Business Intelligence to Improve the Quality of

Local Government Services

Case-study in a Local Government Town Hall

Rui Teixeira

, Fernando Afonso

, Bruno Oliveira

, Filipe Portela

and

Manuel Filipe Santos

Departament of Information Systems, University of Minho, Campus Azurém, Guimarães, Portugal

Algoritmi Research Centre, University of Minho, Campus Azurém, Guimarães, Portugal

Division of Information Systems, Guimarães Town Hall, Guimarães, Portugal

Keywords: Business Intelligence, e-Government, Data Warehouse, Local Government, Simplex, Requirement

Engineering.

Abstract: The use of business intelligence (BI) systems by organizations is increasingly considered as an asset, which

goal is to provide access to information in a timely manner in order to support the decision-making process.

However, in specific cases such as local government organizations, there are very specific challenges. Some

of them like privacy rights and applicable law compliance must be carefully observed, making the necessary

adaptations of these BI solutions. The developed solution brings some important contributions and

represents some advances in the eGovernment context applied to local governments where the information

is normally used/stored are not normalized and pre-defined. Being this a big barrier to development of this

type of solutions, the developed architecture is prepared to improve the data quality and avoid this type of

mistakes. This paper presents an architecture of a BI platform on a local government organization, geared

towards the improvement of citizen offered services quality and efficiency maximization, thus contributing

for cost reduction to the taxpayer.

1 INTRODUCTION

Young Modern Governments and developed

countries, need an agile and flexible Public

Administration (PA) capable of facilitating the lives

of citizens by establishing a swift decision-making

process to address citizens questions in a timely

manner. This process should increase public

confidence in interaction with the PA.

As such, it is increasingly important to develop

an innovative government capable of adapting to the

information society challenges, and provides quality

services according to new paradigms of organization

and networking, supported by recent advances in

information and communication technologies.

Pursuing this guideline, a new project in the area

of Business Intelligence (BI) is being developed in a

local government organization – the Guimarães

Town Hall. Guimarães is a municipality in northern

Portugal and this Town Hall implemented a series of

administrative reforms, upgrading, optimizing and

gaining efficiency in the services provided to the

citizens. In this context, after a first study performed

in the Town Hall it was observed that the use of BI

can result in a profitable choice for the local

government organization. In this particular case BI

is used as a tool to lead the Town Hall to efficiency

and innovation. By introducing BI, this local

government organization, expects an improvement

in decision-making process (Vercellis, 2009) and

therefore provide a better service to the citizens.

However an important question arises: will it be

possible to apply BI in a local government

organization, being this an area of activity with such

peculiar characteristics and used towards citizens

benefit?

This work will try to answer this question by

using a real case study and exploring the possibility

of developing a BI architecture for a Local

Government, which allows to support and improve

the Town Hall quality processes. It is expected that

this architecture can optimize their citizen’s related

services interactions and improve the data quality.

The designed solution is prepared to:

153

Teixeira R., Afonso F., Oliveira B., Portela F. and Filipe Santos M..

Business Intelligence to Improve the Quality of Local Government Services - Case-study in a Local Government Town Hall.

DOI: 10.5220/0005051601530160

In Proceedings of the International Conference on Knowledge Management and Information Sharing (KMIS-2014), pages 153-160

ISBN: 978-989-758-050-5

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

 automate keys performance indicators (KPI)

gathering related tasks that are currently

performed manually;

 ensure the existence of near real-time

information considered relevant to the

decision-making process;

 provide new decision-making process support

information currently inexistent.

The main goal of this paper is to present the data

warehouse dimensional model, the BI architecture

and the SWOT analysis of the solution which it is

suitable for most local government organizations,

aiming for an improvement of citizens oriented

services, using a near real-time data approach.

A brief background and related work is presented

on section 2 and in section 3, contextualization of

the problem and main concepts are presented.

Section 4 briefly describes the BI architecture and

data warehouse model. Section 5 presents the

expected results from the implementation of the

proposed BI architecture and a SWOT analysis of

the solution. Section 6 addresses an introspective

discussion of this work and finally, section 7 and 8

concludes the paper and presents future work and

areas of research derived from these findings.

2 BACKGROUNG

2.1 Business Intelligence

Business Intelligence (BI), is being increasingly

used by organizations (Chaudhuri, et al., 2011), in

the private sector, allowing executive managers to

improve the decision-making processes

In a simplistic view of BI, it combines the

operational data of the organization, which is stored

in repositories created for that purpose and through

the use of analysis, data processing and exploitation

tools, to deliver useful information to managers for

the decision-making process, (Negash, 2004),

(Sharda, 2008) e (Turban et al., 2010). The

importance of BI lies in the combination of the

information delivery process, with the ability that

people have to identify the real needs of the

organization, since without it, the tools by

themselves have no value.

2.2 Business Intelligence for Local

Government

The use of BI by organizations reveals itself as an

added value in the decision-making process,

allowing organizations to obtain a differentiation in

provided services (Ranjan, 2009). This methodology

has been applied in local government, with positive

results, in areas with different characteristics of the

ones implemented in this project (Smith, 2008) and

(Souza and Pereira, 2009).

There are relatively few case studies in literature

regarding practical applications of a BI technology

in government at its several levels, despite the

benefits of BI results within the private sector.

Coman (Coman, 2009) presents a framework for

a BI implementation for E-Government initiatives.

From his paper it is possible to deduce some issues

from BI implementations in government related

scenarios. There is also some technical work by

Microstrategy (Microstrategy, 2007) discussing the

advantages of BI solutions, when adopted by the

government. Also, within the context of this work -

BI in the local-government - Adelakun, (Adelakun,

2012), presented a holistic view of a BI solution

implementation within town-halls in Sweden.

Adelakun study, contributes to a better

understanding of the benefits for local government

when adopting a BI solution. He stated that benefits

can be achieved in short terms, but the value only

appears in the mid-term to long-term.

After analyzed the related work it is important to

mention that it is possible identify the advantages

and related problems originated by a BI

implementation in government. Also worthy of

mention, is the lack of practical achievement of the

proposed BI architectures in some cases, or the lack

of details in others. At the same, time the number of

solutions specific to local government are also too

reduced. Although there are most solution to this

area, the approach presented in this paper appears to

be the first which propose a BI architecture that can

be applied to a local government organization,

improving its Quality Assurance System, meeting its

singular business objectives and their restrictions.

2.3 Data Warehousing

Databases used to store a large number of different

data sources, current and historical, directed to the

subject, a dimensional or standardized, allowing

selective analysis of data in order to assist

managers in organizational decision making

(Inmon, 2005), (Kimball, et al. 2006), (Santos and

Ramos, 2006), (Rainardi, 2007), (Turban, Sharda

and Delen, 2010).

The development of the data warehouse was

started with the “Top-Down” implementation

approach (Inmon, 2005).

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3 CONTEXTUALIZATION

The county of Guimarães is located in the district of

Braga in Portugal. It is a highly industrialized

country. The city of Guimarães is known for its

history and its Historical Centre, classified as

Human Heritage by UNESCO.

The society is constantly changing, so one of the

concerns of the Town Hall is to provide the best

services to its citizens. In this way, the Town Hall

has implemented a quality assurance system whose

main goals are to provide the best service at the

lowest cost to the taxpayer citizen.

With the purpose of providing the best services

at the lowest cost to the taxpayer citizen, the Town

Hall joined a central government program, known as

"Simplex Autárquico". Simplex Autárquico is a

program that includes measures of administrative

and legislative simplification, in order to simplify

the interaction of citizens and companies with the

local government. This derived initiative from the

wider central government program namely

“Simplex”. The introduction of this program was an

important trigger to the development of this BI

solution.

3.1 “Simplex” and “Simplex

Autárquico”

The “Simplex” arises from the need of the central

government to respond to pressures for change to

make public services more effective and efficient.

This program has as main objective improving the

lives of citizens and companies who interact with

the public sector

(OECD, 2008).

This program is based on five main objectives

(Marques, 2010):

1. To make them simpler services;

2. To bring the services closer to citizens;

3. Services tailored to the citizen,;

4. Services assessment in order to identify the

most needed services;

5. Do more with less resource, the need for

interoperability of services within the PA.

However, the report of the Organization for

Economic Cooperation and Development (OECD)

(OECD, 2008), states that in order to maximize the

visibility of the Simplex in Central Government, this

shall be applied in local and regional government. In

this sense came the "Simplex Autárquico", targeting

the same objectives as the Simplex, spanning

administrative reform at the local level (GESMA,

2008).

For the "Simplex Autárquico", standards are

grouped into three measurement groups: Inter-

sectorial measures (IS); Intercity measures (IM);

City measures (GMR).

The Guimarães Town Hall, which is an integral

part of public administration, in order to optimize

services for the benefit of its citizens, joined the

program “Simplex Autárquico”, having

implemented some measures, such as: Creation of

a common database of knowledge, enabling rapid

access to information; Providing online services;

Implementing single points of contact. From this

point onwards, for sake of simplicity the local

government “Simplex” implementation - “Simplex

Autárquico” - will be referred to as SIMPLEX.

3.2 ”SIMPLEX” and e-Government

According to OECD (OECD, 2008), “Simplex” and

e-government (Bélanger and Carter 2012) initiatives

share common goals. Both want to make life easier

for citizens and companies in their interaction with

the local government through the use of information

technologies in order to increase the efficiency and

effectiveness of government services.

3.3 Organization Complexity

This structure consists of seven departments and

twenty-four divisions, each one with specific tasks.

Being a large organization, there is the need to

restring the focus on the specific division covered on

the project development. The quality assurance

process is implemented in almost all the Town Hall

departments and divisions. The main focus of the

project is on the “Divisão de Modernização

Administrativa e Qualidade” (DAMQ) – stands for

division of administrative modernization and quality

assurance – under dependency of the “Departamento

de Administração Geral” (DAG) – stands for general

administration department. The main goals of the

DAMQ are (Portugal, 2013):

 Promote, improve and ensuring the

maintenance of a Quality Assurance System

(QAS) in accordance with European

standards;

 ensure the efficiency and effectiveness of

services provided by the Town Hall;

 prepare decision-making on relevant aspects;

 keep the administration informed about the

relevance and efficiency of the QAS;

 promote the assessment of user satisfaction;

 gather and normalize the information that

should be available to the citizens;

 manage the single point of contact (physical or

virtual) for the citizens;

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In short, the DAMQ main focus and their activities

revolve around the citizen.

4 BUSINESS INTELLIGENCE

ARCHITECTURE FOR LOCAL

GOVERNMENT

This architecture focuses on all activities related to

the Town Hall - citizen interaction and all the

services involved in this interaction, supporting the

single point of contact and all the back office

activities. Thus, this platform improves the

monitoring of citizens requests and information,

necessary to support the decision-making process.

Enabling a more efficient control over the quality

assurance system (QAS) implemented in the Town

Hall. With the implementation of this BI

architecture, an increase of the performance of the

Town Hall services is to be expected in the near

future. Since the information will be subject to

knowledge discovery that was not available before.

4.1 Data Acquisition

As a result of the SIMPLEX program, the Town

Hall implemented the so-called "Balcão Único”

which is no more than a Single Point of Contact

(SPC), a place that integrates various services of the

Town Hall in a single place. SPC and the

information obtainable in their workflow are the

main data source of the BI platform. In this SPC, the

citizen can get all the required information about any

service, or perform any type of request.

In the implementation of the SPC, it was

necessary for the Town Hall to adopt a software

solution that enables an integrated management of

services offered to citizens.

This application allows the flow of information

across all the departments and their respective

divisions, making the management of all citizens’

requests swifter. When a citizen goes to the SPC to

make a request (claims, participations, requests for

certificates, among others) the request is created on

the application by the public servant.

Accordingly to the type of classification assigned

to the request, it will follow a predetermined

information workflow.

These workflows are previously created/

configured in the application itself. Within each

workflow there are multiple nodes that identify the

points where the requests must pass. Within each

department/division there are specific workflows.

Each new request from the citizen is inserted in a

given workflow, and dispatched to the proper

responsible department (as configured on the

workflow) for resolution.

The workflows created in the process

management computer application, tend to recreate

the real, tangible, flow of information.

As a downside, the computer application does

not address all the needs of the organization,

reflecting some shortcomings common in all the

Town Halls, such as:

 general overview of all requests;

 identify execution times of requests

workflows;

 make average execution time of requests;

 make statistical analyses;

 identifies slower requests and bottlenecks.

A review in-place, of associated tasks executed

within the scope of the requests workflow, has

showed that certain tasks are still performed

manually, recurring to computer spreadsheets.

Production of statistical indicators relevant for the

decision-making process are not based on

information obtained in real-time, but produced

manually on large time frames that hinders the

ability to use those indicators in a timely fashion to

correct deviations to the workflow.

This type-working provide a high number of

wrong values and the insertion of many not pre-

defined values. This situation is common in this

context and it was one of the main barriers to the

development of the proposed architecture. With this

BI architecture the information acquisition for the

Extraction, Transformation and Loading (ETL)

process, will be done in real-time through views of

the operational database. This task will overcome

the need of manual registration of indicators.

4.2 Requirements Engineering

To identify the requirements for this BI architecture,

the Requirements Engineering (RE) activity was

used, since it is crucial to the success of project

development of information systems (Sommerville,

2006). Requirements engineering is defined, not

only as an initial activity of a project which is

conducted the survey of requirements from users for

the product to be developed, but also includes

management of the negotiating process, with the

objective that the requirements obtained, satisfy

organizational objectives, ensuring business

alignment (Berry and Lawrence, 1998) and

(Sommerville and Kotonya, 1998).

The RE was accomplished according to

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Sommerville process (Sommerville, 2006). By using

this process, knowledge from the stakeholders was

acquired, in order to develop a more broad

architecture capable of serving a wide range of

Town Halls. This RE process resulted in a set of

requirements that the platform should provide. They

obey certain characteristics to ensure their quality,

according to BABOK (IIBA, 2009).

4.3 Architecture

Figure 1: Proposed Architecture for Business Intelligence

platform for the local government.

In order to develop a broad architecture that satisfy

not only the needs of this local government, but

allow its adjustment to other local governments, the

developed architecture incorporates the different

concepts presented by Chaudhuri, Dayal and

Narasayya (2011), where it is possible to simply

identify the layers that makes the BI architecture

under implementation in the Town Hall. This

architecture is presented above, in Figure 3.

4.3.1 Architecture Features

Being this a broad architecture it is expected to

contain set of non-functional requirements. This is

important because it defines the effectiveness of the

BI solution on accomplishing the task it is supposed

to do. Non-functional requirements represent

additional features that define the overall qualities to

be implemented in the development of the BI

solution. During the architecture development the

following overall requirements were taken into

account: information availability; information

security; information reliability; interoperability;

portability; adaptability; real-time.

4.3.2 Architecture Break-down

The layered architecture approach makes it easier to

identify and interpret the phases for implementation,

required for the development of Business

Intelligence (BI) platform technologies. This

architecture consists of five layers which present

different characteristics from each other, such as:

 “Data Sources” –For the development of this

architecture, views from the operational

databases and worksheets produced in control

points is used.

 “Data Movement Streaming Engines” –In

this process, commonly known as Extract,

Transform and Load (ETL), the Microsoft

technology tool is used.

 “Data Warehouse Servers” –This repository

is supported by Microsoft technology.

 “Mied-tier” –For this layer of the

architecture, the Microsoft technology tools is

used.

 “Front-end Applications” –The front-end

applications are being developed taking in

account some feature: usability, user-friendly,

Human-Computer Interaction (HCI) and best

coding practices.

4.3.3 Data Warehouse Model

To fulfil the final set of requirements, a

multidimensional model of the data warehouse was

created (Figure 4). This model is composed of the

fact table FACT_REQUEST, and eight dimension

tables. The model allows the induction of several

indicators (e.g. number of requests, average time,

classifier type) grouped by type of request and type

of movement, workflow, region, time, citizen,

department and user.

One of the main concerns, during DW

development, was to follow a design where the local

government organization informational needs would

be fulfilled by increasing for example the data

quality. To accomplish this there are several

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Figure 2: Data warehouse model for Business Intelligence

platform for the local government.

approaches such as: goal-oriented, data-oriented and

user-oriented. These can be used separately or

combined (Inmon, 2005), (Niedrite, Solodovnikova,

et al, 2007).

The selected approach was goal-oriented, which

in conjunction with Requirements Engineering (RE)

techniques, allowed to elucidate the organizational

goals that became the local government organization

KPI’s which allowed us to ascertain the DW

performance (Niedrite, Solodovnikova, et al, 2007).

5 RESULTS

5.1 Business Indicators

At the moment is being concluded the last phase:

implementation and monitoring. With this Business

Intelligence (BI) implementation, through the use of

a more broad architecture, it is possible to meet the

following business requirements, considered

transversal to all local government institutions:

statistical indicators; average response times;

prediction of the average response time;

measurement of the citizens level of satisfaction;

management of key business indicators.

It presents a set of Key Performance Indicators

(KPI) which allow the organization to obtain the

following information:

 total requests received;

 quantities by type of requests;

 average time resolution of requests;

 detection of temporal deviations on requests;

 prediction of time for requests resolution;

 identify patterns on type of requests entry;

 identify potential bottlenecks on workflows;

 identify communication channel most used;

 busiest periods of time at the physical SPC.

All these analysed KPIs have temporal analysis

options along several dimensions, such as year,

month, day, semester, among others. At the moment

these KPIs is under development and was pre-

validated by the town hall.

5.2 Strengths, Weaknesses,

Opportunities and Threats

The analysis of strengths, weaknesses, opportunities

and threats (SWOT) is used to ascertain the

company's strategic position (Hill and Westbrook,

1997). It is one of the most known management

tools for the strategic analysis of the internal and

external factors favorable or unfavorable for the

organization (Piercy and Giles 1989), that provides

information relevant for the decision-making process

(Kajanus et al. 2004), also allowing for a good

starting point to check for strategic business

alignment of the organization.

With this analysis as can be observed below it

was possible to identify the internal strengths and

weaknesses, as well as the external threats and

opportunities, resulting from the implementation of

this BI solution at the Town Hall.

Strengths

 Increases efficiency of services

 Increases quality of services

 Improve performance off attendance

 Reduces costs of information analysis

 Increases quality in decision-making

 Faster access to data

 Data availability readiness

 Reporting (ad-hoc reporting)

 Integration of different systems

 Monitoring and compliance to standards and

rules

 User defined parameters for analysis

 Intuitive platform with easy access

Weaknesses

 Access to information (legal constraints)

 Sensitivity data nature (legal constraints)

 BI project complexity

 Fragmented data source existing

 Change of organizational culture

 Data security

 User resistance to the change

 IT department’s knowledge

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Opportunities

 Increasing urbanization of the people;

 Population increasingly technological.

 Needs of organization cost reduction

 Improve the quality of decision making

 Improve efficiency in service delivery

 Improve citizen’s satisfaction

Threats

 Suspicion of citizens relating to information

processing.

 Policy issues (legal constraints)

 Security issues

 Technological complexity

 Technological skill and expertise

 Autonomy of the organization (monetary)

 Information and data quality

6 DISCUSSION

The initial results of this project point towards the

existence of benefits resulting from the

implementation of a BI solution within the local

government, more specifically and as addressed in

this, the Town Hall. Despite the use of BI tools

within the government being somewhat recent, and

some barriers to the implementation were identified

on the SWOT analysis (such as Policy issues, quality

of the data our technologically issues), results from

these early BI deployments clearly demonstrate that

the benefits clearly outweigh the drawbacks.

IT is not uncommon on local government (like

the own studied) that several organizational units are

organized in a very strict and bureaucratic fashion.

This often results in organizational and

informational silos, making the information sharing

between horizontal units, hard or even impossible to

accomplish. Usually information must go up into the

hierarchy and back down to it final destination.

Even for this to happen, there must be clearly

identified business process that establish this

informational path. One of the benefits of the

proposed BI solution is that some, if not most, of the

KPI indicators, would be available horizontally

across the entire local government organization,

never of course, without observing proper access

and/or clearance levels, in the case of sensitive KPIs.

As stated before, a great deal of effort has been

put to this architecture, in order to avoid confining it

to one local government organization (the one where

it is being implemented), so that it can be re-used in

similar scenarios where most, if not all, of the KPIs

are of interest to keep under supervision. Taking the

KPIs in account as the main driver for the BI

architecture design, the proposed solution aims at

the local, rather than the central, Government since,

most of the KPI’s are explored taking into account

the organizational structure already exposed above,

where the informational flow, itself, must be

controlled and monitored, as the requests travel

horizontally through the several organizational units

that intervene on the citizen request. Usually in

central government, requests from citizens usually

travel vertically from superior authorization, and

back down to the originating office.

Some preliminary results from the

implementation, point towards a simplified and more

expedite access to the required information. Also,

some KPI indicators that, were hard to get and

involved a significant investment in manual labour,

can now be accessed in a timely fashion. Some of

them were actually impossible to get, and are now

possible to observe in near real time.

7 CONCLUSIONS

The use of Business Intelligence (BI) in a local

government organization, as is the case of a Town

Hall, has clear benefits to the organization. In this

paper an architecture for a BI solution was

presented, designed to be as broad as possible so it

can be reused throughout local government

organizations. The own BI solution is being

terminated and was developed using a real case. This

BI solution is capable of providing useful support to

the decision-making processes, since information is

taken as one of the most valuable assets to any

organization. When used properly, it can help

decision makers in their task by providing them with

insight for making the right choices leading to a

positive impact on a target group of citizens. In

short, this BI solution can provide concrete

information regarding the trends and needs of the

citizen, allowing for local government organization

services optimization and proper knowledge gap

discovery if that is the case. The main contribution

of this paper is a BI architecture that can be reused

throughout local government organizations, in order

to improve service quality and benefits to the

citizens.

8 FUTURE WORK

The project is under development and expected

future work concluding the implementation of the BI

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solution, based on the presented architecture,

includes but is not limited to: Validation of its

applicability in the local government institution

under study - the Town Hall; analyze what benefits

this system introduces in the local government

organization and in the life of citizens; identification

of a set of indicators considered relevant for future

implementations in other local government

organizations.

ACKNOWLEDGEMENTS

This work has been supported by FCT – Fundação

para a Ciência e Tecnologia in the scope of the

project: Pest-OE/EEI/UI0319/2014.

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