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New perspectives for electronic governance: the adoption of open
government data in Brazil1
Jos Carlos Vaz, University of So Paulo, So Paulo, [email protected]
Manuella Maia Ribeiro, Getlio Vargas Foundation, So Paulo, [email protected]
Ricardo Matheus, University of So Paulo, So Paulo, [email protected]
Abstract
Through the development of information and communication technologies (ICTs)
has become possible for the bases of raw data, be freely manipulated, filtered, or
cross and building new applications. These possibilities are called Open
Government Data (OGD). The aim of this paper is to present the State of Art of the
Open Government Data in Brazils governments. The benefits are: promoting
transparency, social control and citizen participation.
After reviewing literature about ODG and transparency main concepts and their
relationship, this article presents an exploratory study conducted on the emerging
ODG experiences in Brazil. Conclusions present the emergence of a new level
of demand for transparency: what is not confidential should be available on the
Internet in the open data format. Despite relatively late in adopting ODG, Brazilian
state and federal governments are doing their first movements and creating new
standards and pratices whice are going to spread in Brazilian public sector.
Keywords: electronic government; electronic governance; transparency; citizen
participation; open government data.
1 Special thanks to Open Society Foundation who supported presentation at First Global Conference onTransparency Research, Rutgers University, Newark, May 19-20, 2011.
VAZ, RIBEIRO & MATHEUS. New perspectives for electronic governance: the adoption of open government data in Brazil.First Global Conference on Transparency Research, Rutgers University, Newark, May 19-20, 2011. PAGE 1
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countries, have websites with the goal of providing public information in an open
format like the United States, New Zealand, UK and Australia.
The pioneering example is the U.S.. According to Fung & Weil (2010), the federal
government created a level of openness of government information by creating
unprecedented memo on transparency and open government requires that all
actions of the ministries themselves were based on transparency, citizen
participation and collaboration between government and society. In addition, the
Ministry of Science and Technology created the Open Government Initiative
("Open Government Initiative") to effect the availability of open government data.
While civil society organizations have emerged around the world that pressuregovernments to open their data in open format. In the United States, the Sunlight
Foundation, OMB Watch and the League of Women Voters have created a
movement to pressure for open government data and creating applications for
society from these data. Thus, also received support from large organizations in
the country as the Open Society Institute, the Omidyar Foundation and the Ford
Foundation (FUNG & WEIL, 2010).
Despite the limited knowledge available on the subject, it is possible to envisagethe emergence of open government data have impacts in two areas in which
transparency is the subject of disputes, social practices and transparency in its
concept.
This article will explore the state of the art of using government data opened in
Brazil. For this, the methodology used was literature on the subject of open
government data and its relation to transparency and an exploratory study of some
of the few experiences in Brazil. Due to its recent creation, sites that provide open
data were not analyzed its impacts, but only their potential for promoting
transparency, social control and citizen participation by offering OGD.
Initially, this paper presents a discussion of the concept of OGD. Then moves to a
reflection on the relationship of this concept with the concept of transparency, we
show that the emergence of the OGD introduces new fields to the dispute over the
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concept of transparency. In this research, the concept of transparency was
addressed in four views: the transparency as a synonym for publicity, transparency
as a synonym for accountability, transparency as synonymous with openness, and
transparency as a synonym for open government data.
Later, we conducted a structured visit to government sites that use the open
government data analyzed and how the principles of open government data they
serve.
Although open data might be considered in both the public and in private, this
article, as a matter of focus, is only open to government data in government. Once
the conceptual discussion, the article identifies some of the experiences ofreference and uses them to make an exploratory reflection on the limits and
possibilities of the OGD contribute in social struggle around the transparency
practices and the relationship between government and civil society, because the
data open not only relate to the dissemination of information but also to encourage
new uses for the citizens of public data.
2. Open Government Data and Transparency
2.1 Open Government Data (OGD)
Open Government Data (OGD) or open government are terms used to denote "(...)
available via the Internet, information and government data in the public domain
for free use by society "(AGUNI, GREGORIO FILHO & BOLLIGER, 2010).
This concept refers to the protection of public data as belonging to the citizen,
which should have unrestricted access to government information, advocated by
several authors, as Laporte et al (2000), Aguni et al (2010), Diniz (2010), among
others. It also refers to the context of recent development of ICT, where the
Internet, databases, tools, standards and open formats allow and facilitate the
provision and access to this information.
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The idea of the OGD is developed from the discussion on open data engendered
by Tim O'Reilly, owner of O'Reilly Media in mid-2007. That same year, along with
O'Reilly's Carl Malahmud Public.Resource, Org, who defends the public domain of
knowledge, joined by 30 supporters of open government to discuss open
government data and its importance to democracy (OPENDATAGOV, 2007). At the
meeting of experts and advocates of open government was developed eight
principles of open government data. These principles state that the OGD should
be:
1) Complete:All public data is made available. Public data is data that
is not subject to valid privacy, security or privilege limitations.
2) Primary:Data is as collected at the source, with the highest possible
level of granularity, not in aggregate or modified forms.
3) Timely:Data is made available as quickly as necessary to preserve
the value of the data.
4) Accessible: Data is available to the widest range of users for the
widest range of purposes.
5) Machine understandable: Data is reasonably structured to allow
automated processing.
6) Non-discriminatory: Data is available to anyone, with no require-
ment of registration.
7) Non-proprietary: Data is available in a format over which no entity
has exclusive control.
8) License-free:Data is not subject to any copyright, patent, trademark
or trade secret regulation. Reasonable privacy, security and privilege
restrictions may be allowed.
Civil society organizations are using these principles of governments to levy the
availability of government information. David Eaves (2009) presented at an event
in 2009, the three laws of open government data:
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1) If data is not found and indexed on the web, it does not exist;
2) If not already open and available in machine-understandable format,
it cannot be exploited;
3) If any legal provision does not allow its replication, it is useless.
Benefits of adopting the OGD in the field of transparency and social control are, at
least in theory, evident. The provision of DGA tends to contribute to the increased
transparency of government, creating better opportunities for social control of
government actions. However, given the relative newness of the topic, yet there
have been no studies that show the whole of this possibility.
A second category of benefits can also be addressed. It is the possibility of
creating new information and applications from the open government data. In this
case, transparency is not only encouraged but also new services may originate
from the interaction between government and society through the exploitation of
OGD. These services can be generated through new ways of working
collaboratively across the participatory government and private institutions, since
the concept of OGD avoids the vision of the citizen as a mere recipient of public
information. Allows any interested party, to sue the government data freely,
creating content from the reuse of data.
The focus on the concept of citizen open government data is emphasized by Silva
(2010): "(...) the concept (...) relates to an understanding that the way
governments have their information available allows the intelligence collectively
create better ways to work with them than the governments themselves could do.
As an example, the author says that it would be possible to optimize resources inpublic administration, if they leach from the traffic data in urban open format.
Thus, citizens who would take care through the use of ICT to produce charts and
graphs on traffic.
To Diniz (2010): "the provision of open government data allows information to be
used in the manner and convenience of the person concerned so that they can be
mixed and matched to add more value to the data." For this author, the purpose of
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the public information is made available under the rules of open data is "(...)
overcome the limitations that exist for users of public information can easily find,
access, understand and use the public data according to their interests and
convenience. "
Not without reason therefore that the World Wide Web Consortium (W3C), an
international consortium that aims to develop Web standards, defines government
data as open: "(...) the publication and dissemination of public sector information
on the web , shared in raw format and open, understandable of course, to allow its
reuse in digital applications developed by society "(W3C, 2010). In addition, the
W3C considers that governments should encourage citizens to use the open data
available by governments, ie, they should be encouraged to reuse the data
according to their needs and wants. Diniz (2010) summarizes the purpose of this
incentive: "There is value in providing open government data if the company has
no interest in re-use them".
Likewise, the Declaration on the Public Service Open Europe believes that public
bodies must provide the government data: "(...) in open formats and reusable (...)
public institutions should seek to act as a platform for building of public value.Public organizations should offer citizens the ability to solve problems for
themselves by providing them the proper tools to do so "(Open Declaration on the
European public services apud AGUNI, GREGORIO FILHO & BOLLIGER, 2010).
Protection of open data as a promoter of transparency is due to the possibilities of
making government records accessible to eliminating all restrictions concerning
technology, accessibility and legislation to ensure unrestricted access and use of
public data by citizens.
The relevance of the provision of open data in the public sector basis in the public
interest that involves government information and regulation surrounding the
issue. Most states adopt the constitutional law principle of publicity means that the
transparency of government data as the rule and secrecy an exception.
For Bobbio, the Democratic Republic "(...) requires that power be visible (...)
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meetings of the Assembly shall be open to the public so that any citizen can have
access to them "(BOBBIO, 1987) ie, several countries in the world live in a context
that access to public data is a constitutional requirement.
Ribeiro (2009) shows that there is a contest between different visions of
transparency: transparency has different views as synonymous with the principle
of openness, accountability, and openness. In addition to these views, this paper
understands that transparency can also be understood from the vision of open
government data. While the first two visions are not directly associated to ICTs, the
concepts of openness and open government data are directly linked to the use of
technology by governments to ensure transparency.
Among the principles of public administration listed in Article 37 of the Constitution,
the principle of advertising is that it has more links to the subject of transparency.
But this principle means that all acts of government should be widely
disseminated. Advertising ensures that information be disclosed and to legitimize
certain acts of government. For example, if there is no disclosure of certain phases
of the bidding process, it can be challenged by any of the participants or the
society. In cases where advertising is required and it is not made, the acts areconsidered void.
Advertising can be general or restricted. General advertising is contained in the
publication in the official gazette. In some cases it is mandatory and must be
extensive, as in public procurement. Advertising restricted refers to information
from personal knowledge (ARAUJO, 2006, p. 59) of the persons concerned, for
example, by notification, quotes, record of administrative actions in books, among
others. Advertising is also prepared in other sections of Article 5 of the Constitutionof 1988 confirming this principle: XIV (access to information and guard the
secrecy), XXXIII (right to private information or general exist in public agencies or
public character), XXXIV (b, right to extract); LXXII (habeas data).
For authors who focus on the theme, the principle of publicity is closely linked and
sometimes is seen as synonymous with transparency. Normally associated with
the transparency and access to the information disclosure of public administration,
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ie, only the principle of publicity (MELLO, 2008; ARAUJO, 2006; DI PIETRO,
2006):
(...) It is also evident that everyone is entitled to have knowledge of
what agents do in the management of public affairs. It is the sense
commonly referred to transparency, often mentioned by politicians,
influenced by the process at this point in the recent past (glasnost) in
the former socialist countries (ARAUJO, 2006, p. 58).
Among the objectives of transparency, Paiva Martins Junior cites "the pursuit of
legitimacy and efficiency of the acts of public administration and reducing the
distance between it and the administration" (MARTINS JUNIOR, 2004, cover). Theprinciple of openness ensures that government information is disseminated widely
to society allowing control of and access to information that can prevent many
vices of Public Administration, among them corruption. In short, it can be linked
directly to the publicity principle, contained in the Federal Constitution.
Accountability is another term associated with transparency. The terms
accountability and transparency are closely related. The decrease in administrative
opacity provides greater opportunity to the citizen's knowledge about the res
publica. With the information available and clear on the public entity, the public can
control the acts of public administration and be more prepared to exercise its right
to participate.
Accountability, which broadly refers to accountability and the definition of the
objects on which they are accountable along with its accountability (LEVY, 1999),
comes along with the transparency of the actions that builds trust between the
rulers and society . For these concepts are interdependent and near several
authors define transparency from the concept of accountability. Prado & Loureiro
(2006, p. 360) discuss the literature that transparency is often automatically
associated with the reporting and accountability.
Pinho is one of the authors who associate the term accountability to transparency,
understanding how "(...) transparency, engagement with government
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accountability, and also the accountability of governments for their actions
"(PINHO, 2008, p . 478). The relationship between accountability and
transparency is also emphasized by Akutsu (2005):
Another feature of accountability is the essential transparency of
decisions and actions taken by public officials. It is not enough to
merely comply with bureaucratic requirements, it is shown that the
administration acted with economy, efficiency and honesty
(AKUTSU, 2005, p. 5).
Although this term has not yet been translated into Portuguese (PINHO, 2008, p.
478) and is a topic for discussion without a definitive conceptualization (PRADO &LOUREIRO, 2006, p. 359), it is defined as: "(. ..) a principle that is expressed in
institutional mechanisms that must continually embarrass governments
accountable to society and other actors in the political system "(PRADO &
Loureiro, 2006, p. 360). For these authors, the transparency of public information
is one of the steps of accountability along with the accountability of government
and accountability.
Campos (1990) also points out that "(...) accountability is not just a matter oforganizational development and administrative reform. Simply creating
bureaucratic control mechanisms has not proven effective enough to make the
accountability of public servants "(CAMPOS, 1990, p. 30-31).
It is noticed that although the relationship between the concepts of accountability
and transparency exist, the concept is not synonymous with the first second. The
concept of accountability is affecting not only the broader accountability and direct
the actions of governments, but also a performance of control over public
administration that would create incentives or sanctions that will actually occur if
the public official complies with particular obligation or breach.
Laporte et al (2000) describe a broader sense of transparency that proposes to
use the term called openness. The term openness may be defined as follows:
"openness to the provision of information, understood as free and universal
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provision of information to your audience" (VAZ 2002). To achieve this, there are
two basic categories: transparency and interactivity (VAZ, 2003: 70-79).
Transparency is the very information available on the agency by her and
interactivity is the ease with which information can be accessed by willing citizens
in government site (LAPORTE et al, 2000). Being a "government openness"
means first, to declare that public information belongs to the public and therefore
should be provided in accordance with that law (LAPORTE et al, 2000). The
Government must assert the right of citizens to information and create ways for
citizens to have access to information clearly easier and possible. Should be
proposed that the public may know and their structures and their decisions.
Government should not only promote transparency on the availability of
information, but must provide this information in the public and are understood. For
example, the budget and accountability can be made fully available in electronic
portal of the public agency. For ease of access via the Internet, in theory, any
citizen can check. But will the average citizen can understand the technical terms
contained in these documents?
This body is not fully transparent since it has the data, but there is understandingof your target audience by, or society as a whole. The same Government that
provides a portal into your data will not be more transparent if the information is
hard to find or not to be updated constantly (LAPORTE et al, 2000). Laporte et al
(2000) state that there are no formulas or patterns to reach the administrative
openness, because there are several ways to provide information and access to
them.
Transparency defined based on the concept of openness advocated by Laporte et
alli (2000), means that a transparent government is one that provides information
and updates them and create facilities for citizen access. Thus, it can be stated, for
example, that the information made publicly updated comprehensive internal and
widely accessible is an empirical indicator of an agency's attitude toward openness
(LAPORTE ET ALL, 2000).
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As already stated earlier, government data are those that open governments
publish via the internet and share with the people in raw format, open and
accessible by machines that could be used by citizens according to their
convenience. One of the benefits of adopting open data policies by governments
are the possibilities of promoting transparency.
According to the W3C Brazil (2010), open government data promote more
transparency because "(...) open and accessible public sector information improve
transparency, because stakeholders can use them appropriately for their
purposes, getting a better understanding of the government (W3C, 2010).
Silva (2010) and Aguni, Gregorio Filho and Bolliger (2010) also believe thatgovernment records open governments can ensure more transparent. For them,
Brazil, for example, has a series of initiatives to promote transparency as the
portals of transparency.
However, the Brazilian government portals are focused on monitoring a proportion
of public tasks, especially the accounts and the behavior of politicians. Public
organizations in the country have a lot of information and databases, non-
sensitive, but when available on the Internet is usually provided: "(...) partially andin ways few highly bureaucratized and transparent "(AGUNI, GREGORIO FILHO &
BOLLIGER, 2010).
To Aguni, Gregorio Filho and Bolliger (2010), the current model in Brazil, which
has not adopted mostly open data policy, prevents and hinders "(...) that the
person can work, analyze, and integrate data across information and second focus
and interests. "Thus, the data open for its characteristics of unrestricted access to
all non-confidential public data on the web without technological or legal limits for
your viewing and use also would ensure greater transparency of public data.
The views of transparency presented indicates that in contemporary society
access to public information is an important issue and highlighted. The first two
concepts, publicity and transparency, not dialogue directly with the use of
information technology and communication, but are extremely important to ensure
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legally that government information is public domain and create instruments of
punishment to public servants who commit acts of against the Government.
The concept of openness and open government data already applied in a context
that ICTs enable the provision and sharing of information in a way never before
possible. The government believes openness transparency not only with the
availability of public data, but also adds the way data is accessed by ensuring that
outdated data, for example, just by being on the Internet are not considered
examples of transparency. Government records open advance this theory in that
setting universal rules for availability and accessibility of data by ensuring that
despite the technological formats or legislation in force anyone to access and use
data, and the reusability of public data by citizens seems be exclusive of the
theory of open data.
Worldwide, activists, international organizations and governments are thinking
about access to public information from the data open. Although the discussion on
this topic is new, there are already some experience of government provision of
open data.
Several national and subnational governments now provide their data from theorientations of open government. Among the countries that have policies of open
data include: U.S., UK, Australia and New Zealand (AGUNI, GREGORIO FILHO &
BOLLIGER, 2010; SILVA, 2010). These countries have developed national policies
on access to public data and created web portals that provide public information in
different formats. Moreover, they often encourage citizens to create new
applications and ways of using information published in their portals.
The Australian government created the portal Data Australia in February 2010.
The objective of the portal of transparency is to be the database of public
information government of this country. They encourage us to use the information
contained within the portal to create gadgets and computer programs by users
who do social control of all information within the portal. The website of the New
Zealand government was created this year to offer information and intelligence
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agencies and public bodies of government. It has space for discussion through
forums that may be proposed by citizens.
The example of the United Kingdom intends to offer data and information to
citizens in public administration for the expansion of government social control. It
has space for the wiki, online community, send in new web applications, among
others. In 2008, Britain ceded public information to a competition to develop
solutions to public data named Show us a better way.
The flagship plan for adoption of open data is the U.S. Initiatives in this country
can also be found in the sub-national governments. According to Silva (2010),
Washington DC was one of the pioneers in developing the incentive tocollaborative work between government and society with public data. President
Obama early in the mandate, set policies for the promotion of transparency that
encourages the provision of government data in open format.
The memo sent by the president on January 21, 2009 to all heads of government
called the Federal Transparency and Open Government. "(...) This memo pledged
to create "unprecedented levels of openness" in government. The president called
the representatives of the executive to work to ensure trust and establish a systemof transparency, public participation and collaboration. The opening will strengthen
democracy and will promote efficiency and effectiveness to government "(Silva,
2010).
The Open Government Initiative policy aimed to guarantee the realization of this
memo. Among its actions, is the portal Data.gov, created in May 2009. The aim of
Data.gov, portal transparency of the federal government is offering information and
expand the creative use of government data through web applications,
encouraging innovative ideas to provide greater transparency of governmental
actions. The site contains information about hundreds of government agencies
and offices separated by organ. Statistics tell visitors monthly, daily, yearly. It also
has space for participation of citizens wishing to express their will.
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Besides the government experiences, there are already non-governmental
organizations that seek to promote and support the adoption of open data policy.
For example, the Sunlight Foundation and Project Open Government Data,
Access the Open Knowledge Foundation Info. These experiences advocate in
favor of adopting the policy of open data by governments and perform a variety of
activities from research to encourage the creation of solutions and standards for
open formats. In short, despite the recent discussion of existence and availability
of open government data, there are already examples of governments that adopt
this theory as a public policy to promote transparency and collaboration between
government and society.
3. Research approach
Literature review that guided this study focused on the key concepts and the
relationship between the Open Government Data (DGA) and transparency. This
allowed us to highlight the possibilities that, in theory, the DGA can offer as tools
for promoting transparency.
However, the virtually nonexistent literature on DGA in Brazil has required an
exploratory study to identify the initiatives already undertaken by governments.
We decided to perform preliminary research from experts and publicity materials
on the Internet, which identified experiences promoted by the federal government
and state governments. After identifying the set of experiences available, we
decided to carry out structured visits to the following government websites that
publish open government data: DadosGov Project (Federal Government), theCear State Municipalities Court of Audits of Municipalities (TCM--CE), Public
Security Secretariat of Rio Grande do Sul, SP Open Government (Government of
the State of So Paulo).
A series of structured inspections on these websites was done between
20/12/2010 e 14/04/2011. Data collected were used to assess how the eight
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principles of open government data proposed by OPENGOVDATA (2007) are
followed in these cases.
The exploratory study was conducted because the cases we found are recent
experiences, once OGD are a very recent issue in Brazil. Therefore, there was no
way to make an analysis of its impacts.
4. Results
4.1 Open Government Data in Brazilian Federal Government
In Brazil there is still no transparency portal experience that is associated with acentral policy of open government data available (AGUNE, GREGORIO FILHO &
BOLLIGER, 2010; DINIZ, 2010; SILVA, 2010). In general, cases in Brazil are far
short of international experiences, such as the U.S. and UK. Therefore, the
availability of open government data in Brazil does not have a systematic policy as
the U.S.. Nevertheless, there are individual experiments and partial availability of
public data by some government agencies and specific laws that encourage the
adoption of open data by governments.
In December 2010, the federal government launched the first site that aims to
provide public data on this being an open format. The DadosGov project was
developed Information Organizing Committee from the Presidency of the Republic
(IOC-PR) which consists of the following Federal Government agencies: Office of
Deputy Information for Decision Support, President's Chief of Staff, Institutional
Relations Secretariat (SRI-PR), Department of Logistics and Information
Technology , and two federal government-owned IT companies that provide
services to government.
The aim of this new website is to organize and make available to the President,
gederal government agencies and society governmental information, a reliable
and easily accessible. For this, DadosGov website is structured to provide data in
open format to be taken by anyone interested. The data come from federal
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government agencies, ministries and other public organizations. The table below
shows the main government agencies that provided data to the project:
Table 1 Main data provided by DadosGov ProjectGovernmentorganization
Time Series Examples of content
Ministry of Education (MEC)
252 Childhood Education, SchoolHealth Program, UniversityScholarships (PROUNI), StudentLoans Fund for Higher Education (FIES), among
others.Ministry of SocialWelfare(MPS)
132 Ministry branches
Ministry of AgrarianDevelopment(MDA)
131 Rural microcredit, Family FarmInsurance, among others.
Ministry of Justice(MJ)
127 services to women victims ofdomestic violence, Amnisty
Comission deliberations, amongothers.Ministrio daAgricultura (MAPA)
110 Contracts for urban foodsuppliyng.
Source: DADOSGOV Project (2010)
DadosGov portal (https://i3gov.planejamento.gov.br/coi/ ), like the site of the U.S.federal government, cataloging data that were already available in public bodies,
but were not systematized in a single portal and open format. Over 30 agencies
have provided historical series of public information for use of both governments
and citizens. Among the sites studied is the one that provides more information.
Due to the large amount of data available was not possible to verify that all data
presented were the raw data.
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Data are presented usually by historical series that can be analyzed by the user
via graphics, tables or records. Extraction of the series are in the following formats:
CSV, RTF, PDF, XLS, XML.
Another principle adopted by this site is that user identification is not required for
data extraction. Although there is no space on site to discuss applications and
other uses of the available information, there is an incentive for citizens to use
these: "The idea of linked data formats is to allow civil society to development
tools able to read data supplied by the government and make comparisons and
analysis" (DATA GOV, 2010). Regarding to license to use the data, the site is not
clear what are the chances of reproduction and use of information available.
In 2010, federal government, through the Secretariat of Logistics and Information
Technology of the Ministry of Planning has initiated a project to create the Open
Data National Infrastructure (ODNI). The initiative focuses on interoperability and
standardization of information resources. It also intends to promote best practices
for the provision of open government data. It is defined as an "integrated set of
technologies, policies, procedures and mechanisms for coordination and
monitoring, standards and agreements necessary to facilitate the storage, access,sharing, dissemination and use of open data" (MIRANDA & SILVA, 2010).
Factors that motivated the ODNI lauching were difficulties for searching, accessing
and reusing government data, both for the society and the government itself. The
initiative seeks to support demands of changes in relationship between
government and society, promoting transparency, control of government by
citizens and citizen participation in policymaking.
The ODNI will use existing experiences in the dissemination of public data
available in the federal government as a starting point, including some isolated
actions in federal agencies and two centralized operations of the federal
government: the aforementioned DadosGov portal and federal government's
Transparency Portal (http://www.portaltransparencia.gov.br/).
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ODNI's staff points out as a challenge to the success of the initiative the federal
agencies involvement and a successful consensus around a single set of
concepts.
Implementation strategy for ODNI has some main elements: lauching a virtual
community for collaborative work involving officials of various public agencies,
scripts and roadmaps for publishing open data, voluntary membership by various
public agencies, technical training of civil servants in ontology modeling and
implementation of a pilot project on public procurement.
Portal was based on the availability of summary information and statistical series
in a single location on the Internet. ODNI means a step forward from theexperience of DadosGov.
The ODNI's proposal takes a different approach: to create conditions for the
various agencies to make available their data in a decentralized way. With this,
ODNI will provide integrated data with a high level of interoperability through
technologies such as Linked Data,. This strategy will make ODNI able to foster the
opening of a much larger volume of data.
4.2 Open government data in Brazilian state governments
The portal of the State of Cear Municipalities Court of Audits of (TCM-CE) has
released all its data in a format that all computers can read and encourages
citizens to use them and find new ways to use them:
The TCM-CE is providing SIM data via the Application Programming
Interface (or API). We believe in collective creativity and through it
we are sure that the community is able to create their own
applications using the data in the manner that best suits them. For
achieving this goal nothing better than to facilitate the creation of
these applications. We seek to establish contact with developers
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interested in creating their own applications using data from the
TCM / EC (TCM / CE - 2010).
Following information is provided: list of candidates for municipal election; basic
information about municipalities as public managers, programs, bank accounts,
among others; documents relating to the municipal budget. Among the information
available are data on purchases and contracts and supporting documentation of
expenditures.
Data are available in non-proprietary formats (XML, JSON, CSV e HTML) and are
machine understandable information.The focus of the availability of data from
TCM-CE is to encourage citizens to create new applications and uses for these,especially by programmers and computer specialists. However, there is no space
for citizens contact, discuss or submit their applications. No registration is
required, but it is not clearly presented the license of such data.
The Sao Paulo State Government Portal created SP Open Government portal in
2010. It's goal is to make available to civil society, via the Internet, copies of
databases and information which is not confidential and gives unrestricted access
to the organs and entities of the State Public Administration. The decree thatcreated the portal provides the rules of data and creation of the portal,
summarized in its second article:
Rules of provision, information, guidance and providing
access to databases, as well as to the responsibilities of the
parties
Conditions of use of these bases provided, suposed to befree for any purpose or activity, safeguarding the legal
restrictions and associated regulations
Register of available bases, containing the identification and
detailed description of each one and identify the agency or
entity responsible
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Tools to facilitate collaboration between users of the available
databases, including self-identification for who obtains a copy
of available basis, including information of purpose for which
the base was required; and registration and publication of
products generated through the use of bases, identifying their
authors.
The So Paulo law falls largely to the principles of open government data to
ensure the free reuse of all available non-sensitive state data.
The SP Open Government portal was released in January 2011. The website
seeks to stimulate lauching of new electronic services, promoting transparencyand improving the quality of information of interest to society by providing updated
copies of their public databases, on a free and open basis, using the Internet"
(GOVERNO ABERTO, 2010).
Databases provided are produced by the State Statistical Agency (Fundao
SEADE), which has most state social and economic indicators. However, the
website does not provide data from other agencies in So Paulo, i.e. not all data
are available on site.
Among the information available are: Elections (information concerning the
elections in So Paulo between 1998 and 2008); state indicators (Sao Paulo State
Social Responsibility Index(IPRS), catalogue of public services offered through the
Internet; Information from municipalities.
Unlike other sites, rules regarding use and availability of data are clear. All data
available on the site are non-sensitive and have unrestricted access. The onlyrequirements are that users accept the rules set out in this. Registration is optional
for accessing the data. Develpers can register applications built within the portal
itself. However, for sending and accessing applications created registering is
mandatory.
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Another pioneer experiment is ruled by Public Security Secretariat of Rio Grande
do Sul State, started in 2011(http://www.ssp.rs.gov.br/portal/principal.php?
action=estatistica&cod_catestat=33).
The service is "based on the principles of fairness, transparency, participation and
collaboration in building a closer relationship with the state of society" (RIO
GRANDE DO SUL, 2011). The State Public Security Secretariat encourages the
development of new applications and services by society, and calls developers to
share them. However, the portal has until not published any case of reuse of data
in digital applications developed by society.
The service provides quantitative data on non-proprietary formats .XML and .CSV,relating indicators of crime in the state. Data are organized by municipality and
crime, with year, month, and number of crimes for the years 2008, 2009 and 2010.
This is a case still in deployment phase. The data presented show an intermediate
level of detail, not allowing access to individual occurrences.
The following table summarizes how open government data principles of are
adopted by the Brazilian experiences:
Table 2 OGD principles adoption in Brazilian cases
Principles DADOSGOV TCM-CE PublicSecurity - RS
GOVERNOABERTO SP
Completedata
No No No No
Primarydata
No X No No
Timely data X X X XAcessble
dataX X X
Machineunderstand
able
X X X X
Non-discriminat
ory
X X X X
No-proprietary
X X X X
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http://www.ssp.rs.gov.br/portal/principal.php?action=estatistica&cod_catestat=33http://www.ssp.rs.gov.br/portal/principal.php?action=estatistica&cod_catestat=33http://www.ssp.rs.gov.br/portal/principal.php?action=estatistica&cod_catestat=33http://www.ssp.rs.gov.br/portal/principal.php?action=estatistica&cod_catestat=338/6/2019 En Opendata Transpconf v4
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Licence-free
Informationnot provided.
Informationnot provided.
Informationnot provided.
X
Source: Created by authors from cases websites.
Therefore, when we compare these cases and the principles of open governmentdata, we can realize that most of the principles are used in the examples of Brazil.
Data are not complete and most are not primary. However, there was still little
information available. There is also lack of clarity about the license of the data
presented. Another positive point is that they all have current data, accessible and
understandable by machines.
Besides the few public sites that adopt the open government data, there is a law
proposal that deals with data opened in Brazil in debate by the Congress, known
as the Law on Access to Public Information, which will regulate access to
government information as provided in the Constitution.
If passed, this law will provide the procedures for federal, state and municipal level
and for the three powers (executive, legislative and judiciary) and organizations
using public money in its activities to ensure citizens' right to government
information.
Another impact of the Brazilian law on transparency is that it emphasizes the new
information technologies and communication, in particular the Internet,
encouraging and requiring public organizations to make the information on the
World Wide Web. The internet is regarded as a means of easy access and
opportunities to reach a large number of people.
Among the required data are public expenditures and the general data for the
monitoring of programs, activities, projects and public works. There is an obligation
of public agencies not only to disclose such information, but also make them
available so that they are easily accessed, understood and updated.
Open government means that public data should be disclosed in the most
disaggregated level possible and in different formats. Disclosure must attain the
raw data which should be able to be viewed on any type of machine for anyone
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who want to make use of such data. Thus, the law proposal has principles of open
government (even if not explicitly quote) for the dissemination of public
information.
5. Conclusion
The emergence of the OGD requires a shift in thinking about the transparency of
governmental actions and information. This need is not just theoretical. The very
practice of social actors involved is creating new demands for transparency, not
served by traditional practices in electronic government.
There is a major change in the principles that guide the handling of demands for
transparency. So far, everything that was not confidential should be made
available to the public upon request, or kept available as possible. The new
framework gives rise to a new level of demand for transparency: everything that is
not confidential should be available on the internet as open data in a way people
can not just access data, but also create new services and analysis with these
open data.
Logically, implementing broader OGD programs will face huge barriers, because
most governments wouldn't be mobilized to increase the level of social control
over them. However, the complexity of the issue makes it impossible to reduce it
only to the interest of governments in promoting transparency through the OGD.
Civil society actor have an important role, too.
In addition, comprehensive programs to spread open government data require
using data formats and technologies are not always employed by governments
themselves. Therefore it will be a difficult task even for well-intentioned
governments and surely will took many years to reach a high level of open
government data availability.
According to Agune, Gregorio Filho e Bolliger (2010),technology already exists for
governments and civil society to use government data as they decide. Available
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technology can support new ways and new indicators of thinking about public
administration. In this way, civil society could generate more innovation from
unrestricted access to public data.
For these authors, the development of open government data depends on: a clear
policy of the Administration in regard to access to public information, changes in
public sector strategies aiming to foster transformation of relations between state
and society. Moreover, it depends on a change in the central locus of public
organizations (...) as interpreters of social needs and also as service delivery
agents (AGUNE, GREGORIO FILHO & BOLLIGER, 2010).
W3C (2010) argues that to achieve the goal of providing open government recordsshould be observed three fronts:
Framework: the construction of legislation to define the rules of
provision, access and format of public information to ensure the
possibility of access by citizens and civil society organizations;
Access to the public: information should be available to citizens via
the Internet;
Training professionals in public agencies: training for the the use of
open data technologies
Both views make clear the need for specific strategies for implementation of
policies, since the technical dimension is only part of the problem. The provision of
open data therefore depends on a specific institutional arrangement for its
realization and the effectiveness of their use by society.
Not without reason, therefore, that the Brazilian experience of open government
data is still scarce. Brazilian law provides great conditions for deepening the
supply of public data via the Internet, but governments can not easily accomplish
all the possibilities.
On the other hand, in civil society organizations can be seen innovative practices.
Unhappy with a standard of transparency in which the state determines the format
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and content of information delivered to society, civil society groups require access
to open government data.
These groups have a peculiar feature: while they are mobilized to demand greater
presence of open data in government portals, these initiatives also seek to
anticipate and produce content from the limited data available open, or those who
can hack from the government portals.
They advocate the dissemination of databases that can be processed by programs
developed by civil society, which makes citizens capable of analyzing the
government information in greater depth.
These ideas extend the focus of transparency: not just that it helps to fight
corruption and limiting the control of public spending. Supported by open
government data, transparency should allows analysis that achieve the quality of
spending and helps civil society to evaluate public policies.
Civil society has taken the lead in the discussion of government data in open
country, in this context where there is little government action.
While governments do not adopt the principles of open government data veryenthusiastically, citizens have been using the few existing data to build new
applications. One example of citizen action is the system of statistics and
monitoring of complaints from residents in the municipality of So Paulo (SAC-
SP).
The SAC-SP has features that shows analyses about services asked by city
residents and their in the city government single-shop service portal. The site
shows the number of complaints, structured by place and type of service, using
geo-referenced information.
SAC-SP's mission is to help citizens to oversee the work of the municipal
government in their neighborhoods using the web platform. It was created for
another movement for the use of public data: Tranparency Hack Day. (Thackday).
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The Thackday is based on an event that already occurs in the United States which
aims "to discuss the creation of new interfaces for access to databases of
government agencies, making access to information easier and more democratic"
(AGUNE, GREGORIO FILHO & BOLLIGER, 2010). It was held first time in So
Paulo in October, 2009. In this event, attended by about 150 participants,
developers from all over Brazil, present and remotely create new applications from
the public data obtained through hacking in the government websites, or already
available.
In addition to the SAC-SP, other applications have emerged in this event:
Map of Youth and Adults School(EJA): map showing the openings ofadult education in public schools in Brazil;
Tr3e: website that crosses over the information of deforestation in
Brazil;
Open Parliament: website designed to facilitate access to information
about MPs in Brazil.
These civil society initiatives demonstrate how the issue is increasingly taking upspace on the agenda of organizations and groups interested in using IT to promote
democratic developments in Brazil. Taken together with the emergence of new
government initiatives, these initiatives show a clear sign of an expanding supply
of OGD in the coming years.
Despite the existence of few theoretical and empirical data on open government in
Brazil, there is a clear expansion of national experiences and discussions. We
began monitoring the experiences in the second half of 2010. Within months, the
service of the Public Security Secretariat of Rio Grande do Sul was started and the
federal government began implementing the Open Data National Infrastructure
(ODNI).
If we take the experience of Transparency Portal of the federal government as a
reference, it can be said that the ODNI has great potential to accelerate the
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adoption of open government data initiatives in the country. Its impact should go
beyond the limits of the Federal Government and stimulate initiatives at the
subnational level, by giving greater visibility to the idea of the OGD, and by offering
standards and roadmaps that may be adopted by states and municipalities.
Future additional studies would be useful for better understanding demands for
OGD and evaluate impacts of present and new cases of OGD to promote
transparency, social control and citizen participation.
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