White Paper: Designing the Digital Service Consultation 1. Executive Summary/Introduction The Province of British Columbia seeks to create new and better kinds of digital services that can help British Columbians to access services that matter to them. B.C.’s vision is that “we will save citizens’ time in their interaction with government and make it easier to access better quality services.1” The participation of British Columbians in shaping the approach and priorities for this work is critical to its success. This paper presents the Province’s (represented by the Ministry of Technology, Innovation and Citizens’ Services) consultation design – the steps we are going to take to consult with British Columbians on how the Province’s vision for digital services can best come to life. The consultation will focus especially on how the recently introduced B.C. Services Card may be used as a key tool to enable this vision. By describing the elements of the consultation, the Province wishes to solicit feedback from interested stakeholders about our approach. This feedback will then be used to shape the implementation of the consultation, scheduled to begin in the Fall of 2013. To be clear, while the Province is interested in your feedback on any and all elements of the process described in this paper, the key questions where the Province is most open and able to work with your input include: 1) Do you have ideas on who should be considered a stakeholder to this issue? 2) Do you have specific feedback on the proposed Terms of Reference, found in Appendix A? To meet project timelines, comments close by August 22nd, 2013. Comments are accepted by email at CitizenEngagement@gov.bc.ca This white paper begins with a background on the consultation and citizen input gathered to date, followed by a detailed description of the three main elements of the consultation:

1 Province of British Columbia. Citizens @ the Centre: B.C. Government 2.0.9. http://www.gov.bc.ca/citz/citizens_engagement/gov20.pdf July 15, 2013

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1) B.C. Services Card User Panel (the Panel) - The Panel will be responsible for

reviewing the Province’s digital service approach, and provide direction around the services they believe are the highest value to citizens. The Panel will also confirm or provide recommendations on key principles to guide evolution of the B.C. Services Card identity service.

2) Open Public Input - British Columbians across the province will be invited to provide feedback on possible applications of the B.C. Services Card to enable digital services, and provide their questions, concerns and ideas.

3) Specialists’ Forum - Privacy, security and technology experts as well those who are knowledgeable about the service needs of key populations (such as youth, people with disabilities, seniors, immigrants and Aboriginal people) and will be invited to scrutinize the design elements of the identity management service.

The specific questions the Province wishes to learn about that will cut across all three of the above include:

Where should the Province focus its efforts in using the B.C. Services Card to create new kinds of digital services, and why?

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How can the Province best balance privacy, security, cost effectiveness and convenience in the design of the B.C. Services Card to include key features such as pass code reset and managing transaction history?

What actions can the Province take to build citizens' confidence in the B.C.

Services Card, and in the digital services that take advantage of the opportunities it creates?

How should the Province explore using data created from digital services to improve policy and services?

What would it mean for B.C.’s identity management service to be used by organizations that aren’t part of government?

The latter sections of the paper detail the communication and administrative requirements for the successful completion of the consultation. The final section of the paper presents an invitation for feedback and specifies how that feedback may be provided to the Province. Background Why is the B.C. government changing how it delivers services? From shopping to connecting with family, more and more of us manage our daily lives using mobile devices and online services. British Columbians expect access to information and services 24 hours a day and they expect the same from their government. In 2010, the Province released Citizens @ the Centre: B.C. Government 2.0. In it the Province describes its vision and rationale for improving government’s approach to how it will apply technology to improve its own operations, how it engages citizens, and how it delivers services. The plan was a response to key pressures, such as changes in technology, citizen expectations, fiscal pressure, as well as the aging of British Columbians and the public service itself:

The rapid pace of technological change is altering how citizens expect to interact with government and access services. The aging of the public service workforce and ever-present fiscal pressures are creating a stronger imperative to modernize government operations through innovative applications of technology. This rising tide of challenges cannot be adequately met with existing policies, tools and approaches.2

2 Province of British Columbia. Citizens @ the Centre: B.C. Government 2.0. 6. http://www.gov.bc.ca/citz/citizens_engagement/gov20.pdf July 15, 2013

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The plan identifies three ‘strategic shifts’ that form the map of the Province’s response to that reality. These shifts included ‘Citizen Participation’, ‘Business Innovation’, and ‘Self-Service.’ The Self-Service shift discussed the importance and power of the Internet in helping people connect with services they need in the way they want to access it. Oriented around a vision that “we will save citizens’ time in their interaction with government and make it easier to access better quality services,3" this direction led to significant improvements in government’s web presence, particularly with the redesign of the Province’s primary website, www.gov.bc.ca in 2011. Since the launch of Citizens @ the Centre, our thinking about the role digital technologies can play in improving services has evolved. Government has been in the business of delivering services online for over twenty years. For many years, there were assumptions that providing services online would lower the cost of delivering the service by redirecting transactions away from more expensive channels (such as phone and in person), while at the same time making access more convenient for the public. While there have been many successes in this area, these assumptions have not always produced the anticipated results. We know from 2012 satisfaction surveys that when asked about whether they are generally satisfied with B.C. government services, only 49 per cent of British Columbians say they are satisfied with their service experiences4. We know that our public service workforce is aging, and that budgets are getting increasingly tight. To be able to manage these pressures, the Province believes that by focusing on improving the quality of digital service, we can achieve the efficiency government needs. Generally speaking, poor online service experiences push people to higher cost service delivery channels—phone lines and in person services - and accustom them to avoiding online channels in the future. Importantly, this line of thinking is not about favouring online ways of accessing service over others. A key principle for government is that online, telephone and face-to-face ways of delivering service are all necessary and must work together. We also think that opportunities to create services that enable citizens to serve themselves should be pursued. We’ve chosen to call the types of services that we see taking this integrated approach ‘digital services’. 3Province of British Columbia. Citizens @ the Centre: B.C. Government 2.0.9. http://www.gov.bc.ca/citz/citizens_engagement/gov20.pdf July 15, 2013 4 Institute for Citizen Centred Service. Citizens’ First 6. http://www.iccs-isac.org/research/citizens-first/citizens-first-6/?lang=en

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For a better understanding of what we mean, think of the changes in the last ten years to two industries: retail and travel. Retail businesses like booksellers have moved their customers from in-store transactions, to online shopping, to buying e-books on a mobile device. Each opportunity to buy has its different purpose: in-store for a sense of community and expert advice from staff, online for self-directed browsing and discounts, mobile for things to read right now. The book business has shifted from being about finding the right book from a small store with a limited collection to finding the right book from an almost unlimited collection without ever going to a store or even waiting for the parcel to arrive. Similarly, travel agents have shifted their focus away from simply choosing flights and managing bookings to providing planning advice, creating travel packages and managing issues for clients when they’re on the road. These transitions have been successful because each new way of offering a service eventually became the preferred way for people to shop or book their vacations. These services create new kinds of value for people to the extent that people didn’t want to access the service in person or through the phone. But where people had questions or needed advice that went beyond the basic service offering, they could get the help they need. This approach has allowed retail and travel organizations to process more basic transactions at a lower cost while focusing their expert internal resources on more complex and higher value interactions. The result is that companies get what they need in terms of keeping transaction costs low, and customers get what they need in terms of level of service. An important caveat does apply to this discussion: government is not a business like retail or travel.. But that does not mean that when people do need services, they should be difficult or frustrating to use. Such time and energy can be used for better things, like running a business, raising children, or getting an education. For government to take this approach is not trivial. Creating more integrated, seamless digital services requires new approaches, skills and technology that will enable government and citizens to have confidence that the right services and information are being provided to the right people over the Internet. A key gap is clear: having a way for people to reliably sign in to access government services. A description of the challenge is nicely summarized in the Citizens @ the Centre:

Moving public services online is complicated by the need to ensure users are properly identified before they can access those services. The level of security needed for many public services is much higher than that needed for

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many online transactions because of the extremely sensitive nature of the information and data involved5.

The term for this in industry-speak is identity management. The role of identity management in enabling digital services A bank has websites that offer a great deal of information about the services the bank provides, how to become a customer and so on. Anyone may browse this information freely and there is no requirement that you identity yourself or login to the bank website. However, if you are a customer and wish to use the online-banking services to access your accounts, make payments, transfer funds, you are required to login. The mechanism for this is usually some sort of a userid or user account number along with a passcode that you remember and type in. The authentication mechanism satisfies the mutual interest that customers and the bank have about being certain that only the customer can access their online-banking services and accounts. Government won’t be able to move to higher quality digital services over the Internet without a way for citizens to be confident that only they have access to their digital information and services. Like in the online banking scenario, there has to be a way for citizens to authenticate themselves for login. A second aspect of identity management is about the processes and information that are used to become a customer or a client of a service in the first place. Becoming a client or customer of a bank requires an in-person visit so that the bank can verify your identity information, make a record of your signature, and get you registered and signed up – there is no digital service that the bank can provide for this. You make a one-time visit to a bank branch to be registered and from that you can do most things without needing to go back. For government to move to higher quality digital services, it is going to be important for people to self-register or apply to become clients of government services without the need for physical visits to government offices to present the information that is needed. Consider the simple idea of being able to provide proof of your name, registered address, postal code etc during registration for a government service. People will need a way to provide digital services with their identity information when it is requested of them and in a secure digital format that avoids risks related to identity theft, fraud, and erosion of their privacy. 5 Province of British Columbia. Citizens @ the Centre: B.C. Government 2.0.27. http://www.gov.bc.ca/citz/citizens_engagement/gov20.pdf July 15, 2013

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What is the B.C. Services Card? In February 2013 the B.C. Services Card was introduced. It replaces the old Health Services CareCard and can be combined with the B.C. Drivers’ license into one card. For most people the card is issued during re-enrolment in the provincial medical services plan when their driver’s license is being renewed. The B.C. Services Card serves as government issued photo ID. It also includes a contactless chip and pass code system that will allow the card to serve as a person’s authentication credential when accessing digital services. This technology provides a secure, inclusive, foundation for B.C.’s approach to digital identity management. While the technology behind this solution is complex, importantly it is being designed so that one card could potentially allow access to a variety of government services while limiting each service provider to only the information needed to authenticate each user. That means government can enable access to a wide array of digital services, all without allowing any one of those service providers to have access to the private data held by another. In effect, this approach is no different than how citizens now use cards to access services that are not online. The service provider requests the card as proof of identity and the citizen provides it in exchange for service. But this smart card approach allows citizens to access a potentially wider range of information and services online at their convenience. Government is now in the process of developing the systems and processes that will enable the first uses of the B.C. Services Card for digital services. This public consultation will inform the development work and the priority of digital services. What principles have guided B.C.’s approach to identity management to date? B.C.’s approach to identity management has been guided by internationally recognized principles such as:

Citizens should have choice, consent and control over the use of their identity information to the greatest extent possible.

Identity information should only be used for its intended and authorized purposes.

Identity management services should provide a familiar and consistent experience for citizens.

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Identity management services should support multiple service channels such as in-person, Internet and mobile.

Identity management should be trustworthy and secure.

Identity management services and activities should be transparent and accountable.

Identity management services should be designed to allow for future change and opportunities for use beyond the B.C. Government

What kinds of services could be available with the B.C. Services Card? Government is engaging B.C. citizens to identify and prioritize which services will be accessible using the B.C. Services Card. The next step is to design the services that will make first use of the B.C. Services Card. While potentially all government services could be available online some services are more challenging or less desirable to deliver online. To ensure that government is prioritizing the right services we are consulting with citizens. Examples of possibilities include:

A business owner could prove they are the principal owner of a small business, the business name and number, and therefore be able to open a business bank account online or efile their taxes.

A citizen could easily apply for and receive benefits online: such as student loans, subsidized housing or home care

A citizen could electronically register to vote

A citizens could update their address; providing real assurance about who they are and with the confidence that they are the only person on the Internet that can do so.

Proof of local residency could someday help with making ferry reservations or obtaining discounts

A person could use a digital service to prove only that they are a person 19 or older without revealing any detailed personal information as they would today by showing their driver’s license

A client could access their own health information, such as lab results, prescription or immunization history; schedule their own appointments.

Engaging British Columbians

The Province seeks to pursue a strong and legitimate public process to support the direction of its overall digital service approach and priorities, with a focus on the implementation of the B.C. Services Card identity management service.

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The Province’s two basic objectives:

1) We want British Columbians to assist us in understanding how to build confidence in the Province’s approach to ‘digital services’ and the identity management program.

2) We must learn more about the needs and values of British Columbians so that the Provincial Government can meet those needs and values.

The Province’s ability to achieve these objectives depends on meeting the following requirements:

The Province needs to be clear about what it needs to learn so that it can ensure public input can most effectively inform its decisions. In exchange, participants should expect a clear idea of how that input will be used, and a report back on how that input actually was used.

A strong public learning program is necessary for the success of this project. Without balanced information about the risks and opportunities in pursuing digital services, the public, stakeholders and experts cannot engage effectively. This project will maximize transparency about the Province’s plans so that it can invite scrutiny. Such scrutiny is critical for building trust, a significant desired outcome from this process.

For this process to provide a useful decision output, it requires representative participation from the public, stakeholders and experts. We must use the best methods available to ensure the results reflect input from all these different kinds of British Columbians.

Where Government needs your help

There are several areas where the Province needs to learn from British Columbians.

1) Building Confidence—The Province recognizes that public trust in its actions are essential for success. Where digital services and the B.C. Services Card are concerned, our assumptions and rationale need to be tested. We need to know if our approach to pursuing digital services is one that resonates for the people we are trying to serve. And once people understand the Province’s proposals around the digital identity service, understanding what the Province can do to win and keep British Columbians’ trust in the work now and in the future will help us be effective. Our key question is: What actions can the Province take to build citizens' confidence in the B.C. Services Card, and in the digital services that take advantage of the opportunities it creates?

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2) Values that impact near term design and implementation—a key challenge

for the Province is to create ‘optimal’ services that allow us to manage our resources, build trust with British Columbians that their personal information can be handled securely and their privacy respected, and deliver an experience that creates enough value for citizens that they prefer to use these new service offerings. Our key question focuses on the implementation of the B.C. Services Card: how can the Province best balance privacy, security, cost effectiveness and convenience in the design of the B.C. Services Card to include key features such as pass code reset and managing transaction history?

Passcode reset—we all forget passcodes from time to time. In the online world we are used to clicking on the “Forgotten your password” link and receiving a temporary password by email a few seconds later. This is very convenient and easy. Yet, it is not the most secure method – there are no guarantees that the person who clicks on the link is the account holder and there are risks that the email account itself has been compromised; someone else could gain control over your online accounts. The most secure way of re-issuing a passcode is for card holders to go in-person to a counter where their identity information can be confirmed face-to-face. This creates the highest level of assurance that the right person is getting the new passcode, and does the most to fend off fraud or other abuses of the service. The protection of personal information would be the dominant value in how the service works. Of course, the flip side of this is that going to a counter is not always convenient, especially if the person in question lives in a remote location or if they are infrequent users of their cards and so are likely to forget their passcodes more frequently. Multiple trips to the local Service BC counter for a passcode reset will not create happy experiences for people. The challenge here is that using more convenient methods creates more risk. The questions are, how do British Columbians see this balance, how does that view reconcile against the need to safeguard personal information and operate public services, and how should the government design the identity management service as a result?

Digital Service Transaction history and activity logs—through the course of research into the usability of the B.C. Services Card we encountered some surprises. One surprise was the desire from citizens to be able to see all of the transactions they’ve had with various services in one place. The

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usefulness of being able to see credit card transactions was often the example cited for why this would be desirable. To be able to remember past transactions, see for yourself whether there was anything unusual happening with your card, and to not have to carry extra documentation was often cited as a benefit.

And yet, the risks to privacy for tracking and holding transaction histories can be very real. If government were to hold the entire transaction history as a default practice it may become feasible to ‘profile’ people using that data. This could lead to secondary uses of the information such as requests from law enforcement. It could even be the case that abusive spouses or parents force family members to provide access to their transaction logs as a means of controlling their behavior.

Conversely transaction history and activity logs could be consciously deleted after a short period of time as a privacy safeguard, or could be copied to the citizen and then deleted from the government systems.

The question here has the same form as before: how do British Columbians see this balance between protecting personal information versus convenient features that may improve their lives?

3) Priorities for implementation—there are many opportunities to create

digital services that create significantly better experiences for citizens, especially where the B.C. Services Card digital identity management service can be applied. To ensure it focuses on the right places Government needs to hear where citizens believe it can create the most value.

Are there government services that citizens’ feel most need help? These could be services designed to support outcomes like economic growth, environmental protection, transportation, justice, education or health. Alternatively, should the Province focus in areas where citizens experience the most challenge in accessing services they need? Are there some areas of where citizens feel the Province should move quickly? Are there some areas where the Province should go slowly? And, importantly, why?

Our key question is: Where should the province focus its efforts in using the B.C. Services Card to create new kinds of digital services, and why?

4) Shaping future potential—there are two questions about the future the

Province is interested in exploring: 1) What conditions make using data created by digital services to improve policy and services acceptable and desirable in the eyes of the public? 2) What would it mean for B.C.’s identity

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management service to be used by organizations that aren’t part of government?

What conditions make using data created from digital services to improve policy and services acceptable and desirable in the eyes of the public?

One of the consequences of pursuing digital services enabled by the B.C. Services Card is that more and higher quality information about how people are using services will be stored in digital form.

As more digital services come online, this information and data can be used in creative and, in some respects, unimaginable new ways. The potential for responsible organizations to spot patterns in anonymous aggregate data created by citizens using the B.C. Services card to access digital services could significantly help improve policy and service decisions.

For example, understanding that users of one program also connect with a network of other services could help improve the way those services get delivered, or perhaps result in an entirely new service that more effectively replaces the pre-existing services. Such analysis could lead to wins for taxpayers and service users alike.

There may also be opportunities for citizens to choose to use digital services to share their personal data for the benefit of research and other projects with public value or for any purpose that they – the citizen – may wish to authorize.

Examples from the United States like Asthmapolis help illustrate what this data sharing might look like from a service perspective. Asthmapolis is tool designed to help asthma patients and their doctors better understand where and when they have attacks. Users of the service attach a GPS enabled add-on to their inhalers, so that when they use the inhaler, that use is recorded on a map.

This data is then shared between the patient, the doctor and (where appropriate) family members to help detect patterns and spark ideas for changes in behavior or treatment. Rolled-up data from other users of the service is also shared to help individuals understand where others may be having issues.

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Governments are also interested in its application. The City of Louisville is consuming the data generated by Asthmapolis to understand air quality in their city. They use the data as a way to better manage their resources. Having an early understanding of where and when asthma attacks are happening helps predict increases in hospital visits for respiratory problems, and allows the city to send alerts out to avoid certain areas to people who are sensitive to air quality. By mining the personal information generated by users of Asthmapolis, the City is making it easier to breath for everyone in Louisville.

However this trend around the analysis of large volumes of digital information is driving significant discussions about what the limits of government involvement in this analysis should be. The disclosure of the US National Security Agency’s secret PRISM program has raised questions about the balance of interests associated with protecting public safety and protecting privacy, for example.

But is the potential for ‘digital services’ to create this kind of data mining something that should be pursued? What principles should guide government’s choices about whether it pursues opportunities to analyse and use data created by digital services? What role does government need to play to help protect personal information, while also encouraging innovation in the public interest?

What would it mean for B.C.’s identity management service to be used by organizations that aren’t part of government?

Another consideration is how B.C.’s identity management service can be a powerful tool to enable services beyond government.

The ability to access reliable identity information is critical to many businesses—particularly in the banking and payment industry. As more business is done online, having a high level of assurance that the person you are dealing with is who they say they are is critical.

On strictly volunteer, user controlled basis, the technology in the B.C. Services Card could enable the banking industry to sign you up for a new account without you ever visiting an office. It could replace or augment bus passes and credit cards, becoming a key part of a ‘digital wallet’. It could make commercial and legal transactions like land transfers far more efficient. In theory, the technology could even allow you—should you grant permission—to connect and move your personal data held by

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government to other private sector services. Imagine for example, that if you were a client of a private company like Asthmapolis, you could use your B.C. Services Card to authorize that data be added to a personal health record held by your family doctor. Or imagine connecting the data from a running app created by Nike to your health record for review by your doctor in the same way.

While most of these examples are far off into the future, there is an opportunity for identity information and B.C.’s identity management system to become an important driver of private sector innovation and efficiency. The basic question is: how does that idea strike people? Do they see opportunity as well? And what are the concerns government must keep an eye on as it explores this opportunity?

2. Process Overview

The proposed consultation will have three elements:

B.C. Services Card User Panel (the Panel) - Will be responsible for reviewing the Province’s digital service approach, and recommending principles and priorities for the use of the B.C. Services Card in achieving

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the Province’s goal to “save citizens’ time in their interaction with government and make it easier to access better quality services”.

Open Public Input - Will offer British Columbians the opportunity to learn about future service concepts that represent its approach to digital services, and that take advantage of the identity management program. Participants will be invited to feed back their questions, concerns and ideas. This input will be provided to the Panel for their consideration, and will be used by the Province to shape its approach to achieving its digital service vision.

Specialists’ Forum - Where specialists in technology, security and privacy as well as representatives of and advocates for key population groups will be provided a detailed briefing on the ‘under the hood’ elements of the identity management service that is being designed and developed. These specialists will be asked to scrutinize the Province’s approach and provide advice. This input will inform the deliberations of the Panel, and inform the Province in its decisions about the service.

The process will begin in the Fall of 2013, and will produce final results by the end of December 2013.

3. Process Timing

The public and stakeholder input process is expected to launch in Fall 2013 and conclude by December 2013. The total duration of the public facing component of the project will be two to three months. The reasons the Province believes this timing is reasonable include:

1) The timeline avoids the summer months and the Christmas season, so as to

solicit more input from British Columbians.

2) The timeline provides the Province with sufficient time to analyze and report back on the process by the end of December 2013.

3) The timeline allows time for the input to be converted into a working digital identity management system in time for spring of 2014.

The next sections of the paper describe the details of each element of the consultation that will be underway during those three months.

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4. B.C. Services Card User Panel

The B.C. Services Card User Panel (the Panel) will be a group of randomly selected citizens asked to provide recommendations on a matter of public policy. The Panel will have a number of phases:

Selection – A random selection process is executed to determine the Panel

membership, with special care to ensure the group is balanced for age, gender and geography.

Learning - Once selected, members of the Panel work through a learning program designed to support their understanding of the topic at hand and its associated issues.

Deliberation - Members are then challenged to identify and work through the issues and achieve the best balance of interests associated with determining a recommendation.

Recommendation - Members finalize their recommendations, and provide them to government, typically through a written report.

The next sections detail how the Province wishes the Panel to apply itself to the question of the future of digital services in British Columbia, and the role that digital identity management can play in enabling that future.

Why is a Panel the right approach for this issue?

The Panel approach is right for this issue for the following reasons:

The Province’s approach to digital services and the identity management

program are reasonably complex subjects that require time to understand. The Panel approach makes time for a learning phase to get participants up to speed.

For legitimacy, there needs to be a high level of confidence that the right mix of British Columbians has had an opportunity to contribute to the discussion. The User Panel model emphasizes creating a predictable and defensibly representative group of citizens to consider the issues put to them.

The highest value input from the public will be about how participants translate their preferences into choices and trade offs that result in recommendations. This deliberative element should be a key focus for the B.C. Services Card User Panel.

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How do we define the task?

The B.C. Services Card User Panel cannot be convened without a clear understanding of what it is tasked with doing. The conversation needs a clear focus. In B.C.’s case, we have two questions. The first focuses on asking the Panel to review our approach to digital services. The second focuses on the provincial identity management program, and the principles and priorities that should define how it is used to achieve the Province’s overall vision of better services for British Columbians. Digital services enabled by the identity management program must be understood and trusted. Since both will touch every woman, man and child in British Columbia, it is important that citizens have a say in shaping the approach to digital services and the way identity management play a role in enabling the creation of these new service opportunities. Therefore, government wishes to set two specific tasks for the proposed Panel: 1) Review the Province’s approach to digital services, recommending actions

the Province can take to build citizens' confidence in the B.C. Services Card, and in the digital services that take advantage of the opportunities it creates.

2) Recommend principles and priorities for the design and implementation of digital services and the next phase of the provincial identity management program to support the Province’s vision to “save citizens’ time in their interaction with government and make it easier to access better quality services”

These tasks are defined broadly and should be subject to interpretation by the Panel members. However, it is important that the Province be clear what type of recommendations the Panel is not authorized to make. Specifically the Panel is not authorized to recommend:

1) The elimination of the choice for a combined B.C. Services Card and the

Driver’s License.

2) The wholesale unwinding of the identity management program. Recommendations that propose a delayed or limited roll-out of the system are acceptable. Conversely, recommendations proposing an accelerated roll-out would also be acceptable, subject to project constraints.

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Facilitation

An independent chair and facilitator will be retained to guide the discussions of the Panel. Broadly speaking, the Chair will direct the process, and the Facilitator will be responsible for providing advice and support to implement that direction. Their collective responsibilities will include: Determining the learning program for the Panel.

Establishing a process to choose stakeholders and experts who will present directly to the Panel.

Managing submissions from interested parties on behalf of the Panel members.

Guiding the discussions of the Panel towards a successful completion of the task referred to it by the Province.

Penning the final report and ensuring recommendations are within the mandate for the Panel.

Managing the process in case of exceptional circumstances, such as the withdrawal of a Panel member.

The Chair and Facilitator may seek advice on any of these matters, including advice from the Province. However, it should be clear that the Chair and Facilitator are empowered to make the final decisions.

Curriculum and Learning Process

Once formed, the Panel will have an opportunity to learn about the subjects they have been asked to consider. While the curriculum will be supported and finalized by a third-party Chair and Facilitator, the learning outcomes government believes are critical include:

1) An understanding of the Province’s digital service vision and approach.

2) An understanding of the Province’s plans for identity information management program and its plans to enable digital services.

3) An understanding of the risks and opportunities associated with the identity management program and digital services.

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4) An understanding of how principles and priorities can be most effective in steering the design and development of the Province’s identity management program.

The Province will not prescribe how these learning outcomes should be achieved. For example, we have no preference whether this learning occurs through readings, expert presentations or through other means. It is expected that sources of information for participants will be balanced, which means that there may be perspectives represented that the Province does not agree with. We recognize we may be seen as biased in this matter, which is why a third-party Chair and Facilitator will be responsible for finalizing the learning material. Additionally, the learning program should be made public through the Panel’s website so that it is clear what information sources participants are relying on to inform their deliberations and their eventual recommendations. Making this learning material public will have the added benefit of allowing British Columbians outside the process to learn along with the Panelists.

Expert and stakeholder input

Expert and stakeholder input into the deliberations of the Panel will be important for its legitimacy. However, time will be a key constraint, since we presume the Panel can only meet a limited number of times (exact timing will be determined in collaboration with the Panel Chair and Facilitator) Stakeholders and experts will have three kinds of opportunities to influence the Panel:

1) Direct presentations, through a process determined by the Panel Chair and

Facilitator.

2) Written and/or video comments, mailed, faxed or sent in online.

3) Participation in the Specialist’s Forum, described below.

While not all stakeholders or experts will have a high level of exposure to the Panelists, we believe the proposed approach strikes the right balance between ensuring Panelists are exposed to the views of stakeholders and experts and managing the Panel’s limited time.

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The Panel’s Relationship to the Province

The Panel will provide its final report and recommendations to the Minister of Technology, Innovation and Citizens’ Services. It is expected that the Province will play a significant role in the process as an information provider and source of expertise for the Panel members. As the party seeking recommendations, the Province also has a role to play in communicating with the Panel about the terms of the process, and about how the Panel’s recommendations can be positioned to have most impact. At any time during its work, the Panel may call upon the Minister or his officials to clarify the task referred to the Panel, information provided to the Panel, or any other matter of importance to the Panel’s work. The Panel may share a draft report with the Province before publicly issuing its final report. Upon receiving the Panel’s final report, the Province will have 60 days to provide a public response.

Terms of Reference

The Province will issue a terms of reference for the Panel, describing its task, its approach to selection, its powers, and its timeline. The terms of reference will become the Panel’s governing document, and will summarize the concepts laid out in this paper. A draft of the terms of reference is attached in Appendix A.

5. Open Public Input

The Province believes that deliberations of the Panel will be greatly supplemented by broad-based input from British Columbians. To that end, we propose using a combination of digital and face to face methods to understand British Columbian’s questions, concerns and ideas about the Province’s digital service vision, and the role of the B.C. Services Card in unlocking that vision. The digital engagement will focus on helping people understand some key examples of how the Province sees digital services working. It will then ask for their reactions to these scenarios, and ask them to offer their own priorities for how they would like government to focus its efforts in service improvement, using the B.C. Services Card as a foundation.

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In addition, the Province will seek to work with smaller populations to get more focused feedback on a few service concepts. Where and when it is appropriate and feasible, the Province wishes to present people with rough prototypes of the service interactions it is considering. By observing people using these modeled service experiences, provincial officials will better understand whether the physical interactions required to access services work as expected. To summarize, the key benefits of this public input include:

1) A broad-based learning opportunity for British Columbians to understand

the Province’s service vision, and how digital identity management can unlock that vision.

2) A broad-based opportunity for British Columbians to feed back their questions, concerns and ideas about these plans to support the discussion of the Panel and inform government directly.

3) Provide an opportunity for provincial officials to learn more about how the physical elements of accessing services in this new way work in practice.

Connection with the B.C. Services Card User Panel

Feedback gathered through the public input process will be compiled and shared with members of the Panel. Timeframes may dictate that the results of this broader public input may not be fully analyzed. However, the important trend lines associated with people’s reaction to the service concepts are likely to be clear. These summary results will be presented to the Panel during the learning or deliberation phases of their work.

Possible outputs:

Questionnaire Data - Reflecting general reactions to the Province’s vision

and the prototyped service experiences.

Interview Data- Reflecting deeper questioning of individual reactions to the exhibition.

Observational Data- Reflecting an understanding not just about what people say about the prototyped services, but how people use them as they work with the various props associated with the service experiences.

Summary Report - This report would draw together insights gathered from the raw data gathered from the sources listed above, with a focus on British Columbians questions, concerns and ideas about the Province’s service

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vision and its identity management program. Key findings will be presented to the Panel, and a full report will be made public.

6. Specialists’ Forum

Two groups of specialists need to be engaged to help the Panel in its deliberations.

1. Privacy, security and technology specialists who are expert in how digital identity management should work or could work. They will be attuned to the opportunities and the risks associated with the design and implementation of the Province’s identity management program.

2. Advocates for and representatives of populations with unique needs, such as immigrants, youth, Aboriginal people, seniors and people with disabilities.

While they are not well positioned to define the principles and priorities for the identity management program (that is the role of the end users of the program, British Columbians), these specialists are very well positioned to provide expert opinion to be considered by the Panel. In addition, this group of specialists can also play a role in scrutinizing the Province’s approach to the identity management program. By inviting the specialist community to investigate critique and discuss the Province’s plans, we believe strengths, weaknesses, opportunities and threats will be identified. This input will provide fertile ground for improving the identity management program. Moreover, by bringing this community of specialists together, it provides an opportunity to build a network of expertise around the identity management program that can provide ongoing feedback as the program progresses.

Approach

The Province proposes a two-day conference held in the Fall of 2013 that brings together an invited group of international experts in the fields of identity management technology, privacy, security and public service provision. The conference will have three purposes:

1) To scrutinize the Province’s plans for the design and implementation of the

identity management program.

2) To provide exposure to the Panel about key areas of consensus or disagreement on the matter of digital identity management.

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3) To found a network of specialists in this field for ongoing engagement with the provincial identity management program as it seeks to evolve and improve.

The first day of the conference will likely involve briefings by leading officials responsible for the design elements of the identity management program, followed by a facilitated question and answer session. The second day of the conference could be in ‘unconference6’ format, where specialists themselves determine the agenda and focus of conversation. Conference reporters would be engaged to ensure the discussions are captured and made public, including to the Panel.

Key stakeholders

The Province wishes to create a cross-section of representation of groups and people interested in the identity management program. They include advocacy organizations, regulators, consumer protection organizations, technology companies, privacy and security professionals, and industry groups such as health care, law enforcement and banking.

We are looking for feedback and ideas on who these stakeholders could be, and would welcome identification of groups or people that should be included.

Connection to the B.C. Services Card User Panel Ideally, the timing of the Specialist’s Forum coincides with the learning phase of the Panel’s work. Should that be the case, some or all members of the Panel will be encouraged to attend the conference and ask questions, and bring back what they’ve learned to the discussions of the Panel.

6 An unconference format begins with what is called an opening-circle and pitch session, where session participants bring forward discussions they wish to lead or questions they wish answered. Agenda time and room space are defined by a ‘grid’, and sessions are pitched until that grid is filled. Participants then self select which sessions they want to attend. At all times, the ‘law of two feet’ applies, meaning that if a participant is not contributing to or learning from a discussion, they should move on to a different session. In an unconference environment, moving on in this way does not reflect any judgment on the quality or usefulness of a given session.

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Outputs

The key outputs from this work will likely include:

A publicly available summary report of the proceedings.

Key insights and learning for members of the Panel.

A network of expertise that can be tapped again as the identity management program progresses.

7. Communications requirements

A vital element of the consultation process will be communicating to British Columbians that it is happening and that they can get involved. Key outcomes for communication will include: 1. Awareness of the project, including key milestones, public events and public

input opportunities 2. A strong public reputation for the process, so what is designed to be a

credible process is also perceived as credible 3. A process that is accessible, where materials communicate plainly and

empower participants of all kinds to engage with the process.

Key audiences for the consultations will include: British Columbians who access government services—especially those who

already have or are about to get a B.C. Services Card, since it will be top of mind

Individuals who get directly involved in the process as participants, either through the Panel or broader public input elements of the consultation

Stakeholders, experts and opinion leaders on issues related to service delivery and identity management

Media (mainstream and social) who may report on the process

Communication Methods The consultation team will use as many methods as appropriate to get the word out to British Columbians about the process. Mainstream media—opportunities may include news releases on key

milestones, opinion-editorials explaining the process, radio phone-in shows to answer questions from British Columbians, and human interest stories associated with citizen participants.

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Marketing—some paid advertising, likely focusing on digital and local media will be most effective at building awareness of the consultation. Panel member recruitment efforts may also be a significant awareness builder. Lastly, service offices and call in centres may be used to refer people to the consultation.

Digital communications—the consultation team should ensure it creates a strong digital presence for the process, including a website that allows for public learning and input, a social media presence to ensure information and interaction can happen with people that prefer those channels, and a presence the transparency of key materials like the Panel’s learning plan, this paper, and other materials.

Audio/Visual Communications—pictures and video will play a significant role in helping the public to understand the human face of the process. Using video and photography will help ensure those outside the process can form an emotional connection to the participants inside the process.

Spokespeople

Spokespeople for the process will include: 1. The Minister of Technology, Innovation and Citizens’ Services—the

Minister will be responsible for speaking on matters related to the rationale, terms of reference, resourcing and progress of the overall consultation. The Minister will also be responsible for speaking on matters related to the acceptance and impact of the results of the consultation.

2. The B.C. Services Card User Panel Chair—the Chair retained to oversee the Panel will be well positioned to speak on its methodology, the progress of discussions, and its eventual recommendations.

3. Panel Members—they will be well positioned to speak about the experience of the Panel, and about its eventual recommendations.

4. B.C. Services Card and Digital Service Strategy Team Members—the public servants behind the identity information management program and B.C.’s approach to digital services will speak about the detailed elements of program.

8. Measuring Success

To ensure the consultation process remains trustworthy and accountable, it is important the Province describes how it will measure the success of the consultation. Key indicators for the Province will include:

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Reach—how many British Columbians touched the process? This can be measured through metrics like website visits as well as media and advertising impressions.

Representativeness—Of those that participate, what is their demographic breakdown? Are those providing input representative of British Columbia? This can be measured by the demographic breakdown of the final members of the Panel as well as demographic information collected from the broader public input process. The representativeness of the stakeholder and expert input will be judged on an analysis of whether the interests associated with the Province’s service vision and the identity management service have had opportunities to contribute.

Participant Understanding—To what extent are British Columbians learning about the Province’s service vision and digital identity management? This can be measured through ‘learning checks’ administered throughout the process, such as quizzes and collecting self assessments of understanding.

Participant Experience—To what extent do participants view the consultation as trustworthy and worthwhile? This can be measured through exit surveys of Panel members and participants in the broader public input component of the consultation.

Program impact—To what extent do the results of the consultation improve the focus, progress and effectiveness of the Province’s service vision and identity management program? This can be determined through internal self assessments, such as questionnaires and interviews.

Project reputation—To what extent has the process been seen to be fair and legitimate? This can be determined through sentiment analysis of public commentary on the project.

9. Your Input Requested

The Province is interested in your feedback on any and all elements of the process described in this paper. However, the key questions where the Province is most open and able to work with your input include:

1) Do you have ideas on who should be considered a stakeholder to this issue? 2) Do you have specific feedback on the proposed Terms of Reference, found in Appendix A?

This feedback will then be used to shape the implementation of the consultation, scheduled to begin in the Fall of 2013.

To meet project timelines, comments close by August 22nd, 2013. Comments are accepted by email at CitizenEngagement@gov.bc.ca.

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Appendix A: Draft Terms of Reference for the B.C. Services Card User Panel

Purpose The Province seeks to pursue a strong and legitimate public process to support the direction of its approach to digital services and the implementation of the B.C. Services Card identity management service. We have two basic objectives:

1) We must learn more about the needs and values of British Columbians with respect to the Province’s approach to ‘digital services’ and the identity management program so that we can meet those needs and values.

2) We want British Columbians to assist us in understanding how to build confidence in the Province’s approach to ‘digital services’ and the identity management program.

Tasks

The Province asks the Panel to take on the following tasks: 1) Review the Province’s approach to digital services, recommending actions

the Province can take to build citizens' confidence in the B.C Services Card, and in the digital services that take advantage of the opportunities it creates.

2) Recommend principles and priorities for the design and implementation of digital services and the next phase of the provincial identity management program.

3) Receive input from stakeholders, experts and the public, especially with

respect to the opportunities and risks associated with pursuing digital

services enabled by the card.

4) Make recommendations by no later than December 31, 2013

Key Questions

The Province has identified key questions of interest that it wishes to refer to the Panel:

Where should the Province focus its efforts in using the B.C. Services Card to

create new kinds of digital services, and why? How can the Province best balance privacy, security, cost effectiveness and

convenience in the design of the B.C. Services Card to include key features such as pass code reset and managing transaction history?

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What actions can the Province take to build citizens' confidence in the B.C. Services Card, and in the digital services that take advantage of the opportunities it creates?

How should the Province explore using data created from digital services to improve policy and services?

What would it mean for B.C.’s identity management service to be used by organizations that aren’t part of government?

Constraints These tasks are defined broadly and should be subject to interpretation by the members. However, it is important that the Province be clear what type of recommendations the Panel is not authorized to make. Specifically the Panel is not authorized to recommend:

1) The elimination of the choice for a combined B.C. Services Card and the Driver’s License.

2) The wholesale unwinding of the identity management program. Recommendations that propose a delayed or limited rollout of the system are acceptable. Conversely, recommendations proposing an accelerated rollout would also be acceptable, subject to project constraints.

Deliverables

A final report that includes:

o A summary of the discussion from the learning, deliberation and

recommendation phases of the Panel

o A summary of the public, stakeholder and expert input considered by

the Panel

o Recommendations in the areas prescribed above

o Lessons learned from the process, including reflections from Panel

members, stakeholders, experts and members of the public

Formation The Panel will be randomly selected, and balanced for age, gender and

geographic representation.

The Panel will be supported by a staff independent from government

Members will be selected by (Date TBD)

Members’ first meeting will be (Date TBD)

Members’ final meeting will be (Date TBD)

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Powers To call on any necessary expertise to support the Panel in their learning,

deliberation or recommendations, within the available budget allotted for

such support

To expel members by way of a two thirds majority vote of Panel members

To call on the Minister of Technology, Innovation and Citizens’ Services to

clarify or elaborate these Terms of Reference

Role of the Chair and the Facilitator The Chair and Facilitator of the process will be third parties, independent from government. Broadly speaking, the Chair will direct the process, and the Facilitator will be responsible for providing advice and support to implement that direction. They are charged with the following responsibilities:

Determining the learning program for the Panel.

Establishing a process to choose stakeholders and experts who will present directly to the Panel.

Managing submissions from interested parties on behalf of the Panel members.

Guiding the discussions of the Panel towards a successful completion of the task referred to it by the Province.

Penning the final report and ensuring recommendations are within the mandate for the Panel.

Managing the process in case of exceptional circumstances, such as the withdrawal of a Panel member.

The Chair and Facilitator may seek advice on any of these matters, including advice from the Province. However, it should be clear that the Chair and Facilitator are empowered to make the final decisions on these matters. Role of the Provincial Government The Panel will provide its final report and recommendations to the Minister of Technology, Innovation and Citizens’ Services. It is expected that the Province will play a significant role in the process as an information provider and source of expertise for the Panel members. As the party seeking recommendations, the Province also has a role to play in communicating with the Panel about the terms of the process, and about how the Panel’s recommendations can be positioned to have most impact. Supporting Processes In addition, the Province will be supporting two other parallel processes that are designed to feed into the deliberations of the Panel. These include:

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1) Open Public Input - British Columbians across the province will be invited to learn about and provide feed back on possible applications of the B.C. Services Card to enable digital services, and provide their questions, concerns and ideas.

2) Specialists’ Forum - Privacy, security and technology experts well as representatives of and advocates for key population groups will be invited to scrutinize the design elements of the B.C. Services Card log-on service. This input will inform the deliberations of the B.C. Services Card User Panel, and inform the Province in its decisions.