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Journal of Theoretical and Applied Electronic Commerce Research This paper is available online at

ISSN 0718–1876 Electronic Version www.jtaer.com

VOL 9 / ISSUE 2 / MAY 2014 / 80-99 DOI: 10.4067/S0718-18762014000200007
© 2014 Universidad de Talca - Chile

Open Government Data Implementation Evaluation

Peter Parycek1, Johann Höchtl2 and Michael Ginner3
1
Danube University, Department for E-Governance and Administration, Krems, Austria,
[email protected]
2
Danube University, Department for E-Governance and Administration, Krems, Austria,
johann.hoechtl@donau-uni-ac-at
3
Danube University, Department for E-Governance and Administration, Krems, Austria,
[email protected]

Received 13 August 2013; received in revised form 12 November 2013; accepted 15 December 2013

Abstract

This paper analyses the implementation of the Open Government Data strategy and portal of the City of
Vienna. This evaluation is based on qualitative interviews and online polls after the strategy was implemented.
Two groups of users were involved in the evaluation: internal target groups (employees and heads of
department in the City of Vienna’s public administration departments) and external stakeholders (citizens,
business representatives, science and research, journalists). Analyzed aspects included the present
organizational processes, the benefits (to business and society), and requirements for future Open Government
Data initiatives. This evaluation reveals success factors which accompanied the implementation: the clear
definition of responsibilities and the implementation along a process model, the integration of the Open
Government Data platform into existing Content Management Systems, the evaluation of the Open Government
Data initiative very shortly after its inception. Based on the theoretical and empirical findings, recommendations
for future Open Government Data strategies are made which target the local authority and would require action
on the federal level such as Creative Commons Attribution License as the default for subsidy funds or public
relation measures carried out directly by the data providing departments.

Keywords: Open government data, Open government, Open data, Evaluation, Strategy
implementation

Peter Parycek
Open Government Data Implementation Evaluation Johann Höchtl
Michael Ginner
Journal of Theoretical and Applied Electronic Commerce Research This paper is available online at
ISSN 0718–1876 Electronic Version www.jtaer.com
VOL 9 / ISSUE 2 / MAY 2014 / 80-99 DOI: 10.4067/S0718-18762014000200007
© 2014 Universidad de Talca - Chile

1 Introduction
The Open Government Data (OGD) movement is a worldwide phenomenon. Governments and local authorities in
countries such as the United States, Australia, New Zealand, the Netherlands, Sweden, Spain, Denmark and Austria
make their data accessible to the public by publishing it on the web [33]. The main reasons for implementing OGD
are increasing democratic accountability, enhancing transparency, delivering citizen self-designed public services,
and stimulating economic growth [17]. The portal (Site 1) is providing data and information about population, labor,
education and research, finance, health, environment or traffic. OGD has become central to our information
technology-based society. However, the benefits cited by [17] all rely on the assumption of hard to measure, long
term indirect benefits. City administrations, typically fulfilling political will within a four, five or six year perspective
between elections, have to rely on tangible results instead of inspiring visions. Therefore the City of Vienna called for
an evaluation of its OGD strategy implementation with a focus on value for money. Vienna is a quite decentralized
administrative body, headed by the city directorate; regulations issued by the directorate are nonetheless very much
dependent on the support by heads of departments. While a governing regulative document exists which is
effectively demanding the cooperation of departments, departments retain control over what data they release and in
what granularity. Thus, heads of departments have to be persuaded person by person about the benefits of OGD
with tangible and relevant arguments.

This paper provides an insight into the practical implementation of an OGD strategy from a research perspective,
with a particular focus on the organizational implementation, the public value and recommendations based on
surveys including city departments and external OGD stakeholders. Analyzing the City of Vienna’s implementation of
OGD provides general insights into the implementation of OGD in a strongly decentralized administrative system.

The remaining parts of this paper are structured as follows: Section 2 will give insight into the current foundations of
OGD by providing a working definition used throughout this paper, describe the current implementation of OGD in
Austria and the effective supporting organizational setting at the federal level. Section 3 presents the guiding
research questions, the involved stakeholders of the study and the methodologies used to answer the research
questions. Section 4 answers those research questions which can be answered by a survey carried out within the
city administration and OGD stakeholders as well as follow-up interviews. Section 5 tries to formulate
recommendations concerning further steps of the Viennese OGD strategy, partly derived from survey results and
literature review. Section 6 gives a short summary of key findings and a prospect for further research.

2 The State of OGD in Austria

This chapter provides a working definition of OGD, its importance expressed by European policy making and the
current state of implementation of OGD in the city of Vienna including the backing organizational framework.

2.1 Definition

Open data as the underlying principle of OGD is defined as “…non-privacy-restricted and non-confidential data which
is produced with public money and is made available without any restrictions on its usage and or distribution” [20].
Assuming that the government itself is an open system that interacts and cooperates with its environment, then open
data leads to OGD. OGD changes not only the access to data and information but also the boundaries between the
public and its governmental institutions [20]. OGD in itself is not only the publication of data, but also include users’
feedback so as to improve governmental performance and mechanisms for monitoring.

OGD are non-personal data sets that the general public can access [27]. On this basis, new intermediate services for
a wider audience are created. The principles of OGD have been elaborated by open data activists (Site 11 & [35]),
who claim that publishing open data alone is not enough. A crucial aspect is the provision of metadata (data about
data) and advanced descriptions of data acquisition processes [36]. OGD is repeatedly mentioned in the European
Commission and European Union agenda setting. The eGovernment Action Plan [13] aims …to make public
services more efficient and more modern and to target the needs of the general population more precisely. To
achieve this, the plan proposes a series of priorities and a roadmap to accelerate the deployment of eGovernment in
Europe. The five priorities in the plan are: access for all, increased efficiency, high-impact eGovernment services,
putting key enablers in place and increasing participation in decision-making [13]. Challenges that go along with this
action plan are modernizing public services to make them more effective and providing better service. Davies argues
that OGD promises to meet these goals [10].

According to the cited sources, OGD will play an important future role to make administration more open and
accountable, reducing costs while increasing efficiency, fuel the economic system while equalizing social imbalances.
High aims backed by little empirical data. For the city of Vienna it was important to justify their expenses by tangible
results. Thus goals and consequences of OGD publication are required to be validated in respect to value-for money
under the premise that OGD itself relies on indirect benefits involving many ties.

2.2 OGD Strategy and its Development in Austria

Austria can prove a successful tradition of federal cooperation in the field of E-Government [24]. Existing E-
Government achievements are the result of collaborations between the national level, the provinces, cities and
communities beyond legal obligations]. An element of Austria’s E-Government plan is the strategic coordination of
activities by the platform Digitales Österreich (Digital Austria, Site 2).

During the inception phase of OGD Austria concerns were raised whether existing governance structures of E-
Government will be effective for the implementation of OGD, especially the vivid and fast changing nature of OGD
that would have been challenging for the existing governance and approval processes. Therefore a sleek
governance structure Cooperation Open Government Data Austria (in short: Cooperation OGD Austria, Site 5) was
designed. Cooperation OGD Austria is by federal representatives, provinces, cities and municipalities. This body is
not a formal entity but consists of so called ambitious and knowing persons who decide on the future of Open
Government Data. The core assumption is framed by OGD principles, effective organizational and technical
frameworks. The Open Knowledge Forum Austria (Site 3), the Danube University Krems, Department for E-
Governance (Site 4) and the Open3.at society (Site 6) act as advisors to the Cooperation OGD Austria. In this
context, the choice of license, the description of data sets (metadata), the procedure regarding publication of open
administration data and content cooperation (integration of metadata and data on other platforms) are discussed.
The Cooperation OGD Austria also focuses on identifying data resources and elaborating a simple Uniform
Resource Identifier (URI) concept.

The three central aspects (metadata, legal standardization – Creative Commons Attribution License (CC-BY) and the
identification of resources – URI) are met by all OGD projects in Austria, ensuring a basis for a common metadata
platform. The Cooperation OGD Austria defines the specifications. Sub-working groups that include experts from
science, research and business deal with different OGD issues. These working groups report their findings and
recommendations back to the steering committee, thus supporting a fast and effective collaboration in a quickly
evolving field.

In Austria, OGD is a much newer concept and barely covered by the term E-Government. In 2011, the City of
Vienna’s data.wien.gv.at was one of the first OGD platforms in the German-speaking countries. On a national level,
data.gv.at was launched in April 2013 and is an integrator of all OG data in Austria. As of December 2013, 1047 data
sets from 21 different organizations are available at this platform.

3 Methodological Approach
This section gives an overview on which methods and tools were used to obtain answers to guiding research
questions, how these methodologies cooperate and, and in particular who was interviewed and why.

In order to prove assumptions laid out in literature as presented in the preceding section and to justify further
expenses in the field of OGD, a number of goals were set: to evaluate the social value of the OGD strategy for
different target groups (employees, citizens, stakeholders from business, science and research, application
developers, journalists), the internal and external perception of the OGD strategy and implementation, the financial
aspects, sustainability and gender aspects. Only the subset fulfilling the following research questions will be
presented in this paper.

Survey questions were partly influenced by results presented by the Comptroller and Auditor General about the
implementation of the UK OGD portal [8]. However, at the time of the survey inception (spring, summer 2012), no
framework satisfactorily addressed OGD impact assessment, as is also identified by Davies [9].

3.1 Guiding Research Questions

The central research questions guiding the evaluation are:

1. What organizational processes support the City of Vienna’s publication of OGD?

The first research question addresses the Status Quo of Vienna’s OGD strategy which is required to get
assessed in order to identify requirements for future OGD measures (question two).

This research question was answered by inspecting the strategic papers of the city of Vienna describing
organizational setting and by validating the actual implementation in interviews with heads of departments
and those responsible for OGD. Interviews are carried out both written and face-to-face. All of the Viennese
municipal departments should get evaluated, contributing to the statistic validity of the findings.

2. What are the requirements for future OGD measures in the City of Vienna? Discussion and
contextualization with literature in combination with the results of the qualitative interviews with employees
82

from the public administration departments and external stakeholders assist to develop recommendations
for improvement of further stages of the Viennese OGD implementation.

3. What are organizational, economic or societal benefits of an OGD implementation?

Question three is used to generate tangible and communicable benefits of the OGD strategy implementation.
These benefits help convince those persons in charge (especially department heads) that the publication of
OGD has both internal and external (i.e. organizational, economic and societal) benefits. These benefits are
a stimulus for the City of Vienna to continue OGD initiatives and activities. The findings of this study help
improve the data publication processes and the OGD strategy as a whole.

The detailed questions of the survey map to the guiding research questions as can be seen in table 1:

Table 1: Assignment of survey questions to guiding research questions

Research topic Survey questions

1. What Which policies are in effect to deal with reported mistakes or
organizational recommendations
processes Which advertisement measures accompanying the release of OGD have
support the City of been undertaken by your department
Vienna’s From which other administrative departments does your department use data
publication of Is your department able to propose wishes/ideas to the OGD competence
OGD? centre and how do your reports affect future expansion steps
How was the OGD strategy mediated to you
Is your department offering data for sale
2. What are the Questions targeting the Viennese departments:
requirements for Which data sets do you recommend for further publication at the data
future OGD platform of the City of Vienna
measures in the Do you consider the implementation of the OGD strategy as an important
City of Vienna? aspect of your work?
Is it planned to intensify the current OGD engagement of your department
Which suggestions for improvement would you recommend for future data set
release phases
Questions targeting external stakeholders:
What were your positive and/or negative experiences with the platform
data.wien.gv.at
How do you plan to use OGD
Are there additional abilities or skills that you need to have in order to make
better use of OGD
What are the areas of data that you are interested in or where you wish to
have more data available concerning your field of activity
Which data format is the most convenient to work with OGD in your field of
activity
3. What are Questions targeting the Viennese departments:
organizational, Was there an increase of external requests concerning data sets via
economic or telephone after the implementation of the OGD strategy
societal benefits Was there an increase of external requests concerning data sets via email
of an OGD after the implementation of the OGD strategy
implementation? The expenses for the implementation of the OGD strategy at my department
per month can be numbered with (approximately days of work per person)
Was there an increase of internal requests from other departments
concerning data sets after the implementation of the OGD strategy
What are your department expenses to release OG data sets [data set]
[hours].
Has the expense of work in your department concerning the provision of data
been reduced since the implementation of the OGD strategy
Is there an additional value for your department by the implementation of the
OGD strategy
Questions targeting external stakeholders:
Since you are making use of OGD in your products and services, to what
extend [percent] did your revenues increase because of OGD.
How do you estimate the proportional revenue because of OGD in ten years
How do you perceive the potential of OGD for internal utilization for example
in business intelligence?

The survey questions target the departments of Vienna as well as external OGD stakeholders and are included in
the Appendix.

3.2 Study Design

The evaluation was conducted ex-post the implementation of the Viennese OGD strategy [28]. The following
methods were used:

Analysis of secondary literature: international publications on OGD were analyzed, with a particular focus on
the historical, international and European perspective and the socio-political and organizational challenges.
In particular, the paper by Dawes & Helbig who describe stakeholder interests in respect to public value
[11]; Eight Business Model Archetypes for PSI re-Use by Ferro and Osella to better understand the
business perspective of OGD when preparing the surveys [14]; Benefits, Adoption Barriers and Myths of
Open Data and Open Government by Janssen et al. who provide a list of political and social, economic,
operational and technical benefits which show OGD potentials in relation to frequent wild expectations
about the impact of OGD [20]; A paper by Chun who describes the sphere of Citizens, Data and
Government [6]; and the EU eGovernment action plan, which consolidates many benefits mentioned in the
preceding literature and creates a vision of harnessing ICT to promote smart, sustainable and innovative
government [13].

Document analysis: Political documents: the Viennese red-green coalition agreement which includes the
intention to open government data on the city level [34]; Internal strategic documents by the City of Vienna,
these documents were: Executive order of the implementation of open government and open data including
a virtual department responsible to execute the order [28]; Executive order concerning the appointment of a
central data responsible at the department of statistics and his duties; Executive order concerning the
procedure and cooperation of departments with the department of statistics and the central data responsible
[31];Communication by the City directorate to the heads of departments to self-assess their available
datasets according to the Centre for Research in Administrations OGD procedure model [22], [30];
Operative document: download statistics of data sets and APIs and their origin

Empirical qualitative and quantitative analysis: two different online questionnaires were developed: one for
the employees and one for external OGD users. The City of Vienna’s directorate actively supported the
internal survey process, so that every department was asked to take part in the questionnaire, leading to a
high number of valid responses. Both questionnaires are included in the appendix.

Empirical qualitative analysis: The qualitative analysis consisted of semi-structured, question-based

interviews with members of internal departments and external users.

See figure 1 for an overview on the research stages:

Phase Activity Product Action

Time
June 2012 1. inception study design questionnaires
desk research (literature
review, document analysis)

2. implementation written and oral surveys unstructured raw content

October 3. clustering content analysis structured raw content

2012
4. recommendation desk research, oral surveys report delivery

Figure 1: Research phases, activities taken and (intermediate) research products which give input to subsequent
research activities

During the survey inception phase, representatives from the City’s directorate were involved in the design of the
questionnaires. The questionnaire used for the employees was mainly used to determine the Status Quo of the City
of Vienna´s OGD strategy. The aim of the questionnaire for external users was to generate new insights for
improving the current implementation and developing further OGD initiatives. Completed online questionnaires were
content analyzed to identify re-occurring topics and issues. The clusters that were generated refer to positive and
negative peculiarities and common issues. The cluster formation is a discussion outcome of content analysis, desk

research and the persons responsible for the study. In a further step, the findings from the online questionnaire were
used to derive a guide for the interviews: the issues obtained from the questionnaires were discussed with the
interviewees. Table 2 provides an overview on the characteristics of the used research method, and the number of
participants of the surveys.

Table 2: Overview of the questionnaires used in the research, as well as the type and number of involved interview
participants

Method Characteristics Interviewees Nr. Participants

Questionnaire Members of the municipal 121 people from
for internal administration departments (city 83 administration
users and districts) units
Questionnaires: Empirical
qualitative and quantitative Convenience sample of users
analysis (online interested in OGD. These
questionnaires) Questionnaire interview partners were selected
for external participants from the ADV E- 48
users Government conference and the
Gov 2.0 camp, so there clearly
was a bias to be expected.

guide that Members from the internal

11
addresses the departments
findings from
Empirical qualitative
online survey External stakeholders (science
analysis (oral interviews)
with target and research, business,
group specific 21
journalists, application
adoptions designers)

4 Research Results
The purpose of this section is to give answers to the research questions using the methodologies described in the
previous section. Research questions 1 (What specific organizational processes support the City of Vienna’s
publication of OGD) and 3 (What are organizational, economic or societal benefits of an OGD implementation?) are
answered in this section. Research question 2 (What are the requirements for future OGD measures in the City of
Vienna?) is answered in the following section as it requires discussion and contextualization with relevant literature.
As previously stated, a method mix seemed feasible to provide the necessary inputs. Results of this section (survey
clustering) remain largely un-interpreted and are set into context in the interpretation and recommendation section.

4.1 Survey Participation

The online questionnaires were implemented using Google Forms and were accessible starting June 2012 until 8
August 2012.

4.2 Internal Poll and Interviews

The questionnaire for the City’s employees contained 16 closed and 10 open questions. The City of Vienna sent the
online questionnaire to all its employees. 121 employee’s responses were received. All 83 administrative
departments (city and district administration departments) took part in the survey. Hence, at least one employee in
each department took part in the survey.

ViennaGIS contact persons are employees working with the Vienna geospatial information system (GIS). This is a
centrally located IT-system operated by the ICT-department providing GIS services to a multitude of departments. At
present, this ICT-system is the only large-scale shared system within the city of Vienna.

As can be seen from table 3, about one third of the respondents are affiliated to IT. Especially people with an IT
background (16%) and data protection officials (9%) responded. This reflects the assumption that the topic of OGD
within the City of Vienna is related to IT and neglects associated social aspects. 33% of the participants hold
directive or executive positions. The remaining 33% are employed in a department that actively contributes to the
City of Vienna’s OGD strategy.

Table 3: Participation by city employees by field of work

Field of work # respondents %

Other 84 52%
ViennaGIS contact persons 5 3%
Public relations workers 11 7%
ICT consultant 16 10%
Person in charge for gender 1 1%
questions
data protection officer 11 7%
IT contact person 19 12%
budget consultant 8 5%
heads of departments 7 4%

Face-to-face, semi-structured interviews based on the results obtained from online questionnaires were used as
online questionnaires alone do not always provide the required in-depth insights [1]. p. 157ff. The interview guide
was designed on the basis of the answers obtained from the online questionnaire and adapted to the specific target
group or department. 11 participants from 9 departments participated and Interviews took between 30 to 45 minutes.

4.3 External Polls and Interviews

48 people responded to the questionnaire and 21 people were interviewed. The questionnaire for external users was
based on 8 closed and 13 open questions. As only 48 people took part in the survey targeting external data
stakeholders, the quantitative aspect of the results are insignificant, but the responses yield interesting and important
insights. Social media tools were used to call for participation during a time frame of eight weeks to participate. The
respondents are self-selected, and obtaining insights from people outside the internet user community was not an
explicit goal. To guarantee the competence of the participant, the first question asked is about the familiarity with the
term Open Government Data. The vast majority (96%) of the external participants are familiar with OGD, yielding to
relevant qualitative results.

A common problem with online questionnaires is a declining level of responses, even when the request to respond is
made by e-mail [13]. Thus personal invitations and requests made in social networks (relevant newsgroups, forums
for discussions and websites) were used to urge external users to respond to the questionnaire. Mainly users with an
interest in OGD were addressed. A further goal of these requests was to call the attention of people who are
randomly in touch with the OGD topic or community, but do have specific expertise in the OGD domain.

The results also show that three-fourths of the external users use OGD actively. Their hands-on experience with
OGD is a pre-condition to answer the questionnaire in a meaningful way. As online participation of external
stakeholders proved challenging, 21 oral interviews were conducted with different stakeholders: 4 citizens; 3 from the
business category, 4 from category science & research; 4 application developers, and 6 journalists.

4.4 Status Quo of OGD in the City of Vienna

The present organizational Viennese OGD publication setting was answered by analyzing the strategic documents
and validating the therein laid out structures by the written survey and oral interviews with employees of city
departments. Some decisions made upfront are unique to the City of Vienna and are likely to contribute to the
publication success attained that far.

Although the publication of OGD in Vienna is legally undefined, the Vienna OGD initiative is backed by political
commitment and agreement on publication of administration data at the policy level. At the moment, disclosure of
information is influenced by several specific laws, such as the national Bundesstatistikgesetz or Vienna’s
Landesstatistikgesetz (BGBl. I Nr. 163/1999; Wiener Statistikgesetz, LGBl 2001/50; federal resp. provincial law
concerning the aggregation of statistical data). However, the Landesstatistikgesetz demands the publication of data
in an aggregated manner, to prevent drawing any conclusions about singular persons, events, processes or
business contacts. The federal law for Dokumentation im Gesundheitswesen (BGBl. Nr. 745/1996; documentation
about health-care related data) requires publication about costs and expenses of healthcare facilities. Austria does
not have a pro-active freedom of information law as is the case in the US or the UK, instead, according to the
Auskunftspflichtgesetz (BGBl. Nr. 287/1987) officials are required to give information upon citizens request, but only
in the case that the regular work of the administration will not be adversely influenced. However, the efficacy of this
regulation is heavily undermined by the principle of Verschwiegenheitspflicht (Art 20 Abs 4 B-VG; obligation of
secrecy), within the Austrian constitution. This makes (at least in legal theory) Austria the most secretive
administration in Europe. Further legal fundaments are the implementation of EUs PSI and INSPIRE directive into
86

national law (BGBl. I Nr. 135/2005, Informationsweiterverwendungsgesetz and LGBL 2006/48, Wiener
Umweltinformationsgesetzes; BGBl. I Nr. 14/2010, Geodateninfrastrukturgesetz and WGeoDIG: Wiener
Geodateninfrastrukturgesetz). The implementation of INSPIRE sparked the establishment of the ViennaGIS-
coordinator and the implementation of the geospatial information infrastructure, spanning multiple departments.

In Vienna, the Chief Information Officer fulfils this political agenda and every department has to nominate a person
responsible for the OGD implementation at the department level. The OGD platform data.wien.gv.at serves as the
central data portal and the OGD implementation, provision of assistive services and establishment of good practice
has been delegated to an expert group, comprising of permanent and strategic departments (IT department,
statistics department, Geographical Information System (GIS) department, directorate). However, results from the
online questionnaire reveal departments’ limited influence on the OGD strategy: 67% of the departments have no
direct influence on the implementation of the OGD strategy. The clear definition of responsibilities and process steps
supports an unambiguous control of the OGD process which focuses on coordination, prioritization and evaluation.

The Viennese administration (and administrations of German-speaking countries in general) is heavily influenced by
the delegation principle with strong department leaders and a comparatively weak central steering group, so the
publication of data sets has to be discussed case by case, department by department. This enables the integration of
political discussion processes preceding data publication. At the City of Vienna, this process is called OGD – data
examination and production. This internal procedure includes data monitoring where data sets for publication or non-
publication are identified. This was enabled along the implementation of an OGD process model, developed in
cooperation with the Centre for Administration Research (Zentrum für Verwaltungsforschung - KDZ, Site 7) [22],
which is in turn based on the work of [25]. The identification is carried out in respect to possible economic potential,
value, security and potential improvement. A range from 0 (no publication) to 5 (no limits) guarantees these
guidelines which incorporates the aspect of data protection as a coherent component of the Viennese OGD strategy.

4.5 Efforts and Expenses

Another interesting aspect was the influence of the OGD strategy on department’s efforts. The survey tried to asses
that correlation by measuring the number of received phone calls (31 responses) and emails (30 responses)
concerning the department’s information provision. Given that the majority of information provided as OGD at the
point of the study was also available on the departments websites (albeit spread over different areas in a mostly
unorganized way), an ex-ante compared to ex-post relationship can be derived.

1 … significantly increased 6 ... significantly decreased

Figure 2: Change of requests since the release of OGD

As can be seen in Figure 2, the release of OGD has no significant influence on the rate of requests from external
stakeholders. Neither the requests by email nor those by telephone have clearly changed after the release of open
government data.

Another question assessed the amount of time City of Vienna’s staff requires to prepare (formats and meta-data
descriptions) and quality-proof data devoted as OGD, measured in person days per month. Respondents claimed
that OGD created additional labor costs, although in Vienna these additional expenses are not measurable as OGD
is not set up as a cost center, thus expenses cannot be attributed towards those efforts. Most of the respondents see
OGD as an activity related to infrastructure anyway, which would make activity related expenses futile to project on a
cost center basis. 33 persons answered that question: the majority of respondents (12 in total, i.e. 36%) state that 1-
2 person days were spent on this activity.

The interviewed employees of the administrative departments agreed that OGD should be free of charge as the
benefits of publication are difficult to measure but are expected to exceed the possible loss of income (by no longer
87

selling data). Nevertheless, the models of (re-)financing should be adapted: Giving away data free of charge leads to
some decline in earnings and OGD release support by the ICT department is additionally billed on a per data set
basis, punishing those who are willing to disclose more data sets than those who follow a more restrictive data
liberation policy.

4.6 Organizational Implementation

The decision to host the OGD platform at the beginning of the strategy implementation on the existing Content
Management System (CMS) proved to be advantageous, as knowledge of Comprehensive Knowledge Archive
Network (CKAN) or other data providing platforms was scarce. This allowed Vienna to kick-start OGD without in-
depth technical knowledge of a new system.

The traditionally heterogeneous administrative structure required Vienna to establish an informal, ad-hoc working
group to decide on publication details. This so-called competence center of Open Government of Vienna is a virtual
department and consists of five core departments, including the ICT-department, and the department for city
planning. Other entities become part of this virtual structure on demand. One survey result was that Departments
which are not directly involved in the strategic agenda setting, showed considerably less or missing knowledge about
the Open Government strategy itself or the implementation of the strategies.

Marketing and Public Relations are central aspects of OGD publication, supported by a strong cooperation between
the organizational units and the OGD competence center. Both coordinate OGD activities, run projects, surveys, or
competitions, develop strategies for data publication and can be contacted for matters related to OGD. However the
survey results and interviews show that at present, the actual carrying out of marketing activities is still considered to
be the duty of the central PR-department. The survey revealed that data providing departments do not see in their
duty to carry out stakeholder management.

Evaluating the data sets is a further aspect of the organizational implementation. A central component of Vienna´s
strategy development was the cooperation with the Centre for Research in Administration (KDZ, Site 7)] which
designed a detailed process model of OGD [22] which was subsequently extended by [23]. The implementation of
OGD measures is executed in line with this process model. The difference to other international implementation
processes is that in Vienna an early prioritization and evaluation of the measures and a selection of the data sets in
relation to public activities was performed. For example, the US and UK OGD platforms, while operative in 2009 or
2010 respectively, were evaluated in regard to expenses and efficiency not before 2012 [8].

4.7 Technical Implementation

Results for this section where obtained from the aforementioned 11 oral interviews with city department
representatives, namely the ICT-department, the OGD competence center, and departments affiliated with
geographical information processing.

The hub of Vienna’s OGD is the GEO-server, an integrated information system which stores GIS data, ranging from
historic data up to city planning level. The GEO-Server is commodity GIS software that has been heavily customized
to fit specific needs and extensively extended in the last 10 years of usage. Many departments access or actively
contribute to the GEO-server. By using the GEO-server, the departments can independently decide on the data to be
released as OGD. The data sets are declared as OGD within the GEO-server, however declaring data as open data
within the GEO-server does not automatically result in the publication of that data on the OGD portal. The data still
has to be enriched with metadata and designed according to the guidelines of OGD. CMS advisors finally, still, have
to establish the link from OGD metadata to the actual data set. Further survey results in this domain are summarized
in table 4:

Table 4: Summary of the main organizational findings

Research Question Key Findings

Clear definition of responsibilities and process steps

Process model for OGD publication developed in cooperation
What are the specific with the Centre for Administration Research based on
organizational processes that academic field work by [25]
support the publication of OGD Evaluation as an integral part of the OGD initiative
of the City of Vienna? Integration of OGD platform into existing CMS systems to kick-
start the progress
Homogeneity of external-facing implementation

4.8 Benefits of an OGD Implementation

This section provides an overview of findings concerning the perception of Vienna’s OGD implementation in terms of
its benefits (economic, democratic and societal), potentials, and costs. Unlike the previous section, where the Status
Quo was gathered by analyzing documents of the City of Vienna and surveys held with the City departments, results
of this section were primarily obtained by the external stakeholders.

While the release of data certainly has challenging consequences such as loss of income due to releasing data for
free (as it is the unconditional case in Austria), long term and net positive effects prevail [20]. As the city departments
of Vienna have a strong autonomy in their decisions and doings, tangible and understandable benefits beyond large
scale yet hard to measure societal benefits are necessary to persuade heads of departments to increase OGD
efforts or to release data at all. That is why this section concentrates on benefits. Threats and challenges of OGD
with a focus on Austria were assessed for example in [21].

The Viennese government agreement on OGD [34] named the following beneficial aspects of their strategy. These
claims where used to formulate survey questions as seen in the Appendix:

1. Easier access to increase the number of users, which will stimulate and improve the value of the services
provided;

2. Increased transparency of public administration and its processes. Citizens are seen as partners that are
able to interpret and adapt the provided data;

3. Reduced administrative efforts. The bulk of administration processes will be automated.

4. Administrative procedures will be simplified because user specific terms of service or invoices are no longer
necessary

4.9 Benefits Drawn from the Department Survey

The majority of the participants (32 out of 40) perceive the implementation of the OGD strategy as beneficial,
especially heads of department agree on this. The heads of department believe that OGD provides a number of
advantages, e.g. higher efficiency and availability of the data sets on the official OGD platform (instead of responding
to demands for data). This helps improve customer friendliness and customer focus, and in turn also improves the
image of public administration. Given the common data basis, OGD allows for the comparison of data as well as an
understanding of content and structure. Interpretation errors could be avoided, and the departments would be able to
focus on improving the administrative processes. The quality of data can also be improved as citizens report errors
they identify.

At the time of the survey, the city of Vienna provided a forum which was used to collect citizen reports concerning
identified mistakes. This forum, after half a year of operation, contained only 17 entries and as of October 2013, this
forum has been shut down without providing another alternative to report mistakes.

Benefits for the Department

20 16
15 11
10
5 5
5 1 2
0
very not true
true at all

Figure 3: Benefits for the department

The results of figure 3 reveal an interesting distribution. While a majority is on the positive side on OGD, there is core
of pessimists, who believe that OGD is not beneficial at all. A benefit mentioned by department employees is the
rapid and readily availability of data as some departments used the OGD platform as a replacement for a missing
enterprise information system. Departments use this platform to gain information about the data of other departments,
or to use the data of other departments for their own activities. Some respondents also mentioned that they used the
platform as a form of data bulletin: By inspecting other department’s data, they gain a notion of what they are actually
doing. This effect of a poor man’s information management system was not foreseen at all.
89

Negative voices mentioned concerns about erroneous data and legal liability consequences.

4.10 Benefits Mentioned by External Stakeholders

External OGD stakeholders assign good grades to Vienna´s OGD platform implementation. Public administration
itself is seen as the main beneficiary of OGD, particularly in regard to improved error reporting and, in order to
efficiently supply OGD, by administrations need to invest in new and improved automated data services. Additional
value is created by the improved perception of the public administration’s reputation. The interviewees stated that
OGD had a positive effect on the public image as well, where the public image is related to higher conformability,
government activities, higher transparency, better quality, efficiency and effectiveness [16]. 18 out of 27 externals
stakeholder survey participants perceive OGD as beneficial for their work activities, especially scientists and
researchers. None of the external stakeholders evaluated OGD as non-relevant. According to this survey, OGD is
more relevant.

Concerning the question about public value (cf. Appendix), higher efficiency in governmental self-administration
leads to economic savings. In the medium and long term, OGD will be implemented by a more intensive coordination
of the administration departments, enabled by a stronger connection between departments and units via ICT-based
information management [5]. The combination of heterogeneous data sources would lead to new insights if the
organizational maturity and the quality of the information management in the agencies could be increased. This will
cause a better administration performance with simultaneous cost savings in the medium term.

Addressing the question on economic benefits (cf. Appendix), the survey participants and interviewees see OGDs
potential as a factor for innovation: The publication of OGD is regarded as a mean towards new enterprises and
business models. However, for new business models to emerge, standards (e.g. metadata), which future-proof
financial investments, would be required. The biggest benefits are expected for start-ups and business niches. One
interviewee mentioned that the use of OGD has led to a 5% increase in sales. Other possible benefits will emerge
from outsourcing present government procedures, as a business network and for business cycles.

OGD was mentioned as an additional resource for existing business models in the area of data analysis, data
handling, data visualization and data integration [14]. Additional indirect value is created through the increased
coordination of the target groups, as the public sphere tends to realize only those projects that generate either direct
economic market value or fulfill an actual need. For successful OGD implementation an active, a solution orientated
attitude, both the economic OGD stakeholders and the administrative entities will be necessary.

Participants and interviewees also addressed the risks of implementing OGD. The risks mainly affect the purchasing
power of the consumers. Existing imbalances in regard to assets, knowledge and income will not be balanced but
increased. The underlying reason is that the handling of data requires additional skills and competences.

Concerning questions targeting advantages for democracy and society, increased transparency is seen as a major
benefit of releasing OGD. Government, citizens, civil society, NGOs are seen as the major beneficiaries of OGD. In
the context of Open Government it is often predicted that more transparent processes will lead to a greater interest in
politics. Respondents mentioned that the publication of relevant data in combination with administration structures
enables citizens to gain more insights into activities of the authority and, as a result, more possibilities to control
administration and politics. A crucial factor in this context is citizens’ ability to verify or access sources. The OGD
could also contribute to the acceptance, stabilization and legitimization of policy decisions. Transparent processes
and greater citizen control may be able to hinder corruption and the irresponsible use of public money [11].
Increasing the power of intermediates would thus lead to increased democratized processes [6]. Several participants
and interviewees expressed their concerns that essential core data sets will still remain closed. Existing business
models around high value data sets like the company register cannot be torn down over night. People behind these
businesses might express a shammed interest in OGD while concentrating to preserve a closed status. Another
interview partner was worried that OGD only offers an illusion of transparency in that the administration is still under
full control of what data they intend to publish. This would only change by a free information law with a the default is
open attitude. Another interviewee raised concerns over highly emotional topics such as migration or expenses in
health care. These topics would be complicated, involve many stakeholders and require deep insight. Open data and
the current possibilities or the lack of cross-related datasets by the authorities themselves, combined with missing
easy to use visualizing tools, would make such data sets inappropriate for public consumption.

4.11 Summarizing OGD Benefits

The main benefits of OGD are seen as improving internal processes, error reporting by users and the community,
and an automated data service (instead of individual requests). Internal benefits are the increase of employee
motivation due to more interaction with stakeholders emphasizing the external importance of their work. Another
advantage is more costumer friendliness, more costumer focus and efficiency, leading to an improved public image
of public administrations. More efficiency and better quality of OGD also offers financial savings. The usage of OGD
as a simple system for information management and the rapid availability of data are further benefits of OGD
implementation.

Societal benefits are: more information for voting, diversity in opinions and debate, and increased citizen participation.
Increased political participation can contribute to stabilization and legitimization of policies. Corruption and other
forms of irresponsible practice may also be prevented or at least minimized [5].

In the field of economy, new business models making use of OGD are expected to emerge. Participants suggested
that they could be based on data analysis, data handling, data integration and visualization. Thus, public value is
likely to be created by higher tax revenues. OGD may be able to contribute to economic growth, job preservation or
job creation.

The following table 5 summarizes some of the mentioned core benefits, expressed either by city representatives of
external OGD stakeholders.

Table 5: Summarizing OGD implementation benefits

Mentioned
Research Question Key Findings
by
Improving data and processes through error reporting

City representatives
Automated data service to reduce human intervention
Increased employee motivation
Improved public image
Limited but useful information management system
What benefits (internal, Costumer friendliness and focus
economic or societal)
does the Increased economic efficiency

External OGD stakeholders

implementation of the
OGD-strategy offer? New business models
Rapid availability of data
Increased citizen participation
Stabilization and legitimization of policies
High qualitative data for research
Insights into government mechanism

5 Recommendations and Discussion

While research questions 1 and 3 could be answered to a large extent by using documents provided by the
administration of the city of Vienna and the results obtained by the survey and follow-up interviews, question 2 (What
are the requirements for future OGD measures in the City of Vienna?) required contextualization to existing literature.
In addition, this section looks at the current OGD strategy, expectations and wishes for future OGD initiatives.

5.1 Expectations

The user group citizens shows a high interest in the legal entrenchment of OGD initiatives by a freedom of
information law. Increased publication of political data would be required and more homogenous data standards and
better metadata to allow for the easier comparison of data. Further activities such as specific applications for target
groups, supportive measures and OGD workshops (to curate data, how to design a mobile app) were also
mentioned. Such activities would help to increase awareness of OGD in the population and lower entrance barriers.
Additionally, more meetings to link the target groups to the City of Vienna should be supported in the future. Like the
citizens, the journalists emphasize the socio-political dimension of OGD and are interested in particularly polarizing
and newsworthy data.

Economic stakeholders agreed that data sets are interesting however they are not usable in a cohesive way: access
to more comparable and complementary data would be necessary. The economic benefit of OGD is mentioned,
however the interviewees revealed no novel business models. Wishes and requests mentioned the release of data
currently stored in federal registers like the commercial register and land register. However, these requested data
items cannot be provided by the City of Vienna as they are not in charge of these registers.

A few participants from the target groups science and research and application developers see no primary reason to
deal with OGD due to lack of financial incentives. The survey participants requested better integration of the
chambers of commerce, special interest groups and of education institutes and universities.

Most of the application developers appreciate the data and services currently offered and see potential areas of
improvement such as the ability to provide direct feedback instead of the existing forum. (As of October 2013 and in
conjunction with the move towards using CKAN after building up enough knowledge my OGD operators, this forum is
now defunct altogether.) Further requests were made regarding additional data (geographic, localization, traffic,
mobility, population, demographic, housing), application programming interfaces, research data, and to facilitate ties
to universities and educational institutions. Interviewees from science and research emphasized the potential of
OGD in education and research, however concerns were raised as educational concepts would have to be rethought
and redefined, as such education and research programs needs to emphasize on creativity instead on memorizing
facts. Table 6 summarizes key findings for future stages of OGD expansion.

Table 6: Summary of the main requirements

Research Question Key Findings

OGD backed by legal framework
Publication of political data
What are the requirements
concerning further stages of OGD Homogenous data standards
expansion?
Stakeholder specific target group management
Networking between different target groups

5.2 Recommendations for OGD Implementation

On the basis of the survey findings, deficiencies mentioned and wishes expressed by OGD stakeholders,
recommendations in three areas could be derived. These recommendations have a level of generality, thus are
applicable beyond the city of Vienna departments, but may not be suitable for all kinds of government departments.
Cities with a comparable stakeholder constituency and power structures as the described one of the city of Vienna
will certainly identify areas of action which will help to improve an on-going OGD implementation.

Recommendations have been separated into technical, operative and strategic measures, targeting either the local
authorities or the federal layer.

5.3 Technical and Operative Measures

As was witnessed during the interviews, departments with modern and integrated ICT-systems have a higher
willingness to publicize data as OGD. For example, data stored in the GEO-server can be transferred to the OGD-
portal in a semi-automated manner, while other data sets on the OGD platform of the City of Vienna are provided in
a manual and thus error-prone way. Ideally, all data should be stored in an integrated IT-system with automatic
transferal to the OGD platform. This would also facilitate the provision of standardized application program interfaces
(APIs) for external stakeholders [29].Therefore, these recommendations foster the implementation of modern, data-
specific tools:

Implementation of a cross-department information management system via a common data bus. Such an
data / information sharing bus was described in [32], and while this paper primarily targets E-Government
on a federal layer it incorporates necessary elements as authorization and authentication.

The harmonization of data and comparability of OGD through code lists and thesauri. Although the public
appearance of the Viennese OGD portal is visually homogeneous, the different departments are
autonomous in their decision making. This is reflected in formats, structures and extent of the provided data
which is different between the particular departments. However, the sheer amount of data within the
organization, combined with the promise of OGD to be a valuable resource for business intelligence,
requires data to be organized in a computer system understandable manner. This measure helps to fulfill
requests made by interview partners belonging to the external stakeholders and is a first step towards more
sophisticated automated reasoning possibilities to leveraging the potential of business intelligence [2].

Providing tools on the OGD platform such as described in objective C1-RES of the ENGAGE project (Site 8)
which help to visualize core data sets such as points of interest or time series related data in a user driven
fashion [3]. Currently there are no data visualizations provided by data.wien.gv.at. Besides visualizations,
tools which facilitate data curation, collaboration, and code sharing would be advisable.

As expressed by interviewed city of Vienna employees, OGD has the characteristics of an infrastructure measure,
with certain departments abandoning income by no longer selling data while being forced to appoint and pay the ICT
department to publish the data. This requires

The development of appropriate OGD re-financing models. While it has been argued, that keeping PSI in
secrecy or effectively restricted in usage by availability burdens [15], direct finical losses by OGD
contributing departments have to be compensated in a way, that releasing more data is encouraged rather
than punished by requiring departments to pay assistive data release services on a per-dataset basis.
However, [4] call it an “interesting problem”, suggesting that questions of re-financing require structural
changes.

OGD uptake could be further improved by lowering the participation barrier and by show-casing potential usage. This
requires

Public relation activities and stakeholder-oriented initiatives carried out by the departments themselves.
Those activities focus on specific user groups as is the case of the open government engagement team OG
Ontario [26] and laid out in Guidelines on Open Government Data for Citizen Engagement by the United
Nations [12].

The value of OGD increases by releasing valuable and mashable data sets. However, this requires first and foremost
to

Publish more data.

5.4 Strategic Measures

Austria’s administrative system is a thoroughly federal system with a clear distinction between administration and
politics. While OGD has barely reached the political layer, certain actions require measures to be taken at that level
as they clearly escape the scope of administrative actions.

One observation and an effect of the imperative separation of powers between politics and administration is the
relatively detached OGD portal (perceived as an administrative action) from open government measures (perceived
as a political action), which are initiated from the policy level. Seen from an end-user perspective it would be
advisable to integrate open data as an authoritative information resource on open government portals and develop
both into a true platform. This requires:

Merge the relatively isolated OGD portal into an open government platform as laid out by Cindio in [7]; and

Integrate it with other government Open Government projects.

While the focus of the survey clearly laid on assessing the OGD implementation of Vienna and thus
recommendations have been drafted with that goal in mind, fields of actions could be identified which would require
measures at the federal level. These recommendations address the local authorities as well as government policy
making. They focus on the legal perspective, educational guidelines, and encouragement of political participation.

While the threads of discussion on public sector information (PSI) and OGD can be separated as laid out by [18] in
that PSI subject to OGD principles yields open government data, many goals are shared and the European
Commission. The European Commission itself is imprecise using both terms as can be seen on the entry portal to
the digital agenda 2020 (Site 9). While the PSI discussion has a head-start of 20 years compared to that of OGD,
attained results apply to a large extend to OGD as well (PSI to be accessible, in standard and re-useable formats),
which suggests that

For the long-term discussion, threads of OGD and PSI should be unified [32].

From a geo-political perspective, democratic, transparent countries with an open culture are more attractive for
migration, increasing diversity and the potential for creativity [37]. OGD is a stimulus to the creative potential of
people. In this context the substandard innovation willingness of the European economic sphere as a result of
missing creativity is a core criticism of the head office of Enterprise and Industry of the European commission [37].
Thus, concluding from literature, in order to fully leverage these envisioned economic benefits, existing business
strategies and subsidy models will have to change as well as educational programs, starting at the primary school
level with a focus on data literacy. Therefore it seems feasible to suggest that

Education and training programs will have to increasingly account for creative methodologies as well as
analytical competences [1]. UKs department for education has already reacted to concerns of diminishing
IT-literacy skills of teachers which in turn adversely affects pupils’ initial exposure to the topic of algorithms,

statistics and information design. As a reaction, the UK national curriculum in the field of computer science
has been re-designed from the ground up to foster creativity in what to do with computer systems instead of
how to perfectly make use of existing programs and implementations [38].

The more information and data available, the easier it is to get an undertaking started. This is suggested by common
sense and is verified by the interviews with business stakeholders who considered OGD primarily as an additional
resource which will be evaluated on actual business needs. To increase the pool of data as business facilitating
resource,

CC-BY or a comparatively permissive license should be used as the default according to which
beneficiaries of public subsidies have to release their results. Open Access is already the default publication
scheme of Horizon 2020 results (site 10), which would make this adoption a reasonable step for national
regulation of funding schemes.

The interviews with citizens revealed their concerns about a missing legal backup of OGD. While the reshaped EU
PSI-directive is a fuel of OGD, it does not express a fundamental attitude of openness. As a reminder, the initial
drivers for OGD have been arguments relating to transparency, accountability and public participation, which are
closely related to the drivers for the right to access government information (RTI) instead to that of PSI. OGD in
Austria is a good-will undertaking of administration, lacking formal legal regulation. To make OGD stakeholders
investments future proof it would be required

To promote a legal framework that makes OGD an integral part of government actions. This legal regulation
must be grounded in the rights to information (RTI) movement, enacted as a pro-active freedom of
information law [19].

6 Conclusion and Suggestions for Further Research

The last years have witnessed increased publication of data on the internet, data that has been provided by public
organizations and is (re-)used by researchers, citizens, journalists or other users. Particularly the re-use of data by
public stakeholders is expected to generate the benefits described in literature and which were verified by this survey
and stakeholder interviews. This study focused on a.) the current state of OGD at the city of Vienna; b.) the benefits
perceived by city representatives as well as OGD external stakeholders and c.) out of the mentioned drawbacks
obtained by surveys and interviews from the mentioned stakeholder groups recommendations for further
improvement of the Vienna city OGD portal.

The current state of the organizational set-up of Vienna OGD city portal, assessed by document review and expert
interview is as following:

Clear definition of responsibilities and process steps: To support OGD in Vienna, a virtual department has
been founded, comprising of the ICT-department, PR-department, GIS-department, Economy and
Statistics-Department, E-Government and Data protection department. This department is directly reporting
to the Chief Information Officer of Vienna, who is fully responsible to implement the OGD strategy, as laid
out by political government agreement.

Open data is released according to an OGD process model. This model facilitates to prioritize data sets,
assess them according to privacy regulations, ICT-requirements, public utility, data quality, and possible
synergies.

Evaluation has been considered an integral part of the implementation measuring download and API usage,
generated applications and visualizations as well as value for money.

As of the time of the study, the platform has been integrated into the existing CMS system instead of using
the pervasive CKAN software. This helped to kick-start the project while building up the required knowledge
to operate CKAN.

Increased employee motivation: As city employees see the data they work with being taken up and used in
applications, they perceive appreciation for their work. Some city workers even mentioned that their work now makes
sense as they see what it is used for.

The ability to improve data and processes through error reporting by external stakeholders will help to sanitize the
data basis. In the long run this will require coordination between departments which as of now work too
autonomously to agree on common data standards.

Currently, OGD is manually provided and requires human interaction. As OGD is not a fad but has come to stay,
higher levels of Information, Communication and Technological (ICT) support will be required to support automated
and sustainable processes. Processes changed through the application of ICT are likely to cross-fertilize other
administrative fields of work.

There has been an improved public image by getting into contact with external stakeholders and reacting to their
requests beyond formal administrative processes.

OGD is (ab-)used as a limited but useful information management system. One department picks up data from
another department and integrates that data into their own work. Getting that data in the traditional way would have
required signatures, explanations and would have been tedious.

Among others, external OGD stakeholders mentioned the following benefits of implementing OGD at the city level:

The rapid availability of authoritative data as a valuable resource to establish business models. Missing
liability declarations by the issuer has only been a minor concern.

OGD provides indirect insights into government mechanisms and is likely to increase citizen participation.
Overall OGD will stabilize and legitimize policies

Researchers mentioned the value of OGD for research; however unpublished data prior to the date of the
establishment of the OGD portal would be of high value to generate time series oriented analysis.

The surveys and interviews combined with literature review were used to generate recommendations for the Vienna
OGD portal operators to define next steps. While the recommendations clearly have the Vienna administration in
mind, many of the recommendations can be generalized and be useful for other administrations.

1. OGD has to be backed by a legal framework. Currently, OGD is largely a good will action. While public
uproar would be high, effectively hindering a shutdown of the OGD portal, there is no legal guarantee that
data, once released, will be available for a longer period.

2. Comparability of data sets through the harmonization of the representation of e.g. addresses will have to be
gradually improved. This is likely to happen with the implementation of a cross-department information
management system via a common data bus and using code lists and thesauri.

3. Although overall OGD uptake of Viennese data sets is very satisfactory, more stakeholder specific target
group management is required. Such public relation activities and stakeholder-oriented initiatives have to be
carried out by the data releasing departments themselves as they know best their stakeholders. Networking
between different target groups is very likely to be beneficial yet difficult to achieve, as current department
structures do not foster cooperation. Possible organizational-technical measures are to provide tools on the
OGD platform which help to visualize core data sets such as points of interest or time series related data in
a user driven fashion.

4. Education and training programs will have to increasingly account for creative methodologies as well as
analytical competences. This would require curricula which leverage creativity in what to do with data and
computer systems instead of learning how to perfectly use existing implementations.

5. To fuel academia and business, CC-BY or a comparatively permissive license should be used as the
default according to which beneficiaries of public subsidies have to release their results. This would enlarge
the data and information sphere and help others to build better and derived products, services, and
research out of existing building blocks.

In terms of future research, the permanent evaluation of the activities associated with the implementation of an OGD
strategy need take place to justify further administrative expenses. Additionally, a generalized OGD implementation
assessment model could be created out of existing evaluation building blocks. This facilitates to assess what OGD
measures has proven successful and more evaluations of authorities around the world could help to derive more
information on OGD implementation as well as help to anticipate the pitfalls in OGD implementation.

Another interesting result warranting research is the use of data of the external oriented data portal by the
departments themselves. Departments use site 1 as an information broker substitute to easily access information
entities instead of making official internal requests for data which are tedious, have to be approved, take much longer
and are fulfilled at a lower data quality or granularity.

Website List
Site 1: Open Government Data Portal of the City of Vienna
http://data.wien.gv.at

Site 2: Digitales Österreich

http://www.digitales.oesterreich.gv.at/site/6497/Default.aspx

Site 3: Open Knowledge Forum Austria

http://gov.opendata.at/okfo/

Site 4: Danube University Krems, Centre for E-Governance

http://www.donau-uni.ac.at/en/department/gpa/telematik/index.php

Site 5: Cooperation Open Government Data Austria

http://www.data.gv.at/hintergrund-infos/cooperation-ogd-austria/

Site 6: Open3.at: Netzwerk zur Förderung von OpenSociety, OpenGov und OpenData in Österreich
http://www.open3.at/

Site 7: Centre for Administration Research (Zentrum für Verwaltungsforschung – KDZ)

http://www.kdz.eu

Site 8: Engage Project

http://www.engage-project.eu and http://www.engagedata.eu

Site 9: European Commission Digital Agenda for Europe 2020

http://ec.europa.eu/digital-agenda/en/open-data-0

Site 10: OpenAIRE portal, Open Access Infrastructure for Research in Europe
http://www.openaire.eu

Site 11: Open Government Standards

http://www.opengovstandards.org/

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Appendix A: Internal Questionnaire

General information/department/function
Contact details
What is your function at the department
Is it a leading position
Is your department actively working on the Open Government presence of the City of Vienna

Offer and expenses

Was there an increase of external requests concerning data sets via telephone after the implementation of the
OGD strategy
Was there an increase of external requests concerning data sets via email after the implementation of the OGD
strategy
The expenses for the implementation of the OGD strategy at my department per month can be numbered with
(approximately days of work per person)
Was there an increase of internal requests from other departments concerning data sets after the
implementation of the OGD strategy
What are your department expenses to release OG data sets [data set] [hours].
Has the expense of work in your department concerning the provision of data been reduced since the
implementation of the OGD strategy
Is there an additional value for your department by the implementation of the OGD strategy

Publicity and advertisement

Which advertisement measures accompanying the release of OGD have been undertaken by your department
From which other administrative departments does your department use data
Would it make sense for your department to recommend the provided data at the platform to external users
with advertising measures?

Operative internal process

Does your department deliberately publish not entirely correct data sets
Are the provided OG data sets in your opinion complete and representative
What is the time frame of internal availability of data up to their publication (hours/days/weeks/months )
How do you fell about the utilization statistics concerning the usage of your data at the data platform

Communication with target groups

Are you familiar with the negative effects of data abusing / misinterpreting your data sets
Which policies are in effect to deal with reported mistakes or recommendations

Communication with the departments

Is your department able to propose wishes/ideas to the OGD competence centre and how do your reports
affect future expansion steps
How was the OGD strategy mediated to you

Future data and possibilities of improvement

Do you basically have an overview about the data sets that are generated or enriched in your department
Is your department offering data for sale
Which data sets do you recommend for further publication at the data platform of the City of Vienna
Are the ICT-strategic guidelines of OGD in Vienna an effective instrument for the implementation of the OGD
initiative
Which suggestions for improvement would you recommend for future data set release phases
Is it planned to intensify the current OGD engagement of your department
Do you consider the implementation of the OGD strategy as an important aspect of your work?

Our department is actively participating at the OGD performance of the City of Vienna
Is the term OGD familiar to you and are you able to explain the main features of Vienna´s OGD strategy to a
colleague
Do you see possibilities to make data sets from your department publicly available for interested external
stakeholders
Have you found relevant data sets for your work at the OGD platform

Appendix B: External Questionnaire

General information/field of activity/function
How old are you
Gender
What is the name of your organization, institution or enterprise
What is your function
Are you familiar with the term Open Government Data

General Open Government Data questions

Which of the following stakeholder groups describes best your involvement with OGD?
How did you get notice of Open Government Data
Did you actively use Open Government Data
Did you already attend conferences, meet-ups, meetings with an OGD focus
Are you a member of Facebook, LinkedIn, a mailing list or another random social network which has Open
Data as a subject focus
Which political consequence does Open Government Data have
Which societal consequences does Open Government Data have
Which economic consequences does Open Government Data have
What kind of data sets are you interested in or which kind of data sets would you like to have more available of
Which recommendations do you have for future OGD initiatives
Which institutions will benefit the most as a result of OGD

Detailed questions
Have you already used OGD of the City of Vienna for your field of activity

Detailed questions journalism

Have you already used OGD of the City of Vienna for your journalistic field of activity

Detailed questions economy

Have you already used OGD of the City of Vienna for your economic field of activity

Detailed questions science & research

Have you already used OGD of the City of Vienna for your scientific field of activity

General utilization of the OGD platform

Describe the use-case you made use of open data
What is your personal main interest concerning the open data area
What were your positive and/or negative experiences with the platform data.wien.gv.at

Possible fields of application for OGD

Is OGD relevant for your field of activity
How do you plan to use OGD
Are there additional abilities or skills that you need to have in order to make better use of OGD
Which measure might help to bridge the gender imbalances concerning open data use in general and
especially at application competitions
What are the areas of data that you are interested in or where you wish to have more data available concerning
your field of activity
Which data format is the most convenient to work with OGD in your field of activity

The utilization of OGD in the business area

What is your predominant field of activity
Where is your enterprise located
Since you are making use of OGD in your products and services, to what extend [percent] did increase your
revenues because of OGD
How do you estimate the proportional revenue because of OGD in ten years
How do you perceive the potential of OGD for internal utilization for example in business intelligence?

Peter Parycek
Open Government Data Implementation Evaluation Johann Höchtl
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Open Government Data Implementation Evaluation

2 The State of OGD in Austria

2.2 OGD Strategy and its Development in Austria

3.1 Guiding Research Questions

The central research questions guiding the evaluation are:

1. What organizational processes support the City of Vienna’s publication of OGD?

3. What are organizational, economic or societal benefits of an OGD implementation?

Table 1: Assignment of survey questions to guiding research questions

Research topic Survey questions

3.2 Study Design

Empirical qualitative analysis: The qualitative analysis consisted of semi-structured, question-based

See figure 1 for an overview on the research stages:

Phase Activity Product Action

2. implementation written and oral surveys unstructured raw content

October 3. clustering content analysis structured raw content

Method Characteristics Interviewees Nr. Participants

guide that Members from the internal

4.1 Survey Participation

4.2 Internal Poll and Interviews

Table 3: Participation by city employees by field of work

Field of work # respondents %

4.3 External Polls and Interviews

4.4 Status Quo of OGD in the City of Vienna

4.5 Efforts and Expenses

1 … significantly increased 6 ... significantly decreased

Figure 2: Change of requests since the release of OGD

4.6 Organizational Implementation

4.7 Technical Implementation

Table 4: Summary of the main organizational findings

Research Question Key Findings

Clear definition of responsibilities and process steps

4.8 Benefits of an OGD Implementation

3. Reduced administrative efforts. The bulk of administration processes will be automated.

4.9 Benefits Drawn from the Department Survey

Benefits for the Department

Figure 3: Benefits for the department

4.10 Benefits Mentioned by External Stakeholders

4.11 Summarizing OGD Benefits

Table 5: Summarizing OGD implementation benefits

External OGD stakeholders

5 Recommendations and Discussion

Table 6: Summary of the main requirements

Research Question Key Findings

5.2 Recommendations for OGD Implementation

5.3 Technical and Operative Measures

Publish more data.

5.4 Strategic Measures

Integrate it with other government Open Government projects.

6 Conclusion and Suggestions for Further Research

Site 2: Digitales Österreich

Site 3: Open Knowledge Forum Austria

Site 4: Danube University Krems, Centre for E-Governance

Site 5: Cooperation Open Government Data Austria

Site 7: Centre for Administration Research (Zentrum für Verwaltungsforschung – KDZ)

Site 8: Engage Project

Site 9: European Commission Digital Agenda for Europe 2020

Site 11: Open Government Standards

Appendix A: Internal Questionnaire

Offer and expenses

Publicity and advertisement

Operative internal process

Communication with target groups

Communication with the departments

Future data and possibilities of improvement

Appendix B: External Questionnaire

General Open Government Data questions

Detailed questions journalism

Detailed questions economy

Detailed questions science & research

General utilization of the OGD platform

Possible fields of application for OGD

The utilization of OGD in the business area

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