, higher confidence, speed, efectivity and reduced
costs to individuals who are able to use them
• Protection of personal data and privacy: that the handling of personal data
respects the general data protection regulation and privacy requirements in
the EU and national levels, when applicable informing citizens about the use
andstorage of their personal data and allowing citizens to access and ask for
the correction and deletion of personal data, where appropriate
• Redress and complaint mechanisms: that redress mechanisms are available
online and that citizens and business have access to complaint procedures
online, while also in other available channel(s) of their choice

eGovernment Action Plan 2016-2020: Vision
“By 2020, public administrations and public institutions in the European
Union should beopen, efficient and inclusive, providing borderless,
personalised, user-friendly, end-to-end digital public services to all citizens
and businesses in the EU. Innovative approaches are used to design and
deliver better services in line with the needs and demands of citizensand
businesses. Public administrations use the opportunities offered by the
new digital environment to facilitate their interactions with stakeholders
and with each other”

eGovernment Action Plan 2016-2020: Principles
• Digital by Default: public administrations should deliver services digitally
(including machine readable information) as the preferred option (while still
keeping other channels open for those who are disconnected by choice or
necessity). In addition,public services should be delivered through a single
contact point or a one-stop-shopand via different channels.
• Once only principle: public administrations should ensure that citizens and
businessessupply the same information only once to a public administration.
Public administration offices take action if permitted to internally re-use this
data, in due respect of data protection rules, so that no additional burden falls
on citizens and businesses
• Inclusiveness and accessibility: public administrations should design digital
publicservices that are inclusive by default and cater for different needs such
as those of theelderly and people with disabilities

eGovernment Action Plan 2016-2020: Principles
• Openness & transparency: public administrations should share information
and databetween themselves and enable citizens and businesses to access
control and correcttheir own data; enable users to monitor administrative
processes that involve them;engage with and open up to stakeholders (such
as businesses, researchers and nonprofitorganisations) in the design and
delivery of service
• Cross-border by default: public administrations should make relevant digital
publicservices available across borders and prevent further fragmentation to
arise, therebyfacilitating mobility within the Single Market
• Interoperability by default: public services should be designed to work
seamlesslyacross the Single Market and across organisational silos, relying on
the freemovement of data and digital services in the European Union
• Trustworthiness & Security: All initiatives should go beyond the mere
compliancewith the legal framework on personal data protection and privacy,
and IT security, byintegrating those elements in the design phase. These are
important pre-conditions forincreasing trust in and take-up of digital services.

eGovernment Action Plan 2016-2020: Actions
• Modernise public administration with ICT, using key digital enablers: digital
public services should build on shared and reusable solutions and services
based on agreed standards and technical specifications in order to reduce
their cost of development, their time to deployment and increase
interoperability.
• Enabling cross-border mobility with interoperable digital public services
• Such services facilitate access to markets, increase confidence in and
stimulatecompetition across the Single Market
• Administrations should help businesses operate online across borders
within the Single Market, simplify access to information under EU
business and company laws and enable businesses to easily start doing
business, in other Member States through end-to-end public e-services
• Facilitating digital interaction between administrations and
citizens/businesses for high-quality public services
• Potential to deliver high quality public services, by stepping up the
involvement of businesses and citizens aswell as researchers in their
design and delivery, and by ensuring feedback for improvement
• By opening up public sector data and services and facilitating their re-use
bythird parties public administrations can foster new opportunities for
knowledge, growth and jobs

Pillars
• Once Only Principle
• Government as a platform
• Authoritative and Interoperable Base Registries
• eID and European Electronic Identification and Trust Services (eIDAS)

Pillar 1 – Once Only Principle
• A notion pioneered by the Estonians but more recently enshrined in
the European Union’s flagship Digital Single Market programme.
• In a nutshell, “once-only” means just what it says: “users should be
able to provide data once-only, and administrations should be able to
retrieve and share this data to serve the user, in accordance with data
protection rules.”
• In other words, it shifts the responsibility for getting relevant
information from the user to the government, thereby hiding the
complexity of government from the users
• The power lies in its simplicity: when a legal provision is in place that
forbids government from requesting documents already in its
possession, public administrations are forced to introduce changes in
order to do even their routine business
• This, in turn, requires the establishment of a robust system of so-called
“base registries” – defined by the European commission as “a trusted
and authentic source of information under the control of a public
administration or organisation appointed by government,” usually a
database or network of interoperable databases

Pillar 2 – Government as a Platform
• Despite the technical complexity – and make no mistake, the transition
to once only can be very complex – the system has certain huge
advantages, some visible, some not
• First and foremost, it saves a lot of people a lot of time – generating €5
billion per year in the EU alone in terms of the estimated reduced
administrative burden
• But it also opens government up to a host of other services, effectively
turning government services into a “platform,” where many different
players – public and private – can collaborate to deliver better
outcomes, competing to build better and better services around a
common set of standards, rules and principles
• Unlike the old monolithic closed systems, which are expensive to
maintain and at greater risk of lock-in, government as a platform is a
more effective way to enable the creation of “loosely coupled,” layered
public services that can meet as yet unanticipated citizen needs and be
composed upon demand

Pillar 2 – Government as a Platform
• In that way, common horizontal services, such as identification,
payments and data storage, can be easily centralised without affecting
the user experience, and software components can be easily reused by
different government services
• The UK Government Digital Service firmly placed this concept at the
core of its 2012 strategy to radically reorganise online service provision
• Today, three billion online transactions pass through the system per
year.
• In the case of Estonia – undoubtedly the first and most enthusiastic EU
member states to embrace a once only system – public/private
collaboration on core infrastructure have resulted in the Baltic nation’s
1.3 million citizens using their e-IDs and signatures more than one
billion times since the programme’s inception in 2003.26

Pillar 3 – Authoritative and Interoperable Base Registries
• Base registries have been around a while in many countries
• These days, they are a topic of much renewed interest at eGovernment
conferences despite having scarcely penetrated the public imagination
• A truly interoperable system is one the public never notices
• The European Commission is currently undertaking a mapping of
national base registry strategies, hoping to count the number of them
in operation and better understand the principals at work behind the
better functioning of them.
• Rather than harmonising standards, EU member states have opted for
an “interoperable” approach, meaning national standards should be
able to interact with one another rather being set up centrally in the
same way
• Much of this work is focused around the National Interoperability
Framework Observatory (NIFO), which tracks and monitors
interoperability among national base-registry systems
• To date, there are 32 national interoperability frameworks – which are
essentially national government-drafted statements in which the local
state of play on interoperability is described.
• These are submitted to NIFO for an evaluation, which is later published

Pillar 3 – Authoritative and Interoperable Base Registries
• Well-managed base registries allow the development of integration
tools such as Application Programming Interfaces (APIs)
• The adoption of API to allow different ICT systems to collaborate has
been consistently growing over the last 12 years globally
• There are today 1,300 public government API on
programmableweb.com, the leading repository of API, out of a total of
19,000 available there
• The Municipality of Milan itself has published 30 APIs that allow
private and public entities to directly query database and access
services
• Moreover, APIs allow users to integrate their internal data
management strategy with open data publications
• Rather than requiring human upload of specific datasets, APIs allow
selective and rule-compliant direct queries and access to the
underlying database – allowing for more valuable, comprehensive and
real-time data access

Pillar 4 – eID and European Electronic Identification and
Trust Services (eIDAS)
• Given concerns about privacy and cyber security, governments need to
be certain the person they are transacting with online really is who
they say they are
• The e-ID and eIDAS is a new EU regulation that will govern the mutual
recognition of electronic signatures and identities
• Public administrations, including local and regional governments, that
accept digitally signed documents or electronic authentication for
services from their own citizens will also have to accept identities and
signatures of equivalent security level from elsewhere in the EU
• The use cases cover everything from an Estonian entrepreneur opening
a branch office of his business in Belgium, carrying out all the
“paperwork” electronically, to a German student doing a semester in
Italy authorizing his university to transfer student records
• In larger countries, eIDAS may also help standardise electronic identity
offerings within the country

Pillar 4 – eID and European Electronic Identification and
Trust Services (eIDAS)
• The deadline for notifying e-ID schemes is 29 September 2018, after
which all public administrations (including local) should begin to
recognize e-IDs from other countries
• Germany was the first country to notify its e-ID scheme, and Italy
followed suit late last year, with the first notification of a private sector
e-ID scheme.
• While eIDAS is legally binding only for public administration, the
framework is also open to the private sector.
• As eIDAS has harmonized security and interoperability requirements,
the regulation should create a virtuous cycle of greater demand and
more competitive offerings on the market
• Considering that only 1.3 million Estonians generate more than 50
million digital signatures a year, the potential size of the European
market is enormous

Degrees of Co-creation
Process in which citizens stop simply consuming government services and start to play an
active role in their design, delivery and execution
Extrinsic co-creation Intrinsic co-creation
Co-construction Co-design Co-production
• User-centred design
• Log analysis
• Agile methods
• Participatory design
• E-consultation
• Volunteering
• Open data apps
• Living Labs
Citizens participate
passively
actively through
feedback and ideas
actively and take part in
implementation
Levels of Citizens’ Engagement
Maturity

Co-creation is Mature
Co-creation is mature, but we need to scale it up
• We possess many effective, well tested tool kits, ready to be deployed and capable of
delivering results, as well as a wealth of on-the-ground experience and applications
• Entire countries scaled up design thinking at national level, such as the United
Kingdom’s legendary Government Digital Services
• Question: how do we take the pockets of local success and deliver them to Europeans
at scale despite the notorious conservatism of many public administrations?

Why Co-creation Matters
• Problem is user centricity: need for a systematic adoption of co-creation to deliver
better services by capturing user needs and behaviour and adapting to it dynamically.
• User centricity is a core topic in the Malmö and the Tallinn Ministerial Declarations
BU
DK
EE (61, 71)
RO
SE
EU (60,34)
0
10
20
30
40
50
60
70
80
10 20 30 40 50 60 70 80 90
%eGovernmentusers
% eCommerce users
eGovernment vs eCommerce Adoption 2018 (source: Eurostat)

Service Design
Definition and Activities
• Systematic application of design methodology and principles to public services
with the goal of designing those services from the perspective of the user.
• It is a methodology to facilitate the inclusion of external stakeholders in the design
of the services through ethnographies, idea generations, prototyping.
• The design process significantly transforms the organization that leads the process
itself, and it is also a learning process for individuals taking part in experiments.

Living Labs
Definition and Activities
• User-centred, open-innovation ecosystems based on a systematic user co-creation
approach, integrating research and innovation processes in real life settings (ENoLL).
• Living: integrative contexts for co-creation/innovation that are real-life phenomena.
• Labs: separate from everyday activities, reducing pressures, risks and ethical concerns.
• Driven by two main ideas: involving users as co-creators of innovation outcomes on
equal grounds with the rest of stakeholders, and experimentation in real-world settings.

Co-creation at Work
United Kingdom’s Government Digital Service
• Successful large-scale application of user-centred and participatory design techniques
• The task of the unit was to transform government using digital transformation and
service design, report having the capacity to recruit expertise from outside government.
• Apprenticeship service: 4,000 user research sessions with employers.
• 2.2 million young people signed up for the service, which processed six million
transactions, and won the 2018 Digital Public Service Innovation of the Year award

Co-creation at Work
Torino City Lab
• Initiative-platform supported by municipality creating an environment for designing and
testing innovative solutions for urban living in real conditions.
• Frontier technologies include AI, robotics, autonomously driven vehicles, 5G, IoT, drones.
• The interesting characteristic is that the lab’s work is open to to all of the city.
• Companies, end users and citizens are involved in testing through “calls for action.”
• Specific initiatives include the collection of environmental data through low cost
portable sensors and the improvement of government service-based apps.

A Ten-Step Programme
Prioritise Adoption
1) Make user research a requirement for public services. Public services provision accompanied by
user needs analysis using service-design methods included in guidelines and toolboxes. User test
for public services, similar to SME test for regulation
2) Use the public budget to stimulate adoption of co-creation. Any publicly funded government
innovation initiatives should require to introduce co-creation methods. EU structural funds
should make funding conditional on the adoption of proper co-creation and co-design methods
Support Implementation
3) Reinforce capabilities in public administration. Recruitment processes more flexible.
Recruitment of design expertise should not necessarily require extraordinary powers like the
case of digital teams.
4) Establish service design as an infrastructural service in each member state. Support services to
local and central public administrations lacking capabilities.

Remove Barriers
5) Adapt public procurement to agile development methods. Experimental
procurement procedures allowing to collaborate with actors potentially involved in
the delivery of the service.
6) Enforce the norms on open standards and open data. Co-production is impossible if
data and service modules are closed and not re-usable.
7) Provide the right incentives to ensure citizens’ participation. Level of information
on the benefits of the process and the feedback on their contribution.

Monitor Results
8) Make metrics on adoption the key performance indicators of digital government.
This acts as an incentive for the governments to be user-centric. data on uptake of
digital service should be included in the list of “high-value datasets” defined in the
latest proposal of the revised directive on public sector information.
9) Provide a clear evidence base for service-design in government. As it is resource
consuming, a clear evidence base showing the advantages is necessary.
10) Provide sound metrics on adoption of co-creation by public administration over
time. Standard indicators, such as # of users involved and # of co-creation sessions.

Co-VAL’s Contribution
Measurement and policy impact of co-creation:
• 30+ Case studies of how service design, living labs, digital public management and
public sector innovation network are used for services co-innovation and co-creation
• Systematic survey of co-creation adoption and service innovations in public sector.
1000+ public sector managers from France, Hungary, Netherlands, Norway, Spain, UK
• Four policy briefs (and related summits) exploring the cutting edge of unique “value
co-creation” models for delivering better public services and improving citizen-state
relations
• Monitoring a series of indicators on digital transformation and co-creation adoption
at member states and municipality level to be visualized in a dedicated dashboard
• Inception of a think tank devoted to digital transformation and co-creation of public
services at the end of the project

Measuring and Monitoring Digital Transformation
and Co-creation
• The proposed solution is a smart crowdsourcing approach, enabling
knowledgeable stakeholders to provide directly the information on a web
platform
• The dashboard builds on a checklist of indicators reflecting the
implementation of digital transformation and co-creation policies
• The data about will be typically available from national/local policy
documents, EU documents and direct input from relevant stakeholder
• The challenge is to ensure the identification of the data sources, the
collection of data in comparable ways, and the analysis in order to
display the data in a way that is meaningful, easy to communicate and
understand by policy makers
• Since policies evolve, there is the need to ensure sustainability over time

and Co-creation
• The dashboard is first piloted in collaboration with the city of
Turin, Milan, Amsterdam. Paris, Madrid and Athens coming soon
• Countries covered so far are: Belgium, France, Spain,
Netherlands, Denmark, Austria
• The dashboard will then gradually be extended in order to cover
new indicators, based on the next policy recommendations
developed by the project, and all the member states

and Co-creation
The indicators are decomposed into five dimensions :
• Policy: this dimension considers the participation to international
networks and initiatives, as well as the consistency of the local digital
government strategy with the EIF
• Interoperability/re-use: this dimension deals with the ability of the
public administration to share information and knowledge with other
administration, by mean of the exchange of data between ICT
systems. For the purpose of the dashboard, interoperability entails
also re-use of software and service components
• Collaboration: this entails the involvement of users in the creation and
design of services, as well as the acceptance of trust services for
using the services provided by the public administration
• Skills: this dimension considers the acquisition of skills by the public
administration, by mean of training of civil servants, as well as by
mean of hiring managing personnel from private companies
• Monitoring: this final dimension deals with the monitoring activity
implemented by the public administration by mean of KPIs

and Co-creation
Dimension Indicator
Policy Number of EU projects on digital government participated by the local authority
in the last 5 years
Policy Do you (local authority) participate in international networks on digital
government?
Policy Do you (local authority) have a digital government strategy consistent with EIF?
Policy Do you (central authority) have a national digital plan?
Interoperability/re-use Do you make your base registries accessible to other public administrations?
Interoperability/re-use Do you (central/local authority) reuse software or service components in your
service delivery to citizens and business?
Interoperability/re-use Number of APIs provided by the local authority to other administrations and to
private companies
Interoperability/re-use Number of third parties using the APIs developed by the local authority
Interoperability/re-use Number of calls to APIs developed by the local authority per month
Interoperability/re-use Do you (central authority) provide centralized service modules to local
authorities? Indicate which one: id, base registries, payments, others
Interoperability/re-use What is the uptake of those services by local authorities (in % of total local
authorities)?

and Co-creation
Dimension Indicator
Collaboration Do you (central/local authority) involve users in the design of services?
Collaboration Percentage of services (certificates, etc.) provided entirely digitally by the central/local
authority
Collaboration Do you (central/local authority) accept the use of qualified trust services in line with the
eIDAS regulation?
Collaboration What % of transaction or users (of local authority services) have used eIDAS compliant eID?
Collaboration What % of citizens use eIDAS compliant eIDs?
Skills Did you (central/local authority) bring in, in the last 5 years, personnel from the private
sector in management positions?
Skills Did you provide training on digital matters to at least 10% of your staff in the last 3 years?
Monitoring Do you (local authority) have KPIs to monitor digital government?
Monitoring Do your (local authority) KPIs include uptake of online services?
Monitoring Do your (local authority) KPIs include users’ co-creation?

Thank you for your attention.
francesco.mureddu@lisboncouncil.net

Digital Transformation of Public Administration

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