Planning and designing open government data programs: An ecosystem approach

https://doi.org/10.1016/j.giq.2016.01.003Get rights and content

Highlights

  • Reviews open government data (OGD) benefits and barriers

  • Identifies key social and technical considerations for OGD program design

  • Develops an ecosystem model of stakeholders, policies, practices, relationships, and influences

  • Applies the model to case studies of New York and St. Petersburg

  • Suggests further testing and additional research

Abstract

The open government data (OGD) movement has rapidly expanded worldwide with high expectations for substantial benefits to society. However, recent research has identified considerable social and technical barriers that stand in the way of achieving these benefits. This paper uses sociotechnical systems theory and a review of open data research and practice guidelines to develop a preliminary ecosystem model for planning and designing OGD programs. Findings from two empirical case studies in New York and St. Petersburg, Russia produced an improved general model that addresses three questions: How can a given government's open data program stimulate and support an ecosystem of data producers, innovators, and users? In what ways and for whom do these the ecosystems produce benefits? Can an ecosystem approach help governments design effective open government data programs in diverse cultures and settings? The general model addresses policy and strategy, data publication and use, feedback and communication, benefit generation, and advocacy and interaction among stakeholders. We conclude that an ecosystem approach to planning and design can be widely used to assess existing conditions and to consider policies, strategies, and relationships that address realistic barriers and stimulate desired benefits.

Introduction

Open access to government data has become a hallmark of the global open government movement. A legal framework for public information access is the second of four membership criteria for the global Open Government Partnership which has grown from eight member countries at its founding in 2011 to 65 members in 2015 (Open Government Partnership, n.d.). In 2011, the UN issued guidelines for open data programs for member states particularly for purposes of transparency and citizen engagement (United Nations Division for Public Administration and Development Management, 2013). By 2013, 95 nations had adopted access to information laws and procedures, and international organizations from the Organization of American States to the African Union had adopted resolutions, treaties and model legislation endorsing and promoting open access (Open Society Justice Initiative, n.d.).

Open government data (OGD) programs have been launched in many different countries, cultures, and political systems while also rapidly expanding to sub-national and municipal levels. OGD programs typically comprise a set of formal directives, rules, and practices that apply to all or most administrative organizations within a government. Under these programs, government organizations are required to make their machine-readable data discoverable, available, and downloadable through dedicated internet portals without cost to potential data users.

Despite the political emphasis on citizen engagement, OGD users are usually not “citizens” in the ordinary sense of that term but rather they are technologically skilled data analysts or application developers who can make use of data in these technical formats. Sometimes these users rely entirely on OGD, sometimes they compare or combine it with data from other sources to produce applications or services. The resulting products may be offered without charge or they may be the basis for revenue-generating businesses.

Section snippets

Open government data benefits and barriers

Conceptually, the appeal of open government data (OGD) is undeniable given its underlying motivations to improve democratic governance and political participation, and to foster service improvements and business and civic innovation (Huijboom, N. and Van den Broek, T., 2011, Robinson, D., et al., 2009). Expectations for substantial benefits are high, and investment is considerable as evidenced by the sheer number of OGD portals and programs (Manyika et al., 2013). McKinsey analysts estimate

Theoretical foundations

Open government data programs are sociotechnical phenomena that exist in multi-actor physical and institutional environments. They combine organizational, human, material, and technological aspects in a dynamic interplay of interdependencies and mutual influences within a given context (Sawyer & Jarrahi, 2014). Thus, sociotechnical systems theory (STS) is useful for exploring questions of OGD program planning and design.

Contemporary sociotechnical thinking recognizes that technology and human

Research method

To explore the model empirically, we conducted a mixed-method comparative case study of New York in the United States and St. Petersburg in Russia considering both the supply side and the demand side of OGD. We chose municipal-level OGD programs because the components of their ecosystems are more evident and more amenable to analysis than the more diffuse national systems. They are also growing rapidly in number and distribution around the world. Because OGD is a global phenomenon, we are

New York

New York is the largest city in the United States, with 8.5 million inhabitants. Its open government data ecosystem encompasses a variety of stakeholders working in a diverse commercial and cultural environment. Key government stakeholders include the elected Mayor and City Council and 43 administrative agencies. The Mayor's Office of Data Analytics (MODA) plays a central role in OGD policy and in the city's own use of data for management and operations. The civic technology community is very

Discussion

We return here to our three research questions:

  • How can a given government's open data program stimulate and support an ecosystem of data producers, innovators, and users?

  • In what ways and for whom do these the ecosystems produce benefits?

  • Can an ecosystem approach help governments design effective open government data programs in diverse cultures and settings?

The research conducted in both cities showed the important roles that government can play to stimulate an ecosystem of data producers,

Conclusion

This paper developed an ecosystem model to assist in planning and designing OGD programs. We constructed a preliminary version of the model drawing on current practice and the research literature on open government data and socio-technical systems and applied it in two case studies in widely different political and cultural settings. This allowed us to explore similarities and differences in program context, structure, dynamics, performance, and benefits to stakeholders. In both cases, we were

Acknowledgements

This work was partially financially supported by the Government of Russian Federation, Grant 074-U01.

Sharon S. Dawes is Senior Fellow at the Center for Technology in Government and Professor Emerita of Public Administration and Policy at the University at Albany/SUNY. Her research focuses on government information strategy and management with special emphasis on international digital government partnerships and information quality and use.

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  • Cited by (0)

    Sharon S. Dawes is Senior Fellow at the Center for Technology in Government and Professor Emerita of Public Administration and Policy at the University at Albany/SUNY. Her research focuses on government information strategy and management with special emphasis on international digital government partnerships and information quality and use.

    Lyudmila Vidiasova, Ph. D. (Social Science), is head of the Monitoring& Research Department, eGovernance Center, ITMO University. She has professional experience in e-government projects, e-governance measurement, global rankings analysis, open government and open data. She applies sociological methods for analysis of ICT development in modern society.

    Olga Parkhimovich is a PhD student at the Laboratory of Information Science and Semantic Technologies and teaching assistant at the ITMO University. Her research focuses on open government data and open budgets. The main aim of her research is to make government's spending and revenue more transparent and understandable for citizens.

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