e-government: the belgian vision and experience

E-government:the Belgian vision and experience

Frank RobbenGeneral manager Crossroads Bank for Social SecurityStrategic advisor Federal Public Service for ICTSint-Pieterssteenweg 375B-1040 BrusselsE-mail: [email protected]: http://www.law.kuleuven.ac.be/icri/frobben

Crossroads Bank for Social SecurityFederal Public Service for ICT (FEDICT)

mailto:[email protected]

http://www.law.kuleuven.ac.be/icri/frobben

2 24/03/2003Crossroads Bank for Social SecurityFederal Public Service for ICT (FEDICT)

What is E-government ?

E-government is a continuous optimization of service delivery and governance by transforming internal and external relationships through technology, internet and new media

external relationships- government <-> citizen

- government <-> business internal relationships

- government <-> government

- government <-> employees all relationships

- are bidirectional

- can be within a country or border-crossing


E-government: a structural reform process

ICT is only a means by which a result may be obtained

E-government requires- change of basic mindset: from government centric to

customer centric- re-engineering of processes and end-to-end integration of

these processes- considering information as a strategic resource for all

government activity


E-government: a structural reform process (ctd)

E-government requires (ctd)- co-operation between

• governmental institutions: one virtual electronic government, with respect for mission and core tasks of each governmental institution and government level

• co-operation between government and private sector

- adequate legal environment elaborated at the correct level- interoperability framework: ICT, security, unique identification

keys, harmonized concepts- implementation with a decentralized approach, but with co-

ordinated planning and program management (think global, act local)

- adequate measures to prevent a digital divide


Customer centric

unique declaration of every event during the life cycle/business episode of a customer and automatic granting of all related services

delivery of services that cannot be granted automatically to a customer- in an integrated way (information, interaction, transaction)- re-using all available information- in a personalized way (look & feel and interface, content,

personalized support)- or at least based on the way of thinking of the customer

group (life events, business episodes, life styles, target groups)


Customer centric (ctd)

declaration of events and service delivery via an access method chosen by the customer- application to application- file transfer- various end-user devices

• PC, GSM, PDA, digital TV, kiosks, …

- use of intermediaries- accessible to disabled

use of integrated customer relation management tools contact center


Re-engineering and integration of processes

need for re-engineering of processes- within each government institution- within each government level- across government levels and between government- between government and his customers

need for end-to-end integration of processes: concept of value chains for the customers- lack of integration leads to

• overloading of the citizens/companies– multiple collection of the same information by several governmental

institutions– no re-use of available information– avoidable contacts with citizens/companies due to multiple, unco-ordinated

quality checks• waste of efficiency and time• suboptimal support of the policy made by government• higher possibilities of fraud


Information as a strategic resource

respect of basic principles concerning- information modelling- unique collection and re-use of information- management of information- electronic exchange of information- protection of information


Information as strategic resource

information modelling- information is being modelled in such a way that the model

fits in as close as possible with the real world• definition of information elements• definition of attributes of information elements• definition of relations between information elements

- information modelling takes into account as much as possible the expectable use cases of the information

- the information model can be flexibly extended or adapted when the real world or the use cases of the information change


Information as strategic resource (ctd)

unique collection and re-use of information- information is only collected for well-defined purposes and in

a proportional way to these purposes- all information is collected once, as close to the authentic

source as possible- information is collected via a supplier-chosen channel, but

preferably in an electronic way, using uniform basic services (single sign on, arrival receipt of a file, notification for each message, …)

- information is collected according to the information model and on the base of uniform administrative instructions



unique collection and re-use of information (ctd)- with the possibility of quality control by the supplier before the

transmission of the information- the collected information is validated once according to an

established task sharing, by the most entitled institution or by the institution which has the greatest interest in a correct validation

- and then shared and re-used by authorized users



management of information- information in all forms (e.g. voice, print, electronic or image)

is managed efficiently through its life cycle- a functional task sharing is established indicating which

institution stores which information in an authentic way, manages the information and keeps it at the disposal of the authorized users

- information is stored according to the information model- information can be flexibly assembled according to ever

changing legal notions- all information is subject to the application of agreed

measures to ensure integrity and consistency



management of information (ctd)- every institution has to report probable improprieties of

information to the institution that is designated to validate the information

- every institution that has to validate information according to the agreed task sharing, has to examine the reported probable improprieties, to correct them when necessary and to communicate the correct information to every known interested institution

- information will be retained and managed as long as there exists a business need, a legislative or policy requirement, or, preferably anonimized or encoded, when it has historical or archival importance


electronic exchange of information- once collected and validated, information is stored, managed

and exchanged electronically to avoid transcribing and re-entering it manually

- electronic information exchange can be initiated by• the institution that disposes of information• the institution that needs information• the institution that manages the interoperability framework

- electronic information exchanges take place on the base of a functional and technical interoperabilty framework that evolves permanently but gradually according to open market standards, and is independent from the methods of information exchange




electronic exchange of information (ctd)- available information is used for the automatic granting of

benefits, for prefilling when collecting information and for information delivery to the concerned persons



protection of information- security, integrity and confidentiality of government

information will be ensured by integrating ICT measures with structural, organizational, physical, personnel screening and other security measures according to agreed policies

- personal information is only used for purposes compatible with the purposes of the collection of the information

- personal information is only accessible to authorized institutions and users according to business needs, legislative or policy requirement

- the access authorisation to personal information is granted by an independent institution, after having checked whether the access conditions are met

- the access authorizations are public



protection of information (ctd)- every concrete electronic exchange of personal information

is preventively checked on compliance with the existing access authorisations by an independent institution managing the interoperability framework

- every concrete electronic exchange of personal information is logged, to be able to trace possible abuse afterwards

- every time information is used to take a decision, the used information is communicated to the concerned person together with the decision

- every person has right to access and correct his own personal data


Changes of the legal environment

organization of integrated information management and electronic service delivery- functional task sharing on information management- obligation to respect unique data collection from the customer- obligation to exchange information in an electronic way- permission or obligation to use unique identification keys

harmonization of basic concepts ICT-law: only basic principles, technology-neutral, but

not technology unaware- data protection- public access to information- electronic signature- probative value


Interoperability framework

goal: to guarantee the ability of government organizations and customers to share information and integrate information and business processes by use of- interoperable ICT: technical and functional- common security framework- common identification keys/sets for every entity- harmonized concepts and data modelling


Preventing digital divide

no creation of information haves and information have-nots

possible measures- promoting automatic granting of services- electronic services are (for the time being) considered as

extra services, tradional services remain- access to electronic services in public places- role of intermediaries and front office organisations- education and life-long learning- promoting usability of portals and websites


Implementation in Belgian federal government

thorough reform of the federal government E-government

- co-operation agreement between government levels- network of service integrators- towards integrated portal environments- unique identification keys for citizens and companies- electronic identity card- security framework


4 pillars of the reform project

New OrganisationalStructure

New ManagementCulture

New Vision on HRM

NewWays ofWorking

Better employer

&Better service



new organisational structure- new federal organization chart: 10 vertical and 4 horizontal

Federal Public Services (FPS) (a.o. ICT)- new structure within each FPS- new way of collaboration between the administration and the

political level new management culture

- mandate system for managers• more autonomy in managing own means• evaluation based on the degree of realisation of the objectives

- focus shifts to control during and after instead of before- new evaluation system: management is responsible for the

development of its employees and for open communication



new vision on HRM- new organization

• horizontal FPS P&O with local units in each FPS• collaboration in a virtual matrix

- new HR policy• recruitment and selection• new career• learning organization

new way of working- business process re-engineering projects in every FPS- creation of change agents- creation of external communication tools


Co-operation agreement

co-ordinated, customer oriented service delivery guarantee that a citizen/company can use the same tools

- terminal- software- electronic signature

guarantee of a unique data collection from the citizen/company with respect for the partition of competences between

government levels agreements on common standards mutual tuning of portals, middleware, websites and back offices use of common identification keys and electronic signature mutual tuning of business processes when necessary gradual mutual task-sharing on data storage in authentic form common policy on SLA’s and security


Network of service integrators

InternetInternet

Extranetregion or

community

Extranetregion or

community

Extranetsocial

security

Extranetsocial

security

Servicesrepository

SSI

SSI

SSI

FPS

FPS

Servicesrepository

FedMAN

FPS

R/CPS

R/CPS

Servicesrepository

PublilinkPublilink

Municipality Province

Municipality

Servicesrepository

Serviceintegrator(BCSS)

Serviceintegrator(FEDICT)

Serviceintegrator


Network of service integrators (ctd)

functions of service integrators (FEDICT, CBSS, …)- secure messaging

- business logic and work flow support

- directory of authorized users and applications• list of users and applications

• definition of authentication means and rules

• definition of authorization profiles

– which service is accessible to which type of user/application for which persons/companies in which capacities in which situation and for which periods

- directory of data subjects• which persons/companies in which capacities have personal files in which

institutions for which periods

- subscription table• which users/applications want to receive automatically which services in which

situations for which persons in which capacities


Portal sites: actual situation

customers•citizens•companies

suppliers

partners

employeesintermediaries

PORTAL A•single sign on•personalization•user groups•multi-channel•aggregation

back-endsystems, e.g.•ERP•groupware•DB’s•applications

businessintelligence

contentmanagement

directory

PORTAL B•single sign on•personalization•user groups•multi-channel•aggregation


contentmanagement


directory


Portal sites (ctd)

need to strike the right balance between roles in delivering e-government services: not a single, but many one-stop shops (public and private)

Government ASP’s

Leading portals

Local service providers

Banks

Associations

…

Government own portals

Government-hosted community sites

Content and Services

Public Private

Private

Public

Channel PPP

Source: Andrea Di Maio - Gartner


Portal sites (ctd)

public institutions need to concentrate on core activities, such as- information

• modular• up to date• information blocks concerning public services• with standardized metadata• based on standardized thesauri• in generally accessible content management systems• with separation between content and metadata (reuse, don’t rewrite)• that can be submitted to automatical re-indexation

- transactions• applications that can be easily integrated in private or public portal sites


Portal sites (ctd)

public portals should have added value- integration of services

• information• work flow based on life events of the customers• integration with work flow of customers

- coordinated basic services for customers• single sign on• ticketing• logging• notification service• …

- multi channel enabling- citizen/company relation management- contact center


Portal sites: to be situation

customers•citizens•companies

suppliers

partners

employeesintermediaries

PORTAL B•single sign on•personalization•user groups•multi-channel•aggregation


contentmanagement


PORTAL A•single sign on•personalization•user groups•multi-channel•aggregation



contentmanagement

directory directory


Unique identification keys

citizens- generalization of the use of the social security number

(national register number or CBSS-number)- (electronically) readable from the electronic identity card- controlled access to basic identification data in National

Register and CBSS

companies- unique company number (based on VAT-number)- unique number for every plant of business- generalized access to basic identification data in Company

Register

regulation on data interconnection


Unique identification keys (ctd)

characterictics- unicity

• one entity – one identification key• same identification key is not assigned to several entities

- exhaustivity• every entity to be identified has an identification key

- stability through time• identification key doesn’t contain variable characterics of the identified

entity• identification key doesn’t contain references to the identification key or

characteristics of other entities• identification key doesn’t change when a quality or characteristic of the

identified entity changes


Electronic identity card

retained functions- visual and electronic identification of the holder- electronic authentication of the holder via the technique of

the digital signature- generation of electronic signature via the technique of the

digital signature (non repudiation)- proof of characteristics of the holder via the technique of the

digital signature on the initiative of the holder- only identification data storage- no electronic purse- no biometry


Organization model

government chooses card producer and certification authority issuing the identity certificates as a result of a public call for tenders

the municipality calls the holder for the issuing of the electronic identity card

the municipality acts as registration authority for 2 certificates: authentication and electronic signature

2 key pairs are generated within the card at production time and the private keys are stored within the chip of the card


Organization model (ctd)

the 2 certificates are created by the certification authority, but published only when the holder agrees

the use of the private keys within the chip needs an activation of the card by a municipal official using his PUK2 and the PUK1 sent to the holder

first authentication within one session (first private key) and every generation of an electronic signature (second private key) requires the PIN code of the holder

the second private keys and the identity certificate on the electronic identity card can be used to generate an electronic signature within the scope of E-government applications which require such a signature



the electronic identity card contains the necessary space to store other private keys associated to attribute certificates that holder can obtain at the certification authority of his choice



CM/CP/CI

VRKVRK

BullBull

CA

CA

ERA

Matti

Meikäläinen

PIN &

PUK

1-code

1

102

3

6

7

9

5

4

8


Security framework

issues- confidentiality- integrity- availability- authentication- autorisation- non-repudiation- audit

measures- institutional measures- organizational and technical measures based on (extended)

ISO 17799- legal measures


Security framework: institutional measures

no central data storage independent Control Committee, assigned by Parliament

- supervision of information security- authorizing the data exchange- complaint handling- information security recommendations- extensive investigating powers- annual activity report

preventive control on legitimacy of data exchange by service integrator according to authorizations of the independent Control Committee

information security department in each government institution specialized information security service providers working party on information security


Security framework: extended ISO 17799

security policy security organization asset classification and control personnel security physical and environmental security computer and operations management access control system development and maintenance specific measures with regard to the processing of personal data business continuity planning compliance communication towards the public opinion concerning the

security policy and the measures with regard to security and privacy protection


Security framework: legal measures

obligations of the controller- principles relating to data quality- criteria for making data processing legitimate- specific rules for processing of sensitive data- information to be given to the data subject- confidentiality and security of processing- notification of the processing of personal data

rights of the data subject- right of information- right of access- right of rectification, erasure or blocking- right of a judicial remedy

penalties


A case study: Belgian social security sector

principles have been implemented under co-ordination of the Crossroads Bank for Social Security, in co-operation with 2.000 public and private social security institutions

functional and technical interoperability framework is functioning- between these institutions- between these institutions and all employers

every socially insured person has a unique identification key throughout the whole social security sector and an electronically readable social identity card containing this identification key


Interoperability within social security

CrossroadsBank for

Social Security

FEDICT &Rijksregister

rva

riziv

cimire

rvpdosz

rjv

fbz

fao

adp

rkw

hvz

rsvz

rszpporszfod

sz

intermutual.netwerk

fodw,a & so

fondsen

bestaansz

ek.

interUInetwerk


Reference directory

serves as a base for organization of information flows structure

- directory of persons: what persons in what capacities have personal files in what social security institutions for what periods

- data availability table: what data are available in what social security institutions for what types of files

- access authorization table: what data may be transmitted to what institutions for what types of files

functions- routing of information- preventive access control- automatic communication of changes to information


Information servers

information servers- directory of persons of the Crossroads Bank- National Register- Crossroads Bank Registers- work force register- wages and working time database (LATG) of the ONSS- employers directory (WGR) of the ONSS- database of contribution certificates- SIS-card and professional card registers

services offered- interactive consultation- batch consultation- automatic communication of updates


National Register - CBSS Registers - past situation

National Register

Municipalities


National Register - CBSS Registers –present situation

National Register

Municipalities


Preprocessed messages

preprocessed messages- beginning/end of labour contract, beginning/end of self-employed activity- contribution certificates medical care (employees, self-employed, beneficiaries

of social security allowances)- unemployment benefits – career break- allowances for incapacity for work (health care, accidents at work, occupational

disease)- young unemployed- allowances to the handicapped- guaranteed income – social support- people suffering from long-term illness- social exemption- fiscal exemption- derived rights (e.g. tax reduction/exemption, free public transport, ...)- special contribution for social security- solidarity contribution on old age pensions- migrant workers- …


Preprocessed messages

services offered:- batch consultation- automatic communication of messages


ONSS INAMI

Employer

Employees

Sickness funds

Control

Contribution certificate health care sector –past situation


INAMI

Control

KSZ-BCSS

ONSS

Employer

Employees

Sickness funds

Contribution certificate health care sector - present situation


Derived rights in tax affairs

a number of people are entitled to an increased refund of the costs for medical care

moreover, a number of municipalities and provinces grant these persons reductions or even exemptions of the taxes


Sickness fund

Derived rights in tax affairs - past situation


CBSS

sickness fundsnetwork

Derived rights in tax affairs - present situation


242.476.481of exchanged

messages in 2002

1 10 100 1000 10000 100000 1000000 10000000 100000000

Database on wages and working time 63.566.469 Database on wages and working time 63.566.469National Register / Crossroads Bank Register 59.242.296National Register / Crossroads Bank Register 59.242.296

Number of exchanged messages

DIMONA (immediate declaration of employment) 45.947.874DIMONA (immediate declaration of employment) 45.947.874Contribution certificates 13.655.104Contribution certificates 13.655.104Fiscal exemption 10.949.492 Fiscal exemption 10.949.492 Increase Reference Directory 8.183.178Increase Reference Directory 8.183.178Special contribution 7.091.010Special contribution 7.091.010Unemployed persons / persons in career break 6.059.158Unemployed persons / persons in career break 6.059.158Tax reduction / exemption 5.532.952Tax reduction / exemption 5.532.952OASIS 5.441.466OASIS 5.441.466Social exemption 3.875.656Social exemption 3.875.656Nominal control cards 3.396.698 Nominal control cards 3.396.698 Incapacity for work 2.623.667Incapacity for work 2.623.667Deductions on pensions 2.260.265Deductions on pensions 2.260.265Preventive breast screening 1.170.195Preventive breast screening 1.170.195Consultation directory of persons 1.063.683Consultation directory of persons 1.063.683SIS / SAM cards 880.357SIS / SAM cards 880.357Young unemployed 355.312Young unemployed 355.312Automatical pension application 262.172Automatical pension application 262.172Long-term illness 215.624Long-term illness 215.624Flemish care insurance 174.918Flemish care insurance 174.918Self-employed 164.267Self-employed 164.267Public transport pass 113.494Public transport pass 113.494Guaranteed income 77.049Guaranteed income 77.049Migrant workers 55.739Migrant workers 55.739VMM 45.072VMM 45.072Handicapped 37.314Handicapped 37.314Certificates Dioxin 5.048Certificates Dioxin 5.048


Some figures

14,9 million different persons known in person directory

on an average, every person is known in 5,61 sectors response time on-line messages:

question CBSS question

answer answer94,1 % in < 1 sec99,6 % in < 2 sec

99,3 % in < 4 sec


Social security card

functions- reliable, electronically readable identification card in the

hands of each social insured person, that contains the unique social security identification number

- electronic support owned by every social insured person, containing information on his social security status needed by bodies not connected to the social security network

• first application: proof of health care insurability status to health care professionals applying the third payer rule

protected memory chip card having a capacity of 8 kbits, respecting ISO 7816.1-7816.5

delivered to every insured person (10.000.000 cards)


1234567890

Social security card

nameChristian namedate of birthsexsocial security numberperiod of validity of the cardcard number

sickness fundsickness fund registration numberinsurance periodinsurance statussocial exemption status

other data to be added in the future, if useful

key 1

key 2


Social security card - example 1

Social identity card

Decryption card

CBSS

in chemistries

and hospitals

Sickness fund 3

Sickness fund 1

Sickness fund 2CIN


Social security card - example 2

ONSS

EMPLOYER

CBSS


Interoperability outside social security

Backbone

Internet

FW

R

R

FW

FedMAN

R

R

R

R

FW

R

R

FW

Access servers

Internetservices

RR

FW

R

R

R

FW

R

R

FW

Crossroads bank for social

security

FW

R

R

Other extranets

Publilink


Social security portal


Integrated service delivery

common basic services (e.g. single sign on, notification

information several categories of transactions

- transactions at the beginning or the end of employment (DIMONA)

- quarterly declaration of wages and working time- transactions when a social risk occurs- transactions in order to manage information about yourself- transactions in order to control the quality of the service

delivery process- ...


Integrated service delivery (ctd)

harmonized concepts harmonized data model and XML-schemes self-service and personalization customer relation management contact center


Work forceregister

Data-base

Specialwork force

register

Indivudualdocument

Studentscontract

Inspection

Employmentcontract

SimplificationSimplification

OnOn linelineconsultaticonsultationon

ONSS

Work forceregister

Transactions at beginning/end of employment


Immediate declaration of employment

can only be done electronically via- social security portal- FTP/MQSeries- interbanking network- vocal server

24/7 offers the employer a key to on-line consultation and

correction- of the database on employment- by using a electronic certificate, of the database concerning

wages and working time and other derived databases- concerning his employees and the period of employment


Quarterly declaration wages & working time

ONSS

ONP

ONVA

Employer

old age pension

holiday payCBSS

ONEM

INAMI

ONAFTS

FAT

FMP

SimplificationSimplificationActiviteit 3

Activiteit 2Activiteit 1

one electronicdeclaration


Quarterly declaration wages & working time

can only be done electronically via- social security portal- FTP/MQSeries- interbanking network

24/7 can, by using an electronic certificate

- be consulted and corrected on-line by the employer- concerning his employees and the period of employment


Electronical declaration of social risks

past situation: multiple collection of information by using various, complex, not co-ordinated paper forms


Electronical declaration of social risks

actual situation- limitation of the collected information to the information not

yet available at other public services (abolition or at least significant simplification of forms)

- unique collection of information from the employer- in a standardized way across all social security institutions- can be done on paper or electronically (24/7) via

• social security portal• FTP/MQSeries• interbanking network

- uniform instructions


Time frame

operational- DIMONA and on-line consultation of work force register- declaration of temporary employment of foreign employees in

Belgium- electronical declaration of temporary unemployment- electronical declaration of building yards- on-line consultation of overdue payments of social security

contributions by an employer- electronical declaration of beginning of part-time job- electronical declaration of accident at work- documentation, instructions, test cases and XML-schemes

concerning transactions that will be available during the next 2 years


Time frame

april 2003- multifunctional declaration of wages and working time data

end 2003- electronical application for temporary removal from work of a

pregnant employee

- electronical declaration of resumption of work after an accident at work

- electronical application for allowances in case of incapacity of work

- electronical declaration of resumption of work after a period of incapacity of work

end 2004- electronical application for unemployment benefits

- electronical application in case of pre-pension scheme (early retirement)


Critical success factors

E-government as a structural reform process- process re-engineering and integration

- back-office integration for automatic granting of services

- integrated and personalized front-office service delivery support of and access to policymakers at the highest level co-operation between all actors concerned based on repartition

of tasks rather than centralization of tasks quick wins combined with long term vision focus on more efficient and effective service delivery rather than

on the fight against fraud respect for legal repartition of competences between actors legal framework creation of an institution that stimulates and co-ordinates


Most important barriers

privacy and security average public sector project is more complex than

average private sector project, due to- interaction with a larger number of stakeholders (elected

officials, public employees, members of interest groups, voters, tax payers, recipients of public services, other governmental institutions, other government levels, …)

- execution in a less stable environment

complexity of BPR in a government environment race for quick wins (cf surveymania) doesn’t stimulate

development of well conceived systems based on re-engineering



public sector tends, perhaps for reason of prestige, to favour tailor-made, high-risk, state-of-the-art solutions even when alternative, off-the-shelf, cheap, tried and tested systems are available

in the public sector, there is typically no financial margin of value to be added by innovation

intermediaries often perceive e-government as a threat

skills and knowledge



need for radical cultural change within government, e.g.- from hierarchy to participation and team work- meeting the needs of the customer, not the government- empowering rather than serving- rewarding entrepreneurship within government- ex post evaluation on output, not ex ante control of every

input


More info

Crossroads Bank for Social Securitywww.ksz.fgov.be

FEDICTwww.fedict.be

portal sites- federal portal: www.belgium.be- social security portal: www.socialsecurity.be

http://www.ksz.fgov.be/

http://www.ksz.fgov.be/

http://www.fedict.be/

http://www.fedict.be/

http://www.belgium.be/




http://www.socialsecurity.be/




Th@nk you !

Crossroads Bank for Social SecurityFederal Public Service for ICT (FEDICT)

e-government: the belgian vision and experience

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