GOVERNANCE GOVERNANCE EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT GovTech in Fragile and Conflict Situations Trends, Challenges, and 0pportunities Supported by the GovTech Global Partnership - www.worldbank.org/govtech EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 1 © 2023 International Bank for Reconstruction and Development / The World Bank 1818 H Street NW Washington DC 20433 Telephone: 202-473-1000 Internet: www.worldbank.org This work is a product of the staff of The World Bank with external contributions. The findings, interpretations, and conclusions expressed in this work do not necessarily reflect the views of The World Bank, its Board of Executive Directors, or the governments they represent. The World Bank does not guarantee the accuracy, completeness, or currency of the data included in this work and does not assume responsibility for any errors, omissions, or discrepancies in the information, or liability with respect to the use of or failure to use the information, methods, processes, or conclusions set forth. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the part of The World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. Nothing herein shall constitute or be construed or considered to be a limitation upon or waiver of the privileges and immunities of The World Bank, all of which are specifically reserved. Rights and Permissions The material in this work is subject to copyright. Because The World Bank encourages dissemination of its knowledge, this work may be reproduced, in whole or in part, for noncommercial purposes as long as full attribution to this work is given. Any queries on rights and licenses, including subsidiary rights, should be addressed to World Bank Publications, The World Bank Group, 1818 H Street NW, Washington, DC 20433, USA; fax: 202-522-2625; e-mail: pubrights@worldbank.org. >>> Contents Acknowledgements v Acronyms and Abbreviations vi Executive Summary 1 1. Introduction 3 1.1. Methodology 3 1.2 Setting the Stage: Defining GovTech and Fragility 5 1.3 Why GovTech in Fragile States? 6 2. Overview of FCS’ Level of GovTech Maturity and of Typical Challenges and Opportunities for GovTech Reforms 9 2.1 The State of GovTech in FCS: Mining the GTMI Data 9 2.2 GovTech in FCS Faces Cross-Cutting Challenges but Can Also Build on Specific Opportunities 15 3. Supporting the Four Pillars of GovTech in FCS: Trends and Examples 19 3.1 GovTech Enablers: Policy, Legal and Regulatory Frameworks, and Skills 19 3.2 Core Government Systems to Manage Public Administration 23 3.3 Public Service Delivery and E-Services 28 3.4 Citizen Engagement and CivicTech 31 4. Conclusions 36 Notes 42 References 47 Annex 1: List of Fragile and Conflict-Affected Situations FY23 51 Annex 2: TTLs/Task Teams Interview Questions 54 Annex 3: TTLs/Task Teams Interviewed 56 Annex 4: 2022 GTMI Key Indicators 58 Annex 5: GTMI Data Analysis in FCS 61 Annex 6: Brief on GTMI and Methodology 66 Annex 7: List of Income Levels for FCS and Non-FCS (Excluding High Income Economies) 69 Figures Figure 1. Evolution of Government Digital Transformation 5 Figure 2A. Minimum, Mean, and Maximum GTMI Scores Globally vs. FCS 10 Figure 2B. GTMI Components* in FCS-1, FCS-2 and Non-FCS Economies 10 Figure 3. Average GTMI Scores among FCS and Non-FCS Economies, in Low-Income, Lower-Middle Income, and 11 Middle-Income Groups Figure 4: Plot of GovTech Maturity against WGI - Regulatory Quality 14 Figure 5. Plot of GovTech Maturity against WGI - Political Stability No Violence 14 Figure 6. GTMI and Mobile Cellular Subscriptions, 2021 17 Figure 7. GTEI Indicator Responses for FCS (GTMI 2022 Update) 20 Figure 8. CGSI Indicator Responses for FCS 2022 25 Figure 9. PSDI Indicator Responses, FCS, 2022 28 Figure 10. DCEI Indicator Responses, FCS Economies, 2022 32 Figure 11. Citizen Engagement in a Fragile Environment 33 Tables Table 1. Overview of GTMI Groups among FCS 13 Table 2. Sample of Data Classification Levels and Potential Impact on Confidentiality, Integrity and Availability 27 Table 3. Some Approaches for Overcoming Common Challenges 38 in FCV Table 4. Leveraging Technology for Smarter, Real Time Fiduciary Oversight of Reconstruction and Recovery Operations in FCV Contexts 41 Boxes Box 1. The World Bank Group Is Contributing to GovTech in FCS through Sizable Investments 4 Box 2. Using Mobile Technology in Somalia to Improve Public Health Services 18 Box 3. Digital Readiness and Skills in the Civil Service in Kosovo 22 Box 4. Green Impact of Digital Public Financial Management in Bangladesh 26 Box 5. Expanding an Existing GovTech Mobile Services App to Swiftly Reach the IDP Population 29 Box 6. How Can GovTech Help Bridge the Service and Information 30 Gender Gap in FCS? Box 7. Managing Emerging Risks in GovTech 31 Box 8. The Dark Side of the Internet and the Rise of Digital Authoritarianism 34 Box 9. Geo-Enabling initiative for Monitoring and Supervision 35 >>> Acknowledgements This note has been developed under the World Bank GovTech Global Partnership by a team led by Kimberly Johns and Helene Grandvoinnet. The note was co-authored by Asami Okahashi, Freida Siregar, with contributions by: Cem Dener, Samuel Garoni, Till Hartmann, Hunt La Cascia, Sruti Bandyopadhyay, Bernhard Metz, and Jae Kyun Kim. Overall guidance for the report was provided by Arturo Herrera Gutierrez (Global Director for Governance, World Bank), Roby Senderowitsch (Practice Manager, Governance Global Practice, World Bank) and Tracey Lane (Practice Manager, Governance Global Practice, World Bank) The team is grateful for additional guidance from peer reviewers: Sabah Rashid, Juan Navas-Sabater Spyros Demetriou, Luiza Nora, Daria Lavrentieva, and Simon Carl O’Meally. Additional support was provided by Zubair Bhatti, Khuram Farooq, Henry Forero, Tiago Peixoto, Reinhard R. Haslinger (Senior Operations Officer), and Katherine Elizabeth Wolff Siess (Program Assistant). Richard Crabbe provided editorial services. This report was made possible by the World Bank’s GovTech Initiative and the GovTech Global Partnership trust fund. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< v >>> Acronyms and Abbreviations AI Artificial Intelligence CBA Cost Benefit Analysis CGSI Core Government Systems Index DCEI Digital Citizen Engagement Index DE4A Digital Economy for Africa DMS Debt Management System FCS Fragile and Conflict-Affected Situations FCV Fragility, Conflict, and Violence FMIS Financial Management Information Systems GEMS Geo-Enabling initiative for Monitoring and Supervision GSMA Groupe Special Mobile Association GTEI GovTech Enablers Index GTMI GovTech Maturity Index HRMIS Human Resources Management Information System IaaS Infrastructure as a Service IDA International Development Association IMF International Monetary Fund MDA Ministries, Departments and Agencies MIS Management Information System MSME Micro small and medium enterprises PaaS Platforms as a Service PFM Public Financial Management PII Personally Identifiable Information PSDI Public Service Delivery Index SaaS Software as a Service TTL Task Team Leader UNDP United Nations Development Programme WDR World Development Report WoG Whole of Government EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< vi >>> Executive Summary This report presents insights on implementing GovTech in fragile and conflict situations (FCS). It surveys existing applications of GovTech in such contexts and explores the rationale, the challenges and opportunities in their implementation. Despite what could have been expected, GovTech does take place in FCS. Neither low institutional capacity nor open violence prevent governments from supporting GovTech- even if on average, as shown by the analysis of the GovTech maturity index scores, FCS rank lower than non-FCS. Many FCS countries use GovTech for core government systems, service delivery or citizen engagement. They can also benefit from GovTech features that address specific constraints in a fragile environment (limited physical access for instance). Understanding context is crucial to operating in FCS and introducing GovTech solutions. There is no one size fits all for applications of GovTech in FCS. For this reason, this report is neither a guide nor how-to note. The report identifies several takeaways and recommendations: The landscape of GovTech reforms in FCS is marked by several major obstacles, as well as promising opportunities. Cross-cutting challenges to GovTech reforms in FCS include the political economy of elite capture, conflicting interests, and misaligned government policies hindering GovTech reforms that enhance transparency and inclusive growth. Information Technology (IT) procurement projects, attractive for elite capture, raise corruption concerns. Limited institutional capabilities of FCS governments can stall policies and reforms. Inefficient donor coordination could lead to redundant efforts or program incompatibility. Infrastructure shortcomings and low connectivity threaten the reliability and reach of GovTech solutions due to limited electricity, connectivity, or device accessibility. Low digital literacy among public administrators and citizens, funding gaps, and increased engagement costs present further hurdles. Meanwhile, a limited market pool in FCS raises system setup and maintenance costs. Lastly, affordability issues among citizens limit their access to GovTech solutions. Amidst the challenges, there is also tremendous opportunity for GovTech in FCS: the absence of a legacy system means that practitioners can take advantage of tested technology and leapfrog. FCS countries which have a large youth population can leverage this for greater tech adoption, innovation, and digital entrepreneurship. The prevalence of mobile technologies and mobile devices can be leveraged to increase the reach of government programs and, along with new tools like digital payments, present alternatives for delivering service, information, and aid. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 1 Practitioners must tailor interventions to the local content, and complexity of procuring IT equipment political economy, capacity, and incentives, and and services. recognize the need for adaptability in rapidly changing environments. Incremental reforms (as opposed to a • On supporting service delivery: Low connectivity, whole-of-government approach) can produce results and weak digital skills, and social tensions or discriminations facilitate greater improvements, saving time, resources, and can leave some groups behind in FCS. One way to demonstrating effectiveness. Leadership and coordination are circumvent this is to assess access to GovTech solutions crucial to align support with the overall strategy and ensure and employ multiple channels to address gaps. This could system interoperability, while partnerships and peer-to-peer include mobile-based services that do not rely on internet learning can enhance the impact of GovTech interventions connectivity, using SMS or call centers, and providing and reduce risks. Sustaining momentum and celebrating clear online information as a foundation before digitalizing incremental progress is more effective than pursuing radical transactional services. Governments should carefully changes quickly. select services for digitalization based on usage, demand, convenience gains. These strategic choices mean these The paper uses the four pillars of the GTMI index to countries will build on existing solutions, making GovTech analyze FCS experience in GovTech. development more affordable and targeted. • On the GovTech enablers: It is encouraging that GovTech • On enabling citizen engagement: the challenges of strategies and GovTech-dedicated agencies are present supporting citizen engagement in fragile and conflict- in half of FCS countries, however it is important that these affected environments are significant. In FCS, the social structures can effectively advance digital transformation. contract is often in flux or weak, expectations may differ Exercising leadership, financial and human resources, across social groups, and citizen engagement can be and political clout are crucial for this. For this reason, particularly sensitive or controversial. There are however GovTech practitioners must engage in building tech interesting examples of using GovTech to collect feedback savviness from within the government as well as among proactively from citizens. There are also specific risks to the larger public—through upskilling, sourcing externally, using technology to engage citizens, as seen with the rise and improving public outreach. Importantly, legal and of ‘digital authoritarianism’. regulatory frameworks are necessary to protect data and ensure information rights. Some GovTech features are particularly relevant to countries with high level of open violence/conflict. Utilizing • On Core Government Systems: in early digital drone technology and leveraging virtual means can enable government initiatives, core government systems for progress where direct engagement opportunities are limited. public financial management, human resources, taxes, Investing in cloud solutions can ensure the securitization of and investments were prioritized. These systems are data against possible destruction of physical data centers. often the first area for digital transformation. Prioritizing Adopting hybrid clouds, and combining government-owned value for money can help deter the adoption of oversized and public cloud infrastructure, reduces costs, enhances digital solutions sometimes selected for the wrong reliability, uptime, and addresses data sovereignty and reasons. Having the technical expertise and support for localization policies. procurement is crucial considering the size, technical EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 2 1. >>> Introduction This report takes stock of the development of GovTech solutions in Fragile and Conflict- Affected Situations (FCS), be they characterized by low institutional capacity and/or by active conflict and provides insights on challenges and opportunities for implementing GovTech reforms in such contexts. It is aimed at practitioners and policy makers working in FCS but will also be useful for practitioners working in Fragility, Conflict, and Violence (FCV) contexts, at-risk countries, or low-income countries as some similar challenges and opportunities can be present. Chapter 1 describes the methodology and provides basic definitions of FCV and GovTech as well as the rationale for the report. Chapter 2 provides an overview of GovTech in FCS, based on the analysis of GovTech Maturity Index (GTMI) data, and common challenges to GovTech in FCS. Chapter 3 analyzes the state of GovTech reforms per pillar in FCS and illustrates these with selected examples. Chapter 4 concludes with some recommendations for designing and implementing GovTech projects in these contexts based on the analysis. 1.1 Methodology This report is informed by multiple sources, and uses GTMI data analysis, findings from semi-structured interviews of practitioners, and desk research. The primary data source is the 2022 World Bank GTMI. The index measures the key aspects of four GovTech focus areas in 198 economies—supporting core government systems, enhancing service delivery, mainstreaming citizen engagement, and fostering enablers. It is based on responses from key informants—see Annex 6 for more details. Supplemental data includes the GovTech Dataset, Worldwide Governance Indicators (WGI), Groupe Special Mobile Association (GSMA), International Telecommunication Union, and United Nations Telecommunication Infrastructure Index. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 3 Qualitative data was gathered through semi-structured FCV 2020-25, Project Appraisal Documents, Implementation interviews of 32 World Bank Task Team Leaders and Status and Results Reports, Implementation Completion team members who have direct experience implementing Reports, Digital Economy Country Assessments, Digital GovTech projects in FCS. The interviews were designed Economy for Africa (DE4A) Assessments, relevant economic to elicit detailed information on their experiences working to updates, and strategic policy documents. design and implement GovTech projects and activities in FCS. Questions focused on primary country challenges and purpose Country examples were selected from the GovTech of the technology in addressing these challenges, what FCS Projects Database and TTL interviews. The database at different conflict phases and levels of development should provides details of more than 1,440 investment projects prioritize, and how the World Bank and other development funded by the World Bank in 147 countries since 1995 that agencies can overcome country level constraints and include digital components and activities. The dataset was effectively implement projects. used to scan for all relevant investment projects benefiting FCS and to identify interview respondents. From 2019, the A desk review provided supplemental information to year GovTech was launched, there have been 75 investment inform data analysis. The review focused on internal World projects with GovTech components supporting FCS. Bank documents including the World Bank Group Strategy for > > > B O X 1 - The World Bank Group Is Contributing to GovTech in FCS through Sizable Investments In fiscal year 2022 (FY22), 18 projects with digital components and activities were approved in FCS. Combined they reflect over 1 billion in investment. Most projects combine activities across all four pillars of GovTech: 17 projects include activities on core systems; 17 on service delivery; eight on citizen engagement; and 12 on enablers. The Central African Republic project (P174620), for instance, includes activities to deepen public financial management (PFM) reforms through GovTech, strengthen the legal and regulatory environment to better digital connectivity, and actions to shape the approach to shared platforms such as national identification and civil registration. Examples like this show that utilizing a phased approach while designing the intervention can target improvements in multiple areas of GovTech. This report does not aim to provide a typology of FCS contexts or a framework for engagement. Rather, it aims to provide a foundational overview of how GovTech maturity differs between FCS and non-FCS and examples of GovTech applications in these contexts. It also presents an overview of challenges and opportunities that practitioners can reference while working on related public sector reforms in FCS. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 4 1.2 Setting the Stage: Defining GovTech and Fragility Defining GovTech management. Citizen Centric Service Delivery highlights the need to design GovTech reforms with the user/citizen GovTech is a whole-of-government approach to public in mind, tailoring GovTech solutions to the various needs of sector modernization and promotes simple, efficient, different categories of users. CivicTech focuses on two-way and transparent government with the citizen at the center communication between government and citizens, which may of reforms.1 The GovTech approach represents the current include participatory mechanisms, information outreach, and frontier of government digital transformation and emphasizes citizen feedback mechanisms. GovTech enablers encompass three aspects of public sector modernization: Citizen-centric non-technological aspects of transformation, including public services; a whole-of-government approach to digital institutions, policies, and skills. government transformation; and simple, efficient, and transparent government systems. In FCV contexts this may GovTech is the latest iteration of digital government be an aspiration, nonetheless evidence shows that these transformation reforms. While governments have been using countries may achieve success in GovTech reforms taking an technology to modernize their administrations for decades, incremental approach to digital transformation. GovTech represents the latest generation of these reforms. It differs from previous iterations of e-government and digital GovTech comprises four key pillars: Core Government government by placing the citizen at the center of reforms. As Systems, Citizen Centric Service Delivery, Citizen these reforms have evolved, they have become more complex Engagement/CivicTech and GovTech Enablers.2 Core and ambitious, for example, highlighting innovation and whole- government systems refer to basic government functions of-government coordination, as illustrated in Figure 1. such as public financial management or human resource > > > F I G U R E 1 - Evolution of Government Digital Transformation Digital Government GovTech e-Government • User-centered approach • Procedures • Citizen-centric Analog Government but supply driven that are digital public services • One-way by design that are universally communications and • User-driven accessible • Closed operations service delivery public services • Whole of and internal focuse • ICT-eneabled • Government as Government • Analog procedures procedures, but often a Platform (GaaP) approach to digital • Government as analog in design • Open by default transformation a provider • Sliced ICT development (co-creation) • Simple, efficient, and acquisition • Data-driven and transparent • Greater transparency public sector government • Government as • Proactive systems a provider administration Source: World Bank, based on the OECD’s presentation of digital transformation in Digital Government Studies (2019). EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 5 Defining Fragility and Fragile Countries dimensions of service delivery, efficiency, accountability, and corruption.5 They were also demonstrated during the The FCV concept groups three issues that are often COVID-19 pandemic, when the potential of digital-based related: (i) deep governance issues and state institutional government service delivery to improve public sector efficiency weakness; (ii) situations of active conflict; and (iii) high levels and transparency6 became a reality in many sectors, starting of interpersonal and/or gang violence.3 with human development sectors. The pandemic accelerated the digital transformation of public sectors and demonstrated The World Bank FCS list categorizes countries deeply further the potential of GovTech for public administration even affected by fragility or conflict. The list is issued by the in challenging environments. World Bank annually, based on an established classification methodology. The most recent FCS list distinguishes between The potential for GovTech to be transformational countries based on the nature and severity of the issues they may be even more promising in FCS. According to the face. The classification uses the following categories: World Bank’s FCV Strategy for 2020-2025, “by 2030, more than half of the world’s extreme poor will live in countries • Countries with high levels of institutional and social characterized by fragility, conflict and violence.”7 With fragility, fragility, identified based on public indicators that including institutional and social fragility, on the rise, GovTech measure the quality of policy and institutions as well as can support core governance functions, the quality and specific manifestations of fragility. accessibility of public services, the rebuilding of institutions, and even “helping address the drivers of fragility, conflict, • Countries affected by violent conflict, identified based and violence.”8 The 2020 World Bank Group FCV Strategy on a threshold number of conflict-related deaths relative to highlights the potential of digital transformation to “play a the population. positive role in promoting peace” while recognizing that it can also “widen economic gaps and drive exclusion.”9 The list of FCS is not static. As the list of FCS identified by the World Bank changes annually, it must be stated that The provision of services is a key means to develop this analysis of 2022 GTMI data uses the FY23 FCS list as a legitimacy, mitigate conflict, and reduce the risk of reference. Country examples are selected among countries violence in fragile settings, and GovTech can support on the current list or among countries that were on the list this.10 Adequate provision and access to services can impact when the project example was designed and/or implemented. both the well-being and economic prospects of citizens. In FCS, citizens face significant barriers to public services which This report studies trends and examples of GovTech can increase marginalization of the poor and vulnerable. Using reforms of countries on the FCS list, but the findings GovTech solutions for online service provision can provide can also be useful for practitioners working in countries public services when face-to-face or onsite access cannot be outside this list. Some low-income countries that are not provided. E-services can increase reach of services, enabling considered fragile will feature characteristics observed in and improving access to services in rural areas, and areas FCS—low connectivity, for instance. Some middle-income of conflict, fragility and reconstruction. This is particularly countries with pockets of fragility can find the analysis of low relevant for FCS since unequal or disproportionate access physical access or constrained access and ways to overcome to services can reduce trust and perceptions of legitimacy, this through GovTech useful. raising grievances.11 In FCS, characterized by open violence, GovTech can ensure business continuity, in case of physical restrictions to access some parts of the country, through the 1.3 Why GovTech in Fragile States? use of remote technology for delivering or monitoring services. GovTech can also strengthen trust contributors of The 2016 World Development Report on Digital Dividends openness, integrity, and inclusiveness—all of which describes the tremendous opportunities in using are particularly needed in fragile environments with low digital technologies to increase reach and quality of levels of trust. As service delivery is a critical component of service delivery, foster transparency and efficiency in maintaining the social contract, GovTech solutions for digital public administration, and reduce corruption.4 These services can contribute to strengthening the social contract opportunities are backed by decades of research on digital and reestablishing public trust, as well as improving the quality government showing measurable impacts on governance of public services.12 EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 6 FCS can benefit from GovTech investments, and many solutions and technology can raise new risks in terms of data have begun their digital transformation at the central or protection and cybersecurity. local levels. In FCS that are also low-income, GovTech can drive digital transformation in society, as the public sector Yet fragile environments are considered most difficult for typically plays a large role in the economy. GovTech can public sector reforms. One challenge is that FCS often have provide a demonstration effect for digital transformation, and no single cause for fragility or conflict; the “root cause” is often can enable innovations that respond to social, economic, multifaceted. This makes problem definition challenging and, or political constraints. Technology can also strengthen in turn, poses challenges to developing purpose- or problem- capabilities of government entities, enable efficiencies, driven technological solutions to ameliorate them. and reduce administrative burden. In post-conflict or political transition contexts, there might be opportunities to Operating in FCS is far from business as usual. These leapfrog technologies. contexts are often characterized by rapidly changing circumstances, differing levels of security, fragile and volatile Because GovTech is not only focused on technology and political situations, and higher risks of violence against solutions, but also on the complementary public sector vulnerable populations. From the governance side, additional reforms to enable their use in day-to-day administration, challenges are macroeconomic instability, low institutional its introduction is accompanied by broader reforms. capacity, and a weak enabling and investment climate for the Matching analog and digital solutions incrementally to better private sector. Working in these countries poses significantly the service delivery experience, manage public financial higher risks and costs of engagement which need to be resources, and communicate with citizens can further advance considered for any operational or technical assistance projects. GovTech reforms over time. Small innovations often can have a visible impact. Each context is different, limiting the potential applications of “best practice.” Successful GovTech At an individual level, digital technologies and the skills to reforms focus on best fit given a country’s context, drivers of use them can support development outcomes. Internet and fragility, and capabilities. Given the heterogeneity of FCS, this digital skills contribute to economic development, employment is particularly salient. For FCS with active conflict, there are opportunities, and educational opportunities for those in FCS. challenges in physical environments as well as institutional However, the digital divide is real and multifaceted, and new and political weaknesses to consider. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 7 The challenges in supporting GovTech in fragile which requires high level of capacity and also coordination and environments cannot be understated. Governance intent to provide transparently for all groups within a country, is challenges that can slow GovTech reforms are magnified in likely to be aspirational in most FCS, yet there are interesting FCS contexts. GovTech in its most recent definition requires examples of sequenced approaches. Furthermore, rapidly the following elements that would not be present in most FCS, deployable low-cost digital solutions can start addressing because of their low institutional capacity and/or the violence country-specific public sector management and service occurring within their borders: delivery challenges even in very fragile environments. • An integrated approach to policymaking and service GovTech reforms need to be implemented in alignment delivery, which presupposes a strong, coordinated with the local political economy and with an understanding government. of the risks they can create. GovTech reforms can be seen as threatening to political and institutional structures, • A government both intent and capable of delivering potentially upending existing bribery and corruption systems services for all its users and beneficiaries; a government and schemes. Implementing digital technologies and changing intent in creating an open, accountable environment that the way governments work can face opposition from many enables citizens to engage their governments and hold different stakeholders, particularly those who will “lose” as a them accountable. result of the reform. GovTech reforms are also vulnerable to corruption, especially with large-scale IT procurements that Despite the challenges, most if not all governments in can be captured. It also creates new challenges in terms of countries defined as FCS pursue GovTech reforms, often data security and data protection and privacy, cybersecurity, incrementally. GovTech for core government functions, and misuse of technology. There are growing concerns about including an Integrated Financial Management Information risks around the use of technology to amplify discrimination System (IFMIS) or human resources management (HRM) towards marginalized groups, propagate misinformation, and database are often a starting point in post-conflict countries. exacerbate fragility and violence.13 Service delivery is also another area where GovTech reforms tend to be used, especially if the use of technology can The objective of this note is thus to explore which parts compensate for lack of physical access, as in Ukraine for of the GovTech agenda are implemented in FCS and to instance. Some fragile countries also embrace the whole-of- identify specific opportunities and common challenges government approach to GovTech, for instance West Bank and for such reforms to succeed, while staying away from Gaza, although it remains aspirational for most FCS; in some prescribing a “how to” which, because of the diversity FCS, GovTech reforms take place at regional or subnational of FCS contexts, could be counter-productive. The level (Iraq). heterogeneity of FCS is such that any one size fits all assertion or recommendation would be impossible. GovTech is not a GovTech reforms come with specific challenges and silver bullet for FCS, but it can provide opportunities to improve risks in FCS. By definition, fragile countries suffer from low governance outcomes. This report examines the opportunities capacity, low legitimacy, and/or low accountability (see WDR and challenges brought about by GovTech reforms, so that 2011), which are likely to constrain any type of public sector support to such reforms takes into account their promises and modernization reform. Thus, the implementation of large- the risks involved. scale GovTech initiatives as a whole-of-government approach, EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 8 2. >>> Overview of FCS’ Level of GovTech Maturity and of Typical Challenges and Opportunities for GovTech Reforms 2.1 The State of Govtech in FCS: Mining the GTMI Data Quantitative data is available to understand FCS adoption of GovTech via the GTMI.14 Covering 198 economies, including FCS, it consists of four components and 48 key indicators: the Core Government Systems Index (CGSI), based on 17 indicators; the Public Service Delivery Index (PSDI), based on nine composite indicators; the Digital Citizen Engagement Index (DCEI), based on six indicators; and the GovTech Enablers Index (GTEI), based on 16 indicators. The scoring of the GTMI15 and subindices ranges from 0-1.00. Based on the scoring the countries are grouped into four different categories of GovTech adoption: Very High (0.75-1.00); High (0.50- 0.74); Medium (0.25 – 0.49) and Low (0.00-0.24). This section provides an overview of how countries in FCS differ in terms of GovTech Maturity. GTMI can provide a snapshot of a country’s GovTech maturity and help identify opportunities for improvement, however it does not capture the quality of implementation. The GTMI is based on officials’ answers on a questionnaire focused on whether some GovTech characteristics are present. Of the 37 FCS, a little over half participated in the 2022 GTMI online survey and provided information about their digital transformation initiatives.16 For those who did not participate, the GTMI team collected public information to approximate answers to the survey. See Annex 6 for more on GTMI methodology. As expected, GovTech maturity in FCS is much lower than global averages (Figure 2a) This applies to the GTMI average, the upper and lower bounds of maturity, as well as to GTMI components (Figure 2b). While this is not surprising, it is important to note that the results provide a snapshot in time and may not reflect current on the ground realities. For teams working in FCV, the GTMI provides a good starting point to identify gaps and opportunities, additional research on the context is advised. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 9 > > > F I G U R E 2 A - Minimum, Mean, and Maximum GTMI Scores Globally vs. FCS 0.991 1.000 0.768 0.750 0.552 0.500 0.305 0.250 0.049 0.019 0.000 Global FCS Countries Max Mean Min Source: GTMI 2022 data. > > > F I G U R E 2 B - GTMI Components* in FCS-1, FCS-2 and Non-FCS Economies 1.00 Average GMTI component scores 0.75 0.50 0.25 0.00 Conflict (FCS-1) Fragile (FCS-2) Other Avg CGSI Avg PSDI Avg DCEI Avg GTEI Source: GTMI 2022 data. Note: *There are four GTMI components: the Core Government Systems Index (CGSI), the Public Service Delivery Index (PSDI), the Digital Citizen Engagement Index (DCEI), and the GovTech Enablers Index (GTEI). EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 10 When FCS are compared with Non-FCS within the same compared to low-income group, indicating a greater potential income level groups,17 a similar pattern emerges. However, for developing GovTech with upper middle-income economy the difference in GovTech maturity is greater between FCS resources (Figure 3). and Non-FCS economies in the upper middle-income group > > > F I G U R E 3 - Average GTMI Scores among FCS and Non-FCS Economies, in Low-Income, Lower-Middle Income, and Middle-Income Groups18 a. Avg GTMI Scores among FCS vs Non-FCS in Low Income Economies 1.00 0.75 0.50 0.25 0.00 Avg GTMI Avg CGSI Avg PSDI Avg DCEI Avg GTEI FCS Non-FCS b. Avg GTMI Scores among FCS vs Non-FCS in Lower Middle Income Economies 1.00 0.75 0.50 0.25 0.00 Avg GTMI Avg CGSI Avg PSDI Avg DCEI Avg GTEI FCS Non-FCS EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 11 c. Avg GTMI Scores among FCS vs Non-FCS in Upper Middle Income Economies 1.00 0.75 0.50 0.25 0.00 Avg GTMI Avg CGSI Avg PSDI Avg DCEI Avg GTEI FCS Non-FCS Source: GTMI 2022 data. Another takeaway from reviewing GTMI data is that FCS Interestingly, while the principal characteristics of FCS-1 are also varied in their level of GovTech maturity. Table 1 (low institutional development) and FCS-2 (open violence) below illustrates the distribution of the 37 2023 FCS across countries differ, there is no significant difference in GovTech groups. The average GTMI score for FCS is 0.305, trend between the two subgroups as far as the GTMI is placing the average in Group C—labeled as “Some focus on concerned. This reflects the heterogeneity of countries in GovTech.” Most FCS are in GTMI’s Group C (43 percent) or each subgroup – with a large dispersion in scores – but also D (43 percent), respectively with medium or low GovTech the fact that many of the countries in both subgroups share maturity. FCS range from those in Group D (Eritrea with 0.049) common characteristics: low capacity for reform planning to those in Group B (Burkina Faso with a 0.639 and Kosovo and implementation, weak institutions, and technical/digital with 0.633.) While Ukraine is in Group A based on the 2022 capacity gaps. While there may be moments of strong political GTMI, this captures the situation prior to the war. leadership, power dynamics can shift quickly, which can stall digitization reforms. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 12 > > > T A B L E 1 - Overview of GTMI Groups among FCS GTMI group FY23 FCS (Number of countries, % of) A Very High – GovTech leaders – 1 country (3%) Ukraine B High - Significant focus on GovTech – 4 countries (11%) Burkina Faso, Ethiopia, Kosovo, Nigeria C Medium - Some focus on GovTech – 16 countries (43%) Afghanistan, Burundi, Cameroon, Comoros, Democratic Republic of Congo, Lebanon, Mali, Mozambique, Papua New Guinea, Solomon Islands, Somalia, Syrian Arab Republic, Timor-Leste, Venezuela, West Bank and Gaza, Zimbabwe D Low - Minimal focus on GovTech – 16 countries (43%) Central African Republic, Chad, Congo, Eritrea, Guinea-Bissau, Haiti, Iraq, Libya, Marshall Islands, Federated States of Micronesia, Myanmar, Niger, South Sudan, Sudan, Tuvalu, Yemen Total 37 In the analysis of GTMI data, potential correlations with Regulatory Quality (WGI, 2021 – Figure 4), and Political factors from the Worldwide Governance Indicators and Stability and Absence of Violence (WGI, 2021 – Figure 5). This World Development Indicators were also examined.19 is expected, as situations of fragility and conflict make it more Apart from the indicators comprising GTMI, none exhibited a challenging to take on the digital transformation activities need correlation coefficient equal to or greater than 0.7. Nevertheless, for GovTech maturity, in the same way that it makes it difficult GovTech maturity revealed a positive correlation of 0.63 with to take on new programs or reforms in general. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 13 > > > F I G U R E 4 - Plot of GovTech Maturity against WGI - Regulatory Quality 1.00 0.75 GTMI (2022) 0.50 0.25 0.00 -3.00 -2.00 -1.00 0.00 1.00 2.00 3.00 Regulatory Quality (2021) FCS economies Non-FCS economies Linear (combined) Source: GTMI 2022 and World Governance Indicators (WGI) data. > > > F I G U R E 5 - Plot of GovTech Maturity against WGI - Political Stability No Violence 1.00 0.75 GTMI (2022) 0.50 0.25 0.00 -3.00 -2.00 -1.00 0.00 1.00 2.00 3.00 Political Stability No Violence (2021) FCS economies Non-FCS economies Linear (combined) Source: GTMI 2022 and World Governance Indicators (WGI) data. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 14 While these findings provide a valuable starting point, and-go” in support for reforms, weak capacity, and possible further data analysis is required. A more extensive tensions between competing priorities and interests could examination would allow for the identification of correlations negatively impact GovTech reforms. Practitioners can use and causal links, enabling a more robust understanding of the tools for political economy such as stakeholder mapping to factors influencing GovTech maturity across different contexts. better understand context and dynamics. World Bank projects Chapter 3 expands further on the state of GovTech maturity can build on existing assessments and tools – Risk and for each GovTech pillar in FCS. Resilience Assessments, FCV filters – to better understand the context and take it into account in designing and implementing GovTech activities so that it leads to better outcomes. 2.2 GovTech in FCS Faces Corruption: GovTech reforms can support more effective Cross-Cutting Challenges and transparent public management. However, their but Can Also Build on implementation is also prone to capture. Large information technology (IT) procurement, for example, can become Specific Opportunities desirable for the opportunities they offer for kickbacks. IT solutions may not always be chosen on the basis of a sound cost-benefit analysis, either because decision-makers in There are a number of key challenges as well as key government choose not to, or because private vendors take opportunities to GovTech reforms in FCS. The list of advantage of their comparative higher knowledge of the field challenges listed in this chapter is neither exhaustive nor to sell an over-designed solution. Providing governments with universally applicable to every FCS, but includes common relevant knowledge needed to negotiate contracts is important, bottlenecks that are more likely to exist in fragile contexts, in addition to enhanced support regarding procurement rules and which could limit the uptake, scope, or impact of GovTech and processes and stronger avenues for accountability. reforms. It is important for practitioners to be cognizant of these possible challenges, so that they can assess whether Capacity: Low capacity is one of the characteristics of any of them is applicable to the context they are engaged FCS, and definitely a feature of FCS characterized by “low in and take it into account in designing and implementing institutional development.” Pritchett, Woolcock, and Andrews GovTech reforms. It is also important to build on opportunities (2010) use the term “state capability traps” to describe a more likely to be present in FCS, and these are also discussed situation in which “the implementation capability of the state is in this section. Chapter 3 includes additional challenges both severely limited and improving (if at all) only very slowly.” specific to each GovTech building block as well as examples The pace of adoption of digital reforms will thus need to be of opportunities seized by FCS in designing and implementing tailored to the environment. Incremental reforms can foster their GovTech reforms. changes, and helping countries combine analog and digital solutions to deliver best services to citizens/residents is often Cross-cutting challenges to the uptake, scope, or impact a good strategy. Capacity is often considered a prerequisite of GovTech reforms in FCS: for policy effectiveness; however, policies may still be ineffective if groups with enough bargaining power have no Political economy: Fragile countries are often so because incentives to pursue their adoption and implementation. Some of elite capture and/or competing interests that undermine FCS have high capacity yet lack an enabling environment in incentives to make the state more effective and accountable. which technical skills could be developed and performance In contexts where government policies are not aligned with the rewarded, thus preventing the public sector from being goals of inclusive growth and poverty reduction, and in which conducive to innovation. fragility is directly associated with exclusionary, predatory, unstable, or entrenched political settlements, GovTech Lack of Donor Coordination: Donors play an important role reforms as defined here are unlikely to be pursued or, if in providing necessary financing for digital transformation pursued, unlikely to achieve the intended impact. When such in FCS, many of which tend to be aid-dependent. Fragile reforms occur, they can serve to establish a controlling rather countries, for lack of will or capacity, do not always provide than an enabling environment. In fragile countries where strong leadership in ensuring complementarity of the there is impetus from the top to undergo GovTech reforms, programs or avoiding duplication of efforts. GovTech reforms for instance, at times of political transitions, sustained focus occurring in an environment without common IT standards and on driving complex reforms can be a challenge because of mechanisms to enable interoperability of systems can lead to political and institutional instability. In such contexts, “stop- EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 15 a proliferation of systems operating in parallel. Donor support countries. In many FCS, low market depth and the lack of can also be undermined by competition among donors, a developed private sector to source expertise locally leads aggravating the lack of coordination at government level. to reliance on international firms who might be reluctant to engage and, when they do, factor in fragility and uncertainty Infrastructure gaps and low connectivity: Access and risks in their pricing, resulting in higher costs of firms and affordability of technology infrastructure – devices, electricity, consultants and lesser competition. internet – are predominant challenges in FCS. Many FCS struggle with low and/or unreliable access to power. Even Cost and affordability gap: The cost of access to the benefits in well-served cities, intermittent cuts may be common. In provided for by GovTech, and specifically E-services or ways 2020, on average, 56.5 percent of the population in FCS had for citizens to engage their governments, can be prohibitively access to electricity, with huge discrepancies between urban high in some fragile countries, thus creating a barrier to and rural access—83.4 percent on average in urban areas affordability at the risk of furthering inequality. For example, in compared to only 36.9 percent in rural areas. Low access to the Democratic Republic of Congo (DRC), the cost of mobile internet and poor connectivity are also significant impediments internet is prohibitive: the cost of 1.5GB of mobile data was to the uptake and use of GovTech reforms. Several factors over 32 percent of the average per capita monthly income (~14 contribute to this: in low institutional capacity/low-income USD) in 2020. DRC provides a striking example of regional FCS, low levels of investment often intersect with policies imbalances in access: while mobile phone penetration is over that undermine competition and efficiency; indeed, in many 80 percent in the capital city of Kinshasa, in rural provinces countries, low connectivity is as much a governance problem it drops below 20 percent. Mechanisms to reduce the costs (state monopolies) as a technical and financial problem. In of access such as subsidy payments, regulations, and FCS with open conflict or coming out of conflict, infrastructure supporting competition in the telecom sector may help close may have been damaged or destroyed. the affordability gap. Low Digital Skills: Without the skills to use the technology, Opportunities: investments will not meet their full potential. Digital skills gaps are present on both the supply and demand sides. On the Mitigation of some of the challenges mentioned above, supply side, low digital skills within the public administration such as funding gaps or low digital skills, is facilitated often coexist with poor clarity of mandates, lack of merit- nowadays by the ubiquity of technology, opening up based recruitment and promotions, and poor accountability for new opportunities. As digital government becomes more performance, which can significantly limit the benefits expected common, opportunities for supporting such reforms become from GovTech reforms. On the demand side, citizens, if they more diverse: donor financing, public-private partnership, have access to IT devices, might not be able to navigate establishment of internal capacity, or global public goods and different screens and webpages, input data, or interact with platforms using open-source technology. Digital skills can now interfaces to obtain e-services. In FCS, digital skills rates tend be acquired through remote learning via internet, smartphone, to be low, especially for women.20 Some countries also use the and radio. For instance, interactive Radio Instruction was know-how of private operators to promote skills and capacity used in Somalia using digital media players or via radio development through public private partnerships: the “Click broadcast. Community networks such as Murambinda Works on Kaduna digital skills program” developed in partnership in Zimbabwe, transformed internet cafes into digital learning with the World Bank, Rockefeller Foundation, Wacom, and centers to serve over 100,000 residents.23 IBM,21 is targeting women digital literacy, expanding the pool of potential users that can interact with digital systems. FCS also present specific opportunities, such as the absence of a legacy system. Some fragile countries Funding gaps and higher cost of engagement: Significant do not have many digital systems or platforms in public financial investments are needed to support public sector administration. With limited or no legacy systems in place, digitalization. The costs include upfront expenditure for reformers have an opportunity to “start from scratch” and utilize systems and recurrent costs for maintenance, subscription tested and available technology to leapfrog. This also applies and license fees. Typical challenges in FCS stem from the to strategies, laws and regulations: countries can adapt good low level of domestic resources but can include lack of will or practice examples to their own purposes and context, building capacity to look for low-cost solutions due to opportunities for on a growing body of knowledge on key building blocks such capture or lack of knowledge. Higher cost of engagement due as laws and regulations regarding e-services, e-documents, to violence or instability is another structural issue for fragile e-payments, data exchange, access and use. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 16 Some FCS can take advantage of their demography, as government e-services, but digital entrepreneurship and the there are opportunities to leverage the youth population. digital economy at large. Over 600 million young people live in FCS.24 Countries with a large youth population can build on so-called “digital The rise of mobile technologies and mobile internet natives” who have a higher comfort level with technology. In access in FCS is promising, presenting significant Zimbabwe for example, research showed that most youth opportunities for mobile government applications for had access to digital technologies (mobile phones) and the service delivery and citizen participation, data collection, skills to operate social media applications such as WhatsApp digital payments, and project monitoring. tIn FCS, the and Facebook.25 This knowledge and adoption of technology number of mobile cellular subscriptions per 100 people is opened doors: these youth were using technology to access 75.9, compared to 110 globally. Mobile cellular subscriptions educational and employment opportunities outside their are positively correlated with GovTech maturity—see Figure 6. village.26 This has impacts not just on potential adoption of Box 2 details the example of Somalia. > > > F I G U R E 6 - GTMI and Mobile Cellular Subscriptions, 2021 1.00 0.75 GTMI (2022) 0.50 0.25 0.00 0 50 1.00 1.50 3.00 Mobile cellular subscriptions (per 100 people) FCS economies Non-FCS economies Linear (combined) Source: GTMI 2022 and World Governance Indicators (WGI) data. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 17 > > > B O X 2 - Using Mobile Technology in Somalia to Improve Public Health Services Under the World Bank’s Somalia Recurrent Cost and Reform Financing Phase 3 (RCRF) project (P173731), GovTech solutions are utilized in community health service delivery to enable digital data collection, e-learning, feedback collection and behavior change. The project supports the Female Health Worker (FHW) Program to bring primary healthcare services to local communities. Somalia is a sparsely populated fragile and conflict affected country, where some communities face barriers accessing services due to poor road infrastructure, internal displacement, natural disasters and the ongoing conflict. Through RCRF financing, about 900 FHWs were provided with smartphones, funds for monthly data use, and relevant training to enable data gathering and transmission with geo-tagging and photo evidence where necessary (provided the security situation allows such ICT use). Since January 2022, 82 percent of FHWs are using these technologies. In addition to data collection, smart phones are used to access more than two dozen health e-learning and behavior change videos that complement traditional face-to-face training and promote behavior change communication with communities. Finally, an ICT-based citizen engagement center or a call center in Mogadishu implements feedback collection and behavior change campaigns through voice calls, SMS and WhatsApp by reaching out to female health workers, female health supervisors, household heads, pregnant women, and teachers. As of April 2023, 7,583 unique beneficiaries have been contacted. Fifty six percent of respondents were responded to with corrective actions taken by the government. Source: World Bank RCRF project documents. Digital payments through mobile technologies is a major GovTech opens up specific opportunities for FCS affected global trend and opportunity in FCS. Registered mobile by open violence, and/or with internally displaced persons money accounts grew from 1.4 billion in 2021 to 1.6 billion (IDPs) and refugees. Mobile technologies and drones are in 2022.27 The highest increase was seen in low-income providing opportunities. In Ukraine, the government was able countries, a country group that includes most FCS. Mobile to leverage its solid GovTech systems at the onset of the money linked to Government-to-Person (G2Px) payments conflict. The Diia mobile application enables IDPs to register to support cash transfers for food, fuel, agriculture, utility online for IDP status as well as to be automatically registered subsidies, and social welfare payments, is often used in FCS, for any cash benefits. The registration provided via the app in particular for emergency cash transfer operations. also removed the need for citizens to retain or carry physical documents to prove their identity and status. Development When mobile access is limited or unaffordable for some, partners are also using mobile apps for IDPs. This includes FCS can also take advantage of low-technology mobile the UNDP’s Your Rights app that helps ministries, districts, options for service delivery and communication. They can and agencies to provide information and support to IDPs as provide services through SMS, interactive voice response, well as those who have experienced gender-based violence and call centers which do not require smartphones and and human trafficking.28 internet connectivity. The same technology can be used to share information about availability of services, deadlines, New technologies such as drones offer new sets of and events across different services. These types of cross- opportunities to get information and even to deliver aid. cutting solutions can enhance numerous services instantly In FCS characterized by violence, drones can be used to map and are relatively easy to deploy, even in contexts with and survey damage and inform infrastructure rebuilding and limited capacity. Importantly, these foundational steps also reconstruction plans. They can also be used for humanitarian serve to build internal capacity and gradually foster a more food delivery where roads may be impassable, as has been sustainable digital public infrastructure, paving the way for the done in South Sudan. implementation of more complex platforms in the future. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 18 3. >>> Supporting the Four Pillars of GovTech in FCS: Trends and Examples This chapter uses GTMI data to compare performance of FCS and non-FCS with respect to the four pillars of GovTech. The four pillars are: GovTech enablers, including the skills, leadership, strategies, and policies to support GovTech development; Core Government Systems (for public financial management, human resource management, and tax and customs administration); Citizen Centric Service Delivery and Citizen Engagement/CivicTech. The chapter then illustrates reforms under each pillar with examples, drawn from World Bank- financed projects as well as other donor and private sector projects implemented in FCS. 3.1 GovTech Enablers: Policy, Legal and Regulatory Frameworks, and Skills GovTech enablers refer to the cross-cutting drivers of the digital transformation agenda. They include strong enabling and safeguarding institutions, an appropriate and conducive legal and regulatory regime, and digital skills in the public sector. These enablers also encompass national identification systems, digital signature that can enable transactional e-service delivery, digital payments, and strategies for innovation and digital transformation. Taken together, these building blocks provide a base for GovTech to thrive. They are also an area requiring greater attention from FCS. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 19 Even if infrastructure and connectivity remain a challenge Figure 7). The overall average score for FCS on the GTEI is in many FCS, the GovTech enablers can be addressed 0.276, just above the lowest scoring threshold of 0.25, and in anticipation of infrastructure to come. Supporting an FCS range from Group B economies like Zimbabwe with 0.733 enabling regulatory environment, institutional coordination to Group D ones—Eritrea with 0.037 or Tuvalu with 0.042. towards common aims, support in skills to use the technology, The majority of GovTech enablers measured in this GTMI and change management to adapt to new ways of doing things subcomponent are present in between a quarter and half of are useful starting points. These analog complements exist on FCS. Interestingly national IDs or similar foundational IDs are both the supply and demand sides. present in over 75 percent of 2022 FCS, and over 50 percent of these countries have a digital strategy and a government The GovTech Enablers Index (GTEI), a subindex of the entity focused on GovTech. This points to growing appetite GovTech Maturity Index (GTMI), indicates room for and progress for taking on GovTech solution projects. improvement for FCS but also significant progress (see > > > F I G U R E 7 - GTEI Indicator Responses for FCS (GTMI 2022 Update)29 Dedicated DG/GovTech Entity (I-33) Dedicated Data Governance Entity (I-34) GovTech/Digital Transf Strategy (I-35) Whole-of-Government Approach (I-36) Right to Information Laws (I-37) Data Protection/Privacy Laws (I-38) Data Protection Authority (I-39) National ID system (I-40) National ID system digitized (I-41) Data Signature Platform (I-42) Gov Strategy/Prog on Digital Skills (1-46) Public Sector Innovation Strategy (I-46) Gov Entity for PS Innovation (I-47) Gov Policy on GovTech Startups (I-48) 0.0% 25.0% 50.0% 75.0% 100.0% Yes Planned/In progress “No” Source: GTMI 2022 data. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 20 Fragile and Conflict-Affected Situations, by definition, rolled out can kickstart digital transformation and provide a may lack key GovTech enablers such as strong demonstration effect for other sectors. leadership and an institutional setup conducive to reform. Three key principles underpinning the Bank’s whole- Coalescing fragmented and disparate systems can be a of-government approach to GovTech may be weak or missing: greater challenge in FCS than non-FCS. In these cases, (1) high-level political and senior civil servant leadership, focusing on key enablers has been a way to start the digitization (2) a top-down strategic whole-of-government orientation journey. One example is foundational ID systems: the GTMI to digital transformation, and (3) a robust institutional and results show over 75 percent of FCS report having this in place. governance framework. In Cameroon, a recent ID and civil registration diagnostic30 demonstrates the challenges of reforming such foundational A complex and fragmented institutional system often shared platforms, aligning donors, and establishing the legal undermines a whole of government approach, and in prerequisites. It shows that GovTech has been an enabler to countries with low institutional capacity, the rollout of increase the scope and scale of reforms. GovTech is often pursued independently by parts of the administration. By definition, a whole-of-government A key challenge in FCS is the lack of a comprehensive approach needs strong leadership and alignment towards a legal and regulatory framework to support and drive goal, which, in FCS, is likely to be overambitious considering digital transformation. Guinea Bissau is a case in point. The the low capacity of prevailing administrative systems. country placed e-government implementation at the center Additionally, inter-ministerial coordination is often weak in of its Global Rationalization Plan (2026) to promote efficient FCS. It is often the case that each sector independently tries services and enhance participation of citizens.31 However, it to get access to or keep control over their own technology has not adopted the necessary laws for digital government such and IT systems. Reasons for this are diverse and not as laws on data protection, e-signature, and cybersecurity.32 mutually exclusive: sense of urgency in getting results, poor communication and coordination within the sometimes- Supporting countries in setting up the basic legal and fragmented administration, incentives in being a first mover regulatory framework for GovTech is important and to attract the limited pool of skilled staff, or an attempt at needs to focus as much on the state’s capacity to enforce capturing lucrative public procurement. it. A conducive legal and regulatory regime is a key enabler of digital government transformation. But in many instances The fact that a GovTech strategy and a dedicated regulatory frameworks are poorly enforced, which can impact GovTech entity are present in about half of the FCS in security of data and systems. This effort can take a long time the GTMI indicates that fragile countries can also show in FCS environments. After the Government of Cameroon leadership and dedication to adopting GovTech. Adopting established a legal framework for cyber security in 2010, the a strategy and creating an organizational unit are a first step lack of a comprehensive data protection law raised concerns to coordinating reforms, even though the impact of such about the security of personal data.33 Cameroon has recently measures will depend on the political clout of the coordinating drafted new laws on data protection and cybersecurity, unit and its human and financial resources and, in some cases, including cybercrime that will be submitted for Parliamentary their degree of ownership in the administration, especially if approval in 2023. these units have been created with external project financing. In cases where policies and regulations are adopted While whole-of-government approaches are good practice, and seem fit-for-purpose, there is often a significant in most FCS contexts this is likely to be aspirational, yet implementation gap. Having a legal framework or strategy this does not mean nothing can be done. It may be more in place is only the first step. Implementing a whole-of- feasible to finance and implement systems in a piecemeal government strategy and coordinating with multiple ministries, manner. Political and institutional barriers may be too high to departments, and agencies can be particularly challenging in implement whole-of-government systems, but progress can be FCS where different factions or different governments may be made incrementally – for example, informational services on in power across the country or region. Further, implementing, a website, pilot level transactional e-services, e-government monitoring, and enforcing different legal frameworks can also procurement solutions, or digital payments. There may also be challenging in FCS where capacity and digital skills, such be more potential and support for reforms in certain sectors; as those to monitor data protection and cybercrime, may for example, e-education systems that can be purchased and be limited. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 21 Digitalization of government requires adequate human in environments where public sector jobs are comparatively capacity at the institutional, organizational, and individual desirable. Because digital skills are often locally scarce, levels.34 Poor digital literacy and skills of public servants can specialists can secure jobs in the private sector – sometimes hinder GovTech development. Civil servants need to have with international firms or abroad. Alternatively, they may basic digital skills to complete tasks such as inputting budget secure jobs in the donor sector, which creates distortions in the numbers in financial management information systems (FMIS) market and mobilizes domestic capacity in parallel structures systems, entering a new hire in an HRMIS, or launching a that are often poorly integrated with the public administration. new tender on an e-GP system. Using basic interfaces to Investing in civil servant digital skills can foster innovation and scan documents, input data, take biometric measurements support cultural transformation within organizations.36 This and other tasks is necessary to provide face-to-face services culture change can enable better use of technology and can to beneficiaries. Public servants in Kosovo point to a lack of help in overcoming political and organizational pushback. Box training in the use of new systems as the biggest constraint 3 highlights interesting findings from a Civil Service survey in to implementing new digital practices and e-government Kosovo that provides a snapshot of the challenges in pursuing solutions.35 Specific competencies in network management, a national e-government strategy in an FCS environment cybersecurity, and programming may be scarce. where infrastructure quality is not a major challenge in the central administration, but digital skills, resources and Digital skills are often among the scarce skills that are capacity are. difficult to attract in the public sector. This is true even > > > B O X 3 - Digital Readiness and Skills in the Civil Service in Kosovo • The importance of pursuing a national e-government strategy is not broadly recognized by heads of agencies (HOA). Only 40 percent of HOAs stated they are convinced of the importance of the national e-governance strategy, while 60 percent do not find it important. Since the HOAs are key stakeholders in the digital transformation with key responsibility for the institutional-level implementation, this finding points to the need for strengthening activities aimed at building awareness and support behind this agenda. • Only 12 percent of HOAs agreed with the statement that their institution has the resources and the capacity to implement the e-government strategy. This finding highlights the need for underpinning investments and capacity building support at the institutional level. • Infrastructure quality is rated good or very good by a slight majority of managers and IT-staff, but the shares are not very high – between 49 and 60 percent for the various types of infrastructure – leaving a significant proportion of respondents having less favorable views on infrastructure quality. Unsurprisingly, on average, managers working at the local level rate the quality of IT infrastructure significantly lower than their peers working in the central government. • While most respondents are satisfied with the services provided by IT staff at their institution, a lack of IT staff resources is flagged as an issue – 66 percent of the respondents believe that more IT staff is needed to respond to their needs effectively. • Kosovan public officials are generally satisfied with the quality of most information technology (IT)-related devices and the related IT-support; however, staff using IT systems more report lower satisfaction. Similar splits are observed at both local and central government levels. Respondents who are more dependent on computers or who switched to remote work during the pandemic tend to be less satisfied with the quality of technologies and support services. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 22 • Ninety percent of managers believe that digital skills are a key priority for them as managers and for their institution, but many find skills identification procedures lacking and they also recognize the challenges with recruiting digitally skilled staff. They point to low salaries as the main reason why their institutions have difficulties in attracting candidates with good digital skills. • Insufficient training, infrastructure, and funding constraints are identified as key challenges in improving digital governance at the level of individual institutions, while leadership and coordination are seen as obstacles only to a lesser extent. • There are large differences among respondents by educational attainment levels. Respondents with higher educational attainment are more cynical and less satisfied with the quality of infrastructure and IT support services and more critical towards the ability of their institutions to build and retain digital skills. Source: World Bank 2021. 3.2 Core Government Systems to Manage Public Administration According to the Core Government Systems Index Domestic Revenue Mobilization (DRM) and Public Financial (CGSI), a subindex of the GovTech Maturity Index (GTMI), Management (PFM). In DRC, most of the digital initiatives FCS fare better on core government systems in comparison have focused on public financial management and domestic with other pillars. This is the GTMI focus area with the most revenue mobilization such as tax and VAT.37 In Guinea Bissau, indicators where over 60 percent of FCS report having the the Kontaktu tax portal facilitates communication with the indicators in place—be it FMIS, tax administration, customs, Directorate General for Contributions and Taxes and allows or debt management. This is not a novel finding, as in early users to pay taxes online. digital government initiatives, core government systems for public financial management, human resources, taxes, and To yield the full potential of core government systems investments were prioritized. These systems are often the first for PFM, regulatory and policy levers may be necessary. area for digital transformation. In many FCS countries, projects first focus on these core functions. The success of these systems is supplemented FCS perform well overall on core government system by sector specific policies such as budget compliance indicators, with significant country differences. The regulations, treasury single accounts, commitment controls, average CGSI score for FCS stands at 0.352, placing them budget classification, procurement legislation, and revenue in Group C, below the global average of 0.575 in Group B. policies. These policies can provide guidelines for use of these Within the group of FCS, there is significant variation in the systems to ensure they meet their intended purpose. maturity of core government systems, with countries such as Kosovo achieving a high score of 0.647 (Group B) and Most FCS report having FMIS solutions supporting others like Eritrea or the Marshall Islands with a low score of central and local government operations, but their scope 0.058 or 0.088 (Group D). This underscores a recurring theme and coverage varies. More than 50 percent of FCS that throughout the report: FCS exhibit considerable diversity answered the 2022 GTMI survey report having an operational across multiple dimensions, with GovTech maturity being a FMIS to support PFM functions, a tax MIS, a Customs MIS, prime example. a Payroll System linked with HRMIS, a Social Insurance system providing pensions, an e-procurement portal, and a Digitization is an enabler for revenue administration, debt management system. This is not a small achievement, financial management, but also central banking and as this means the foundation is in place, even though the data mobile payments. Most World Bank-supported governance does not take into account the scope of such systems and the projects in FCS focus on core government functions, such as efficiency with which they are operated. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 23 Modernization or replacement of existing systems is approach that includes all stakeholders such as government, becoming less expensive with the advances in technology NGOs, private sector, educational partners, and international such as off-the-shelf systems and cloud solutions. Many development partners. It is a hybrid system that acts both as a FCS have adopted an off-the-shelf FMIS solution to be able public and private marketplace for procurement via an online to deploy and use it as quickly as possible, as in Somalia, portal which requires no registration, thus lowering barriers to Kosovo, Afghanistan, and Comoros. Digital public goods access.41 ProZorro is credited with having helped Ukraine to enable FCS to adopt technology at lower cost. save nearly US$6 billion from 2017 to 2022.42 E-Government Procurement (e-GP) systems provide The CGSI shows that while many of the core systems are numerous benefits, including greater openness and in place, there is significant room to improve on others. transparency, and more efficient use of resources. E-GP These include implementation of a government enterprise systems can also unlock new economic opportunities for architecture, a government service bus, and interoperability businesses by reducing barriers for companies and firms,38 frameworks that would enable data exchange. Less than particularly for micro, small, and medium enterprises (MSMEs). three percent of FCS report having a cloud, an enterprise architecture framework, a government service bus, or open- E-procurement can lower opportunities for corruption source software policy or action plans – see Figure 8. The and capture. In FCS contexts, the likelihood of procurement- observed gaps present valuable opportunities for harnessing related corruption rises where there is entrenched cronyism.39 GovTech solutions to enhance government efficiency and Especially during reconstruction periods, there can be a address digital divides. The gaps also suggest that FCS are wealth of high-value contracts and an active marketplace in the early stages of adopting more advanced GovTech seeking them, making the adoption of e-procurement even technologies, pointing to the context of limited resources, more relevant as a way to limit opaque transactions. institutional challenges as well as security concerns that influence what is reasonable to expect. For instance, even in Fifty nine percent of FCS report having an e-procurement more advanced countries, it can take time to implement and portal in use.40 The ProZorro e-GP system in Ukraine effectively enforce systems for interoperability. Mandating is based on open-source technology. ProZorro, which the use of an interoperability platform, for example, can means transparency in Ukrainian, focuses on transparency, require relevant legislation or regulations which can be efficiency, and better procurement outcomes. It is an example challenging and time consuming to pass in both FCS and of bottom-up grassroots efforts, which takes a collaborative non-FCS contexts. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 24 > > > F I G U R E 8 - CGSI Indicator Responses for FCS 202243 Gov Cloud (I-1) Gov Enterprise Architecture (I-2) Gov Interoperability Framework (I-3) Gov Service Bus (I-4) Financial Management Info System (I-5) Treasury Single Account (I-6) Tax MIS (I-7) Customs MIS (I-8) Human Resources MIS (I-9) Payroll System (I-10) Social Insurance/Pension System (1-11) e-Procurement Portal (I-12) Debt Management System (I-13) Public Investment Management System (I-14) Open Source Software Policy (I-15) 0.0% 25.0% 50.0% 75.0% 100.0% Yes Planned/In progress “No” Source: GTMI 2022 data. Core government systems require a minimum threshold of mentioned that access to laptops and desktops being limited, ICT infrastructure to be of use to the public administration. many users need to go to other ministries to access core Such infrastructure however is often inadequate especially government systems. among the least developed FCS, those with active conflicts, or in post-conflict conditions where whatever infrastructure existed The purchasing and operating cost of ICT infrastructure may have been destroyed or disabled. In poorly resourced may be an issue, especially in countries with limited public administrations, IT equipment may also be lacking or competition among operators and restricted market be outdated. Repairs and maintenance can be canceled or access. Limited participation from private-sector operators in delayed due to a lack of budget for recurrent expenditures, the sector may be due to public policies creating barriers to the inability to reach sites, lack of trained personnel, difficulty entry, dominant market positions, capture and corruption, low to import spare parts, safety concerns.44 One interviewee levels of demand, small market size, low projected profitability, stated that users of their systems were frustrated with slow or higher levels of risk. The case of Kiribati (Box 4) provides an internet and intermittent electricity connectivity, which, in interesting example of success in addressing such challenges. turn, affects the workflow of institutions. Other interviewers EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 25 > > > B O X 4 - Bringing in the Public Sector to Enhance Affordability of ICT The Republic of Kiribati (FCS until 2022) was one of the least connected countries across the globe and faced challenges in developing its telecommunications sector due to limited private sector participation and affordability of ICT services. With the support of a Telecoms and ICT Development project in 2012-19, the country was able to strengthen its regulatory and institutional environment, enabling the transition to a market-driven telecommunications sector and facilitating improved connectivity for the Outer Islands. The project assisted the country to attract private telecommunications operators and businesses to invest in Kiribati’s ICT sector, reducing the operating costs of IT infrastructure and improving the affordability of ICT services for its population. It speaks of the importance of proper sequencing and timely implementation of policies as these can boost the sector, even in small island states with limited ICT penetration. Source: World Bank. Kiribati Telecommunications and ICT Development Project (P126324). https://projects.worldbank.org/en/projects- operations/project-detail/P126324 Procurement of ICT comes with specific challenges. In public, or hybrid systems47 which present advantages such as those FCS with no domestic market for ICT infrastructure and cost savings, scalability, and high availability, thus accelerating products, procuring necessary infrastructure and equipment digital transformation and data management. These cloud often requires contracting large international vendors. ICT services reduce costs of ownership, maintenance, storage, procurement is complex in nearly every context, but in FCS and licensing when procured via a subscription model through inflated costs and lack of transparency about recurrent a cloud provider.48 They can support operations and service cost implications of running and maintaining the systems delivery at both central and local government levels. are a common reported problem. In some cases, financial management and procurement reforms face political While cloud solutions can be a game changer for GovTech, challenges since they threaten vested interests.45 migration to cloud solutions often require non-digital enablers to be effective. These enablers may include legal Cloud Solutions for Core Government Operations and and regulatory changes, change management activities, skills Service Delivery in FCS development, and organizational and process changes to truly harness the scalability and flexibility it offers. The use of these Cloud solutions can be a game changer for FCS, providing systems also calls for robust data protection and security affordable solutions without heavy domestic investments protocols including data classification to evaluate what can be and, in countries with open conflict, providing backup stored in different types of clouds. Iraq published in 2022 a for government data and systems and enabling business draft cloud computing policy, which aims to accelerate digital continuity. They need to be accompanied by non-digital transformation, boost the uptake of cloud services, and ensure enablers, including strong guidance and oversight on the protection of government and personal data. data classification. Digitization of government creates a wealth of data that Cloud solutions can be used for data storage, disaster needs to be protected. A data classification scheme is risk management and recovery, and business continuity, needed to use cloud technologies to enable secure access, all features that would be in demand in a fragile setting. use, and protection of data in the center or cloud. The scheme Cloud services include Platforms as a service (PaaS), Software helps to determine data risks and potential impacts related to as a Service (SaaS), and Infrastructure as a Service (Iaas).46 security breaches (Table 2). Government cloud services can be deployed on private, EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 26 > > > T A B L E 2 - Sample of Data Classification Levels and Potential Impact on Confidentiality, Integrity and Availability Data classification Impact level Impact description Public Low The loss of confidentiality, integrity, or availability could be expected to have a limited adverse effect on organizational operations, organizational assets, and/or individuals. Official Moderate The loss of confidentiality, integrity, or availability could be expected to have a serious adverse effect on organizational operations, organizational assets, and/or individuals. Secret High The loss of confidentiality, integrity, or availability of Secret Data could be expected to have a severe or catastrophic adverse effect on organizational operations, organizational assets, and/or individuals. Top Secret High The loss of confidentiality, integrity, or availability for Top Secret Data could be expected to have an exceptionally grave adverse effect on organizational operations, organizational assets, and/or individuals. Source: Adapted from World Bank. 2023. “Data Classification Matrix and Cloud Assessment Framework.” Cloud solutions can be particularly useful in settings Cloud-based online collaboration tools can enable where key systems need to be established. In Somalia, with delivery of multisectoral services that may require multiple the support of the World Bank,49 the federal government and verifications, validations, or approvals. Lebanon launched five member states have utilized cloud-based solutions since a cloud-based public service delivery platform – the “IMPACT 2015 for their IFMIS. The monthly budget results of the federal Open Data platform – through the Central Inspection Bureau government are posted in open-data format on the cloud, and (CIB).” This inter-ministerial and municipal government- member states regularly post their monthly budget reports wide system provides access to data across sectors, which on their respective ministry of finance websites. In 2019, enables the provision of sectoral digital services under CIB, four member states launched cloud-based human resource including social safety net and vaccinations, to ensure fair management information and payroll systems (World Bank, and transparent service delivery with real-time oversight. 2021). The World Bank is currently assisting the Federal During the pandemic, the platform was also used to manage Government of Somalia, and the governments of Puntland complaints about COVID-19, including violations of lockdown and Somaliland in the design and implementation of cloud- measure and shortages of essential goods, while minimizing based HRMIS solutions linked to FMIS. physical interactions.50 In Sierra Leone, cloud solutions were examined as a The advantages of cloud solutions in contexts where there potential option for e-Government Procurement (e-GP). is a physical risk to IT infrastructure is clear. In countries To provide the government with adequate information to where there is a risk of violence and damage to public buildings, take a decision, a cost-benefit analysis (CBA) for potential cloud solutions can provide a higher degree of safety and hosting solutions for the e-GP system was conducted. The security to systems. This is also seen at the municipal level CBA reviewed the Ministry of Finance data center as well as in Libya.51 Adopting local or international cloud solutions can national, regional, and international public clouds. The review reduce the risk to core systems and services, strengthening examined the costs associated with each solution based on a resilience, provided safety protocols are respected. In some set of requirements to identify potential solutions and costs for countries, legal changes may be necessary to enable the use of hosting the national e-GP system. A CBA for such a hosting such cloud options. For example, in Kosovo, data localization solution is recommended where clients might not have the policies would need to be revised to secure government data capacity to host core government systems. on servers based outside the country boundaries. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 27 3.3 Public Service Delivery and E-Services The provision of services is a key means to support instance, use of E-services was a key recommendation for legitimacy, help mitigate conflict, and reduce the risk of post-conflict Libya to overcome access constraints.54 violence in fragile settings; e-services have tremendous potential to support this goal in FCS.52 Adequate provision According to the Public Service Delivery Index (PSDI), a and access to services can impact both the well-being and subindex of the GovTech Maturity Index (GTMI), there is economic prospects of citizens. In FCS, citizens face significant significant room for improvement in the deployment and use barriers to public services, which can increase marginalization of online public service portals in FCS. The average PSDI of the most vulnerable. Using GovTech solutions for online score for FCS is 0.375 (Group C), with a range from Group A service provision can deliver public services when face-to-face economies (0.852, Kosovo) to Group D (0.031, Micronesia). or onsite access cannot be provided. E-services can increase Of the seven indicators collected, only the online tax service reach of services, enabling and improving access to services in portal and e-payment services are present in more than half rural areas, areas of conflict, fragility, and reconstruction. This of FCS (Figure 9). The remaining range in 16 to 40 percent is particularly relevant for FCS, as unequal or disproportionate of reported availability. One explanation for the low average access to services can reduce trust and affect perceptions scores on online services is likely to be the low internet of legitimacy, raising grievances.53 The potential of GovTech penetration in many FCS. Yet this does not prevent some to support service delivery in FCS is well recognized: for countries to embark in services digitalization. > > > F I G U R E 9 - PSDI Indicator Responses, FCS, 202255 Online Public Service Portal (I-19) Tax Online Service Portal (I-20) e-Filing for Tax/Customs (I-21) e-Payment Services (I-22) Customs Services/Single Window (I-23) Social Ins/Pension Online Services (I-24) Job Portal (I-25) 0.0% 25.0% 50.0% 75.0% 100.0% Yes Planned/In progress “No” Source: GTMI 2022 data. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 28 FCS are investing in unified or sector-based service portals In Kosovo, the government launched the eKosova to provide access to e-services. These include Guinea- eService platform during the pandemic and made Bissau, Ethiopia, Nigeria, and West Bank and Gaza. Face- extensive efforts to improving the quality of and user to-face service windows may only be available in the capital access to public services. These efforts included adopting or large city centers. Requiring physical presence for service an omnichannel approach to service delivery including citizen access incurs travel times and costs for the beneficiaries service centers with in-person technical support, call centers, which can increase barriers to access and contribute to and an outreach program to increase awareness and mobilize discrimination and exclusion of the poor and most vulnerable citizens to access eServices. They plan to implement a groups. E-services can eliminate travel time, reduce costs to monitoring mechanism to measure impact and reach toward access, eliminate touchpoints and potential for petty corruption, targeted youth, senior citizens, women, and community and reduces biases based on gender, income, ethnicity, and groups.56 In Ukraine (see Box 5), the Government built on an stigmas that may be attached to obtaining certain services existing App to mitigate the IDP crisis. and benefits such as social insurance, unemployment, or other entitlements. Conversely, they need to be deployed in a way that ensures broad accessibility to avoid increasing the digital divide. > > > B O X 5 - Expanding an Existing GovTech Mobile Services App to Swiftly Reach the IDP Population In 2022, the Government of Ukraine expanded the existing mobile one-stop shop app, “Diia,” which allowed citizens to gain access to over 50 government services as of 2021.1 The government quickly expanded the functions of the app to support people including over 8 million displaced Ukrainians by providing financial assistance, communication tools with the government, and a fundraising platform for the national armed forces.1 Source: GovTech Forum session on Challenging Context, Washington DC May 2023. E-services can be designed to overcome accessibility Mobile services or access to portals through applications barriers and can be successful in helping to deliver public is also on the rise. It is important to note that mobile service services even in the most affected fragile or remote areas, delivery does not inherently require high-tech solutions to oftentime by using both digital and analog channels. One be effective. Basic technologies such as telephones and example is the provision of services or internet through mobile dumbphones can provide avenues for service delivery buses: in Cambodia, 225 rural schools were provided Internet through call centers and via SMS. For FCS contexts which access by mobile bus, motorcycles, and ox cart to reach are characterized by low connectivity, mobile phones can be the last mile.57 Similar initiatives have been implemented in used to access services using apps or even SMS with a mix of Azerbaijan, Mauritius, Moldova, the Philippines, and Rwanda. offline and online use. Building transactional services requires relevant back- It is important to design these services and solutions office data and processes to be digitized, but progress for the local context. During the 2019-21 political transition at the frontline does not need to wait until the back-office in Sudan, the international community supported a large is fully digitalized. In FCS and other countries digitizing of cash-transfers program, implemented by the transition services has been done in phases. E-services have different government, which used technology to register, inform, and sophistication, from informational to integrated. Small provide benefits to eligible beneficiaries. The program took improvements in face-to-face services such as simplifying into account various barriers to access (low literacy, multiple application procedures can promote efficiencies and quality of languages, and low financial inclusion) to offer benefits using services without a fully digitized back-office. There are many both technology (including SMS) and analog channels to tasks and improvements that can be done while digitization foster inclusion. Planning for low literacy, multiple languages, is ongoing. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 29 and other locally relevant factors is necessary to ensure the in service design helped to increase the overall number of solutions themselves do not foster exclusion. users and addressed a major country level challenge. Taking a citizen-centric approach to service delivery to E-services design and implementation can contribute to ensure that services meet the needs, preferences, and reduce existing fractures in fragile societies. Some groups capabilities of users is on the rise. For example, in Burkina may be excluded through a combination of identity-based Faso,58 the government consulted over a thousand citizens and discrimination or socio-economic status. Box 6 focuses on groups to design and deliver its e-Services on the data.gov. gender inequality and takes stock of how GovTech can help bf portal, aiming to serve an inclusive audience, with specific bridge the service and information gender gap in FCS. attention to women and girls. The early involvement of women > > > B O X 6 - How Can GovTech Help Bridge the Service and Information Gender Gap in FCS? Gender inequality is particularly acute in FCS and is seen as a driver of fragility. Women and girls are more vulnerable to gender-based violence and often face much greater economic hardships than men in FCS contexts. While there are studies on how internet access has positive economic impacts for women such as labor force participation, IT itself is not gender neutral and women and men do not have the same level of control or access to IT such as mobile phones59 (UNDP 2008). Globally, women have less access or control to IT devices. According to GSMA data, the top constraints for women in accessing mobile internet and owning a mobile phone included affordability, literacy and digital skills and safety and security. But in some countries, the barriers are also social and cultural. According to GSMA data, women in lower- middle income countries were 7 percent less likely to own a mobile phone, and 18 percent less likely than men to own a smartphone. Data alone are likely to undermine the gap in access, since in some cases men register handsets on behalf of women, or women need permission to own devices and SIM cards60 – for instance, in Nigeria and Pakistan family approval is required for women. Women are also less likely to use the internet. In 2020, only 19 percent of women used the internet in LICs, compared to 86 percent in developed countries. Across low and middle-income countries, women were 6 per cent less likely than men to use mobile internet as of 2020 (GSMA 2022). With women facing significant challenges in access to internet and devices, how can e-services make a difference for women’s participation and utilization of administrative services? Integrating specific women’s needs in service design and operations for physical one-stop shops (such as those set up in Somaliland, Kosovo, Iraq) can help increase access for females. Actions may include adjusting working hours, establishing equal treatment, and gender sensitive protocols – for example, non-discriminatory language, no mandatory male’s authorization, proactive sharing of relevant information on relevant services so that women receive entitlements and services they are eligible for or can participate in such as skills programs, scholarship programs, job placement services, and domestic violence response.61 Mobile services provide even greater opportunities since mobile internet is the primary way women access the internet.62 One benefit of e-services is that the absence of face-to-face interaction can reduce bias and stigma based on gender, income, or ethnicity. In most FCS including DRC and Zimbabwe, mobile networks are the primary means to connect to the internet. Mobile phones can be a lifeline for women in FCS, providing access to mobile money, remittances, and government cash transfers; it also enables them to access timely information or early warning notifications for natural disasters, and mobiles are being used for citizen engagement and social accountability. Recent work by the International Monetary Fund (IMF) shows that increasing women’s use of the internet can increase their labor force participation (Kumar et al 2023). In LICs countries, it is even more pronounced. But LICs countries face similar constraints as FCS: lower internet use, higher costs for connectivity, lower coverage, and lower quality of service. Programs and initiatives to reduce this gap are needed to raise awareness of the potential impacts these technologies can have for women in FCS. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 30 To maximize investment made in e-Services and increase their personal or bank information into the government owned the number of users, trust building with citizens is systems and allowing governments to hold their information crucially important. Trust can be seen as a function of afterwards. This is an important risk in FCS, especially since usefulness, accuracy, availability, and security of services.63 GTMI data shows that only 25 percent of FCS have a data If users cannot trust service providers, or more generally their protection policy—see Box 7. governments, they feel uncomfortable, for instance, entering > > > B O X 7 - Managing Emerging Risks in GovTech Although digital technologies and the increasing use of data provide many opportunities for improved government and service delivery, they also create new risks such as bias caused by artificial intelligence (AI) in decision-making or privacy concerns. While this is not specific to FCS, growing concerns on cybersecurity and data protection can act as barriers to GovTech adoption. It is important to build and maintain societal trust through policies for managing the risks to privacy and data security. Engaging in FCS also means working differently with data. In these settings, the data environment is often weak. But there are now innovative ways to collect data or draw on partners’ datasets. In recent years, digital solutions have emerged to address data challenges. It is equally important to support governments over the long term in improving their data environment for evidence-based policy making. Strong safeguards are needed to manage and mitigate some of the main risks associated with the digital economy’s growth, including to foster trust in the utilization of digital services, and increase their uptake. These include safeguards that protect citizens from misuse of their personal data that may result in cybercrime,64 such as breaches that can lead to personal and corporate financial losses via identity theft. Adequate data protection and cybersecurity policies are prerequisites for building trust in data systems, which is a crucial driver of the adoption of digital solutions and services.65 Openness and transparency in how such technologies are deployed, combined with a robust data protection and enforcement regime, will be key to maintaining confidence and trust and mitigating risks. However, the GTMI shows that only 25 percent of FCS have a data protection policy. More efforts are needed to build awareness and capacity for data protection and cybersecurity monitoring, response, and enforcement in FCS. 3.4 Citizen Engagement and CivicTech Citizen engagement has a cyclical relationship within According to the Digital Citizen Engagement Index GovTech and digital transformation. To adopt a citizen- (DCEI), a subindex of the GTMI that measures aspects of centric approach to service design and delivery, governments public participation platforms, citizen feedback mechanisms, must engage with a diverse body of beneficiaries to ensure open data, and open government portals, FCS perform the they meet needs, preferences, and capabilities.66 Technology lowest on citizen engagement compared to other subindices. can enable this engagement not only in design, but also The average DCEI score for FCS is 0.219 (Group D), but the after deployment, to measure quality of services and citizen range is quite broad—see Figure 10. It should be noted that satisfaction. That feedback can be used to adapt services and for Non-FCS, this subindex is also the lowest on average. solutions to better meet citizen demands. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 31 > > > F I G U R E 1 0 - DCEI Indicator Responses, FCS Economies, 202267 Open Government Portal (I-28) Open Data Portal (I-29) Natl Platform for Citizen Participation (I-30) Gov Platform for Citizen Feedback (I-31) Citizen Engagement Stats Public (I-32) 0.0% 25.0% 50.0% 75.0% 100.0% Yes “No” Source: GTMI 2022 data. Overall, the results show significant potential for analog tools, so that they can be scaled quickly in the most improvement. While more than half of FCS report having an cost-effective manner and leave no one behind. Frequently, Open Data portal,68 on all other indicators FCS do not perform the most effective technologies are already in use, such as well. Less than 30 percent have an open government portal community radio, television, town halls,69 and mobile phones, or a national platform that allows citizens to participate in which are familiar to most. decision-making or provide feedback on service delivery. Less than 10 percent disclose these citizen engagement statistics. The challenges of supporting citizen engagement in fragile and conflict-affected environments are significant. In FCS, These results are not necessarily explained by lack the social contract is often in flux or weak, so expectations of relevant technology, as GovTech-enabled citizen may differ across social groups, and citizen engagement engagement solutions do not necessarily involve can be particularly sensitive or controversial. Figure 11 disruptive technology such as AI, big data, and summarizes the common constraints and opportunities for blockchain. Functional solutions are accessible, affordable, citizen engagement in FCS. easy to use for all, and complementary to traditional and EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 32 > > > F I G U R E 1 1 - Citizen Engagement in a Fragile Environment70 Political society Global factors • Low capacity • Aid dependency may flip • No full or exclusive authority accountability relationships over territory toward external actors; • State competing with other yet international pressure groups for legitimacy to can support more exercise powers accountable systems BUT: State Society Relations Civil Society • Transition time can act as flashpoints to support • “Social contract” in influx • Low individual’s enabling environment for • Expectations differ across capacity to participate in citizen engagement social groups collective action • Citizen engagement can • Space for participation when be particularly controversial it exists risks reproducing and sensitive existing inequalities and exclusions, bonding rather BUT: than bridging social capital • Informal accountability BUT: relationships outside state structure can be models for • Presence of civil society rebuilding formal institutions or community-based groups who served the public good before and throughout conflict can fill in capacity gaps Political settlement • Highly exclusionary, predatory, unstable or entrenched political settlements limiting accountability Source: Grandvoinnet, Helene, Ghazia Aslam, and Shomikho Raha. 2015. Opening the Black Box: The Contextual Drivers of Social Accountability. New Frontiers of Social Policy series. Washington, DC: World Bank. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 33 Reforms supporting citizen engagement need to consider constrain the level of participation of significant numbers of the factors that constrain state or citizen interest or the individuals or vulnerable groups. capacity to engage. On the government’s side, in FCS where fragility is linked to closed polities and restrictions on freedom The rise of “Digital Authoritarianism”71 has cast a shadow of information and freedom of speech, GovTech reforms, on the adoption of technology in some regimes. While supporting greater transparency and accountability are not GovTech may have positive impacts, such as facilitating supported or actively discouraged. Concerns around privacy, citizens’ voices, in some countries it can be used to silence internet security, and surveillance issues can take center those same voices. Shrinking civic space has translated to stage. Overall, in FCS, transparency levels, for instance on the online realm, with more countries limiting internet use key public information such as the national budget, tend to and access. Government can use social media to inform and be lower than in non-FCS, thus constraining the scope for engage with citizens, but social media can also be used to effective use of GovTech. On the citizens’ side, in many fragile strengthen existing power imbalances and limit inclusion, environments, as mentioned above, the “digital divide” might accountability, and democracy72 (Box 8). > > > B O X 8 - The Dark Side of the Internet and the Rise of Digital Authoritarianism Digital authoritarianism is defined as “the use of digital information technology by authoritarian regimes to surveil, repress, and manipulate domestic and foreign populations.”73 This includes spyware, artificial intelligence driven deepfake videos and images, social media manipulation, mass surveillance, online surveillance, and interception, blocking messaging applications, content removal, and other mechanisms. It is both a security and political issue, which has led to new action by global organizations. Digital technologies and related policies can be used to reduce access to information, limit free expression and the ability to hold government to account, limit privacy, limit economic opportunity and access to services to businesses and citizens, limit voice and ability to interact with diaspora (Freedom House 2022). The Freedom House 2022 Freedom on the Net Index shows that globally, internet freedom has declined steadily for the past 12 years, with the sharpest drops in FCS including Libya, Myanmar, and Sudan. Data localization and censorship are a key issue: 47 of 70 countries in the index have at times limited access to information outside national boundaries. Ten FCS are included in the Freedom on the Net Index – Ethiopia, Iraq, Lebanon, Libya, Myanmar, Nigeria, Sudan, Ukraine, Venezuela, and Zimbabwe. Of these, four are rated as “not free,” while the remaining are rated as “partly free.” Controlling information flows and limiting media freedom is a violation of the Universal Declaration of Human Rights. It is a reaction to the use of technologies for communication and information that can challenge state control and therefore can be threatening to the status quo (Lamoureaux and Sureau 2018). Another issue is the use of disinformation and propaganda: authoritarian campaigns often involve accounts of real users to promote government narratives and undermine opposition.74 Platforms such as Twitter and Facebook have been used to disseminate disinformation campaigns to undermine institutional legitimacy, influence electoral campaigns and elections, and disrupt democracy (Bennett and Livingston 2018). It should be noted that these practices are pervasive and not specific to FCV contexts, as they also have impacted presidential elections in the United States and United Kingdom’s Brexit. While international organizations are working toward policies – for instance, the European Declaration on Digital Rights and Principles75 – the use of technology to manipulate, repress, and surveil continues to spread across countries. To curb such attempts, collaborative efforts will be needed, through new laws, regulations, and likely new technology to scan, identify, and verify legitimate use and users of the internet. Source: Feeney and Porumbescu, 2020; Polyakova and Meserole, 2019; Lynch, 2022; and Freedom House, Freedom on the Net Index 2022: https://freedomhouse.org/report/freedom-net/2022/countering-authoritarian-overhaul-internet. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 34 Still, there are real opportunities to use technology to foster The increase in availability and adoption of smartphones Citizen Engagement in FCS; the use of mobile phones for enhance opportunities for citizen monitoring through citizen information, feedback, and participation is such geotagging and photography—see Box 9. Using an opportunity. Voice calls remain a viable and valuable smartphones also allows for more and new data to become method for engaging with citizens, and providing call centers available for crime and violence incidents, service gaps and for feedback, information, and participation. This channel of issues, disaster recovery, or grievance redress. The availability access is often overlooked in favor of more high-tech solutions. of this new data can be used in FCS settings for development, But in FCS contexts where mobile phone penetration is higher response, and inclusion. than internet, this remains a good option. > > > B O X 9 - Geo-Enabling initiative for Monitoring and Supervision The Geo-Enabling initiative for Monitoring and Supervision (GEMS), was launched by the World Bank FCV Group to systematically enhance monitoring and evaluation as well as supervision and third-party monitoring in FCV settings and beyond. This is achieved by building capacity among clients, partners, and World Bank teams on the ground, to leverage field-appropriate, low-cost, and open-source technology for digital real-time data collection and analysis. A central element of the method is to use “simple-enough,” low-cost tools and procedures that are appropriate for the most fragile environments with low capacity. Technically, the GEMS method is based on the use of cost-free software and common smartphones that allow for offline field data collection – no internet or network connectivity are required in the field. As of September 2022, GEMS had been implemented with close to 1,000 World Bank-funded operations in over 100 countries and more than 6,000 government staff have been trained in its use. This includes FCS of Burundi, CAR, Djibouti, Niger, Myanmar, South Sudan, and other locations. Given the versatility of GEMS and its tools, it is also extensively used for Citizen Engagement, both in terms of gathering feedback from stakeholders as well as communicating development interventions and their outputs to citizens (click here for specific use cases across sectors and regions). As highlighted by the 2021 WBG report, Amplifying People’s Voices: Opportunities for Mainstreaming Citizen Engagement through Digital Technologies, the use of GEMS and KoBo has been most effective when governments or local partners have applied the skills and tools beyond the scope of World Bank projects and leveraged them for monitoring and any other citizen engagement purpose. Click here for specific use cases across sectors and regions. Source: World Bank Group intranet. Mobile technology is also being used to proactively collect feedback from users, thus increasing the accountability of service providers. In Myanmar, the government took a proactive approach, reaching out to identified beneficiaries through text messages, automated calls, and agent calls to receive feedback on public services they received. Unlike standard hotline complaint mechanisms, the government managed to obtain more granular, cleaner, high volume, and actionable feedback that lends itself better to performance monitoring and systems response to problems. Ukraine implemented a similar approach as an effective mean of scaling up beneficiary engagement in a timely manner. These approaches can be applied to sectors (health and education) as well as across the whole of government and can support program design, policymaking, and service delivery. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 35 4. >>> Conclusions The findings show that, despite challenges, there are vast opportunities to improve GovTech maturity in FCS. Although there is no one-size-fits-all path for GovTech reforms in FCS, the following guidance can serve as a basis that can be adapted to each specific context. Operating in FCV settings is far from business as usual. They are often characterized by rapidly changing circumstances, differing levels of insecurity, fragile and volatile political situations, macroeconomic instability, low institutional capacity, a weak enabling and investment climate for the private sector, and higher risks of violence against vulnerable populations. In FCS, there are significantly higher risks and costs of engagement that need to be taken into account in operational settings. The digital divide is greater in FCS in terms of access to electricity, internet, devices, and literacy. This further constrains the level of uptake and participation of significant numbers of individuals or vulnerable groups. Barriers to access technological platforms can be financial (cost of access to platform or IT device), skill-based (digital skills), or social (literacy, gender, language). While these barriers exist across many LICs and MICs, they are likely to be higher in FCS. Some of the following recommendations may apply to non-fragile countries, but they are even more important in fragile contexts, as described below, and thus need to be prioritized. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 36 Overall reform design and process In addition to a phased approach, planning for scale early can save time and resources. Scalable solutions that can GovTech reforms in FCS need to adapt the interventions meet the client where they are in terms of organizational to local political economy, capacity, and incentives. capacity and coordination, can reduce risk of large-scale Applying best practices without consideration of and projects and interventions, and provide a demonstration effect. adaptation to local constraints including capacity, culture, and political environment can be ineffective and contribute to In all countries, the level of leadership and coordination failure. The examples provided show that attention to details for GovTech reforms is crucial. On the coordination front, can make a difference to the success of a GovTech initiative. the World Bank and more broadly the donor community need GovTech interventions in FCS should match client capacity to support the government in ensuring that whatever support and readiness. is provided, is in line with the government strategy and that interoperability of systems is secured or planned for. Unsurprisingly, the examples in this report highlight the need for project designs that can adapt to a rapidly Partnerships and peer-to-peer learning can increase changing environment. These changes may be political, the envelope and impact of GovTech interventions and such as a change in leadership or government that shifts reduce risk in FCS contexts. Actors contributing to violence priorities; resource related, opportunity to scale up or down prevention may include the state, civil society organizations, based on available resources; or related to a change in community organizations, the private sector and the donor the spread or location of open conflict, such as location of community. Engaging a plurality of actors can support a project. sustainability of reforms. These partnerships can provide the capacity, resources, and legitimacy which can strengthen A phased approach can enable improvements across institutions and support project implementation.87 Working different aspects of GovTech. In environments of low together, sharing expertise, and pooling financial resources GovTech maturity and active conflict, a sequential approach can also reduce risks for individual donors and partners. focused on a central part of government, such as the Ministry of Finance or a specific agency, is more likely to yield results Focusing on change management is critical for GovTech than a whole-of-government approach. Once digitization solutions to yield efficiencies and impacts. GovTech capacity is built around core functions such as accounting and solutions imply changes in processes, procedures, and daily budget execution, digitization can be expanded sequentially operations. But in FCS contexts, it is important to manage to other parts of government. Support to service delivery change within the existing political context, which may be fluid. could also be made a priority, since the needs are great, and This uncertainty can make GovTech implementation more the benefits could bring visibility and support both results challenging. Mapping the political economy and elite bargains and trust. is advisable to comply with the motto ‘do no harm’. These mappings will likely differ depending on the sector of focus Overcoming country level constraints to use technology in and national and subnational contexts.76 The implementation day-to-day administration, whether institutional, political, plan can be adapted based on the findings. technical, or infrastructural can be long term efforts, but incremental steps can produce desirable results. It is Table 3 below provides some approaches to address possible to achieve concrete results in the short term. common challenges to GovTech in FCV. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 37 > > > T A B L E 3 - Some Approaches for Overcoming Common Challenges in FCV Common Challenges in FCV Countries Potential approaches to address these in GovTech Efforts Political economy • Conduct a stakeholder analysis, map political economy and elite bargains, and adjust implementation accordingly The complex interplay of politics and • Use a sequential approach focused on a central part of government to competing interests can undermine the increase probability of producing results government’s ability to execute and • To sustain momentum, prioritize building digitization capacity in sectors of deliver GovTech reforms. greater need where benefits are visible and could generate support • Ensure there is a basic legal and regulatory framework to protect data and data privacy Corruption • Provide governments with relevant knowledge needed to negotiate contracts • Provide enhanced support on procurement rules and processes and stronger Complex IT procurements are attractive avenues for accountability. Implementation of e-procurement portals can opportunities for corruption, and this reduce risks of corruption often inhibits the successful design and • Stay focused on ensuring value for money and avoid temptation to go rollout of GovTech initiatives. “all digital” Capacity • Prioritize digitalization efforts by providing clear guidelines to focus efforts on a limited number of services, based on criteria such as usage and demand, Limited state capacity can result convenience gains, and ease of implementation in inadequate design, planning, • Incorporate change management hand in hand with GovTech solutions to procurement, management, and facilitate ownership and sustainable adoption maintenance of GovTech initiatives. • Leverage partnerships and peer-to-peer learning to strengthen institutions, support implementation, and reduce risks Lack of donor coordination • Coordinate among donors and government to ensure that (donor) support is in line with government strategy This can risk duplication of efforts • Ensure that interoperability of systems is secured or planned for and fragmented and foster ineffective GovTech initiatives Infrastructure gaps/Low connectivity • Design GovTech solutions considering the digital divide —e.g., design services that do not require fast internet or smartphones to access, Underdeveloped infrastructure can • Enable omnichannel access (including traditional, analog and digital) pose a challenge to GovTech initiatives to services that rely (too much) on widespread and • Establish one stop shops or digital access points where citizens can access stable internet access for successful services with staff assistance deployment and use Low digital skills • Training or capacity building on basic digital skills and digital literacy • Leverage youth population Low levels of digital literacy among • Design simple user interfaces citizens may limit their ability to • Focus on upskilling and building capacity on both supply and demand sides engage with and benefit from GovTech to support uptake. solutions; a lack of digital skills among • Outsource digital and internet-era skills that are still uncommon in the civil servants limit the design and public sector execution of GovTech EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 38 Table 3 continued Common Challenges in FCV Countries Potential approaches to address these in GovTech Efforts Funding Gaps/ higher costs of • Planning for scale early. Develop scalable solutions that meet clients where engagement they are in terms of capacity and coordination, can reduce risk of large-scale projects and interventions, and provide a demonstration effect Funding shortfalls impede sustainability • Leverage digital public groups (source code of software, code books, and and ability to plan into the future implementation guidance) GovTech enablers automation of bureaucratic processes. Staying focused on ensuring value for money is key to fend off temptation to go Many FCS have a GovTech strategy and a dedicated “all digital” with solutions that are oversized for the context agency. It is important to focus efforts on functions, not but are sometimes chosen because they offer opportunities forms. GovTech reforms need strong leadership, financial for personal enrichment. Ensuring that a basic legal and and human resources, and political clout to ensure that regulatory framework is in place to protect data and data reform implementation is tailored to the needs, means, and privacy is imperative. capacity of the country. Sustaining momentum is likely to be more challenging in a fragile environment, and monitoring Prioritization and sequencing of reforms is particularly achievement of incremental steps is more likely to succeed important in FCS, where capacity tends to be low. It is than planning for radical changes in a short time. prudent to start small and scale up. Ensuring that the enablers are present is key to facilitate future GovTech solutions. Many FCS lack a legal and regulatory framework to Scalable solutions that can meet the client where they are guarantee the Right to information and protect data. Such in terms of organizational capacity and coordination, can laws are fundamental to enable GovTech and also protect reduce risk of large-scale projects/interventions, and provide users. Even when such laws exist, their enforcement can be a demonstration effect. lagging. This is an area which needs attention to ensure that GovTech reform can achieve its goals without abuse, as FCS Given the limited capacities in FCS, focusing on countries are more likely to be vulnerable to infringement, developing digital skills to utilize technologies is a wise because of their low institutional development and weak investment. Ensuring civil servants have relevant skills to accountability systems. use the solutions can promote interest and support uptake, particularly in settings where technical capacity and digital Building adequate human capacity to sustain digitalization skills are low. Low-cost training programs can be created reform is a long-term effort. A focus on upskilling and building through partnerships with vendors, reworking existing capacity on both supply and demand sides can support uptake. curricula, or via public administration training/partnerships For initiatives to become successful, governments may have with local universities. to source digital and internet-era skills that are still uncommon in the public sector. This includes positions such as UX Adequate financial and human resources are necessary researchers, agile product managers, and content designers. to sustain a long-term digitization reform. Digitization is a On the demand side, including activities to increase digital long-term effort; whole-of-government as well as sector-based literacy and skills of beneficiaries may be necessary for citizen reforms including service modernization can take years. engagement and service delivery applications. Outreach Adding in large ICT procurements can delay project progress and communications can foster demand side pressure and and result in suboptimal technology. promote interest and excitement. Additional support to procurement is important, in light of Core government functions the size and technical content of ICT equipment purchases. Procurement of ICT and GovTech solutions requires technical Understanding and managing possible vested interests knowledge clients may not have. Selection and procurement determined to prevent changes is crucial as some of necessary systems, hardware, and software can be a actors have much to lose from the simplification and barrier, as well as adapting those systems to the country EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 39 context and ensuring their compatibility. Providing support to hasty and ineffective or failed digitalization of services. to each stage including market analysis, needs assessment, Providing clear guidelines that encourage focusing on a requirements, evaluations, and contract award can strengthen limited number of services, based on criteria such as usage successful and transparent procurement and ensure solutions and demand, convenience gains, and ease of implementation, meet client needs. could be beneficial. Service delivery and/or citizen engagement Use “digital public goods.” In fragile contexts with limited resource and capacity, leveraging digital public goods can Using the most relevant channel to reach beneficiaries, significantly streamline digital service implementation, freeing keeping the digital divide in mind. The digital divide is likely up time and resources for governments to address other to be more pronounced in a fragile country. Fragile countries challenges. The increasing availability of the source code of are often LICs, with higher poverty rates and often large software, code books, and implementation guidance that is discrepancies between urban and rural areas in terms of digital free to access, can allow FCS and other countries at a low skills or/and connectivity. They also tend to suffer from social GovTech development level to leapfrog, building on existing tensions that are reflected in polarization or discrimination that lessons and solutions in an affordable manner. can leave some people behind. It is therefore crucial to always assess which individuals or groups will be able to access any Specific recommendations for countries with limited advance provided by GovTech reform, and to put in place access or high levels of violence ways for increasing the numbers that can benefit through larger access or use of different types of channels. In extreme FCV situations and those with active conflict, there may be limited opportunities to engage. In these The use of omnichannel access to services can help cases, relying on partners such as UN agencies on the ground, bridge the gap for those without connectivity, devices, utilizing drone technology, and engaging through virtual means or literacy to access administrative services. One-stop can facilitate progress. The COVID-19 pandemic proved the shop approaches or digital access points that are staffed value of virtual meetings for policy dialogue, implementation can provide guidance to those who need assistance or are support, and capacity building. These lessons are applicable uncomfortable with technology. Providing multiple entry points to FCV contexts. can also ensure service delivery is uninterrupted and can support accessibility. Investing in cloud solutions such as IaaS, SaaS, and PaaS can support development and deployment of GovTech Omnichannel is considered ideal, but also the most solutions, particularly in FCS that are characterized by difficult and expensive, so consistently matching violence. Cloud solutions for core government systems such traditional and analog with digital solutions is likely to be as those adopted in Libya, Sierra Leone, Somalia, and West needed at least initially. As internet access is often limited in Bank and Gaza show that with a small recurrent operational most FCS – sometimes to a small fraction of the population – cost, solutions can stay up to date by reducing upfront costs. governments should prioritize mobile-based services that do The use of hybrid clouds, combining government owned not rely on internet connectivity, for example, SMS, Interactive and public cloud infrastructure, can also reduce costs, Voice Response systems, and call-centers. increase reliability and uptime, and reduce the impact of data sovereignty and data localization policies. The application Provide information first as a foundation to providing of cloud solutions for core government systems, service services. Governments often prematurely embark on delivery, and data management and storage provide many transactional services without first mastering the provision opportunities for FCS to apply recent technology for efficient of clear, accessible online information. This normally leads digital government. to repeating past failures instead of achieving technological leapfrogging. Beyond its logical progression, this initial step Leveraging technology for smarter, real time fiduciary of identifying and providing necessary information to citizens oversight of reconstruction and recovery operations is crucial to building government capacity for citizen-centric in FCV contexts is another avenue for GovTech in FCV. services and citizen engagement. Table 4 below summarizes possible techniques that can be used in such situations. Digitalizing the “right” service. Governments often struggle to decide which services to digitalize, many times leading EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 40 > > > T A B L E 4 - Leveraging Technology for Smarter, Real Time Fiduciary Oversight of Reconstruction and Recovery Operations in FCV Contexts Technique or approach Pros Cons Geo- tagging of project activities Helps ensure equity of interventions Requires precise geo-localizations (assigning geographic coordinates to across communities, facilitates citizen of activities, not suitable for highly activities in order to be able to monitor feedback and oversight thereby distributed projects that cannot be their progress on a map) promoting inclusion; can be combined assigned geographical coordinates with third-party monitoring (including (e.g. cash transfers) geo-localized pictures taken by TPMs, etc.) and technical audit. Lessons can be learnt from early adopters of this technology in the Bank, when applying in a fiduciary context. Satellite remote sensing (using Allows for daily, high definition Not suitable for projects with no visible latest generation remote-sensing monitoring of physical changes in the physical outputs; Depends on reduced technology from satellites or drones natural or built environment. cloud cover; price TBD. for daily coverage of the entire planet) Distributed ledger / Blockchain Allows direct control of activities Not appropriate for large civil (provides assurances that each involving multiple small transactions works projects transaction makes its way to the final (such as cash transfers, Community beneficiary, as opposed to audit which driven development projects) works on a sample basis) Big data analysis of social Allows proactive, real-time analysis Requires an active social media scene media postings of the citizen perception of projects; (present in Yemen and Iraq). identification of red flags for fraud, corruption and unequal treatment of communities; complement to complaints handling mechanism Interactive feedback from users of Allows real-time, two-way May require specific software design services, via apps or social media communication with beneficiary and implementation support. Requires communities; targeted follow-up of action on the part of the Bank/ red flags and complaints authorities to sustain citizen interest. Social media-based complaints Promotes transparency accountability Requires necessary infrastructure and handling systems and inclusion internet coverage. Using mobile based Facilitates implementation monitoring Needs to be designed based on payment applications and control of small payments, the requirements, and the banking purchases and cash handouts system of the host community needs to allow it. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 41 >>> Notes 1. World Bank DG Projects Database, authors calculations. 2. For more information, see GovTech: the New Frontier in Digital Government Transformation, 2020. https://documents1.worldbank.org/curated/en/898571612344883836/pdf/GovTech- The-New-Frontier-in-Digital-Government-Transformation.pdf; A GovTech glossary is available from: https://thedocs.worldbank.org/en/doc/f829445034f5f493da4d1a0b 33e1b734-0350052022/original/GovTech-Glossary-022822.pdf. 3. World Bank FCV Strategy 2020-2025. 4. For a more comprehensive discussion, see World Bank. 2020. GovTech Launch Report and Short-Term Action Plan. EFI Insight-Governance. Washington, DC: World Bank. 5. For more information on the governance impacts, see GovTech Launch Report and Short Term Action Plan. 6. “Digitalization and Development,” April 2022 – Development Committee meeting presentation to IMF-WBG Board. 7. World Bank FCV Strategy 2020-2025, p viii. Available from: https://documents1.worldbank. org/curated/en/844591582815510521 /pdf/World-Bank-Group-Strategy-for-Fragility- Conflict-and-Violence-2020-2025.pdf. 8. “Digitalization and Development,” April 2022 – Development Committee meeting presentation to IMF WBG Board 9. WBG FCV strategy 2020-2025. 10. Brinkerhoff, 2011 and UN 2022. The UN report is available from: https://www.un.org/osaa/ sites/www.un.org.osaa/files/un_advocacy_brief_en_final_justified_0.pdf. 11. UN, 2022. 12. World Bank Group. 2021. Amplifying People’s Voices: Opportunities for Mainstreaming Citizen Engagement through Digital Technologies. 13. https://www.devcommittee.org/sites/dc/files/download/Documents/2022-04/Final%20 on%20Digitalization_DC2022-0002.pdf. 14. https://www.worldbank.org/en/programs/govtech/gtmi. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 42 15. The similarities and differences of the GTMI findings as compared to other global indexes are discussed in the GTMI 2020 and 2022 Update reports, which also present the GTMI methodology in detail. 16. The participating countries are Burkina Faso, Burundi, Cameroon, Comoros, Democratic Republic of Congo, Ethiopia, Iraq, Kosovo, Lebanon, Mali, Federated States of Micronesia, Papua New Guinea, Somalia, Timor-Leste, Ukraine, Bolivarian Republic of Venezuela, West Bank and Gaza, and Zimbabwe. Meanwhile, the following economies’ governments did not participate in the survey: Afghanistan, Central African Republic, Chad, Republic of Congo, Eritrea, Guinea-Bissau, Haiti, Libya, Marshall Islands, Mozambique, Myanmar, Niger, Nigeria, Solomon Islands, South Sudan, Sudan, Syrian Arab Republic, Tuvalu, and Yemen. 17. In the following GTMI graphs, the economies that are referred to as FCS are those based on the World Bank’s FY23 list – see Annex 1. Based on that list, those affected by violence include Afghanistan, Burkina Faso, Cameroon, Central African Republic, Congo, Dem. Rep., Ethiopia, Iraq, Mali, Mozambique, Myanmar, Niger, Nigeria, Somalia, South Sudan, Syrian Arab Republic, Ukraine, Yemen. Meanwhile, those affected by institutional and social fragility include Burundi, Chad, Comoros, Congo, Rep., Eritrea, Guinea- Bissau, Haiti, Kosovo, Lebanon, Libya, Marshall Islands, Micronesia, Fed. Sts., Papua New Guinea, Solomon Islands, Sudan, Timor-Leste, Tuvalu, Venezuela, RB, West Bank and Gaza, Zimbabwe. Note that the 2022 GTMI data was collected prior to the Russian invasion of Ukraine, so the data for Ukraine does not yet reflect the impact of the war. 18. See Annexes for full list of countries and income level groups. 19. All Worldwide Governance Indicators were examined, that is Voice and Accountability, Political Stability No Violence, Government Effectiveness, Regulatory Quality, Rule of Law, and Control of Corruption. World Development Indicators examined include access to electricity, mobile money account ownership, broadband subscriptions, GDP per capita, mobile subscriptions, and tax revenue. 20. The literacy rate for women 15 and above in 2020 in FCS was only 58.4 percent. Source: UNESCO Institute for Statistics (UIS). UIS.Stat Bulk Data Download Service. apiportal.uis. unesco.org/bdds. Accessed October 24, 2022, via data.worldbank.org. 21. World Bank and Kaduna State Government 2020. 22. Koomar, Coflan and Kaye, 2020 https://docs.edtechhub.org/lib/CMS6HPI8/download/ E8S8G3L7/Koomar%20et%20al.%20-%202020%20-%20Using%20EdTech%20in%20 Settings%20of%20Fragility%2C%20Conflict%20an.pdf. 23. https://www.internetsociety.org/issues/community-networks/success-stories/murambinda/ 24. https://plan-uk.org/policy/youth-action-in-fragile-settings. 25. Gwaka, 2018. https://onlinelibrary.wiley.com/doi/pdf/10.1002/isd2.12025. 26. Gwaka, 2018. 27. GSMA. 2023. State of the Industry Report on Mobile Money 2023. https://www.gsma. com/sotir. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 43 28. https://www.undp.org/ukraine/press-releases/updated-version-your-rights-mobile- application-has-been-launched-internally-displaced-persons-and-people-who- have-suffered. 29. For indicator I-42, the category “Planned/In progress” captures countries which report that “Regulation [for data signature platforms are] approved; no Infrastructure yet” and “Regulation and Infrastructure in place. Not used yet/in progress.” “Yes” captures countries which report that data signature platforms are operational and used in practice for e-Services. See Annex 4 of the 2022 GTMI key indicators for the full list of GTMI questions. 30. Cameroon: Identification and Civil Registration Ecosystem Assessment and Policy Dialog in Cameroon (P179547). 31. World Bank, 2022: Guinea-Bissau DE4A. 32. World Bank, 2022 Guinea-Bissau DE4A, p 38. 33. Data Guidance. 2023. Cameroon – Data Protection Overview. https://www.dataguidance. com/notes/cameroon-data-protection-overview. 34. World Bank 2022. Tech Savvy: Advancing GovTech Reforms in Public Administration. https://documents1.worldbank.org/curated/en/099400004112257749/ pdf/P1754970d6c6420f00ab5905f7004ba9c2f.pdf. 35. World Bank. “Bureaucracy Lab GovTech Survey.” In: World Bank (2022): Tech Savvy: Advancing GovTech Reforms in Public Administration, p.83. 36. World Bank 2022. Tech Savvy: Advancing GovTech Reforms in Public Administration. 37. World Bank. 2020. Democratic Republic of Congo Digital Economy Assessment. 38. https://www.devcommittee.org/sites/dc/files/download/Documents/2022-04/Final%20 on%20Digitalization_DC2022-0002.pdf. 39. International Institute for Sustainable Development, 2012. 40. GTMI 2022. 41. https://prozorro.gov.ua/en. 42. Kelmen and Yukins, 2022. https://scholarship.law.gwu.edu/cgi/viewcontent.cgi?article=2 887&context=faculty_publications. 43. See Annex 4, 2022 GTMI key indicators, for the full list of GTMI questions. 44. Kelly et al 2023. 45. International Institute for Sustainable Development, 2012. 46. SaaS examples include Google docs and collaboration tools such as shared team files. PaaS includes both hardware and software options such as Windows Azure, Google App Engines and others. IaaS includes virtual hardware and infrastructure such as for data storage and servers. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 44 47. Public clouds are most common and are owned and operated by a third-party service provider such as Google, Microsoft, HP, IBM and others. Private clouds are owned exclusively by one organization such as government and can be used when there are specific data sovereignty and locality regulations in place. Hybrid clouds combine public clouds with private clouds on premises which allow data exchange and applications to move across the two different cloud environments. 48. Such as Amazon’s AWS, Microsoft Azure, IBM Cloud, Google, Salesforce, Dropbox, and Alibaba. 49. World Bank. Second Public Financial Management Capacity Strengthening Project (P151492). https://projects.worldbank.org/en/projects-operations/project-detail/P151492. 50. Central Inspection Bureau. 2021. IMPACT Open Data Platform. https://impact.cib.gov.lb/home. 51. Mohamed, 2017. 52. Brinkerhoff, 2011 and UN 2022. UN report: https://www.un.org/osaa/sites/www.un.org. osaa/files/un_advocacy_brief_en_final_justified_0.pdf. 53. UN 2022. 54. Mohamed, 2018. 55. See Annex 4 (2022 GTMI key indicators) for the full list of GTMI questions. 56. World Bank. Kosovo Strengthening Digital Governance for Service Delivery, Project ID: P178162. https://projects.worldbank.org/en/projects-operations/project-detail/P178162. 57. IEEE Computer Society. 2004. “DakNet: Rethinking Connectivity in Developing Nations.” 58. Burkina Faso eGovernment project (P155645) supported by the World Bank. https:// projects.worldbank.org/en/projects-operations/project-detail/P155645. 59. UNDP, 2008. https://www.undp.org/sites/g/files/zskgke326/files/publications/f_ GenderGovPr_eG_Web.pdf. 60. Cheney, 2022. https://www.devex.com/news/mobile-gender-gap-increased-during- pandemic-new-data-shows-102779. 61. https://www.data4impactproject.org/prh/service-delivery/gender-equity-and-sensitivity- in-service-delivery/gender-sensitivity-in-the-service-delivery-environment/. 62. GSMA, 2022. https://www.gsma.com/r/wp-content/uploads/2022/06/The-Mobile-Gender- Gap-Report-2022.pdf. 63. Santhanamery and Ramayah in S. Saeed et al. (eds.). User Centric E-Government. Integrated Series in Information Systems. 64. World Bank. 2021. World Development Report 2021: Data for Better Lives. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 45 65. Development Committee Paper, April 2022. “Digitization and Development.” https:// www.devcommittee.org/sites/dc/files/download/Documents/2022-04/Final%20on%20 Digitalization_DC2022-0002.pdf. 66. World Bank 2022. Service Upgrade. https://thedocs.worldbank.org/en/doc/ c7837e4efad1f6d6a1d97d20f2e1fb15-0350062022/service-upgrade-the-govtech- approach-to-citizen-centered-services. 67. See Annex 4 of the 2022 GTMI key indicators for the full list of GTMI questions. 68. It should also be noted that the DCEI only measures the presence of the tools and does not capture data in use, update frequency, datasets on the portals, etc. 69. In FCV settings which are not in active conflict. 70. Grandvoinnet and Chasara. 2019. Engaging Citizens in Countries Affected by Fragility, Conflict, and Violence; and Grandvoinnet, Aslam, and Raha. 2015. Opening the Black Box: The Contextual Drivers of Social Accountability. 71. Feeney and Porumbescu, 2020. “The limits of social media for public administration research and practice. https://doi.org/10.1111/puar.13276. 72. Feeney and Porumbescu, 2020. 73. Polyakova and Meserole, 2019. https://www.brookings.edu/research/exporting-digital- authoritarianism/. 74. Lynch, 2022. https://ecfr.eu/publication/iron-net-digital-repression-in-the-middle-east- and-north-africa/. 75. https://eur-lex.europa.eu/legal-content/EN/TXT/HTML/?uri=CELEX:52022DC0027. 76. A more detailed discussion and methodology can be found in World Bank. 2017. “Social Service Delivery in Violent Contexts Achieving Results Against the Odds: A Report from Afghanistan, Pakistan, and Nepal.” https://documents1.worldbank.org/curated/ en/343141497021595501/pdf/116038-WP-PUBLIC-184p-SocialServiceDeliveryinViolent ContextsFinal.pdf. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 46 >>> References Bennett, W. 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Integrated Series in Information Systems 39. Cham, Switzerland: Springer. DOI 10.1007/978-3-319-59442-2_5. United Nations. 2022. “Stronger States for Increased Stability: Digitalization of Public Service Delivery for Peace and Security in Africa.” https://www.un.org/osaa/sites/www.un.org.osaa/files/ un_advocacy_brief_en_final_justified_0.pdf UNDP. 2008. “Gender Responsive E-Governance: Exploring the Transformative Potential.” https://www.undp.org/sites/g/files/zskgke326/files/publications/f_GenderGovPr_eG_Web.pdf UNESCO Institute for Statistics (UIS). UIS.Stat Bulk Data Download Service. apiportal.uis.unesco.org/bdds. Accessed October 24, 2022, via data.worldbank.org. USAID. n. d. “Gender Sensitivity in the Service Delivery Environment.” https://www. data4impactproject.org/prh/service-delivery/gender-equity-and-sensitivity-in-service-delivery/ gender-sensitivity-in-the-service-delivery-environment/ World Bank. 2011. World Development Report 2011: Conflict, Security, and Development. Washington, DC: World Bank. http://hdl.handle.net/10986/4389 _______. 2020. GovTech Launch Report and Short-Term Action Plan. EFI Insight- Governance. Washington, DC: World Bank. https://documents1.worldbank.org/curated/ en/213131609824669955/pdf/GovTech-Launch-Report-and-Short-Term-Action-Plan.pdf _______. 2022. Amplifying People’s Voices: Opportunities for Mainstreaming Citizen Engagement through Digital Technologies. Washington, DC: World Bank. _______. 2021. World Development Report 2021: Data for Better Lives. https://www.worldbank. org/en/publication/wdr2021 _______. 2022. Guinea-Bissau Digital Economy Diagnostic. Washington, DC: World Bank. http://hdl.handle.net/10986/37730 _______. 2022. Service Upgrade: The GovTech Approach to Citizen Centered Services. EFI Insight-Governance. 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Washington, DC: World Bank. https://documents1.worldbank.org/curated/ en/099151502022339685/pdf/P1722860cde58709908c5909993c5ecb1f1.pdf EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 49 World Bank and International Monetary Fund (IMF). 2022. “Digitalization and Development.” Document for the Development Committee Meeting, April 22, 2022. https://www.devcommittee.org/sites/dc/files/download/Documents/2022-04/Final%20on%20 Digitalization_DC2022-0002.pdf World Bank and Kaduna State Government 2020. Click-On Kaduna Digital Skills Report. https://documents1.worldbank.org/curated/en/637451585717957301/pdf/Click-On-Kaduna- Digital-Skills-Report.pdf World Bank Group. 2017. “Social Service Delivery in Violent Contexts Achieving Results Against the Odds: A Report from Afghanistan, Pakistan, and Nepal.” https://documents1.worldbank.org/ curated/en/343141497021595501/pdf/116038-WP-PUBLIC-184p-SocialServiceDeliveryinViole ntContextsFinal.pdf _______. 2020. Democratic Republic of Congo Digital Economy Assessment. https://thedocs. worldbank.org/en/doc/61714f214ed04bcd6e9623ad0e215897-0400012021/related/DRC- DE4A-EN-Final.pdf _______. 2020. World Bank Group Strategy for Fragility, Conflict, and Violence 2020–2025. Washington, DC: World Bank. http://hdl.handle.net/10986/34858 _______. 2021. Assessing digital readiness and skills and the organizational climate for innovation in the civil service. Key findings from a survey of public officials in Kosovo on digital readiness and skills in the Civil service. Report. _______. 2022. “GovTech Glossary.” https://thedocs.worldbank.org/en/doc/f829445034f5f493 da4d1a0b33e1b734-0350052022/original/GovTech-Glossary-022822.pdf EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 50 >>> Annex 1. List of Fragile and Conflict-Affected Situations FY23 # Code Country FY23 FCS Status 1 AFG Afghanistan Conflict 2 BFA Burkina Faso Conflict 3 BDI Burundi Institutional and social fragility 4 CMR Cameroon Conflict 5 CAF Central African Republic Conflict 6 TCD Chad Institutional and social fragility 7 COM Comoros Institutional and social fragility 8 COD Congo, Dem. Rep. Conflict 9 COG Congo, Rep. Institutional and social fragility 10 ERI Eritrea Institutional and social fragility 11 ETH Ethiopia Conflict 12 GNB Guinea-Bissau Institutional and social fragility 13 HTI Haiti Institutional and social fragility 14 IRQ Iraq Conflict 15 KSV Kosovo Institutional and social fragility 16 LBN Lebanon Institutional and social fragility 17 LBY Libya Institutional and social fragility 18 MLI Mali Conflict 19 MHL Marshall Islands Institutional and social fragility 20 FSM Micronesia, Fed. Sts. Institutional and social fragility 21 MOZ Mozambique Conflict 22 MMR Myanmar Conflict 23 NER Niger Conflict 24 NGA Nigeria Conflict 25 PNG Papua New Guinea Institutional and social fragility 26 SLB Solomon Islands Institutional and social fragility EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 52 # Code Country FY23 FCS Status 27 SOM Somalia Conflict 28 SSD South Sudan Conflict 29 SDN Sudan Institutional and social fragility 30 SYR Syrian Arab Republic Conflict 31 TLS Timor-Leste Institutional and social fragility 32 TUV Tuvalu Institutional and social fragility 33 UKR Ukraine Conflict 34 VEN Venezuela, RB Institutional and social fragility 35 WBG West Bank and Gaza Institutional and social fragility 36 YEM Yemen Conflict 37 ZWE Zimbabwe Institutional and social fragility EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 53 >>> Annex 2. TTLs/Task Teams Interview Questions 1. What were the main FCV-related challenges that the 4. In your view, what is the Bank’s comparative advantage project faced and how did the project address them? in supporting GovTech projects in FCV settings? What should it do more/less of? 2. What advice would you give TTLs who are about to prepare a GovTech project in FCV settings? 5. Can you think of a particularly successful GovTech project/ reform in an FCV country? 3. Which types of GovTech reform should the Bank prioritize in FCV settings (i.e. contexts of (1) prevention; (2) active crises and conflicts; and (3) situations of post-crisis transition and recovery)? EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 55 >>> Annex 3. TTLs/Task Teams Interviewed 1. Bernhard Metz, Senior Operations Officer/FCV 15. Narae Choi, Senior Urban Development Specialist. Digital Lead. 16. Jerome Bezzina, Senior Digital Development Specialist. 2. Kathrin Plangemann, Operations Manager. 17. Francesca Lamanna, Senior Economist. 3. Constantin Rusu, Senior Public Sector Specialist. 18. Kamila Anna Galeza, Social Development Specialist. 4. Jerome Bezzina, Senior Digital Development Specialist. 19. Matthew Thomas Hulse, ETC, (Health GP). 5. Dolele Sylla, Senior Governance Specialist. 20. Ali Habib, ETC, (Health GP). 6. Leonard Mutuku Matheka, Senior Financial Management Specialist. 21. Mari Shojo, Senior Education Specialist. 7. Davit Melikyan, Senior Public Sector Specialist. 22. Saki Kumagai, Governance Specialist. 8. Nicholas Timothy Smith, Senior Financial 23. Pascaline Wanjiku Ndungu, Senior Water Supply and Sector Specialist. Sanitation Specialist. 9. MacDonald Nyazvigo, Senior Financial 24. Donald Mphande, Lead Financial Management Specialist. Management Specialist. 10. Runyararo Gladys Senderayi, Senior Public 25. Zubair Khurshid Bhatti, Lead Public Sector Specialist. Sector Specialist. 26. Naimur Rahman, Senior Consultant. 11. Heriniaina Mikaela Andrianasy, Senior Public Sector Specialist. 27. Saeeda Sabah Rashid, Lead Financial Management Specialist. 12. Tiago Carneiro Peixoto, Senior Governance Specialist. 28. Wesley Ryan de Witt, ETC, (FCV Operational Support). 13. Alma Nurshaikhova, Senior Public Sector Specialist. 14. Shomikho Raha, Senior Governance and Public Sector Specialist. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 57 >>> Annex 4. 2022 GTMI Key Indicators Ind GTMI Key indicators Points Weight Core Government Systems Index (CGSI) I-1 Is there a cloud platform available for all government entities? 0-2 W1 I-2 Is there a government enterprise architecture framework? 0-2 W1 I-3 Is there a government interoperability framework? 0-2 W1 I-4 Is there a government service bus platform? 0-2 W1 I-5 Is there an operational FMIS in place to support core PFM functions? 0-2 W3 I-6 Is there a TSA supported by FMIS to automate payments and bank reconciliations? 0-2 W3 I-7 Is there a Tax Management Information System in place? 0-2 W3 I-8 Is there a Customs Management Information System in place? 0-2 W3 I-9 Is there a Human Resources Management Information System with self-service portal? 0-2 W3 I-10 Is there a Payroll System (MIS) linked with HRMIS? 0-2 W3 I-11 Is there a Social Insurance system providing pensions and other SI programs? 0-2 W1 I-12 Is there an e-Procurement portal? 0-2 W2 I-13 Is there a Debt Management System (DMS) in place? (Foreign and Domestic debt)? 0-2 W3 I-14 Is there a Public Investment Management System (PIMS) in place? 0-2 W2 I-15 Is there a government Open-Source Software (OSS) policy/action plan for public sector? 0-2 W2 I-16 UN Telecommunication Infrastructure Index (TII) 0-1 E1 I-17 Does government have a national strategy on disruptive / innovative technologies? 0-2 W2 Public Service Delivery Index (PSDI) I-18 UN Online Service Index (OSI) 0-1 E1 I-19 Is there an online public service portal? (Also called “One-Stop Shop” or similar) 0-2 W2 I-20 Is there a Tax online service portal? 0-2 W2 I-21 Is e-Filing available for tax and/or customs declarations? 0-2 W2 I-22 Are e-Payment services available? 0-2 W2 I-23 Is there a Customs online service portal (Single Window)? 0-2 W2 I-24 Is there a Social Insurance/Pension online service portal? 0-2 W2 I-25 Is there a Job portal? 0-2 W2 EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 59 Ind GTMI Key indicators Points Weight Public Service Delivery Index (PSDI) I-26 Is there a digital ID that enables remote authentication for (fully) online service access 0/1 E2 Digital Citizen Engagement Index (DCEI) I-27 UN E-Participation Index (EPI) 0-1 E1 I-28 Is there an Open Government web site / portal? 0/1 W2 I-29 Is there an Open Data portal? 0/1 W2 I-30 Are there national platforms that allow citizens to participate in policy decision-making? 0/1 W1 I-31 Are there government platforms that allow citizens to provide feedback on service delivery? 0/1 W1 I-32 Does the government publish its citizen engagement statistics and performance regularly? 0/1 W2 GovTech Enablers Index (GTEI I-33 Is there a government entity focused on GovTech (digital transform, whole-of-government)? 0-2 W1 I-34 Is there a dedicated government entity in charge of data governance or data management? 0-2 W1 I-35 Is there a GovTech / digital transformation strategy? 0-3 W3 I-36 Is there a whole-of-government approach to public sector digital transformation? 0-2 W1 I-37 Are there RTI laws to make data/information available to the public online or digitally? 0-2 W3 I-38 Is there a data protection / privacy law? 0-2 W3 I-39 Is there a data protection authority? 0-2 W3 I-40 Is there a national ID (or similar foundational ID) system? 0/1 E2 I-41 Are records in the national ID system stored in a digitized (electronic) format? 0/1 E2 I-42 Is there a digital signature regulation and PKI to support service delivery? 0-3 W3 I-43 ITU Global Cybersecurity Index (GCI) 0-1 E1 I-44 UN Human Capital Index (HCI) 0-1 E1 I-45 Is there a government strategy / program to improve digital skills in the public sector? 0-2 W1 I-46 Is there a strategy and/or program to improve public sector innovation? 0-2 W1 I-47 Is there a government entity focused on public sector innovation? 0-2 W1 I-48 Is there a government policy to support GovTech startups and private sector investments? 0/1 W2 Source: World Bank data. Note: The 2022 GTMI is based on 48 key indicators, including eight external indicators. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 60 >>> Annex 5. GTMI Data Analysis in FCS > > > Plot of GovTech Maturity against WGI Voice and Accountability 1.00 0.75 GTMI (2022) 0.50 0.25 0.00 -3.00 -2.00 -1.00 0.00 1.00 2.00 3.00 Voice and Accountability (2021) FCS economies Non-FCS economies Linear (combined) Plot of GovTech Maturity against WGI Political Stability No Violence 1.00 0.75 GTMI (2022) 0.50 0.25 0.00 -3.00 -2.00 -1.00 0.00 1.00 2.00 3.00 Political Stability No Violence (2021) FCS economies Non-FCS economies Linear (combined) EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 62 Plot of GovTech Maturity against WGI Government Effectiveness 1.00 0.75 GTMI (2022) 0.50 0.25 0.00 -3.00 -2.00 -1.00 0.00 1.00 2.00 Government Effectiveness (2021) FCS economies Non-FCS economies Linear (combined) Plot of GovTech Maturity against WGI Regulatory Quality 1.00 0.75 GTMI (2022) 0.50 0.25 0.00 -3.00 -2.00 -1.00 0.00 1.00 2.00 3.00 Regulatory Quality (2021) FCS economies Non-FCS economies Linear (combined) EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 63 Plot of GovTech Maturity against WGI Rule of Law 1.00 0.75 GTMI (2022) 0.50 0.25 0.00 -3.00 -2.00 -1.00 0.00 1.00 2.00 3.00 Rule of Law (2021) FCS economies Non-FCS economies Linear (combined) Plot of GovTech Maturity against WGI Control of Corruption 1.00 0.75 GTMI (2022) 0.50 0.25 0.00 -2.50 -2.00 -1.50 -1.00 -0.50 0.00 0.50 1.00 1.50 2.00 Control of Corruption (2021) FCS economies Non-FCS economies Linear (combined) EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 64 Plot of GovTech Maturity against Access to Electricity (% of Population) 1.00 0.75 GTMI (2022) 0.50 0.25 0.00 0.00 20.00 40.00 6000 80.00 100.00 Access to electricity (% of population) FCS economies Non-FCS economies Linear (combined) Plot of GovTech Maturity against Mobile Cellular Subscriptions (Per 100 People) 1.00 0.75 GTMI (2022) 0.50 0.25 0.00 0 50 100 150 200 Mobile cellular subscriptions (per 100 people) FCS economies Non-FCS economies Linear (combined) EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 65 >>> Annex 6. Brief on GTMI and Methodology EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 66 The following explainer is taken from the GTMI explainer • DCEI: The Digital Citizen Engagement Index (12 developed by the team and demonstrated on the GovTech indicators) measures aspects of public participation website here and here. platforms, citizen feedback mechanisms, open data, and open government portals. What is the GTMI? • GTEI: The GovTech Enablers Index (15 indicators) The GovTech Maturity Index (GTMI) measures the key captures strategy, institutions, laws, and regulations, as aspects of four GovTech focus areas: enhancing service well as digital skills, and innovation policies and programs, delivery, supporting core government systems, mainstreaming to foster GovTech. citizen engagement, and GovTech enablers, based on the World Bank’s definition of GovTech. The objective of the The 2022 GTMI update is based on the same four components, GTMI is to assist practitioners in the design of new digital but the number of key indicators used for the calculation of transformation projects. the GTMI groups are slightly different due to the inclusion of several new indicators. The GTMI is the simple average of the normalized scores of four components. The 2020 GTMI calculations were based on How is the GovTech Maturity Index different from the following components: other indexes? • CGSI: The Core Government Systems Index (15 Although existing digital government surveys and indices are indicators) captures the key aspects of a whole-of- useful to monitor the progress in digital government initiatives government approach, including government cloud, and good practices in general, one of them is assessing interoperability framework and other platforms. progress in all of the four GovTech focus areas. The GTMI addresses this gap, while incorporating the external indices to • PSDI: The Public Service Delivery Index (9 indicators) complement each other. measures the maturity of online public service portals, with a focus on citizen centric design and Based on the comparative analyses with relevant indices, universal accessibility. it can be concluded that the indicators defined for the EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 67 GTMI produce consistent results when compared to Index (GCI) and three relevant indicators from the other relevant indicators of digital government and Identification for Development (ID4D) dataset, are used in measure the less known dimensions related to GovTech the calculation of GTMI. foundations adequately. • For the 2022 update, a Central Government (CG) GTMI Who might find this Index useful? online survey was launched in March 2022 and 850+ officials from 164 countries agreed to join this exercise to The target audience of the GTMI report are government reflect the latest developments and results of their GovTech officials (policymakers and technical specialists), World Bank initiatives. Additionally, a Subnational Government task teams, and other practitioners involved in the design and (SNG) GTMI online survey was launched in parallel as implementation of GovTech solutions, and academia. a pilot implementation for interested countries. Finally, a data validation phase was included to benefit from the How is the 2022 GTMI update different from the first GTMI? clarifications and updates of all survey participants while checking the survey responses and calculating the GTMI The GTMI Team followed a different approach for the 2022 scores and groups. GTMI update. • The data collection and validation phases of the 2022 • First, the GTMI indicators were revised and extended to GTMI surveys were completed by the end of August explore the performance of existing platforms and cover 2022.The CG GTMI data was collected through the less known areas in consultation with nine relevant direct participation of 135 country teams and remotely organizations (UN/EGDI, OECD, ITU/GCI, EU, UNU, for 63 non-participating economies. Additionally, 122 CAF, IMF, GDSI, Oxford Insights) and 10 World Bank subnational government entities (states, municipalities) practices/groups (DD, ID4D, G2Px, MTI, ITS, DEC, from 17 countries submitted their SNG GTMI responses SPJ, EDU, LEGOP, DGRA) from November 2021 to in addition to their CG GTMI data. January 2022. • A data validation phase was included to benefit from the • The 2022 GTMI survey includes 40 updated/expanded clarifications and updates of all survey participants while GovTech indicators measuring the maturity of four checking the survey responses and calculating the GTMI GovTech focus areas. Additionally, 8 highly relevant scores and groups. external indicators measured by other relevant indexes, including all three components of the United Nations • It is important to note that the GTMI does not capture the (UN) e-Government Development Index (EGDI), the UN quality or effectiveness of these indicators but relies on e-Participation Index (EPI), the ITU’s Global Cybersecurity survey responses. EQUITABLE GROWTH, FINANCE & INSTITUTIONS INSIGHT <<< 68 >>> Annex 7. List of Income Levels for FCS and Non-FCS (excluding High Income Economies) High Income Economies: Andorra, Antigua and Barbuda, Australia, Austria, Bahamas, Bahrain, Barbados, Belgium, Brunei Darussalam, Canada, Chile, Croatia, Cyprus, Czech Republic, Denmark, Estonia, Finland, France, Germany, Greece, Hong Kong SAR, China, Hungary, Iceland, Ireland, Israel, Italy, Japan, Korea, Rep., Kuwait, Latvia, Liechtenstein, Lithuania, Luxembourg, Macao SAR, China, Malta, Monaco, Nauru, Netherlands, New Zealand, Norway, Oman, Panama, Poland, Portugal, Qatar, Romania, San Marino, Saudi Arabia, Seychelles, Singapore, Slovak Republic, Slovenia, Spain, St. Kitts and Nevis, Sweden, Switzerland, Taiwan (China), Trinidad and Tobago, United Arab Emirates, United Kingdom, United States of America, Uruguay. Upper-Middle Income Economies: Albania, Argentina, Armenia, Azerbaijan, Belarus, Belize, Bosnia and Herzegovina, Botswana, Brazil, Bulgaria, China, Colombia, Costa Rica, Cuba, Dominica, Dominican Republic, Ecuador, Equatorial Guinea, Fiji, Gabon, Georgia, Grenada, Guatemala, Guyana, Iraq, Jamaica, Jordan, Kazakhstan, Kosovo, Libya, Malaysia, Maldives, Marshall Islands, Mauritius, Mexico, Moldova, Montenegro, Namibia, North Macedonia, Palau, Paraguay, Peru, Russian Federation, Serbia, South Africa, St. Lucia, St. Vincent and the Grenadines, Suriname, Thailand, Tonga, Türkiye, Turkmenistan, Tuvalu, Venezuela, RB. Lower-Middle Income Economies: Algeria, Angola, Bangladesh, Benin, Bhutan, Bolivia, Cabo Verde, Cambodia, Cameroon, Comoros, Congo, Rep., Côte d’Ivoire, Djibouti, Egypt, El Salvador, Eswatini, Ghana, Haiti, Honduras, India, Indonesia, Iran, Kenya, Kiribati, Kyrgyz Republic, Lao PDR, Lebanon, Lesotho, Mauritania, Micronesia, Fed. Sts., Mongolia, Morocco, Myanmar, Nepal, Nicaragua, Nigeria, Pakistan, Papua New Guinea, Philippines, Samoa, São Tomé and Principe, Senegal, Solomon Islands, Sri Lanka, Tajikistan, Tanzania, Timor-Leste, Tunisia, Ukraine, Uzbekistan, Vanuatu, Vietnam, West Bank and Gaza, Zimbabwe. Low Income Economies: Afghanistan, Burkina Faso, Burundi, Central African Republic, Chad, Congo, Dem. Rep., Eritrea, Ethiopia, Gambia, Guinea, Guinea-Bissau, Korea, DPR, Liberia, Madagascar, Malawi, Mali, Mozambique, Niger, Rwanda, Sierra Leone, Somalia, South Sudan, Sudan, Syrian Arab Republic, Togo, Uganda, Yemen, Zambia. Supported by the GovTech Global Partnership - www.worldbank.org/govtech