An Approach to Transform Public Administration into SOA-based

Organizations

J. Sedeño

1,2

, C. J. Torrecilla-Salinas

, M. J. Escalona

and M. Mejías

IWT2 Group. Escuela Técnica Superior de Ingeniería Informática, University of Seville, Seville, Spain

Agencia Andaluza de Instituciones Culturales, Junta de Andalucía, Seville, Spain

Keywords: Governance, SOA, Public Administration, e-Government.

Abstract: Nowadays, Service-Oriented Architectures (SOA) is widely spread in private organizations. However, when

transferring this knowledge to Public Administration, it is realized that it has not been transformed in terms

of its legal nature into organizations capable to operate under the SOA paradigm. This fact prevents public

administration bodies from offering the efficient services they have been provided by different boards of

governments. A high-level framework to perform this transformation is proposed. Taking it as starting

point, an instance of a SOA Target Meta-Model can be obtained by means of an iterative and incremental

process based on the analysis of imperatives and focused on the particular business context of each local

public administration. This paper briefly presents a practical experience consisting in applying this process

to a Spanish regional public administration.

1 INTRODUCTION

Nowadays, SOA is widely spread in private

organizations environments both in practice and

theory. However, when we want to transfer this

body of knowledge to Public Administration,

implementations of the SOA paradigm are

commonly reduced to implementations of Web

Services, orchestration of processes or governance

only based on rules of technical character that

prevent public organizations from supplying the

different public services efficiently and effectively.

Regarding the experience of implementing a

SOA architecture and government in the Ministry of

Education, Culture and Sport of the Andalusia

Regional Government, which is a leading project

which applies the usual methodologies of SOA

modelling (Arsanjani, 2004) (Marks, 2008) to Public

Administration (Sedeño, 2013), we have observed

that an alignment with the Public Administration

business is required to optimize the aforementioned

administration’s medium and long-term profits.

We propose a high-level framework to drive this

transformation throughout the organization, covering

all aspects related to the Public Administration

business context. These operations sequences are

initiated when certain events take place within this

context.

A key point in this process are imperatives-

understood either as duty or inexcusable

requirements-, than can be defined for Public

Administration as those that being overcome, may

allow reaching excellence in providing citizens with

services that inherently correspond to them, as well

as in managing internal processes supporting them.

2 SOA PUBLIC BACKGROUND

The implementation of SOA is a complex

technological, organizational and business

undertaking. It requires being aware of the process

theory and knowing it, as well as a deep

understanding of the processes within the

organization.

However, implementations in Public

Administration demand cognitive and practical

studies. There are major differences between private

organizations and Public Administration. Therefore,

solutions successfully used in private environments,

could not apply to Public Administration.

This paper deals with providing an approach to

transform Public Administration into SOA-based

organizations. Thus, it is necessary to understand the

business context differences between a public and a

private organization.

135

Sedeño J., Torrecilla-Salinas C., Escalona M. and Mejías M..

An Approach to Transform Public Administration into SOA-based Organizations.

DOI: 10.5220/0004794701350142

In Proceedings of the 10th International Conference on Web Information Systems and Technologies (WEBIST-2014), pages 135-142

ISBN: 978-989-758-023-9

 2014 SCITEPRESS (Science and Technology Publications, Lda.)

Unlike private organizations, focused on their

profitability and stakeholders’ value, public

administration bodies have the public interest at

heart. Their success goes along with their reaching

of social goals. Simultaneously, these organizations

have to cope with social and political demands,

which are not the regard of the private sector. To

compound the problem, public administration bodies

create policies or policy advises which are more

difficult to identify than private sector organizations’

physical output or financial results (Tregear and

Jenkins, 2007).

Processes in Public Administration are more

complex than in private organizations (Repa, 2006).

This is due to the fact that Public Administration is a

closely set organizational structure, where processes

are formalized and decision-making is slow. This is

compounded by the decision-making independence

of individual departments, which often pursue their

own goals regardless of the whole board of

government. The process flow across departments is

much more complex and depends on the task scope

of individual employees. In addition, all government

actions are hedged around with a great number of

legal regulations. These make the modification or

improvement of processes a hard task to perform.

They often require the introduction of changes in the

law, which is a lengthy process.

Hence, creating an efficient Administration is

impeded by factors (Hall, 2007) such as:

 Increasing bureaucracy (larger number of

documents, statements and reports. Spain is

organized into four administration levels).

 Complex and frequently changing administrative

procedures (Each Administration in our country

rules its own laws by adapting official central

laws).

 Law inflation (establishment of new laws and

regulations by the legislators. In Spain several

Administrations duplicate their competencies,

either at local or regional level).

 Competition for financial resources (budget item

justification, application for EU funds).

Public Administration uses SOA solutions based

on web services implantations (Goudos el al, 2007),

policies orchestration (Popescu et al, 2012), or

business rule compliance (Castellano et al, 2005)

without the aim of becoming a reference model to

them (Galster et al, 2013), so that it can overcome

these barriers and become more competitive.

In contrast, there are methods based on

understanding the organizational elements and their

relationships and, also, the drive goals analysis

(Delgado et al, 2013). In the same way there are

several approaches about IT government such as

ITIL, COBIT or TOGAF interrelated to the delivery

of service. However, these methods do not specify

how to transform Public Administrations’ nature that

is the aim of our paper -the transformation of the

Public Administrations in terms of its legal nature

into organizations capable to operate under the SOA

paradigm-.

Nevertheless, the own administration must be

transformed to operate in SOA environments

incorporating its own legal and human barriers as

part of the methodology. Many Enterprise

Architecture (EA) Frameworks for private

organizations about reference models based on SOA

(Ruas de Oliveira et al, 2010) (Alwadain et al, 2013)

are gathered after a literature review, whereas little

information about critical success factors (CFS) in

Public Administrations is found (Abdul-Manan &

Hyland, 2013) (Koumaditis et al, 2013). EA

implementation involves products and services that

are both in business and industry domains, the

technical infrastructure based on open system

building blocks, the definition of EA that includes

business process architecture, the application

architecture and data and technology architectures

(McSweeney, 2000). In fact, we have not achieved

any generic framework designed specifically to

support any kind of public environment.

All concepts exposed, regulatory framework,

organizational structure and government processes

as a service and bureaucracy, are included in the

"business context" step, as part of the imperatives

analysis described in section 3.

3 A HIGH-LEVEL FRAMEWORK

APPROACH

Analysing imperatives method represents the

previous step towards the transformation of an

administration body into a SOA-based organization.

We start from Public Administration business

context to carry out this process of analysis.

This context shows the organization’s business,

its functional areas and its organic structure, so as to

identify its situation regarding the future government

model.

Services supplied by Public Administration to

citizens constitute an essential part of this business

context. In the same way, we can also observe the

determining factors conditioning the organization

from both points of view, business and ICT

(corporative policy defined at IT level).

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Figure 1: Imperatives Analysis Method.

Once the foundations of the business are laid, we

proceed to identify the business imperatives. These

refer to the business and service challenges

addressed to citizens that Public Administration

must face up. We get the ICT imperatives (the

translation of the target business into a technical

language), after identifying the aforementioned

business imperatives, through a deductive process

that relates the business challenges to possible

initiatives that can be carried out from the ICT area,

in order to face them successfully.

These ICT imperatives keep a certain level of

abstraction since they define what to do, but not how

to do it. In a next step, and, based on ICT

imperatives, we will set out the concrete

implementations that SOA can do regarding such

ICT imperatives. These implementations are called

SOA Drivers. This way we can realize the value that

a SOA implementation can provide at corporative

level, in relation to the need of facing up the

established challenges outlined by ICT imperatives,

and by extension, by business imperatives.

Therefore, once the relation between SOA

Drivers and the own business imperatives has been

defined -shown through the different traceability

matrices-, we clearly observe that SOA Drivers must

act as an engine when implementing SOA. A

traceability matrix is a document, usually in a table

form, that correlates any two baseline documents

that require a many-to-many relationship to

determine the completeness of the relationship. It is

often applied to high-level requirements and detailed

requirements of the product to match parts of high-

level design, detailed design, test plan, and test

cases. SOA implementation metrics will be defined,

after identifying SOA Drivers. The definition and

implementation of these metrics are carried out with

the aim of evaluating whether the organization is

transformed to operate under a SOA paradigm. Each

SOA metric represents how efficiency is measured

within each SOA Driver. Finally, we will arrive to

instantiate the SOA Target Meta-model, once the

SOA Drivers cluster has been executed. (Figure 1)

3.1 Business Context

Public Administration, due to its public nature and

the service provided to citizens, is defined as “the

set of elements around which the Public

Administration defines a global model for the

providing of services to citizens, and establishes

some strategic targets that determine the shape and

minimum levels of providing such services”.

There is a set of legal and structural elements in

Public Administration that will make up the “core

business” of the administration business context,

which must constitute the starting point of our

imperative analysis strategy. These common

elements to all public administration will be more

deeply explained below:

Regulatory Framework. Public Administration

is set under a common regulatory framework that

not only controls its own operation (internal

management), but also the service provided to

citizens. Besides, as the public administrative law is

especially oriented towards the procedure and it is

deeply guaranteed, some of the business procedures

of administration bodies do not follow the principles

of efficacy and efficiency. Consequently, their re-

engineering draws a competitive line when

providing these services. For example, in Spain,

there are a group of laws that have direct influence

on the way services are provided to citizens, such as

Law 11/2007, of 22 June, on electronic access to

Public Services for members of the public, that

recognizes the right of citizens to have access to

Public Administration by electronic means and

regulates the basic points on the use of information

technologies within the administrative activity.

All designs associated with services, processes

and procedures must be framed within this

regulatory background to be implemented, according

to the most important concepts these laws point out:

service provision, transparency, interoperability and

citizens’ empowerment.

Charter of Services. They are defined as

documents whose purpose is to inform citizens of

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the public services. The administration body

manages the conditions in which they are provided

their rights in relation to these services and the

quality commitments offered in terms of its

providing. This document is crucial, since it directly

frames services that the relevant public

administration body supplies and also its real aim as

administration, delimiting the business context.

Structure Decrees. Each public administration

body is regulated by a structure decree that

determines a set of key elements affecting and

configuring the SOA Component Diagram. This

decree establishes the competences to develop the

business process (which in turn will become the base

of analysis of business imperatives) and the

organizational structure that covers these

competences (that will determine the Domain

Model).

Strategic Plans. They are formal documents

approved by the board of government, written to

materialize public policies in order to provide

citizens with a right. They do not answer to a legal

duty, but each administration office should

commonly be ruled by one or more strategic or

action plans.

The Master Plan for Information Systems. It

aims to get a reference framework for the IT

development in response to Public Administration’s

strategic goals.

3.2 Identification of Imperatives

It will be necessary to identify imperatives within

the strategy or imperative analysis. It means that we

must get imperatives, understood as duty or

inexcusable requirements, from the previous

business context. Business imperatives can be

defined for Public Administration as those that being

overcome, may allow reaching excellence in

providing citizens with services that inherently

correspond to them, as well as in managing internal

processes supporting them.

Starting from the analysis of the System Plans

and the Competence Plans that Public

Administration has been assuming by means of the

corresponding decrees of structure and the particular

regulatory framework, and, based on the current

situation, the following business imperatives can be

identified in general:

 Fulfilment of operative guidelines that entail

measurement, analysis and continuous

improvement of the public services offered.

 Checking the current level of administrative

procedures by telematics means. It is necessary

to perform the foreseen review of telematics

procedures that involve the laws

 Existence of not computerized business

processes, reengineering and automation of these

processes, establishing the degree of agility when

computerizing business projects are necessary. It

is essential to implement the mechanisms to

speed up the business processes computerization

in the SOA paradigm.

Once the business imperatives have been

established, the next step consists in identifying the

ICT imperatives linked to each business imperative.

These ICT imperatives are defined as the solutions

that the ICT area of the administration body offers to

face up the identified business imperatives.

As a result of the business imperatives analysis,

and related to them, the next ICT imperatives will be

identified, and a traceability matrix will represent

the coherence of this identification.

This point is crucial since ICT imperatives will

be those that, once translated into the SOA

paradigm, will start creating the necessary base for

the effective implementation of the architecture in

such administration office.

3.3 SOA Drivers

SOA Drivers are initiatives that, under the SOA

paradigm, help Public Administration tackle

business and ICT imperatives. Therefore, SOA

Drivers are the elements that should head the

implementation of this architecture and, therefore,

carry out the transformation.

A SOA Driver, that is a possible solution

associated with each imperative under the SOA

paradigm, will be recommended to identify these

SOA Drivers for each identified ICT imperative.

To sum up, SOA Drivers will be the tools that

aligned with the business context, will provide the

organization with different ways of operating,

leading to the effective implementation of SOA by

instantiating the SOA Target Meta-model.

3.4 SOA Implantation Metrics

SOA implementation metrics (Brow et al, 2008) are

the elements used to assess the degree of

implementation of the SOA paradigm in the

organization. These metrics are defined with the

purpose of being able to evaluate the evolution of

SOA Drivers in relation to the objective they intend

to fulfil. Due to this relation, they are useful to

evaluate the SOA implementation state together with

its progression along the time.

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Figure 2: SOA Component Diagram.

Two concepts that will allow us to frame the

concept of metrics and their relationship with an

organization’s KPI and SLA are defined below:

 KPI (Key Performance Indicators). It is an

element that enables analysing any

organization’s business processes, making it

possible to evaluate the level of achievement

regarding the outlined objectives.

 SLA (Service Level Agreement). It is an

agreement established between the service

provider and the consumer by specifying the

expected quality of that service.

It is crucial to define a set of implementation

metrics that can assess the fulfilment of the

identified business goals, in order to carry out a

correct implementation of SOA.

The definition of these metrics is planned in the

SOA implementation project, included within the

activity of defining the SOA Government Model.

The aforementioned definition of metrics must

consider the imperative analysis stated in SOA

implementation strategy and, particularly, in the

SOA Drivers identified.

With regard to the selection of the best metrics

and indicators, they must be defined according to, at

least, the following criteria:

 Alignment with both, the SOA Drivers identified

and the business and ICT imperatives that lie

beneath them.

 Possibility of doing homogeneous measurements

on metrics, which enable making different

comparisons to show how the implementation is

evolving.

SOA metrics must be adapted to the main

objectives of SOA implementations, so that they will

verify the degree of achievement of these objectives.

SOA will define metrics, through its

technological infrastructure and its governance

policies and procedures, for monitoring services

deployed in execution as well as evaluating the

degree of implementation of the SOA paradigm into

the organization.

The metrics that will allow checking how SOA

has been implemented (in a company) can be

classified in two different typologies:

 These concerning controlling activities linked to

the lifecycle; revision of documentation,

additions, versions, detection and use of the

existing services, and revision of the

accomplishment in the testing phase of the SLA

defined.

 These concerning controlling administrative

activities and management; tasks related to

manage the registry (definition of a service

property and maintenance of the registry) and

define communication and distribution services

policies.

3.5 SOA Target Meta-model

(SOA-TM)

We propose a SOA Target Meta-model (Figure 2)

for Public Administration that represents the

necessary structure of components to start with the

operation phase under a SOA paradigm.

This meta-model must be understood both, as

part of the definition of the high-level framework

and as its own result. That means that it is necessary

to define first a set of components that, after

executing the imperatives analysis and applying the

iterative method proposed, shows the objective final

state of the organization, which will operate under a

SOA paradigm. This Component Diagram

comprises four elements, which refer to the

organization (government), business (functional),

methodology and technology:

Organizational Components. At this level,

policies and procedures that shall structure the SOA

government will be defined. They will constitute a

set of rules, restrictions and requisites to monitor the

behaviour and actions within SOA services, so that

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Figure 3: Iterative Strategy.

they can be aligned with the business needs

obtaining a successful result after adapting the SOA

paradigm. This government model will deal with the

definition of SOA Service Domains, based on the

legal organic structure of Public Administration.

Definition of SOA Service Domain Model.

 Definition of SOA Government Model.

 Definition of SOA Government Policies through

the formal definition (Parejo et al, 2011).

Business Components (Functional). This

component is based on the analysis of the

organization’s business processes, obtaining as

deliverable:

 Definition of the Services Portfolio.

Methodological Components. This root of the

meta-model refers to the need of establishing the

methodological bases that allow providing a

common development framework.

 Definition of the SOA Services Lifecycle.

 Definition of the development methodology for

SOA adaptation, making changes to the lifecycle

development. The Ministry of Culture and Sport,

for instance, works with methodology focused on

the Model-Driven Engineering paradigm, called

NDT (Escalona et al, 2008). It covers all aspects

regarding the lifecycle development.

Technological Components. At this level, the

technological components suitable for the service-

oriented development must be selected, giving

priority to those that maximize software and

platform interoperability reuse.

 Definition of SOA Development Architecture.

 Definition and implantation of SOA Execution

Architecture.

4 ITERATIVE STRATEGY

The implementation of a SOA must be considered

an incremental process, which cannot be focused on

information technologies, but on its own business

processes. The strategy for an organization to

succeed with this initiative must consist in

establishing a time and progression line, where

different iterations occur, assuring that technology is

aligned with the cultural, organizational and

governmental aspects of such organization. Four

kinds of iterations must take place (Figure 3) to

reach the target of this SOA transformation. These

iterations will be part of a lifecycle that will

influence the organization in a multidimensional

way, will have a periodicity recommended, but not

defined and will re-launch the imperatives analysis

in different context switches.

This will depend on the business context

shooters, which will re-launch the lifecycle

according to the level where the event will take

place. Each iteration is in turn made up of n-

iterations at the next level.

Business Iterations. They constitute a cycle of

business analysis that must allow detecting any

change of relevance within the organization. From

the point of view of PA, the business deals with

providing services supplied by executive orders.

Strategic Iterations. They particularly focus on

the SOA transformation strategy point defined in the

analysis of business and ICT imperatives. This kind

of iteration is the result of carrying out multiple

initiatives or SOA projects within the framework. As

a consequence of this process, technology itself acts

as a SOA transformational element. In the same

way, it is the opportunity to execute the government

policies defined, broaden their acceptance, taking

them as organizational and cultural base, and the last

targets of each individual project.

Project Iterations. The degree of

implementation reached on the proposed SOA

projects and, therefore, the degree of transformation

of the related body will increase in these iterations.

They mean a cycle of analysis of the group of SOA

projects necessary to fulfil the SOA transformation

strategy process of the PA.

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Service Iterations. SOA services iterations are

implementations of business or technological

requirements carried out by the organization, which

finally conform the SOA paradigm. This iteration

must follow the corporative process defined for the

PA in relation to the lifecycle of services as part of

SOA methodological definition of development.

5 A PRACTICAL EXPERIENCE

The project presented in this paper was developed

by Junta de Andalucía, the regional government of

Andalusia, a region located in the south of Spain,

counting with more than 200,000 employees. This

project was developed by the regional Ministry of

Education, Culture and Sport, which is in charge of

developing and coordinating public policies both in

cultural and sports areas. Among its tasks, this

ministry manages public museums, archives, sports

clubs, art galleries and theatres. It is also responsible

for supporting regional cultural and sports industries,

together with other public and private stakeholders.

The ICT Department of the Ministry is in charge of

running this project, being responsible for all

Information Technology policies in the Ministry.

The project started in January 2008 and finished

the first complete iteration in June 2009, after

instantiating all components of the SOA Target

Meta-Model.

Since this moment, the Ministry has executed the

iterative methodology in all changes that occurred in

the last years, re-launching the lifecycle in relation

to the level at which the event takes place, according

to the business context shooters.

The results of applying this method to the

business context of the Ministry of Culture and

Sport shows that the imperative analysis on the e-

government services are part of the business context

composed by the strategic plan of Andalusia’s

Culture, the structure decree of Ministry, the Decree

317/2003, November 18

that regulates the Charter

of Services and the Open Source decree of

Andalusia.

The main conclusion and principal business

imperative towards e-government was “expand the

current level of administrative processing by

telematics means”. The ICT imperatives associated

were “implementing an administrative procedure

engine that allows incorporating of new

administrative procedures electronically”. The SOA

Drivers defined to fill this deal with “defining these

e-government processes as a set of SOA services

that can orchestrate with the aim to compose more

complex procedures”.

It is not possible, since it is out of the scope of

this paper, to describe all policies, artefacts,

processes, roles or actors involved in governance

according to the SOA Conformance Office.

The elements of the SOA Target Mata-Model

have been created along the process of applying this

methodology to all business imperatives. Finally,

this model was instantiated. Particularly, 14

domains, 20 processes (governance model and

governance policies), a service lifecycle model, a

service portfolio definition and new activities for the

software development lifecycle, were generated.

From a technological point of view it has

changed the software lifecycle based on NDT. A

UML element interface type to service modeling

was created and activity diagrams corresponding to

DAS and DRS were modified. Additionally, a

services repository (supported by Enterprise

Architect) that is used to identify existing services in

the process of analysis was also created.

6 CONCLUSIONS AND FUTURE

WORK

This approach will allow us to trace a roadmap

towards transforming Public Administration (PA)

progressively, beginning with its legal framework

and led by the IT, and ending with a model that

covers all the required components in SOA.

The results of applying this high-level

framework concern the transformation of PA into

an organization capable of operating under the SOA

paradigm. The ultimate goal of PA regards services

provision, especially those related to e-Government

and citizen’s transparency and empowerment

(European Commission, 2010).

Transforming the administration using this

method shall ensure that services are provided with

the proper level of quality, and that such services are

those that should be actually supplied, due to the

analysis of imperatives and the correct identification

of the business context. Besides, technology will

lead the civil servants through SOA Drivers towards

the structural change in administration itself in a

clear way. This process has proven to be a valuable

ally to overcome the human component, integrating

technologies and political profiles in the same

direction. We have successfully identified the

triggers that affect business context and require

adapting the organization, through the iterative

strategy. The transformation of PA through this

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high-level framework will enhance the level of

maturity of service provision. Therefore, we can

consider levels of maturity in e-government and

open government services provision, from the

transformation of the organization and the

instantiation of this SOA Target Meta-Model.

This will entail, as a future work, the analysis

and quantification of the meta-model components

that more effectively contribute to reach such level

of maturity.

ACKNOWLEDGEMENTS

This research has been supported by the MeGUS of

the Ministerio de Ciencia e Innovación and by the

NDTQ-Framework project (TIC-5789) of the Junta

de Andalucía, Spain.

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