Blueprint for digital government transformation in Europe through a user driven SDI |
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The European Union Location Framework (EULF) Blueprint is a guidance framework for using location information in policy and digital public services. It has been developed in the ISA2 Programme and the predecessor ISA Programme and is fully aligned with the European Interoperability Framework (EIF), through its attention to all aspects of ‘location interoperability’. The Blueprint contains recommendations and implementation guidance on how to use location information effectively and innovatively in policy and digital public services (demand-side guidance) and how to create a user-driven SDI that will support the needs of those developing these policies and services (supply-side guidance). |
Location information continues to play an important role in European policy and digital public services. European politicians have sought to enhance the regulatory environment around the collection, sharing and use of data through general polices such as Public Sector Information (PSI), open data, the General Data Protection Regulation (GDPR), the EU data strategy and associated legislation, and thematic policies associated with, for example, earth observation - Copernicus, environment - Environmental Information Directive (EID), Infrastructure for Spatial Information in the European Community (INSPIRE), transport – Intelligent Transport Systems (ITS), and energy – Energy Efficiency Directive (EED), Energy Performance of Buildings Directive (EPBD). Location data is integral to the wider data policy landscape, contributing to important policy developments in areas such as climate change and energy sustainability, health, transportation, regional and urban development, migration and cohesion policy.
In some areas, we are seeing step changes in policy, fuelled by new access to data. Location information is a basic building block in many digital public services but this requires integration with multiple data sources. There is a general recognition of the importance of ‘high value datasets’ of which location data is part, and the need to integrate these datasets. European ICT and data interoperability initiatives such as ISA2 and INSPIRE aim to support, for example, the goals of the European Digital Single Market and globally the UN Sustainable Development Goals. Interoperability measures have supported policy evidence through capture of location-based statistics and widespread use of spatial analyses.
Implementing digital public services benefits from interoperability in relation to the different principles and levels of the European Interoperability Framework (EIF). Geospatial or location interoperability has been a major feature of both the ISA2 Programme and the predecessor ISA Programme. There was a strong basis for this with the adoption and implementation of INSPIRE over the last thirteen years. INSPIRE has driven forward the implementation of harmonised pan-European geospatial data for European environmental policy.
INSPIRE, as a European SDI, is defined as ‘metadata, spatial data sets and spatial data services, network services and technologies, agreements on sharing, access and use, and coordination and monitoring mechanisms, processes and procedures, established, operated or made available in accordance with the Directive[1]’. Both this definition and the INSPIRE principles are supply focused. INSPIRE has, of course, listened to users and responded with data validation, discovery and access improvements.
Complementing the INSPIRE programme, the EULF, ARE3NA and ELISE actions in ISA and ISA2 have developed location interoperability frameworks and solutions supporting cross-sector and cross-border digital public services and focusing on the use of harmonised authoritative location data based on INSPIRE and other sources of standardisation.
The guiding framework for these efforts has been this EULF Blueprint, a distillation of good practices in the field of location interoperability, which has been regularly updated to reflect ongoing developments in digital government transformation and in the ICT and geospatial industries supporting this transformation. The Blueprint complements the EIF as a domain-specific framework of goals, recommendations, supporting actions and reference materials, applying the principles of the EIF. The EULF Blueprint cross-references the relevant parts of the EIF. Similarly, the Blueprint is part of the EIF Toolbox and users reviewing EIF solutions can examine relevant geospatial materials related to their investigations.
This ‘location interoperability framework’ (LIF) spelt out in the Blueprint addresses five key focus areas identified by ISA2 stakeholders and the wider geospatial community: policy and strategy alignment, digital government integration, standardisation and reuse, return on investment and governance, partnerships and capabilities. Recommendations and associated guidance support the vision of innovative digital public services enabled by interoperable location information and location intelligence capabilities, with a more detailed set of goals (target vision) expressed for each of these five focus areas.
This European guidance framework complements resources available on the policy aspects and technical implementation of INSPIRE as well as providing a geospatial perspective in relation to broader data and digital policies. The geospatial community globally is highly active in promoting standards-based interoperability, through the work of UN-GGIM[2], OGC[3], ISO/TC 211, the World Geospatial Industry Council (WGIC), and the Geospatial World Forum (GWF). JRC also helped develop the survey framework for a global study on Geospatial Information and Privacy carried out by WGIC, based on the ELISE guidelines for public administrations on location privacy.
This new version of the Blueprint not only extends the links with the EIF it also introduces for the first time a comprehensive cross-reference to the UN-GGIM Integrated Geospatial Information Framework (IGIF). This means that public administrations in Europe, and globally, planning their geospatial activities can use the Blueprint as the route to both sets of guidance.
However, the EULF Blueprint is uniquely positioned as it addresses the use of location information in the context of policy and digital public services and the application of location interoperability good practice to support digital innovation needs of all public administrations. It focuses on user centricity both from the perspective of consumers of location information (e.g. policy analysts and developers of digital public service solutions) and providers of location information for policy and digital public service (e.g. mapping and cadastral agencies, operational public sector bodies, external companies and end-users of digital public services). In this context, an organisation may be a consumer of location information, a provider of location information or both.
The Blueprint goes beyond delivering a data framework, it is written in the context of policy and digital public services and their technology-driven transformation. With this in mind, topics addressed include collaborative business models for public service delivery, enabling modern data ecosystems, user-centric design of location-enabled digital public services, support to SMEs, use of authoritative core reference datasets, open data and licensing simplification, and location data interoperability and privacy measures.
The table below outlines the good practices for providers and users of location data in each focus area, which, together, constitute the ‘Blueprint for digital government transformation in Europe through a user-driven SDI’. Details are given on these good practices in the Blueprint.
| Focus area | Provider good practices | User good practices |
|---|---|---|
| Policy and strategy alignment |
Aligned digital, innovation, and location policies Interconnected approach to data policy and data governance, incorporating location data in wider data policy implementation, e.g. open data, PSI, GDPR European data policy alignment Structured approach to e-reporting |
Cross-sector policy alignment on use of location data Use location-based evidence to inform policy Protect personal data, incorporating ‘location privacy’ measures Standards based procurement of location data and services |
| Digital government integration |
Make data easily discoverable and accessible Publish open core location data and other open location data where possible Use simple standardised (machine readable) licensing schemes Build and adapt the SDI according to user needs and priorities (data ecosystems, key services, public and external organisations; analytical support capabilities) Integration within wider data frameworks, e.g. national, thematic, international |
Optimise use of location data in digital public services Use authoritative SDI datasets and common access mechanisms Collaborative agile development Feedback to providers on data quality Collaborative business models for location-enabled digital public services Reusable models for specific data ecosystems based on authoritative open location data (e.g. smart cities) Use of new technologies to deliver innovation, e.g. digital twins, digital platforms, AI, location intelligence Integrated location-based statistics |
| Standardisation and reuse |
Standardised framework for heterogeneous and agile use Simple cross-sector interoperability models – core datasets, basic multi-purpose models, persistent identifiers, integration with other public sector core data and different thematic / international standards (e.g. road transport, BIM) Simple modern data access, e.g. metadata, web access, APIs, micro services, event stream processing Include dynamic (e.g. IoT) and satellite data in the SDI with necessary localised processing and standard access mechanisms Include relevant external data in the SDI in a structured way (e.g. community-sourced, business data) Affordable data quality regime, balancing needs and based on agreed standards and service levels |
Use recognised architectural principles and standards in building digital public services Reuse data, standard access mechanisms (e.g. APIs) and other ICT assets (e.g. software components from sources such as GitHub) Feedback to providers of tools and services (e.g. APIs) to improve quality. |
| Return on investment |
Funding agreements for pan-government and open data access Efficiencies in location data collection and supply Integration with alternative sources of supply, e.g. private sector / citizens Providing access to location datasets and expertise for evaluation purposes |
Benchmarking and improvement ROI case studies Support location data innovation in relevant communities (e.g. smart cities, energy, health, construction) Promote innovation in and with the private sector using public sector location data |
| Governance, partnerships and capabilities |
Cross-sector governance of core data, including location data Inclusive transparent governance models, involving users Data supply and data ecosystem partnerships Geospatial competency framework Awareness raising and skills programmes |
Partnerships in acquisition and use of data in digital public services Share learning on digital government innovation |
The EULF Blueprint is available both as a document and this structured online methodology in Joinup. The document version is intended to be used as a reference rather than read in its entirety. Similarly, the online version enables users to find the appropriate parts of the framework for their needs and to link with relevant detailed guidance, training materials and external resources as required. Complementing the EULF Blueprint, related ELISE resources comprise:
- detailed guidance on specific topics in the Blueprint. This includes guidelines for public procurement of geospatial solutions, design of location-enabled digital public services, architectures and standards for SDIs and digital government, and guidelines for public administrations on location privacy;
- studies on topics such as Assessment of economic opportunities and barriers related to geospatial data in the context of the digital single market; Digital platforms for public services, and Digital government transformation; and
- training resources including a Geospatial Primer and webinars on topics such as the Role of SDIs for digital government transformation, Location intelligence to support sustainable development goals, and Governance models, ecosystems and benefits of APIs for public sector organisations.
Monitoring the adoption of good practices from the EULF Blueprint is being carried out through a Location Interoperability Framework Observatory (LIFO), which corresponds in concept to the type of monitoring carried out for the EIF using the National Interoperability Framework Observatory (NIFO). The LIFO survey is based on indicators for each of the recommendations in the EULF Blueprint. Analysis of results is produced in the form of Country Factsheets and an overall. There is also a set of LIFO Interactive Dashboards to query results online. This new version of the Blueprint cross-references relevant LIFO monitoring information, enabling readers to examine the state of play on the adoption of the Blueprint good practices in Europe.
Member States are also required to provide monitoring data for the implementation of INSPIRE, with much of the evidence now captured via the INSPIRE Geoportal. Whereas INSPIRE monitoring is mandatory and concentrates on reporting progress on obligations regarding provision of data, metadata and services to access the data, the complementary LIFO monitoring is voluntary and focuses on the use of harmonised authoritative location data in digital public services and wider measures across the different levels of the EIF. INSPIRE monitoring also provides secondary indicators for the LIFO.
New policy context
With the closure of the ISA2 programme in 2021, we are seeing through related developments an even greater recognition of the importance of the data economy for public administrations, businesses and citizens and the need for a harmonised pan-European approach. The Directive on Open Data and PSI (‘Open Data Directive’), which entered into force in July 2021, requires certain high value datasets of benefit to the economy and society to be made available free of charge, in machine readable formats and accessible through Application Programming Interfaces (APIs). These high value ‘open’ datasets include important location datasets such as addresses, geographical names, cadastral, agricultural, earth observation, transport and weather data. An Implementing Act on High Value Datasets (Q3/2021) defines specific rules supporting the commitments in the Open Data Directive.
The EU’s digital strategy ‘Europe Fit for the Digital Age’ (02/2020) contains key elements on digital and data transformation. Key targets were set for Europe’s Digital Decade to 2030 (03/2021) through a Digital Compass with four dimensions: skills, infrastructures, businesses and government. A monitoring system based on the Digital Economy and Society Index (DESI) will measure progress towards each of the 2030 targets. On cross-border interoperability, the EU Single Digital Gateway regulation (10/2018) applies from 12/2020, with further legal obligations on availability of information from municipal authorities (12/2022) and use of the ‘once-only’ system (12/2023).
Another key element of the EU’s digital strategy, the European data strategy (02/2020) envisages setting up a series of demand-driven common European data spaces supported by a federated cloud infrastructure in thematic policy areas such as health, mobility and environment, with a “High Impact Project” planned from 2021-27. To support this, the Data Governance Act (11/2020) aims to foster the availability of data by increasing trust in data intermediaries and by strengthening data-sharing mechanisms for data voluntarily made available by public administrations, businesses, individuals and researchers.
Implementation of the environmental ‘Green Deal’ data space, included a review of INSPIRE in 2021-22 and an initiative called Destination Earth to set up a digital twin of the earth. Links with industry are central to the strategy, including re-use of public sector data, integration of business data in the data spaces, re-use of data about individuals while maintaining rights to privacy, and co-funding of the cloud infrastructure. Core location datasets such as addresses, geographical names, administrative units and transport networks will have an important role to play in all thematic data spaces. Other core reference datasets such as businesses will also have a significant cross-cutting role. An integrated governance approach will be needed to address cross-cutting requirements. A staff working document on the state of play of the common European data spaces was published in February 2022.[RB1]
Other related developments in data legislation are the Digital Markets Act (12/2020), which regulates powers regarding user data held by online platforms, and the Data Act (Q4/2020), which aims to create a fair data economy by ensuring access to and use of data for legitimate purposes, including B2B and B2G situations.
Artificial Intelligence (AI) is a fast-evolving family of technologies that can support socially and environmentally beneficial outcomes and provide key competitive advantages to companies and the European economy. The European regulatory framework for trustworthy AI is laying down harmonised rules on artificial intelligence (Artificial Intelligence Act, 04/2021). Such action is especially needed in high-impact sectors, including climate change, environment, health, finance, mobility, home affairs and agriculture. Access to high quality data is an essential factor in building high performance, robust and trustworthy AI systems. In this respect, the High Value Datasets (including geospatial datasets) and the access provisions of the Open Data Directive are an important part of the jigsaw.
In July 2020, the Multiannual Financial Framework (MFF) for 2021-2027 was adopted to fund the Next Generation EU. As part of the new MFF, the Digital Europe Programme (DIGITAL) will focus on building the strategic digital capacities of the EU and on facilitating the wide deployment of digital technologies. With an overall budget of €8.2 billion, it will shape and support the digital transformation of Europe’s society and economy through investments in supercomputing, artificial intelligence, cybersecurity and digital skills. Interoperability and the EIF have set a strong base for digital transformation and are seen as having continued importance in Europe’s future digital strategy.
In the Berlin Declaration on Digital Society, signed in December 2020, Member States committed to building a reinforced and interoperable digital government transformation policy and to supporting digital transformation of public administrations. During 2020/21, an assessment was made on future interoperability policy and the evolution of the EIF. Interoperable Europe was established as an initiative that aims to foster coordination and adoption of common standards for public services and data flows to reinforce the EU’s interoperability strategy, as defined in the Communication “Shaping Europe’s digital future”. The initiative is supported by the DEP and builds on the previous efforts of the ISA² programme and the European Interoperability Framework (EIF). The final evaluation of these two programmes provided the input for shaping a future interoperability policy that enhances the interoperability of public services in the EU, by taking into account the needs of stakeholders as well as the role of emerging technologies. The Interoperable Europe policy package is currently under preparation. However, going forward, we can expect steps to make the EIF more actionable and to create streamlined governance around interoperability.
In parallel, progress has also been made to define and safeguard European Digital Rights and Principles, again in support of the Digital Decade 2030. With the aim to promote a digital transition shaped by European values, the Declaration on European Digital Rights and Principles published by the European Commission in January 2022 outlines a sustainable, human-centric vision for the digital transformation. This declaration is still under discussion with the European Parliament and Council for eventual adoption.
Finally, the COVID crisis over the last two and a half years has demonstrated the importance of interoperable healthcare and other public processes, as well as the value of location-based analysis for decision-making. It has also accelerated trends in remote working and services and use of public spaces.
The principles and guidance in the EULF Blueprint are very tightly aligned to the aims of the European data strategy and the Open Data Directive and will be of value as the Commission and Member States implement these two initiatives. The EULF Blueprint will also have continued relevance through its alliance with the EIF as the EU seeks to derive synergies and value from the European data strategy, the Open Data Directive and the Digital Europe Programme.
[1] Directive 2007/2/EC Article 3
[2] see UN-GGIM Integrated Geospatial Information Framework (IGIF) and The Global Statistical Geospatial Framework
[3] see OGC standards, best practices and white papers