Plan for Introducing Open Data and Establishing Institutional Framework

Transcription

1 Plan for Introducing Open Data and Establishing Institutional Framework Jun Youn Kim (Software Policy & Research Institute) A. Background Section 1. Introduction Government organizations hold a massive amount of data, but their use of the data is different depending on a level of national informationization. This report explains Korean cases of open data and relevant institutional framework. In Korea, the Public Information Policy Division of the Ministry of Security and Public Administration takes charge of opening a variety of the country's public information to the public who can use them easily and conveniently, and operates Public Data Portal and Public Information Support Center. The government tries to open more public data to the public through the public data portal in order to achieve the growth of both the country and its people. This section presents the actual conditions of Korean public data openness, and the main issues and policy suggestions related to the operation of the public data portal. The suggestions for Korean public data openness, described in this report, will be used as the framework for providing advices to Bulgaria in terms of the introduction and operation of the relevant system. B. Main Issues The government conscious of new issues about public data openness set up a new strategy of open data. The new issues are presented as follows: First, there is a lack of open data system and the perception of public data openness. Also, the actual conditions of public data are not investigated enough in the government-wide dimension, and the poor open data system becomes an obstacle to more openness. Moreover, given the low perception and low consensus of the potential value of public data and of the value and necessity of openness, it is very passive to open public data. To address the issue, it is necessary to establish and perform open data roadmap in the government-wide dimension, provide awareness education, and introduce an open data incentive system 1

2 in order to expand open data actively. Secondly, there are still problems with stable public data openness, use infrastructure, integrated management system of open data, support organizations and functions for opening and use. That is because there is a lack of open format and quality of public data, and of access and use infrastructure for stable data use. Therefore, it is needed to establish and operate the organization for comprehensive management of public data and its support, and thereby manage and improve the overall circumstances and quality for better open data. Thirdly, the eco-system of open data is feeble, and there is a lack of one-stop start-up business support program to lead creative ideas based on public data into a business. That is because there are weak start-up growth circumstances, including a few success cases of public data based start-up business and poor market creation. Therefore, it is necessary to achieve the government-the private sector cooperation to easily make a start-up environment, create a market early, and expand the public data based start-up eco-system. C. Research Scope This research explains the cases of domestic open data and suggests open data strategy, procedure, and roadmap for Bulgaria according to the country's local status. Therefore, mainly it analyzes domestic cases, draws suggestions, and then suggests a strategy reflecting Bulgaria's current status. In terms of research methodology, this study employs benchmarking of best practices. Based on Korean best practices, it analyzes cases and make strategic suggestions, some of which will be chosen by the Bulgarian government. Although local status is not completely analyzed in strategic aspects, overseas cases are analyzed in detail and the analysis results are offered. With regard to AS-IS and TO-BE methodologies which are generally used for the introduction of informationization business, there is no data about open data for AS-IS analysis in Bulgaria. In this sense, a field survey seems likely to get useless. Also, there is an suggestion of the Bulgarian government that Korean cases need to be analyzed in detail. Based on the Bulgarian government's Question Set, the analysis report about Korean public data was written in the way of answering the questions. In other words, the report was described in the direction of meeting the requirements of the country's relevant ministries and maximizing their satisfaction. With regard to suggestions, after receiving the intermediate report about Bulgaria's public data status and making discussion, this researcher drew some suggestions of the Korean government's support policies by focusing on governance, strategic areas, and promotion, rather than on laws and systems. In particular, the success cases and the failure cases which the Bulgarian government were highly interested in were analyzed. According to the Bulgarian government's requests, section 1 of this report presents the outline of this research; section 2 analyzes Bulgaria's current status on the basis of the opinions made by an expert from the Bulgarian government; section 3 explains the current status and strategy of the Korean government's open data; in the last section of conclusion, based on the Korean government's strategy, some suggestions are made for the Bulgarian government. Section 2. Analysis on the Current Status of Bulgaria 2

3 A. Country Information in General Bulgaria has a strategic location in the center of Southeastern Europe and the main roads of Europe to the Middle East and Asia pass through it. The country provides access to the following markets: South-East Europe a 122 million inhabitant, high growth mark;et EU Bulgaria offers the lowest cost, zero tariff access to a 500 million inhabitant market CIS, Middle East and North Africa Bulgaria offers a combination of macroeconomic stability and incentives for doing business: Stable parliamentary democracy; EU, NATO and WTO member; Bulgaria s currency is fixed to the Euro under a currency board arrangement; Lowest tax rate and one of the lowest labor costs in the EU The country s GDP currently stands at around 40 bln. euro and despite the effects of the world economic crisis it has recorded only 1 year of negative growth (2009) over the past decade. During the last several years the rate of real GDP growth has usually been above the EU average, but still it has been considerably lower than the pre-crisis levels. Source: Bulgarian National Bank In 2013 the net FDI as a % of GDP reached a level of around 3%, which is still a long way away from the peaks of 2007 and 2008, but is considerably above some other EU Member States. The annual inflation rate has remained pretty much stable after the crisis and in 2013 it stands at 0.4%. Unemployment currently stands at 11.4% (second quarter of 2014, according to the NSI) and youth unemployment is among the highest in the EU. Bulgaria is one of the countries with the best government debt to GDP ratios in the EU 18.9% (2013), but over the 3

4 past several years the debt has gradually increased due to budget deficits. The country has an investment rating from all three major credit rating agencies. The population of Bulgaria is (2013) and 61.8% of the population is of working age. About 60% of the working age population (25-64 years) speaks at least one foreign language and approximately 80% has secondary or higher education. Traditionally over the past several years ICT is one of the highest growth sectors of the economy, in which Bulgaria has several strategic advantages over the rest of the EU member states qualified work force, considerably low labor costs, investment incentives and very low tax rates. This, together with government support for the development of the open data initiative, creates the necessary conditions for implementing this policy, with the goal of achieving higher transparency, increasing public trust in the institutions, generating economic growth and creating new jobs through the development of various applications and other tools. Due to Bulgaria s late start in this field it can avail itself of the experience of other countries that have already accumulated several years of practical experience in the implementation of open data and thus use some of the solutions and models developed there. The transfer of best practices and know-how can help the country leapfrog and close the gap to the leaders faster. B. ICT Environment UN E-government Development Index There is a drastic lag behind the global trends in the development of e-government in the period in Bulgaria. The rank of the country fell more than twice (from 35th to 73rd place, according to UN statistics) for that period. Technological backwardness of e-government in the Republic of Bulgaria and the multiple investments in the same or similar ICT networks, systems and solutions, as well as the lack of adequate and timely investment in cloud technologies, modern IT terminals, IT specialists and workshops lead to tangible technological lag and risk jeopardizing the sustainable development of e-government in the Republic of Bulgaria. According to the UN E-government Development Index Bulgaria is currently ranked 73rd in the world, with a total score of This is way below the EU average of and the regional average score of , but a little over the world average Breaking down the total score into its 3 main components it is obvious that the biggest challenge for Bulgaria is in the field of online services. The combined score for the Online Service Component is It measures the percentage of available online services in accordance with the 4 stages of development. For Bulgaria the numbers are as follows: stage 1 59 %; stage 2 30%; stage 3 0% and stage 4 15%. This means that the country has still a long way to go in order to catch up with the best countries in the world in this respect. A little bit better is the country s performance in the Telecommunications Infrastructure Component, where the aggregate score for Bulgaria is The sub-criteria, included in this component show the following scores: - Percentage of Individuals using the Internet ; 4

5 - Fixed telephone subscriptions per 100 inhabitants ; - Mobile-cellular telephone subscriptions per 100 inhabitants ; - Fixed (wired)-broadband subscriptions per 100 inhabitants ; - Wireless broadband subscriptions per 100 inhabitants The best component for Bulgaria is the Human Capital Component with a combined score of The country has an excellent adult literacy percentage of 98.35%, the gross enrolment ration is 79.87% and the expected years of schooling This means that the bulk of the efforts for improvement should be concentrated towards the first component, which targets the available online services. Current State and Challenges In 2002 the Council of Ministers (CM) began documenting the planned national development of e-government in the Republic of Bulgaria. The insufficient focus and understanding of the needs and benefits of a developed (according to global indicators) e-government is due to the absence of a strong centralized coordinated approach to e-government in the Republic of Bulgaria. Despite the planned steps and actions made over the past decade there is a lack of constant political focus, continuity and responsibility for the development of e-government in the Republic of Bulgaria. Given the partial and non-centralized development of the e-government in the Republic of Bulgaria the benefits for the administration (state, regional and municipal), businesses, citizens and society in general are insignificant, with some exceptions in administrations such as the National Revenue Agency, the National Customs Agency, the National Statistical Institute and the Ministry of Finance. The existing regulatory framework in the field of e-governance includes: - E-Governance Act - regulates the activities of the administrative authorities in working with electronic documents, the provision of public services electronically and the exchange of electronic documents between the administrative authorities. - Electronic Document and Electronic Signature Act - regulates the electronic document, electronic signature and terms and conditions for the provision of certification services. - Other relevant acts - Commercial Register Act, Electronic Commerce Act, Act on the Activities of Provision of Services, Spatial Data Access Act, Ordinance on the electronic administrative services, Ordinance on the registers of information objects and e-services, Ordinance on the requirements for the unified environment for the exchange of electronic documents, Ordinance on the general requirements for interoperability and information security, Ordinance on electronic signature certificates in the administration, Ordinance on the internal flow of electronic documents and paper documents at the administrations, Instructions for maintenance, storage and access to the Register of Registers and Data and etc. The existing legislation regulates, but does not facilitate the development of e-government, because the existing legal framework establishes the requirements for electronization of existing "paper working processes". It does not address sufficiently the methodology for reengineering of the existing work processes in the administration. Some of the laws and/or 5

6 regulations are contradictory and inapplicable without practical changes, which must be tested for compatibility with the models and decisions that are proposed before they are put forward and adopted. Currently there is a working group under the MTITC, tasked with amending the E-Governance Act in order to bring it up to date with the evolution of the ideas and vision for e-government development, which were embodied in the Strategy for the Development of E- government in Bulgaria A road map for the implementation of the strategic document was also elaborated, which is now being amended as well. All this comes to show the lack of clear vision and continuity in the development of e-governance in Bulgaria. Operational incompatibility and fragmentation still prevail in the administration. This is largely due to the unsustainable and decentralized approach to the development of e-government. The inadequate operational state of the e-government in Bulgaria is not only an internal problem for the country but also for our commitments for interoperability with electronic systems in the EU and beyond. Some key investments made by the administration on ICT solutions do not work and / or do not produce added value due to lack of operational and technological interoperability. Some of the most important projects are often delayed due to the requirements of the public procurement regulations in Bulgaria. Others are not efficient because various administrations work in silos and put into practice their own projects for developing IT solutions, instead of implementing one project which will provide a shared solution for the whole administration. This leads to overlapping, inefficient use of the resources and implementation of different IT solutions in the different administrations, which afterwards lead to difficulties in terms of interoperability. Organizational Structure E-governance is a horizontal policy, the central role in the implementation of which is given to the Minister of Transport, Information Technologies and Communications. Implementation of e-governance as a national priority requires active coordination and interaction with the structures of the system of the central as well as the regional and municipal administrations. Under the MTITC there is also the ECNIS - Executive Agency Electronic Communication Networks and Information Systems, which has been in charge of the development and implementation of some EU and state budget funded projects and initiatives in the field of e- government. The successful model of governance of this policy under the principles of public administration reform, suggests centralized coordination of planning and implementation of general and sectoral strategies in the field of e-government. Therefore, the Council of Ministers expanded the members of the Council for electronic governance (CEG) to include representatives from the highest political level. Thus, a system to improve inter-agency coordination of policy support, support for MTITC and the line ministries, responsible for the implementation of e-governance was created, but the results from its effectiveness are yet to be seen. To support the work of the CEG on an operational level, a permanent working group was created - "Electronic government" (PWGEG). Members of the group are representatives from the line administrations on a central level. A Strategy for the Development of E-governance in Bulgaria for the period was adopted by the Council of Ministers. This was accompanied by a roadmap for its implementation. The Strategy identifies the main objectives and the respective measures for their implementation. The roadmap lays out specific projects with estimated budgets, responsible institutions and indicators for measuring the progress. 6

7 Organizational structure for e-governance in Bulgaria C. Status of e-government The general principle in the implementation of the integration platform for e-government is based on a centralized, service-oriented architecture, which is in turn based on a unified standard hardware and software infrastructure, with a set of functional subsystems with specific functions and connections between them. The infrastructure environment is based on two interconnected sites Technical Control Centre for e-government (TCCEG) "Boyana" in Sofia and Territorial centre of e-government (TCEG) "Evksinograd" in Varna. It is a set of interoperable and interchangeable functional elements the relations between which form a whole part with input and output interfaces, a common plan, uniform targets, specific constraints (resources and space - time), set quality indicators and a summary measure of effectiveness. 7

8 The purpose of the infrastructure environment is to provide a normal flow of processes between the interconnected outer AIS (automated information system) and the systems, which are supported by the e-governance environment with the aim to deliver administrative services on the internet. The aim is to always get the lowest possibility of decline and uninterrupted work with adequate productivity of the infrastructure itself. This requires constant support, monitoring and control of information flows within the network as well as providing for the efficiency of IT resources among all ministries, units, agencies, departments, municipalities and other providers of administrative services. The main components of the integration platform of e-governance implemented so far are: 1. Unified portal for access to electronic administrative services (UPAEAS) serves as an entry point to the services provided by electronic administrative service providers. The portal contains the following inventory: - Component for Multiple Use of Input Data CMUID; - system for monitoring progress indicators of e-governance at the national and EU level; - internal portal for questions related to e-governance, complete with news, useful links, documents, forums and other techniques for cooperative work; - software component for implementation into websites for two-way communication; - a centralized system for ensuring decision-making with the participation of citizens and businesses, in accordance with the democratic principles, which is integrated in the administrations; - software system for managing changes and controlling risk in the transition to e- Government conditioned work. 2. Unified environment for exchange of e-documents (UEEED) The UEEED acts as the main integration component in the e-government platform of the Republic of Bulgaria. Through it are exchanged e-documents in XML format, which contain unified and formalized data in the request-answer type communication between target groups in the system. Communication between the AIS and UEEED is achieved through a communication client (UEEED CC), using SOAP (Simple Object Access Protocol) messages. The system for data exchange satisfies the needs of the integration component of the e- Government with regards to document exchange between administrative information systems in different administrations. The Unified environment facilitates the link between the infrastructure`s main components and the registers of the departments and agencies, as well as the links between departments and agencies. Up to now in the integration platform of the e-government, several registers and lists, defined in the E-governance Act and the respective secondary legislation, have been implemented such as the Register for electronic services, the Register of information objects, the Register of registers and data, the Register of standards and etc. 8

9 3. Environment for automatic data transfer with the central registers - RegiX The environment for automated data exchange with the registers of the central administration is defined as a means of facilitating interaction between administrations in the context of implementing integrated administrative service. The administrative authorities, people who serve public functions and the organizations, which provide public services cannot require from citizens or organizations to provide data, which the administration already has. Instead, they must collect it officially from the primary administrator of the data. Notification and request for data is automatically done electronically as an internal electronic administrative service. 4. Portal for network and information security The portal (govecert.bg) for network and information security is a public part of the centralized system for monitoring and managing operational capability and information security. (OSIS) 5. Electronic identification The national ei of a citizen does not act as his/her electronic identity document (e-id or e- passport). It is used only for online identification and authentication of citizens in the electronic procedures of e-governance (Electronic Administrative Services/EAS). ei is based on a unique ID EGN/PIN and/or alias which serves the function to identify the citizen, participating in the processes of e-governance, in a safe and secure manner. With this taken into consideration and with the goal to guarantee the highest level of personal data protection in the E-governance domain, the national platform for ei identifies individuals and legal persons in the EAS and the e-services of business. This is done through an additional unique ID called sector alias which is taken from the citizen`s alias and can be kept by the EAS. A significant number of active EAS users currently use a qualified electronic signature as an approved mechanism of online identification and authentication. Implementation of the system for electronic identification and authentication will enable the separation of the identification process from the process of signing documents electronically. With the pilot project developed in 2013, a number of objectives were achieved, but also a lot of challenges remain. The main objectives are: - Support of a unified national scheme for electronic identification of citizens in e- governance through a unique alias identification mechanism, which protects the user`s personal data. The alias is unique and unchangeable; - Facilitating the use of national primary identification mechanisms (EGN/PIN and of Single Identification Code (SIC) Bulstat) in the electronic identification scheme; - Facilitating the conditions for technical and technological neutrality of the tools/mechanisms used in the process of electronic identification, including the electronic ID carrier (smart card, bank card, SIM etc.) - Support of a nation-wide scheme for electronic identification and accreditation of the EAS providers; - Protection of identification data through the use of appropriate instruments in accordance with approved international and European standards and specifications. The carrier of ei is not personalized electronically and visually through personal data. 9

10 E-Services As of May 2013 there are a total of 149 active electronic service offered by the central administration in Bulgaria, as shown in the figure below. Apart from the central administrations 55 local administrations also offer a range of e-services. The most commonly delivered and used services concern information from the Citizen Registration and Administrative Services Directorate, which is valuable for citizens. Although there is an established unified administrative services list, it is not applied. A significant number of municipal administrations offer essentially the same services with differing names. Subsequently, although the corresponding legal base is the same, the required documents are different, the administrative fees collected by the municipal administrations are different and the time necessary to deliver the service is different. Challenges Despite the fact that most of the components of e-governance in Bulgaria have already been developed thanks to the implementation of various EU funded projects or through state budget funding the biggest challenge is to put these results to practical use. Unfortunately the lack of continuity and stability in the field of strategic vision for the development of e-governance in the country have led to many inefficiencies along the way, a lot of the elements have been developed independently and the necessary level of interoperability has not always been ensured effectively. Bulgaria needs to put an end to the silos mentality which still prevails in the state administration, where every structure is unwilling to work together with the other. That s one of the reasons why cloud technologies are not yet well developed in the Bulgarian administration and why every administration insists on developing its own information system, buying its own hardware and providing maintenance. This of course leads to higher expenses, lack of coordination, low level of interoperability of the systems and slow progress in the development of e-government in general. 10

11 Another big challenge is the current state of the existing registers in Bulgaria some of them are still on paper, others in unsuitable electronic formats such as Word for example. In order to maximize the effects of the services the administrations need to re-engineer the business processes of the administrative services and to start providing services, adapted to the needs of the citizens and businesses - in the form of Life and Business Events. The administration also suffers from the lack of new technologies some of the computers, servers and etc. were bought many years ago and don t correspond anymore to the modern realities and requirements to allow effective and efficient use. Another problem has to do with the computer literacy of the Bulgarian civil service the average age of the administration is between 45 and 50 years and these people have limited computer literacy, which doesn t allow them to make good use of the new technologies in their work. As a result they become resistant to change and don t embrace the opportunities offered by the technological innovation. The low salaries in the state administration compared to the respective positions in the private sector in the field of IT result in the lack of talented IT experts in the civil service, who could become the necessary agents of change to develop and introduce the new technologies in the day-to-day work. If the country is to achieve a significant leap, an integrated, whole-of-government approach to the development of e-governance should be adopted, with strong political and administrative involvement, support and strategic vision. D. Status of Open data According to the Global Open Data Index: Survey1, Bulgaria occupies the 18th place with a combined score of 520 points. The ranking is topped by the UK with a combined score of 940 points, followed by Denmark and the USA. The score breakdown by datasets, given below, shows that the main areas for improvement for Bulgaria include government spending and the national map (including the land register). On the contrary the country is showing good results in other areas such as emissions of pollutants, national statistics and election results

12 Organizational Structure At the moment there is no clear organizational structure in Bulgaria, related to the development of Open Data. The country is still at an early stage of the implementation of the Open Data initiative and it is still unclear what would be the most efficient way of coordinating the efforts of the various ministries and agencies in the country. Most probably the coordinating functions will be given to one of the existing Consultative Councils either the Administrative Reform Council or the Council on E-Governance, which function at the Council of Ministers. The current policy regarding the administrative development in Bulgaria is to reduce the number of administrative structures and staff, so the inter-ministerial and inter-agency cooperation in the field of OD should be ensured within the existing institutional framework, without creating new structures and increasing the number of staff. The leading role in terms of the implementation of the OD initiative in Bulgaria, according to the existing strategic documents is given to the Council of Ministers and the Ministry of Transport, Information Technologies and Communications. The Council of Ministers is a central college body of the executive authority of general competence. It coordinates the activity of the other bodies of the executive power in carrying out unified state policy. The Ministry of Transport, Information Technologies and Communications through its Directorate Information Technologies and E-government has functions in the fields of elaborating strategies and projects for the development of e-governance in Bulgaira; developing and updating the policies and programmes on information security and interoperability of the information systems; elaborating the state policy in the field of information society and information technologies and coordinating all other ministries and agencies in the policy implementation process. Unlike other countries in Bulgaria there are still no open data officers in the different administrations, responsible for coordinating the efforts in the field of OD and acting as agents of change. 12

13 Open Data Portal During the interim government the MTITC commissioned the development of an Open Data Portal to the NGO Obshtestvo.bg (Society.bg) with the goal of creating a successful small scale example of a convenient platform for third party private businesses to operate with open data supplied by government and local institutions. It would consist of a web based portal application where data can be catalogued and presented in a user friendly way, as well as accessible by an API that allows computer systems to browse and use it. The project would also include a small web application for demonstration purposes that would combine two data sources from the data portal and use them to create an appealing user experience. Ideally, such an open data portal would be able to automatically browse data sources maintained at institutional level, then collect and organize these datasets into its own storage, thus providing consistently up to date information. At the current moment, however, as far as institutions provide open data, it is not accessible by API and is usually in table format or PDFs that need to be parsed and imported in the data portal. Future work on this project involves automating this process and preparing a list of all data source locations across the branches of the administration, including at local, judiciary and executive level. Apart from the tight development schedule, certain necessary requirements included localization in Bulgarian, optimal user experience and easy to use API. In the context of such requirements and stemming from the belief that software should be reused at minimal public cost, the chosen platform for the data portal is CKAN. CKAN is among the most widely adopted platforms for such purposes across the world and, being open source, has some important benefits it is easily customized for our specific needs, it has a wide user base and thus good troubleshooting resources, it is free and it is almost ready to use out of the box, thus minimizing the time necessary for bringing it up. It is also modular, has important automation functions and is stable and actively developed. Other benefits of an open source solution include the possibility to evaluate the technical quality by reviewing its codebase and also avoiding vendor lock in, should this platform be adopted by the government, A number of other platforms have been evaluated as well such as DKAN, Junar, Socrate, etc, but CKAN was found to best suit the current needs. It is built by the Open Knowledge Foundation in Germany and has an AGPL v3 license which is fully compatible with the requirements. It is used by many European governments as well as the EC and also the Republic of Korea to power their own open data portals. The demo web application is Javascript based and uses a simple Node.js server and Google Maps API which also provide a quick solution with minimum frills and allowed to concentrate on design and user experience. The technology choice was based on developer expertise and a strife for the adoption of modern technologies and modern look and feel. The data portal is already up and running and can be accessed (in Bulgarian only) at It features a few specifically imported datasets, among which are statistical data, lists of socially important institutions, etc. It provides a REST API to be used by third party applications. It is in the process of being deployed on an official government web domain ( The look and feel of the platform have been customized, it has been fully translated in Bulgarian, the datasets have been imported and corrected wherever wrongly formatted or missing data. 13

14 The demo web app is accessible (also in Bulgarian only) at It helps users to find nearby pharmacies that have government contracts for subsidized medicines. The UI allows the users to check if the medicine they are looking for is subsidized, and if so, directs them to the nearest pharmacies. The app accesses the demo data portal datasets to find the list of pharmacies and the list of medicines. It allows the user to set different search parameters such as pharmacy name, search radius and results count. It updates in real time as the user drags the map for a demonstration of the speed of access to the demo data portal. Legal Basis In Bulgaria there is no specific separate law, which regulates the issues, connected with the implementation of Open Data. We are using the framework created with the adoption of the Access to Public Information Act. This Act regulates the public relations connected to the right of access to public information, as well as to the re-use of public sector information. According to the law public information shall be any information related to the public life in the Republic of Bulgaria, and enabling the citizens to form their own opinion on the activity of the bodies obliged according to the law. Under this law the re-use of public sector information shall mean use for commercial or non-commercial purposes, other than the initial one, for which the said information has been created. This Act applies to access to the public information created or kept by the state bodies, their territorial units and the bodies of the local independent government in the Republic of Bulgaria. The main principles of provision of public sector information for re-use are: 1. ensuring an opportunity of multiple re-use of public sector information; 2. transparency at providing public sector information; 3. prohibition of discrimination at provision of public sector information; 4. prohibition of restriction of free competition. According to the Protection of Personal Data Act personal data is any information related to a natural person, who is identified or may be identified directly or indirectly by an identification number or though one or more specific indices. The administrator of personal data shall undertake the necessary technical and organizational measures for the protection of the data against accidental or illegal destruction or accidental loss, unlawful access, change or dissemination, as well as against other illegal forms of processing. The Commission for the Protection of Personal data assists the implementation of the state policy in the field of protection of personal data. Other relevant laws in this field include the Protection of Classified Information Act, the Statistics Act, the Act on the National Archive Fund, Electronic Document and Electronic Signature Act, the Law on the Electronic Government and etc. Currently there is an inter-institutional work group at the Ministry of Transport, Information Technologies and Communications which is tasked to propose amendments to the Access to Public Information Act in view of transposing the regulations on open data deriving from the Directive 2013/37/EU of the European Parliament and the Council on the reuse of public sector information. 14

15 Challenges Apart from the lack of the necessary legal basis for the introduction of open data, there are other big challenges that need to be overcome - some of them are the same as the ones that the development of e-government in Bulgaria meets. The above-mentioned silo mentality of the administration results in an unwillingness of the different administrative bodies to share their information and data with the other structures and with the citizens and businesses they treat this data as their property. Another challenge, which was already mentioned, concerns the state of the available registers and data. The administration has a great number of registers, which are usually maintained in a format that is not suitable for the purposes of open data. A lot of information is made available on the respective websites, but it is not structured properly, it is difficult to find it and it is usually in PDF or Word formats, which hinder its efficient re-use. E. Future Plan of Open data National Development Programme: Bulgaria 2020 The National Development Programme: Bulgaria 2020, which is the leading strategic document in Bulgaria, outlines the introduction of Open Data as one of the strategic priorities for the period until This issue is placed within the framework of Sub-priority 6.5 Administration following the principles of open management. The main idea embodied in the Program is that the administration should provide support for the introduction and establishment of practices for publishing on the internet comprehensive information, including statistical data, which has been gathered or created by means of public funds, including European ones. This information should be published in such format so as to allow its reuse in the process of policy elaboration and during the decision-making process. The expected results of the implemented measures include: increasing the transparency and efficiency of the public policies and political decisions, increasing the citizens awareness and enhancing their role in the monitoring of the performance of the administration, reducing the possibilities for corruption. The responsible institutions for these measures are set as the Council of Ministers, the National Assembly and the Administrative Reform Council. The main focus is on the expected benefits of transparency and enhanced civil society control over the administration and the political class. The possible economic impacts of the re-use of information are not mentioned here, neither is there any specific emphasis on the necessary steps concerning the introduction of Open Data in Bulgaria, on the technical requirements, platforms and etc. This makes the measures more focused on the application of the principle of right of access to information, than on the introduction of open data as a separate priority. In the first 3-year action plan for the practical implementation of the National Development Programme: Bulgaria 2020 some more specific objectives and actions in the field of open data for the period are envisaged. The first measure envisages the elaboration of technical guidelines for the provision of public information in an open format. In order to achieve this objective first an analysis should be carried out on the available public information and the state of readiness for providing this information online in an open format. The second measure for the period is set as introducing a legal obligation for uploading the 15

16 existing systematized information in an open format. For the achievement of this objective common principles and guidelines for the re-use of public information should be elaborated and the Access to Public Information Act should be amended. The responsible institutions for carrying out these measures are the Council of Ministers Administration and the Ministry of Transport, Information Technologies and Communications. Public Administration Development Strategy The Public Administration Development Strategy also focuses on improving the transparency and openness of the public administration in Bulgaria. Again the main emphasis is put on the right of access to public information, but this time open data is set as a separate priority. The Strategy points out that despite significant progress and efforts on increasing transparency in the administration, the necessary level of openness has not been reached yet. Bulgaria has joined the Open Government Partnership initiative 2, but the progress in the implementation of the measures is unsatisfactory. There are no existing common principles and rules ensuring accessibility for the reuse of the information by the public sector, making it difficult to re-use the data for commercial or non-commercial purposes. Primary data collected through public funding, is not always available on the Internet and is not shared with other administrations. The analysis in the Strategy shows that there are no clearly defined rules and technical guidelines for providing data in an open format. Another obstacle to the rational and efficient use of information is the lack of uniform national standards for the format in which data must be submitted in accordance with the areas and sectors of public life, economy, education, health, culture, security, etc. The interoperability standards are not fully complied with and individual administrations develop their own methodologies and guidelines for provision of and access to information. The Strategy envisages that by 2020 a comprehensive, coherent and operational system will be in place for the collection, processing, systematizing, exchange and provision of public information to the benefit of citizens and businesses, allowing correct and accurate statistics for making objective and informed management decisions in all areas of governance. Existing restrictions on free access to information will be gradually reduced. The "open data" approach will be introduced - the information held by the institutions and the public sector will be available for reuse for commercial or non-commercial purposes other than the original purpose for which it has been created. Data will be provided in a format that allows a computer program to uniquely identify separate data contained in the electronic document as well as their internal structure. The goal is the public information (including primary data) to be open and accessible to all natural and legal persons free of charge and to be published in a structured and easy to process format. The steps envisaged in the Strategy include also the elaboration of general principles and rules for the reuse of public-sector information. The strategic document states that opening the access to public data will facilitate the participation of the civil society in political life and will contribute to the development of many policies such as health, education, environment, transport, etc. This time unlike in the National Development Programme there is specific 2 Open Government Partnership is an initiative, seeking strong commitments from participating government institutions to promote transparency, empower citizens, fight corruption, and harness new technologies to strengthen governance. 16

17 emphasis on the economic impact of the initiative opportunities will be created for innovations and a variety of business applications and services that result from analysis and visualization of data from different sources. Following the adoption of the Public Administration Development Strategy an Action Plan for the period was also adopted, which specifies the necessary measures and steps for achieving the objectives set in the Strategy. The Action Plan includes the measures from the 3-year action plan under the National Development Programme: Bulgaria 2020 concerning the elaboration of technical guidelines for the provision of public information in an open format and the introduction of a legal obligation for uploading the existing systematized information in an open format, but it also specifies 2 additional measures - carrying out a study on the readiness of the Bulgarian administration for the introduction of open data and pilot projects for publishing prioritized public information in an open format. The study should be carried out by the Institute for Public Administration, in cooperation with the Council of Ministers and it will be financed under the Operational Programme Administrative Capacity it should be carried out in the period The pilot projects should be put to practice under the guidance of the Ministry of Transport, Information Technologies and Communications and the Council of Ministers, with the active participation of the respective administrations and municipalities. The envisaged cost of these projects for the period is 695,000 BGN (about 350,000 euro). Challenges Despite the existence of the above-mentioned strategic documents Bulgaria is yet to develop a long term road map for the introduction and implementation of open data. This will help to structure the whole process, give it more stability and predictability, assign specific responsibilities to the respective administrative bodies, introduce indicators for measuring the progress, create a thorough project pipeline, calculate the expected costs and ensure the necessary financing of the initiative. The main objective is to use open data as a stimulus for creating economic growth in priority sectors of the economy with high growth potential, to set the basis for increased transparency of administrative work and processes, to create mechanisms for effective and efficient re-use of the existing data and as a result to facilitate the interaction between the administration on the one hand and citizens and businesses on the other, increasing the latter s level of involvement and trust in public institutions. Section 3. Open Data Experience and Case Analysis of Korea A. Background With the rapid growth of the public data based industry and with the expansion of data convergence, the domestic penetration rates of smartphones and tablet PCs increase and entailing App market grows. The sharp rise in the 'App' industry only within five years after the release of mobile Apps causes fierce competition of relevant businesses, and leads into the increase in the private sector's convergence of public and private data. Nevertheless, relevant markets are not created enough domestically, and there is poor infrastructure to activate the public data based businesses. Moreover, in terms of market opening, the 17

18 domestic market scale, compared to the development countries', is very narrow. Opening public information in Korea was triggered by very small events. In December 2009, a high school student developed a smartphone application using bus information of Seoul and Gyeonggido. When the simple serve was greatly popular with citizens, the then Seoul Metropolitan Government forced the service to stop completely. And in February 2010, a smartphone application service using the price information of gas stations was blocked by the Government. The citizens using the services expressed their complaints about the government's actions, and the government recognized the importance of public data opening. Since then, the government began to work to open public information in a full scale. According to the 2008 report by Korea Information Society Development Institute(KISDI), 61.6% of public information were already used in the private sector without any discussion with the government. Meanwhile, in the perspective of technology and policy, Korean Open Data Project, which has been performed since 2011, has the following backgrounds: First, in the change into the smart era, the demand for opening raw data of public agencies has been on the rise in various contents areas, including living, culture, and knowledge. As a result, the government tried to actively open its real-time transportation and weather information and customized public data about health and welfare in order to communicate with the public and provide customized service. Secondly, with the recent emergence of public data as a new economic-growth source, open data are able to produce massive economic and social ripple effects. For the reason, the value of open data is getting larger. In particular, In the low-growth economic structure like Korea's, public data is expected to give a new growth momentum. Thirdly, public data based business contributes to creating single person venture start-ups and is conducive to App Economy which makes a new economic structure including the mobile App industry. Therefore, since 2010, the developed countries, including the US, EU, the UK, and France, has established and supported widely 'Open Data Policy'. As such, global countries recognize that public data is the core resource to determine their future national competitiveness, and accelerates public data opening and the private sector's use of the data in order to create economic opportunities based on public data use and innovate public service. The survey report of each country cites KAIST (2012)'s report according to which open data produces the economic effect of 24 trillion won annually and creates 150,000 job employments annually. The UK government, an advanced country of public information opening, forecasts that open data will annually 60,000 jobs and has the potential value of around 15 billion pounds. As mentioned earlier, open data not only produces the service improvement for the people, but emerges as a source of national economic growth and development. In the circumstance, the Korean government that recognized its importance has been performing Open Data Project as a critical national project to implement the core value of Government 3.0 and Creative Economy. B. Progress In Korea, since the enforcement of 'Act on Promotion of the Provision and Use of Public Data' in July 2013, there has been the foundation laid for the opening and use of public data. 18

19 In fact, what matters most to make a new policy, system, and organization and perform a relevant project is the top decision maker's intention. In the Korean government, as part of Big Plan called 'the Strategy to Grow to a SW Power, 'the comprehensive plan for promoting the private sector's use of public information' was reported to the president in Feb. 2010, and the Ministry of Security and Public Administration allowed National Information Society Agency (NIA) to open 'Public Information Support Center' in Jun Therefore, the legal and institutional system was prepared for open data. One of the reasons that it is difficult to open public information is the issue as to how a public organization, an information provider, is able to provide information without any legal responsibility and administrative burden. To address the issue, in Jun. 2011, the government announced the guidelines about public information provision, and, in Jul. 2011, opened public data portal ( a national single window to collect and provide numerous kinds of information offered by public agencies in accordance with the guidelines. Through the portal service, 13 kinds of Open API(Application Program Interface) including Seoul bus information, and 400,000 kinds of original text information were offered. Another issue was to promote open data. Therefore, in Jul. 2013, 'Act on Promotion of the Provision and Use of Public data' was established. Also, based on the Act, Open Data Strategy Council (the prime minister, co-chairman) was set up. The council manages, deliberates, and arbitrates public data opening and use, determines various policies and makes important decisions. As a result, since the declaration of Government 3.0 Vision, public data has been downloaded 10 folds higher, and open API has been applied for more than two folds higher. C. Current Status With regard to the Korean current status of open data, 1,576 public agencies, including the central government, local governments, and public offices hold around 21,087 kinds of data, 16.1% (3,395 kinds) of which are opened. Non-open data include the data related to privacy, the data defined to be non-opening in individual laws, and the data hard to be opened thanks to the absence of technical infrastructure for opening. [Table 1.] Status of Public Data Retention and Opening Type Public Data Retention Public Data Opening Openness Ratio(%) Central Gov. 4, % Local Gov., Educational Institute 9,636 1, % Public Sector 7,392 1, % Total (kinds) 21,087 3, % Source : Act on Promotion of the Provision and Use of Public Data' [Table 2.] Sectoral Open Data(example) 19

20 Category Health, Welfare Weather Transportation Land Food Open Data Retention Child-care facility information, Regional child-care fee information, Health center service information, Health insurance information, Medical institute information, Social welfare information, Pension information, etc. Heavy rain warning and watch information, Disaster alarming information, Radar information, Life weather index, etc. Road traffic information, Traffic statistics DB, Real-time information on bus, subway, airline, and ship, etc. Underground facility information, Land use planning information, National logistics integration information, Information on building energy consumption and green gas emissions, GIS building integration information, Building licensing information, GPS information, etc. Food business licensing information, Agricultural and farm product distribution and management information, Customs clearance data, etc. Source : Joint of Relevant Government Ministries (Dec. 10, 2013) In terms of a single window of public data, the government opened 37 kinds of real-time public data including procurement information and emergency medical information in open API format at public data portal( Also, 890,000 original image and video data applicable to the private sector are opened. [Table 3.] Open Data of Public Data Portal ( (Oct.2013) The number of open data kinds Open API Original text data 1,725 kinds 37 kinds 898,142 data Source : Joint of Relevant Government Ministries (Dec. 10, 2013) D. Goal and Strategy The Korean government clearly set up the goals of open data. The first goal is to set up open data expansion strategy based on customers. By vitalizing the use of open data, the government provides more 20

21 customized services to the people, creates more job opportunities, and boosts up new creative industries. [Fig. 1.] Goal and Strategy of Open Data Source: reconstruction by this author From the strategic perspective, it is necessary to expand the public's data accessibility. Therefore, the policy on active data opening and its relevant strategy needs to be established. And relevant regulation organizations, deliberating organization, and participating organizations should divide their roles, and government offices and public agencies should prepare the strategy to activate the cooperation with each other. The second one is to set up the strategy of expanding the infrastructure of public data opening and use. To achieve that, it is important to establish a public data management system and come up with the strategy to produce more public data and improve its quality. Given that many different public agencies provide data, it is essential to set forth the standards of data provision and make various types of technical support including the analysis of big data and data search. The third one is to set up the strategy of supporting the eco-system of the public data industry. For the systematic management of the measures and achievements of open data, it is necessary to build the government-wide support system. Also, it is important for the government, a public data provider, to provide customized service to the private sector as consumers according to their life-cycle. In addition, it is necessary to prepare a strategy of helping start-ups using public data to secure an initial market in a stable way and business sustainability. In the next chapter, each strategy is analyzed in detail. E. Expansion of Customer-based Open Data Aside from the already opened public data, 9,259 kinds of public data are expected to be opened additionally by 2016 and 2017 (the openness ratio will reach 60%). Therefore, the Korean government aims 21

22 to find the data kinds for selective opening among non-open data by taking personal information nonidentification measures and securing third party rights; to encourage each ministry to open public data early; to focus on financial investment into DB quality improvement, standardization and opening structure; and thereby to maximize the ripple effect of open data. In addition, the government intends to take into account the private sector's demand and opening effect of other kinds than the strategic kinds which will be opened first strategically and let each relevant organization to make and perform its own opening plan. To lead open data into a contribution to solving a national agenda, it is necessary to open the public data based on national agendas. To do that, there are two strategic directions. The first one is to let each public information provider open its data step by step in accordance with 5-year open data roadmap. The second one is to select 15 strategic kinds that will produce high ripple effect and open them intensively. More details are presented as follows: [Fig. 2.] 5-Year Roadmap of Open Data (2013~2017) Source : Decision by Open Data Strategy Council (Dec. 2013) The first strategy is the stepwise opening in the government-wide dimension. The current openness ratio of public data is 16.1%. According to the collected opening plans of public agencies, 6,075 kinds are expected to be opened additionally by 2016, and the openness ratio will reach 45%. Also, additional 3,184 kinds (15%) will be opened in the way of finding the selective opening of data kinds through personal identification measures and the security of third party rights and encourage each ministry to open public data early. As a result, a total of 9,259 kinds plan to be opened additionally, and thus the goal of 60% of openness ratio will be achieved. The basic principle to guarantee public data opening and accessibility is to open all of the open data list at public data portal regardless of data openness. With regard to open data process, as shown in the below figure, a public organization first submits a list of public data to Open Data Strategy Committee which will deliberate the possibility of opening the data, and after the decision, the whole list of both open and nonopen data is opened at Open Data portal. And then, the list and contents of the open data go to the public, and the non-open data are also generally accessed immediately after the public and firms apply for data opening. 22

23 [Fig. 3.] Open Data Process Source: Joint of Relevant Government Ministries (Dec. 10, 2013) The second one is the selection and opening of 15 strategic kinds. Fifteen strategic data kinds which greatly influences industries in terms of ripple effect, emergency and significance need to be opened first intensively in 2014 and The strategic kinds were selected in the process of conducting the survey of each ministry's demand, collecting experts' opinions in the private sector, making discussion in relevant ministries, investigating data retention status, setting up an opening plan, and making final assessment. The fifteen strategic kinds selected are weather, transportation, land, food & drug, agriculture & livestock, culture & tourism, public policy, procurement, science & technology environment, employment & labor, natural disaster, patent, maritime affairs &fisheries, and health & welfare. Meanwhile, the selected related ministries (15) should help local governments and public agencies to actively open the public data specialized for each industry. For instance, in the case of transportation, the Ministry of Land, Infrastructure, and Transport plays a key role to enable Korean Railroad Corporation, Korea Express Corporation, and Metropolitan Transit Corporation of each local government to provide highway transportation information, sectional transportation flow (traffic and other types of traffic information), air transportation schedule, and air statistics. To improve DB quality of public data, it is necessary to make financial investment to maximize the ripple effect of strategic kinds of open data. The ministries taking charge of 15 strategic kinds should regularly analyze the business model using public data and the private sector's applicability and use and should adjust or add public data kinds to achieve customized strategic public data opening. The third one is to create the free data opening culture in each public agency Each public agency should choose 3 to 5 kinds other than the strategic ones, whose opening is judged to produce high ripple effect, take into account the private sector's demands and opening effect, and set up its own opening plan. In the case, to improve the reliability and use convenience of public data, they should make an effort to increase the quality of the data offered. The common matters that each public agency needs to execute are presented in below. 23

24 <Common matters related to open data for each public agency > each agency should support the opening and use of public data and perform education under the supervision and management of a chief open data officer designated. each agency should come up with selection criteria and apply them to public data treatment like conversion of public data. each agency should announce and register a list of public data in Public Data Portal and its website each agency should set forth general matters to manage the quality of public DB and provide the DB. The fourth one is to provide customized opening based on actual customers. It is necessary to investigate the demands of open data by kind and type and perform customized public data opening' necessary for the private sector.' To do that, it is required to find first the public data highly demanded by the private sector and actively support the private sector's use. Also, it is essential to actively open My Data typed public data which are customized for start-ups using specific open data. Therefore, it is needed to install a window at Public Data Portal (www,data.go.kr), through which would-be start-ups apply for proper open data. [Fig. 4.] Flow of providing personalized 'My Data' (Example) Source: reconstruction of the contents in Public Data Portal ( The fifth is to perform data opening based on state affairs and policy. To lead open data into a contribution to solving a national agenda, it is necessary to open the public data based on national agendas. As shown in the below table, in the case of health and medical service, the medical service system responding to aging and rising chronic diseases needs to be examined from the standpoint of customers. For example, there are Disease & Health Integrated Management DB, Integrated Medical Information DB, Local Health DB, and Local Medical Clinics DB. [Table 4.] Open Data Expansion based on National Agendas (example) Category Description Public data Opening(example) 24

25 Health & Medical Service Analyzing medical service system responding to aging and rising chronic diseases from the standpoint of customers Disease & Health Integrated Management DB, Integrated Medical Information DB, Local Health DB, and Local Medical Clinics DB Systemization of industry, trade, and commerce information Systemizing the information system including industry, trade and commerce information to improve the public' accessibility and the right-to-know Commerce & Trade DB, E-Trade Support DB, Industrial Support DB, etc Source : Joint of Relevant Government Ministries (Dec. 10, 2013) F. Expansion of the Infrastructure for Public Data Opening and Use In terms of opening and use, there are two strategic directions. One thing is to lay the foundation for comprehensively managing open data as a national core asset in the government-wide dimension. The other thing is to expand the infrastructure to provide and use open data in a stable way. This section analyzes relevant strategies in detail. The first strategy is to establish the open data management system. The list management system for registering and managing open data should be installed into the public data portal. Each public agency needs to register its public data into the list management system for synchronization and management. Also 'Comprehensive Status Charts of Open Data' should be installed in the public data portal ( to help to monitor the status of retention, management, and opening of the registered data. Meanwhile, the functions of open data integration and arbitration through inter-ministry collaboration are needed. For instance, for efficient process of the agenda concerned by multiple ministries, Open Data Strategy Council should deliberate and arbitrate to improve the efficiency of policy execution. In addition, for efficient public data opening, each agency should appoint one person as 'chief open data officer and build and operate working-level collaboration network. [Fig. 5.] Comprehensive Status Charts of Open Data (example) Source : reconstruction of the contents in Public Data Portal ( The assessment of the status of open data provision and management should be associated with 25

26 government work evaluation, local government evaluation, public agency administration evaluation which are performed annually to develop open data evaluation index and evaluate performance. And each agency needs to set up its own 'open data use & monitoring system' to regularly or irregularly check and improve problems. [Fig. 6.] Evaluation of Public Data Opening Status & Feedback System Source : reconstruction of the contents in Public Data Portal ( The second one is to expand open data creation and improve data quality. It is desirable to change the conventional 'administration DB establishment project' based on record preservation' to 'open data creation expansion project' based on the opening and use of the data. It is necessary to select and find data in consideration of the private sector's demand and its ripple effect. And it is proper to open and use the data about the areas of social security net and the welfare of the vulnerable in the line with the direction of national policies. Aside from the creation expansion, quality improvement needs to be reflected. The quality of the 15 data kinds strategically selected should be improved. For quality management, depending on DB size, each agency needs to raise the experts of its support center, make a quality diagnosis method reflecting business types, standardize data, and set up a common procedure and system in its organizational dimension. 26

27 [Fig. 7.] Procedure and System for Public data Quality Improvement Source : NIA, Korea s Government3.0 and Open Data Based Creative Economy (May 2014) The third one is to expand open data infrastructure. To advance the user-oriented public data portal ( it is needed to expand open data, add search functions including the popular words based search and associated words based search, and visualize data. Also for the data highly demanded by users, the API for real-time service should be installed in the public data portal. And such data should be categorized by year. In terms of platform environment, open platform should be established in order for the free use of the public and private sectors. [Fig. 8.] Public Data Open-Platform (example) 27

28 For the smooth offering of open data, it is necessary to enhance the education and training programs for the persons in charge of information provision in public agencies. For instance, in cooperation with open data support center, an educational program should be performed in the categories of the basic knowledge about open data and the enhancement of professional ability. Also it is necessary to introduce the system of completing open data education course and online education to enhance the abilities of data managers in public agencies. The fourth one is to standardize open data and develop relevant technologies. It is essential to standardize data structure and expression method in order for each agency to open its data in an open format which can be read by machine. To do that, it is necessary to introduce the nextgeneration web based standard data format like HTML5, which can avoid the dependence on specific S/W or device and improve reusability of public data. Also, it is needed to develop and distribute the standard system applicable to the public data portal and each agency. The examples of public data standardization are presented in the below table. [Table 5.] Development of Public Data Standardization (example) Source : reconstruction of the contents in Public Data Portal ( With regard to the technology of creating and offering public data, R&D function needs to be strengthened. As for the all stages of transmission, treatment, and analysis of public data', it is necessary to choose the special areas required for mid-and long-term basic cooperation in the national dimension and develop relevant technologies. Although M2M(machine to machine) and LOD(linked open data) requires a lot of time and money, they are essential. Also in the collaboration of the private and public sectors, the government should support the development of a new technology (e.g., cloud computing) based data transmission technique. To address the issues raised by open data, including the violation against personal information protection and intellectual property right, it is necessary to support the research on masking for non-identification, anonymity process, data removal, and DRM(digital right management) for copyright. The fifth one is to support the analysis of big data in terms of open data use. 28

29 In the process of pursuing Government 3.0, it is required to converge various shared public data with private data and establish data-based national policies. In other words, it is necessary to expand the application of Big-Data to the public' life areas, including medical, welfare, and education areas, provide customized and intelligent services for the public, and actively use them for national issues. To maximize the use of Big-Data, the government should use Big-Data analysis center to built a Big-Data use system for big data analysis and sharing, actively find the ideas leading into a business, and raise talented persons. Regarding the selection of application areas, it is needed to choose the areas which can easily use Big-Data, including disaster safety (smart disaster control), job creation (future job supply forecasting), health information, and youth information, and intensively support them. [Table 6.] Big-Data Application (example) Category Application case Big data analysis Expectation effect Dept. Preemptive response to Living safety Analysis of crime data, including crime record, weather, CCTV data crime occurrence probability by place and time National Police Agency social issues Disaster control Integrated analysis of weather and SNS disaster data Early forecasting of disasters MOSPA Support for scientific policy establishment Price analysis Analysis of the online price information including the price of internet shopping malls Shorten price statistics period (1month every day) Statistics Korea Work efficiency Cyber safety Analysis of the recorded data of integrated digital center Shortened analysis period(12 hours 10 minutes) MOSPA Source : reconstruction of the contents in Public Data Portal ( G. Creation of the Eco-System of Open Data Industry To create the eco-system to industrialize open data, the government needs to not only build the system to support open data in its government-wide dimension, but come up with two policies, one of which is industrialization support policy to help the private sector to make an initial market of open data in a stable way, the other of which is life-cycle based customized support policy to actually solve the difficulties of private enterprises. First, it is necessary to make an effort to create an initial market of open data. It is essential to create the atmosphere where a new business model using open data can be created and spread. For instance, based on the 15 strategic data kinds, it is needed to find new business models, including customized health care, agricultural products forecasting, weather forecasting, augmented reality 3D based real-time information on tourist attractions, perform a test project, promote a successful business model, and 29

30 associate a good idea with start-up In addition, to promote the use of open data, it is needed to widely make open APIs go public through the public data portal. Secondly, life-cycle based customized support is needed. In the start-up preparation stage, it is necessary to spread the mindset of open data based start-up and support industrialization of an idea. What is needed to do that is to support start-up contest, venture startup school, and relevant education. Also, it is needed to give start-up consulting to those who plan to start their business by using open data. [Fig. 9.] Customized Support to Open data firms based on the life-cyclesource : Joint of Relevant Government Ministries (Dec. 10, 2013) In the stable stage after start-up, it is necessary to support the certification system of a good business idea (BI) and idea rights to provide the circumstance where stable business continues to go on after startup. Startup Fund for Young People' needs to b used for the investment into start-ups using open data, and the infrastructure and test-bed for product development need to be supported for the constant development of new products. When various programs under the small and medium business support policy are performed to support new market opening, market entrance, and promotion, it is required to give more credits to start-ups based open data. In the growth and re-startup stage, various technologies and business models of open data should be transferred to the private sector for industrialization, and proper R&D support should be provided to the enterprises using open data to help them develop from startup business, to innovative business, and to global business. Also for successful open data based enterprises, some kinds of support to enhance their entrance into overseas markets, such as networking with overseas related firms, foreign technology trade promotion support, official development aid based support, should be provided. Thirdly, the infrastructure to promote the open data industry needs to be established. Various types of existing laws and systems should be overhauled not to become any obstacle to the promotion of open data. A new technology and a new paradigm emerging often fails to be activated when it conflicts with laws, systems, and those concerned in the existing eco-system. In this sense, for open data, 30

31 conflicting laws and systems should be overhauled. For example, some laws, including Weather Industry Promotion Act, Statistics Act, Invention Promotion Act, Construction Technology Management Act, Spatial Data Industry Promotion Act, and DB Industry Promotion Act, should be revised for the activation of open data. In the institutional perspective, it is also necessary to reduce or free a use fee for pay data that individuals and small and medium businesses use. [Fig. 10.] Eco-System of Open DataSource :Joint of Relevant Government Ministries (Dec. 10, 2013) In the organizational perspective, the functions of open data support center, big data analysis center, and intellectual property information support center should be strengthened, and the private-sector leading participation should be activated. In the case of open data, professional knowledge about data analysis and use by area is required, and the business model associated with other industries can be created. Therefore, it is necessary to come up with integrated programs to raise talented persons in the weather, patent, and other kinds of areas. In the cooperation of private-data-enterprise and university, specialized programs can be peformed. A case in point is big-data academy for each industry. In the perspective of the operation of a consultive group, the functions of existing open data forum, knowledge DB forum, patent information user forum, and consultive groups by business type should be enhanced in order for the private and public sectors and academia to freely share information and exchange opinions. To help university students to start their business based on open data, circulation business information sessions and seminars should be held. 31

32 [Fig. 11.] Eco-System of Open DataSource : NIA, Korea s Government3.0 and Open Data Based Creative Economy (2014.5) H. Road Map [Fig. 12] illustrates the open data roadmap of each ministry from 2015 to Based on the roadmap, the government plans to newly find and open 6,075 kinds (45%) of open data by each ministry, and additionally open 3,184 kinds, a total of 9,259 kinds by Therefore, it sets a strategic goal of achieving 60% of openness ratio. To achieve that, it is necessary to actively find the selective opening kinds through the application of personal information non-identification measures and third party rights to non-open data, and encourage each ministry to open public data early. [Table 7.] Open Data Roadmap 32

33 Source : Joint of Relevant Government Ministries (Dec. 10, 2013) [Table 8.] Sectoral Open Data Roadmap Source : Joint of Relevant Government Ministries (Dec. 10, 2013) A. Introduction Section 4. Open-data Portal ( Public Data Portal being operated by National Information Society under the supervision of Ministry of Security and Public Administration is a portal site for public data opening and use, where various kinds of public information owned by the Republic of Korea are opened and the public easily and conveniently can use them. Also, it includes the roles and functions of open data support center which supports relevant works. 33

34 [Fig. 12] Public Data Portal( Source : Public Data Portal ( B. Korea Open Data Governance The government should concentrate on opening the public data highly used in the private sector and support the business and job creation for the private sector led use of creative data. Therefore, it is necessary to organize and operate the government-wide joint consultive group comprising the private sector, public sector, the industry, and academia. As a data retention organization, each agency should actively participate in the joint consultive group, and as a data user, private firms should take part to maximize the use of open data and industrialize open data. In this way, it is essential to establish a governance system. The joint consultive group actively should make an improvement in the existing system, if needed. National open data forum should be held to arbitrate differences of opinions between those concerned and gather the opinions of the private sector. To expand the open data based start-ups and investments, Ministry of Science, ICT, and Future Planning as the main ministry of creating the eco-system, Ministry of Security and Public Administration, Ministry of Trade, Industry, and Energy, Small and Medium Business Administration, Presidential Committee on Young Generation should support a wider range of areas in the private sector, and should connect the open data support project with existing support projects. With regard to open data governance, Open Data Strategy Council under the Prime Minister's Office deliberates, settles, and evaluate open data policies. As a ministry of primary concern, there is Ministry of Security and Public Administration. As a working-level organization, Korea Information Society is entrusted with the operation of open data support center. And, a chief open data officer appointed in each public agency chooses and open the public data to be opened, and support the use of them. Dispute Resolution Committee resolves the matters failing to meet the private sector's needs and the open requests which hard to be accepted. 34

35 [Fig. 13.] Government-wide Public Data GovernanceSource : Joint of Relevant Government Ministries (Dec. 10, 2013) [Table 9.] Role & Responsibility of the Open Data Council members Category Open Data Strategy Council (under prime minister) Ministry of Security &Public Administration(committee management operator) Dispute Resolution Committee (under Ministry of Security &Public Administration) National Open Data Forum (Public Data Support Center) Main rolls To deliberate, mediate, and review public data opening and use To mediate policies and different opinions of public data opening between relevant agencies To establish and perform public data opening policies To establishing laws, systems, and main frameworks To resolve disputes about public data provision, rejection and suspension To propose policies on expansion of public data opening, and to exchange information To collect opinions of public data from the private sector and consult 35

36 To support the establishment of the policies and frameworks on public data opening To support the full texts of policies on public data Public Data Support Center (National Information Society Agency) Chief Open Data Officer (Central &local governments, public agencies) opening and use To support various activities, such as discovering open data business models and mentoring for startup To find and distribute success cases, and make promotion to the public To support the operation of the government-wide system of public data opening and use To promote public data opening and use of each agency Source : Joint of Relevant Government Ministries (Dec. 10, 2013) C. Open API (Application Program Interface) Open API (Application Program Interface) is a user-based business model to provide a simple and intuitive interface to control data, where one's own information and applications can be used in other information system over network. The government opened 35 kinds of Open APIs in 2012 and plans to open 42 kinds in 2014 and 48 kinds in

37 [Fig. 14] Roadmap for the Development of Public Data Open API Application Source : Joint of Relevant Government Ministries (Dec. 10, 2013) D. Process for Dispute Settlement On Oct. 31, 2013, Open Data Dispute Resolution Committee under Ministry of Security and Public Administration was established, in accordance with Article 29 of Act on Promotion of the Provision and Use of Public Data, in order to settle the disputes about a public agency's rejection of public data provision and its suspension of provision. The committee is comprised of one president, one standing member, and some 25 experts including associate professors and more, jurists, civic groups, public agencies, and other experts related to open data provision and use. When a dispute arises, an applicant submits a dispute resolution application to the committee within 60 days, and the committee recommends a settlement and performs resolution within 30 days. If the applicant makes acceptance, the dispute is resolved. [Fig. 15] Dispute Resolution ProcessSource : Ministry of Security and Public Administration (May 23, 2014) Section 5. Case Study A. Residential Parking Permit Program Since Seoul Metropolitan Government began to provide 'Seoul Parking Information' Service through smartphone app and its website in Nov. 2013, around 50,000 Seoul citizens have used the parking service (22,571 downloads for mobile app and 25,612 visits to the website) until May. Seoul Parking Information service provides the information on all parking places in Seoul (e.g., location, parking lot, operating hours, 37

38 parking fee); real-time information on available parking spaces; automatic navigation-connection based directional map service, and other kinds of parking information in Seoul. With the service, users can find the information on 2,118 parking places (253,242 lots) and search for their neighboring parking places. In the case of 80 public parking places (15,244 lots) in Seoul City Hall and Cheonggyeocheon-ro, users can find the number of available parking lots in real time. In the past, it was hard for drivers to find the location of a neighboring parking place and a parking fee while their driving so that they roamed around blindly to find a proper parking lot or an available space. As a result, people often arrived later than their appointment time or parked illegally. However, since the Seoul Parking Information Service, drivers can easily find their nearby parking space. The service provides various kinds of information in real time, including nearby parking places, the total number of parking lots, a parking fee, a discount, operating hours, and photos of parking places. Also, with the service, users can search for the directional maps about the parking lots being opened out of their business hours, current free parking spaces, and free parking places on holidays, and can use automatic navigation-connection service to get to their destination. Wen a user chooses a destination parking place in the app and presses navigation icon (NAVI ), the app automatically interacts with the navigation app installed in a smartphone to show the route from a start point to a destination point and the information on a parking place. The Seoul Parking Information smartphone app can freely be downloaded at Google's Play Store, Olleh Market, Apple's App Store, T Store, and U+ Store. More information on the Seoul Parking Information Service can be found at the website ( and the mobile website (parking.seoul.go.kr/mobile). [Fig. 16] GIS information of Residential Parking Permit Program B. Case of the Government-led Infringement of the Private Market: V-World 38

39 of Ministry of Land, Infrastructure, and Transport Since 2011, the Ministry of Land, Transport, and Marine Affairs has established the platform for spatial information in an open platform type, made 2D & 3D maps of national spatial information, and opened V- World portal site to provide relevant information freely. The data include image maps of Korea (25-50cm), the world(15m), submarine topography (500m), and the North Korea(1m), 3D buildings and topographies (the world), administrative cadastral maps(official land price, land use status, etc.) and thematic maps(purpose region/district/section, urban region, development restricted section, etc.). From the users' perspective, the spatial information is convenient. However, such service provided by the government can infringe private firms' market opportunities. The government also recognized the problem with the government-led open data provision, and now tries to come up with relevant rules. As a general principle, the government tries to open public data and support fair competition in market, and the private sector freely uses open data to develop services in fair competition. In the process, the government does not pursue profitability but gives benefit to the private sector, and develops and provides only the service which will not be developed voluntarily by private firms. In the planning stage of service development and provision, the government tries to collect opinions from private enterprises and experts, perform preliminary evaluation through the joint meeting of the private and public sectors. Also, in the budget planning stage, it tries to conduct validity survey. [Fig. 17] GIS information of Residential Parking Permit Program Source : V-World Portal Site of Ministry of Land, Infrastructure, and Transportation ( 39

40 Section 6. Conclusion This report analyzed Korean open data policies and institutional frameworks to promote open data The purpose of this study on the basis of case study. As mentioned earlier, the Public Information Policy Division of the Ministry of Security and Public Administration takes charge of opening a variety of the country's public information to the public who can use them easily and conveniently and operates Public Data Portal and Public Information Support Center. As shown in Section 2, the Bulgarian government is newly conscious of the issue of open data and tries to set up a strategic direction of open data. However, the country has some obstacles: lack of open data system and recognition; absence of investigating the current status of public data retention in the government-wide dimension; and weak force to open public data. To solve the problems, it is necessary to conduct case study on the Korean government's open data policies and its integrated management system of open data. Section 3 analyzed the Korean government's open data policies. In the beginning, the Korean government also has poor organizations and functions to support open data comprehensively. Now it chose 15 strategic kinds of open data and established governance under the supervision of the Prime Minister, and now supports public data portal and life-cycle based support project to help private enterprises use the government's open data. Given the analysis in section 3, in Bulgaria where there is low recognition of open data and a lack of relevant infrastructure, it is necessary to first establish and operate an organization which will comprehensively manage and support open data, and open quality public data through the infrastructure overhaul and quality improvement; as a core strategy, one-stop start-up support program which will lead an open data based creative idea into a business should be performed to promote the weak eco-system of open data. Therefore, it is important for the Bulgarian government to perform open data policies and cooperate with the private sector. As shown in the case study, the government-led service provision may infringe the private sector's market opportunities. Therefore, it is necessary for the government to raise its awareness of open data from the market perspective, although it is important to create an easy start-up environment and make a market early. Based on this research, the following four suggestions are made for the Bulgarian government. The first one is to select strategic kinds of open data. The Korean government chose 15 core kinds of open data to intensively open such data, and then gradually expanded and improved open data kinds. Therefore, the Bulgarian government also needs to survey the people's demands of open data and collect experts' opinions in various areas before selecting step-wise strategic kinds of open data. In this case, it is also necessary to establish the monitoring system according to each kinds of open data in order to find the effect of open data and something to be improved in real time. The second one is to operate a portal. Before numerous government departments and offices open public data spontaneously, the central government needs to establish a single-window based open portal to enable users to easily open data and post their opinions. As mentioned earlier, in Korea, there is a platform which is freely accessed by the private and public sectors, monitors the status of open data and allows users to searcher for public data easily. 40

41 The third one is to operate a test project. In the initial market, in order for the private sector to use open data to start their business, the government needs to perform a test project with its financial support. To create the eco-system of open data, it is important for the government to support various kinds of open data seminars and open data based startups contest, give R&D financial support in the initial stage, promote new business models. The fourth one is to operate the joint consultive group of the private and public sectors (to prevent the public sector from infringing the private market) One of the most significant principles of open data is that the private sector should lead the relevant market and the government should remain as an information provider and give its least intervention. The government is a data creator and has an edge over the private sector in terms of budget and market control. There were many Korean cases where the government intervened in the market and made an infringement by using its prominent position. Its intervention can give bad influence on the whole industry and consequently the government can become the best benefactor of open data. Therefore, it is necessary to establish the private-and public-sectors joint consultive group which will be able to monitor improper interventions and convey the private sector's demands to the government. Reflecting the Bulgarian government's requirements, this research was conducted in the way of providing a benching marking opportunity. Although those concerned in the Bulgarian government were invited to visit Korea to experience the opportunity of bench marketing of Seoul Metropolitan Government and Korean enterprises; and the initial, intermediate and final reports were submitted to the Bulgarian government, there were some limitations in analyzing open data policies in detail together with the Bulgarian government because of geographical issue. And AS-IS and TO-BE methodologies, which are generally used for the introduction of informationization business, failed to be applied, since the Bulgarian government made its own requirements in advance. Nevertheless, to get this consulting into actual business, it is required to come up with a follow-up cooperation measure. References Ministry of Security and Public Administration (May 23, ), Open Data Policy for Use Ministry of Security and Public Administration (Jul. 11, ), the Presentation Material in National Open Data Forum (organized by NIA, Posco Tower 10F, Jul. 11, 2013) Joint of Relevant Government Ministries (Dec. 10, 2013.), Master Plan for Promoting Public Data Offering and Use (2013~2017) Open Data Strategy Council, The matters decided (Dec. 2013) Public Data Portal, Ministry of Land, Transport, and Marine Affairs V-World Portal Site 41

42 ( Korea Information Society, Data Quality Management Cases for Government 3.0 and Creative Economy, Apr Korea Information Society, e-gov Trend & Issue, Evolution and Service of E-Government Portal, Apr. 9, 2014 Korea Information Society, IT & Future Strategy, Strategic Direction of Open Data Platform and National Data. Dec Korea Information Society, Public Information Reliability Security Plan, Focusing on Government-wide Data Governance, Jan. 201 Korea Information Society, Korea s Government3.0 and Open Data Based Creative Economy (May 2014) Korea Local Information Research & Development Institute, Cases of Public Data Opening to the Private Sector and Future Policy Outlook, May